Disaster Management & Community Based Early Warning System(A Comparison between Pakistan & Japan)

Nasurullah ADRC VR-2017-B (Pakistan)

Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC
member countries.
The views expressed in the report do not necessarily reflect the views of
the ADRC. The boundaries and names shown and the designations usedon the maps in the report also do not imply official endorsement or
acceptance by the ADRC.

ABSTRACTPakistan is exposed to numerous natural and manmade disasters and the communities living inremotely located rural areas are particularly prone to the hazards of such widespread disasters butwith the help of modern technological methods of early warning system, the level of destructionof such disasters and hazards can be prevented or at least reduced. At community level, thetechnical and resource limitations often obstruct the efforts to tackle these issues effectively. The
research on Disaster Management practices and policy in Japan and Pakistan along with
Community Based Early Warning System (CBEWS) of two countries Japan provides
opportunity to adopt possible methods and measures to overcome the problem that thwart theefficacy and help in understanding the issues that come between the early warning messages thatare aim at benefiting the communities. The exposure of communities to various hazards caneventually be avoided through use of modern technology along with traditional methods. In thisreport, an attempt has been made to analyses the problem and understands the community based
early warning system in Pakistan. The purpose of this study was to assess the vulnerability andthreat in the early warning system of country. A comparative study has been carried out between
practices and mechanism of community based early warning system in Pakistan and Japan.

Key words: Capacity building, Disaster, Disaster Risk Management, Early Warning, Hazard,
Emergency Response, Mitigation Measures, Prevention Measures, Vulnerability.

iACKNOWLEDGMENT
I am thankful to Allah Almighty for all His blessings including the opportunity to become part of
ADRC research activities. I would like to express my deepest gratitude to the governments ofJapan and Pakistan for providing me this wonderful chance to learn and participate in the
Visiting Researcher Program in Japan. This program proved as a tremendous chance to study,
experience and know about Japanese Disaster Management System, especially the disastereducation and awareness activities and practices for disaster risk reduction. I am also thankful to
all those individuals and organizations who have contributed in disaster risk reduction andresilience of the societies and communities.
I am also thankful to Lieutenant General Omar Mahmood Hayat HI (M), Chairman NDMA,
Pakistan for his recommendation of my candidature for the program and Prof. Masanori Hamada,
Chairman ADRC for acceptance my nomination and sponsorship for ADRC (VR Program 2017B). I would also like to express my appreciation to Kondo -San, former Executive Director and
Mr. Suzuki-San Executive Director ADRC, my research mentors and coordinators Arakida-San
and Shiomi-San including Nakamura-san, Ueda-san, who tirelessly arranged numerous visits andfacilitated my learning and study. I am also thankful to Watanabe-San, Shiomi-San (IRP),
Kawaguchi-San, Fujinaka-San and Ikeda-San their cooperation, guidance, timely administrative
support and assistance during my stay in Japan. I am also thankful to Professor Kaneko, of Kobe
University for her scholarly approach on various policies, laws and practice issues in various
Asian countries.
I hope this report will be useful for individuals and organizations working in the field of disastermanagement and especially for the Government of Pakistan and member countries of ADRC.
The study enhanced my disaster management knowledge and experience, which would be
utilized in more proactive manner in my home country.

ii

LIST OF ACRONYMS
ADRC

Asian Disaster Reduction Center

DRM

Disaster Risk Management

DRR

Disaster Risk Reduction

CBDRM

Community Based Early Warning System

FEWS

Flood Early Warning System

GDP

Gross Domestic Product

HFA

Hyogo Framework for Action

IDNDRInternational Decade for Natural Disaster Reduction

IFI

International Financial Institutions

ISDR

International Strategy for Disaster Reduction

NDMA

National Disaster Management Authority

PDMA

Provincial Disaster Management Authority

PMD

Pakistan Metrological Department

SPSS

Statistical Package for Social Science

UN

United Nations

UNDP

United Nation Development Program

UNEP

United Nation Environmental Program

UNICEF

United Nations Children’s Fund

UNISDR

United Nations International Strategy for Disaster Reduction

WHO

World Health Organization

WMO

World Meteorological Organizationiii

TABLE OF CONTENTS
CHAPTER -1……………………………………….…………………….……….…….……..1-7
1. Introduction………………………………………………………………………….…....1-2
1.1 Background……………………………………………………………………..…........3-7
CHAPTER 2 ………………………………………………………………………………....8-13
2.

Literature Review……………………………………………………..…….................8-13

CHAPTER-3……………………………………………………………………….……..……4-17
3.
3.1
3.2
3.3

Research Methodology………………………………………………………………......14
Statement of Problem…………………………………………………………….…...….15
Objectives of Research………………………………………….…………...……….15-16
Scope of the Research…………………………………………………………....…...16-17

CHAPTER-4 ………………………………………………………………………………..18-25
4.
Effectiveness of Early Warning System for Communities…………………………...18-20
4.1 Community Based Early Warning Equipment…………………………………………..20
4.1.1 Water Level Equipment………………………………………………….………........21-22
4.1.2Rainfall Equipment……………………………………………………….…………...22-24
4.2 Flood Early Warning System………………………………………………………...24-25
CHAPTER-5…………………………………………………………………………..…..….26-47
5.
Country Profile and Disaster Issues in Pakistan…………………………….…..……26-29
5.1
Disaster Context & Risk Profile of Pakistan………………………………….....…...29-32
5.2
Disaster Management System in Pakistan………………………………………..…..32-33
5.2.1 National Disaster Management Commission (NDMC)…………………………..…..….34
5.2.2 National Disaster Management Authority (NDMA)…………………………….…...35-37
5.2.3 Provincial Disaster Management Authority (PDMA)………………….………..…...38-39
5.2.4 District Disaster Management Authority (DDMA)……………………………….….40-42
5.2.5 National Institute of Disaster Management (NIDM)………………………………....42-45
5.2.6 National / Provincial Funds for Disaster Management……………………………..……46
5.2.7 Provincial Disaster Management Funds (PDMF)……………………………………46-47
CHAPTER-6 ……………………………………………………………………………..…48-54
6.

Pakistan Disaster Management & International Obligations…………………….…..48-52

6.1 Pakistan’s Participation in International Cooperation & Commitments……….…….49-52
6.1.1 Sendai Framework for Disaster Risk Reduction (SFDRR -2015-2030)……….………...49
6.1.2 The Hyogo Framework for Action (HFA) ………………………………..….…...…49-50
6.1.3 The Global Platform for Disaster Risk Reduction (GPDRR)………………….……..50-51
6.1.4 The Red Cross Red Crescent National Societies ………………………………..…..…..51
6.1.5 The International Federation of the Red Cross…………………………….…..……..51-52
6.2

National DRR Policy Perspective……………………………………………………52-54
iv

CHAPTER-7…………………………………………………………………….…….……..55-63
7.Community Based EWS in Pakistan…………………………………………………55-59
7.1 Institutional Commitments for Community Capacity Building……………..……….60-63
7.1.1 The NDMP Perspective……………………………………………………………....60-62
7.1.2 The NIDM Perspective……………………………………………………..…….…..62-63
CHAPTER-8 …………………………………………………………………………….….64-76
8.
Disaster Context & Warning System in Japan……………………………………..…….64
8.1
Early Warning System in Japan……………………………………………………....66-76
8.2
8.2.1
8.2.2
8.2.3
8.2.4
8.2.5
8.2.6

Japan Meteorological Agency (JMA)………..………………………………….……67-69
Tsunami Early Warning………………………………………………………………69-70
Earthquake Early Warning System………………………………………………..….70-73
Flood Early Warning System……………………………………………………..….73-74
Sediment Disaster Warning System……………………………………………….….….74
Volcanic Eruptions Early Warning System…………………………………………..….75
Emergency Warning System…………………………………….………………...…….76

9.

Conclusion…………………………………………………..…………………….….77-78

10.

Recommendations……………………………………………………………………79-80

11.

References……………………………………………………………………………81-88v

CHAPTER -1
1. Introduction
The disaster impacts increase when they are not properly managed and the community is
the initial level that is immediate victimized due to the disaster impacts. During past few
years, the communities living in the rural areas of Pakistan have witnessed a number ofserious setbacks due to the devastations caused by the natural disasters. The lack ofadvanced early warning system particularly in remotely located rural areas where people
lack access to various modern facilities and technology becomes one of the major reasonsfor extraordinary destruction of resources and loss of human life. The research on Japan’sCommunity Based Early Warning System (CBEWS) and the methods that prior to
occurrence of the disasters aware people about the possible threat and the damage that
could happen due to natural disasters is highly important that exceptionally helps forrealization of the shortcomings of Early Warning System particularly pertaining to thecommunities living in the rural areas.
The CBEWS has proved highly valuable for adopting effective measures that play astrong role in improving safety of men and material. It is one of the most effective
measures for reducing negative impacts of threats and risks triggered by natural
disastrous events since, the early warning system and other mitigation interventions are acost effective way of disaster risk reduction. The Early Warning system aims at a criticalassessment and discussion of successes, failures, potentials, and requirements for theeffective use of early warning system disaster mitigation.
The advanced means of Early Warning System and the practices at the community level
in Japan are could be very helpful for Pakistan to minimize the levels of the destruction
during the disaster period. The technological equipment and the real-time measures used1

in Japan can become a guiding point to adopt and lessen the level of losses. Moreover,Japan's combination of high technology and cultural adaptation to its natural setting
makes tsunamis, floods and various other kinds of disaster detection systems. The early
warning system and practices serve as a model for many countries in the world. The
expectation about the benefits of this research are high due to the previous experiences ofcommunity based disaster management in Japan has proved extraordinary throughdemonstrating effectiveness of the capabilities in handling and controlling the disaster
impacts during the Tsunamis and other disasters. The Early Warning System in Japan is arole model for both developed and developing nations of the world.
Through a research process that includes thorough review, study and analysis on Japan’s
CBEWS to work as capacity building tool and empower people at grassroots levels forfacilitating the transparent interaction between government, civil societies and thevulnerability communities in the disaster prone areas. The activities that involvecommunity awareness through various modes of communication in Japan provide as aresource for incorporation in the national level input for policy formulation pertaining to
the early warning issues in Pakistan. The way of applying research results in Pakistan forCommunity Based Early Warning initiatives to enhance the risk assessment capability
and information sharing methods and investing in the local capacity enhancement brings
the losses at the minimum possible level.

2

1.1

BackgroundAs depicted by the term, the early warning is a process of dissemination of the hazard anddisaster information before its occurrence in order to assist decision makers to formulate
suitable policies and perform certain actions to address the upcoming threats andmanaging such events to avoid the losses and worst consequences. Likewise, theCommunity Based Early Warning System (CBEWS) is a process of empowerment of thepeople at grassroots level through which they are enabled to prepare well to face any
natural hazards and natural disasters.1
To reduce the vulnerability of the communities, the early warning is considered to be
major component of the disaster risk reduction measures that helps in saving lives andreduces the economic and material loss during the outbreak of the disasters.2 Initially, thefirst ever organized practice of the early warning system was formed by the UN during
1984 and 1985 respectively to control the losses caused by famine in Sudan and Ethiopia.
The international efforts for disaster risk reduction during 1990 to 1999 proved to bemilestone in promotion of benefits of the early warning system. The World Conference
on Natural Risk Reduction Early Warning System held in Yokohama, Japan in 23-27
May 1994 was a landmark in this regard. Following the Conference, Japan played role ofa foremost country for promotion of global disaster awareness and reduction initiates.
Two other major World Conferences were held in Kobe in 2005 and in Sendai in 2015
respectively. The initiative led to the realization for UNISDR in 2000 to advocate thepromotion of scientific means to enhance the accuracy of the early warning system, sincethen it also served as the coordinating body for the Second and Third World Conferences
on Disaster Reduction of 2005 and 2015. The series of World Conference on Disaster1

Ismail Khan et al., "An Analysis of Community Based Flood Early Warning System in The State of Azad
Jammu & Kashmir", Procedia Engineering 212 (2018): 792-800.
2
V.V. Krzhizhanovskaya et al., "Flood Early Warning System: Design, Implementation and Computational
Modules", Procedia Computer Science 4 (2011): 106-115.
3

Risk Reduction primarily aimed at tackling the issues of disasters and management ofclimatic risks in sustainable development context.3
The importance of community based early warning system is growing recognized in bothdeveloping and developed nations of the world. The importance of the empowerment of
the community to tackle the disasters affects as an immediate responder greatly helps
whole nation to avert growing losses of men and material. In developed nations, theutilization of modern technological equipment along with disaster resilience and repeatedefforts of enhanced capacity building initiatives have proved with outstanding results thatsuggests that even facing the devastating disaster affects, those communities significantly
recovered soon from the physical and psychological affects of the caused destruction.4
However, the case of developing or under developed nations is usually otherwise who
cope with lacking resources and adequate disaster related knowledge that impedes theirdisaster recovery and reduction
efforts. The communities of thedeveloping

countries

besidesfacing the shortage of technicalequipment

toforecast

theoccurrences of disasters and shun
their huge destruction also lack the expertise in using those equipments.5
The community based early warning system comprises activities, measures, projects andprograms that reduce disaster risks and are primarily designed for the people living in

3

Simon Butt, Luke Nottage and Hitoshi Nasu, Asia-Pacific Disaster Management, 1st ed. (Berlin,
Heidelberg: Springer Berlin Heidelberg, 2014).
4Maria Victoria G. Pineda, "Redefining Community Based Disaster Risk Management (CBDRM) ThroughEnhanced Early Warning Processes", International Journal of Information and Education Technology 5, no.
7 (2015): 543-548.
5
Gail Insko Wise, "Preparing for Disaster: A Way of Developing Community Relationships", Disaster
Management & Response 5, no. 1 (2007): 14-17.
4high risk communities, and are based on their urgent felt needs and capacities. There arecertain characteristics of the community based disaster management practices thatcompose the features of participation of people as major factor to contribute towards thedisaster risk reduction objectives. The priority is always given to the most vulnerable
groups such as women, children, elderly, disabled persons and the people who lackaccess to the resources. It also takes into consideration, the enhancement of the existing
survival capacity of the people. Since, the community based early warning systems areprimarily community centric therefore, through a valid analysis of disaster risk capacity
can provide communities with capabilities to avert or reduce their disaster exposure andvulnerability. The increased capacity enables communities to achieve goals of disaster
resilience and building safer environment with the support of governments and the nonprofit organizations.
Principally, the CBEWS is a content of participatory process and a response to the urgent
needs of the community. The disaster management activities are interlinked in disastermanagement system during both pre and post disaster period. The disaster preparedness
and prevention besides stress management are proactively involved in the community
based disaster management capacities through ample structural and nonstructural short,medium and long-term countermeasures. The government and various other stakeholders
play roles to impart the disaster management knowledge and provide the communities
with required technological resources and expertise. The community based early warning
disaster system also empowers the people to get better access to the social services byenabling them to confidently participate in the development endeavors. It also assists

5communities to protect their interest and belongings and avail better opportunities fortheir development.6
The early warning system is pre-disaster phase and it increases the chances of effective
response. The effective early warning system help reducing the economic losses andmitigate the number of injuries or deaths in case of any disaster, by providing informationthat allows individuals and communities to protect their lives and property. Such a
process enables people to take action when disasters are very near to occur. If wellintegrated with risk assessment studies and communication and action plans, Early
Warning Systems can lead to substantive benefits.
The vulnerable community focused communication methods exceptionally become
productive since the majority of communities are located in rural areas and the sources
for early warning system in such areas are mosque loudspeaker, community gatherings
and the door-to-door campaign to aware the masses about possible hazards and disasters.
The previous experiences of early warning measures reveal that in rural areas, the early
warning system could not achieve tangible outcomes therefore; it needs auxiliary
measures to adopt modern technological means and techniques to reduce the risk ofdisasters at maximum level.
In recent times, the Indian Ocean Tsunami of 2004 was one of the recent and mostdestructive disasters that claimed over 220,000 and many homeless. The tsunami
consequently highlighted the need for early warning system since; if there was a proper
early warning system it could prevent huge losses of men and material. The global
realization for the effectiveness of the early warning system got attention towards already

6

Maria Victoria G. Pineda, "Redefining Community Based Disaster Risk Management (CBDRM) ThroughEnhanced Early Warning Processes", International Journal of Information and Education Technology 5, no.
7 (2015): 543-548.
6

initiated World Disaster Reduction Conference held in Hyogo, Japan in 2005 that
adopted early warning system as one of the five themes of the Conference.7

7

Nobutomo Osanai, Hideaki Mizuno and Takahisa Mizuyama, "Design Standard of Control Structures
Against Debris Flow in Japan", Journal of Disaster Research 5, no. 3 (2010): 307-314.
7

CHAPTER 2
2. Literature Review
The book Institutional Partnerships in Multi-Hazard Early Warning Systems, authored by
Maryam Golnaraghi, comprises of various dimensions and discussions on disastermanagement and early warning conceptualization. It elaborates the scope of early
warning as a multi-disciplinary term that is frequently used in many fields to describe thestipulation of information and knowledge that enables particular group of people to takethe notice of alert and engage in appropriate countermeasure activities. In disastersituations, it raises the attentiveness amidst emerging dangerous circumstance where
actions based upon real-time information help in reducing the involved risks. Today withthe help of modern technological equipment, mankind has become self-sufficient enoughwith early warning systems available for natural disasters, geophysical and biological,
industrial hazards, climatic changes and various other types of emergencies. Along withother disaster risk reduction interventions, the early warning systems assist in protecting
lives and provide sustainable support for saving infrastructure, livelihood and various
economic resources through early detection of threats of undesirable situations.
The communities can greatly benefit through implementation of a mechanism of early
warning systems in their locality. The governments may often fail to take early warning
measures into account while policy formulation related to disaster management that
subsequently result in huge losses of men and material while causing huge cost tonational infrastructures during the outbreak of disasters. The prior preparation for thedisasters proves with remarkable dividends in turn merely through investing in early
warning systems for comprehensive disaster risk management in order to avoided or8

reduced the impact of disasters on human life, property, environment and the national
economy.8
Koh Hock Lye, Philip L-F Liu and, Teh Su Yean in their edited work titled, Tsunami
Education, Protection and Preparedness provides similar context on the CBEWS
practices and policies. They term the early warning system as a powerful tool that can be
set up to by the governments and the vulnerable people alike to avoid and reduce the highimpact of hazards that include flood, flashfloods, landslides, storms, forest fires, tsunamis
etc. The connotation of an effective early warning system merely lies in the identificationof its benefits by the government as policies formulating authority and the members ofparticular communities that frequently experiences or risk the disaster threats. The early
warning covering all methods and processes of communicating the early detection of theconclusions for decision making concerning the threats before they occur. The
government and communities can take action based on well calculated scenario to deter
whatever outcome of the disasters can result beyond their surviving capability to manage
such events in a way to avoid worst case scenario amidst disasters.9
Ashbindu Singh and Zinta Zommers in their edited book, Reducing Disaster: Early
Warning Systems for Climate Change elucidate the idea of CBEWS. The community
based early warning system is a set of enhanced capacities of the community that isrequired to produce and disseminate timely and accurate threat warning to the threatenedcommunities to properly arrange for evacuation places along with materials. To take suchnecessary preparedness measures and actions appropriately the sufficient time is required
to reduce the exposure to the threat of harm and losses.10
8

Maryam Golnaraghi, Institutional Partnerships In Multi-Hazard Early Warning Systems, 2nd ed. (Berlin:
Springer, 2012).
9
Koh Hock Lye, Philip L-F Liu and the Su Yean, Tsunami Education, Protection and Preparedness, 1st ed.
(Pulau Pinang: Penerbit USM, 2011).
10
Ashbindu Singh and Zinta Zommers, Reducing Disaster: Early Warning Systems for Climate Change,
1st ed. (Dordrecht: Springer Netherlands, 2014).
9

The Early Warning measures particularly in rural areas of Pakistan could not achieve
tangible outcomes; therefore, it needs exceptional measures to adopt real-time means andtechniques to reduce the risk of disasters.
A people-centered Early Warning Systemessentially comprises four key elements:
1. Knowledge of the disaster risk
2. Monitoring / Access to information
3. Analysis and forecasting of the hazards
4. Communication or dissemination of alerts
and warnings besides local capabilities to
respond to the warnings received.
Moreover,theCommunity-Based

Early

Warning Systems (CBEWS) are key practices that are managed by the communities toreduce the chances of threats that would cost them losses therefore; CBEWS allows them
to better protect their assets and livelihood.
In real sense it is the empowerment of community and the society as a whole since, they
become capable to protect themselves through protective measures by disaster resilience.
The flood vulnerable communities can essentially monitor the downstream and upstream
by observing and effectively operating their early warning systems. The heavy rainfall at
upstream will definitely bring a direct impact on communities dwelling at thedownstream places therefore, an early warning makes them to prepare for timely actions
and evacuation plans based upon early warning information.11

11

Dwie Irmawaty Gultom, "Community-Based Disaster Communication: How Does It Become
Trustworthy?", Disaster Prevention and Management: An International Journal 25, no. 4 (2016): 478-491.
10

The term Early Earning is used in many fields to describe the provision of information on
an emerging dangerous circumstance where that information can enable action inadvance to reduce the risks involved. Early Warning Systems exist for naturalgeophysical and biological hazards, complex socio- political emergencies, industrial
hazards, personal health risks and many other related hazards. It is highly essential thatthe warnings must reach all those at risk including all vulnerable members of acommunity. The clarity of the messages containing simple, useful and understandable
information are crucial to enable proper understanding of warnings and responses inorder to safeguard lives and livelihoods. It should be taken into account that somecommunity members might not be able to hear or see the information or to follow the
instructions by themselves and appropriate measures and actions should be taken
accordingly.12
The early warning system are long term investments and need commitment at grassroots
level for self-sustainability. The local institutions such as community or peace councils,
realizing direct benefits from the system will more likely incorporate the early warning
system into their own strategies of behavior thus increasing the sustainability of thesystem. The early warning system is the set of capacities needed to generate anddisseminate timely and meaningful warning information to enable individuals,
communities and organizations threatened by hazards to take necessary preparedness
measures and act appropriately in sufficient time to reduce the possibility of harms orlosses. It means that Early warning system is the set of capacities needed to generate anddisseminate timely and meaningful warning information to enable individuals,

12

Adenrele A Awotona, Planning for Community-Based Disaster Resilience Worldwide, 1st ed. (Abindon:
Routledge, 2016).
11

communities and organizations threatened by a hazard to prepare and to act appropriately
and in sufficient time to reduce the possibility of harm or loss.13
Early action is non-specific term referring to either “preventative action” or “early
response action”. Covering the processes of consultation, policy making, planning andaction to reduce or avoid armed conflict (this could include diplomatic, military/ security,
humanitarian and developmental/ economic activity). Early response is a category ofproactive and reactive measures to reduce tensions and block conflict escalation. It
involves both early prevention and early action.
The concept of CBEWS has been implemented through the Hyogo Framework of Actions
since 2005. The main objective of disaster reduction activities under the framework fordisaster resilience of the community level was emphasized. The risk community invarious countries were progressively transformed as resilient community however, thepractices varied with the issue that though the objective always remained same for
ensuring the safety of the communities yet, the facilitation practices and the methods of
the CBEWS frequently changed.14 Under various global disaster related initiatives, today
almost all the nations in the world realize about the disastrous impacts of climate changethat trigger hazards like earthquake, tsunami, flood, desertification etc. however, thelevels of access to information and the technological means demand for an internationallyaccessible advanced and centralized early warning system. Several local and regional
early warning accessories and applications are available but an effective international
early warning institution related to disasters would become a benign asset for the
mankind. The devastating Indian Ocean tsunami that killed 220,000 people in December
13

Matthew L. Collins and Naim Kapucu, "Early Warning Systems And Disaster Preparedness And
Response In Local Government", Disaster Prevention and Management: An International Journal 17, no. 5(2008): 587-600.
14
Ali A. Wangara, "Disaster Response Coordination Among Disaster Management Organizations inModern Cities: The Case of Nairobi County, Kenya", Prehospital and Disaster Medicine 32, no. 1 (2017):
20-22.
12

2004 resulted in establishment of Inter-Governmental Oceanographic Commission (IOC)in the region that progressively facilitates for the cause of early warning in the region
however, as a reality that still highlights for establishing an international early warning
system.15

15

Masato Motosaka and Makoto Homma, "Earthquake Early Warning System Application for School
Disaster Prevention", Journal of Disaster Research 4, no. 4 (2009): 557-564.
13

CHAPTER-3
3. Research Methodology
The research study is based on both qualitative and quantitative methods whereas, theprimary and secondary resources on Community Based Early Warning Systems including
field visits, expert discussions and lectures to analyze the practices and policies. The
primary source including field visits and expert lectures have exceptionally proved
helpful in this study. In addition, the real-time early warning expertise of the Governmentof Japan to cope with the hazards and disasters also proved helpful in exploring variety of
aspects of CBEWS and assisted in getting accurate facts and figure that were essential forthis research. The study is descriptive and analytical in nature. The data collection for
CBEWS in context of Pakistan includes Pakistan’s disaster management laws andpolicies. The discussions with various government officials and disaster management
experts was conducted that along with field experiences proved as a great asset forlearning and researching on community based disaster risk reduction and hazard risks
strategies.
Strengths & limitations of the CBEWS approaches for disasters & other hazards
Approach
Qualitative

Strength

Limitation

Quantitative- Quick to setup- Comparable numbers- Contextual details- Long-term process-

High level of generalization
Misinterpretation of message
Time consuming
Hardly comparable

Participatory- Reflects individual views- Time consuming- Addresses actual local needs - Hardly comparable- Reflects individual views
Quantitative & - Addresses actual local needs - Highly dependent on
participatory
facilitators skills- Tangible to various
stakeholders- Facilitates comparison
14During this study it was observed that due to lack of disaster management awareness ofthe community and issues in using technological equipment that sometimes was highlysophisticated and needed particular expertise to operate such equipments became key
impediment in the execution of community based early warning system in the Pakistan.
As a purpose, this study was aimed at comparatively analyzing the Community Based
Early Warning Systems and practices in Japan and Pakistan for minimizing disaster
impacts however, it is empirically proved that due to some extends the level ofdamages/losses have been minimized/curtailed due to appropriate early warning systemand practices at the community levels.

3.1

Statement of Problem

The lacking knowledge about disaster related issues and awareness about the
management of its consequences along with some flaws of early warning system atcommunity based practices leaving lesser room for ownership of the issue enhances therisk of loss during disasters. The obsolete methods and lack of adequate education to use
technical and technological means further contributes in the shape of excessive
destruction. The issues of education about usage of modern technological equipment,
capacity building of communities and government officials at union council levels
through proper coordination and mutual support are often ignored that results as a core
problem of overcoming disaster management practices at the community levels.

3.2

Objectives of Research

The research study is focused on review and documenting the existing Early Warning
System policies and practice at the national and community levels in Japan. In addition,
as a comparative analysis it assesses the issues and vulnerabilities of Early Warning
15

System. As an objective, the research provides
rationally possible solution and recommendations
for enhancing the Community Based Early
Warning System in Pakistan. The experiences
learnt by community based disaster management
practices in Japan are generally helpful in
reducing adverse consequences of the disasterhazards. The research aimed at reviewing and documenting the existing Early Warning
System practiced at the national level in Japan. Through a comparative analysis, it was
helpful in assessing the issues and vulnerabilities of Early Warning System. As an
objective, through this research, various possible solution and recommendations havebeen proposed for enhancing Early Warning System.

3.3

Scope of the Research

Pakistan has been facing severely devastating disaster impacts. The national level disastermanagement policies and practices have exceptionally proved effective to save lives andlivelihood however, the issues at the grassroots level particularly in the rural agricultural
background has proved otherwise. There is widespread issue of ineffective and obsolete
methods of disaster management that during last few years have proved unsatisfactory interms of effectiveness. The scope of research study is highly valuable since it provides avariety of ways for adaptation of improved and modern disaster management practices
and policies that while adopting serve as effective means for CBEWS that play a strongrole in improving safety of men and material. It is one of the most efficient measures for
reducing negative impacts of threats and risks triggered by natural disastrous events. The
CBEWS and other mitigation interventions are a cost effective way of disaster risk
16

reduction. The Early Warning system aims at a critical assessment, management anddiscussion pertaining to the successes, failures, potentials, and requirements for theeffective use of CBEWS for disaster mitigation.

17

CHAPTER-4
4. Effectiveness of Early Warning System for Communities
The early warning system can help nations tominimizing the disaster affects and even it
can also prevent such affects if effective
practiced.

The

community

based

early

warning systems can serve as one of the mostuseful tool that ensure about the safety of thepeople and help in managing the disasters.
The early information to the community
through national or regional organizations
provides the individuals exposed to the disaster hazards to make necessary arrangements
to cope with the approaching hazard.16
The aim is always set to save and reduce the losses incurring to the people and theirbelongings. The real-time disaster information is highly crucial to tackle such issues
however, the lacking knowledge about disaster countermeasures and possible evacuation
methods and ignorance would prove otherwise. In community based early warning
process, the timely information of the disaster outbreak always holds the priority since
without such information, the disaster preparedness of the communities may not be
possible thus, the only point of lacking information can result in serious human andlivelihood losses.17

16

Syamsu Rizal et al., "Natural Disaster Management-Based Model of Community Participation in
Makassar", International Journal of Academic Research 6, no. 2 (2014): 211-216.
17
S.W.A. Gunn, "The Scientific Basis of Disaster Management", Disaster Prevention and Management:
An International Journal 1, no. 3 (1992): 52-67.
18

The threat assessment is one of the crucial components of the early warning since, themessage of the upcoming hazard may reach the responder however, it mainly depends
how the individuals act to realize the scale of the hazard they are going to face. In somecase, people often get emergency alerts but they usually ignore the level of the severity
and remain at ease however, when the disaster affects reach them very close they found itvery difficult to avoid higher losses. However, the disaster resilience is also an importantmeans of capacity building for the communities to usually address the disaster risks, andfollow appropriate disaster risk reduction process. The bulk of recent disasters are
weather-related which are likely to grow as both climate change processes and intensityof weather events are on the rise.18
The natural hazards only turned into
disasters

when

the

communities

arevulnerable and unprepared. Effective Early
Warning Systems (EWS) have proved
beyond doubt to save lives and reduce
economic losses; however, they have notbeen significantly made an integral part ofthe disaster management and risk reduction initiatives. The effective Early Warning
Systems exceptionally contribute with early detection of uncertain disaster situations.19
As one of the key component of the disaster management and disaster preparedness ateach level whether it may be national, provincial, district, and union council orcommunity levels, the early and reliable information mobilizes towards the early actions.
18

S.H.M. Fakhruddin and Y. Chivakidakarn, "A Case Study for Early Warning and Disaster Managementin Thailand", International Journal of Disaster Risk Reduction 9 (2014): 159-180.
19
Maria Victoria G. Pineda, "Redefining Community Based Disaster Risk Management (CBDRM)
Through Enhanced Early Warning Processes", International Journal of Information and Education
Technology5, no. 7 (2015): 543-548.
19

The previous experiences of the disasters show that the timely disseminated warnings
saved lives of people living in disaster prone areas. The communities in rural areas ofPakistan were able to evacuate to the safer places and take appropriate measures tosafeguard their cattle and other belongings. 20 The early warning also provided thegovernment a better opportunity to effectively reach the vulnerable people and initiate aprocess of immediate rescue operation and provision of necessary relief items.

4.1

Community Based Early Warning Equipment

The international advocacy for the empowerment of the communities following the 1995
World Conference for Disaster Reduction in Japan that mainly emphasized for
effectiveness of the Community Based Disaster Management and Early Warning System
was pioneer in development of simplified technological equipments for the disaster
reduction. The equipment was mainly community operated early warning, for instancesuch component for communities located in small steep river basins comprised of factors
considering the floods/debris flows/landslides that occurred by localized heavy rainfall
within the river basin where the communities were located. However, in most countries
the national observation network was not so dense to cover all such basins. The
floods/debris flows/landslides could occur shortly after heavy rainfall. Therefore, people
should be warned immediately after rainfall. However, in most countries the national
early warning system may not be so quick in operation. To meet such necessity waterlevel equipment and rainfall equipment were developed in the Central America and the
Caribbean.21

20

S.S.L. Hettiarachchi and S. Weeresinghe, "Achieving Disaster Resilience Through the Sri Lankan Early
Warning System: Good Practices of Disaster Risk Reduction and Management", Procedia Economics andFinance 18 (2014): 789-794.
21
Masato Motosaka, "Special Issue On Early Warning for Natural Disaster Mitigation", Journal of Disaster
Research 4, no. 4 (2009): 529-530.
20

4.1.1 Water Level Equipment
The water level equipment for the communities to monitor the level and the flow of waterin order to avoid the threat of flood was developed by CONRED (Guatemala) after the
Hurricane Mitch (1998) and has since been in use for COEW in Central America. The
equipment has automatic alarm functions and can function as early warning systems forunattended, long-term monitoring of water level and flow. The advanced version of such
equipment can be used in many environments, including wells, dams, streams, weirs,
storm-water systems, and water or wastewater treatment plants.22

Top of the sensor

Sensor terminal

Bottom of the casing

22

Koichi Shiwaku, "Innovative Usage of Disaster Reduction Technology Information", Asian Journal ofEnvironment and Disaster Management (AJEDM) - Focusing on Pro-Active Risk Reduction in Asia 03, no.
01 (2011): 105-107.
21

Water Level Sensor (Equipment)
Tube and Sensor pole(L:2m, φ:40mm)

Head cover and connecting
terminal

Bottom of casing tube

Sensor terminal

They are reliable regardless of salinity level, pollution level, or other harsh environmental
conditions. The advanced and development versions of such equipment systems cancommunicate via GOES satellite, licensed-frequency radio, IP cell modems, spread-spectrum
radio, and other methods.23
4.1.2 Rainfall Equipment
The

Rainfallmonitoring

systemwithinnovative technologies have provided thecommunities with means to monitor rainfall
remotely for any location, track historical
records and customize various types of alerts
including text messages so that communities
can become aware of the situation that when

23

S.W.A. Gunn, "The Scientific Basis of Disaster Management", Disaster Prevention and Management:
An International Journal 1, no. 3 (1992): 19-23.
22

the conditions change.
One of the easy to use equipment of similar type was developed by the University of West
Indies (Trinidad & Tobago/CDERA/JICA) in 2004-2005. The equipment was distributed to
Caribbean countries for community based early warning equipment to monitor the rainfall level.
The equipment contains a bottle depending on the rainfall amount 2 to 3 liters. When it isnecessary to measure a larger amount of rainfall than the capacity of the bottle, another small
size bottle can be attached. The throw-in type equipment was developed for easier assemblyand maintenance by the communities. In such equipment, the sensor is usually installed outside
the premises that are connected through a cable to the monitoring apparatus and the connecting
cable can be extended to more than 150 m.24
Rainfall Sensor (Throw-in Type)

Installation

Total view

24

Details of sensor

Tin-can model

Scott Gabriel Knowles, "Learning from Disaster: The History of Technology and The Future of Disaster
Research", Technology and Culture 55, no. 4 (2014): 773-784.
23

Of various types of equipments being used for Community Based Early Warning System,
such equipments are one of the suitable and user-friendly equipments. Such equipments
are also being used by various international organizations for information sharing various
vulnerable communities in the world.
4.2

Flood Early Warning System

The system monitors sensor networks installed in flood defenses (dikes, dams,
embankments, etc.), detects sensor signal abnormalities, calculates dike failure
probability, and simulates possible scenarios of dike breaching and flood propagation. All
the relevant information and simulation results are fed into an interactive decision support
system that helps dike managers
and city authorities to makeinformed decisions in case of
emergency and in routine dike
quality assessment.
Moreover,a

VirtualDike

computational module has beendeveloped for advanced research
into dike stability and failure
mechanisms, and for training the artificial intelligence module on signal parameters
induced by dike instabilities. The early warning system generic designs and functionality,
the computational workflow, the individual modules, their integration are sources ofCommon Information Space middleware, and the first results of early warning systemmonitoring and performance benchmarks.25
25

S. Golian et al., "A Deterministic Framework for Selecting a Flood Forecasting and Warning System at
Watershed Scale", Journal of Flood Risk Management 8, no. 4 (2014): 356-367.
24

Front face

Selective terminal

BuzzerTong switch

I.L.L.I line

Selective terminal (back)External buzzer

Regulator and Resistor

Fuse

Automated River Gauging Station

Manual River Gauging Station& monitor
Record of data from RGS

25

CHAPTER-5
5. Country Profile and Disaster Issues in Pakistan
Pakistan with a total area of 796,095 sq km and lies between 24 and 37 degrees north andlongitudes 62 and 75 degrees east. The country is highly prone to various hazards since
the region wherein Pakistan lies is geographically bestowed with topographical andenvironmental extremes. Thus, the region hosts all types of terrains and climates, andbarely manages extreme conditions. It comprises the four provinces of Punjab,
Baluchistan, Khyber Pakhtunkhwa (KPK) and Sindh plus the Federal Capital (Islamabad),Gilgit-Baltistan region (GB) and 'Tribal Areas (FATA) under the federal administration,
and Azad Jammu &Kashmir (AJK). There is a Parliamentary form of Government with a
Prime Minister as the executive head and the President as the constitutional head. The
National Language is Urdu. The country has a population of approximately 20 million
people.26
The country shares its borders with Iran to the west, India in the south-east, Afghanistan
in the north-west, and China in the north. The Arabian Sea lies to its South and Pakistan
shares total border length of 6,744 km with neighboring countries; with Afghanistan(2,430 km); with China (523 km); with India (2,912 km) and Iran (909 km). The coastal
belt is about 1,046 km. Geographically Pakistan cab be divided in five major portions
included, Northern high mountain ranges (the Himalayas; the Karakorum and the
Hindukush), the Balochistan Plateau along western bordering, the Indus River plains in
the east, the Salt range across the northern portion of the Punjab province and the Deserts(Cholistan in Punjab and Thar in Sindh province).27
26

Marc Audi and Amjad Ali, "Socio-Economic Development, Demographic Changes and Total Labor
Productivity in Pakistan: A Co-Integrational and Decomposition Analysis", Journal of Academy ofBusiness and Economics 17, no. 2 (2017): 7-24.
27
Arshad Ali, Somana Riaz and Shahid Iqbal, "Deforestation and Its Impacts On Climate Change an
Overview of Pakistan", Papers on Global Change IGBP 21, no. 1 (2014): 26-32.
26

The country faces severe challenges with continued disaster outbreaks particularly thecontinued floods, earthquakes, drought, cyclones, GLOF and issues of climatic change
are of highly noticeable challenges.

Source: NDMA Pakistan

The country has been heavily investing for the reason that national economy of Pakistan
mainly relies over agricultural production however, the situation of continued floods has
made in vulnerable to the disaster affects and economic losses. The increased Himalayanriver flows mainly due to the climatic change have significantly increased during last two
decades. The manmade reasons also have significant contribution in the worsening
scenarios by building unnecessary embankments and improperly land use and river27

diversion. The massive foods during 2010-11 were some of the greatest recorded
disasters in the history of Pakistan. The floods affecting over 14 million people with anapproximate loss of $9.5 million to the economy of Pakistan that included the loss ofagricultural production, livelihood, small and medium business and infrastructure of thecountry.28
The climate of Pakistan varies with its topography but most consists of hot, dry desert,
temperate in north-west and arctic in the north. About 60% of the total land area isclassified as arid, which receives less than 200 mm annual rainfall. The southern slopesof the Himalayas and the sub mountainous tract receive higher rainfall ranging from 760
to 1270 mm annually. Some areas adjoining Kashmir receive more than 2000 mm
precipitation per annum.29

Pakistan has four well marked seasons namely spring, summer, Autumn & Winter. It’s
usually, cold from November to February; Pre-monsoon (Hot), from March to mid ofJune; Monsoon, from mid of June to mid of September and Post-monsoon, from mid of28

Razia Sharif, "Implications of Environmental Considerations for Floods in Pakistan", IOSR Journal ofEnvironmental Science, Toxicology and Food Technology 6, no. 1 (2013): 32-35.
29
Zareen Shahid and Awais Piracha, "Climate Change Impacts in Pakistan", The International Journal of
Climate Change: Impacts and Responses 2, no. 1 (2010): 119-130.
28

September to October. Summer season is extremely hot and the relative humidity ranges
from 25% to 50%. Day-time temperature in this season remains 40°C and beyond in plain
areas. The average temperatures in winter range from 4°C to 20°C. Mercury sometimes
falls well below freezing point in Northern parts of the country. Temperatures can be as
low as - 27°C in the north (at Skardu) in winter and as high as 52°Cin the southern parts
during summer.30

Source: NDMA Pakistan

5.1

Disaster Context & Risk Profile of Pakistan

Pakistan frequently suffers from earthquakes. Northern and Western parts are particularly
vulnerable to earthquakes. The Indus River is known as flood-prone area especially in
July and August. High priority hazards in terms of their frequency and scale of impact

30

Muhammad Abid, Uwe A. Schneider and Jürgen Scheffran, "Adaptation to Climate Change and Its
Impacts On Food Productivity and Crop Income: Perspectives of Farmers in Rural Pakistan", Journal of
Rural Studies 47 (2016): 254-266.
29

are: earthquakes, flooding, droughts, wind storms and landslides that have caused
widespread damage and losses in the past.
Geo-physical conditions, climatic extremes, and high degrees of exposure andvulnerability, made Pakistan a disaster-prone country. Pakistan’s exposure to natural
hazards and disasters could be ranked between moderate to severe.31
A range of hydro meteorological, geo-physical and biological hazards including
earthquakes, floods, tsunamis, cyclones and storms, droughts, glacial lake outbursts,
landslides, avalanches, pest attacks and epidemics pose risks to Pakistani society. Someof these hazards (e.g. floods, landslides etc.) are predominantly seasonal and occur on anannual basis, whereas other hazards such as earthquakes and tsunamis are rare events but
potentially highly destructive.32

31

Wahid Ullah, "Climate Change Vulnerability of Pakistan Towards Natural Disasters: A
Review", International Journal of Environmental Protection and Policy 4, no. 5 (2016): 126-127.
32

Andrew Wilder, "Aid and Stability in
Response", Disasters 34 (2010): 406-426.

Pakistan:

30

Lessons

from

The

2005

Earthquake

The historical overview of the statistics of the period from 1947 to 2017 lay out
Pakistan’s disaster profile. One hundred and seventy-two natural disastrous events
resulted in loss of 11 hundred thousand human lives, left near 9.5 million people
homeless and cost an economic loss of more than 2.8 billion dollars. The pie chart given
bellow describes a more detailed and clearer picture about the disaster history of
Pakistan.33

Source: NDMA Pakistan
The country’s disaster context in terms of water management is high concerns that
include impacts on various socio-economic sectors. The water variability in the river flow
often causes loss of natural reservoirs, reduced yield of crops etc. likewise, the monsoon
period, the country frequently experiences floods. Such disaster impacts also result into
energy crisis with reduced availability of water for hydropower generation reduced
33

Kashif Saeed Khan, Nadarajah Shanmugaratnam and Ingrid L.P. Nyborg, "Recovering from Disasters: A
Study of Livelihoods in Post-Quake Villages in Northern Pakistan", Disasters 39, no. 2 (2017): 339-361.
31

thermal power plant efficiency at high temperatures, increased transmission anddistribution / line losses and the increase in electricity demand. The energy crisis is
severely hampering the economic growth of the country.
5.2

Disaster Management System in Pakistan

Prior to Earthquake 2005, the West Pakistan National Calamities Act of 1958 was theavailable legal remedy that regulated the maintenance and restoration of order in areas
affected by calamities and relief against such events. An Emergency Relief Cell within
the Cabinet Division has been serving since1971 as an institutional disaster relief support
at the national level. Similar institutional arrangements existed at the provincial level inthe form of relief commissioners.34

Source: NDMA Pakistan
The NDM Act of 2010 is comprehensive national DR policy guideline that elaborates
following components of the system: a. National Disaster Management Commission (NDMC)
b. National Disaster Management Authority(NDMA)
34

Kamran Siddiqi, "The Pakistan Earthquake: A Personal Experience", The Lancet 367, no. 9515 (2006): 986.
32

c. Provincial Disaster Commission(PDMC)
d. Provincial Disaster Management Authorities(PDMAs)
e. District Disaster Management Authorities(DDMAs)
f. National Institute of Disaster Management(NIDM)
g. Obligation of Federal and Provincial Governments in case of disaster.
h. Establishment of National / Provincial Fund for Disaster Management (N/PDMF).
However, that government provided a reactive approach towards emergency response
only. The occurrence of devastating earthquake of 2005, followed by global obligations
has provided the required stimuli for the government to introduce a new Disaster
Management System in the Country. Subsequently, the National Disaster Management(NDM) Ordnance was promulgated in December 2006 which became NDM Act with theapproval of the Parliament in 2010. This Act serves as the primary law of the land in thefield of disaster management and to implement the law, National Disaster Management
Authority (NDMA) was created under National Disaster Management Commission(NDMC). Similar arrangements were enacted in the four provinces, FATA, GB andAJ&K. The creation of National Disaster Management Commission under stewardship of
the Prime Minister, and its executive organ National Disaster Management Authority
ushered an across the board transformation of the national perspective about the subjectof DRM.
Disaster Management Structure of Pakistan

33

5.2.1 National Disaster Management Commission (NDMC)
The National Disaster Management Commission (NDMC) headed by prime minister has
been established for the formulation of overall policies & guidelines etc. at national level
while Provincial Disaster Management Commission (PDMC) headed by the chief
minister of respective province at provincial level. Chairman NDMA and Director
General PDMA will act secretary of the Commission at federal and provincial level
respectively. The Key members of NDMC included:a. The Prime Minister of Pakistan – Chair
b. Leader of Opposition in the Senate& National Assemblyc. Key Federal Ministers (Like Defense/interior/communications/ Health/ Financeetc.)
d. Governor KPK (for FATA)
e. Chief Ministers of all four Provinces
f. Prime Minister, AJK &GB
g. Chairman, JCSC or his nominee; andh. Civil Society and Co-opted Members.
The main powers and functions of the National Commission includes but not limited to: a. Lay down the policies, plans and guidelines for disaster management.
b. Approve the National Plan.
c. Approve plans prepared by the Ministries or Divisions of the Federal Governmentin accordance with the National Plan.
d. Arrange for, and oversee, the provision of funds for the purpose of mitigation
measures, preparedness and response.
e. Provide such support to other countries affected by major disasters as Federal
Government may determine.
34

5.2.2 National Disaster Management Authority (NDMA)
Sequel to the NDMO/ NDMA Act, National Disaster Management Authority (NDMA) at
federal level was established in 2007. National Disaster Management Authority (NDMA)
is the lead agency at the Federal level to deal with the whole spectrum of Disaster
Management activities. It is the executive arm of the National Disaster Management
Commission (NDMC) which has been established under the Chairmanship of the Prime
Minister as the apex policy making body in the field of Disaster Management. In theevent of a disaster, all stakeholders including Government Ministries / Departments /Organizations, Armed Forces, INGOs, NGOs, UN Agencies work through and form partof the NDMA to conduct one window operations.

It is established under the National Disaster Management Act – 2010 and functions under
the supervision of National Disaster Management Commission (NDMC) which is headedby the Prime Minister of Islamic Republic of Pakistan. NDMA manages the whole
Disaster Management Cycle (DMC) which includes Preparedness, Mitigation, Risk

35

Reduction, Relief and Rehabilitation. A National Disaster Management Plan (NDMP) is
prepared and is followed towards provision of better services to the affected ones.

Organizational Structure of NDMA

Source: NDMA Pakistan

The power of the Authority includes but not limited to: a. Act as the implementing, coordinating and monitoring body for disastermanagement;b. Prepare the National Plan to be approved by the National Commission;c. Implement coordinate and monitor the implementation of the National policy;d. Lay down guidelines for preparing disaster management plans by different
Ministries or Departments and the Provincial Authorities;
36

e. Provide necessary technical assistance to the Provincial Governments and theProvincial Authorities for preparing their disaster management plans inaccordance with the guidelines laid down by the National Commission;f. Coordinate response in the event of any threatening disaster situation or disaster;g. Promote general education and awareness in relation to disaster management;
h. Pay down guidelines for, or give directions to the concerned Ministries orProvincial Governments and the Provincial Authorities regarding measures to betaken by them in response to any threatening disaster situation or disaster.35

35

Atta-ur- Rahman, Disaster Risk Reduction Approaches in Pakistan, 1st ed. (Tokyo: Springer Verlag,
JAPAN, 2016).
37

5.2.3 Provincial Disaster Management Authority (PDMA)
The Provincial Authority is established at each province including region of Gilgit–
Baltistan and Azad Jammu & Kashmir. Key powers and functions of the Provincial
Authorities includes: a. Responsible for implementing policies and plans for disaster management in theProvince.
b. Formulate the provincial disaster management policy obtaining the approval of
the Provincial Commission;c. Coordinate and monitor the implementation of the National Policy, National Planand Provincial Plan.
d. Examine the vulnerability of different parts of the Province to different disasters
and specify prevention or mitigation measures.
e. Lay down guidelines to be followed for preparation of disaster management plansby the Provincial Departments and District Authorities.
f. Promote general education, awareness and community training.
g. Ensure that communication systems are in order and disaster management drills
are being carried out regularly;h. Coordinate response in the event of disaster;i. Evaluate preparedness at all governmental or non-governmental levels to respondto disaster and to enhance preparedness.
j. Directions to any Provincial department or authority regarding actions to be taken
in response to disaster;k. Provide necessary technical assistance or give advice to district authorities andlocal authorities for carrying out their functions effectively;38

l. Advise the Provincial Government regarding all financial matters in relation todisaster management;
m. Examine the construction in the area and if it is of the opinion that the standards
laid down have not been followed and it may direct the following same to securecompliance of such standards;
n. Perform such other functions as may be assigned to it by the National orProvincial Authority.36

Organizational Structure of PDMA

Source: PDMA Sindh

36

Rajib Shaw, Juan M Pulhin and Joy J Pereira, Climate Change Adaptation and Disaster Risk Reduction,
1st ed. (Bingley, UK: Emerald, 2010).
39

5.2.4 District Disaster Management Authority (DDMA)
As per NDM Act 2010, each Provincial Government shall establish a District Disaster
Management Authority (DMA) for every district. The District Authority acts as the
district planning; coordinating and implementing body for disaster management and takeall measures for the purposes of disaster management in the district in accordance withthe guidelines laid down by the National Authority and the Provincial Authority. The
mandate of the District Authority includes but not limited to:a. Prepare a disaster management plan including district response plan for the
district;
b. Coordinate and monitor the implementation of the National Policy, Provincial
Policy, National Plan, Provincial Plan and District Plan;
c. Ensure that the areas in the district vulnerable to disasters are identified andmeasures for the prevention of disasters and the mitigation of its effects areundertaken by the departments of the Government at the district level as well as
by the local authorities;
d. Ensure that the guidelines for prevention, mitigation, preparedness and response
measures as laid down by the National Authority and the Provincial Authority arefollowed by all departments of the Government at the district level and the local
authorities in the district;e. Organize and coordinate specialized training programs for different levels of
officers, employees and voluntary rescue workers in the district;f. Facilitate community training and awareness programs for prevention of disasteror mitigation with the support of local authorities, governmental and nongovernmental organizations;40

g. Encourage the involvement of non-governmental organizations and voluntarysocial-welfare institutions working at the grassroots level in the district fordisaster management set up, maintain, review and upgrade the mechanism forearly warnings and dissemination of proper information to public;h. Identify buildings and places which could, in the event of disaster situation be
used as relief centers or camps and make arrangements for water supply andsanitation in such buildings or places;
i. Establish stockpiles of relief and rescue materials or ensure preparedness to makesuch materials available at a short notice.
Organizational Structure of PDMA

Source: NDMA Pakistan
The Act has also delegated additional powers to District Authorities for the purpose of
assisting, protecting or providing relief to the community, in response to any disaster like:a. Give directions for the release and use of resources available with any departmentof the Government and the local authority in the district;41

b. Control and restrict vehicular traffic to, from and within, the vulnerable oraffected area;c. Remove debris, conduct search and carry out rescue operations;d. Provide shelter, food, drinking water and essential provisions, healthcare andservices;
e. Establish emergency communication systems in the affected area;
f. Procure exclusive or preferential use of amenities from any authority or person.37

5.2.5 National Institute of Disaster Management (NIDM)
The Act allowed the Federal Government to establish an institute to be called the
National Institute of Disaster Management (NIDM). Subject to the provisions of this Act,
the National Institute of Disaster Management shall be responsible for planning andpromoting training and research and developing core competencies in the area of disastermanagement.
The NIDM is a premier institute of training and capacity development programs for
managing natural disasters occurring in Pakistan. It started functioning in 2008 but was
not formally inaugurated till February 15 2010. Taking a ride through times when NIDM
came into existence, Human Resource development and capacity building can be pointed
as a building factor. Human resource not only involves the workforce of the institute but
all the related organizations playing a part in preparedness, prevention, recovery andrelief i.e. welfare agencies, NGO’s, community development as well as general public.
The NIDM has following major objectives: To develop curriculum on various facets of disaster management;

37

Zubair Ahmed, "Disaster Risks and Disaster Management Policies and Practices in Pakistan: A Critical
Analysis of Disaster Management Act 2010 Of Pakistan", International Journal of Disaster Risk
Reduction 4, no. 3 (2013): 15-20.
42To undertake training, research and other related activities on disastermanagement;

To develop linkages and build partnerships with national and international
academic institutions;

To develop network of disaster management professionals and master trainers
working in various disciplines in the country and abroad;

Publish newsletters, books, research journals, and audiovisuals to raise disasterrisk awareness among general public;Liaison with the NIDM and NDMA alumni and engage them in different
activities i.e. trainings, workshop and technical assistance;Establish and maintain database on disasters in the country and give regular
updates through NIDM website.

The human resource development is an integral part of Disaster Risk Management(DRM). Structural and / or engineering interventions yield far less dividends if research,training and awareness components are undermined. In South Asia, DRM is relatively a
new subject but owing to the region’s exposure to a number of natural and humaninduced threats, different countries have started taking a holistic approach by establishingdedicated institutes for public awareness and capacity building purposes. It reflects thesignificance of research and training for reducing disaster risks and lessening hazard
impacts. It is widely argued by disaster experts that knowledge, information and training
make a community more resilient against the consequences of hazards.
The Government of Pakistan is also striving to promote DRM as one of the priority
development concerns. Its need was more crucial because of the consequent disasters
which stressed upon the need of adopting a proactive approach by taking disaster risk
reduction options to safe guard lives and properties. The creation of NDMA is an
43example of landmark achievement. However, there was a growing realization that in theabsence of a full-fledged academic institute dedicated for providing research and training
services, it would have been difficult to achieve the objectives of DRM. On the other
hand, the utility of existing training facilities had been marred over the years due to lackof resources, commitment, the quality of contents and delivery.
In this backdrop, National Institute of Disaster Management (NIDM) was established for
effectively catering to research and training needs of the public and private sectors on
DRM. The NIDM is empowered to: a. Develop training modules, undertake research and documentation in disastermanagement and organize training programs;b. Formulate and implement a comprehensive human resource development plan
covering all aspects of disaster management;c. Provide assistance in national level policy formulation;d. Provide required assistance to the training and research institutes for developmentof training and research programs for stakeholders including Government
functionaries;e. Provide assistance to the Provincial Governments in the formulation of Provincial
level policies, strategies, disaster management framework and any otherassistance as may be required by the Provincial Governments for capacitybuilding of stakeholders, Government including its functionaries, civil society
members, corporate sector and people’s elected representatives;
f. Develop educational materials for disaster management including academic andprofessional courses;

44

g. Promote awareness among stakeholders including college or school teachers andstudents, technical personnel and others associated with multi-hazard mitigation,
preparedness and response measures;
The Act also entrusted the Federal Governments to take all such measures as it deems
necessary or expedient for the purpose of disaster management and shall include allsuch measures pertaining to: a. Coordination of actions of the Ministries and Divisions of the Federal
Government, Provincial Governments, National Authority, Provincial Authorities,
governmental and non-governmental organizations in relation to disastermanagement;b. Cooperation and assistance to Provincial Governments, as requested by them orotherwise deemed appropriate by it;c. Requisition and deployment of armed forces, civil armed forces or any othercivilian personnel or foreign contingents required for the purposes of this Act;d. Coordination with the United Nations agencies, international organizations andgovernments of foreign countries for the purposes of this Act;e. Establish institutions for research, training, and developmental programs in thefield of disaster management.
The Federal Government may extend such support to other countries affected by majordisaster as it may deem appropriate. Similarly, the Provincial Government, subject to theprovisions of this Act, shall take all measures specified in the guidelines laid down by the
National Authority and such further measures as it deems necessary or expedient, for the
purpose of disaster management in their respective province.38
38

Zubair Ahmed, "Disaster Risks and Disaster Management Policies and Practices in Pakistan: A Critical
Analysis of Disaster Management Act 2010 Of Pakistan", International Journal of Disaster Risk
Reduction 4, no. 3 (2013): 15-20.
45

5.2.6 National / Provincial Funds for Disaster Management
The management of disasters, the resources always plays a key role. The Federal
Government shall constitute a Fund to be called the National Disaster Management Funds
for meeting any threatening disaster situation or disaster. The NDMF shall beadministered by the National Authority towards meeting the expenses for emergency
preparedness, response, mitigation, relief and reconstruction. The NDMF shall befinanced from the following sources, namely: 1. Grants made by the Federal Government;
2. Loans, aid and donations from the national or international agencies; and3. Donations received from any other source.

5.2.7 Provincial Disaster Management Funds (PDMF)
Like, Provincial Disaster Management Fund shall be administered by the Provincial
Authority towards meeting the expenses for emergency preparedness, response,
mitigation, relief and reconstruction in the Province. The disaster management system isa well-articulated robust system, based on international good practices and local
dynamics.
The system is growing, despite limited resources and disaster management capacities.
The performance of the system witnessed appreciation not at national level but has also
gained attention of international community during the past disasters.
The PDMF shall be financed from the following sources, namely: 1. Grants made by the Federal Government or Provincial Governments; and2. Loans, aid and donations from the national or international agencies provided inaccordance with prescribed procedure. It may be highlighted that the Federal46

Government and Provincial Governments shall, in their annual budgets, makeprovisions for funds for the purposes of carrying out the activities and programs
set out in its disaster management plan.39

39

Shariq Riaz Khattak, "Standard Criteria Response Mechanism of Pakistan Disaster Management
Authority (PDMA) And Asian Development Bank (ADB): Evidence from Pakistan", Advances in Social
Sciences Research Journal 4, no. 10 (2017): 13-16.
47

CHAPTER-6
6. Pakistan Disaster Management & International Obligations
Establishment of “Safer and Resilient” societies is the most ever desire of every people
centric government of the world. However, achieving resilient societies is a long journey
and requires number of intervention from grassroots to state and international level.
Among all these actions, the top ranked action would be promotion of disaster educationand comprehensive awareness strategies at all sphere including community, state,national and global level. The country has been frequently facing hydro-metrologicalhazards therefore, to cope with such challenges it has been actively participatinginternational organization cooperation to build a safer society.

.

Source: NDMA Pakistan

48

6.1

Pakistan’s Participation in International Cooperation & Commitments

The international organizations along with regional and local collaborations can help
focus the attention of national governments and policy makers on the importance of
natural hazards awareness and disaster risk reduction education programs. Internationalorganizations have a key role to play with regard to long-term planning as they are
decoupled from the shorter-term political mandates of national, local and local decisionmakers. International efforts may also lead to the establishment of transnational platforms
and networks aimed at developing a coherent cross-border approach to disaster risk
management strategies and promoting a culture of safety in the long run.
6.1.1 Sendai Framework for Disaster Risk Reduction (SFDRR -2015-2030)
Sendai Framework for Disaster Risk Reduction-2015-2030

vide achievable actions

under its Priority-1 has states “understanding disaster risk to build the knowledge ofgovernment officials at all levels, civil society, communities and volunteers, as well as
the private sector, through sharing experiences, lessons learned, good practices andtraining and education on disaster risk reduction, including the use of existing training
and education mechanisms and peer learning andpromote national strategies tostrengthen public education and awareness in disaster risk reduction, including disasterrisk information and knowledge, through campaigns, social media and community
mobilization, taking into account specific audiences and their needs.
6.1.2 The Hyogo Framework for Action (HFA)
Prior to the inception of Sendai Framework, the Hyogo Framework for Action (HFA)
also highlighted the importance, role of education and public awareness in building theculture of safety and resilience at all levels. The Hyogo Framework for Action 2005-2015,
has explicitly called for the “integration of disaster risk reduction as an intrinsic elementof the United Nations Decade of Education for Sustainable Development (2005–2014).
49

Experience shows that impacts of disasters can be substantially reduced if communities
are well prepared and ready to act and are equipped with the knowledge and capacities
for effective disaster management and Effective public awareness and education activities
help local communities acquire the skills and knowledge to make informed decisions on
how to reduce their vulnerability to disasters, enhance their capacity and adapt theirlivelihoods to withstand current and future risks, as well as to demand greater action andaccountability from those responsible.
6.1.3 The Global Platform for Disaster Risk Reduction (GPDRR)
During its various sessions for the safer future from disasters, the GPDRR has been
stipulating, the role of public awareness and education in building community resilience.
It significantly focuses on:1) Ensuring greater funding and action on safe education facilities, management andintegration of DRR in formal and non-formal learning.
2) Agreement towards for a common global framework on Education for DRR.
3) Secure greater South to South collaboration on good practice and lessons learning
for advancing DRR and Education.
4) The UNESCO supports countries to include DRR components into education
policies and plans as well as school programs and curricula to increase the level of
preparedness and protection of individual learners and entire communities.
Disaster preparedness work is linked with efforts to integrate education forsustainable development (ESD), including climate change adaptation into theeducation system with the overall aim of building resilient and sustainablecommunities through education. UNESCO’s work on DRR education refers to
key dimensions of an integrated approach on School Safety which encompasses

50

structural safety, as well as school disaster management and disaster prevention
education and curriculum development.
5) The DRR Education at global level has been coordinated, through the ISDR
Thematic Platform on Knowledge and Education (TPKE), which includes UN
agencies, International Organizations, International NGOs. TPKE platform, now
called Global Alliance for DRR knowledge and education, promotes joint multistakeholder strategies for enhancing knowledge and education for disaster risk
reduction as an intrinsic element of UN Decade of Education for Sustainable
Development (DESD), 2005-2014.40
6.1.4 The Red Cross Red Crescent National Societies
The Red Cross Red Crescent National Societies have a long tradition in working with
communities on disaster risks, increasing safety and resilience through campaigns,
informal education, participatory learning and formal school-based interventions. RCRC
National Societies have developed a wide array of tools to support these activities andhave carried out structured public-awareness and education activities on disaster
reduction. Many of these activities are connected to children and schools.
6.1.5 International Federation of the Red Cross
The International Federation of the Red Cross produced a guide on public awareness andpublic education (PAPE) for DRR, as well as in 2012 key DRR messages to be used in
PAPE activities.
As per NDM Act 2010, the National Disaster Management Authority (NDMA) has
mandated to “promote general education and awareness in relation to disastermanagement” in the country. Similarly, the Provincial Disaster Management Authorities

40

Elaine Enarson and P. G. Dhar Chakrabarti, Women, Gender and Disaster, 1st ed. (New Delhi: Sage
Publications India Pvt, Ltd., 2015).
51

are also required to “promote general education, awareness and community training” attheir respective provinces / regions.41
6.2

National DRR Policy Perspective

Under National Disaster Risk Reduction Policy (NDRRP), the Intervention No.
3.2.4“Promoting risk awareness and knowledge through DRR education vide "Promoting
DRR through public awareness campaigns” stipulates that “Reaching the wider publicwith DRR messages requires clearly targeted awareness campaigns with clear objectives,
core target groups and appropriate methodologies that ensure messages reach men andwomen. The NIDM has an important role to play in advising on the design of suchcampaigns but also in creating capacity within NDMA, PDMAs and DDMAs to design,
conduct and evaluate public awareness campaigns in the appropriate regional languages.

Source: NDMA Pakistan

41

Shahab e Saqib et al., "Factors Influencing Farmers' Adoption of Agricultural Credit as A Risk
Management Strategy: The Case of Pakistan", International Journal of Disaster Risk Reduction 17, no. 5(2016): 67-76.
52

The intervention calls for “Promoting DRR education in schools and colleges” stipulates
that the integration of DRR into the education syllabus at all levels should focus uponcreating awareness of priority hazards, mitigation or prevention options and building
basic self-help and mutual-help capacities through school-based preparedness or safety
plans (covering recovery of functionality in a post-disaster situation). School
preparedness needs to be linked into wider community-based DRR plans andmechanisms as schools may serve as shelters and safe havens in disaster situations. For
better coverage it is important that DRR education is also promoted in private andreligious schools. Peer mechanisms are effective in reaching out of school children andyouth.
Moreover, the intervention also emphasizes, “Promoting professional and technicaleducation” stipulates that Professional and technical education in DRR needs to beenhanced through a range of activities including:i.

The development of DRR as a professional discipline needs to be further
promoted at national and provincial levels through high-quality academic
programs while agreeing on common curricula standards.

ii.

The curricula of graduate and postgraduate courses in architecture, engineering,
medicine, earth-, environmental and social sciences need to be further updated toincorporate the latest DRR knowledge and practices.

iii.

Everyday emergency responders (ambulance services, police, fire services require
enhancement of their training and skills through dedicated DRR training.

iv.

Integrate DRR into curriculum of Civil Defense Training Institutions.

v.

At the local level training initiatives require support that target artisans such asbuilders and masons, and train them in hazard-resistant construction, focusing
upon non-engineered buildings.
53

vi.

Vide Section 4.6 under “DRR Mainstreaming in Education System” stipulates
that DRR agenda will remain inconclusive unless the national education system ismade an integral part of it. Efforts are already underway to mainstream DRR in
education curricula at all levels (school, college, university). However, the task at
hand is to develop the DRR curricula in national and regional languages for
subsequent mainstreaming. NDMA will facilitate the process of developing DRR
curricula in consultation with relevant forums. Similarly, an appropriate
mechanism will be devised to review with DRR lens the curricula of graduate andpost-graduate level courses in architecture, engineering, and earth sciences, etc.42

42

Atta-ur- Rahman, Disaster Risk Reduction Approaches in Pakistan, 1st ed. (Tokyo: Springer Verlag,
JAPAN, 2016).
54

CHAPTER-7
7. Community Based Early Warning System in Pakistan

The community based early warning practices in disaster prone particularly in rural areas
rely upon public awareness through mosque
loudspeaker to inform entire community
about evacuation and counter-measures tosave lives and their belongings in case of any
flood, earthquake and other hazard. The
limitationsofcommunication

and

the

message dissemination further require for
exceptional measures to avoid prototype
warning methods of door to door knocking and the community gatherings.43
In Pakistan, the bulk of recent disasters are weather-related and this proportion is likely
to grow as climate change processes increase unpredictability and intensity of weather
events. While natural hazards cannot be
prevented, they only get turned into
disasters when affected communities arevulnerable and unprepared. Community
based Early Warning Systems (CBEWS)
have proved beyond doubt to save lives
and reduce economic losses; however,Source: NDMA Pakistan
they have not yet been an integral part of the disaster management and risk reduction
initiatives.

43

Adenrele A Awotona, Planning for Community-Based Disaster Resilience Worldwide, 1st ed. (Abindon:
Routledge, 2016).
55

People Gather around the notables of thecommunity to learn about the disasterhazards and possible measures to avoid
losses during the disasters. In villages,
the notable person is usually an elder ofthe community or a religious scholar andorsometimes

theeducatedpeoplebelonging to the same community hold gathering of their community people to sensitize
them about the disaster issues. The non-governmental organizations often support suchactivities with their limited capacities however, the need of usage of modern disaster
forecast equipment requires significant expertise and such limitations frequently hamper
the disaster reduction efforts of the community.

Year

Earthquakes in Pakistan
Earthquakes are the deadliest disaster in Pakistan
Number of Modern Earthquakes
Magnitude
DeathsAreas affected

August 24, 1931

7–

Sharigh valley, Baluchistan

August 27, 1931

7.4–

Mach, Baluchistan province

May 31, 1935

7.7

60,000Districts of Baluchistan

November 27, 1945

7.9 or 8 (tsunami)

4,000

Makran-Sindh coastal areas

December 28, 1974

6.2

5,300

Districts of the Khyber province

October 8, 2005

7.8

80,000Parts of Khyber and Azad Kashmir

October 29, 2008

6.4

216

Quetta, Baluchistan

January 18, 2011

7.2

2

Baluchistan

Source: pakistanweatherportal.com

56

The community early warning system in disaster prone and rural areas use publicawareness through mosque loudspeaker to inform the entire community about countermeasures to save lives and their belongings in case of any flood, earthquake and anyother hazard moreover, the limitations of communication and the message dissemination
further requires for exceptional measure to use prototype warning methods of door todoor knocking and the community gatherings. However, the Early warning systems
contribute with early detection of undesirable situations. Early warning is the provision oftimely and effective information, through identified institutions at national level thatallows individuals exposed to hazard to take action to avoid or reduce their risk andprepare for effective response. This definition encompasses the range of factors necessary
to achieve effective responses to warnings. A people-centered early warning system
necessarily comprises four key elements: knowledge of the risks; monitoring, analysis
and forecasting of the hazards; communication or dissemination of alerts and warnings;
and local capabilities to respond to the warnings received. The expression end-to-end
warning system is also used to emphasize that warning systems need to span all steps
from hazard detection through to community response.
Since year 2000 and onwards, in socioeconomic terms Pakistan has been
greatly affected by impacts of natural
disasters. The damage incurred as aconsequence has severely impeded
national progress and fulfillment of
global commitments.
Prominent reasons of severe impact
remained related to somewhat limited
57

early warning capability and partial or no community level outreach. However, with thehelp of modern technological methods of Early Warning System, the scale of destruction
due to natural disasters could be reduced.
Pakistan is to prone to many disasters. In disaster, response and recovery are time
consuming and resources needed activities. In a country like Pakistan where resources areshrinking, population is increasing, changing priorities then it becomes very difficult toovercome these disasters. The earthquake of October 2005 not only killed 73,000
precious lives but also caused an estimated loss of US$ 5.2 billion. Moreover, the flood in2010 and 2011 brought thousands of casualties and displaced people. It estimated that therisk of the disasters will increase due to climatic changes.44
In Pakistan before 2005 earthquake only
federalflood

commission

provideinformation about flood. Rest there was nosuch a responsible institution to provide
early warning for other hazards. Now wehave national disaster management authority(NDMA)

andthesupporting

bodies’provincial disaster management authorities (PDMA) and district disaster management
authorities (DDMA) to provide early warning at national, provincial and district levels.
River Kabul and river swat are flowing in the study area. The level of water in river
Kabul and river swat increase during the monsoon season and causes flood during thisseason. The community residing near Kabul and Swat River is at great risk due to flood.

44

Margaret Macherera and Moses J. Chimbari, "A Review of Studies On Community Based Early Warning
Systems", Jàmbá: Journal of Disaster Risk Studies 8, no. 1 (2016): 11-14.
58

Therefore, it is important that the existing early warning system should be efficient andimproved in the study area.45
Since, the term Early Earning is a measurethat aims at the provision of information onanemerging

dangerous

circumstance

where that information can enable action inadvance to reduce the risks involved.

There are some community based
disastervolunteer

workingwithorganizations

limitedresources

however, there is need of proper
training of those volunteers about DRR issues so that prior to occurrence of disaster theywould educated about the prospective issue they could cope with during the disasters.

45

Andrew Wilder, "Aid and Stability in
Response", Disasters 34, no. 9 (2010): 406-426.

Pakistan:59

Lessons

from

The

2005

Earthquake

7.1

Institutional Commitments for Community Capacity Building
7.1.1 The NDMP Perspective

The National Disaster Management Plan (NDMP) of Pakistan under the “Comprehensive
Human Resource Development Plan” has chalk out a comprehensive human resource
development Program that could serve the national cause of the disaster management
amidst emergency periods.
The Human Resource Development
Plan of NDMP under the Priority
Actions and Programs for the Ten
Years starting from 2012 to 2022 has
pledged a number of initiatives vide
followingstrategiesondisastereducation and awareness:
1. Vide Intervention- 5 - Promotion of Training, Education and Awareness in Relation to
Disaster Management:
a. Develop NIDM (National Institute of Disaster Management) to promote humanresource development in the field of disaster management.
b. Enhance the capacity of government agencies in charge of disaster management.
c. Promote mainstreaming DRR through capacity enhancement of governmental
officers.
d. Develop the capacity of communities to cope with disasters.
e. Raise people's awareness of disaster management
2. Vide Intervention-6- Strengthen Awareness Program on Disaster Risk Reduction at
Local Level:a. Enhance knowledge on disasters management in the general public.
60

b. Establish safe evacuation places in the case of disaster situation.
c. Implement and disseminate CBDRM activities.
d. Disseminate self-help and mutual help efforts in disaster management.
e. Establish disaster mitigation measures incorporated with existing development
program.
3. Vide Out-put/ Activities on Education / Awareness highlights that NIDM will takeinitiative for improvement of human resources in the field of Disaster management
through: a. Setting up of organization of NIDM, construction of NIDM building complex,
establishment of a library and Disaster Information Resource Center (DIRC)
specialized for disaster management and promotion of research in the field of
disaster management.
b. Capacity of governmental staff who are in charge of DRM to be enhanced
through implementation of DRM training courses for F/G/S/PDMAs and DDMAs
staff, capacity enhancement of urban search and rescue teams, implementation ofregular refresher trainings for district fire brigades and Implementation of DRM
workshops for TMA staff.
c. Capacity of staff of government offices related to disaster management to beenhanced for mainstreaming DRR activities for their implementation including
implementation of DRM workshops for relevant ministries, implementation of
DRM workshops for relevant departments of provincial governments and state
governments, implementation of DRM workshops for district
capacity

governments,of staff of government offices related to disaster management isenhanced for mainstreaming DRR activities for their implementation

andIncorporation of DRM subjects into curriculum of government training institutes.
61

d. Capacity of communities to be enhanced to cope with disasters throughimplementation of DRM workshops for community leaders and search and rescue
trainings for members of community emergency response teams.
e. Making Individuals Aware of DRM through implementation of awarenesscampaigns for the general public, promotion of disaster education at schools andimplementation of DRM workshops for university students.46
7.1.2 The NIDM Perspective
NDM Act- 2010 stipulates the responsibilities of NIDM as “NIDM shall be responsible
for planning and promoting training and research and developing core competencies in
the area of disaster management, documentation and development of national level
information base relating to disaster management policies, prevention mechanisms andmitigation measures.” The activities are categorized into following four categories: 1) Education:i.

Incorporation of disaster management subjects into curriculum of governmental
staff general training.

ii.

Promotion of disaster education in basic education.

iii.

Promotion of disaster education in higher education.

2) Awareness:i.

Holding of national disaster management exhibition, seminars, workshops,
conferences etc.

ii.

Awareness campaign through media.

3) Training:

46

i.

Training of NDMA staffii.

Training of F/G/S/PDMA staff

Shaheen Ashraf Shah, "Gender and Building Homes in Disaster in Sindh, Pakistan", Gender &Development 20, no. 2 (2012): 249-264.
62

iii.

Training of DDMA staff

iv.

Training of TMA staff through DDMAv.

Training of Staff of Federal Ministries

vi.

Training of university students

4) Promotion of Comprehensive HRD:a.

Enhancement of coordination among organizations which conductcapacity building in the field of disaster management.

b.

Technical advisories and assistances for human resource development
activities in the field of disaster management.47

47

Naim Kaput and Kuotsai Tom Liou, Disaster and Development, 1st ed. (Cham: Springer, 2016).
63

CHAPTER-8
8. Disaster Context & Warning System in JapanThe Japan as a developed country has
outstanding mechanism for the early
warning system for tsunamis, floods,
volcanic eruptions and many otherdisasters. The early warning systemessentially helps the communities tominimize the levels of damages andlosses during disaster period. The early
warning-related Government Departments have only implemented limited measures.
However, in addition to these measures new institution for early warning system, newmodern technology, proper training of communities to sensitize them about the disasterissues and develop a mechanism to enable these communities to coordinate with thegovernment and non-profit organization about the issues they cope with during andbefore the occurrence of disasters. The national government, local governments, andresearch organizations have installed seismometers, seismic intensity meters, and tsunami
monitoring facilities throughout the country. The Japan Metrological Agency collects thisobservation data to monitor seismic activity and tsunamis. In Japan, to reduce disasterrelated damage at initial level, it is considered highly important to make residents of atrisk areas aware of safe evacuation methods and nearby evacuation routes and sites aheadof time so that they can take appropriate actions based on early warning information.48

48

Tomohiro Tabata et al., "Environmental and Economic Evaluation of Pre-Disaster Plans for Disaster
Waste Management: Case Study of Minami-Ise, Japan", Waste Management 61, no. 4 (2017): 386-396.
64

Japan has developed a system by which autonomous community disaster reduction
organizations or community-based fire brigades at the local levels guide the evacuation
process in the event of any risk of disaster. The public awareness is also considered as ahigh value objective and September 1 (the day of the 1923 Great Kanto Earthquake) has
been designated Disaster Day in Japan. The week from August 30 to September 5 has
been declared Disaster Week. During this time, many disaster reduction drills andoutreach activities are conducted.49
The Japan has developed early warning system to cater for almost all hazards in the
country. Based on disaster understanding, Japan has improved early warning mechanism
to make it the finest state of the art system and the reach covers nationwide service. JMA,
FDMA, MLIT, Prefectural and Municipal governments are in the forefront in ensuring
the dissemination of early warning to the Japanese households and residents. Using
multiple methods and platforms for dissemination, the early warning mechanism triggers
timely community response in Japan. Hazard maps, drills and exercises increase the levelof responsiveness on what actions to be carried out when an early warning is issued. The
Japan’s early warning system encompasses a well organized mechanism to address thedisaster relevant information that is based upon a series of institutional capacity to watch
and disseminate real-time disaster information so that it may become useful for the risk
prevention. The information helps the whole spectrum involved including individuals,
communities and the organizations that may become prone to the disaster hazards.50
The information also helps each of the stakeholders for prior preparation and proper
reaction in advance so that the disaster risk and loss of life and resources may effectively
be avoided.

49

Jeff Kingston, Natural Disaster and Nuclear Crisis in Japan, 1st ed. (Hoboken: Taylor & Francis, 2012).

50

Itoko Suzuki and Yuko Kaneko, Japan's Disaster Governance (New York: Springer, 2013).
65

8.1

Early Warning System in Japan

Today Japan has become one of the leading countries in the world to effectively manage
the disasters in pre and post occurrence scenarios. The country has development somemost advanced versions of early warning equipment that are continuously being upgradedby time and again. The early warning information evacuation prior to the occurrence of atsunami or any other disaster is well calculated and ensured the message should reachevery concerned person and organization. The early warning about disasters during thedisaster period is imminent information upon which propriety and life of people depend
therefore, all means and resources including town level radio communication systems, JAlert (a satellite based system that allows authorities to quickly broadcast alerts to local
media and to citizens directly via system of speakers), television, mobile phones etc are
utilized, and tsunami warnings are effectively delivered to the people.51

Source: Japan Metrological Agency (Japan)

51

Paul Bacon, Human Security and Japan's Triple Disaster, 1st ed. (London: Routledge, 2014).
66

8.2
Japan Meteorological Agency (JMA)
The Japan Meteorological Agency (JMA) is the national organization that manages all
the affairs related to the issuance of the disaster early warnings. The organization is
mandated for the provision of accurate and real-time disaster and hazard information to
the governmental organizations, prefecture governments, municipality and the residents
for the purposes of avoiding the disaster affects. In its structural framework with thecentral government of Japan, the Japan Metrological Agency works as an extraministerial institution with Ministry of Land, Infrastructure, Transport and Tourism(MLIT). The organization with its own capability and also through joint venture withother national organizations, issues almost all the early warning messages about thehazards and disasters.
The Japan Metrological Agency for its part of the Disaster Response Mechanism
provides apt and exact disaster information various disaster management authorities ofJapan that aims at delivering such information to the masses through governmentalorganizations. Such disaster information effectively comprises of warnings, advisories
that include:Warnings and advisories on weather, high tides, high waves and flooding;

Earthquake Early Warnings;

Tsunami Warnings and Advisories;

Volcanic Warnings;

Proving timely information about typhoons, heavy rain, tornadoes, earthquakes,
tsunamis, volcanic eruptions etc.

The Japan Metrological Agency is also mandated with monitoring, forecasting anddevelopment of warnings for various kinds of risk and natural hazards like earthquakes
and changing pattern of weather conditions. These forecasts also cover monitoring of67

heavy rain, high snow and storm surges. The Japan Metrological Agency in collaboration
with the River Bureau of Ministry of Land, Infrastructure, Transport and Tourism(MLIT) or prefectural governments also issues flood warnings during the flood hazard
times.52
The Japan Metrological Agency also manages the development of warning systems thatcover weather situations including storm, snow-storm, heavy rain, heavy snow, storm
surge, high waves and flood, volcanoes, tsunamis and earthquakes. Moreover, it also
issues early warning alerts about extreme weather conditions. The organization incollaboration with Hydrological Services at national and municipal levels also manages
collective reasonability about issuance of river flood warnings, sediment disaster alerts,
with sediment control authorities at a municipal level. It has the mandate of cooperatingwith many other agencies for collecting and providing hazard/risk information in order tosupport the national emergency planning
process. The hazard risk information isusually obtained through effective early
warning systems that are utilized for thefacilitation of the early evacuation of thevulnerable people besides assisting for theactivities of the various counterpart disastermanagement organizations.
Source: Japan Metrological Agency (Japan)
To monitor the various natural phenomena and weather conditions, the Japan
Metrological Agency also operates 24/7 monitoring system that provides it with ability to
52

K. Lee Lerner and Brenda Wilmoth Lerner, Environmental Issues, 1st ed. (Detroit, Mich.: Thomson Gale,
2006).
68generate forecasts and early warning information about the earthquake and possibly
generation of tsunami and various other types of the severe weather conditions. It
significantly incorporates the results of examining and forecasting the warning updates
about the sediment disaster alerts for municipalities and the local governments. The
process is operative in shared responsibility pattern through collaboration oforganizations including the Japan Metrological Agency and prefectural governments andHydrological Services for flood situation and warnings about designated rivers.53
8.2.1 Tsunami Early Warning
During the outbreak of earthquakes, the Japan Metrological Agency through its capability
estimates about the possible occurrence of the tsunami. The organization issues warnings
and advisories to evacuate in case of the threat of tsunami. The Japan Metrological
Agency in such a situation issues tsunami early warnings information and alerts shortly
within a time of three minutes following an earthquake.

Source: Japan Metrological Agency (Japan)
53

Sten Lennquist, Medical Response to Major Incidents and Disasters, 1st ed. (Heidelberg: Springer, 2012).
69

The Japan Metrological Agency along with Pacific Tsunami Warning Center (PTWC)
also engages into the coordinated actions while origination of the tsunamis by seismic
developments. The messages and early information disseminated through the warning
system covers tsunami level and the expected time of its influx particularly in the coastal
region.
8.2.2 Earthquake Early Warning System
The Japan Metrological Agency along with various national organizations working for
the weather related issues has installed and maintaining seismometers for analysis of theepicenter location and the magnitude level of the earthquake and forecast about thepossible tsunami. The seismic intensity meters installed at various places, measure theintensity according to the ground motion and constantly monitor the developments andthe seismic activities.

Source: Japan Metrological Agency (Japan)
The occurrence of the earthquake is shortly analyzed by the Japan Metrological Agency
through its various installed seismometers and modern equipments. The Japan70

Metrological Agency within a short period of almost 1.5 minutes becomes able to issue
seismic intensity information report for earthquakes starting at the intensity level 3 orhigher magnitude.54 The organization within a time of around five minutes also provides
an information report related to the earthquake that also indicate details about theepicenter and severity at various location including the earthquake’s seismic intensity andshock observation.
The Earthquake Early Warning (EEW) information is used for the announcements of thepredictable hypocenter and magnitude of an earthquake as well as the possible reaching
period the S-waves of any earthquake including the level of seismic intensity in the area.
This accurate analysis based upon the calculated information through detecting the Pwaves near the epicenter that follow a procedure of prompt data analysis keeping in view
the speed differences of the P-waves that are comparatively quicker than the S-wave andresult into high destruction.

Source: Japan Metrological Agency (Japan)

54

Koichi Shiwaku, Aiko Sakurai and Rajib Shaw, Disaster Resilience of Education Systems, 1st ed.
(Tokyo: Springer, 2016).
71

Amidst scenarios of the large-scale ocean trench-type earthquakes, there can be a time lagof short to large timescale between the issuance of the earthquake early warning
information that follow the scenario resulting in severe shaking nearly arrival of the Swaves. Such a scenario can be highly critical to decide and disseminate the information to
avoid the damage by stopping trains and elevators, extinguishing flames, finding safer
places and or crawling under the tables to avoid injury and loss.55
The process of research and development is in vogue and continuously supported
collectively by Japan Metrological Agency and various other stakeholders andorganizations. The issuance of the earthquake early warning information to targeted
entities such as railway companies is under practice since 2006. The earthquake, tsunami
and various other disaster early warnings are immediately conveyed to central andprefectural governments, broadcast ring
agencies, mobile service providers andother sources whereby the prefecturaland local government administrations
initiate the alarm system further to reachevery nook and corner through sirens or
microphones.56
The

Japan

earthquake

Metrologicalwarning

AgencysystemsareSource: JMA (Japan)
effectively capable of issuing alerts a few seconds before the occurrence of theearthquake. The advanced technological means and efficient practices have enabled it to55

Federica Ranghieri and Mikio Ishiwatari, Learning from Mega disasters, 1st ed. (Washington (DC):World Bank, 2014).
56

Rajib Shaw, Juan M Pulhin and Joy J Pereira, Climate Change Adaptation and Disaster Risk
Management, 1st ed. (Bingley: Emerald, 2010).
72

issue warnings that are transmitted through various sources of media including Radio, TV
and other sources to ensure the prompt dissemination of the message and halting all theoperations and slowing down trains, controlling elevators to avoid danger and enabling
people to immediately evacuate to find a safer place to avoid disaster affects. Such early
warning information are based upon analysis of the seismic intensity that help in deciding
the prospective arrival time of major motion amidst the occurrence of the earthquakes.57
The earthquake early warning information is generated from prompt data calculations
obtained through national seismic networks.
8.2.3 Flood Early Warning System
The Japan Metrological Agency is also lead agency of Japan that effectively provides
flood forecasting services. Such forecasts are generated in collaboration with central andprefectural river management offices. The flood early warning information includes
warning about flood, evacuation and advisories that cover over 407 rivers throughout thecountry particularly those have been designated as sites of potential flood disasters byauthorities.58

Source: Japan Metrological Agency (Japan)

57

Miki Ozeki and Kan Shimazaki, "Change in Disaster-Prevention Consciousness Brought by Serious
Damage from A Large Scale Disaster: Studying The Kumamoto Earthquake in 2016", Journal of Disaster
Research 13, no. 1 (2018): 199-204.
58
Manabu Segawa, Kouzo Ito and Toshisuke Maruyama, "Flood Discharge Changes by Urbanization from
Farmland Based On the Unit Flood Concept at The Kurabe River, Japan", Open Journal of Modern
Hydrology 07, no. 03 (2017): 223-243.
73

The flood early warning system for 289 out of 407 rivers is jointly managed by the Japan
Metrological Agency and the Ministry of Land, Infrastructure, Transport and Tourism
whereas, rest of 118 rivers are managed collectively by the Japan Metrological Agency
and prefectural governments in Japan. Moreover, the Japan Metrological Agency has
arranged a mechanism of declared rangeof rivers that are flood Warning Riversites and also including medium to small
rivers under the responsibility of thelocal governments for management.59
8.2.4 Sediment

DisasterWarning

SystemLikevariousotherdisasterearlywarning system, the Japan Metrological
Agency has also established a mechanism of sediment disasterin(Japan)collaboration with
Source:alerts
JMA
the prefectural governments. Such collaboration is comparable with hydrological services
for flood warnings.
There is also set of measures by prefectural administrations that have soundly developed
networks of precipitation measurements and topographical and geological information
systems and hazard mapping.
Together with the combination of all such sources, Japan Metrological Agency andprefectures issue collaborative sediment disaster alerts that specify cities, towns andvillages affected by the sediment hazard. When a Heavy Rain Warning is issued,
Sediment Disaster Alerts are issued jointly by Ministry of Land, Infrastructure, Transport
59

Kumiko Fujita, Rajib Shaw and Yukiko Takeuchi, "Linking Mountain Community Practices to
Sediment-Related Disaster Risk Reduction in Reihoku, Japan", Asian Journal of Environment and Disaster
Management (AJEDM) - Focusing on Pro-active Risk Reduction in Asia 04, no. 02 (2012): 225.
74

and Tourism and prefectural government and the civil engineering bureaus when
sediment-related damage caused by heavy rain is considered likely within the next few
hours.
8.2.5 Volcanic Eruption Early Warning System
For monitoring the seismic and volcanic activity throughout the Japan, the Japan
Metrological Agency is enthusiastically involved in operational activities and also issues
important warnings and timely information to the community that exceptionally help indamage mitigation that can be caused by the earthquakes, tsunamis, volcanic eruptionsand various other kinds of disasters. The Japan Metrological Agency has initiated theprocess of volcanic early warnings and forecasts since December 2007. 60 The systemcovers all active volcanic sites of Japan. The system has greatly contributed in thedamage mitigation that could result from volcanic activity.

Source: Japan Metrological Agency (Japan)

60

Youichiro Takada and Yo Fukushima, "Volcanic Subsidence
Earthquakes", Journal of Disaster Research 9, no. 3 (2014): 373-380.
75

TriggeredbyMegathrustThe early warning for volcanic eruption is issued in relatively likely volcanic disasters. It
also imparts advisories to the community about evacuation of the people to safer places
and necessary actions that should be taken by the people and local government.
8.2.6 Emergency Warning System
From 30 August 2013, the Japan Metrological Agency has also launched an Emergency
Warning System. The Emergency Warning is used to provide information about
likelihood of catastrophes and other types of emergencies. The alert helps communities totake necessary measures and observe precautionary measures.

Source: Japan Metrological Agency (Japan)
The initiatives like J-Alert are a process effective across the nation for emergency
warnings. The J-Alert was launched in February 2007 in Japan. The process was
designed to promptly notify communities about likelihood and actuality of various types

76

of threats.61 The development of such systems aims at early warnings that also help in
speeding- up the evacuation process and assist in coordination of emergency response.

61

Susumu Kurahashi, "Tsunami-Generation Warning System
Warning", International Journal of Geomate 9, No. 13 (2015): 22-27.
77

Using

Earthquake

Early9. CONCLUSIONThe Early Warning Systems are an effective source of weather and disaster forecast thatgenerate data by analysis that focuses on systematic data collection, investigation andprovision of well estimated result based recommendations. The process of early warning
also includes risk assessment and information dissemination based on qualitative andquantitative or a blend of both data sources. The early warning systems enhance thecapacities of the governments that in actuality mean a mechanism of investing in local
competence. The effective means of early warning systems effective serve as capacity
building resource that empower people at grassroots levels and also facilitate a process oftransparent interaction between government, civil societies and the vulnerability
communities of disaster prone areas.
The empowerment and sensitization of the community is highly effective in overcoming
disaster affects. The governments who focus on community based capacity building
experience lesser losses. The ownership and the realization is also a necessary questionthat should be prioritized by both i.e. governments and the community.
In Japan, organizations involved in disaster reduction, especially the Japan
Meteorological Agency (JMA), Ministry of Land, Infrastructure and Transport (MLIT)
including prefectural authorities use 24/7 hazard vigilance systems that provide carefulmonitoring of various natural phenomena and weather conditions. In addition, the news
and broadcasting system in Japan is effectively utilized as one of the major sources for
distribution of early warning information to communities. The national government andlocal government organizations have significantly concluded agreements with the Japan
Broadcasting Corporation (NHK) and other broadcasting and FM radio stations that
disseminate the disaster updates and warning information through their broadcasting.

78

Such a collaborative structure helps communities to work for the establishment of
supportive systems for disaster management.
As a comparative analysis, there is wide gap between disaster preparedness andcommunity based early warning practices in Japan and Pakistan. The advanced
technological means and utilization of state institutions is highly supportive for the cause.
Apart from the post disaster scenario, the broadcasting system and the mobile network
services can be highly helpful to reach communities in every nook and corner andmitigate the disaster affects.
In Japan, the use of technological means and information provided by manyorganizations including news broadcasters, prefecture governments, central government
and various research institutes helps communities to better arrange for disaster
preparedness. In case of Pakistan, the similar level of information at the governmental
level is available however; the interpretation of the information is key obstacle in disaster
preparedness of communities. To overcome, this issue, there is high need of capacity
building, educating people about DRR issues, usage of various tools and first aid
equipment and arranging mock drills.

7910. RECOMMENDATIONS•

The participation of the community is highly beneficial since, the CBDM
activities aim at development disaster management capability of the communityand effective risk management therefore, it is highly essential the authorities
should take communities on board so that they may become able to prepare
disaster readiness plan.

•

The disaster information is one of the important factor of the disaster management
activates therefore, the timely information would help communities to anticipate
the disaster risks and assess their hazard vulnerability thus avail the chance tomakenecessaryarrangements,takeappropriate

preparedness

andcountermeasures support of authorities.
•

Although access to relevant information is essential for adequately disaster
preparedness, it is not sufficient. Community capacities must be developed up to
the level that they may become self-sufficient to prepare and initiate effective
disaster risk reduction strategies in a timely way.

•

To achieve the disaster mitigation goals, it is crucial to enhance capacity ofcommunities through mock exercises and other participatory forums withparticular focus to communities living in the flood and earthquake prone areas.

•

The local government at districts levels (as being practiced in Japan at prefecturallevels) can assist communities to develop and manage community level disastermanagement plans, mapping and evacuation places. These plans will provide aroad map according to which communities will be able to implement key disaster
preparedness and response actions.

•

The key components of the community disaster preparedness plans should focus
on land and resource use planning. Such measures would enable community to80

evaluate existing loopholes and verify how resources are affected by weather
patterns and thus develop relevant initiatives that can reduce the potential
negative impact of disasters on their lives and livelihoods.
•

Individual motivation for the cause of disaster preparedness can mobilize whole
nation to manage the disasters effectively and collectively.

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