RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Government of Pakistan
Ministry of Planning,
Development and Special Initiatives
Islamabad

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)
December, 2022

Government of Pakistan
Ministry of Planning,
Development andSpecial Initiatives

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Disclaimer
This report is based on the findings of the Post-Disaster Needs Assessment (PDNA) thattook place in Pakistan following the floods of 2022. The PDNA was based on the datacollected between September and mid-October 2022. Although all efforts had been
made to improve the accuracy of the information collected and analyzed, the PDNA
assessment was produced in a quick timeframe to ensure the relevance of the estimations. Given the ongoing nature of the disaster and the lack of access to the inundated
areas at the time of publication, remotely sourced data was triangulated and validated
where possible against ground-based information obtained from the Government ofPakistan, local agencies, and international partners. It provides an overall picture of theeffects of the floods on the population, physical assets, infrastructure, and service delivery, but it is not a replacement of in-depth sector-specific assessments. More detailed
sectoral analyses can be found in the Supplemental Report, which also includes a fulllist of contributors. This report is a work in progress as several flood affected district are
still inundated and the exact details of damages are being collected. All monetary estimates are rounded off to the nearest whole number and may not add up to the totals.

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

ACKNOWLEDGMENTS
The Ministry of Planning, Development and Special Initiatives led the Resilient Recovery, Rehabilitation and Reconstruction Framework (4RF). The Asian Development Bank,
the European Union, the United Nations Development Programme, and the WorldBank Group contributed to chapters 1 to 7 and supported the process of prioritizationand sequencing of activities under the four Strategic Recovery Objectives, based on
the needs identified across the 17 sectors of the PDNA. The four partners also
supported the development of the cross-cutting chapters on the Policy Framework,
Institutional Arrangements, Financing Strategy and Financial Arrangements and
Implementation and monitoring. Chapter 8, on ‘Achieving Sustainable Climate
Resilience’, and the Financing Mechanism included in the table ‘Sources of Financing
and Gaps’ in the chapter Financing Strategy and Financial Management, including the
expected support from international partners and the Government’s own
contributions, reflect the Government’s current expectations (the four supporting
partners have not contributed to this part1). This report has benefited from theguidance and inputs of many government agencies and departments including, at thefederal level, the Planning Commission, the Economic Affairs Ministry, the Ministry of
Climate Change, the Ministry of Foreign Affairs, Ministry of Water Resources, andNational Disaster Management Authority. The report has also been guided andinformed by provincial and district governments of Sindh, Balochistan, Khyber
Pakhtunkhwa and Punjab, including the Planning and Development Departments andProvincial Disaster Management Agencies. The hard work of everyone who contributed
to produce this document, which will guide the efforts of all those involved inrecovering from impacts of the 2022 Pakistan floods, is gratefully acknowledged.
Photographs used in this publication were taken by Ministry of Planning Development& Special Initiatives and partners unless stated otherwise.

1 The contents of chapter on ‘Achieving Sustainable Climate Resilience’ and the Government’s current financing
expectations do not necessarily reflect the views of the contributing partners, their member states or the World Bank
Group and Asian Development Bank’s respective management, Board members and shareholders.

5

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)ACRONYMS
MSME

ADBResilient Recovery, Rehabilitation,
and Reconstruction Framework
Asian Development Bank

ADP
BISP

Annual Development Programme
Benazir Income Support Program

NCD
NDMA

bps

Basis Points

NDMP

CD
CSO

Communicable Disease
Civil Society Organization

NFPP
NGO

DRM
DRR
ECNEC

P&D
PC-1
PDMA

FFC

Disaster Risk Management
Disaster Risk Reduction
Executive Committee of the
National Economic Council
Federal Flood Commission

GBV
GIS
GRM

Gender-Based Violence
Geographic Information System
Grievance Redress Mechanism

PFM
PPP
PSC

IDP

Internally Displaced Person

PSDP

IFI

International Financing Institution RRU

IOB
M&E
ME3F

Independent Oversight Board
Monitoring and Evaluation
Monitoring, Evaluating andFollowing the Flow of Funds for
Reconstruction
Microfinance Institution
Ministry of Planning Development& Special Initiatives

4RF

MFI
MoPDSI

6

SRO
UHC
WASH

Micro, Small and Medium
Enterprises
National Coordination
Committee on Foreign
Funded Projects
Noncommunicable Disease
National Disaster
Management Authority
National Disaster
Management Plan
National Flood Protection Plan
Non-Governmental
Organization
Planning and Development
Planning Commission Form -1
Provincial Disaster
Management Authorities
Post Disaster Needs
Assessment
Public Financial Management
Public-Private Partnership
Policy and Strategy
Committee
Public Sector Development
Programme
Recovery and Reconstruction
Unit
Strategic Recovery Objective
Universal Health Coverage
Water, Sanitation and Hygiene

WB

World BankNCCFPP

PDNA

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

CONTENTSEXECUTIVE SUMMARY ...................................................................................10

INTRODUCTION ................................................................................................18

SCOPE, PURPOSE AND GOALS ......................................................................22

MACROECONOMIC STABILIZATION FOR RECOVERY .................................30

POLICY FRAMEWORK......................................................................................34

INSTITUTIONAL ARRANGEMENTS .................................................................38

FINANCING STRATEGY AND MANAGEMENT ................................................46

IMPLEMENTATION AND MONITORING ARRANGEMENTS ..........................52

STRATEGIC RECOVERY OBJECTIVES (SROS) ...............................................60

ACHIEVING SUSTAINABLE CLIMATE RESILIENCE........................................106

INPUT FROM PROVINCES ...............................................................................120

7

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)8

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

EXECUTIVE
SUMMARY

Photo: © UNICEF/Zaidi

9

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)EXECUTIVE SUMMARY
Context
Between June and August 2022, torrential rains and a combination of riverine, urban,
and flash flooding led to an unprecedented disaster in Pakistan. At the height of theflooding, one-third of the country was under water, 33 million people were affected,
and nearly 8 million people reportedly displaced. The floods took the lives of more than
1,700 people, one-third of whom were children. More than half of all the districts in the
country were declared as “calamity-hit” with the majority of those affected locatedin the provinces of Sindh, Balochistan, and Khyber Pakhtunkhwa. The 2022 floods also
highlighted Pakistan’s high vulnerability to climate change1 Pakistan consistently ranks
among the top 10 countries worldwide most affected by climate change despite beinga very small contributor to it with under 1 percent of global greenhouse gas emissions
in 2018.2 The country has observed changing weather patterns, including variations inprecipitation and temperatures, increased frequency and severity of tropical storms
and coastal rains, glacial melt, glacial lake outburst flooding, sea level rise, loss of biodiversity, desertification, and droughts3. While the poor are the most vulnerable becauseof their reliance on agriculture, livestock, fisheries, forests, and groundwater, the aforementioned events have severely impacted the overall economy, especially the industrial and agricultural base of the country.
While the underlying drivers of the disaster impacts are not limited to climate change,
the scale of the flooding Pakistan has seen is unprecedented. Pakistan did invest in
the area of disaster risk management (DRM) following the 2010 floods which affected
20 million people, but still the country’s systems and institutions were not adequately
equipped for the unprecedented scale of this climate-induced disaster which consistedof flooding from heavy monsoon rains as well as riverine floods. The 2022 flooding has
further magnified the underlying institutional and systemic challenges, including weakurban planning and water resource management, inadequate infrastructure maintenance, complex governance, structural inequalities, and limited Disaster Risk Reduction(DRR) capacity. Simultaneous, multiple shocks, including natural hazards, COVID-19, rising inflation, an energy crisis, and fiscal challenges continue to compound the impacts.
Underlying political and economic instability is exacerbating the disaster impacts andundermining recovery. Resilient and adaptable infrastructure, communities and governance are critical to breaking the nation’s cycle of climate-induced disaster and poverty.
1 Eckstein, David, Vera Künzel, and Laura Schäfer. 2021. “Global Climate Risk Index 2021.” Germanwatch Briefing Paper. https://www.germanwatch.org/en/19777.
2 World Bank Group. 2022. “Pakistan Country Climate and Development Report.” CCDR Series. World Bank, Washington, DC. p. 6. https://openknowledge.worldbank.org/handle/10986/38277.
3 Government of Pakistan. 2021. “Updated Nationally Determined Contributions 2021.” https://unfccc.int/sites/default/files/NDC/202206/Pakistan%20Updated%20NDC%202021.pdf.

10Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Pakistan’s Resilient Recovery, Rehabilitation, and Reconstruction
Framework (4RF)
In response to the 2022 floods, the Resilient Recovery, Rehabilitation, and Reconstruction Framework (4RF) is the Government of Pakistan’s strategic policy and prioritization document which will guide the recovery, rehabilitation and reconstruction of thecountry. The 4RF follows a globally recognized approach and methodology for recovery
strategy development. The framework draws from the findings of the Post Disaster
Needs Assessment (PDNA), 4 and presents sequenced priorities across sectors aroundfour Strategic Recovery Objectives (SRO), a policy framework, a financing strategy,
and implementation and monitoring arrangements. The 4RF was developed througha consultative process with key stakeholders, including federal and provincial governments, Civil Society Organizations (CSO), international development partners and other stakeholders. The 4RF will form the basis for the government’s comprehensive disaster recovery plans, including a detailed national and provincial recovery plans. The 4RF
will further facilitate engagement with development partners for financial and implementation support. It will also support coordination of actors across the public, private,
and non-profit sectors on provincial and national programs. Importantly, the 4RF is aliving document that can be updated regularly as priorities and resources change. It
thus forms the basis for the Monitoring and Evaluation (M&E) of the recovery program.
The 4RF and the detailed national and provincial recovery plans will continuously andmutually inform each other.
As climate change accelerates the severity and frequency of disasters, institutional reforms and investments must go beyond business as usual and instead “build back better” and develop systemic resilience. Global best practice also suggests that a credible
recovery strategy is critical for effective and coherent reconstruction and for optimum
resource mobilization and utilization.

Long-Term Resilience
The 4RF is a critical starting point to that the transformational measures are taken
for a resilient recovery and that the disaster will not have multi-generational impacts
through reduced developmental gains. It is also a foundation on which the country willbuild and strengthen long-term resilience to natural hazards and climate change. Thisis critical considering the increase in frequency of disasters, particularly those that are
climate induced. The Government of Pakistan recognizes the importance of long-term
4 https://thedocs.worldbank.org/en/doc/4a0114eb7d1cecbbbf2f65c5ce0789db-0310012022/original/PakistanFloods-2022-PDNA-Main-Report.pdf

11

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

resilience in the aftermath of the unprecedented flooding, and is committed to consolidating the ongoing efforts and undertaking new measures towards resilience, which
will entail higher costs. In this regard, the government has a number of long-term strategies for resilience and adaptation, including the National Adaptation Plan of the Ministry of Climate Change and the National Disaster Management Plan of the National
Disaster Management Authority.

Approach and Scope
The 4RF adopts an outcome-based approach and organizes the recovery needs toachieve the four Strategic Recovery Objectives (SROs):
SRO1:

SRO2:
SRO3:
SRO4:

Enhance governance and the capacities of the state institutions to restore lives and livelihoods of the affected people, especially the mostvulnerable
Restore livelihoods and economic opportunities
Ensure social inclusion and participation
Restore and improve basic services and physical infrastructure in a resilient and sustainable manner

The cross-cutting issues supporting the prioritization include: (i) a policy framework; (ii)institutional arrangements; (iii) financing strategy and financial management; and (iv)
implementation and monitoring arrangements.

Summary of the Strategic Recovery Objectives
Strategic Recovery Objective 1: Enhance governance and thecapacities of the state institutions to restore lives and livelihoodsof the affected people, especially the most vulnerable
SRO1 seeks to rebuild governance-related physical infrastructure that has been destroyed and damaged by the floods, as well as restore and enable a governance structure and system that fosters efficiency, effectiveness, transparency and inclusiveness.
The key will be to enable all tiers of the government to prepare and respond to natural
hazards and climate change through gender-informed and community-led, structuraland non-structural risk reduction measures, including through ecosystem adaptationand landscape restoration. Strategic priorities include short-term objectives, such as
improving public financial management, public procurement, audit, and anti-corruption measures; medium-term objectives, such as undertaking detailed and localized
multi-hazard risk assessments and integrating data into local level decision support

12

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

systems; and long-term objectives, such as strengthening meteorological monitoringand early warning systems and increasing technical capacities of climate change andenvironmental management agencies at federal and provincial levels.

Strategic Recovery Objective 2: Restore livelihoods and economic
opportunities
SRO2 seeks to restore livelihoods and economic opportunities through a multi-sectoral
approach. It has two key pillars: the first promotes livelihoods recovery through agriculture and employment restoration, while the second focuses on boosting economic opportunities through commerce, industry, tourism, markets and financial interventions.
Strategic priorities include short-term objectives, such as direct cash contributions,in-kind inputs, and cash-for-work interventions as well as restoration of jobs throughe-commerce and job guarantee programs; medium-term objectives, such as rehabilitation of damaged public and private infrastructure by using employment intensive
approaches and implementing business regulatory reforms; and long-term objectives,
such as legal, policy, and institutional reforms for the development of the credit market and provision of interest free loans or community investment funds through local
Non-Governmental Organizations (NGO) for the without micro-finance institutions.

Strategic Recovery Objective 3: Ensure social inclusion andparticipation
SRO3 seeks to ensure that no one is left behind and that mainstreaming approaches
are taken so that social inclusion leads to social sustainability. Strategic priorities include
short-term objectives, such as the provision of protection services, psychosocial support, adoption of community-driven development approaches; medium-term objectives, such as establishing missing facilities and more robust protection for those more
vulnerable to violence, trafficking and exploitation; and long-term objectives, such as
the acceleration of community-level disaster preparedness activities with social inclusion and gender equality sensitivity, school meals programs targeting for the most vulnerable, multi-purpose cash grants for the most vulnerable (women and children) andrehabilitation of flood-affected heritage sites.

Strategic Recovery Objective 4: Restore and improve basic
services and physical infrastructure in a resilient and sustainable
manner
SRO4 seeks to restore basic social services for the affected communities and carry out
resilient infrastructure rehabilitation and reconstruction, supported by strengthening
human capital, institutions, and policies to better respond to future disasters. Strate-

13

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

gic priorities include immediate and short-term objectives, such as supporting reconstruction and rehabilitation of housing, prioritizing the most vulnerable, repairing andimproving existing physical infrastructure, repairing water infrastructure and strengthening weak sections before the next monsoon; medium-term objectives, such as a detailed technical evaluation of damaged transport and communication infrastructure,
improvement of contingency plans and their performance in the health sector; andlong-term objectives, such as the establishment of a regulatory framework and tariffstructure for Water, Sanitation and Hygiene (WASH) and municipal services, enhancing
the disaster resilience of the energy distribution network, a flood susceptibility analysisof the entire infrastructure network, and climate and disaster-resilient rehabilitation ofirrigation, drainage, dams, and dikes.

Table 1. Summary of Resilient Recovery
Total Cost
(US$ Million)

Cost by Time Horizon(US$ Million)

14

Immediate andShort-term(up to one year)

Medium-term(up tothree years)

Long-term(up to five toseven years)

SRO1: Enhance governance andthe capacities of theinstitutions to restore lives andlivelihoods of the people,
especially the most vulnerable

116.3

161.4

135.9

413.6

SRO2: Restore livelihoods andeconomic opportunities

3,395.2

755.5

201.1

4,027.6

SRO3: Ensure social inclusionand participation

1,602.4

77.9

55.6

1,735.9

SRO4: Restore and improve basic 1,670.7
services and physicalinfrastructure in a resilient andsustainable manner

5,178.5

3,233.7

10,082.9

Total

6,173.3

3,626.3

16,2606,784.6

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Instituting an Ecosystem for a Resilient Recovery
Macroeconomic Stability: Pakistan’s macroeconomic outlook is predicated on a strong
fiscal response. This assumes that substantial public spending on flood relief, recovery, and rehabilitation will partially offset the adverse macroeconomic impacts of thefloods. The government is already taking fiscal measures in response to the floods inthe form of a flood relief cash transfer scheme. Accordingly, the FY23 government budget target is expected to be adapted.
Policy Reforms and Regulations: The 4RF aims to promote coherence and coordination across the different tiers of government, provinces and areas where recovery efforts are already underway. It builds on lessons learnt from the past crises and seeks
to strengthen service delivery to the populations, especially the most vulnerable andmarginalized; empower local governments and communities to play a major role intheir own recovery; and implement standards and codes to build-back better. These
goals will be achieved through multi-stakeholder partnerships and data-driven decision-making. The 4RF recognizes housing, agriculture and livelihoods as the main affected sectors and therefore prioritizes operational reforms relevant to these sectors
as crucial to accelerate recovery.
Institutional Arrangements: Institutional arrangements for the implementation ofroutine activities under recurrent and development budgets are not designed for themagnitude, urgency and severity of the needs of the post-2022 flood reconstruction
program. For an efficient and effective recovery, an institutional framework based ona central point of coordination and management at the federal, provincial and districtlevels will be developed.
While the federal government will lead the overall coordination and policy formulation through a dedicated Recovery and Reconstruction Unit (RRU) in the Ministry ofPlanning Development & Special Initiatives (MoPDSI), the provincial and local governments will be responsible for implementing the 4RF. Professional human resources will
be housed in special units in the MoPDSI at the federal level and in special units in Planning & Development departments at the provincial level, with links to units at the district level. Furthermore, an Independent Oversight Board (IOB), third-party monitoring
and a Grievance Redress Mechanism (GRM) will be established. Lastly, private-sector
capabilities will be leveraged where necessary.

15

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Financing Strategy and Management: Given the current fiscal challenges, coupledwith the global economic situation, the financial envelope for the 4RF must be a shared
responsibility among the federal and provincial governments, bilateral and multilateral
partners and the international community at large. This will be coupled with measures
to improve the efficient use of public resources and policy measures to increase fiscal
space. Mobilization of private sector financing and improvement of the Public-Private
Partnership (PPP) framework will be critical. International financing will be critical toaddress gaps in areas, with emphasis on concessional and grant financing, and on-budget channels. The proposal for sources of funding suggested in this report is: local financing - 50% (30% PSDP/ADP, 15% PPP and 5% CSOs); multilateral, bilateral partners
and green financing - 50%. The gap identifed in 4RF is 8.15 billion USD.
Implementation and Monitoring: The implementation of the 4RF will be executed inan efficient and transparent manner, supported by strong government commitment at
the federal and provincial levels. The implementation mechanisms proposed include
a Policy and Strategy Committee (PSC), a Technical Implementation Management
Sub-Committee, and a Provincial-level Implementation Group. Implementation will
also require formalized PPPs; a robust M&E framework; an SRO-level Strategic Results
Framework; a Sectoral and Integrated Results Framework; Internal Controls and External Audits; and audits by a global, independent, third-party international audit firm andan independent, third-party social audit firm. Moreover, a ‘Monitoring, Evaluating andFollowing the Flow of Funds for Reconstruction’ platform (ME3F) will be developed toensure transparent and adequate targeting of support.1 Accountability should also be
maintained through a GRM, community engagement, and communication and visibility measures.
Achieving Sustainable Climate Resilience: This part of 4RF presents a long-term resilient reconstruction plan “Achieving Sustainable Climate Resilience” which incorporates
climate resilience in the design of the existing and planned strategic infrastructure
projects. This includes National Flood Protection Plan, National Highways (N-5, N-55,
N-25), National Railway Lines (ML-1, ML-2, ML-3) and other strategic projects. The cumulative long-term requirements to implement these projects will be US$ 13.5 billion
over a period of 10 years.
1 The objective of the ME3F, which could be co-led by the World Bank and the UN under a multi-donor trust fundto be established, is to put in place credible and rigorous monitoring tools of advanced analytics, to measure theimpact of reconstruction spending, follow the flow of funds to beneficiaries and ensure transparency, adequate
targeting, and the integrity of the flow of funds for the reconstruction process. This independent platform would giveconfidence to both the Government and donors that their funding contributions, will reach those most in need.

16

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

INTRODUCTION

17Photo: © UNICEF/Zaidi

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)INTRODUCTION
Between June and August 2022, torrential rains and a combination of riverine, urban,
and flash flooding led to an unprecedented disaster in Pakistan. According to the National Disaster Management Authority (NDMA), around 33 million people - that is, one
in every seven Pakistanis - have been affected by the floods, including nearly 8 million
displaced. The floods have taken the lives of more than 1,700 people, one-third of whomwere children.1 The floods came on the heels of a severe heatwave - previously a 1-in1,000-year event - and drought emergency during which temperatures continuously
remained above 45°C (113°F), resulting in crop losses, power outages, and forest fires.2
Pakistan’s high vulnerability to climate change is a risk multiplier, compounding its human and economic development challenges. Pakistan ranks among the top 10 countries worldwide most affected by climate change3. Extreme weather events have been
increasing in frequency and intensity, impacting ecosystems, people, settlements, andinfrastructure. The ND-Gain Index has ranked Pakistan as the 39th most vulnerable
country and the 27th least ready country in the world to address the impacts of climatechange. 4
Pakistan has been facing many challenges on the economic front even before thefloods. The financial outlay has worsened with floods, and market risk perceptions areon the rise and are expected to impact growth negatively. Prior to the floods, the fallout of the global economic crisis and the pandemic had led to a significant increasein poverty. Combined, the climate catastrophe and economic harm of the floods have
deepened the country’s already significant inequality and further exacerbated the socioeconomic hardships of the poor and marginalized.
The recent floods have negatively impacted human development indicators. According
to new simulations by the World Bank, learning poverty could increase to 79 percent.5
Trends in acute waterborne disease have increased in most flood-affected provinces,while the risks of other diarrheal diseases, including cholera, are very high. In affected
1 NDMA. October 19, 2022. “NDMA Floods (2022): Sitrep Report No.128.” https://cms.ndma.gov.pk/storage/app/public/situation-reports/October2022/ QECa7rSLzWINuxZFHrHV.pdf.
2 Pakistan Meteorological Department. 2022. “Pakistan’s Monthly Climate Summary: August 2022.” Government ofPakistan. http:// www.pmd.gov.pk/cdpc/Pakistan_Monthly_Climate_Summary_August_2022.pdf.
3 Eckstein, David, Vera Künzel, and Laura Schäfer. 2021. “Global Climate Risk Index
2021.” Germanwatch Briefing Paper. https://www.germanwatch.org/en/19777.
4 ND-GAIN Index (dataset). “Pakistan.” https://gain-new.crc.nd.edu/country/pakistan
5 Saavedra, J. and Sherburne-Benz, L. (2022) Pakistan’s floods are deepening its learning crisis, World Bank Blogs.
Available at: https://blogs.worldbank.org/endpovertyinsouthasia/pakistans-floods-are-deepening-its-learning-crisis.

18

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

districts, around 660,000 women are pregnant with no access to health facilities. It is
important to note that even prior to the flooding, many of the calamity-hit districts
showed higher monetary and non-monetary deprivations, especially among households in rural areas. The impact of the floods is likely to increase existing inequalities,
revealing serious differences in safety, education, decision-making, and employment.
Vulnerable groups, such as women, children, people with disabilities, and refugees, arelikely to be disproportionally affected by the floods due to their limited access to andavailability of social protection and coping mechanisms. The inadequate managementof the floods and their impact, combined with the economic crisis, has underscored theimportance of strengthening the government’s existing capacities to function.
The floods have also exacerbated long-standing structural weaknesses, threatening asustained recovery. Ensuring macroeconomic stabilization while simultaneously supporting relief and recovery is a complex challenge. Limited fiscal space has impacted
the delivery of public services and the quality of infrastructure in virtually all sectors.
Political stability and support are critical for a coherent and timely response. As climatechange accelerates the severity and frequency of disasters, institutional reforms andinvestments must go beyond business as usual. There is a need to build systemic resilience. If transformational measures are not taken for a resilient recovery, the disasterwill have multi-generational impacts through the reduction of developmental gains.
Linkages among federal, provincial and district-level governance will be strengthened
to respond to the unique challenges posed by climatic shocks. Existing institutional
and implementation arrangements, as well as coordination of the different tiers of government, including between federal and provincial governments, need to be reviewed
for better effectiveness and efficiency. There is a need for mechanisms to swiftly formulate policies and reform agendas to address the fallout of compounded crises. At
this critical juncture, a paradigm shift is needed to mainstream resilience to natural hazards in development planning and asset management. A participatory and inclusive
approach needs to be adopted to bring together various stakeholders, including civilsociety, government, private sector, academia, think tanks, and the international community, around a shared vision.
There will be a need to combine international financial support with domestic measures to improve efficiency in public resource allocation and measures to create fiscal space for resilient reconstruction and recovery. Additionally, financial assistance will
be insufficient to exit these crises without the strategic agenda laid out in the 4RF.

19

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Reform measures to increase confidence in the financial systems will be needed to
attract foreign financing to the recovery program, in both the public and private sectors. However, given the multitude of risks involved, strong accountability mechanisms,
which ensure transparent, efficient, and equitable use of resources, will be paramountto accessing foreign assistance. Such mechanisms can support the swift implementation of an agenda of structural reforms with clear priorities, commitments, and public
oversight.

Summary of the Post-Disaster Needs Assessment
The PDNA estimates that total damages exceed US$14.9 billion, and total economic
losses stand at US$15.2 billion. Estimated needs for rehabilitation and reconstruction
are at least US$16.3 billion, including a build-back-better premium, but excluding interventions to support Pakistan’s adaptation to climate change, the country’s overall longterm resilience to future climate shocks and the recovery needs of the private sector
and private assets beyond minimum government compensation.

Table 2. Damage, Loss, and Needs by Region
DAMAGE

LOSS

NEEDS

Region(Billion PKR)

(US$ Million)(Billion PKR)

(US$ Million)(Billion PKR)

(US$ Million)

Balochistan

349

1,625

541

2,516

491

2,286

Khyber
Pakhtunkhwa

201

935

141

658

168

780

Punjab

111

515

122

566

160

746

Sindh

1,948

9,068

2,444

11,376

1,688

7,860

Cross-Provincial

587

2,731

14

67

975

4,540

Special Regions

7

32

11

49

10

48

Grand Total

3,203

14,906

3,272

15,232

3,492

16,260Note: All estimates in this report were calculated in PKR and converted to US$ prior to rounding (US$1 = 214.8 PKR on average between
June and September 2022). The costs are initial estimates and variances may exist due to limitations such as data access on account ofongoing flooding and lack of baseline information.

20

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Balochistan

Khyber
Pakhtunkhwa

Punjab

Cross-Provincial
and Special Regions

Sindh$11,376M$9,068M$7,860M$4,588M$1,625M

Damage$2,763M$2,516M $2,286M

Loss

Needs

$935M

$658M

$780M

$515M

$566M

$746M

Damage

Loss

Needs

Damage

Loss

Needs

$116M
Damage

Loss

Needs

Damage

Loss

Needs

The PDNA estimates also indicate that Pakistan’s food-insecure population will increase
from 7 million to 14.6 million. More than 2 million housing units have been damaged,of which 780,000 units were completely destroyed and more than 1.2 million partially damaged. The damages are predominantly in rural areas. Around 1,784,126 hectares(4,408,575 acres) of agriculture land have been adversely impacted, and more than
800,000 animals perished due to flooding. The number of people impacted by disruptions and loss of employment in the flood-affected districts is estimated at 4.3 million,
approximately 20 percent of the pre-flood workforce, or one in every five workers livingin the affected districts.

21

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

SCOPE, PURPOSE AND GOALS
Global experience has shown that a credible recovery strategy is critical for effective
and coherent reconstruction, as well as for successful resource mobilization. The 4RF issuch a strategic level document for an overall recovery vision for Pakistan, building on
the findings of the PDNA and defining the path to resilient recovery along the SROs. It
presents strategic prioritization of interventions across all sectors in each of the provinces, as well as at the federal level, for integrated multi-sectoral recovery and reconstruction. It elaborates an enabling policy environment and the reforms needed. It also
describes the implementation arrangements, setting principles of transparency, inclusion, good governance in reconstruction, financing strategies whilst pursuing overallmacroeconomic stability. All are underpinned by an institutional proposal for effective
coordination and implementation oversight as the national recovery, reconstruction,and resilience is rolled out.
The recovery and reconstruction should prioritize the urgent needs of the affected
population and ensure an efficient, equitable, coordinated, and transparent delivery,
led by the government and supported by the international community. Although thefocus will be on the affected areas, the creation of the recovery framework presents anopportunity to systematically embed resilience to natural hazards and climate change
in Pakistan’s development planning - an inflection point in the country’s continued
growth. Transformational action will be critically important to achieving the vision of
an inclusive and resilient recovery through a “Whole of Pakistan” approach, leading tosustainable development for the people and country.
Drawing from the PDNA, 6 the 4RF presents sequenced priorities across sectors in eachof the provinces and at the federal level for integrated, multi-sectoral recovery. It underlines the necessary policy and regulatory framework for an effective, resilient reconstruction strategy. It also includes a financing strategy and an implementation plan.
The 4RF will serve as a basis to engage with partners for financial and implementation
support, as well as to coordinate and direct efforts across a range of actors in public andnon-public sectors across provincial and national programs.
The 4RF adopts an outcome-based approach and organizes the recovery needs aroundfour SROs: (i) SRO1: Enhance governance and the capacities of the state institutions to
restore lives and livelihoods of the affected people, especially the most vulnerable; (ii)SRO2: Restore livelihoods and economic opportunities; (iii) SRO3: Ensure social inclu6 https://thedocs.worldbank.org/en/doc/4a0114eb7d1cecbbbf2f65c5ce0789db-0310012022/original/PakistanFloods-2022-PDNA-Main-Report.pdf
22Ministry of planning,
Development andSpecial Initiatives
Government of Pakistansion and participation; and (iv) SRO4: Restore and improve basic services and physicalinfrastructure in a resilient and sustainable manner.
The cross-cutting issues supporting the prioritization include: (i) a policy framework; (ii)institutional arrangements; (iii) a financing strategy and financial management; and(iv) implementation and monitoring arrangements. As per internationally accepted
methodology, the prioritization among and within the sectors that underpin achieving
the SROs and estimation of recovery needs account for a build-back better premium,but it does not comprehensively include the new and broader investments needed tostrengthen Pakistan’s long-term adaptation to climate change and overall resilience tofuture climate shocks, or reconstruction needs of the affected private entities. However,the strategic principles included under the 4RF regarding institutional arrangements,
financing strategy, implementation and monitoring provide a blueprint for planning,financing, implementing, and monitoring long-term climate adaptation in Pakistan.
The 4RF is prepared around four SROs with input from the 17 sectors of the PDNA. It
will involve cross-cutting issues relevant to recovery and reconstruction integrated in asector prioritization matrix of each sector. It will include priorities identified at activity
and programmatic levels. All existing work done by the line ministries including PDNA
and post-PDNA strategies are a basis for sector prioritization.
The 4RF will support a common framework for national and international partners.
Therefore, it will help to establish a process that aligns the efforts of these stakeholders for effective and efficient recovery. It will also function as a vehicle for donor financing, coordination and accountability. To the extent possible, international partners
can adjust their respective existing programming frameworks towards the objectives
and priorities contained in the 4RF. New programming exercises should follow the 4RF
thereby enhancing the aid effectiveness.

The 4RF Process
A “Whole of Pakistan” approach was adopted for the 4RF, engaging representatives andstakeholders from distinct spheres of Pakistani society. These engagements included
a variety of individuals from national and local government authorities, UN agencies,
local and international NGOs, CSOs, and donor agencies. This informed the 4RF’s findings, analyses, and recommendations on the emerging needs and priorities of the affected populations, and the present resilient recovery strategy.
A special effort was made to include stakeholders actively involved in the process ofassessing damage, providing aid, and supporting the recovery of affected areas. To

23

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

ensure inclusivity, smaller SRO-specific breakout sessions were held after the plenary
sessions to discuss technical details with stakeholders. The virtual Stakeholder Engagement Meetings, held on November 30 and December 2, 2022, organized by the Government of Pakistan and facilitated by core international partners, aimed to provide
a platform for a participatory and inclusive process. Stakeholders were asked to share
their on-ground insights, including current relief activities, and priority recovery and reconstruction needs and suggestions for implementation of the identified sequenced
priorities. The SRO-specific conversations were structured around three key questions:•

How should the needs be prioritized as short, medium, and long-term?

•

How should the activities be implemented?

•

What are the policy needs to support efficient recovery, rehabilitation andreconstruction?

Geographic and Thematic Coverage
Geographic:
The geographic scope of the 4RF covers the 94 calamity-hit districts assessed in the
PDNA in the four provinces of Sindh, Balochistan, Khyber Pakhtunkhwa and Punjab, .
The analysis also includes estimates for special regions and cross-provincial priorities.7

Temporal:
The 4RF looks at the recovery, rehabilitation and reconstruction needs identified in the
PDNA within a period of five to seven years, divided into three phases:

Figure 1. 4RF Temporal Scope

Immediate andShort-term(up to 1 year)

Medium-termLong-term(up to 3 years)(up to 5 to 7 years)

7 Special regions include districts outside of the four main provinces that have been affected by the floods anddeclared “calamity-hit.” Cross-provincial includes assets that affect more than one province or are calculated at thenational level (e.g., railways, roads, telecommunications).

24

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Sectoral:
The sectors assessed in the PDNA were mapped to the SROs as below:

Figure 2. PDNA Sectors Mapped to SROs
SRO 1

Improve governanceand capacities ofthe state.

Governance; Disaster Risk Reduction and Resilience;
Environment and Climate Change.

SRO 2

Restore livelihoods
and economic
opportunities.

Agriculture, Food, Livestock, and Fisheries;
Jobs and Livelihoods.
Commerce and Industry; Finance and Markets; Tourism.

SRO 3

Ensure social inclusionand participation.

Social Protection; Culture and Heritage;
Social Sustainability, Inclusion, and Gender.

SRO 4

Restore basic services
and infrastructure.

Health; Education; WASH, Municipal Services, andCommunity Infrastructure.
Transport and Communication; Energy; Housing;Water Resources and Irrigation.

Photo: Daniel Berehulak

25

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Recovery Vision and Strategy Objectives
The vision of Pakistan’s recovery is to achieve an inclusive and resilient recovery througha “Whole of Pakistan” approach, leading to sustainable development for the people
and country. The framework’s vision, SROs and foundation, represented in the figure
below, will be critical.

Figure 3. Pakistan’s Resilient Recovery:
Vision, Strategic Recovery Objectives, and Foundation
VISIONSRO

An inclusive and resilient recovery through a‘Whole of Pakistan’ approach leading to sustainable
development for the people and country

Enhance governance andcapacities of the state torestore lives and livelihoodsof the affected people.
esp the most vulnerable

Foundation

Build Back Better

Restore livelihoods
and economic
opportunities

Ensure social inclusion
Restore and improveand participation in all
basic services andaspects of recovery andphysicalinfrastructure
related development

People-centeredsocioeconomic
recovery

Building systematic resilienceagainst natural hazards andclimate change impacts

In the 4RF, strategic prioritization of interventions across all sectors, along with stakeholder mapping and resource mobilization planning, were initiated. Needs were prioritized based on criteria such as urgency, institutional capacity, and financial feasibility.
The identified activities prioritize the urgent needs of affected populations and willtake an inclusive, participatory, and conflict-sensitive approach, ensuring an efficient,equitable, coordinated, and transparent delivery that is led by the government andsupported by the international community. The Strategic Recovery Objectives include
broad priority activities and programs for flood recovery and will form the basis forfurther fine tuning of the priorities for project proposals and investment opportunities.

26

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Limitations & Assumptions
Limitations
Rapid Time Frame: The 4RF was prepared in an extremely tight timeframe, with fasttracked federal, provincial, and civil society consultations. However, as it is meant to be aliving document, it will continue to be refined and revised as the priorities and resources change.
Specificity to the 2022 Floods: The 4RF is limited to needs as defined in the PDNA
carried out following the 2022 floods. As such, it does not cover recovery from otherevents.
Long-term Resilience: The PDNA included a premium for ‘building back better’ andcorresponding costs, in relation to recovery and reconstruction from the Floods 2022.
Therefore, the 4RF focuses on only this part of the overall resilience and adaptability agenda. Long term climate resilience and adaptation are reflected in the National
Flood Protection Plan, National Adaptation Plan of the Ministry of Climate Change, andthe National Disaster Management Plan of the NDMA.
Data Availability: The 4RF is informed by the PDNA prioritizing the needs it identified.
Therefore, the PDNA’s limitations on data availability, lack of baseline information, anddata disaggregation also affect the first version of the 4RF. The PDNA addressed theselimitations and challenges arising therefrom through the design of the assessment
methodology and close cooperation among government authorities, international organizations, CSOs, and private sector institutions. Within the context of the 4RF, these
inherent challenges will be mitigated by keeping the framework as a living document
and by updating it annually or at critical milestone.

Assumptions
Some specific assumptions are made for the purpose of this assessment:•

Damage, loss, and needs are presented based on the findings of PDNA; an
exchange rate of US$1 = PKR 214.8 is used throughout the report.

•

The 4RF is derived from the PDNA, which is not a substitute for in-depth, sectorlevel assessments for future recovery projects.

27

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)•

Since the 4RF is informed by the PDNA, it is pertinent to note that the PDNA
assessment methodology was time-bound and damage, loss, and needs may
be higher than what is reported in the PDNA, as certain areas are still inundated
and the full extent of damage in those areas is yet to be determined. However,the PDNA provides an estimate on infrastructure and service delivery, and thefindings are not expected to increase significantly over time.

•

The geographic and sectoral distribution were selected in coordination with theGovernment of Pakistan and international partners based on areas and sectorsthat were most impacted. This does not suggest that other areas or sectors
were unaffected by the flooding.

•

The 4RF covers a timeframe of up to seven years and does not include priorities,
actions or investments for long-term national resilience within its 4 SROs.

Photo: Daniel Berehulak

28

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

MACROECONOMICSTABILIZATIONFOR RECOVERY

Photo: © UNICEF/Zaidi
29

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

MACROECONOMIC STABILIZATION FORRECOVERY
Pakistan’s macroeconomic environment remains challenging and is further encumbered by the recent devastating floods. Supported by an accommodative macroeconomic policy, Pakistan’s economy expanded at a robust pace in FY21 and FY22. However, low productivity growth, high global commodity prices, and the global economic
slowdown have all contributed to high trade and current accounts deficits, which havein turn exerted significant pressure on domestic prices, the exchange rate, and foreign
reserves. Market sentiment deteriorated, the Rupee depreciated sharply, and bondyields spiked over late FY22 and early FY23, reflecting heightened macroeconomic
risks. The government has begun implementing policies to constrain aggregate demand, including a tight monetary stance (375 Basis Points [bps] increase in the policy
rate between May and November 2022), a contractionary fiscal budget, and increases in administered energy prices. Continued implementation may not be sustainable
due to the unprecedented large-scale flooding and a challenging domestic environment. The ongoing pandemic and unanticipated surges in global commodity prices
pose additional risks to Pakistan’s economic recovery in the aftermath of the floods.
The economic and poverty outlook has deteriorated significantly following the 2022
floods. Overall GDP decline as a direct impact of the floods is estimated to be around
2.2 percent,1 due to high base effects, flood-related damages and disruptions, a tightmonetary stance, high inflation, and a less conducive global environment. The floods
are expected to impose a lingering drag on output in the medium-term through theloss of livelihoods and human capital, disruption to crop cycles, infrastructure damage,and possible financial sector impacts. Preliminary estimates suggest that, as a directconsequence of the floods, the national poverty rate could increase by 2.5 to 4.0 percentage points, pushing between 5.8 and 9 million people into poverty2. The size andduration of shocks will vary across locations and households, depending on the intensity of the flooding and the quality of relief and reconstruction efforts. Even in the best
case, reversing these negative shocks to household welfare will take considerable time.
Some losses - such as to human capital and of land productivity - could set in motion
more sustained declines in welfare and will need specific policy attention.

1 Government of Pakistan. 2022. “Pakistan Floods 2022: Post-Disaster Needs Assessment. Main Report.” Ministry ofPlanning Development & Special Initiatives.
2 The World Bank. October 2022. “Pakistan Development Update October 2022: Inflation and the Poor.”30

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

The 2022 floods, macroeconomic stabilization policies, and administrative measures
have already slowed economic activity in FY23, while inflationary pressures persist.
Preliminary estimates of important Kharif crops report a decline in the production ofsugarcane, rice, maize, and cotton in FY23 due to flooding. Monetary fiscal stabilization measures, coupled with import compression strategies to correct the imbalances,suppressed the Large-scale Manufacturing index by 0.4 percent year-on-year in July September 2022 (Q1 FY23), compared to a growth of 10.1 percent in July - September
2021 (Q1 FY22). Average inflation in July - November FY23 increased to 25.1 percent,compared to 9.3 percent in July - November FY22. During this period, urban inflation
increased to 23.4 percent, while rural inflation rose to 27.7 percent, compared to 9.6 and9.0 percent, respectively, during July - November 2022.
A tight monetary and fiscal policy stance has resulted in the narrowing of the current account deficit, but the Rupee and international reserves remain under pressure. During
July - October FY23, the current account recorded a deficit of US$2.8 billion, compared
to a deficit of US$5.3 billion in July - October FY22. Exports increased by 2.9 percent
year-on-year, whereas imports declined by 11.6 percent during this period, leading to a
trade deficit of US$11.6 billion in July - October FY23, down from US$15.1 billion in thesame period last year. Workers’ remittances decreased by 8.6 percent in July - October
FY23. The financial account saw a net inflow of US$1.9 billion, compared to net inflows
of US$5.7 billion in July - October FY22. Elevated financing needs due to the historic
flooding have maintained pressure on the Rupee, which has depreciated by 8.7 percent
against the US dollar since end-June 2022. The State Bank of Pakistan’s gross reserves(including cash reserve requirement and cash holdings) were recorded at US$8.5 billion
on November 18, 2022, equivalent to only 1.2 months of imported goods and services.
The fiscal deficit expanded during July – September FY23 because of a higher increasein spending due to the catastrophic floods. The fiscal deficit (excluding grants) for July
– September FY23 was recorded at PKR 809 billion, compared to PKR 438 billion in
July - September FY22. Total revenue increased by 11.5 percent in July - September
2022, reaching PKR 2,017 billion, compared to PKR 1,809 billion in July - September 2021.
During the same period, tax revenue grew by 17.9 percent year-on-year on account of
an increase in direct taxes and revenue from the petroleum development levy. In contrast, non-tax revenue declined by 29.0 percent, primarily due to lower profits of the
Pakistan Telecommunication Authority and the State Bank of Pakistan. On the expenditure side, current expenditure increased by 29 percent, whereas development expenditure and net lending declined by 16.9 percent. This led to an increase of 25.8 percent

31

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

in total expenditure during July - September 2022, as expenditure rose to PKR 2,826
billion, compared to PKR 2,247 billion in July - September 2021.
The flooding has exacerbated Pakistan’s macroeconomic risks. Amid the worsening external liquidity position and tight financing conditions, global credit rating agencies, including Fitch Ratings, Moody’s Investor Service, and S&P Global, downgraded Pakistan’s
outlook from “stable” to “negative” over late FY22 and early FY23. Macroeconomic risks
have intensified due to the impacts of the flooding. On December 1, 2022, the yields on
Pakistan’s 5- and 10-year Eurobonds were recorded at 36.21 percent and 24.92 percent,respectively, compared to 18.17 percent and 15.13 percent at end-June 2022. Pakistan’s
5-year credit default swap reached 7,611.6 bps on December 1, 2022, after peaking at
12,388.4 bps on November 21, 2022. At end-June 2022, it was recorded at 1,442.1 bps.
The macroeconomic outlook is predicated on a strong fiscal response. The above
growth outlook assumes that substantial public spending on flood relief, recovery, andrehabilitation will partially offset the adverse macroeconomic impacts of the floods.
The government is already taking fiscal measures in response to the floods. A flood
relief cash transfer scheme is underway, through which 1.1 million targeted households
are being provided with PKR 25,000 (US$116.4) to meet emergency needs. A temporary elimination of customs duties on essential items for flood-associated relief work
has already been introduced. Given new expenditures, revenue relief measures, andoverall revenue declines, the budget reallocations are expected to be required to meet
relief and recovery needs. Accordingly, the FY23 government budget target is expected to be relaxed.

32

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

POLICYFRAMEWORK

33

Photo: © UNICEF/Zaidi

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

POLICY FRAMEWORK
Enabling Policy Framework
The combined impact of the pandemic, economic crisis, and the flood exposed thecountry’s underlying risks and vulnerabilities. In order to achieve the recovery vision ‘An
inclusive and resilient recovery through a “Whole of Pakistan” approach, leading to sustainable development for the people and country’, the 4RF’s policy framework aims toaddress Pakistan’s most urgent and immediate post-disaster needs, while setting thedirection for building long-term resilience. The 4RF brings together all 17 PDNA sectors
under four outcomes to strengthen their inter-linkages so that recovery interventions
are integrated and multi-sectoral.
Since 2010, Pakistan has made progress to strengthen disaster preparedness, early warning, response, and risk reduction at the national and sub-national levels. There is, however, limited formalized guidance and provision for post-disaster recovery. Moreover,there is inadequate policy articulation to guide recovery that considers the multi-dimensional and systemic nature of risks, build resilience of the country and its people,
and support transition from humanitarian response to recovery.
The 4RF aims to promote coherence and coordination across different tiers of government. It builds on the lessons learnt from past crises and seeks to strengthen theprovision of service delivery, empower local governments and communities, and implement standards and codes to build-back better. These goals will be achieved throughmulti-stakeholder partnerships and data-driven decision-making. The 4RF recognizes
housing, agriculture and livelihoods as the main affected sectors and, therefore, prioritizes operational reforms relevant to these sectors as crucial to accelerate recovery.

Cross-cutting Areas for Institutional Action
The PDNA highlighted guiding principles for resilient and inclusive recovery. These principles should be followed in planning and implementing recovery across all sectors.
First, recovery will follow a community-driven and ‘people-centered’ approach. The 4RF
has given due consideration to community driven approaches in post-disaster recovery
as a fundamental human right. Disaster recovery requires a bottom-up, continuous, anditerative learning and participatory process that is essential for sustained impact. Recovery activities will be developed and implemented with meaningful consultation andparticipation of communities, taking into account local practices and norms. With every
member of an affected community given the chance, directly or by using indigenous

34

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

knowledge and skills, to participate in the design, implementation and monitoring ofcommunity-level initiatives, there is a higher likelihood that the 4RF accurately reflects
their real needs and interests. Participation will further ensure that the provincial andarea stakeholders have genuine ownership and control over the recovery processes inall phases of the programming cycle: assessment, planning, implementation and M&E.
Community led monitoring, in particular, will help report any social concerns that occur
during the implementation phase for mid-course correction.
Second, recovery will be ‘pro poor’ and socially inclusive. In Pakistan’s recovery response,a participatory, people-centered and inclusive approach must include internally displaced persons (IDP), refugees, women, persons with disabilities, the elderly, religious
minorities, and transgender persons. The 4RF promotes equality and opportunities forthe poorest households, women, and other vulnerable and marginalized groups, whohave been disproportionately impacted by the floods, as well as by the preceding crises.
With 7.9 million IDPs due to the floods, it is important that specific measures recognizing IDPs as a disproportionately affected group with specific needs are implemented.
Monitoring progress towards IDPs achieving a durable solution will require systematically collecting and reporting data, disaggregated by sex, age, disability, on IDPs andtheir choice of solutions, capacities, and reintegration needs over time. Mechanisms of
exclusion tend to exacerbate existing inequalities during disasters. Recovery interventions will not effectively reduce disaster risks for everyone if the needs of vulnerable or
marginalized population groups in the flood-affected areas are not considered.
Third, recovery mechanisms will be rapid and efficient. As mentioned, it is critical that
operational reforms in agriculture, livelihoods and housing are prioritized. Agriculture
and livelihoods interventions must align with the upcoming harvest seasons. Housing,basic services, and other critical infrastructure need to be rapidly re-instated to restore
safe communities. The recovery will leverage efficient government and development
procedures, processes, and modalities. This includes fast-tracked emergency assistanceapproval mechanisms, building on existing implementation mechanisms, and, whereappropriate, direct contracting for consultant and contractor selection. Interventions
will make use of existing government structures, such as the Benazir Income Support
Program (BISP), for efficient targeting and delivery of support to affected households.
As required, new special purpose vehicles will be established for rapid deployment of
rehabilitation and reconstruction of housing.
Fourth, green and resilient principles will be incorporated through a ‘build back better’
approach. The goal of building back better is to rapidly reduce the likelihood of mortality and morbidity in future events, and where possible, generate future growth opportu-

35

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

nities. This approach will ensure that flood-affected communities, assets, infrastructure,and livelihoods will be less vulnerable and more resilient to climate change and disasterrisks and more environmentally sustainable than before the floods. Where possible, therecovery activities will take steps to transform sectors and systems to benefit the mostvulnerable communities. Infrastructure investments should incorporate adequate asset management planning and resourcing, including updating of standard operatingprocedures to address flood risks and reconstructed or designed to be climate resilient
and adaptive.
Fifth, recovery must implement integrated, holistic solutions. Recovery interventions
will comprise an appropriate balance of structural (physical infrastructure), non-structural (capacity, systems), and policy-based measures. Infrastructure-oriented solutions
will balance ‘grey’ and ‘green’ infrastructure to optimize benefits, costs, and sustainability. Recovery will balance public and private sector roles and activities. Activities shouldmake use of local materials, skills, and machinery. Cross-cutting climate change adaptation and mitigation interventions will be identified, taking advantage of potential climate change resilience co-benefits to the environment, gender, health, and low carbon
development.
Sixth, adopt a risk-informed approach to resilience. Reducing climate and disaster risks
requires an understanding, preferably quantitative, of historical and future risks of floodand other natural hazards. Design standards and materials selection will be informed
by a risk-based approach to managing climate and other disaster hazards. If time permits, a systems-level approach with adequate redundancy can support longer-termsustainability and growth. Multi-hazard risk mapping and land use planning will inform
recovery interventions. Building laws, awareness and supervision can ensure that construction is not carried out on hazardous terrain and encroachments on riverbanks. Thisrequires improved oversight to keep haphazard and structurally dangerous infrastructure development under check. Community led disaster data and information systems
are required to not only assess major disasters but ensure continuous recording of localized damages and losses from floods, drought, landslides and other hazards.
Seventh, adhere to environmental and social safeguards. Recovery interventions will be
preceded by environmental and social (resettlement) assessment and planning to address associated impacts and risks. The implementing agency will identify and address
potential direct, indirect, cumulative, and induced impacts and risks and determine
their significance and scope in consultation with stakeholders, including affected people. Environmental management processes will be monitored and reported on, during
and after implementation. Environmental and social safeguards will avoid relocation as
much as possible.
36

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

INSTITUTIONALARRANGEMENTS

37

Photo: © UNICEF/Zaidi

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

INSTITUTIONAL ARRANGEMENTS
As Pakistan faces one of the largest recovery and reconstruction challenges ever, thegovernment is committed to establishing an effective, transparent, and accountablemechanism, including appropriate institutional arrangements, for efficient recovery.
In this regard, the government is aspiring to attract domestic and international assistance which can support the government’s own resources to produce results on the
ground to restore livelihoods and communities. Pakistan’s successful recovery and reconstruction efforts from the earthquake of October 2005 and the experience of the2010 floods recovery serve as a good starting point for responding to this challenge.
The NDMA highlighted three themes: lack of coordination, particularly between federal
and provincial governments and the government and international community; lack ofunderstanding of the roles and responsibilities of stakeholders, especially the multiple
agencies mandated for disaster management at all levels of government; and lack of
capacity of all stakeholders, both in the public and non-public domain, due to an increased workload. The lessons from these experiences will be applied to the recovery
in the wake of this most-recent multi-jurisdictional disaster. For effective and efficient
recovery, moving forward the institutional framework will feature a single point of coordination and management at the federal, provincial and district levels.
Institutionalizing Urgency: Two themes that need to span the entire post-disaster
continuum are the “need for speed” and “flexibility”. Most government procedures aredesigned for normal times and for the implementation of normal development andrecurrent budgets. Given the urgent need to address the dire circumstances of those
impacted by floods, and given the scale of the disaster, the recovery program requires
modified procedures and practices to the meet the urgency of the recovery needs.
Coordinating centrally, implementing locally: Given the magnitude of the recovery
effort, it is important that governments at all levels build full-time teams of dedicatedprofessionals whose mission is exclusively focused on recovery, coordination of recovery policies, financing, planning, implementation and monitoring. This capacity will behoused in a dedicated Recovery and Reconstruction Unit (RRU) in the MoPDSI at thefederal level and with links to dedicated RRUs at provincial and district levels. These
units will draw upon the best expertise in both the public and private sectors and supplement the same through international technical assistance and expertise as needed.

38

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

A Central Coordinating Mechanism through the MoPDSI Recovery and Reconstruction Unit: As the recovery effort spans multiple subnational jurisdictions (i.e., provinces/special regions), the need for central coordination and planning through the RRU
described above is even more important. Common standards, guidelines, and policies
will be put in place to ensure equitable treatment of beneficiaries and communities
across sub-national jurisdictions, so that the affected populations get equitable benefits. There will also be situations where cooperation across provinces/special regions
may be needed, which will be facilitated by the central RRU. Efficiencies may be lost
if provinces/special regions contract separately for similar services, driving up costs. A
comprehensive M&E system, which uses a Geographic Information System (GIS), will be
employed to coordinate the efforts and monitor progress as one example.
With a variety of funding sources, including sub-national budgets, International Financing Institutions (IFI) funding, bilateral funding, etc., steps will be taken to coordinate
and prioritize fund flows and develop overarching guidelines for allocative efficiencies. Off-budget funding will be coordinated from the outset to ensure that it is being
channeled in a manner that is part of the larger recovery program and is contributing
towards achieving the SROs. At the same time, the central coordination of donors willallow the government to set common standards for executing programs in such areas
as procurement, auditing, reporting, pay standards, and M&E procedures.
The roles and responsibilities of the RRU in MoPDSI may be, but are not limited to:•Ensuring transparency and accountability in recovery, and maintaining credibility
among beneficiaries and donors in a global fundraising campaign;•

Coordinating multi-source funding and providing overarching guidelines;•

Prioritizing and sequencing assistance based on need, but also on capacity todeliver;•Developing an overarching policy framework that will guide the entire recovery
effort;•Establishing special dispensation for recovery processes, specifically fiduciary
requirements (i.e., fast-tracked, time-based recovery plans and corresponding
investment approvals, etc.), while ensuring consistency throughout the affected
region;•Developing and ensuring enforcement of minimum standards;•

Overseeing public information campaigns and public relations, including
coordination with donors and the international community;

39

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)•

Coordinating the work of line ministries; and•Bridging recovery efforts where gaps emerge in the affected areas.

Within the broader context of central coordination, through the central RRU in MoPDSI,
each recovery activity will be designed and implemented at the relevant competenttier of government. Local-level implementation will be encouraged to ensure that solutions are tailored to local conditions and that more rapid feedback loops exist between
local communities and implementing agencies.
Multi-tiered Mandates: While the federal government will lead overall coordinationand policy formulation, the provincial and local governments will be primarily responsible for implementing the recovery, rehabilitation and reconstruction programs at theprovincial level. It is recognized that provinces may choose to establish provincial strategies, as in the case of Khyber Pakhtunkhwa, to better meet provincial priorities andpolicies, and increase the efficiency of local-level recovery efforts. Provinces and special
regions will take the lead in implementation of the reconstruction program, including
coordination, policy, planning and monitoring at the provincial/special regions level.
Establishment of an Independent Oversight Board (IOB), Third Party Monitoring andGrievance Redress Mechanism: While the government will lead the recovery effort, an
independent oversight mechanism representing the interests of stakeholders will beestablished to ensure accountability and transparency over the management of thereconstruction program. An IOB will be constituted at the national level composed ofprominent citizens, professionals, etc. Key development partners will also be represented on the IOB as observers. The IOB may perform some or all of the following functions:40•

Hold regular public consultations with representatives of the affected
communities to solicit citizen feedback on the ongoing recovery andreconstruction efforts and to gather recommendations for changes to therecovery strategy;•

Approve and implement a M&E workplan to oversee the performance of therecovery plan;•

Produce an annual report for wide dissemination on the progress of reconstruction,
including a review of the quality and timeliness of the implemented operations
and their consistency with the reconstruction plan; and•Make periodic assessments and recommendations to enhance the efficiency,transparency and accountability of use of funds.

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Beyond a formal oversight board, steps will be taken to put in place formal, independent
systems for third-party monitoring and public complaints/grievance redress. Third-party monitoring will focus on checking the quality of a sample of individual reconstruction projects, their consistency with the recovery program and their responsiveness tolocal community needs. CSOs will be provided access at different phases of project implementation (especially procurement) for third-party monitoring and verification. An
independent and robust GRM will also be established, where beneficiaries can reportproblems.
Implementation through Existing Government Institutions as “First-Choice”: Whenever possible, implementation arrangements need to respect the mandate of existing
institutions. Setting up parallel structures should be avoided. Instead, existing institutions should be supported with additional capacity to satisfy the additional requirements and expectations associated with large-scale reconstruction programs. However, where the size and/or nature of the recovery necessitates setting up a parallel
structure, these should be rationalized and established with a specific mandate andlegal basis. The establishment of the Housing Company in Sindh for housing reconstruction is a good example of such a parallel structure with special dispensation for
rapid implementation of the housing reconstruction program.
Build Capacity in Local Government: Disasters hit local governments hardest as they
are called upon to meet exceptional challenges well beyond the scope of their normal,
pre-disaster duties and capacities. Indeed, as a result of the flooding, local governments
are suffering reduced capacity, and have lost buildings, transportation, and basic equipment. On top of this, recovery will require local governments to manage budgets andwork program that are more significant than pre-disaster responsibilities. As a result, it
is unrealistic to expect local governments to implement massive reconstruction programs in the absence of substantial additional support. Therefore, local governments
will be supported in the short-term and a program of capacity building will be implemented in the long-term. The provincial/special regions RRU will provide immediate
support for project preparation, implementation, and quality control at local levels.
Optimize Use of Private Sector Capabilities: Private sector services and capacities will
be tapped where needed and appropriate. Some capacities required for reconstruction will be outsourced so that government institutions can continue to perform theirnormal operations. Outsourcing could benefit from innovative options like turnkey (design-build) and PPP models. Strict compliance with and efficient use of fast-track procurement and implementation procedures will incentivize the participation of capable
and reputable consulting firms, contractors, and suppliers in reconstruction.

41

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Outline Institutional Arrangements: Based on the above, the outline of institutionalarrangements for flood recovery and reconstruction are as follows and graphically represented in the figure below.
Federal Level
The PSC will provide the highest level of policy and strategic guidance to the federal
and province/special regions. The PSC will ensure the equitable allocation of reconstruction resources among the provinces and the regions, and resolve inter-provincial
issues related to reconstruction policy and implementation.
The IOB will be set up based on the guidance above and will provide independent oversight of the recovery program. It will report its findings to the PSC, and in turn, the PSC
will report to recovery partners and the public.
The RRU in the MoPSDI will coordinate national policies, planning, on- and off-budget
financing, and implementation and monitoring of the recovery program. The RRU in
the MoPDSI would be the first point of contact for all the external on- and off-budget partners and will act as the Secretariat for the Government - Donor Coordination
Group. This will ensure synergy and the equitable allocation of overall reconstruction
resources among provinces/special regions and among sectors. The RRU in the MoPDSI
will monitor overall reconstruction implementation (on- and off-budget) and provide
regular progress overview reports to PSC, IOB, reconstruction partners and the public.
For this purpose, the RRU in the MoPDSI will establish a comprehensive M&E system
in partnership with the RRU in the Planning and Development (P&D) Departments at
provincial/special regional level, complementing the existing systems at federal/provincial/special regional levels.
The RRU in the MoPDSI will be guided by a Steering Committee headed by the Secretary of the MoPDSI and will have representation from all the affected provinces/special
regions (at the Chief Secretary of P&D-level) and relevant federal ministries (at the
Secretary-level). The Steering Committee will review reconstruction implementationand provide guidance. It will resolve issues faced by the provinces in mobilizing funding,and facilitate in mobilizing additional external resources, if needed. It will be the link
between the PSC and the RRU in the MoPDSI.

42

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Figure 4. Outline of Institutional Arrangements
for Flood Recovery and Reconstruction
Policy and Strategy Committee
Oversight

Overall Policy andStrategy Advice

Independent Oversight Board
Ministry of Planning,
Development & Special Initiatives
Steering
Committee
Federal Agencies(NHA, WAPDA, FFC, MoWR, etc.)

Recovery andReconstruction
Unit (RRU)

Planning & Development
Departments

R&R Projects

Reporting to Steering Committee
Special Dispensation
Overall Coordination
Policy Formulation
Program Monitoring andSetting Standards
Financial Management of
Programmatic Funding
Donor Coordination

Steering
Committee

Reporting to Steering Committee
Provincial Policy Formulation
Preparing Annual Work Programs
Monitoring Provincial Programs/Projects
Setting Standards
Coordinating/Partnering with Partner
Organizations
Financial Management and Reporting
Grievance Redress System

Recovery andReconstruction
Unit (RRU)

Line Departments

District Offices
Recovery andReconstruction
Unit (RRU)

R&R Projects

R&R Projects

43

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Provincial/Special Regions Level
The institutional structure recognizes the lead role of the provincial and special regional governments in recovery based on the reconstruction policies and strategies issued
by the federal government. Each of the provincial/special regional governments will
establish a Steering Committee to provide overall guidance and oversight at the provincial/special regional level for the implementation of reconstruction programs. The
Steering Committee will be chaired by the Additional Chief Secretary, P&D and will include secretaries of the departments involved in reconstruction implementation. It will
also have appropriate representation of the districts.
A provincial/special regions RRU within the P&D Department will be responsible forcoordination of reconstruction policies, planning, financing and implementation andmonitoring. It will ensure compliance with reconstruction policies and strategies acrossthe various sectors. It will also ensure that fast-track procedures are operationalized forreconstruction implementation. The RRU in the MoPDSI will act as the clearinghousefor reconstruction programs to be approved at federal or the provincial/special regions
level. It will also facilitate the participation of off-budget partners in reconstruction implementation in the provinces/special regions.
The existing provincial forums will approve the reconstruction projects submitted by
the provincial departments. A representative of the RRU in the MoPDSI will be co-opted in the approval forum at the provincial level to improve coordination and synergies.
With regard to federally transferred funds, the provinces will have the authority to approve projects up to a threshold to be determined by the government, including thepossibility of unlimited delegated authority to approve subprojects under umbrella
Planning Commission Form -1 (PC-1) approved at the federal level.
The District Offices will set up an RRU responsible for planning, designing, and implementing reconstruction projects which are to be implemented at the district and local
levels. They will also facilitate partnerships with the local CSOs, NGOs, private sector,
etc., for implementation of local-level reconstruction projects.

United Nations Agencies
The UN System will provide advice on monitoring and support for implementation
where appropriate. The UN organizations, along with other development partners, will
work with provincial governments to provide policy and implementation advice andassistance. The UN will work to integrate the recovery M&E Framework with the Sustainable Development Goals.

44

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

FINANCING
STRATEGY AND
FINANCIALMANAGEMENT

Photo: © UNICEF/Zaidi
45

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)FINANCING STRATEGY AND MANAGEMENTThe objective of the 4RF financing strategy is to guide the identification, channelingand management of recovery, rehabilitation and reconstruction finances. It gives an
overview of where the resources will come from, how the different types of financing
will complement and leverage each other and how the use of funds will be monitored.
The outcome of the financing strategy is to ensure the most efficient use of funds overthe lifespan of the recovery, rehabilitation and reconstruction program, against short-,
medium- and long-term priorities.

Box 1. Guiding Principles of the 4RF Financing Strategy
Demonstrate government commitment to necessary reforms to free up fiscal space andfacilitate private investment for recovery needs.
Enable strategic collaboration and more coherent dialogue among the government,international community and affected populations on recovery and reconstruction.
Ensure the appropriate allocation of resources through the right financing mix andcomplementarity of the different types of financing.
Promote transparency and accountability in financing.
Increase the coordination of international financial support and reduce transaction costs.
Ensure high fiduciary standards and sound financial management.

Pakistan was facing macroeconomic challenges even prior to the catastrophic floods.
The floods, combined with the COVID-19 pandemic and the ongoing global economiccrisis, exacerbated the scale and intensity of the country’s economic issues. Despite
these constraints, Pakistan mobilized significant domestic resources to fund immediate relief and early recovery activities. Since the beginning of the floods in June 2022,
the federal and provincial governments have been actively reprioritizing spending under existing projects. Funds under existing PC-1s have been repurposed to address relief and early recovery, while additional PC-1s have been restructured on an urgent basis
within federal and provincial programs, particularly in Sindh and Khyber Pakhtunkhwa.
The Government of Khyber Pakhtunkhwa has, for example, re-appropriated/diverted
PKR 19 billion from its ongoing Annual Development Programme (ADP) to restorativeand rehabilitative works. Despite these efforts, it is clear that the expenditure needs atboth federal and provincial level have increased manifold.

46

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Furthermore, federal and provincial governments have been revisiting the FY23 andFY24 pipelines of multilateral development partners to reorientate them towards priorities identified in the PDNA. This requires a careful exercise in balancing future resources against reconstruction and recovery with medium-term investments in humandevelopment for a more sustainable socio-economic recovery. The next step in thisprocess will be to conduct a reallocation of existing Public Sector Development Programme (PSDP) and ADP funds through a multi-year plan and budgetary adjustments
to reflect this reprioritization.
The reallocation of domestic resources will be coupled with measures to enhance revenue generation where possible and improve efficiency in the use of public resources.
Additional measures have been identified that will increase revenues in the short-, medium- and long-term. These include policy measures to increase tax compliance andrevenues, such as the reduction of exemptions that do not contribute to recovery, andrefocusing of exemptions that will support a more efficient recovery and reconstruction
program. The reduction of import tariffs on goods necessary for recovery or imported
inputs that can support a recovery in Pakistan’s exports and a reduction of exemptions
to non-productive sectors will ensure more efficient flows of resources for recovery. A
number of tax reforms can be implemented in the short-term to increase revenues.
These include the simplification of tax rates and the introduction of new taxes on property, profits, and demerit goods. Implementation of these reforms will require a highly
complex process of consensus building. However, in the context of the unprecedented
national emergency and the magnitude of the recovery challenge, reaching national
consensus on such reforms should be considered a national imperative for all stakeholders involved.
As efforts to raise domestic resources continue, financing the 4RF will require mobilization of unprecedented resources over the course of the coming years. While Pakistan
has already taken major steps to address immediate needs and is committed to continue mobilizing its own resources for medium- and long-term recovery, the crisis is of amagnitude which calls for international and bilateral partners to generously contributetowards achieving the 4RF objectives. Resource mobilization will also leverage international development assistance, bilateral financing, green financing and private sector
funding to complement already-committed government financing. The emphasis forinternational financing will be on concessional and grant financing, to complement thedomestic and private sector resources that will drive the recovery, rehabilitation andreconstruction program under the 4RF.

47

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)The 4RF also recognizes the key role that the private sector will play in the recovery
process. Measures to mobilize private sector financing will include efforts to improveaccess to finance to firms and households, including support to microfinance sector.
Blended finance and de-risking tools will be critical in mitigating risks and encouraging
private-sector investment in underserved segments, such as agribusiness, Micro, Smalland Medium Enterprises (MSME), low-income housing, non-government backed infrastructure, etc.
PPPs will be adopted to develop, operate and maintain infrastructure more effectively
and efficiently. Enhancements to the PPP framework to allow private participation will
be embedded in the overall recovery plans for infrastructure, while improved capacity
and institutions for PPP will allow increased private participation in infrastructure. Theseframeworks will be strengthened by integrating climate costs in project designs and in
the form of compensation payments in contracts in the scope of technical studies. ‘Resilience’ will be part of the evaluation criteria for tenders, with measures such as the requirement to include climate experts on project approval committees and partnerships
with the insurance industry and engineering firms on the use of climate screening andrisk forecasting tools. Moreover, structured and transparent procurement models under bankable concessions will help catalyze private investment in urban infrastructureand services, green buildings, transportation, water and sanitation, waste management,
and transmission and distribution. Provincial governments can be supported to build
fiscal and institutional capacity by development finance advisory services, enablingthem to access commercial sources of finance to supplement scarce fiscal resourcesand donor reform-based funding. Unlocking private investments, including PPPs, willbe critical and will require the adoption of bankable frameworks and improved financial
capacity of provincial authorities.

Channeling Financing for Efficient Recovery, Rehabilitation andReconstruction
The 4RF financing strategy considers the different characteristics of each financing
source and allocates them to short-, medium- and long-term priorities through themost appropriate channels.
The 4RF financing strategy seeks to coordinate all types of financing through on andoff-budget mechanisms. Wherever possible, the use of government processes, systems
and entities is encouraged. On-budget financing should be prioritized, and the cost of
implementation should be given due consideration when choosing the implementing
agency. Global reconstruction experience has demonstrated that finances are better
leveraged, and provide better value for money, if they are coordinated under the leadership of the government, and implemented using the principle of subsidiarity, i.e. im48

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

plemented at the lowest logical level of governance. The use of international funds will
be decided through forums that bring together federal and provincial governments
such as the National Coordination Committee on Foreign Funded Projects (NCC-FPP)
and Executive Committee of the National Economic Council (ECNEC).
The figure below shows the different channels through which financing can be directed to activities on the ground, including pooled mechanisms for on- and off-budget financing, including from private donors. The 2022 Khyber Pakhtunkhwa Flood Response
Plan includes details of the Climate-Resilient Infrastructure Fund for provincial-level
development of public infrastructure. Drawing on global best practice, it highlights thaton-budget funds can also be implemented through non-government actors in cases
where they have on the ground capacity that can be easily contracted and, in this way,provide much-needed surge capacity. The BISP Nashunoma program, which is rapidly
scaling up in response to the floods, is an example of the government contracting a UN
agency, in this case the World Food Program. Another example is the People’s Primary
Healthcare Initiative (PPHI) in Sindh and Balochistan which are Section 42 Companies
utilizing both private and international financing for primary healthcare in flood-affected areas in Sindh and Balochistan. In other global examples, NGOs and CSOs have been
contracted to bring additional capacity on the ground for government-managed programs. Private firms can also be brought in to enhance government capacity, particularly in areas such as procurement, environmental and social safeguards management.

Figure 5. Channels for Recovery, Rehabilitation
and Reconstruction Financing

49

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Funds Flow Expenditure Accounting
The 4RF financing strategy recognizes the need to mobilize financing throughout the
short-, medium- and long-term phases of the program, and therefore the need toengage with donors and the general public to maintain confidence. This will be done
through regular funds flow expenditure accounting, demonstrating commitments
against disbursements. While an important element of transparent reporting, regularanalysis of commitments and disbursement will support active management of reconstruction funds and ensure funds are directed to fill gaps as the reconstruction program evolves.

Source of Financing Gap
Source of Funding

Share in Percentage

Local
Multilateral DB, Bilateral and Green
Financing
Total
Gap

Share in USD (Bn)

50
50

8.18
8.15

100

16.3
8.15 Bn USD

Auditing and Monitoring Oversight
Auditing, monitoring and oversight of the 4RF program will take place at multiple levels
and will be adapted to the nature of the activities. For example, the owner-driven housing project in Sindh will make use of a third-party monitoring agent to ensure oversightand monitoring of disbursement of funds to eligible beneficiaries and completion ofworks. This will be in addition to the use of existing government systems of audit, including the Auditor General of Pakistan and provincial-level auditing systems.

50

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

IMPLEMENTATION
AND MONITORINGARRANGEMENTS

51

Photo: © UNICEF/Zaidi

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

IMPLEMENTATION AND MONITORINGARRANGEMENTS
The implementation of the 4RF will require an efficient and transparent implementation mechanism, supported by strong government commitment at the federal andprovincial levels. In order to achieve this, the following implementation mechanisms areproposed:
Policy & Strategy Committee (PSC): A governing body that will ensure overall coordination of the 4RF interventions and approve federal and provincial 4RF’s policies, plans,
strategies and standards. Members of the PSC will be drawn from federal and provincial line departments and ministries, donors, civil society with optional private sector
members (e.g. Provincial Disaster Management Authorities [PDMAs], NGOs, CSOs); it
will meet quarterly.
Technical Implementation Management Sub-Committee: This sub-committee will be
responsible for overall implementation management and supervision of the programand strategic objectives that are set and approved by the PSC. It will assist in the formulation of recovery and reconstruction policies, plans, strategies and standards. Its key
responsibilities will include preparation of progress reports, financial reports, work plans,
the governance framework, implementation mechanisms and backstopping support
to government on key priority implementation areas. Under direct supervision of the
PSC, it will be led by the MoPDSI, and be composed of technical experts and representative of donors, civil society, the private sector, academia and federal and provincial
governments, including the Auditor General Office, NDMA, FFC, etc. It will provide periodic reports on implementation progress to the PSC and other partners.
Provincial-level Implementation Committee: Each provincial/regional government
will establish a Recovery & Reconstruction Implementation Committee for implementation of recovery plan projects and programs at the provincial and local levels. This
Committee shall be responsible for the development of provincial-level implementation plans, a policy framework for implementation at sub-national governance levels,
creation of coordination mechanisms at provincial and sub-national governance levels,
etc. The Committee may include the Chief Minister as Chair, an opposition Member of
the Provincial Assembly, the Chief Secretary, Additional Chief Secretary and the Secretaries of the departments involved in recovery/reconstruction implementation, PDMA,

52

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

FFC, NGOs, civil society from the affected districts, as well as representatives from theprivate sector, commerce and industry. This Committee shall meet on a quarterly basis
and report progress and updates to the PSC and its steering committee. This Committee will also ensure the inclusive and participative response and recovery projects
planning, implementation and management at district levels.

Policy &Strategy Committee(PSC)
Provincial-level
Implementation
Group

Technical Implementation
Management
Sub-Committee

Need for PPPs: Recovery phase implementation shall have a clear and specific focus
for private sector involvement, as well as formal relationships that link private entities to
the government’s response and recovery institutions in the form of PPPs. The PPPs will
enhance both the government’s and the private sector’s ability to recover from financial losses; loss of market share; and damage to infrastructure, equipment, products, orbusiness interruption by assembling resources and other activities. It will also facilitate
compliance with regulatory and safety requirements, which is a cross-cutting concern
and a government priority. Therefore, it’s important that representatives of the private
sector be members of the PSC and its steering committee, provincial steering committees, and optionally at sub-national governance structures.
M&E Framework: To establish a robust and integrated M&E system for recovery-phase
implementation, existing M&E mechanisms at the federal and provincial levels need tobe reviewed, gaps identified, and revised M&E systems developed. It will build on the
Directorate General M&E structure and its core function of planning, M&E of ADP and
Foreign Funded Programs for better performance, transparency and governance alongwith improved service delivery and public benefits measuring the direct and indirect
impact of development projects.
The M&E system will be focused on what to monitor and evaluate (Results and Outcomes), when to monitor and evaluate (periodic progress reports to the PSC), how tomonitor and evaluate (existing monitoring tools and mechanisms upgraded), who will
monitor and evaluate (e.g. existing M&E directorates in P&D Departments, etc.), and53

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

how to use the results (strategic alignment and guidance by the PSC, etc.). The MoPDSI, as Secretariat, will monitor the recovery and reconstruction implementation (onand off-budget) and provide reports to the PSC and its steering committee as well as
to recovery & reconstruction partners and the public at large. Independent third-party
evaluations will ensure an independent review of the 4RF implementation.
Keeping in mind the urgency and magnitude of work for the recovery phase, the existing monitoring systems may be upgraded. Both results framework and monitoring
will be developed and implemented at two levels: one at the strategic framework levelaround the SROs; and the other at the program/project level. These two levels should
be designed to monitor everything that is being planned, including: institutional (capacity development, operational reforms, etc.); policy articulation; financing (inflows
and budget-based, as well as accounting and reporting back); and implementation ofprograms/projects.
In addition to the two-levels monitoring, and to provide real time information to relevant stakeholders, an M&E management information system, or dashboard, shall be developed to inform the government and general public. As part of this, the Government
Interface, hosted at the MoPDSI (federal level) and P&D Departments (provincial level),
will provide real-time progress updates to stakeholders on Key Performance Indicators.
Additionally, the Citizen Interface will provide real-time transparent financial and progress tracking for citizens to ensure transparency and accountability.
Overall, The M&E system for recovery will: (i) track physical progress of recovery andreconstruction activities; (ii) track results for other recovery activities outside scope ofgovernment M&E, i.e. in-kind and cash transfers; (iii) provide regular and comprehensive information on allocation and disbursement of funds (public, donors and private
sector); (iv) provide data for evaluating economic and social impacts of recovery programs; and (v) inform outcome-based mid-term review of the recovery implementation.
Strategic Results Framework (SRO-Level): A results framework with qualitative andquantitative indicators and sub-indicators will be prepared to track and monitor progress and focus on outcomes and impacts. A coherent, high-level results framework thatwill clearly define the results areas, related outcomes and outputs covering the identified SROs.

54

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

For each of the SROs, the strategies (plan) are in the final stage of finalization. As thenext step, there is a need to develop a Results Framework, with indicators and sub indicators for each SRO Strategy / Plan. For each outcome and related outputs, qualitative
and/or quantitative indicators will be set along with the baseline and targets.
Sectoral and Integrated Results Frameworks (Sector-specific, Program-level): There isalso a need to have sector-specific results frameworks with clearly defined outcomes,
outputs and indicators. The relevant departments such as P&D, agriculture and livestock, transport, etc., will be responsible for the development of these sectoral results-based frameworks. Each sector-specific results framework will contribute to therelated high-level recovery phase results framework covering the SROs.
Internal Controls and External Audits: The MoPDSI considers that the recovery phaserequires enhanced fiduciary safeguards and risk mitigation measures, including internal
controls and external audits. Various existing avenues for internal control should be employed in an integrated and comprehensive manner to ensure that the funds are being
allocated, spent and reported in a judicious manner. The Auditor General of Pakistan,as the external auditor and in conformity with the International Standards of Auditing,should audit all programs and projects for the recovery phase, channeled through thebudget systems. Additionally, provincial audits are required and should have a similar
framework.
Third Party External Audit, Independent M&E and Social Audit: As large-scale recovery programs require independent oversight and audit of the systems, procedures
and controls adopted, a third-party independent international audit firm will be hired.
Likewise, to ensure transparency, gauge community perception and citizen satisfactionof the recovery phase activities, an independent third-party social audit firm will be
hired. The findings will be presented to the PSC and IOB. The Third-Party Monitoring
Agent (TPMA) will be hired at the national level to monitor the national recovery as well
as specific activities or projects, for example cash disbursement to beneficiaries andowner-driven reconstruction progress in the Sindh Housing program. Moreover, a ME3F
platform will be developed to ensure transparent and adequate targeting of support.
Midterm and Final Evaluation: Each recovery phase shall be subject to midterm andfinal evaluations. A panel of national and international consultants and/or independent
M&E firms shall be hired for the mid-term and final evaluations of each phase.

55

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Reporting Mechanisms: As owner of the Central Monitoring Dashboard, the MoPDSI
will update key performance indicators. The provinces will provide results-based reports
on key performance indicators online from their respective provincial management
information systems and dashboards so that the information is available to both the
public, relevant stakeholders, and international partners. The Central Monitoring Dashboard shall be updated monthly. Similarly, the off-budget programs, especially NGO
implementation, will provide feedback and report information on the Project Monitoring and Evaluation System (PMES).
Complaints Management: An easy-to-use grievance and complaint system at sub-national governance levels will be established to provide broad and easy access to affected populations. Setting up GRMs and conflict resolution systems at sub-national
governance levels is highly desirable as it promotes equity in access among affected
communities, minorities and women.
Ensuring Effective and Inclusive Community Engagement and Participation: Recovery phase implementation will be based on participatory and inclusive mechanisms
whereby community members will be included and consulted throughout the process
in assessments, defining problems and needs, identifying solutions and implementing
projects, and providing feedback. A community-driven development approach may be
adopted and outsourcing execution to a social mobilization partner may be considered. This will result in local ownership and proactive involvement by local communities
in the development process.
Communication and Visibility Measures: An effective communication strategy canbolster trust between the government and citizens. Effective public communication
can provide citizens with truthful and accurate information, engage them in the recovery effort, correct false or misleading information, and allow a better understandingof public attitudes, including fears, concerns, and expectations. An effective communication strategy will include: (i) public communication on progress reporting that isavailable on government websites on timely basis; (ii) financial tracking data shall bepromptly made available online; and (iii) the Right to Information and Right to Services
Acts, along with the recovery plan on supporting the implementation of this law shallbe the corner stone of the communication strategy.
Risk Management: Risks and associated mitigation measures will be identified in theearly stages of design and implementation of the 4RF. An activity’s risks will be mea-

56

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

sured against its benefits, rather than simply choosing the lowest-risk option. Options
for minimizing, avoiding, sharing or mitigating, and accepting risks will be developed
based on the likelihood and potential impact of the risk. Risk will then be actively managed, for example by making risk management a standing agenda item of all high-level and other committee meetings. A 4RF program risk register will be maintained withperiodic updates and assessments.
Standard Implementation and Procurement Procedures: Implementation modalities of the 4RF will require existing project approval and procurement, reporting, andstaffing procedures to be reviewed and simplified to meet the critical response requirements of the recovery process. The lead implementation partners, particularly the
MoPDSI, along with relevant departments at federal and provincial levels, will work together to develop a 4RF-specific and simplified procedures and processes across all
sectors and entities for more rapid 4RF implementation. The implementation will bebased on the following adaptive and efficient procurement mechanisms:
Pre-Arranged Procurement: Creating a pre-established list of qualified
contractors. This list can be categorized by type of expertise and competencies. The prequalifying system will expedite issuing contracts andevaluating tender responses. The pre-qualifying system will also eliminate inexperienced contractors that lack the expertise required to successfully implement the 4RF related projects.
Fast-Track Procurement: A simplified, preferably “e-procurement” (asidentified by the PDNA), and agreed tender and purchasing process
will be adopted to quickly get goods and services to the areas where
they are needed. It will also aim to provide: (i) waivers to Public Procurement Regulatory Authority (PPRA) rules for emergency procurement;; (ii) review ceiling and approval limits; and (iii) enable faster procurement through pre-qualified suppliers, as indicated above.

57

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)58

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

STRATEGICRECOVERYOBJECTIVES(SROS)

59

Photo: © UNICEF/Zaidi

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

STRATEGIC RECOVERY OBJECTIVES (SROS)
Strategic Recovery Objective 1: Enhance Governance andthe Capacities of the State Institutions to Restore Livesand Livelihoods of the Affected People, especially the Most
Vulnerable
Sectors: Governance, Environment, Climate Change, and Disaster
Risk Reduction
Rationale and Overview
Good governance is critical in effectively managing recovery from the devastation of
the recent floods. It is also essential in putting Pakistan back on track for accelerated
economic transformation, allowing government to innovate business processes for improved service delivery, enhancing the quality of public institutions and policies, public

60Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

investment decisions and their subsequent impact on citizen trust and human capitaldevelopment.
This SRO seeks to restore governance services to pre-floods level, while enabling agovernance structure and a system that fosters efficiency, effectiveness, transparency,
accountability, and inclusiveness. It supports the Government of Pakistan by rebuilding physical infrastructure that has been destroyed/damaged by floods; improves its
capacities to prepare for, and respond to, the challenges posed by natural and manmade hazards; and helps build resilience to the impacts of climate change throughthe application of gender-informed and community-led risk reduction measures. A
key objective will be to rebuild the natural infrastructure of Pakistan, including throughecosystem-based adaptation and landscape restoration. A number of prioritized interventions are recommended comprising a mix of legislative and policy actions, institutional and operational effectiveness and large-scale application of nature-based
solutions in rebuilding the country’s renewable natural capital.

Sector Context
The 2022 floods severely disrupted governance and service delivery systems as physical assets worth US$60.1 million belonging to local governments, public offices, police,
judiciary and prisons were destroyed across all provinces and special regions. This has
severely limited the capability to deliver services and many facilities remain non-operational; all the while citizens continue to face critical issues and require immediate
support.
The floods have placed an immense strain on the capacities of the institutions managing DRR as well as climate change at the federal and provincial levels. The federal
Ministry of Climate Change was created in 2012. Although still in nascency, it has beenat the forefront of pressing the country’s case on climate justice and needs further
support going forward. The provincial and local government institutions (notably their
Environmental Protection Agencies and Forestry and Wildlife Departments), which
manage renewable natural resources and pollution control, require additional funds toeffectively address climate change and environmental challenges. When provided withadequate resources, Forestry and Wildlife Departments have demonstrated their ability to support landscape restoration. While these agencies provide the first and mostcost-effective line of defense against floods, their budgets have been reallocated tofund various elements of the flood recovery efforts. It is essential that long-term financing mechanisms in sufficient amounts are secured for building the country’s natural defenses against climate change. Environmental regulations need to be updated

61

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

and the institutions’ capacities enhanced for effective enforcement. Legislation, policies and strategies covering disaster resilience and climate change at the federal andprovincial levels must also be updated to make them relevant to emerging challenges.
Gaps and capacity constraints in the country’s DRM system, especially at the sub-national and local levels, have been highlighted by the scale and nature of 2022 floods.
A number of institutions have been mandated at the federal and provincial levels tomanage various aspects of DRR, including the NDMA, the PDMAs, the Pakistan Meteorological Department and Federal Flood Commission. However, these entities arefacing significant capacity gaps in terms of trained personnel, equipment, technicalexpertise and most importantly financial resources. While the floods have highlighted
the ability of the technical agencies to effectively forecast the magnitude of impending disasters and ensure the provision of actionable information and early warning to
all the stakeholders, they have also brought to light the limitations of the federal andprovincial authorities to undertake timely preventive measures to effectively coordinate the response and recovery efforts with all stakeholders. The most vulnerable, suchas women, girls, the elderly, and people with disabilities, have faced increased hardships,
while Gender-Based Violence (GBV) has reportedly increased due to tensions causedby the floods at the household and community levels.
The Public Financial Management (PFM) frameworks exist at the federal and provincial levels, however, varying levels of capacity and the presence of local governments
and non-implemented Provincial Finance Commission awards have left local authorities without meaningful financial resources and capabilities to manage and implement
large, urgent public investments. The system of budgeting, project design, project
management, project execution and procurement are inadequate at the local level.
Legal system reviews suggest that major problems with Pakistan’s judicial system are
related to the district courts and their slow dispensation of justice.

Strategic Prioritiesa) Priorities for Policy and Operational Reforms
Short-Term• Initiate PFM, public procurement and audit reforms and measures
to prevent corruption in disaster risk financing at the federal andprovincial levels;

62

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan• Set up robust and openly accessible monitoring and reporting
mechanisms and platforms for improved transparency andaccountability;• Review existing laws, policies, strategies and plans to identify gaps andmake improvements;• Conduct consultations with federal and provincial entities to agree onparameters of new and upgraded policy instruments for recovery and
DRR;• Conduct consultations on the establishment of Climate and DRM
Funds at the sub-national/provincial levels.
Medium-Term• Develop and implement frameworks for emergency procurementthat are clear, transparent, and publicly accessible to enable ongoing
monitoring. These frameworks will prioritize strong controls, while
specifying the circumstances under which normal procedures may
be suspended and mandating accountability measures such as timely
reporting, best value for money, auditing requirements, and awardtracking;• repare National Disaster Management Plan II (NDMP) and provinciallevel disaster management plans;• Update and define financing and implementation arrangements for
the National Flood Protection Plan IV (NFPP);• Reduce financial burden on public resources through identification ofrisk transfer solutions, including flood risk insurance.
Long-Term• Draft and approve provincial-level disaster management and climatechange legislation, policies, plans and strategies;• Support policy reforms focused on strengthening governance and ruleof law institutions;• Strengthen governance structures to be more inclusive andparticipatory, enabling effective coordination and ensuring thatmeasures, rules, and regulations are in place for timely service delivery.

63

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Safeguarding vulnerable groups should also be imbedded in all
designed and implemented interventions, with a special focus on
strengthening law enforcement agencies’ capacity to deliver gendersensitive policing.

b) Priorities for Investments/Programs to Support Recovery,
Rehabilitation and Reconstruction
Short-Term• Establish a national landscape restoration program (to be executed by
the provinces) to invest in rebuilding natural infrastructure as the firstline of defense against climate change, including floods and droughts.
Programs will include identification of restoration priorities; thecreation of a sustainable long-term financing mechanism; a financing
mechanism to incentivize communities to invest in and sustain natural
infrastructure; ecosystem services; a sound M&E framework; andbuilding the delivery capabilities of government and delivery partners;• Support immediate operationalization of all non-operational offices,
police stations, and judicial complexes, including prosecution offices
and prisons, for effective management of the flood rehabilitation work
as restoring public sector presence and capacity is essential for (re)building citizen trust;• Ensure integration of risk reduction measures into recovery investments,
taking into consideration evolving flood hazard landscapes due toclimate change;• Strengthen the capacities of the NDMA and PDMAs, and especially, thedistrict-level actors in all stages of disaster response and humanitarianassistance. Reinforce linkages with community self-help groups trainedand equipped for disaster first response so as to improve futuredisaster response;• Undertake clean-up of flood-related contamination as well as solid
waste and silt removal in flood prone areas;• Streamline environmental impact assessment and monitoring of flood
disaster impacts.
Medium-Term• Ensure landscape restoration programs are integrated into nationaland subnational budgets;64

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan• Initiate community and district-level strengthening and capacity
development interventions, supplemented by provision of essential
equipment and stockpiles at the district level to ensure a timely
response to future disasters;• Mainstream DRM in planning, implementation and monitoring throughcapacity enhancement of public officials;• Undertake detailed and localized multi-hazard risk assessments
and integrate the data into local-level decision support systems for
effective response, recovery planning and early warnings;• Carry out detailed studies, in collaboration with international
institutions, on flood forecasting/modeling and the impact of climatechange on flooding;• Strengthen the technical capacities of federal and provincial climatechange and environmental administrations to better fulfill theirmandate.
Long-Term• Complete the landscape restoration program under implementation.
Strengthen mechanisms to support long-term certainty in flow offunds to provinces. Mobilize private sector investment. Ensure thatall key ministries and departments, including forestry, agriculture,irrigation, urban and coastal development are fully aligned with, andsupport, implementation of the landscape restoration program;• Strengthen hydro-meteorological monitoring, forecasting andearly warning systems; install and replace meteorological radars andautomatic weather stations; and expand urban flood management
systems in major cities;• Upgrade public evacuation shelters and routes, and better inform andtrain communities in timely and organized evacuation;• Integrate DRR and climate resilience into public sector approvals,
planning, implementation, and monitoring.

c) Priorities for Institutional Effectiveness and Better “Ways ofWorking”
Short-Term• Establish forums for formal interaction with NGOs and CSOs at thefederal and provincial levels for their role in disaster and climate
resilience;

65

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)• Identify opportunities for public private partnerships in recovery andresilience;• Establish a comprehensive M&E framework, including animplementation plan of priorities identified under the 4RF that may
be used centrally as a mechanism to ensure delivery and quality ofinvestments. This will also act as a provincial coordination tool to ensurea ‘whole of government and citizens’ approach;• Facilitate private sector investment and PPPs in DRM, sanitation andsolid waste management services in the flood-affected areas;• Provide support in the form of human resources and technical expertiseto the PDMAs and provincial climate change entities.
Medium-Term• Enhance coordination and cooperation among entities responsible forresilience, climate change and development to identify means for risk
informed development;• Develop planning and budgetary tools with linkages to risk information
databases to integrate disaster and climate risk into decision making;• Strengthen governance of recovery efforts, especially at the subnational level to ensure transparency and accountability towardaffected populations. Support the establishment or strengthening of
PDMAs and provincial climate change entities at the district level inthe medium to long-term, and ultimately at the community level toenhance resilience of vulnerable communities;• Develop mechanisms and capacity building to access and availinternational available funding for climate and disaster related projects;• Formalize strategies to better utilize the concept of retro-active
financing for emergent disaster related projects so that the costs
incurred through diverting the provincial finances can be recouped
through retro-active financing.
Long-Term• Fully integrate disaster and climate risk considerations into all stagesof project management for government projects at the federal andprovincial levels;• Mainstream DRR and climate change adaptation into district-level
local development planning, investment programming, and budgeting
process.

66

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Table 3. Summary of Damage, Loss, andNeeds from the PDNA

Table 4. SRO1 Priorities Matrix

67

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)68

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Strategic Recovery Objective 2: Restore Livelihoods andEconomic Opportunities
Sectors: Agriculture, Livelihoods, Finance and Markets, Commerceand Industry, Tourism
Rationale and Overview
The disruption to livelihoods caused by the 2022 floods has been extensive. Loss of
incomes from on-farm, off-farm and non-farm activities is high, with jobs lost or disrupted in all provinces, particularly in Sindh. Impacts can be seen in all sectors of theeconomy, with greatest impact on the agriculture sector (see figure below).

Photo: © UNICEF/Sami Malik69

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Figure 7. Employment Affected by the Floods,
by Province and Sector

Source: ILO Labor Force Survey 2020-2021 and Pakistan PDNA 2022

Livelihood restoration and economic recovery is crucial for communities to move forward and to achieve sustained, long-term, and inclusive economic development. Thisrequires employment creation and income generation interventions, as well as restoration of agriculture activities and non-agricultural manufacturing, personal and community care services, infrastructure, communication, and transportation. This will allow
individuals and families to recover their livelihoods, build resilience, and participate
more productively in society. Enhancing private sector participation, building the capacity of micro, small, and medium supply chain actors and enhancing access to credit
and technology will also be critical for recovery and accelerated economic growth.
The SRO2 aims at restoring livelihoods and economic opportunities through a multi-sectoral approach. It is subdivided into two groups: the first will aim at livelihoods recovery
through agriculture and employment restoration, while the second will focus on boosting economic opportunities through commerce, industry, tourism, and market and finance interventions.

Sector Context
The agriculture is Pakistan’s largest sector,1 accounting for 38 percent of the labor force(28.4 percent male and 67.9 percent female)2 and is the main contributor to the coun1 The agriculture sector comprises the crop, livestock, fishery/aquaculture, and forestry subsectors.
2 Government of Pakistan. 2022. Pakistan Labour Force Survey 2020–21. Pakistan Bureau of Statistics, Islamabad.
70

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

try’s foreign exchange earnings. The sector contributed 22.7 percent to GDP in 2021–22,
of which 4.4 percent came from the crops subsector, 14.0 percent from the livestock
subsector, and less than 0.4 percent individually from the fisheries and forestry subsectors. 3
The crop subsector is varied in structure and includes landowning, small-scale, self-sufficient households; landless, daily wage, and temporary agricultural workers; and tenants who establish sharecropping agreements with medium to large-scale landowners.
While the livestock subsector is the most significant economic sector in Pakistan’s rural areas, fisheries employ around 390,000 people directly and indirectly and create atleast 900,000 jobs through processing, direct transport, and retail. 4
Despite the growth of the agriculture sector in the past year, climate change, including
drought and floods, and low water storage capacity are major threats to the sector.
Deforestation and land degradation have been causing substantial reduction in land
productivity and increased rainwater runoff and associated risks. Strict public control,
limited access to functioning marketing systems, and weaker extension and financial
services are major challenges for smallholder farmers in Pakistan.
The floods particularly affected the country’s rural economy. It led to the loss of over
4.4 million acres (1.8 million hectares) of standing crops5, leaving millions of already vulnerable farmers with very weak capacity to make investments on Rabi season crops.
The floods caused the loss of around 1 million animals, causing a reduction of animal
products and meat consumption as well as depriving owners of an important sourceof income. Aquaculture farmers also faced similar challenges. Moreover, on-farm irrigation and other agriculture-related infrastructure and assets were damaged. This has
resulted in the temporary deterioration of livelihoods, reduced self-sufficiency and income, and a potential decline of exports of important crops such as cotton, rice, fruit,and sugar.
Pre-flood employment in the flood-affected districts was 21.8 million people, of whom
3.79 million were women. In addition, approximately 0.5 million children ages 10–14 years
were engaged in economic activities. The biggest share of employment was in the agriculture sector, at 43.1 percent, followed by subsectors of the service sector - communityand social services at 15.4 percent, wholesale and retail trade at 12.9 percent, and manufacturing at 10.5 percent.
3 Government of Pakistan. 2022. Pakistan Economic Survey, 2021–22. Economic Adviser’s Wing, Finance Division.
4 Revitalizing Pakistan’s Fisheries, World Bank, 2018
5 Rabi season represents winter season planting Nov. / Dec. Harvesting April / Mai, mainly wheat crop planted.

71

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)The PDNA report indicates that the employment of 4.3 million people is impacted by
the floods. Loss or damage to productive assets and other sources of income havestripped them of alternate means of earning and subsistence. The floods have highlighted several key vulnerabilities of our society and economic system. As a large number of the affected populations work in the informal economy and lowest tiers of supply chains (agriculture producing communities, home-based workers, own accountworkers, unpaid family help), they face some of the highest degrees of vulnerability
due to the uncertain nature of their work, revealing the precariousness of long andcomplex global value chains. These social inequalities have been rapidly exacerbatedby the massive but uneven loss of employment across sectors.
Industry, commerce, tourism, and the financial sector were already reeling under thepressures of a slowing economy even before the onset of the floods. The economy was
slowly emerging from the COVID-19 induced economic slowdown when, in early/mid
2021, external and fiscal imbalances along with surging inflation necessitated a significant tightening in both monetary and fiscal policy. These measures led to demandcompression as shown by high frequency indicators of economic activity like cement
dispatches which were down 8 percent in the fiscal year 2021–22, and down 48 percent
in the month of July 2022 compared to the same month the previous year. In addition toa generalized slowdown and decline in demand, high inflation had also started eroding
the profit margins of firms and the financial sector input costs rose. Inflation increased
to 27.3 percent in August 2022, the highest in 50 years. High inflation and associatedinterest rate increases began compromising the ability of financial sector borrowers toservice loans, exposing the financial sector to downside risks.
The floods and their direct and indirect impacts exacerbated the challenges alreadyfacing Pakistan’s industry, commerce, tourism, and financial sectors through both direct
losses and damages, and indirect losses due to surging inflation and the floods’ impact
on the agriculture sector, which rippled across all sectors. The extent of the damages
and losses is exemplified by the losses sustained by the microfinance sector within the
broader financial sector. Of the total outstanding microfinance loan portfolio, it is estimated that approximately 17.6 percent of borrowers and more than 40 percent of loans
are in flood-impacted areas, according to the Pakistan Microfinance Network.

72

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Strategic Investment Priorities and Key Policy and Operational
Reforms, Programs, Institutional Needsa) Priorities for Policy and Operational Reforms
Short-Term:• Input assistance through direct cash contributions, with agreed
amounts to targeted smallholder farmers, including crop, livestock, andaquaculture farmers based on acres cultivated or number of animals
owned;• Establish fast-track operational procedures for project approval andimplementation, including procurement for time-bound interventions.
• Link flood response plan and other initiatives focused on the supportof the rural population with existing poverty reduction strategies at
the federal or provincial level to generate synergies and strengthen
the nexus with development interventions;• Regulatory forbearance for the microfinance sector.
Medium-Term:• Continue implementing business regulatory reforms throughout therecovery period, such as accelerating, streamlining, and processing of
regulatory licenses, permits, and certificates.
Long-Term:• Developing long-term finance instruments to help meet the large
infrastructure needs. Some priority reforms include implementing
a robust debt management strategy and improving primary andsecondary market operations; and developing a sovereign Sukukissuance program for a wide range of maturities.

b) Priorities for Investments/Programs to Support Recovery,
Rehabilitation and Reconstruction
Short-Term:• Reactivation of crop production, livestock husbandry, and aquaculture
farming activities through robust extensions services and scaledup provision of inputs (seeds, fertilizers, feed, fodder, vaccinations,veterinary drugs, animal restocking, etc.);73

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)• Use, as far as possible, of a cash-for-work approach (e.g., desilting andrepair of on-farm irrigation channels, karez cleaning, land leveling or
repair of fishponds) or creating employment opportunities throughemployment-intensive rehabilitation programs focused on the mostvulnerable community members (i.e., migrant temporary agriculture
wage laborers);• Rehabilitation of damaged public and private infrastructure (e.g.,
animal sheds, poultry dairy farms, fishponds, on-farm irrigation) byusing employment intensive approaches where appropriate (e.g.,
offices, hatcheries, research farms) and replacement of lost equipment,machinery, or assets. Emergency employment services that register
people and jobs and match demand with supply, further providing
skills training to jobseekers for gainful and productive employment;• Provide sustainable financing solutions, including through risk sharing
facilities operated by the private banks and financial institution services
for reviving MSMEs and households in flood-impacted areas;• Provide liquidity to MFIs to: (i) channel funds to affected
microenterprises and individuals; (ii) disburse new loans to existing or
new clients.
• Facilitating e-commerce and tech platforms for preserving andfostering indigenous skills, arts, and crafts, as well as diversifying
opportunities for vulnerable and excluded groups, especially women,
persons with disabilities, and farming communities;• Support fintech/agri-tech companies that facilitate access to financefor farmers;• Crowd-in the private sector to develop infrastructure, such as grainsilos, agri-transportation logistics, and cold storage infrastructure.
Medium-Term:• Establish and rehabilitate orchards and restock livestock animals
through ecologically viable interventions;• Provide support to vulnerable farming communities to start smallscale businesses;• Build capacity in risk mitigation practices (e.g., climate smart,ecosystem-based agriculture and livestock management, land
resource management). Improved seed and food storage facilities at
the household level to reduce normal storage as well as flood losses.

74

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Link capacity building with public service providers (agriculture
extension workers, veterinarians, fish hatchery experts, etc.) to build
an improved agriculture production system. Agriculture skills training
should generate additional income sources for women and youth,
reducing poverty and rural flight;• Improved institutional capacity for reconstruction and climate
adaptation, optimizing employment potential and sustainability of
training by linking with business and service organizations;• Build back better through the integration of environmental
sustainability and the promotion of a better working environment,
particularly focusing on disenfranchised women and youth;• Provide support to the government’s emergency preparedness andresponse infrastructure, systems, and services as well as to the private
sector to enable communities at higher risk of vulnerability to disasters
to meet their food, nutrition, and other basic needs.
Long-Term:• Set up a “very early warning system” and livelihood protection
mechanisms (e.g., move livestock and other assets to safe areas) tomitigate flood effects;• Fiscal space for developing an unemployment benefit scheme as ashock responsive measure;• Provide long-term adaptation, skills development, access to assets,links to agriculture, financial inclusion, and risk financing to strengthen
the livelihoods of communities at higher risk of vulnerability.

c) Considerations for Institutional Effectiveness and Better “Waysof Working”• Primary focus should be flood-affected households whose livelihood
strategy is to first cover their domestic needs and use the surplus
production for marketing;• Enhance the role of Rural Support Programs Network for coordinationof implementation in view of a localized interventions approach;• Involve NGOs and community organizations in the affected areas tolead distribution of assistance packages with local government officials
responsible for providing oversight and support. Capitalize on existing
platforms like the BISP to target the poor;

75

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)• Involve research and extension services in order to ensure the transfer
of innovative production practices to rural crop farming, livestock
owning, and aquaculture farming households;• Undertake a new economic and agriculture census;• Promote training of on-farm processing activities, add value toagriculture products (cheese, ghee, dried fruits, smoked fish, etc.)
through quality improvement and increased quantity. Facilitate accessto markets while reducing or excluding middlemen in marketing.

Table 5. Summary of Damage, Loss, andNeeds from the PDNA

76

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Table 6. SRO 2 Priorities Matrix

77

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)78

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

For agriculture, committed funding represents 44.5 percent of the overall 4RF needs in
SRO2, of which 22.5 percent is provided by federal or provincial government funds andthe remaining 77.5 percent by outside sources as follows:1• Reallocated funds from ongoing development projects;• Grants provided by IFIs;• Donations from donor countries for emergency or recovery assistance;and• Funds raised by national and international NGOs, UN agencies, andinternal and external private donors.
Funding for livelihood recovery represents 1.2 percent of the 4RF needs, with funding
outsourced by national and international NGOs and UN agencies (Save the Children,
Islamic Relief, International Labor Organization, UN Development Program).
Funding has not yet been identified for the tourism sector. Cost needs for commerce,industry, market, and finance are reflected in other sectors (e.g., agriculture for micro-finance loans through NGOs). Most of the policy and institutional proposals do
not require funding and are therefore represented by an “X”. Some related to capacity
building are already reflected in other sectors.
1 The data source of the needs and funding availability were gathered through consultation and inputs received
from federal level (MNFS&R), provincial departments (agriculture, livestock and fisheries) and the UN agencies (FAO,
WFP and UNDP) as well as other humanitarian partners (national and international NGOs) through the FSAW (FoodSecurity Agriculture Working-group) regular meetings. The data were collected up to the 1st of December and would
need to be updated over time as new funding becomes available. The final budget for the different interventions
needed in short, medium and long term to achieve the 4RF in the agriculture sector (USD 4,274.1 Million) is slightly above the PDNA estimates (USD 3,976.3 Million). This is due to a more detailed analysis regarding interventions
needed and identified, and the propositions presented by the provinces and at federal level, in addition to somenew additional identified needs especially for the Special Regions. Required operational costs to implement various
intervention were also not taken into consideration.

79

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Strategic Recovery Objective 3: Ensure Social Inclusion andParticipation
Sectors: Social Sustainability, Inclusion and Gender, Social
Protection, and Cultural Heritage
Rationale and Overview
The 4RF envisions pro-poor, pro-vulnerable and gender-sensitive recovery and reconstruction. These principles ensure beneficiaries’ rights to dignity, security, and opportunity to lead a good life. It is important to point out the linkages with the other SROs
in that Social Protection, Social Sustainability, Inclusion and Gender are themselves
cross-cutting issues. There are also strong links among the subsectors of SRO3 as someof the most urgent short-term activities can build on each other. In this context, Cultural Heritage is not only important for Social Sustainability but also provides intangible
knowledge that has become key in managing natural resources.
The most vulnerable segments of the population affected by the floods were identified by the PDNA. Women, the elderly, people with disabilities, landless farmers, female
on- and off-farm agricultural and livestock/dairy workers, home-based workers connected to agriculture and other sectors (mainly manufacturing), children and infants,
IDPs, refugees, transgender persons, people living with HIV/AIDS, youth/adolescentsand religious minorities are reflected. Intersectionality has also been considered in addressing the needs of these population groups.

Photo: © UNICEF/Zaidi

80

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Sector Context
Over the years, Pakistan has taken several progressive steps to promote basic humanrights, protect vulnerable social groups against discrimination and violence, and address
drivers of social exclusion and discrimination. It has ratified most international humanrights conventions, enacted multiple pro-women and pro-transgender legislations, introduced quotas for women, minorities, and lagging regions in jobs and parliament,
and implemented special interventions for the empowerment of vulnerable groups including women, transgender people, young people, lagging regions and social groups.
These measures have resulted in marginal improvements in the state of social development and inclusion over the years.
However, the pace of progress on social development in Pakistan has remained slow
compared to other developing countries. The implementation of most legal and administrative instruments meant for protection of the basic rights of vulnerable groups
remains weak, mainly due to persistence of de-facto sources of social and political inequality. The result is that Pakistan consistently ranks low on most global indices measuring the state of social development and equality1. For example: despite the existence of pro-women laws and programmatic interventions, gender-based disparities
persist in health, education, income and employment opportunities, social protection,
personal security, control over assets and participation in politics or decision-making
processes.2 Additionally, women shoulder the burden of unpaid care and domestic
work (more than 10 times that of men), further reflecting harmful and restrictive social norms.3 Violence against women and girls and those with disabilities is rampant,and usually spikes around disasters. A Protection Analysis Update in October 20224 reported high rates of vulnerability among girls and women nationwide as a result of thefloods, with 62% of respondents reporting that one of the most concerning issues is
1 As indicated in the Gender Inequality Index (WHO), Gender Development Index (UNDP), and the Gender Gap
Index (WEF).
2 Women’s enrollment in formal education is only 24%, consequently female literacy rates are 49% vs. 70% for men(PSLM 2018 - 2019). Female labor force participation in Pakistan is one of the lowest in the world (21% nationally,
and as low as 12% in Balochistan), and 69% of women are in vulnerable employment, earning 16% of what their malecounterparts earn. Home-based work accounts for 83% of women’s employment in manufacturing, predominantly
concentrated in textiles, apparel, leather and footwear. Women comprise 68% of the agriculture labor force andoccupy significant roles in livestock production activities, however, are excluded from ownership and control of land,
which is the single most important source of security, income, and status in the agricultural economy. (Pakistan Labor
Labor Force Surveys, 2017 – 2018, 2020 – 2021; WEF, Gender Gap Report 2022)
Women account for 77% of the population without CNICs (Election Commission of Pakistan. (2021). Pilot Project
Report), and only 7.8% of women receive benefits from BISP (PDHS, 2017 – 2018, Table 3.10). The prevalence of GBV in
Pakistan is most pronounced among ever married women (especially those married before the age of 18), divorced,
separated, or widowed women, young women aged 15 – 19, women living in rural areas, and marginalized populations
such as people with disabilities and transgender people. (PDHS 2017 – 2018, Table 16.10) NCSW, UN Women, CGaPs,
Norwegian Embassy (2020) Young Women in Pakistan Status Report 2020. Women in Pakistan have the smallest
share of senior, managerial, and legislative roles (4.5%) in the world (World Economic Forum, Global Gender Gap
Report 2022).
3 The Power of Parity: How Advancing Women’s Equality Can Add $12 Trillion to Global Growth, McKinsey, 2015.
4 UNHCR (2022) Pakistan Protection Analysis Update, Global Protection Cluster. Available at: https://www.globalprotectioncluster.org/sites/default/files/2022-11/pakistan_protection-analysis_oct_2022_final_0.pdf

81

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

the lack of safe places in the community, and 80% of respondents reporting that they
did not know what GBV services existed in their area.5 Similarly, available data points tosignificant vulnerabilities among the transgender community, including lack of decent
and gainful livelihood options, discrimination in access to protection and other services,higher prevalence of HIV/AIDS with low access to preventive and curative medicine, andsocial persecution and organized violence, particularly in urban settings. The priorities
set out below attempt to tackle the root causes of these inequalities and improve thesituation of all vulnerable groups.
In the wake of the disastrous floods, the need for social protection measures and emergency support services for vulnerable groups has magnified. Significant social protection assistance has already been extended to the affected communities to cover theirmost urgent needs. However, the vulnerable sections of the population have encountered specific difficulties in accessing emergency relief assistance and the connected
services (including protection from trafficking, violence and exploitation and also limited access to health and education). These difficulties stem from loss of documentation, harmful/inequitable social norms, negative coping strategies, inadequate infrastructure, and weak assistance capacity to deal with specific needs concerning mobility,
agency, and information that these vulnerable groups experience.
The 2022 floods also have had a damaging impact on cultural heritage. Available datasuggests that at least 149 cultural and historic sites across the country have been severely damaged. The impacted sites include active places of worship as well as tourist sites,
which means significant socioeconomic impact from the loss of access to these sites
for communities that will play a key role in disaster management strategies and building resilience. Knowledge of intangible cultural heritage, which forms the foundationof all social systems and includes indigenous knowledge and practices such as water
management and sustainable construction techniques, is at risk due to the disruption
and displacement faced by flood affected communities. Many cultural professionals
are part of the informal economy or practice their craft as a ‘second job’, and many female cultural professionals worked out of their own homes. With the loss of their homes
and their equipment, they have lost their means of earning a living. Damaged heritage
5 Other risks identified included increased risks of attack when travelling, violence in the home, trafficking, sexual
violence and abuse, lack of information pertaining to GBV, and increase in child marriages. Reportedly limited consultations with women and girls on their safety and wellbeing needs at the onset of the flood response were notend as
potentially contributing to rising GBV risks, with the report making recommendations for the humanitarian response
to meet the specific needs of women and girls and provide them with adequate/safe access to services. This vulnerability extends to other marginalized groups, such as people living with disabilities, youth, IDP and refugees, andtransgender individuals.

82

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistansites, loss of income, displacement and possible migration to urban centers or abroad
will continue to result in heavy, often irreparable losses to the tangible and intangible
cultural heritage of Pakistan, and have a negative impact on sustainability and inclusion
goals. Investments in Social Sustainability, Inclusion and Gender play a key role in mitigating and managing existing social tensions and promoting social cohesion.

Strategic Investment Priorities and Key Policy and Operational
Reforms, Programs, Institutional Needsa) Priorities for Policy and Operational Reforms
Short-Term• Provide emergency protection services and investment in behavioral
change interventions;• Strengthen the government’s capacity to respond to protection needs
by establishing and expanding coverage of critical protection services.
Strengthen GBV and child protection referrals from disaster relief
organizations and provincial/district-level protection services.
• Roll-out emergency psycho-social support as an essential service,
particularly for vulnerable groups;• Support community-based early recovery and disaster preparedness
efforts. Improve early recovery efforts by adopting community driven
development approaches focused on livelihood restoration which
can use the workfare social protection benefits, livelihood restoration
grants, in particular to women;• Restore damaged sites. Conduct a detailed needs assessment
by engaging community members in data gathering, for funds
mobilization.
• Provide urgent stabilization measures for the most fragile sites,
following globally accepted best practices;• Provide equipment, material and trained professionals to facilitateconservation work.
Medium-Term• Establish missing facilities described above in all affected districts,
allowing for more robust protection that includes all of the populationgroups more vulnerable to violence, trafficking and exploitation;• Develop and strengthen community disaster management systems
drawing on community service delivery platforms.

83

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)Long-Term• Incorporate indigenous water management systems, building
techniques, and related knowledge into mainstream practices for
improved climate resilience;• Improve flood protection mechanisms for heritage sites in vulnerable
areas;• Stricter enforcement of construction, conservation, and protection
regulations for heritage sites and surrounding areas;• Collect data on culture and creative industries and creating/updating
national inventories for tangible and intangible cultural heritage;• Strengthen provincial and national cultural policies and establish
mechanisms for effective implementation.

b) Priorities for Investments/Programs to Support Recovery,
Rehabilitation and Reconstruction
Short-Term• Support disaggregated data collection, and coordination with
community efforts;• Strengthen sex, age, and disability, ongoing needs assessments (bothquantitative and qualitative), communications, M&E in affecteddistricts, and improve representation of excluded groups to identify
and address their vulnerabilities;• Problems already identified as data gaps should spur support to those
who have lost identity cards, have mobility problems (use current
mobile units already running to address this issue), and raise awarenessat community level of outreach actions;• Invest in behavioral change, and community sensitization interventions
to address GBV stigma and discrimination against vulnerable groups.
• Continue unconditional, multi-purpose, needs-based emergency cashtransfers for a duration of 12 months for those eligible in the first roundand then through dynamic and updated PMT eligibility that considers
asset loss and debt;• Continue conditional cash transfers for education, irrespective of theavailability of schools, to keep families engaged in the program;• Federal and provincial governments should coordinate to ensurethat the pregnant woman and child-linked conditional cash transfer
program (BISP’s Nashonuma) is extended to all of the flood-affecteddistricts;

84

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan• Lost identification documents should be addressed as well as birth
registrations to ensure that the most vulnerable have access to thesebenefits and connected services;• A workfare program would help affected communities identify andutilize local human resources. Efforts to engage women in this paid
work should be made with cultural sensitivity;• Provide ready-to-eat food or freshly cooked meals to schoolchildren in
the most vulnerable and marginalized areas;• Build capacity of heritage management staff for urgent stabilization
measures and emergency preparedness.
Medium to Long-Term• Create a single window service as a viable model to bring all social
protection programs under one delivery mechanism and use social
protection as leverage for social inclusion;• Enhance access to innovative employment services (e.g., career
counselling, coaching, internships, and training) in cooperation withlocal institutions (e.g., local labor offices and training centers);• Enhance alignment, synergy and coordination between federal andprovincial social protections to strengthen complementarity and avoid
duplications;• Set up a strong GRM with a portal for emergency management andmitigation within BISP;• Provide specific top-ups on social assistance to cover additional costs,
including those related to disabilities;• Provide capacity strengthening to federal and provincial governments
to improve safety net design and delivery, including through hybrid
modalities, inclusive targeting, enhanced food security and nutrition
monitoring and data analysis;• Provide technical support to the government for the development
and implementation of a national school meals program and policy
frameworks that ensure children receive nutritionally adequate daily
meals in targeted communities;• Bolster community engagement in reconstruction and rebuilding
efforts through skill building and training. Community-led development
should be a priority;• Establish early warning systems, protective mechanisms, andevacuation plans for vulnerable sites and movable heritage;85

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)• Streamline administrative structures to improve management andprotection of heritage sites;• Revise or introduce community level disaster preparedness with social
inclusion and gender equality sensitivity;• Integrate this capacity building into the regular training of all aid
organizations, including government aid workers and organizations
serving the country’s disabled population;• Make gender and disability responsive budgeting a requirement for all
priority plans and budgets;• Invest in behavioral change, and community sensitization interventions
to address GBV stigma and discrimination against vulnerable groups.

c) Considerations for Institutional Effectiveness and Better “Waysof Working”• In Social Sustainability, support early recovery, needs identification
and a community disaster management system through community-driven development. The latter will address gaps in the early warning
system tailored to the needs of women, people with disabilities, theelderly and any other group that has been identified as vulnerable;• For Culture and Heritage, a key long-term priority will be to strengthen
provincial and national cultural policies as well as establishingmechanisms for effective implementation of these policies. Bothcurrent and ongoing or planned reforms in planning and budgeting
tools will be key in achieving this priority.

Table 7. Summary of Damage, Loss, and Needs

from the PDNA

86

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

87

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Strategic Recovery Objective 4: Restore and Improve Basic
Services and Physical Infrastructure in a Resilient andSustainable Manner
Sectors: Transport and Communication; Water Resources,
Irrigation, and Flood Protection; Housing; Energy; Education;
Health and Nutrition; and WASH, Municipal Services, andCommunity Infrastructure
Rationale and Overview
The expansive and high intensity flood affected the lives and livelihood of millions ofpeople across the country, damaged key infrastructure, destroyed homes, interrupted
basic services, and slowed economic development. In monetary terms, US$10.9 billion(62 percent of total damage of US$14.9 billion) in damages and US$1.3 billion (8 percent of total loss of US$15.2 billion) was related-infrastructure and the services sectors,
the very backbone of the nation (see figure below). Prolonged interruption in irrigation
services and blockage of the drainage network may further extend agriculture losses
which were already the floods’ highest losses at US$7.6 billion (50 percent of the totalloss). Disruption of roads and rail networks and their associated supply chains were amajor component of loss incurred by commerce and industry at US$3.5 billion (23 percent of the total loss). Damaged infrastructure will continue to inflate the loss due to its
direct linkages with social services and productive sectors, if it is not restored in a timely
manner.1 Full restoration of damaged infrastructure is critical in the short to medium
term to restore lives, livelihoods and economic activity, which should be a government
priority in the recovery phase.

Photo: © UNICEF/Zaidi

1 A time base of six month was assumed to restore the essential services and loss estimation.

88

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Figure 8. Damage and Loss to Infrastructure
and the Services Sectors

Damage and loss to infrastructure and the services sectors

SRO4 focuses on the restoration of basic social services for the affected communities
and resilient infrastructure rehabilitation and reconstruction, supported by strengthening human capital, institutions, and policies to better respond to future disasters. Ensuring the mandated institutions can lead the resilient recovery process will be critical.
Effective infrastructure restoration is critical to: (i) provide shelter to the people whohave lost their homes in the flood, and help reestablish their lives; (ii) ensure provisionof agriculture livelihoods and food security for rural poor by restoring irrigation services; (iii) provide access and energy for markets, trade and industries to restore lost
non-farm livelihoods, and (iv) reinstate health, water education facilities for wellbeing,
growth and health of the affected population. The women and children who are disproportionally impacted by the floods will benefit the most from restored houses andaccess to resilient water, health and education facilities. The restoration program will
use a people-centered approach, build on ongoing initiatives, introduce innovations toincrease effectiveness and ensure quick gain.

Sector Context
SRO4 broadly encompasses seven key sectors that have suffered the highest infrastructure damages. These seven sectors are mutually interdependent, and directly and indirectly contribute to achieving all of the 4RF’s SROs (see Table 1). The infrastructure andservices sectors are key contributors to the country’s socio-economic development.
The infrastructure sector, including transport, energy, housing, and water resources, isintegral to growth in production, trade, industries and commerce. Similarly, social sectors including education, WASH, community infrastructure and health, are essential
basic services necessary to sustain and maintain the quality of life and wellbeing of
populations. These social sectors are in turn dependent on adequate access to services,energy, and housing.

89

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Transport and Communication: Pakistan’s transport sector contributes more than 13%
of GDP1 and 5.4% of total jobs. Approximately 94% of the country’s freight is moved byroad. About 263,000 kilometers of road infrastructure, including 14,500 kilometers ofnational highways and motorways, serve as the means of communication in the country. The road network is also essential for connectivity for all other sectors including
health, education, housing, agriculture and trade, and related jobs creation. The 2022
flood damaged approximately 8,330 kilometers of roads (about 3.2 percent of in-service roads) and 3,127 kilometers of railway track (around 40 percent of in-service railway). The damage to the telecommunications infrastructure includes damage to fiber
optic transmission lines, feeder cables, and in some cases, transmission towers. Disruption of road networks in the calamity-hit districts has disrupted health and education
services, curtailed access to farms and markets and related trade opportunities due toincreased transport costs. The damage to the sector was estimated at US$3.3 billion
and recovery cost at US$5 billion. Both temporary and permanent rehabilitation of thetransport network will improve access to social services, housing, trade and agriculture,in the short term, and provide non-farm employment and a boost to construction-related businesses in the short to medium term until other on-and off-farm opportunities are fully restored.
Water Resources, Irrigation and Flood Protection: Many sectors are dependent onwater resources and natural drainage for the services they provide, including irrigatedagriculture and the food sector, urban and rural WASH, hydro-energy, industry and environment. This sector is crucial for the production of about 80% of the country’s food.
The Indus Basin Irrigation System,2 is the mainstay of the country’s water supply andprovides food security for over 225 million people. Flood-related damage to the canals,
drains, dams and dikes disrupted irrigation supplies, reducing the performance andproduction capacity of the agriculture sector. Ineffective drainage has resulted in theaccumulation of flood water, which leads to health hazards, deteriorating water quality
and land degradation. Damage to the dikes exposed significant social and economicrisk to the infrastructure they protected. Damage to the water resource and irrigation
sector alone was estimated at US$711 million, exposing the system’s vulnerability to disaster and climate risks.3 The sector recovery cost is estimated at US$782 million. The is1 The Transport, Logistics, and Communication sector includes Road transport, Pakistan Railways, Pakistan International Airlines, Port& Shipping, Communications, Electronic Media in Pakistan, Pakistan Post Office. The estimate of
13% is an estimate based on data in the Pakistan Statistical Yearbook. System
2 Indus Basin Irrigation System comprises three reservoirs, seventeen barrages, twelve inter-river link canals, andforty-five canal irrigation systems with 58,500 km of canals and over 107,000 water courses and irrigates more thanfourteen million hectares and 6,000 km of levees.
3 Ministry of Planning, Development and Special Initiatives. 2022. Post-Disaster need Assessment (PDNA 2022),
Islamabad.

90

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistansues flagged during previous disaster, including improper land use control, inadequate
planning and infrastructure, and gaps in institutional capacity and governance persist.
The National Water Policy (2018) and Flood Risk Reduction Policy (2013) set the strategic direction for flood management and regulation, but their realization on-ground is
still marginal.
Housing: The population increase from 134.8 million in 1998 to over 231 million in 2022
has increased the demand for housing. Prior to the 2022 floods, there were approximately 10.3 million housing units in the 94 flood-affected districts. The floods damaged
more than 2 million houses across the country, including 780,000 units which were completely destroyed and 1.2 million others partially damaged. The housing loss left poverty-stricken rural populations without shelter. Access to electricity, roads, WASH andsocial services are an integral part of housing, as is the need for safe disposal of debris
and access to and availability of construction materials. The PDNA estimated US$5.6
billion in damages to the housing sector and recovery needs4 US$2.8 billion based on a
one-bedroom resilient core unit of 250 square meters as a replacement cost.
Energy: Energy is a basic need and a key input across all sectors, making it a vital resource for the country’s economic development. In recent decades, energy demand5
has increased manifold due to an increase in domestic, industrial and commercial needs.
The energy demand is projected to grow by 4 – 6 percent annually through 2043, but
energy supply has not kept pace with demand. About 50 percent of energy generation
comes from publicly owned thermal, hydro and solar plants, and the remaining fromprivately owned plants, mainly thermal. The petroleum sector in Pakistan is run by mixof public and private sector entities. With depleting gas resources, Pakistan is now importing liquefied natural gas. Physical damage to the energy sector from the floods
includes an 11-kilovolt high tension line, 400-volt low tension lines, transformers, poles
and conductors, a petroleum distribution pipeline and buildings. The 2022 flooding
caused US$88 million of damage to the sector and recovery and reconstruction need isestimated at US$117 million.
Education: In 2019, it was estimated that three out of four children attending school inPakistan were unable to read by age ten.6 This reflects Pakistan’s learning poverty rate
4 Government of Pakistan. 2022. Economic survey 2022. https://www.finance.gov.pk/survey_2022.html accessed 03
December 2022.
5 Energy sector assessment. 2020. https://www.adb.org/sites/default/files/linked-documents/53165-002-ssa.pdf
6 World Bank. 2019.Pakistan Learning Poverty Brief. https://thedocs.worldbank.org/en/doc/2141015712234517270090022019/original/SASSACPKPAKLPBRIEF.pdf accessed 03 December 2022.

91

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

which was estimated at 75 percent before the COVID-19 pandemic, 16.3 percentage
points higher than the South Asia regional average. The flood affected essential education services across all 94 calamity-hit districts, impacting 17,205 public education institutions, 94,478 educators and 2.6 million enrolled students, including one million girls.
Flood-related education disruptions have further deepened learning losses, following
prolonged disruptions during the COVID-19 pandemic. These disruptions will increase
learning disparities and severely affect students of lower socioeconomic status. A slow
recovery, or absence of one, may transform this into permanent losses, with a high riskof children dropping out of school and being exposed to child labor, early marriage andvarious other forms of violence, exploitation, and abuse. The damage to the education
sector is estimated at US$559 million and recovery cost at US$918 million.
Health: Pakistan has made some positive strides in improving the health of its people,
but not all citizens have been able to benefit from this progress due to weak healthsystems, inadequate funding for health and nutrition and marked variation in thelevel of development of provinces. Only half of the population in Pakistan has accessto essential health services/universal health coverage (UHC). The UHC Index service
coverage was 49.9 in 2020. Pakistan is faced with high maternal mortality, and vector
borne and diarrheal diseases are common. The prevalence of acute malnutrition
among children in Pakistan was already significant before the floods, with a stunting
rate of over 40% and limited access to nutrition services. The flood damaged close to 13
percent of the country’s health facilities, interrupting health services from community
to secondary levels. This has disproportionally impacted the health of vulnerable groups,
such as the poor, pregnant women, and malnourished children, and increased morbidity
and mortality. Areas with disruption of transport, poor drainage and stagnant water are
particularly vulnerable, with a high risk of outbreaks of dengue fever, measles, malaria,
polio, and cholera. Improved WASH is integral to achieving better health outcomes.
Similarly, improvement in health services is directly impacted by access and adequacyof electricity in health facilities. The flood damage and recovery needs for the sector
are estimated to be US$109 million and US$188 million, respectively.
WASH, Municipal Services and Community Infrastructure: Effective WASH services
are critical for the health and well-being of citizens and for sustainable housing. WASH
services in turn depend on sustainable sources of water, drainage, housing pattern andenergy for pumping water. WASH services in Pakistan have multiple challenges, including quality, access, and sustainability. Municipal water supply is mostly intermittent andnot potable. Before the flood only 36 percent of households had access to safely man-92

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

aged water supply services and only 68 percent of the population had basic sanitation
facilities, with huge regional disparities. The inadequacy of WASH services is a consequence of weak planning, inadequate technical and financial capacities of the institutions responsible for WASH and insufficient investment. The 2022 flood damaged
more than 7,060 schemes, including 4,344 water supply and 2,716 sanitation schemes in
the public sector, requiring major repair and reconstruction. Community infrastructure,including access roads, footbridges, rural water supply and sanitation, irrigation channels and localized drainage systems, and communal facilities are poorly managed bygovernment, with no asset inventory. These works are often carried out and managed
by communities and financed through vertical programs or NGOs, thereby generating
direct employment and development of local capacities. Based on secondary data, thedamage to community infrastructure is estimated at US$56.3 million. The total damage and recovery cost for WASH, municipal services and community infrastructure were
estimated at US$575 million and US$327 million, respectively.
Strategic Investment Priorities and Key Policy/ Operational Reforms, Programs, Institutional Needsa) Priorities for Policy and Operational Reforms
Short-Term
Transport and Communication• Undertake detailed, digitized hydrological studies, incorporating the
Global Climate Models analysis, using latest Coupled Model Intercomparison Project;• Develop flood and climate resilient design standards;• Use geospatial multi-criteria analysis or analytical hierarchy process toprioritize infrastructure recovery based on accepted weightings acrosssectors and at national and provincial levels.
Water Resources and Irrigation• Develop multi-sector, integrated regional development plans for the
most-affected districts for a coordinated recovery across sectors, withguidelines for steering and monitoring the work;• Assess and revise existing policies, allowing community-based
reconstruction using co-design and a cash for work approach for small
infrastructure where possible;

93

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)• Develop guidelines for prioritization of investments for canals, drains,
dams and flood defense levees following climate and disaster riskbased criteria;• Include climate and disaster vulnerability and risk modelling data into
design standards, informing design of all water resources infrastructure
to be reconstructed.
Housing• Develop an overall policy and strategic plan for housing reconstruction,
including standards and guidelines for climate and disaster resilient
housing;• Establish or strengthen mechanisms for compliance, quality assurance
and accountability, including a GRM for housing reconstruction.
Energy• Promote end-use energy efficiency, including an awareness campaign
to promote use of energy efficient devices and to minimize waste.
Social Services (Health, Education, WASH, Municipal Services and Community Infrastructure)• Update and operationalize the Safe School Framework for resilience ineducation, making learning facilities safe and resilient against futuredisasters and climate risks;• Review and revise existing contingency plans for restoration andcontinuity of essential health services, including functional integrated
disease surveillance and response system;• Strengthen the health sector for integrated response to related social
determinants of health, including WASH, GBV, education, etc.
Medium-Term
Transport and Communication• Develop and formally adopt an asset management system;• Upgrade design and engineering standards.
Water Resources and Irrigation• Standardize procedures for implementing regional plans for recovery
from disaster in terms of oversight, monitoring, evaluation, safeguards
and financial management.

94

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Housing• Establish a land use planning system for managing rural and urban
development.
• Develop systems to strengthen land administration and tenure
security.
Energy• Make policies and develop programs with incentives for a system forsolarization of new and refurbished homes, especially in areas which
are away from the electrical grid.
Social Services (Health, Education, WASH, Municipal Services and Community Infrastructure)• Operationalize the School Safety Framework and include DRM
education into the curriculum, teaching and learning materials,
education sector plans, and teacher and education officials’ training
routines;• Undertake policy and reform initiatives using UHC as an opportunity todesign and implement integrated and comprehensive programs;• Develop and strengthen evidence-based strategies for health andnutrition emergencies, with due attention to preparedness, healthsecurity and resilience;• Develop sustained coordination mechanism to align government anddevelopment partner investments, and integrated services ensuring
health security;• Establish design standards and building codes for planning andimplementing climate resilient infrastructure to safely manage WASH
and municipal services;• Establish an appropriate regulatory framework for equitable tariffstructures, incentivizing efficiency and sustainability of operations.
Long-Term
Transport and Communication• Carry out flood susceptibility analysis every five years for the entire
infrastructure network using remote sensing/GIS, modelling andground-truthing with drones. Produce thematic hazard risk zone maps.
• Maintain the networks and allocate funding based on data-driven
asset management systems;

95

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Water Resources and Irrigation• Develop policies enhancing sustainable productivity, which managing
disaster risk and regulate water use.
Housing• Develop a system to regulate institutions dealing with housing andsettlement to ensure they have the capacity to plan, construct andmanage climate resilient housing, incorporating innovative technology
for low-cost housing.
Social Services (Health, Education, WASH, Municipal Services and Community Infrastructure)• Enact policy and regulatory frameworks to enhance the role of theprivate sector in WASH and municipal services, including incentives forinnovation and renewable energy use;
• Strengthen surveillance and response systems to detect disease
outbreaks, employ case-based surveillance and response;• Integrate surveillance and health information systems; link data to
inform plans and responses to threats and service delivery challenges,etc;• Allocate public financing for social services, including nutrition andhealth. Predictable funding will ensure resilient system building andgovernance.

b) Priorities for Investments/Programs to Support Recovery,
Rehabilitation and Reconstruction
Short-Term
Transport and Communication• Use a geospatial, multi-criteria analysis or analytical hierarchy process
to prioritize infrastructure, recovery based on accepted weightings forhealth, education, population density, industry, farms, flood risk rating,and infrastructure at the national and provincial levels;• Engage in emergency works for restoration of services and basic
connectivity and permanent repair of minor damages.
Water Resources and Irrigation• Evaluate existing structures for possible repair, rehabilitation andimprovement;• Repair all breaches in canals, drains, dams and dikes, karezes and otherwater supply channels and ponds to restore function;
96

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan• Strengthen weak sections before the onset of the 2023 monsoon
season.
Housing• Support reconstruction and rehabilitation of housing, prioritizing themost vulnerable, and supporting both homeowners and tenants torebuild;• Promote and ensure multi-hazard, climate-adapted reconstruction,
including eco- friendly indigenous materials and technologies that
communities are familiar with, supporting the community-based
settlement rehabilitation and resilience approach;• Promote access to microfinance and facilitate skills and material supply
chain development;• Support vulnerable and other segments for settlement anddocumentation of land claims and security of tenure;• Identify locations of communities exposed to recurrent hazard risks
for relocation;• Crowd in private capital into the housing sector through Development
Finance Institution (DFI)-supported market-based risk sharing facilities
with local banks and financial institutions to on-lend for affordable
housing in flood impacted areas. Promoting private investments in
new housing finance companies and supporting the developer financemarket will also be critical determinants to enhance supply of housing
in the market.
Energy• Develop design standards across geographies for energy-efficient,resilient housing and for use of energy-efficient local materials forconstruction.
Social Services (Health, Education, WASH, Municipal Services and Community Infrastructure)• Safely resume learning by prioritizing foundational learning recovery
and continuity of learning action plans to reach every child;• Assess student learning levels, prioritize teaching the fundamentals,
and increase the efficiency of instruction and catch-up learning, with
the integration of psychosocial health and wellbeing;• Focus investment and innovation on the immediate reconstruction/

97

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

•

•

•

•

rehabilitation of schools to ensure safe, inclusive and resilient education
facilities;
Deploy prefabricated health units and mobile clinics to reach theaffected communities for the provision of a comprehensive packageof essential health and nutrition services;
Leverage outreach and mobile immunization services for displaced
people; restore fixed-site vaccination services, including Expanded
Programme on Immunization (EPI) and polio centers, and provide
essential medicine, medical equipment, and supplies to the healthfacilities;
Resume integrated essential health services such as for communicableand noncommunicable diseases and reproductive health, including
family planning, maternal and child health, immunization and nutrition
services;
Repair, rehabilitate and restore WASH and municipal infrastructurecomponents and set up other temporary arrangements to ensure
immediate availability of water, sanitation, hygiene, and other municipal
services across the affected areas.

Medium-Term
Transport and Communication• Conduct detailed technical evaluations for the damaged infrastructure
in all aspects, including hydrology and hydraulics, structures, pavement,
etc., to establish real causes of failures for effective climate resilient
remedial measures;• Rehabilitation and reconstruction based on prioritization criteria.
Water Resources and Irrigation• Rehabilitate canals and drain dikes to existing design standards; nochange in design needed;• Implement the allied structure for canals, drains and dams with needed
improvements for safety, stability, performance and monitoring
purposes;• Carry out improved design for drains, dikes and dams and appurtenant
structures, which need improvements and upgrading for multi-hazard
resilience;• Implement improved design and standards in construction for thoseworks.

98

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Housing• Identify communities exposed to recurrent hazard risk for relocation;• Relocate communities from sites identified as exposed to recurrent
hazard risk.
Energy• Provide incentives to small micro-finance institutions and the private
sector to promote renewable technologies;• Social Services (Health, Education, WASH, Municipal Services andCommunity Infrastructure);• Include improvement of school environment mechanisms and the useof modern equipment, like digital boards, in the reconstruction model
to boost education quality;• Reconstruct resilient health infrastructure (buildings, equipment andlogistics) in line with updated design standards and building codes withimproved resilient capacities, including replenishment of equipment
and supplies;• Employ innovative, resilient and sustainable reconstruction to upgrade,
resize and relocate critical subcomponents to ensure facilities arelocated and upgraded to best sustain future disasters.
Long-Term
Transport and Communication• Develop an integrated hydrological modeling framework in conjunction
with transportation modeling to perform risk analysis under simulated
flood events and effectively model critical infrastructure andpreparedness measures;• Adopt a transport system level approach with built-in network
redundancy.
Water Resources and Irrigation• Construct new structures with improved design (and location, if
applicable) that ensures multi-hazard resilience, safety, reliability andperformance;• Assess the need for replacement of structures following improved
standards and specifications, and implement the same;99

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)• Social Services (Health, Education, WASH, Municipal Services andCommunity Infrastructure);• Support model for disaster resilient hospitals to foster proactive
and systemic improvements, from anticipating to managing andmonitoring organizational performance during disasters. Hospitals
must always be accessible and functioning.

c) Priorities for Institutional Effectiveness and Better “Ways ofWorking”
Short-Term
Transport and Communication• Integrate GIS developed by each national and provincial institution to
future real-time damage assessments.
Water Resources and Irrigation• Carryout needs assessment for capacity building of project offices andgovernment departments;• Assess capacity of consulting and construction industry to deliver
services and quality in flood reconstruction, and create incentives totap best resources for reconstruction.
Housing• Create provincial-level, centralized institutional arrangements forhousing reconstruction along with establishing strong coordination
mechanisms.
Social Services (Health, Education, WASH, Municipal Services and Community Infrastructure)• Strengthen parent and community involvement and coordination
across all education levels, especially around risks to learning andenrollment and early warning systems for dropouts and disruptions;• Strengthen non-formal systems to accommodate out of school
children and dropouts who cannot return to formal schools and explore
public-private and public-nonprofit partnerships to facilitate return toschooling and government school rehabilitation;• Enhance surveillance and response capacities related to outbreaks of100

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

vaccine preventable and communicable diseases;• Enhance health sector coordination at national and sub-national levels,
including with development partners, CSOs and the private sector.
Medium-Term
Transport and Communication• Establish a central technical monitoring unit to monitor progress, aswell as ensure compliance with quality control and climate-resilient
design for the repair and reconstruction of damaged infrastructure at
the national level;• Establish an integral disaster mitigation fund based on the percentage
of infrastructure in high-risk zones and the efforts required by various
agencies, including a policy for its utilization, to accelerate responsetime in future disasters;• Develop a relevant insurance industry for disaster response.
Water Resources and Irrigation• Strengthen capacity of provincial irrigation departments and floodcommissions to perform their mandated role to implement the 4RF
and longer-term national flood protection plans, including planning,
quality of design, and monitoring and performance evaluation systems.
Energy• Develop community owned demonstration solar micro-grids, fundedby the government;• Identify operational and services incentives for the private sector toencourage solar solutions, repair and maintenance, not restricted
to household power needs but for small business as well, such as
farmhouses (fish), small flour grinder (chakki), fodder cutting, etc.
Social Services (Health, Education, WASH, Municipal Services and Community Infrastructure)• Integrate teacher education and development on remedial learningand teaching at the right level for all teachers, with relevant orientation
for school heads and district officials. Collaborate with the private
sector and NGOs as needed;

101

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)• Support head teachers technically and financially in achieving remedial
learning outcomes and developing school disaster response plans.
• Ensure dedicated technical support to provinces for multi-year,
strategic education sector planning, focusing on access and learning
environments, teaching, and learning and policy priorities to continue
quality and inclusive learning at all levels;• Provide technical support for inclusive education, incorporating earlychildhood education, non-formal education, special education, andtechnical and vocational education;• Address critical health workforce shortages and capacity building to
improve service delivery, including quality of care and M&E of the flood
recovery;• Integrate disease surveillance and health information systems; link
data to inform plans and responses to threats and service delivery
challenges, etc.
• Increase system calibration to improve monitoring and management
and increase the role of local communities in the sustainable operationof these facilities;• Create appropriate incentives and institutional structures for thesustainable operation and management of WASH and municipal
infrastructure services;• Improve the interface between service providers and their clients andenhance private sector involvement.

102

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Table 9. SRO4 Priorities Matrix

103

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Note: The recovery cost of all the sectors has been kept at the level of PDNA estimates. Revisions to the recovery
cost are expected in an updated version of the 4RF planned for early next year.

104

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

ACHIEVINGSUSTAINABLE
CLIMATERESILIENCE

105

Photo: Fida Hussain/AFP via Getty Images

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)ACHIEVING SUSTAINABLE CLIMATERESILIENCE
In the last few decades, Pakistan has faced natural hazards such as flooding, earthquakes
and landslides that have escalated into humanitarian disasters, with loss of lives, homes,
and livelihood. Natural hazards in Pakistan are likely to increase as a result of climatechange and environmental degradation. More extreme weather events, coupled withpoor preparedness in communities, can only increase the risks of humanitarian disasters.
A community’s ability to prepare for and cope with natural hazards can prevent disasters
and save lives. But an unprepared community is unable to cope, resulting in massive lossof life and the undermining of decades of social and economic progress. In order tocope with natural hazards a paradigm shift is required from a reactive to a proactivemode of disaster management.
This new approach to deal with disasters would require a long-term resilient
reconstruction plan after reviewing the existing infrastructure of the country. This
plan should also offer space for community-based initiatives, which see communities/ victims, as part of solution not a problem. Recognizing the increased scale of climate
induced natural disasters affecting Pakistan, the Ministry of Planning and Development
and Special Initiatives has prepared a long-term Resilience framework which provides
the institutional structure across federal & provincial governments to avoid extensive
loss and damage during natural hazards, and international appeals time and again forsupport. The plan is intended to help guide long-term recovery to increase the state’s
capacity to withstand future shocks.
Pakistan’s extreme vulnerability to accelerated climate induced events has exposed
it to a multitude of risks. These range from unprecedented heat waves, forest fires,
glacial lake outburst floods (GLOF events), and water scarcity alternating with torrential
monsoon flooding, growing desertification, droughts, and rising sea levels. All thesechanges have made Pakistan the ground zero of climate catastrophe where life onearth, water, and under-water has been impacted at exponential levels.
Damage to agricultural productivity, public and private infrastructure, livelihoods, humanhealth, and economic stability has led to irreversible impacts including massive internal
displacements as well as GDP losses. Global warming has pushed weather conditions
to their extremities, which can be observed in Pakistan’s increased susceptibility fromflooding to droughts.

106

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Rationale and Overview
The recent floods and past natural calamities combined with the country’s very diverse
topography has exposed the society to sever natural shocks transpired in the forms of
Hill Torrents, GLOF, Drought, Heatwaves and Earthquakes. Specifically, the 2022 floods
have been unique in two key aspects: historic rain-fed high flows in some areas and,prolonged flooding in others. Given the above, the need arises for disaster resilience
framework to address all kind of disturbances even beyond PDNA.
Disaster resilience is the ability of individuals, communities and states and their
institutions to absorb and recover from shocks, whilst positively adapting andtransforming their structures and means for living in the face of long-term changes
and uncertainty. To meet this objective, the capacity of our system and society arebeing brought to the acceptable level of functioning. Therefore, we are focusing on
Build-back better with the core elements given below:

Table 1: Core Elements of Long-term 4RF

Key Objectives
The objectives for the long-term resilient reconstruction are to build the damaged andnew strategic infrastructure in such a way that it reduces disaster risk and strengthens
the institutional and stakeholder capacity to withstand climate induced shocks.

Sector Context
Irrigation and Water Resources: Pakistan manages floods through both structural andnon-structural measures. Structural measures include construction of dams, dikes, levees

107

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

and other structures while non-structural measures include forecasting, and regulating
construction in the flood plains. Damage to irrigation and flood infrastructure primarily
happened because of the following factors:•

Sizeable part of the flood protection infrastructure could not cope with thehighest flood flows;•Absence of flood protection infrastructure;•

Inadequate and outdated drainage structures and systems;•

Use of existing drains for discharge of effluents in water bodies;•

Absence of early warning systems in catchment areas;•

Construction in the flood plains - absence of flood plain Acts or weak enforcement
where present;•

Weak enforcement of regulations regarding water abstraction and treatmentof wastewater in the country.

Transport and Communications: Most damage in transport and communications
occurred due to design issues. In most places roads and bridges were not designed
to cater for prolonged and high flows. The high-speed water-flow eroded riverbanks
and bridges, widened rivers that now require longer bridges, and caused landslides
that washed away sections of roads now requiring realignment. In the plains of Punjab,
Sindh and Balochistan, a number of embankments were breached, causing overflow
of rivers that inundated vast areas and submerged the road network. The damage toroads has been caused by exposure to high velocity of flood water and inundation.
In some cases, water flowed over the road causing severe and long-term damage.
Some road sections were washed away by water and in other areas road sections werebreached to prevent accumulation of water. Furthermore, given the nature of thetransport infrastructure, some damage may still manifest itself at a later date, e.g.,further landslides in mountainous areas, sink holes as the water recedes and settlingof embankments. Similar to roads, the damage to railway lines involved washing away
or erosion of embankments, inundation, and landslides. Railway bridges and othersupporting structures were severely damaged. Along the railway lines, many stations
also got damaged. In telecommunication, major damage to the telecommunication
infrastructure involved severing of the optical fiber transmission lines at a numberof locations, damage to equipment and feeder cables due to floodwater ponding in
exchanges, and in some cases damage to transmission towers and equipment.

108

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Strategic Investment Priorities and Key Policy and Operational
Reforms, Institutional Needs
Priorities for Policy Reform
In order to enable people and institutions to cope with the highest flood levels andenvironmental hazards, a number of policy actions are being taken. Proposed policy
actions are as follows:

Table 2: Proposed policy actions

Protection1

1 See National Flood Protection Plan –IV for details

109

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Priorities for Investment/ Programs
Irrigation and Water Resources
Medium-Term
Review of the existing flood management strategy so as to (i) enhance the absorptive
capacity of the catchments to reduce rainfall run-off, (ii) build additional reservoirs toabsorb flood peaks, (iii) improving flood regulation through diversions, (iv) enhance
the safe flood disposal capacities of the existing barrages and river training works, (v)adopt a “living with the floods” approach for the riverine areas in Punjab and Sindh, and(vi) improve and expand flood forecasting and early warning systems.
Updation of National Flood Protection Plan IV (NFPP-IV). Key parts of the Plan which
ensure resilience are as follows:

110•

Major reservoirs to be constructed;•

Existing reservoirs SOPs (revised in 2015 by FFC) to be implemented;

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan•

Rehabilitation / enhancement of flood passing capacity of barrages and bridges;•

Adequate conveyance capacity within river and urban channels to be restored;•

Construction of small dams in provinces;•

Flood Early Warning System to be upgraded;•

Up gradation of gauging networks;•

Strengthening and up gradation of existing flood protection works;•

Comprehensive studies of existing breaching sections;•

Formulate and implement watershed policy;•

River act for river floodplains to be implemented;•

Institutional reforms – capacity building of FFC, NDMA, PIDs, PDMAs and otherrelated department;•

Feasibility of Aral tail regulator on Manchar Lake along with 4 km of escape drain.

Implementation of RBOD-II. It will provide the following benefits:•

Improve livelihood of local fishermen;•

Save ecology of Manchar lake;•

Reduce salinity of land of Sindh and Baluchistan and make it useful for agriculture;•

Minimize the flooding and its effects;•

Completion of Nai Gaj Dam being constructed in Dadu district to reduce floodsin Sindh province;•

Construction of 53 dams in Sindh under Sindh Climate Resilient Projects will
support floods mitigation and reduction;•

Chashma Right Bank Canal (CRBC) modernization and up gradation;•

Completion of Feasibility on enhancing capacity of Hub Dam;•

Feasibility study and detailed design/Construction of feasible dam on Swat
River in Kalam or Upstream;•

Construction of significantly damaged infrastructure and building-back-safer
measures against flash floods, i.e. floods protection and river training works, forsettlements and urban areas in KP and the northern regions and for increasing
the freeboard of some flood protections works in Sindh;•De-silting of Right Bank Outfall Drain (RBOD-1 and 3), Left Bank Outfall Drain(LBOD) and remaining canals is required before start of next monsoon season.

111

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)Long-Term•

Construction of Naulong Dam ( to save JhalMagsi from flooding in future);•

Feasibility on enhancing capacity of Hub Dam to be completed and main
project started;•

Construction of Murunj Dam on Kaha Hill Torrent in Rajanpur ( to mitigate flows
in the torrent);•

Construction of feasible dams on DG Khan Hill Torrents;•

Construction of Tank Zam Dam on Tank Zam in Tank;•

Construction of DarabanZam Dam on DarabanZam in D.I.Khan;•

Construction of feasible dam on Swat River in Kalam or Upstream;•

Construction of Burj Aziz, Babar Kach and Halak Dams for provision of water toQuetta.

Transport and Communications
Medium-Term•

Rehabilitation of ML-2 Kotri-Dadu-Habibkot-Jacobabad-Kot Addu;•

Review design parameters for highways and runways.

Long-Term•

Rehabilitation and up gradation of ML -1 ;•Rehabilitate and reconstruct of N-55 (Indus Highway) and N-5 as per resilient
design which are the main arteries of the country;•

Restoration of damaged transport and communication by raising profiles ofembankments, increasing the length of bridges on main highways and provincial
roads and adding more structures including cross-drainage structures andprotective works.

The Living Indus Initiative
Pakistan is listed amongst the top 10 most venerable countries to the impact of climatechange. As a country the onslaught of extreme climate events has been gradual and112

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

incessant since the last two decades. In order to tackle the brunt of extreme events,
Pakistan as a state has been mulling to develop resilience vis-à-vis climate events andhas made efforts to develop a policy and implementation strategy in this area. As asequel to this effort, M/O Climate Change has formulated a resilience plan titled “The
Living Indus Initiative” containing multifarious interventions to enhance our resilienceand adaptation to climate.
Some of these interventions are in perfect consonance with the 4RF strategy that
Pakistan has developed in collaboration with our global development partners. These
interventions can sink in and be dovetailed within the long-term sustainable climate
resilience program.
“The Living Indus Initiative” will form a part of our ongoing efforts and mobilization forclimate resilience.

Sustainable Disaster Management Approaches
1.

Build a national high-resolution comprehensive database containing all elementsof space-air-ground hydrometeorology and hydraulic data to realize real-timeand accurate sharing of all kinds of forecasting and monitoring information;

2. Development of a rainstorm flood forecasting and early warning modelaccording to hydrological zoning;
3. Gradual implementation of unified management of flood control regulation
throughout the entire Indus River Basin;
4. Formulation of an authoritative and binding flood prevention plan for the Indus
River Basin by the Federal Government. The plan must serve as an importantbasis for implementing flood control decision-making and disaster relief byflood control headquarters at all levels.
5. Formulation of an authoritative and binding flood control regulation scheme
for the Indus River Basin by the Federal Government.
6. For the areas downstream of the upper reaches of the Indus River, safety
platforms should be built near densely populated residential areas as temporary
flood shelters in case of extreme rainstorm flood.
7.

In the post-disaster reconstruction of government management facilities,
public service facilities and schools, flood resistant buildings with more than
two floors should be built as disaster shelters or frontline command posts fordisaster prevention and relief.

113

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

8. Build a specialized monitoring and early warning platform exclusively for flash
floods and hill torrents, develop a series of rainstorm and flood analysis models
for small watersheds, and determine a technical pattern to realize forecastingand early warning using short term forecasting, now casting and real time rainfall
monitoring data.
9. Establishment of transmission mechanism by upgrading existing informationtransmission channels to issue early flash flood and hill torrents warning
information, configure community early warning facilities and equipment, andsend early warning information directly to residents and responsible person in
charge of community’s flood disaster prevention.
10. Formulate prearranged plans for flash flood and hill torrent disaster prevention
at country, township and village levels in hilly areas and to enhance local people
awareness of disaster prevention and emergency evacuation capabilities.
11. Study the forecasting technology of cryosphere melt, glacier melt and glaciallake outbursts and implement that technology.
12. To meet the multi-objective needs of flood control, power generation,
irrigation, water supply and drainage in the Indus River Basin, on the basis of
the existing layout of rivers, connecting channels, irrigation canals and drainage
canals, a water network engineering system planning for the Indus River Systemshall be formulated to realize the synergetic integration of the flood control
system, irrigation system and drainage system in the basin and regions, and thebalanced allocation of water resources in space, and to promote the effective
utilization of flood water resources by constructing pivotal projects and water
system connection projects.
13. The proposed water network engineering system to also include option of
constructing new irrigation canals to convey water into the irrigated areas,
lowlands or newly established economic development areas, and developing
new flood diversion channels and drainage canals in the plains on both banks of
the Indus River.
14. Establishment of flood impact assessment system, in which roads, culverts, andbridges across rivers need to meet the requirements of flood discharge capacityof the river, and those that do not meet the requirements should be rebuilt or
upgraded.

114

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

15. Develop and utilize remote sensing image recognition technology to support
the construction management of illegal or disorderly developments in rivers.
16. Carry out dredging in key river reaches, construct river regime control anddeflection projects such as groins and bank revetments to stabilize the river
channels, narrow the migration range of main channel, improve the boundary
conditions of the river channel and the flow pattern etc.
17. Implement integrated river basin management and soil and water conservation
projects in small watersheds of the upper reaches of mainstream rivers andmajor tributaries of the Indus River to control or reduce slope runoff and water
loss and soil erosion, reduce the disaster risks of flash and hill torrent floods anddebris flows, reduce reservoir siltation, and reduce sediment transport on theriver channel, to ultimately stabilize the river channel and alleviate the flood
control pressure in the middle and lower river reaches. Implementation of forestand grass restoration projects in ecologically fragile areas, strengthening grazing
management, construction of check dams, alteration of sloping farmland or
terrace farming in mountainous areas.
18. Qualitative and quantitative analysis of the impact of future snow-melting
floods and glacial lake outburst, the establishment of service platform forclimate change monitoring, prediction and impact analysis, and the gradualformation of normal service capabilities to support monitoring of glacial lakes,
landslide dammed lakes in northern mountainous areas, early warning of GLOF
risks.
19. In order to augment the capacity to respond to rescue and relief operations ofcivil institutions, a fleet of six helicopters is also recommended to be procured.

Summary of Needs and Priority Costs
The short-term post disaster period has been divided into the following stages:•

Mobilization: Mobilization arrangements for relief purposes;•

Rescue: Deployment of troops, district administration personnel and evacuationof affected people;•

Relief: Provision of emergency shelters, financial assistance to households for
immediate needs; provision of filtered water and non-food items;•

Reconnecting: Restoration of disconnected road and rail networks, power, watersupply and telecommunications;•

Recovery.

115

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

These stages will be provided for within the USD 16.3 billion PDNA needs assessment.
Resilience will be addressed mostly in the rehabilitation and reconstruction stage.
Therefore, some part of this funding will be available for resilience interventions.

Long-term interventions will come through multilateral and bilateral programs andnational and provincial development projects.

116Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

The proposal for sources of funding is: local financing - 50% (30% PSDP/ADP, 15% PPP
and 5% CSOs); multilateral, bilateral partners and green financing - 50%. The gap identifed is 8.15 billion USD.
The summary of Interventions (projects) for long-term resilience is given as under:

117

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)118

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

INPUT FROMPROVINCES

119
Photo: Daniel Berehulak

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

INPUT FROM PROVINCES
Sindh
I. Conceptualization of Strategic Framework: Core Pillars
Before delving into the specifics of sectoral prioritization of ‘Sindh Floods Response:
Strategic Framework’, it is imperative to conceptualize the strategy and its contours.
On an immediate basis, ‘Dewatering’ is to be prioritized to expeditiously dispose of
the excess floodwater. The Strategy will prioritize critical intervention areas to address
systemic issues plaguing the province, especially concerning disasters. Simply put, setting
unrealistic goals for recovery is ‘counter-intuitive’ without addressing the longstanding
issues of the drainage systems. Public investments will again be jeopardized if theinefficiencies of the drainage network continue.
The four pillars of the Strategic Framework are centered on:•

Rectifying the Systemic Issues;•

People-Centered Approach;•

Building Upon the Existing Models;•

Aligning Existing Budgetary Framework with Resource Commitments.

The first pillar of ‘rectifying the systemic issues’ is to prioritize the longstanding
problems that have plagued the province. The core issue that has come to the forefront
is the persistent problems with the drainage system that significantly exacerbated theimpact of the recent floods. The recurrent delays in rectifying the drainage problems
and completion of drainage networks point to the broader systemic issues pertaining
to misplaced priorities in the public sector development framework.
The second pillar of ‘People-Centered Approach’ is to prioritize the human impact offloods that have directly disrupted the lives of more than 14.5 million in Sindh. The focus
on quantifying and monetizing damages and losses must not underplay the fact thatthe floods have affected every conceivable facet of lives for the affected segments.
The adverse impact has disproportionately affected the vulnerable groups, like women120

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

and children. The significant impact has permeated across sectors, like health andeducation, where daunting challenges of reducing out-of-school children, poor learning
outcomes, and immunization & nutrition outcomes of children is already a challenge.
The mental toll and trauma of losing livelihood and loved ones require an empathetic,
inclusive, and holistic approach to recovery and rehabilitation. The meta-narrative must
not shift from rescue & relief towards rehabilitation yet as there are significant relief
efforts still needed to address humanitarian needs.
The third pillar of ‘Building upon the Existing Models’ is to leverage the existing models
to address Sindh’s recovery plan and not necessarily reinvent the wheel. The plans forflood management that were conceived in the aftermath of 2010 floods may still be
relevant. Similarly, the ‘Village Rehabilitation Program’ under the ‘People’s Poverty
Reduction Program’ and concepts of ‘cluster-based growth nodes’ and ‘secondary cities
development’ may offer useful lessons for viewing the reconstruction and rehabilitationfrom a ‘meso-level’ perspective to make truly resilient communities.
The fourth pillar of ‘Aligning Existing Budgetary Framework with Resource Commitments’
entails that despite the resource constraints, there is significant space available to review
and refine the existing development portfolio and realign operational allocations to thesectors which will contribute towards human development and economic recovery.

II. Sectoral Prioritization
Rather than ‘diluting’ the strategy by spreading the focus upon superfluous sectors, thestrategic framework will focus on the following thematic areas:•

Rectifying the Drainage Systems (including Irrigation);•

Housing and Community Facilities;•

Livelihood;•

Communications (Roads Infrastructure);•

Health;•Education;•

Human Impact (Poverty, Food Security, Psycho-Social impact).

121

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Leveraging ‘Public-Private Partnerships’ is also a priority area of the government toharness effective sustainable arrangements across sectors for sustainable and efficient
flood-related responsiveness.

Rectifying the Drainage System (including Irrigation)
Restoration of drainage and irrigation infrastructure must be prioritized in the shortterm. However, medium and long-term planning must embed the rectification oflongstanding issues with the province’s drainage systems.
A well-designed and integrated drainage system is a prerequisite to properly channeland discharge the excess water into the sea. Over time, the natural waterways of theIndus Basin are being choked with the added irrigation infrastructure obstructing thenatural flood routes. Clearing the encroachments on the natural waterways must be
coupled with strengthening embankments and designing & enforcing regulations
pertaining to flood plains. It is also imperative to overhaul the surface drainage including
the expeditious completion of the Right Bank Outfall Drain (RBOD). Rehabilitation of
the existing drainage infrastructure of the Left Bank Outfall Drain (LBOD) should also
be proactively pursued along with the augmentation of its drainage area. It must be
acknowledged that the recent torrential rains were unprecedented, but the situation
was exacerbated due to the flaws in the drainage systems that cannot be put on the backburner anymore. Without an integrated water drainage system in Sindh, the province
will remain at risk and vulnerable to flood-related disasters. Institutional strengtheningof the Irrigation Department (including SIDA) and PDMA must also be prioritized.

Housing and Community Facilities
The housing strategy must be pursued in a way that paves the way for ‘climate-resilience’to withstand the impact of recurring floods. The ‘level’ of planning needs to be directed
at the community and village-level. Direct cash transfers to individuals for rebuilding
damaged houses entail that the houses remain vulnerable to disasters. Unless a‘meso-level’ perspective is adopted for the reconstruction of houses, as opposedto the ‘micro-level’ perspective, the essence of climate-resilient housing cannot be
achieved. The climate change-resilient rural housing and allied infrastructure should beundertaken through community-engagement by redesigning villages. Reconstruction
and rehabilitation of partially and fully damaged houses should be pursued with alliedfacilities inside the house i.e., latrine, kitchen, handpump, and solar system, etc. The shared

122

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

amenities like proper sewerage system through covered drains should end in disposal
stations for the treatment of wastewater based on gravity. Raised street pavements(brick pavements or tuff-pavers) should be adopted to withstand inundation. The
overarching idea for climate-resilient houses hinges upon creating climate-resilient
communities and villages. The ‘Village Rehabilitation Program’ component of the‘People’s Poverty Reduction Program’ offers a useful precedence and benchmark foremulation.

Livelihood
Restoration of livelihood is important from an economic standpoint as well as fromthe food security perspective. Although the provision of fertilizers, wheat seeds, andoilseeds is important as an immediate response, it is imperative to pivot toward climatesmart agriculture. The concept of climate-smart agriculture encompasses the conceptsof ‘production efficiency, including improvements in climate adaptive technologies,
appropriate cropping patterns, feeding strategies, animal health, breeding, manure &waste management, water-use efficiency, and other innovative practices. Augmenting
agricultural productivity is essential from the ‘food-security’ perspective also. There issignificant potential for revitalizing on-farm and off-farm economic activities in Sindh.
Small growers, small farmers, and micro-entrepreneurs need to be incentivized to startbusinesses, improve their productive capacity and generate livelihood opportunities
for the downtrodden.
Green investments also need to be fostered to mitigate the effects of climate change.
The ILO estimates that “100 million jobs can be created by 2030 by ensuring a green
transition that fully takes into account its social dimensions.” Being the fifth mostpopulous country in the world, Pakistan can leverage significant benefits with increased
demand for green jobs. This may include afforestation on the extended banks of theIndus River, hilly areas, plantation of mangroves in deltaic areas, and urban afforestation.
Community members need to be effectively engaged and compensated for theplantation and protection of plants, along with other rebuilding and reconstruction
projects. ‘Circular economy’ approach, like recycling units at the Union- Council level,
can yield amplified benefits for the economy and environment.

123

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Communications (Roads Infrastructure)
The short-term measure of the government is to rehabilitate the damaged provincial
highways and internal roads infrastructure. However, medium to long-term measures
must be oriented toward climate-resilient roads infrastructure with comprehensive
protection measures.
The adaptation of a particular method or combination of different road construction
methods is quite site-specific. Adequate field investigation, flood water hydraulics
calculation, soil study, and so on should be carried out by competent technical experts;
likewise, suitable protection measures may also have to be chosen. The protection
measures so chosen should be technically sound, locally feasible, economically viable,
and environment-friendly. Protection measures may include flexible pavement,
embankment protection, floodways, or causeways. Investment in climate-resilient
roads removes the need to spend more money on the frequent maintenance andreconstruction of damaged roads. It helps in the better distribution of supplies andrelief materials during and after natural disasters and the quick restoration of normal
service.

HealthThe short-term measure of the government is to rehabilitate the damaged infrastructure
to restore critical services. However, medium to long-term measures must be oriented
toward climate-resilience healthcare infrastructure along with streamlined emergency
preparedness and response mechanisms coupled with contingency plans.
In the medium to long term, investment in climate-resilient health infrastructure
must be prioritized. The preparation of healthcare response systems must also be
mainstreamed and prioritized along with updated health information systems for a
proactive response. Human and financial resources need to be augmented to effectively
deal with disasters and improve the coverage of emergency services. The contingency
plans must be prepared in order to deal with anticipated recurring disasters owing
to climate change. Effective Disaster Risk Reduction and Management needs to beincorporated in the health sector plan/strategy. Outreach efforts for health services
need to be prioritized with a focus on immunization and nutrition-related services.
Augmentation of human resources, mobile health units, and supplies can be priority
interventions in the aftermath of floods.

124Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Education
The immediate response must be focused on the resumption of education services
to avoid any further learning losses. The medium to long-term strategy must focus on
climate-resilient education infrastructure along with the consolidation of facilities (esp.
one-room and or non-functional schools). Temporary learning facilities, virtual learning,and digital inclusion must also be prioritized, especially in the rural areas of Sindh. The
crisis must be used as an opportunity to rationalize and consolidate the education
facilities (as per international catchment population standards) for adequate climateresilient infrastructure and improved service delivery. Disaster Risk Management needs
to be incorporated into the Education Plan. The learning losses due to the flood impact
must be seen along with the prevalent problem of ‘out-of-school’ children and ‘poor
learning outcomes’ of schools in the children. The existing model of education needs tobe rethought and redesigned to impart functional literacy and vocational skills in bothpublic and private schools. Self-paced learning with a focus on transferable, vocational,
and entrepreneurial skills may yield the intended results that the prevalent education
system has failed to achieve. Skills development needs to be mainstreamed in schools
to spur socio-economic transformation. The focus of the strategy must encompass theentire spectrum of private, public, and public-private partnership schools.
The three-pronged strategy must be centered on the resumption of education
services, retention of already enrolled students, and enhancement of enrollment by
optimizing and augmenting the capacity of public schools, private schools, and schools
under public-private partnership. PPP education must be reoriented towards flexible
models for fostering entrepreneurship. Education facilities can also serve as points
for introducing health services, like immunization, deworming, and nutrition-related
interventions.

Human Impact (Poverty, Food Security, Psycho-Social impact)
While it may be tempting to quantify the impact of damages caused due to floods, it isimportant to center the narrative on the ‘human impact’. The mental trauma of losing
your loved ones, livelihood, and belongings cannot be monetized. Millions of people
that have been affected are in the need of psycho-social support services for returning
to some semblance of normalcy. The incidence of ‘Gender-Based Violence’ might beon the rise due to the mental toll of the damages due to floods.

125

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Sindh’s ‘People’s Poverty Reduction Program’ has been ongoing in the province fora decade with multi- pronged interventions like vocational training, community
investment funds, village rehabilitation, income- generating grants, low-cost housing,and other components. With a community-based model of local development, theProgram has been scaled to all the impoverished districts of Sindh. Over time, theprovincial government has built upon the cumulative learnings of the ‘People’s Poverty
Reduction Program’ (PPRP) to consolidate the programmatic efforts into a ‘Sindh
Poverty Reduction Strategy’ in 2018 to offer sustainable solutions to both urban andrural poverty. The strategy must be operationalized expeditiously in order to alleviate
the sufferings of the flood-affected population and ensure their socio-economic
empowerment. Similarly, the mental health aspect of the flood-affected populationmust not be overlooked.
A comprehensive package of psycho-social support services, including GBV-focusedinterventions, must be integrated within the existing healthcare facilities. Vulnerability
assessments can be undertaken across multiple dimensions spatially to prioritize thephase-wise rollout of initiatives and earmarking resources. The well-being of womenand children must be central to any flood-related strategic framework.

III. Leveraging Public-Private Partnerships
In the post-devolution context, Sindh has already been at the forefront of leveraging
public-private partnerships across energy, infrastructure, production, and social sectors
for improved service delivery. Sindh was the first province to enact the ‘Public-Private
Partnership’ law (i.e. Sindh PPP Act of 2010) to mainstream PPP as an instrument for
improved service delivery. The focus of the policy should be to build upon the successful
PPP models to enhance the level of private-sector partnerships and investments bysimplifying the regulatory regime.
The institutional arrangements for PPP are governed via:

126•

A high-level Public Private Partnership Policy Board, headed by the Chief Ministerof Sindh, to formulate PPP Policy based on strategic goals and implementationin the Province;•

A central PPP Unit established in the Finance Department to assist the PPP
Policy Board in formulating and implementing PPP policies;•

PPP Nodes as focal points for specific PPP projects in line departments, like the
PPP Node established in the School Education & Literacy Department.

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

As the discourse for the transition towards the green economy and climate-resilient
investments has come to the forefront, it is imperative that Sindh effectively leverages
public-private partnerships for sustainable investments. For example, the private sector
can be effectively channelized on an equity-based model for investments in the Solar
Parks to be developed by the Government. The government’s land can be utilized as
equity in a Solar Park while subsidizing service providers for providing solar systems
on newly-built houses after floods. Similarly, the market for agriculture implements
can be a fertile ground for private sector investments. For increasing productivity
and farm mechanization, a ‘machine pool’ (like tractors, bulldozers, levelers) may be
expanded with the help of public-private equity and revenue generated throughrents. The revenue can be used for the operation & maintenance of the ‘machine pool.’
Another avenue is to harness the private sector investments for business development
services for small & medium enterprises to incentivize innovative climate-adaption andmitigation solutions.

Photo: The Associated Press

127

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Balochistan
Rescue 1122 Inclusion
The absence of Rescue 1122 service in Balochistan resulted in huge losses. Therefore,
district-level Rescue 1122 setup is required in the province. The equipment and training
cost needs to be proposed in the relevant allocations.

Education
The new items may be replaced with modern IT equipment like digital boards to boost
the quality of education in the province. The reconstruction model should include
improvement of school environment mechanisms like that of private schools.
There also is an urgent need to include community-based disaster risk management
curriculum. A proper curriculum needs to be developed and incorporated into
education courses to prevent the future response to such calamities.

HealthDecision-Support Model has to be put in place for disaster resilient hospitals to foster
proactive and systemic improvements, from anticipating to managing and monitoringorganizational performance during disasters. Hospitals must always be accessible andfunctioning. They must also be able to meet sudden increases in demand, particularly
during disasters, even when the impacts of the disasters are felt by these institutions
and their staff. Disasters are abrupt, unexpected events that can cause great
destruction, injuries, and death as well as damage to assets and the environment.
Natural disasters include earthquakes, floods, hurricanes, tsunamis, super typhoons,fires, and other extreme weather events such as heat waves, storm-surge and rainbombs. Human made disasters include biological, chemical, and nuclear accident,
terrorism, and mass causality incidents.

128

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Housing
The existing towns need to be converted into modern villages. The government of
Balochistan has Urban Planning and Development Department. All the towns need
to be planned and re-evaluated on the basis of disaster risk assessment and masterplanning requirements. Modern villages will be constructred at safe places under thesupervision of the Urban Planning and Development Department to control unplanneddevelopment.

Agriculture
The laboratory tests for different agriculture seeds needs to be established to increase
per acre crops.

Photo: Daniel Berehulak

129

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Khyber Pakhtunkhwa
In Khyber Pakhtunkhwa (KP), natural resource systems exist in the midst of highpopulation density. This enhances vulnerabilities of natural systems, and in turn magnifies
loss and damage to human populations. The weather data shows that the province isincreasingly suffering from severe heatwaves as well as extraordinary rains, indicating
higher-order effects for its natural resource systems. The phenomena are downloadingclimactic effects on the mountains, rivers and rainfall patterns of the province; at thesame time, parts of the province face depleting water resources, threats to crops
and tree cover, and heightening incidences of heat waves and freak weather, in turndevastating farm yields and adversely affecting livelihoods. The watershed areas andriver basins of KP are upstream of Indus basin and their vulnerability to climate-induced
phenomena have local as well as downstream effects. Climate change has started
severely affecting age-old agriculture and livelihood patterns woven around mountains,water resources, forests and cultivated land. KP over time has established clean power
generation facilities; a particular damage sustained was to power generation in theprovince, a feature unique to the province.
In responding to climate change, the province has initiated action to: (a) evaluate
systems, institutional arrangements and community knowledge, attitude and practice
regarding climate induced events parallel to assessing loss and damages; (b) adopt
a data-driven approach to direct resources to priorities and identification of key
adaptation and mitigation opportunities; and (c) develop adaptation and mitigation
strategies for a resilient Khyber Pakhtunkhwa.
KP’s response plan takes into account the damages, and systematically seeks to organize
the governmental efforts at restoring livelihoods and public services while identifying
actions required to building back with resilience. It is an effort towards comprehensively
and robustly establishing a quantitative foundation of estimated damages to public
and private assets, as well as incipient and deleterious effects of climate change thatare creeping upon the KP’s natural resources, people, economy and society. As the plandelineates initial estimates, amounts, priorities, conditions, and targets of resource
allocations for restoring public infrastructure and compensating the flood-affected
citizens, it defines a way forward for governmental action. The province’s response
planning covers the monitoring mechanisms put in place by the Government of KP toensure transparency and accountability at all levels and ensure optimal utilization offunds as intended. Very importantly, the FRP takes stock of the governance mechanisms
and institutional scheme required to build, maintain and manage resilient structuresand systems to mitigate the effects of floods and climate change.

130

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

KP’s response comprises nine key action areas:
Rehabilitation Plan
A Phase-by-Phase Addition: To restore essential services, damages were carefully
assessed. Major damages were sustained on facilities for power generation, education
infrastructure, agriculture and public health engineering sectors. To meet these financial
needs, the provincial government carried out an extensive internal budget assessment
and intra-departmental reappropriation process, which enabled the diversion of aroundRs. 19 billion from the Annual Development Programe to restorative and rehabilitative
works. To provide immediate financing to restoration and rehabilitation works, the firstline of response has repurposed funds from within the development portfolio. Given
the sheer quantum of public rehabilitation and reconstruction work required and its
financial constraints, the provincial government is adopting a phase-wise rehabilitation,
spanning over two years. Higher priority has been accorded to restoration work on thebasis of the criticality of infrastructure. The assets shall be restored in two phases; witheach phase lasting a year. To ensure high quality implementation, multi-layered andtechnology-enabled monitoring systems have been commissioned.
Creating Climate Resilience Capacity: Reversing climate vulnerability entails morethan just reconstruction. As an effective response, the province plans for a systematic
inculcation of resilience-enhancing measures throughout KP, such that provincial
susceptibility to climate change and natural disasters is minimized. The province
is working on revamping readiness for climate emergencies in critical responding
agencies. Its actions focus on the internal adeptness of local district administrations,
local government bodies, and preparedness capacities of provincial planning andrelief bodies. Plans for the immediate future include a confluence of necessary
equipment procurement, specialised personnel training in both a priori climate change
data management and a posteriori damage management; legal mandate review
and delineation of agency roles and responsibilities in the event of a disaster; anddevelopment of overarching coordination and cooperation-enhancing mechanisms
for integrated response.
Ordering Financial Solutions – Climate Resilient Infrastructure Fund: Damages
sustained by infrastructure in recent floods highlight the need for building resilient
structures. To prevent this in an increasingly disaster-prone world, it is imperative thatthe financing of infrastructure be intertwined with climate-proofing best practices.
Therefore, KP is developing its Climate-Resilient Infrastructure Fund (CRIF) that will

131

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

be a non-banking financial institution, connecting both public and private developers
for the co-development of public and private infrastructure including development
through public-private partnerships. In addition to providing financial assistance, thefund will provide advisory services to infrastructure developers and ensure that local
engineers and contractors include climate adaptive and mitigative considerations intheir designs. CRIF will work to assign continued salience to rejigging infrastructure toresilient designs.
Responsive Data-Driven Development: KP has initiated action in public planning tocontinually explore, evaluate and incorporate future climate scenarios, projected risks
and climate-related vulnerabilities in their everyday work. This involves the successful
integration of scientific research and investigation with government planning andpolicymaking, such that insights gained from the former can bolster overall preparedness
and resilience of the latter. KP’s Data Driven Development (3D Development) approach
will substantively focus on climate change vulnerabilities and geo-specific vulnerability
indexes for tailored responses.
Building Resilient Natural Systems: Having considered immediate needs, damages
and reparations, the province situates climate change and extreme weather events
management in a broader policy framework, identifying adaptive and mitigative
measures across a range of areas critical to climate change governance and the creationof disaster resilient systems. These currently extend to (a) integrated watershed, (b) river
basin management, (c) afforestation endeavors, (d) combatting desertification andincreasing aridity, (e) systematic application of scientific and technological solutions toclimate-based challenges.
Application of Scientific and Technological Solutions: While good climate change
governance is foundational in paving the way for more resilient systems, certain
technological and scientific aids have been known to expand the scope within whichgovernments, and the median citizen, can either combat or prepare themselves forclimate change. Technological advancements will be tailored to fill institutional andsystemic preparedness gaps. This includes the development of research-based climate
resilient infrastructure; the rollout of interventions that sustain the water, energy andfood nexus; and the development of human- in-the-loop Artificial Intelligence-informed
multi- hazard warning systems. Moreover, data systems developments and integrated
platforms will inform the above-mentioned cross-sectoral resilience attempts.

132

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

Increasing Access to Flood Insurance: Natural disasters generate significant fiscal
risk and budget volatility. High damages are an unplanned demand on public funds.
The province plans to institute feasible and pursuable flood and disaster insurance
options for its citizens, including the specifics of its coverage, costing and premiumcharacteristics.
Institutions for Adaptation and Mitigation: KP has carried out an institutional analysisof the current systems, policies, programs and institutional arrangements, and identified
shortcomings and specific governance reforms needed to organize optimal climatechange governance in the province. This analysis reveals that, at present, government
agencies work in largely reactive modes and most of the departments operate infragmentation, without the benefit of information sharing and effective coordination
mechanisms. KP is establishing and strengthening an overarching, central coordination
authority, which manages interactions between the several departments working on
climate change and implementing measures for adaptation and mitigation. Under
its auspices, an annual Climate Change Adaptation Report will be submitted to theProvincial Assembly, which will relay each department’s progress on the task assigned in
the report. Given this information, the Assembly will then debate on policy complianceand make policy directions accordingly.
Public Communications and Community Engagement: State-citizen communication
is an integral part of ensuring that disaster effects can be contained and prevented.
Communications, in this regard, will be leveraged in the following ways: (i) by operating
as a medium through which the Government can educate the public on risks andpreventive measures; (ii) by providing the public with adequate notifications, warnings
and situation reports during an ongoing disaster; (iii) by supplying the public with usable
information on how to receive disaster relief; and (iv) by promoting those actions thatwill reduce the loss of lives and property in future disasters based on learning fromcurrent and past disasters.
KP has now broadened its governance responsibilities to include both post-disaster
restorative measures as well as climate resilience planning. Building on its tradition ofleading on sustainable development, the province is taking responsible actions for
mitigation and adaptation.

133

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Punjab
SRO1: Enhance Governance and Capacities of the State•

Development of mechanisms / Capacity building to access and avail international
available funding i.e. Green Climate Fund etc. for climate and disaster related
projects;•

Formalizing strategies to better utilize the concept of retro-active financing for
emergent disaster related projects so that the costs incurred through diverting
the provincial finances can be recouped through retro-active financing;•

Development of Data Clearing House and Decision Support Systems equippedwith cutting edge flood-routing and modelling modules. In addition to real-timemonitoring, there is an urgent need to develop centralized and integrated flood-routing and inundation modeling knowledge sharing and evaluation platforms
for better preparedness against future floods. Upgrade and mainstreaming of
pertinent modules already being implemented in Punjab i.e. Punjab Adaptation
to Climate Tool (PACT), Agriculture Climate Water (ACWA) Portal, Climate
Budget Tagging module etc. is also envisaged under Punjab’s Vision;•Development of modules on DRM capacity expansion programs and trainings
based on the existing coping and adaptive capacities of most vulnerable UCs
against flood, drought and earthquake risks;•Development of Early Warning System for Hill Torrents affected districts andmost vulnerable riverine floods affected districts;•

Enhancement of the organizational capacity through need-based procurementof state-of-the-art disaster management and prevention equipment for floods
and snow storms/blizzards.

SRO2: Restore Livelihoods and Economic Opportunities•

Mainstream DRR and Climate Change Adaptation (CCA) into the districts’
regular local development planning, investment programming, and budgeting
process;•

Carry out eco-system restoration projects.

SRO3: Ensure Social Inclusion and Participation•

134

Execution of flood-based canals i.e. Greater Thal Canal etc. and developmentof most suitable mechanisms for distribution of flood water in the light ofWater Apportionment Accord 1991 to avoid future predicaments and ensure
participation;

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan•

Enhancement of rescue and relief capacity of district governments to carry out
rescue and relief operations efficiently and effectively;•

Development of score cards for evidence-based prioritization of projects
envisaged under medium to long term plans for all sectors;•

Carrying detailed climate change, floods and disaster related studies to better
understand the phenomenon of climate change i.e. studies regarding “Effectsof Climate Change on Frequency of Occurrence of Riverine and Hill Torrent
Floods In Central Indus Basin ” and “Flood Forecasting /Predictive Modeling forEnabling Resilient Rehabilitation and Socio-Economic Recovery in Indus Basin”.
These studies will be carried out in collaboration with international institutes
i.e. ICIMOD Nepal to encompass international best practices in the requisite
studies.

SRO4: Restore and Improve Basic Services and PhysicalInfrastructure•

Ensuring Mainstreaming of disaster checklist promulgated by the Planning
Commission in 2004 to mainstream disaster risk resilience in development
process for ensuring integration of disaster risk reduction and climate resilience
into public sector approvals, planning, implementation, and monitoring process;•Introduction of internationally recognized resilience standards in development
initiatives;•

Implementation of interventions envisaged under National Flood Protection
Plan (NFPP) and FPSP etc.

•

Implementation of medium to long term plans of Irrigation Department
Punjab, in the calamity-hit districts of Rajanpur and DG Khan that encompass
restoration of damaged structures on hill torrents and other flood protection
infrastructures, Construction of feasible dams on hill torrents in DG Khan andRajanpur Districts, and Pachad Area Management through construction ofdispersion structures, ponds, channelization of flood water and cross drainage
structures and drainage network improvements of 13 hill torrents having
discharge over 15000 cusecs. The interventions envisaged to be implemented
for achieving these mid-terms to long-term goals include;• Construction of 4 No Dams with estimated cost of 145 billion PKR/ 649 million
USD;• Improvement in Pachad Area Management and Drainage Network of 13 Nos
hill torrents with estimated costs amounting to 169 billion PKR / 751 million
USD. Four of these projects having cost of 74 million dollars (Mithawan, Sori
Lund, Chachar and Vidore hill torrents management projects) have alreadybeen got approved by Irrigation Department;• Implementation of relevant initiatives is envisaged in Punjab’s Vision.

135

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)136

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

ANNEX: SRO
MATRICES

137

Photo: Daniel Berehulak

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)138

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

139

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)140

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

141

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)142

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

143

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

144

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

145

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)146

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

147

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)148

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

149

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)150
Photo: Daniel Berehulak

Ministry of planning,
Development andSpecial Initiatives
Government of Pakistan

151

RESILIENT RECOVERY,REHABILITATION, AND
RECONSTRUCTION
FRAMEWORKPAKISTAN (4RF)

Government of Pakistan
Ministry of Planning,
Development and Special Initiatives
Islamabad.
Ph: +92 51 9212831@PlanComPakistan
152

PlanComPakistan

pc.gov.pk