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Foreword

Building disaster resilience is not an option. Past events have clearly demostrated
the far reaching, detrimental impact of disasters on hard-won development gains.
I congratulate the National Disaster Management Committee for preparing the"Myanmar Action Plan on Disaster Risk Reduction 2017", which lays out the path thatmust be followed to make our country disaster resilient. The backbone of our nation
is our people and their role in the implementation of the Plan cannot be overstated.
Let us all join with the National Disaster Management Committee to build a truly
disaster resilient Myanmar.

H.E. Daw Aung San Suu Kyi
State Counsellor, Republic of the Union of Myanmar
9-10-2017imessage

Myanmar Action Plan on Disaster Risk Reduction has crafted a determining featureof disaster risk reduction landscape in Myanmar and gone beyond the traditionalrelief and response measures towards preparedness and prevention in undergoingdisaster management.
The Action Plan covers not only natural hazards but also man-made disasters andwill be implemented through a people-centred and inclusive approach focusing on
managing risks rather than managing disasters.

H.E. U Henry Van Thio
Vice President, Republic of the Union of Myanmar
Chairman, National Disaster Management Committee
9-10-2017

ii

iii

iv

table of Contents

Foreword			
Message			iii

Preface				iii

Executive Summary		

iv

Table of Contents		

v

List of Tables and Figuresvii

Acronyms and Abbreviations

viii

1.

Development, Disaster Risk and Resilience in Myanmar: Context

1

1.1

Myanmar’s Development Vision3

1.2

Development and Disasters: Lessons Learnt

4

1.3

Disaster and Climate Risk in Myanmar

5

		

1.3.1

Hazard Profile of Myanmar

5

		

1.3.2

Climate Change and Variability

6

		

1.3.3

Vulnerability, Exposure and Trends

6

1.4

Legislative and Institutional Arrangements for Disaster Risk Management

8

		

1.4.1

Government’s National and Sub-National Disaster Risk Management Arrangements 8

		

1.4.2

Disaster Risk Reduction Networks

9

Private Sector

9		1.4.3
1.5
2.

Overview of MAPDRR 2012 and its Achievements

Visioning Disaster Resilient Myanmar: Vision, Principles and Targets

10
11

2.1

Rationale for MAPDRR 2017

13

2.2

MAPDRR 2017 Formulation Process

14

2.3

Defining MAPDRR 2017

16

2.4

Vision and Guiding Principles

18

2.5

Scope 		192.6MAPDRR 2020 Milestones and 2030 Targets

20

		

2.6.1

MAPDRR Targets and Indicators

20

		

2.6.2

Milestones 2020

21

2.7
3.

MAPDRR Linkage with SDGs, Paris Agreement on Climate Change

Pillars of Disaster Resilient Myanmar: Priority Actions
3.1

Overview of MAPDRR Pillars

3.2

Pillar 1: Assessing Disaster Risk, including Extreme Weather Events and Creating

		

22
25
27

Public Awareness on Disaster Risk Reduction in Myanmar

31

		3.2.1

Introduction

		

3.2.2

Approach and Objectives

31

		

3.2.3

Priority Actions: Pillar 1

32

3.3

31

Pillar 2: Strengthening Disaster Risk Governance to Reduce and Manage Risk

39

		3.3.1

Introduction

39

		

3.3.2

Approach and Objectives

39

		

3.3.3

Priority Actions: Pillar 2

40

v

3.4

Pillar 3: Mainstreaming Disaster Risk Reduction for Resilient Development in Myanmar

45

		3.4.1

Introduction

45

		

3.4.2

Approach and Objectives

45

		

3.4.3

Priority Actions: Pillar 3

46

3.5
		

Pillar 4: Enhancing Disaster Preparedness for Effective Response and Resilient
Rehabilitation and Reconstruction in Myanmar

53

		3.5.1

Introduction

53

		

3.5.2

Approach and Objectives

53

		

3.5.3

Priority Actions: Pillar 4

54

4.

Marching Towards Disaster Resilient Myanmar: Implementing the Action Plan

63

Implementation Arrangements for MAPDRR 2017

65

4.1.1

MAPDRR 2017 Steering Committee

65

		

4.1.2

Lead Implementing Agencies

66

		

4.1.3

Other implementing Partners for MAPDRR 2017

67

4.1.
		

4.2

Financial Resources

68

4.3

Communications Strategy

70

4.4

Monitoring and Evaluation

71

4.5

Key risks

73

Annex A :	National Disaster Management Committee and Work Committees

77

Annex B:	List of Key Consultations during Drafting MAPDDR 2017

79vi

List of tables and figures
Tables :Table 1.1		

Impact of Disasters on Key Development Sectors in Myanmar

4

Table 1.2

Hazard Profile of Myanmar

5

Table: 1.3

Number of projects under MAPDRR 201210

Table 2.1

MAPDRR 2017 Technical Working Groups

14

Table 2.2

Number of Priority Actions in each Pillar

19

Table 2.3

Targets and Indicators

20

Table 2.4

Linkages between MAPDRR 2017 Pillars and Other Policy Documents

23

Table 3.1

Priority Actions and Lead Ministry/Department

27

Table 3.2

Priority Actions: Assessing Disaster Risk, including Extreme Weather Events and		Creating Public Awareness on Disaster Risk Reduction

32

Table 3.3

Priority Actions: Strengthening Disaster Risk Governance to Reduce and Manage Risk

40

Table 3.4

Priority Actions: Mainstreaming Disaster Risk Reduction for Resilient Development

46

Table 3.5

Priority Actions: Enhancing Disaster Preparedness for Effective Response and		

Resilient Rehabilitation and Reconstruction

54

Figure 1.1

Organogram of Disaster Management Bodies in Myanmar

8

Figure 2.1

Key Steps in Developing MAPDRR 201715

Figure 2.2

Phased Approach to Disaster Resilient Myanmar

17

Figure 4.1

Institutional Arrangements for Implementation of MAPDRR 201766

Figures :vii

Acronyms and Abbreviations
AADMER:ASEAN Agreement on Disaster Management and Emergency Response

CCA:

Climate Change Adaptation

CDA:

Community Development Association

DACU

:

Development Assistance Coordination Unit

DICA

:

Directorate of Investment and Company Administration

DM:

Disaster Management

DMH:

Department of Meteorology and Hydrology

DMTC

:

Disaster Management Training Centre

DRM:

Disaster Risk Management

DRR:

Disaster Risk Reduction

DSW:

Department of Social Welfare

DUHD

:

Department of Urban and Housing Development

DWIR

:

Directorate of Water Resources and Improvement of River Systems

ECD:

Environmental Conservation Department

EOC:

Emergency Operation Centre

FSD:

Fire Services Department

GAD:

General Administration Department

HCT:

Humanitarian Country Team

IASC

:

Inter-Agency Standing Committee

IOM:

International Organization of Migration

IWUMD

:

Irrigation and Water Utilisation Management Department

MAPDRR:

Myanmar Action Plan on Disaster Risk Reduction

MCDC

:

Mandalay City Development Committee

MDLD

:

Myanmar Disaster Loss and Damage Database

MEC:

Myanmar Earthquake Committee

MES:

Myanmar Engineering Society

MGS:

Myanmar Geosciences Society

MIMU

:

Myanmar Information Management Unit

MoALI

:

Ministry of Agriculture, Livestock, and Irrigation

MoC:

Ministry of Construction

MoHS

:

Ministry of Health and Sports

MoPF

:

Ministry of Planning and Finance

MPD-Network:

Myanmar Private Sector Disaster Management Network

MRCS

:

Myanmar Red Cross Society

MTU:

Mandalay Technological University

MU:

Mandalay University

NCDP

:

National Comprehensive Development Plan

NDMC

:

National Disaster Management Committee

NPT CDC:

Naypyitaw City Development Committeeviii

PAPRD:

Project Appraisal and Progress Reporting Department

PD:

Planning Department

PTD:

Post and Telecommunications Department

RRD:

Relief and Resettlement Department

SDC:

Swiss Development Cooperation

SDGs

:

Sustainable Development Goals

SFDRR

:

Sendai Framework for Disaster Risk Reduction

TWG:

Technical Working Group

UMFCCI:

Union of Myanmar Federation of Chamber of Commerce and Industries

UNDP

:

United Nations Development Programme

UNOCHA:

United Nations Office for the Coordination of Humanitarian Affairs

WRUD

:

Water Resources Utilization Department

YCDC

:

Yangon City Development Committee

YTU:

Yangon Technological University

YU:

Yangon University

ix

1 |

2 |

1.1
Myanmar’s Development Vision

Myanmar has embarked on an ambitious development trajectory and launched the Economic Policy of theUnion of Myanmar1, which envisages a people-centred, inclusive and continuous development of the country.
The balanced economic development across the states and regions is one of its key objectives. The country
aims to reach ‘a developed nation’ status (middle income country) that is integrated into the global community
with a seven to nine percent GDP growth rate annually on an on-going basis.2 This will contribute to lift millions
of people out of poverty and provide access to quality employment, housing, education and medical care. The
country is also taking steps to a balance between peace and development, as development without peace is
not durable, as is peace without development.3
The 12-point economic policy prioritised the rapid development of fundamental economic infrastructure suchas electricity generation, roads, ports, building environmentally sustainable cities, upgrading public services
and utilities, expanding public spaces, and making greater efforts to protect and conserve our cultural heritage.
In addition, it calls for the formulation of specific policies to increase foreign investment.
Myanmar is strategically located at the crossroads of East Asia, Southeast Asia and South Asia and has thepotential to be a regional hub for a multi-modal transportation-land-bridge between ASEAN, China andIndia.4 It entails creating power, transportation, logistics and communication systems, economic corridors andeconomic zones. It would lead to Myanmar’s full integration into the global value chain and regional production
networks. These interventions are likely to reshape the development and the disaster risk landscape of thecountry.
Myanmar’s development approach and framework, including its economic policy, calls for resilient development
as disaster is intimately connected to development. A disaster can put development gains at risk and at thesame time, the development choices made by individuals, communities and a country as a whole, can pave theway for unequal distributions of disaster risk.5

1
2
3
4
5

Union of Myanmar, Economic Policy of the Union of Myanmar, 2016.
Ministry of National Planning and Economic Development, National Comprehensive Development Plan, (2030), 2014.
Union of Myanmar, Speech of State Counsellor, the Myanmar Democratic Transition Forum, 11 August 2017.
Asian Development Bank, Myanmar: Unlocking the potential, ADB Economics Working Paper Series, July 2015.
United Nations Development Programme, Reducing Disaster Risk: A Challenge for Development, 2004.

| 3

1.2
Development and Disasters:
Lessons Learnt

The ambitious development trajectory of Myanmar can be severely derailed in hours or days by a disaster,
as the country is prone to hydrological, meteorological, geological, industrial and technological hazards. Key
development sectors were severely affected by disasters and Table 1.1 captures the impact (damage and losses)of two major disasters on key development sectors and the GDP of Myanmar.

Table 1.1:

Impact of Disasters on Key Development Sectors in Myanmar(Figures are in million kyats)6 7
Development Sectors

Cyclone Nargis 20086

Agriculture, Livestock and Fisheries

571,000 - 694,000

713,217

Industry and Commerce

Floods and Landslide 20157

2516,600

480,808

Housing

711,900

542,233

Education

116,300

50,772

Health

18,900

8,185

21

3.1

Total damage and loss as a percentage of the
GDP of the previous fiscal year

Disasters not only cause immediate damage, but they also have far-reaching implications, particularly onpoor rural households, small businesses, farmers and marginalized groups and can continue for several years
afterwards. A study,8 five years after Cyclone Nargis to analyze its social impact, found that the disaster had
a profound impact on the social and economic fabric of its affected communities. These effects evolved overtime, based on the strength of the community to cope, the effectiveness of aid efforts, subsequent external
events, and changes in the wider social and economic environment.
It is important to recognize that the impact of future disasters in Myanmar may be severely felt even beyond
its borders, as the country’s development vision envisages it as a hub of Asia. Therefore, any disruption in
Myanmar can affect the overall supply chain across East Asia, Southeast Asia and South Asia.

6
7
8

4 |

The Tripartite Core Group (TCG), Post- Nargis Joint Assessment Report, July 2008.
Government of the Republic of the Union of Myanmar, Myanmar Post-Disaster Needs Assessment of Floods and Landslides, July-September, 2015, November 2015.
The World Bank Group and et al, Another Nargis Strikes Everyday: Post-Nargis Social Impacts Monitoring Five Years On, 2014.

1.3
Disaster and Climate Risk in Myanmar

1.3.1 Hazard Profile of Myanmar
Myanmar is prone to almost all types of hazards, which include fire, forest fire, earthquake, strong wind/cyclone, storm surge, tsunami, landslide, floods, drought and industrial/technological hazards.9 In recent years,
the country is also witnessing a spate of localised disasters such as lightning and riverbank erosion. In 20142017, lightning led to the loss of 175 lives. During the same period, Myanmar also experienced loss of 261 and782 llives due to riverbank erosion and strong wind respectively.10 The 2015 floods caused damages and losses
amounting to USD1.5 billion,11 while the 2008 Cyclone Nargis led to USD4.1 billion.12
Since comprehensive multi-hazard risk assessment of Myanmar needs to be done at the national level. Table
1.2 presents basic information pertaining to major hazards in Myanmar.13

Table 1.2

Hazard Profile of Myanmar14

HazardEarthquake andTsunamiProfileTwo main sources: Sagaing fault, and the Sunda subduction mega thrust zone. Fourareas are designated as the Destructive Zone: 1), Bago-Phyu, 2) Mandalay-SagaingTagaung, 3) Putao-Tanaing, and Kale-Homalin. Although the latter two have major
earthquake hazards, their risk-level is low because they are sparsely populated.
In coastal areas of Myanmar: Rakhine Coast falls in the Strong Zone with MMI 8,
the Ayeyawady Delta and Taninthayi coasts fall in the Moderate Zone with MMI 7. 14

Fire/Forest fire

Most frequent hazards occuring in Myanmar. In the last ten years (2007-2016),
12,000 cases were recorded and Yangon, Mandalay, Ayeyarwaddy, Sagaing andBago are the most affected States and Regions.

Drought

Approximately 51 townships spread across Magway, Mandalay and Sagaing (lower)
regions are prone to drought.

Landslide

The mountainous regions, especially in the western ranges and some localities inthe eastern highland are prone to landslides. The western ranges have experienceddifferent types of landslides and earth movements such as rock falls, rockslides, soil
avalanches and mud flows.

9
10
11
12
13
14

Department of Meteorology and Hydrology, Myanmar and et al., Hazard Profile of Myanmar, July 2009.
Annual Disaster Statistics, Relief and Resettlement Department, 2017.
PDNA, 2015
The Tripartite Core Group (TCG), Post- Nargis Joint Assessment Report, July 2008.
Japan International Cooperation Agency and et al, Country Report Myanmar.
Journal of Earthquake and Tsunami Hazard in Myanmar, June 2009| 5

Floods

Flood is one of the most frequent hazards in Myanmar. The threat of flooding usuallyoccurs three times per year, in June, July-August late, September and October withthe biggest threat in August, as monsoon rains peak around that time. Most of theareas of Myanmar are prone to floods and the central part of Ayeyarwaddy Regionis the most affected one.

Cyclone/Storm
Surge

Myanmar is highly vulnerable to these hazards, particularly, during the monthsof April and May, and also during October to November. Cyclones often occur inthe middle of the monsoon season, but they usually don't reach their maximum
strength. However, in 2015 Cyclone Komen had disruptive effects, causing heavy
rain, landslides and flood. In coastal areas, cyclone can cause storm surges. Climatechange is likely to worsen the risk of existing cyclone/storm surge.

Industrial/
Technological
Hazards

Myanmar has 51 industrial parks (limited information), primarily located in Yangon
and Mandalay regions. Most of the companies are small to medium enterprises, andlack disaster risk management and business continuity plans. There is a need forprofiling of industrial/technological hazards. 15

15

1.3.2

Climate Change and Variability

Studies at the global level have found that climate change is reconfiguring hazards and increasing the risksof disasters. The rise in sea levels, changes in the intensity of the strongest storms and the frequency withwhich they occur. This in turn increases extreme temperatures, and alters precipitation patterns. Although, it isdifficult to link an individual extreme event to climate change, Myanmar has witnessed some extreme events inrecent years. For example, in the Chin State, during the last seven days of July 2015, the recorded rainfall was
30 percent higher than in any other month over the past 25 years. The monthly rainfall of July measured at theweather station in Hakha was equal to a 1-in-1000-year rainfall.16 In July 2009, 434 mm of rainfall fell in a single
day in Launglon, which was the highest rainfall recorded in the country during a 24 hours period. In August
2009, the Bago Region experienced its highest 24 hours rainfall in 45 years.
On 21st July 2011, 739 mm of rainfall within a 24 hours period in Taungoke, Rakhine, was recorded as the highest
rainfall in the country. On 14th May 2010, the highest temperature, reaching 47.2°C, was recorded in Myanmar.
Climate change projections: A recent study17 on climate risk in Myanmar, found that the climate is projected toshift dramatically in the coming decades. The study highlighted the following:•

In every region in Myanmar, temperatures are expected to soar by the middle of the 21st century by
1.3°C–2.7°C.

•

The eastern and northern hilly regions are projected to see the most dramatic warming, withtemperatures rising as much as 3°C during the hot season.

•

In the future, the country can experience anywhere between four to 17 days of extreme heat every
month, in contrast to one day a month during the period between 1981–2010.

•

Changes in rainfall patterns are projected to vary by region and season.  While increases are projectedduring the monsoon season, both a rise and fall in the temperature is likely during the rest of the year.

•

Projections on rising sea levels for the coastline, range from 20 cm to 41 cm by mid-century.

The implication of climate change on six development sectors: agriculture, fisheries and livestock; environment
and natural resources; energy, transport and industry; cities, towns and human settlements; climate hazards
and health; and education, science and technology has been analyzed in the Myanmar Climate Change Strategy
and Action Plan.18

1.3.3

Vulnerability, Exposure and Trends

There has been a rise in disaster losses over the past decades primarily due to increased exposure of the
population and assets in hazardous zones. It is important to profile current vulnerability, exposure and future
trends for better understanding of these underlying factors i.e. drivers of disaster risk.
15
16
17
18

6 |

AHA Centre and et al, Country Report Myanmar, Natural Disaster Risk Assessment and Area Business Continuity Plan Formulation for
Industrial Agglomerated Areas in the ASEAN Region, March 2015.
PDNA, 2015
Horton, R., De Mel and et al. 2017. Assessing Climate Risk in Myanmar: Summary for Policymakers and Planners. New York, NY, USA:
Center for Climate Systems Research at Columbia University, WWF-US and WWF-Myanmar, UN-Habitat Myanmar.
Ministry of Natural Resources and Environmental Conservation, the Republic of the Union of Myanmar, Myanmar Climate Change Strategy and Action Plan 2016-2030 (draft 19th January 2017), 2017.

At the global level, the United Nations19 has identified key drivers of disaster risk;-

poverty and inequality
climate change and variability
unplanned and rapid urbanization and the lack of disaster risk considerations in land management
environmental and natural resource management
demographic change
non-disaster risk-informed policies
lack of regulations and incentives for private disaster risk reduction investmentcomplex supply chains
limited availability of technology
unsustainable uses of natural resources
declining ecosystems
pandemics and epidemics

There is a need to develop a comprehensive profile of vulnerability and exposure of Myanmar. However, thefollowing trends have been identified:•

Poverty and inequality: An estimated 25 percent of Myanmar’s population lives in poverty. In certain
pockets of the country, the prevalence is higher than in others. For example, in the Chin State 73
percent of its population lives in poverty. Chin is also highly prone to floods and landslides.

•

Rapid urbanization and migration: The rate of urbanization in Myanmar has increased over the past
decades from 24.8 percent of the total population classified as urban in 1983 to 29.6 percent in2014. Some of these urban centers are exposed to multiple hazard. Yangon, with a urban populationof 5.2 million, is the most urbanized region and accounts for about 35 percent of the total urban
population. It is projected that by 2040, Yangon will become a megacity with a population of 10
million.20 Approximately four percent of the population, or 2.02 million persons were reported to beliving abroad, of which 1.7 million (83 percent) are between the ages of 15 and 39 years.21
Migration benefits migrants and host communities. There are however, problems associated with
migration, such as social conflict, environmental degradation and difficulties associated with theseparation of migrants from their family and community members.

19
20
21
22
23
24
25

•

Vulnerable population: The overall number of women is 26,661,667 and it accounts for 51.8% of thetotal population. The number of children below the age of 15 and the elderly above the age of 65 years
are 14,399,569 and 28,97,563 respectively. Together, both these demographics constitute 33.6 percentof the population. The percentage of people with disabilities stands at 4.6 percent and its prevalencestarts to increase at the age of 40, with a sharp rise after the age of 65.22•

Deforestation: Myanmar lost over three percent of its forest ecosystem over the past two decades.
It has been estimated that 83 percent of mangroves in the Ayeyarwady Delta have been destroyed
between 1924 and 1999. Decreased productivity and limited vegetation cover has destabilised soils
and caused erosion. The compound effects of land degradation, overutilization and unfavourable
agricultural practices are diminishing water supplies for domestic, agricultural and industrial use.23•

Housing condition: Apartments and single storey buildings account for 12% of the housing in the
country.24 A large proportion of houses are constructed with materials that are, highly vulnerable tocyclones and strong winds.

•

Limited access to communication: Almost half of the population or 49.5 percent of households haveaccess to television, 35.5 percent have access to a radio, 32.9 percent use a mobile phone, whilelandline and internet access at home accounts for less than 10 percent.25

United Nations, Report of the open-ended intergovernmental expert working group on indicators and terminology relating to disasterrisk reduction, 1 December 2016.
Ministry of Immigration and Population, The 2014 Myanmar Population and Housing Census: Highlights of the Main Results, May 2015
(Census, 2014)
Ibid.
Ibid.
Ministry of Environmental Conservation and Forestry, Myanmar’s National Adaptation Programme of Action to Climate Change, 2012.
Census, 2014
Ibid.

| 7

1.4
Legislative and Institutional
Arrangements for
Disaster Risk Management

The legislative and institutional setup for disaster risk management is evolving in Myanmar. The country
enacted the Disaster Management Law and Rules in 2013 and 2015 respectively. The Law provides legal basis
to set up disaster management bodies based on various roles. It also defines its roles and responsibilities
and creation of funds for disaster management. These provisions empower disaster management bodies tosmoothly discharge their duties and define areas of accountability. The Disaster Management Rules, 2015
detail out provisions of the law towards its implementation.

1.4.1	Government’s National and Sub-National Disaster Risk Management Arrangements
The National Disaster Management Committee (NDMC) under the chair of the Vice President (2) is the apex
body for Disaster Risk Management (DRM). 12 work committees related to specific areas of disaster risk
management and an advisory committee have been set-up under the NDMC. The organogram is reflected in
Figure 1.1. Refer Annex A for details.

Figure 1.1. Organogram of Disaster Management Bodies in Myanmar
National Disaster Management Committee
Advisor GroupState/Region Disaster
Management Body

District Disaster
Management Body

Township Disaster
Management Body

Ward/Village Tract Disaster
Management Body

8 |Disaster Management Work
Committee

International Relation Work
Committee

Financing and Financial
Management Work Committee

Search and Rescue Work
Committee

Security Work Committee

Logistic Work Committee

News and Information
Work Committee

Rehabilitation andReconstruction Work Committee

Health Care Work
Committee

Initial Need Assessment, Damageand Loss Verification and Need
Identification

Livelihood Restoration
Work Committee

Environmental Conservation
Work Committee

At the regional/state, self-administered zone, district, township, ward and village tract levels, disastermanagement bodies are being constituted, according to provisions of the Disaster Management Law, 2013.
Relief and Resettlement Department (RRD) is the nodal department for Myanmar’s disaster risk management
and focal point for the ASEAN Committee on Disaster Management. RRD has established a Disaster Management
Training Centre, an institute dedicated to training, education and research on risk reduction. Other ministries
and departments such as Ministry of Construction; Ministry of Agriculture, Livestock and Irrigation; Ministryof Health and Sports; Ministry of Planning and Finance; Department of Meteorology and Hydrology; General
Administration Department and Fire Services Department play an important role in disaster risk management.
Some of the departments have also created disaster risk management focal points /sections.

1.4.2

Disaster Risk Reduction Networks

Disaster Risk Reduction Working Group (DRR Working Group): The DRR Working Group was established in2008 to support recovery and reconstruction efforts of Cyclone Nargis. It serves as a platform for information
sharing and strengthened coordination among development partners working on disaster risk reduction issues.
Working groups have been also set-up at the sub-national level in selected regions and states, including in Mon
State, Kayin State and Rakhine State. The groups also coordinate sub-national risk reduction activities. UNDP isthe chair of the DRR Working Group at the national level, while the Swiss Development Cooperation (SDC), theCommunity Development Association and the International Organisation for Migration (IOM) head the DRR
Working Groups of Chin State, Kayin State and Rakhine State respectively.
Myanmar Humanitarian Country Team (HCT)26: It is a strategic humanitarian coordination and decision-making
body that seeks to optimize the collective efforts of the UN, other international and national organizations,non-governmental organizations and the Red Cross Movement. It is convened under the leadership of the
Humanitarian Coordinator (RC/HC). The UN Office for the Coordination of Humanitarian Affairs (OCHA)
serves as its Secretariat. It oversees the development of sector/cluster response plans and provides oversightand advice to the cluster/sector leads and humanitarian-focused geographic and subsidiary groups. It also
leads decision making on inter-agency coordination in regards to assessments, joint monitoring and evaluation
missions.
Non-government Organizations (NGOs): Several international and local non-government organizations,community based organizations, professional societies such as Myanmar Engineering Society, Myanmar
Geosciences Society and Red Cross system are working on disaster risk management, including community
level disaster preparedness.

1.4.3

Private Sector

The private sector role in disaster management especially risk reduction is evolving. It played an importantrole in the response and recovery efforts of Cyclone Nargis in 2008 and the floods and landslides of 2015. The
Union of Myanmar Federation of Chamber of Commerce and Industries (UMFCCI), in partnership with UNDP
and UNOCHA, have established the Myanmar Private Sector Disaster Management Network (MPD-Network)27
to:•Establish and maintain a coordination structure, which would serve as a clear entry point for theprivate sector in the broader national coordination, led by the government.

•

Strengthen the capacity of businesses and business associations in Myanmar and increase its resilience
to return to normalcy as soon as possible after disasters.

The MPD-Network is at a nascent stage but has started to engage at the global, regional and national levels;
it has been a member of the Task Force on the MAPDRR 2017; and of the Disaster Management Sub-sector
Coordination Group under Development Assistance Coordination Unit (DACU).

26
27

Myanmar Humanitarian Country Team (HCT), Terms of Reference-Revised, February 2017.
Myanmar Private Sector Disaster Management Network, Draft Terms of Reference.

| 9

1.5
Overview of MAPDRR 2012 andits Achievements

The Government of Myanmar drafted and implemented the Myanmar Action Plan on Disaster Risk Reduction(MAPDRR) 2012. An Inter-Agency Task Force, chaired by the RRD Director-General, comprising of 25 agencies
from 12 ministries, seven development partners with an ASEAN representative as an observer, prepared theaction plan. The overarching goal was ‘To make Myanmar Safer and more Resilient against Natural Hazards,
thus Protecting Lives, Livelihood and Developmental Gains.’ It identified 65 priority projects under sevencomponents:

Table: 1.3 	Number of Projects under MAPDRR 2012
S/N

Component

No. of Projects

1

Component 1: Policy, institutional arrangements and further institutional
development

42Component 2: Hazard, vulnerability and risk assessment

83Component 3: Multi-hazard early warning systems

10

4Component 4: Preparedness and response programmes at the national,
region/state, district and township levels

105Component 5: Mainstreaming of disaster risk reduction into development

13

6

Component 6: Community-based disaster preparedness and risk reduction

97Component 7: Public awareness, education and training

11

Total

65

This action plan provided a national framework and guided the government and development partners informulating and implementing risk reduction interventions. The National Comprehensive Development Plan
(NCDP) identified risk reduction and building resilience as a priority and mentioned MAPDRR 2012 as a tool toachieve it. Some of the key achievements include the Disaster Management Law and Rules, National Building
Code, upgrading of Early Warning Systems, setting up a National Emergency Operation Centre, Capacity
Development related to DRR, mass awareness, including International Day for Disaster Reduction celebrations
and the National Disaster Management Training Center.

10 |

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| 2

12 |

2.1
Rationale for MAPDRR 2017

DRR landscape of Myanmar has significantly changed since 2008, creating a need for a new action plan. It is
important to build on the momentum generated by MAPDRR 2012 for long-term risk reduction, that is a vital
component for sustainable development.

28•

Myanmar’s commitment to new global and regional Development and the DRR framework: In recent
years, Myanmar has endorsed and committed to a number of new global and regional frameworks,
plans and agreements related to disaster, climate and development. It includes the Sustainable
Development Goals (SDGs), Sendai Framework for Disaster Risk Reduction, the Paris Agreement on
Climate Change, the Asia Regional Plan for Implementation of the Sendai Framework for Disaster Risk
Reduction and the AADMER Work Programme 2016-2020. These commitments call for time-boundoutcomes based on disaster risk reduction interventions.

•Protecting development gains of Myanmar: The 12-point economic policy of Myanmar has called
for holistic development, which requires a long-term systematic approach to include DRR into its
development agenda. The sectorial policies and plans related to social protection and climate change,
also calls for an integrated approach.

•

Build on MAPDRR 2012 for long-term risk reduction: A joint study28 by government and development
partners on the implementation of MAPDRR found that the action plan served as an important DRR
framework for key government departments, non-government agencies and donors. Over the years,
it helped ministries to prioritize and implement key objectives identified in the action plan. It laid out
the strategic road map for long term DRR measures while also contributing to the Hyogo Framework
for Action and AADMER implementation. There is an opportunity to build on this momentum for longterm risk reduction especially addressing drivers of disaster risk.

•

Changes in institutional arrangements for DRR: In 2016, ministries and departments were reorganised,
which affected Myanmar’s DRR mandate. Myanmar also enacted new legislations such as the Disaster
Management Law, 2013 and the Disaster Management Rules, 2015, which led to significant changes
in the overall institutional arrangements related to disaster management. The National Disaster
Management Committee under the Vice President (2), the apex body for disaster management alongwith 12 work committees were constituted.

•

Changes in risk profile: The risk profile of Myanmar has been changing due to various factors including
climate change and rapid skewed development. In recent years, the country has witnessed cases ofsevere floods, landslides, strong wind, lightning and river erosion, among others.

Ministry of Social Welfare, Relief and Resettlement, UNDP and DRR Working Group, Report on Myanmar Action Plan on Disaster Risk
Reduction 2009-2015: Accomplishments, Lessons learnt and Way forward, 2017

| 13

2.2
MAPDRR 2017 Formulation Process

Steps toward MAPDRR 2017 development was initiated following a stock-taking exercise on the implementationof MAPDRR 2012. A series of consultations were held to draw key lessons and recommendations for MAPDRR
2017. A 36-member Task Force drawn from line departments, city development committees, sub-national
disaster management bodies, UN agencies, I/NGOs, CSOs and the private sector were set-up in October 2016.
The Task Force led by the Relief and Resettlement Department steered the process, while the NDMC provided
oversight in the fromulation.
Four technical working groups, each comprising more than 25 departments and partners under the head of adepartment, was set-up to draft four pillars of the MAPDRR 2017.

Table 2.1: MAPDRR 2017 Technical Working Groups
Title

Lead and Co-lead

TWG1: Assessing disaster risk including Lead: Department of Meteorology and Hydrology, Ministry
extreme events and creating public awareness of Transport and Communications
on DRR in Myanmar
Co-lead: Relief and Resettlement Department, Ministry ofSocial Welfare, Relief and Resettlement
TWG2: Strengthening disaster risk gover- Lead: General Administration Department, Ministry ofnance to reduce and manage risk
Home Affairs
Co-lead : Relief and Resettlement Department, Ministry ofSocial Welfare, Relief and Resettlement
TWG3: Mainstreaming disaster risk reduction Lead: Planning Department, Ministry of Planning andfor resilient development in Myanmar
Finance
Co-lead: Relief and Resettlement Department, Ministry ofSocial Welfare, Relief and Resettlement
TWG4: Enhancing disaster preparedness for Lead: Department of Highways, Ministry of Construction
effective response and resilient rehabilitation
Co-lead: Relief and Resettlement Department, Ministry ofand reconstruction in Myanmar
Social Welfare, Relief and Resettlement
The Task Force and the Technical Working Groups held three and eight meetings respectively, over a sixmonth period within October 2016 to April 2017 to identify priority actions towards risk reduction. Regional
consultations were organised in Ayeyarwady and Mandalay Regions and Chin and Mon States to understand14 |the risk reduction needs at the ground level. Thematic consultations with the private sector, vulnerable groups
and the agriculture sector were also organised to analyse disaster risk issues in the context of the national
Action Plan. A series of consultations were held with development partners, including discussions within the
DRR Working Group, to seek inputs on the drafting process and priority actions. The global, regional andnational disaster risk reduction, climate change and development frameworks, agreements, strategies, laws
and rules were reviewed to inform and input the MAPDRR 2017 content.
A desk review also contributed to identify priority actions of the MAPDRR 2017. These actions were detailed inconsultation with the TWGs and the draft MAPDRR 2017 was prepared under the guidance of the Task Force.
A series of consultations were subsequently held in June 2017 to review the draft MAPDRR 2017. A revised
version was reviewed and endorsed by the Task Force, in its 5th meeting. As a next step, it was circulated toministries and departments and after incorporating comments and was approved.

Figure 2.1

Key steps in developing MAPDRR (2017)
Lessons learnt from MAPDRR, 2012 (Mar-Aug 2016)(Stock taking and lessons learnt workshops)

Approach paper & system for drafting MAPDRR 2017
(Sep-Oct 2016)(literature reivew & consultations)

Consultations and desk review to identify DRR priorities(Nov 2016-Apr 2017)(Regional and thematic consultations across Myanmar)

Consultations to review draft MAPDRR 2017 (June-Aug 2017)(Review by Ministries, Task Force and Development Partners)

Approval by NDMC and launch (Sep-Oct 2017)

| 15

2.3
Defining MAPDRR 2017

MAPDRR is a comprehensive and unified action plan for risk reduction and management with prioritizedinterventions across Myanmar until 2020. With a long-term vision and considering deep-rooted underlying
drivers of disaster risk, it has set overall targets for 2030. It aims to provide a base for mobilizing and leveraging,national and external resources and and define indicators for result oriented outcomes.
It has three phases:
Phase-I until 2020 aims to create and strengthen systems and generate disaster risk information for undertaking
risk reduction programmes. It will also include setting up systems and drafting policies and procedures related
to disaster risk management, undertaking some pilot projects and ensuring continuity of the actions from thelast action plan. The priorities identified under Phase-I has been grouped under four themes: risk assessment,risk governance, mainstreaming DRR into development and preparedness for response and recovery.
Phase-II until 2025 will primarily focus on the application of risk information for risk reduction and it willbuild on the pilot interventions of phase-I. It will primarily include disaster and climate risk information indevelopment planning and implementation and large-scale DRR targeted investments.
Phase-III until 2030 will draw lessons from risk reduction interventions of phase-I & II based on the development
trajectory, including underlying risk drivers. It will further institutionalize the actions and undertake additional
measures towards enhancing resilience.
The three-phased approach will help better align DRR priorities with development priorities especially withmedium-term development policies and plans such as five-year development/sectorial plans. DRR is a longterm process that needs to be implemented systematically. Comprehensive policies and strategies, effective
DRM institutions, disaster risk knowledge base, financing mechanism and tools developed for risk reduction
are important before launching large-scale risk reduction intervention. This phased approach will help insystematic adjustments and allow the government to better manage uncertainties.

16 |Figure 2.2

Phased Approach to Disaster Resilient Myanmar

Timeline

Global & Regional
Framework

MAPDRR

Development
Framework, Myanmar

2020

SFDRR 2020 ( 1 Target)
AADMER WP (2016-20)

Phase I: Systems &enabling environment

Five year plan: 2020

Phase II: Application
and and up-scaling

Five-year plan: 2025

Phase-III: Continued
up-scaling & alignment

Five year plan: 2030

2025

2030

SDG 2030
SFDRR 2020 ( 6 Targets)

| 17

2.4
Vision and Guiding Principles

Vision:Protect lives, economy, heritage and environment,
through an inclusive approach towards sustainable
development in Myanmar

The guiding principles for implementation of MAPDDR are :
•
•
•
•
•
•
•
•

18 |

The Government of Myanmar will be the prime driver of disaster risk reduction interventions; however itcalls for all-of-society, including private sector, engagement and partnership.
The identification, implementation, monitoring and evaluation of priority actions will be ‘inclusive’ andaddress the special needs of women, children, people with disabilities and the elderly population.
The priority actions will ensure ‘flexibility’ to meet special needs at the ground level and emerging needs
due to the changing risk environment.
The priority actions will be at a national level, however the focus will be to build resilience at the community
level. Regional/state and self-administered zone governments will be key in reducing and managing risk.
The action plan will be result oriented and measure changes in addressing risk through tracking disaster
impacts.
The priority actions will use a multi-hazard approach.
The identification and prioritization of actions will be based on disaster risk and the impact of interventions.
The priority action will be implemented to prevent new emerging risks; an unplanned development suchas the construction of a building, bridge, etc. without following standard codes, can increase existingrisks, reduce existing and manage residual one which is the disaster risk that remains even when effective
disaster risk reduction measures are in place, and for which emergency response and recovery capacities
must be maintained.

2.5
Scope

The scope covers the entire country and its most frequent hazards. It has identified 32 actions under fourpillars:

Table 2.2	Number of Priority Actions in each Pillar
PillarNumber of priority
actions

1.

Assessing Disaster Risk including extreme weather events and creating
public awareness on DRR in Myanmar

82.

Strengthening disaster risk governance to reduce and manage risk

6

3.

Mainstreaming disaster risk reduction for resilient development in Myanmar

94.

Enhancing disaster preparedness for effective response and resilient rehabilitation and reconstruction in Myanmar

9

Total

32

| 19

2.6
MAPDRR 2020 Milestones and2030 Targets

2.6.1

MAPDRR Targets and Indicators

The identified targets and milestones of the MAPDRR are aligned with the targets and indicators of global andregional documents to ensure compatibility in the monitoring and reporting process. Targets for 2030 aims
to measure changes in disaster impact. These long-term targets, which are primarily outcome and impact
oriented, are likely to be achieved after implementation of all three phases of the MAPDRR.

Table 2.3	Targets and Indicators
TargetIndicators

Target 1 (T1): Substantially reduce T1.1: No. of missing persons /100,000
disaster mortality in Myanmar by 2030
T1.2: No. of deaths /100,000
Target 2(T2): Substantially reduce the T2.1: No. of injured or ill people/100,000
number of people directly affected by T2.2: No. of people whose dwellings were damaged
disasters in Myanmar by 2030
T2.3: No. of people whose dwellings were destroyed
T2.4: No. of people whose livelihoods were disrupted/destroyed
Target 3 (T3): Reduce direct disaster T3.1: Agricultural (crops, livestock, fisheries, apiculture,
economic loss in relation to grossaquaculture and forest sectors)(Associated facilities andinfrastructure)
domestic product of Myanmar by 2030
T3.2: Damaged or destroyed productive assets (economic,
services)
T3.3: Housing (damaged or destroyed)
T3.4: Critical infrastructure (damaged or destroyed)
T3.5: Cultural heritage (damaged or destroyed)
Target 4 (T4): Substantially reduce
damage caused by disasters to criticalinfrastructure
and
basic
services,
including health and education facilities
in Myanmar by 2030

20 |T4.1: No. of destroyed or damaged health facilities
T4.2: No. of destroyed or damaged educational facilities
T4.3: No. of other destroyed or damaged critical facilities
T4.4: No. of disruptions to educational services
T4.5: No. of disruptions to health services
T4.6: No. of disruptions to other basic services

Target 5 (T5): Substantially increase T5.1: Multi-hazard monitoring and forecasting systems inaccess to multi-hazard early warning
Myanmarsystems and improve local disaster T5.2: No. of people/100,000 that are covered by early warning
preparedness in Myanmar by 2020
information through local governments or through national
dissemination mechanisms
T5.3: % of regional/state and townships with DRM plans including
section/plans to act on early warnings
T5.4: Accessible, understandable, usable and relevant disasterrisk information & assessment available to people at thenational, regional/state and township levels
T5.5: % of population exposed or at risk from disasters protected
through pre-emptive evacuation following early warning
Target 6 (T6): Substantially increased T6.1: DRR investment by government compared to GDP.
investment(government
and T6.2: DRR investment by development partners
development partners) on DRR in
Myanmar by 2030

2.6.2

Milestones 2020

The first phase of the MAPDRR identified priority actions for 2020, will support progress against all targetsof 2030. Target 5 needs to be achieved by 2020; hence the first phase of the action plan will contributesignificantly to it. This action plan is primarily towards creating and strengthening systems, creating risk
profiles and implementing pilot projects on disaster risk reduction. Therefore, it will be a major milestone fortarget 2030.
The following should be achieved by 2020:•

Disaster response, relief, rehabilitation and reconstruction strategy/ guidelines/procedures in place.

•

Regulatory frameworks (planning, implementation and monitoring guidelines) to include DRR intodevelopment (union, regional/state and local development planning) prepared and practiced.

•

National, sectorial, regional/state, self-administered zones, township and ward/village tract disasterrisk management plan prepared and implemented.

•

Disaster management bodies at regional/state, self-administered zone, district, township and ward/
village tract fully functional.

•

Coordination mechanism for multi-hazard disaster risk assessment is established and operational, atthe national level, under the leadership of the government.

•

Significant improvement in end-to-end early warning systems (monitoring, forecast, dissemination,
evacuation, etc.) across sectors and in all regions/states and self-administered zones.

•

System to track DRR investments by government and development partners created and strengthened.

•

System/database for recording data on disaster damage and loss is fully operational and annual reporton disaster impact and trend prepared and shared.

| 21

2.7
MAPDRR linkage with SDGs,
Paris Agreement on Climate Change

The period between 2015 to 2030 will witness the implementation of a number of global and regional
development and disaster risk reduction frameworks, declarations, action plans and work programmes at thenational level. There have been strong linkages between these global and regional commitments. They are also
reflected in targets and indicators.
There are 25 targets related to disaster risk reduction in 10 of the 17 Sustainable Development Goals.29 The
targets have strong linkages with those of the Sendai Framework for Disaster Risk Reduction. For example, theselected SDGs and targets30 with direct linkage to DRR are:•Goal 1: End poverty in all its forms everywhere; Target 1.5: ‘By 2030, build the resilience of the poor andthose in vulnerable situations and reduce their exposure and vulnerability to climate-related extreme
events and other economic, social and environmental shocks and disasters’.

•

Goal 2: End hunger, achieve food security and improved nutrition and promote sustainable agriculture;
Target 2.4: By 2030, ensure sustainable food production systems and implement resilient agricultural
practices that increase productivity and production. Help maintain ecosystems, that strengthen
capacity for adaptation to climate change, extreme weather, drought, flooding and other disasters
and that progressively improve land and soil quality.

•

Goal 11: Make cities inclusive, safe, resilient and sustainable; Target 11.b: By 2020, substantially increase
the number of cities and human settlements adopting and implementing integrated policies andplans towards inclusion, resource efficiency, mitigation and adaptation to climate change, resilience todisasters, and develop and implement, in line with the Sendai Framework for Disaster Risk Reduction
2015-2030, holistic disaster risk management at all levels.

•

Goal 13: Take urgent action to combat climate change and its impacts; Target 13.1: Strengthen resilienceand adaptive capacity to climate-related hazards and natural disasters in all countries.

The Paris Agreement31 on climate change has identified many areas of cooperation and facilitation toenhance understanding, action and support, which include early warning systems, emergency preparedness,
comprehensive risk assessment and management, risk insurance and resilience of communities, livelihoods andecosystems. The agreement calls for monitoring and evaluation of plans, policies, programmes and actions.

29
30
31

UN Office for Disaster Risk Reduction, Disaster Risk Reduction and Resilience in the 2030 Agenda for Sustainable Development, October 2015
United Nations, Transform Our World: The 2030 Agenda for Sustainable Development, A/RES/70/1.
United Nations Framework Convention on Climate Change, Adoption of the Paris Agreement, 12 December 201522 |An analysis of linkages between the pillars of the MAPDRR vis-à-vis various policy documents is reflected inTable 2.4.

Table 2.4	Linkages between MAPDRR 2017 Pillars and other policy documents
Pillars of MAPDRR 2017

Policy documents
Sendai Frameworkfor DRR

1

2

3

4

Priority 1

Priority 2

Priority 3

Priority 4

Goal 1, 2, 3, 4, 6,9,11,
13 and 15

Goal 1, 3, 11 and 13

Annex, Article 8

Annex, Article 8

Environmentally
sustainable andresilient
urban development

Environmentally
sustainable andresilient urban
development

Sustainable Devel- Goal 1, 3 and 13
opment Goals

Goal 1 and 11

Paris Agreement on Annex, Article 8
Climate Change
New Urban
Agenda: Quito
Declaration on
Sustainable Cities
and Humans(Habitat-III)

Environmentally
sustainable
andresilienturbandevelopment

One humanity:
sharedresponsibility(WorldHumanitarian
Summit)Core Responsibility Core Responsibility Core Responsibility
4
4
4& 5

Core Responsibility
4& 5

AADMER WP
2016-2020

Component 1

Component 3, 5 & 6Environmentally
sustainable andresilient urban
development

Component 3, 6 & 7 Component 2 & 4

Economic Policy of
the Republic of theUnion of Myanmar

Policy: Number
6&9

MyanmarNational
Framework forCommunity
Disaster Resilience

Social protection• Rural livelihoods
and village
infrastructure• Urbandevelopment

Disaster
preparedness

Myanmar
Climate Sector 5
ChangeStrategyand Action Plan 32

Sector 5

Sector 1 & 5

Sector 5

Myanmar Financial
Inclusion Roadmap
2014-2020

Output 2.1:
Improvedfinancial access toagriculture32

32

Ministry of Natural Resources and Environmental Conservation, the Republic of the Union of Myanmar, Myanmar Climate Change Strategy and Action Plan 2016-2030 (draft 19 January 2017), 2017.

| 23

24 |

| 25

26 |

3.1
Overview of MAPDRR Pillars

The Myanmar Action Plan on Disaster Risk Reduction has four pillars and each pillar has six to nine priority
actions. The four pillars are aligned with four priority actions of the Sendai Framework for Disaster Risk
Reduction.
Each priority action has several indicative activities. One lead department, or in some cases more than one, hasbeen identified for each priority action. The cost of priority actions/projects has been estimated. The indicatedcost estimates are preliminary, as some of the activities in priority actions require further detailing such as
location, coverage, etc. In addition, some of the priority actions require high-level technical inputs and time toestimate cost due to complexities and technicalities involved in the priority action.
The list of priority actions, along with its lead department, is in Table 3.1.

Table 3.1

Priority Actions and Lead Ministry/Department
Priority Action

Lead Ministry/Department

Pillar 1: Assessing disaster risk including extreme weather events and creating public awareness on DRR
in Myanmar
1.1

Central coordination mechanism and repository of disaster risk •information in Myanmar

Department of Meteorology andHydrology

1.2 National comprehensive multi-hazard probabilistic risk assess- •ment of Myanmar

Department of Meteorology andHydrology

1.3 Disaster risk profile of industries, fire, forest fire and accidents •in Myanmar••••

Ministry of Industry (industries)
Forest Department (forest fire)
Myanmar Police Force (accident)
Fire Services Department (fire)
Department of Fisheries (boat
accident)| 27

1.4 Assessment of dam safety and reservoir, critical infrastructure •and vital government and lifeline buildings in Myanmar•

Irrigation and Water Utilization
Management Department (damsafety and reservoir)
Ministry of Construction(critical infrastructure andvital government and lifelinebuildings)

1.5 Tsunami, floods, cyclone and storm surge risk assessment of •Ayeyarwady Region and Rakhine State•

Department of Meteorology andHydrology: Lead
Relief and Resettlement
Department: Co-lead

1.6 Landslide risk assessment of Chin State

Department of Meteorology andHydrology: Lead
Relief and Resettlement
Department: Co-lead••

1.7. Earthquake risk assessment along Sagaing fault••

1.8 Nation-wide disaster awareness programme with focus on •people at most risk•

Department of Meteorology andHydrology: Lead
Relief and Resettlement
Department: Co-lead
Department of Social Welfare:
Lead for PWD
Relief and Resettlement
Department: Lead for nation-wideawareness

Pillar 2: Strengthening disaster risk governance to reduce and manage risk
2.1 Myanmar Disaster Risk Management Policy•

Relief and Resettlement
Department

2.2 Myanmar Disaster Relief Guideline•

Relief and Resettlement
Department

Reconstruction •Ministry of Construction

2.3 Myanmar
Disaster
Rehabilitation
andFramework/Strategy using Build Back Better

2.4 Strengthening Disaster Management Systems at National and •sub-national levels in line with Disaster Management Law, 2013
and Rules, 2015•

Relief and Resettlement
Department: Lead for DM Focal
section in each department
General Administration
Department: Lead for sub-national
Disaster Management Bodies

2.5 Strengthening fire risk management systems in Myanmar•

Fire Services Department

2.6 Strategy for improving disaster risk financing in Myanmar•

Ministry of Planning and Finance

Pillar 3: Mainstreaming disaster risk reduction for resilient development
3.1 Mainstreaming DRR/CCA into national and regional / state and •development planning, project appraisal and monitoring andevaluation processes

Ministry of Social Welfare, Relief
and Resettlement

3.2 Disaster and climate risk consideration into private sector •investment guideline

Directorate of Investment andCompany Administration

3.3 Promotion and integration of disaster and climate risk •management approaches in to the tourism sector of Myanmar

Ministry of Hotels and Tourism

3.4 Mainstreaming disaster and climate risk considerations into •village development planning and implementation including
infrastructure, livelihoods, agriculture and environment

Department of Rural
Development

3.5 Promoting Sustainable Development in vulnerable hilly regions •by reducing landslide risks and related risks

Forest Department

28 |3.6 Building Urban Resilience to address disaster and climate risks •in selected urban centres of Myanmar

City Development Committee
and regional/state governmentof selected urban centres

3.7 Integration of disaster risk reduction in health facilities and •other infrastructure•

Ministry of Construction: Lead
Ministry of Health and Sports:
Co-lead

3.8 Drought risk management programme for improving disaster •and climate resilience in the agriculture sector

Department of Agriculture

3.9 Myanmar Comprehensive School Safety Programme

Ministry of Education•

Pillar 4: Enhancing disaster preparedness for effective response and resilient rehabilitation andreconstruction
4.1 Updating/ developing multi-hazard disaster risk management •plan of all regional/state, self-administered zones, districts, •townships and wards/village tracts

State and Region Governments
General Administration
Department

4.2 Improved disaster response system in Myanmar

Relief and Resettlement
Department•

4.3 Capacity development on disaster resilience in a systematic, •effective and sustainable manner and strengthening Disaster
Management Training Centre (DMTC)••

Relief and Resettlement
Department (Disaster
Management Training Centre)
Union Civil Service Board (Civil
services training)
General Administration
Department (GAD training
course)4.4 Construction and maintenance of multi-purpose community •safe facilities based on risk profiles•

Ministry of Construction: Lead
Relief and Resettlement
Department: Co-lead

4.5 Improving end-to-end early warning systems through •strengthening of communication networks and early warning
dissemination procedures and protocols

Post and Telecommunications
Department

4.6 Improved community level disaster resilience through •Community based preparedness, Volunteerism, Civil Society
Organizations and Foundations

Relief and Resettlement
Department

4.7 Health sector preparedness for response and recovery •through disaster risk management plans, including epidemic
and disease control, mass casualty management system andpsychosocial support

Ministry of Health & Sports

4.8 Comprehensive flood risk management through improved •forecasting, monitoring, preparedness and mitigation inpriority river basin areas of Myanmar•

Irrigation and Water Utilisation
Management Department: Lead
Relief and Resettlement
Department: Co-lead

4.9 Disaster and climate risk management of historical monuments •and archaeological heritage in Myanmar

Ministry of Religious Affairs andCulture

| 29

30 |

3.2
Pillar 1:
Assessing Disaster Risk, including Extreme
Weather Events and Creating Public
Awareness on Disaster Risk Reduction in
Myanmar

3.2.1

Introduction

During disaster risk situations, including extreme weather events, information is the foundation for decisionmaking processes. Information is key to analyse the interaction of hazards, exposure and vulnerability andevaluate the magnitude and likelihood of potential losses, causes and impact of those losses. Disaster risk isdynamic and it changes spatially and temporally due to change in hazards, exposure and vulnerability or to
the inherent interaction among them. The changes in hazards can occur due to natural variability or humaninterventions, which is driven in large part by climate change,while development processes including disasterrehabilitation and reconstruction drive the changes in vulnerability and exposure. United Nations Framework
Convention for Climate Change (UNFCC) defined climate change as ‘a change of climate which is attributed
directly or indirectly to human activity that alters the composition of the global atmosphere and which is inaddition to natural climate variability observed over comparable time periods’.
Improved understanding of the components of disaster risk including vulnerability, access to state-of-theart risk assessment tools and availability of new data sets are important for comprehensive disaster risk
information. Disaster risk information should be accessible and of usable scale especially for township and
sub-township level development planning and are required to be updated periodically as the development
landscape and risk profile of Myanmar change.
The communication of disaster risk to all stakeholders especially national, regional/state and township level
decision makers, private sector and communities is vital, as it shapes perceptions of disaster risk and influences
their subsequent actions.

3.2.2	Approach and Objectives
Pillar 1: Assessing disaster risk, including extreme weather events and creating public awareness on disaster risk
reduction in Myanmar has the following objectives:•

To create a system for coordinated multi-hazard disaster risk assessment, dissemination, usage andupdated information.

•

To support disaster risk management related policy decisions through the development of acomprehensive disaster risk profile of Myanmar•

To influence disaster risk planning and interventions at the sub-national level, including township andvillage tract levels, through location and hazard-specific risk information| 31

The overall emphasis of actions identified under this pillar is towards creating systems for multi-hazard disasterrisk assessment and dissemination. The creation of a national risk profile along with location and hazard
specific high-resolution risk information, is also a focus.
The risk assessment will be conducted under the guidance of the proposed Disaster Risk Assessment Committee
and will rely on geospatial and space-based technology, indigenous and local knowledge and existing
databases related to disasters, such as the Myanmar Disaster Loss and Damage Database. Dissemination andusage of disaster risk information will be strengthened with a special focus on the needs of people most at
risk, including women, children, people with disabilities and the elderly. To further address emerging threats
in both the health and agriculture sectors, attention will also be given to the systematic assessment of risks
from national and/or trans-boundary animal and plant pests and diseases for agriculture and human health,including change patterns caused by the impacts of climate change.

3.2.3

Priority Actions: Pillar 1

Table 3.2
1.1

Priority Actions: Assessing Disaster Risk, Including Extreme Weather Events andCreating Public Awareness on Disaster Risk Reduction

Priority Action: Central coordination mechanism and repository of disaster risk information in Myanmar
Indicative Activities:
Set up a disaster risk assessment committee / group and its
working mechanism
Standard disaster risk assessment methodologies catalogued
for enhancing compatibility of data and risk assessment
outputs
Capacity building on disaster risk assessment, especially
updating existing risk information
A database/repository of disaster risk assessment outputs
and data
System for easy access of disaster risk information andexchange of data among departments
Expected output:
Steps towards wider usage of disaster risk information
Central repository of disaster risk information and data
Risk assessment
methodologies catalogued
Disaster Risk assessment iswell-coordinated and usage
improved in Myanmar
Objective:
To create a central repositoryof all disaster risk information
and related data in Myanmar
To catalogue disaster risk
assessment
methodologies
and increase compatibility ofdata/outputs
To promote wider dissemination and usage of disaster risk
information

Duration: Two years

Estimated cost (USD): To be estimatedLead Department:
DMH-

Other department and partners:
RRD, Forest Dept., DSW, Department of Agriculture, FSD, Ministryof Industries, Ministry of Education, MoHS, IWUMD, Universities,
MoC, ECD, GAD, PD, Dept. of Fisheries, PTD, MCDC, YCDC, NPT
CDC, MIMU, MES, MGS, MEC, YU, YTU

Need:Disaster risk assessment outputs need to be compatible with each other for updating and analysis
Cases of overlaps
Limited usage
Challenges:
Number of agencies involved
Various models for risk assessment using probabilistic and deterministic approaches
1.2

Priority Action: National comprehensive multi-hazard probabilistic risk assessment of Myanmar
Indicative Activities:
Objective:
Identify suitable methodology and scale for comprehensive
To assist decision makers in multi-hazard probabilistic risk assessment in consultation
understanding
multi-hazard
with the Central coordination committee on risk assessment
risks in Myanmar(Refer Action 1.1)
To understand in monetary
Develop risk maps of appropriate scales, which can assist interms the amount of losses the policy decisions including resource allocation for response/
country suffers
relief and recovery

32 |Expected outcome:Comprehensive multi-hazard
probabilistic risk assessment of Myanmar
Policy decisions, including
resource allocation use risk
information

Risk assessment should consider climate change projections
Wider dissemination of risk information
Periodic updating of the risk assessment

Duration: Three years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

RRD, MoALI, FSD, MoC, MoHS, GAD, ECD

DMH

Need:
Myanmar lacks comprehensive risk assessment at the national level, which is important for policylevel decision-making and prioritization
National level risk assessment has application in resource allocation for response/relief andrecovery
Challenges:
Limited data
1.3

Priority Action: Disaster risk profile of industries, fire, forest fire and accidents in Myanmar
Objective:

Indicative Activities:

To create a risk profile of hazardous
industries,
fire,
forest fire and other accidents

Develop a framework enabling individual industries todevelop their own organizational risk profile and risks forsurrounding areasToanalyzecausesand influence policy and regulatorychanges
relatedtorisk
governance in industries andsurrounding areas, road safety,
forest, waterways and otherrelevant sectors
Expected outcome:Relevant departments to collect data for fire, forest fire, roadaccident and boat sinking

-

-

-

-

Risk profile of industries, fire,
forest fire, road accident and boat sinking
Set of measures for addressing these disaster risks

Prepare a list of industries and respective associated disasterrisks beyond traditional analysis of historical data, using
a proactive, risk-based approach. Industrial waste will beconsidered under risk
Identify exposure of industrial areas, analyzing possible risk
scenario
Identify list of industries in very high-risk zones or potential
to cause disasters
Identify hot spots related to fire, forest fire, road accidents
and boat sinking-

Formulate key recommendations to address the potential
disaster risks, including disaster and climate risk informed
SIA/EIA and awareness generation measures-

Develop measures for periodic updating of the assessment-

RRD’s Myanmar Disaster Loss and Damage Database (MDLD)
should be promoted-

Hazard profile of Myanmar report will be updated based on
additional information, including the MDLD

Duration: Two years

Estimated Cost (USD):

Lead Department:

Other department and partners:-

506,000

Ministry of Industry (industries) DMH, RRD, UMFCCI, Ministry of Commerce, ECD, GAD, DepartForest Department (forest
ment of Marine Administration, MoC, MCDC, YCDC, NPT CDC,
fire)
Union of Myanmar Economic Holdings Limited
Myanmar Police Force(accident)
Fire Services Department(fires)Department of Fisheries(fishing boats and vessels)| 33

Need:
Disaster and climate risk is considered as a major threat to industries
Extensive risks such as fire, forest fire, road accidents and boat sinking are causing major loss of
lives and properties over time and need to be profiled and addressed
Further develop Myanmar’s industrial sector
Challenges:
Coordination, as it involves multiple agencies
Limited experience
1.4

Priority Action: Assessment of dam safety and reservoir, critical infrastructure and vital government andlifeline buildings in Myanmar
Objective:--

Indicative Activities:

To assess the safety of dams and reservoirs in Myanmar,
and identify critical areas of
improvement
assessvulnerability To
and exposure of criticalinfrastructure,
government
and lifeline buildings fromdisasters and climate change
risk-

Expected outcome:-

Report on dam and reservoir
safety, critical infrastructure
and vital government buildings
in Myanmar-

Prepare format/ checklist and approaches for dam safety
and reservoir assessments, other critical infrastructure,
government and lifeline buildings
Assess safety on identified parameters in a phased manner
The parameters for dams and reservoirs will include
characteristics of the reservoir and dam sites, flood regime
for the river, geological conditions at the site, dam design
and present condition and its downstream impact, in case of
dam failure
Identify key measures for improving the safety of dams andreservoirs including dam safety manuals/ handbooks
The format for assessment of vulnerable buildings can beinformed of existing format and training packages
Based on an assessment, prioritize critical infrastructureand government and lifeline buildings, which need to be
retrofitted and take appropriate measures
Create a database/system for periodic updating of theassessment
The assessment will accommodate the change in frequency& intensity of rainfall due to climate change

Duration: Two years

Estimated Cost (USD):

Lead Department:

Other department and partners:––––

IWUMD (Damreservoir)

3,700,000

safetyand Department of Hydro Power Irrigation, DMH, GAD, MoHS, Ministryof Education, YCDC, MCDC, NPTCDC, MES, YU, YTU, Committee
for Quality Control of High Rise Building Construction Projects
MoC (critical infrastructure(CQHP), FSD, Ministry of Culture and relevant Universities
and vital government andlifeline buildings)

Need:
Dam failure can lead to major disaster
Functioning of gov’t offices is key to response delivery
Challenges:
Technical expertise and number of staff
Infrastructure, lifeline buildings and vital government buildings are spread across Myanmar
Availability of data related to building, especially older structures

34 |

1.5

Priority Action: Tsunami, Floods, Cyclone and Storm Surge risk assessment of Ayeyarwady Region andRakhine State
Objective:
To determine tsunami, floods,
cyclone and storm surge risk
in Ayeyarwady Region andRakhine State at usable scalefor decision making
To assess vulnerability ofcommunities,
infrastructure
and the economy in relation
to different categories ofcyclones and associated storm
surges, floods and tsunamis
Assessment should include
impact of climate change on
cyclones, storm surges andfloodsIndicative Activities:
Review existing floods, cyclone, storm surge and tsunami
hazard/risk assessment studies related to Ayeyarwady
Region and Rakhine State
Conduct cyclone hazard characterization, including
frequency, intensity, etc. as well as impact of climate change.
Ayeyarwady will be priority for cyclone and storm surge
assessment.
Conduct tsunami hazard analysis, which will include run-up,
depth, speed of current, inundation area, return period, etc.
The priority location for tsunami risk assessment: Priority
location: 1. Sittwe and 2. Kyaukphyu-

Vulnerability and capacity assessment should include
vulnerable groups, infrastructure, economy, livelihoods,
government buildings, social vulnerability, response capacity,
distance from safe location and runway network, etc.

Floods,tsunami,cycloneand storm surge risk mapsof Ayeyarwady Region andRakhine State-

Develop composite cyclone and storm surge, tsunami andfloods risk maps of usable-scale and high-resolution maps
for urban centres

Capacitybuildingof stakeholders on usage of risk
information in development
planning and investments

Capacity building of government on usage of risk maps indevelopment planning and investment

Expected outcome:--Develop sector and township specific guidance notes

Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

DMH: Lead––

RRD: Co-lead

DSW, GAD, Ministry of Border Affairs, Myanmar Police Force,
MoHS, Ministry of Education, MoC, DWIR, Ayeyarwady Regional
Government, Rakhine State Government, Myanmar Port Authority,
Myanmar Navy Hydrographic Centre, MoALI, Universities,
IWUMD, Myanmar Survey Department, Department of Fisheries,
MIMU, SERVIR-Mekong, YU, YTU

17,000,000

Need:
Ayeyarwady Region and Rakhine State are prone to tsunamis, floods, cyclones and storm surges.
Climate change is increasing the existing cyclone and flood risk
Need to build on past data and develop floods, tsunami, cyclone and storm surge risk maps ofusable scale
Build capacity of government on usage of risk maps
Challenges:
Vulnerability data is limited
Application of risk information in development decisions
-

| 35

1.6

Priority Action: Landslide risk assessment of Chin State
Objective:--

Indicative Activities:

To conduct landslide risk assessment of usable scale fordevelopment projects
To build capacity of line
agencies on application oflandslide risk information,
includingincorporating landslide risk management intodevelopment interventions

Expected outcome:

Identify lead agencies and key partners from Myanmar to
conduct landslide risk assessment in the Chin State
Conduct landslide risk assessment of Chin State
Conduct landslide risk assessment of high resolution(1:10,000/5,000) for three urban centres and high-risk sites
Assessment shows landslide potential together with the
expected losses in terms of casualties, infrastructure,
economic losses--

Landslide risk map

Develop short landslide risk assessment notes specific to key
departments, townships-

1:10,000/5,000 scale landslide risk maps of three urban
centers and high-risk sites-

Build capacity of line agencies in usage of information indevelopment planning and response plans-

TownshipDepartment/
specific landslide risk maps-

Changes in rainfall pattern due to climate change will beconsidered in the landslide risk assessment. The map will
have both scenarios i.e. the current rainfall pattern andextreme events
Trigger factors should include rainfall, earthquake and humaninterventions

Duration: Three years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

DMH: Lead––

RRD: Co-lead

Forest Department, DSW, Department of Agriculture, MoC, GAD,
PD, Survey Department, Department of Fisheries, Department ofMines, MIMU, MGS, YU, YTU, MU, Universities

Need:
Landslide risk information is missing and the Chin State faced major landslides in 2015
Climate Change models project more intense rainfall in Myanmar, thus landslide risk is highFuture investments should be informed of landslide risks
Challenges:
Limited data
Accessibility
1.7

Priority Action: Earthquake risk assessment along Sagaing Fault
Objective:--

To prepare earthquake risk assessment maps of usable
scale,
fordevelopment
projects, along the Sagaing
Fault
To
assistinincreased
preparedness and earthquake
risk informed development along the Sagaing Fault

Expected outcome:
-

-

36 |

Indicative Activities:-

Earthquake
risk
maps
generated for Sagaing Fault on scale of 1:10,000 for regional
planning
Earthquake risks for urban
centers along Sagaing Fault at
scale of 1:5,000 for micro level
planning

Identify suitable methodology for earthquake risk assessment
in consultation with the Central coordination committee onrisk assessment (Refer project 1)
Soil amplification to be considered
Develop earthquake risk maps of appropriate scales, which
can assist in decision making for development projects
Naypyitaw-Tharzi segment and Bago segment should beprioritised
Develop short notes using earthquake risk maps specific totownships and departments in lucid language
Conduct training of government officers on the usage ofearthquake risk information in development and disaster riskplanning

Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

DMH: Lead––

RRD: Co-lead

DSW, Ministry of Industries, MoC, Ministry of Education, MoHS
GAD, PD, Department of Archaeology and National Museum,
MEC, MGS, YTU, MTU, YU, MU, YCDC, MCDC, NPT CDC, UN
Habitat9,000,000

Need:
Sagaing Fault is active and major earthquakes have been observed in recent years. Also, several
urban centres are located along the Sagaing Fault.
Central Myanmar is likely to witness major development and it is important to have disaster risk,
including earthquake risk informed development
Challenges:
Limited vulnerability data
1.8

Priority Action: Nation-wide disaster awareness programme with focus on people at most risk
Objective:

Indicative Activities:--

Organize tsunami awareness day on 5 November and IDDR
on 13 October at the national, regional and state level-

In coordination with the DRR Working Group, prepare an
event calendar in advance and activities can include: seminar/
workshop, Special Meeting of the NDMC, DM bodies at subnational levels, activities in school, display of do’s and don’ts
at public places, radio and TV, newspaper, etc.

-

International Disaster Risk Reduction Day will focus on
sub-national level and local hazards, especially lightning invulnerable regions and states-

Youth volunteers of Myanmar should be engaged inundertaking mass awareness activities at the local level-

Develop training packages on do’s and don’ts related tovarious disasters specific to type of disability

Increased public awareness on basics of disasters including
lighting and tsunami including
among PWDs

Conduct training for care givers from government and NGOs
to train on usage of the package--

To create mass awarenesson do’s and don’ts related todisasters, including lighting, inconcerned regions and statesof Myanmar
To equip care givers of PWDs
on the do’s and don’ts related
to disasters
To create mass awarenesson do’s and don’ts related todisasters among communities
with focus on people at mostrisk, including PWDs, theirfamily members and neighbors

Expected outcome:--Standard package on Do’s andDon’ts related to disasters for
PWDs developed and Care givers trained

Create mass awareness on do’s and don’ts related to disasters
among communities, with a focus on people at most risk
including PWDs, their family and neighbors
Prioritize townships with large populations of PWDs and at
who are at high risk

Duration: One year (Annual event) Estimated Cost (USD):
Lead Department:––––

To be estimated

Other department and partners:

DSW: Lead for PWD

GAD, DMH, Ministry of Education, Ministry of Hotel and Tourism,
Ministry of Border Affairs, Region/ State governments, MRTV,RRD: Lead for nation-wide
MoHS, FSD, MES, MEC, Media, Universities, UNV
awareness

Need:
Need for increased awareness on the do’s and don’ts of disasters at sub-national levels, especiallyat community level
Tsunami and lightning awareness is limited at all levels
A training package on DRR related to disability
Challenges:
Medium and long term community outreach strategy and youth volunteers
Limited capacity on DRR at the sub-national levels

| 37

38 |

3.3

Pillar 2:

Strengthening Disaster Risk Governanceto Reduce and Manage Risk

3.3.1

Introduction

Disaster risk governance33 has been defined as ‘the system of institutions, mechanisms, policy and legal
frameworks and other arrangements to guide, coordinate and oversee disaster risk reduction and related areasof policy’. It is an extremely important component for assuring a coordinated, effective and sustained disasterrisk reduction in all its phases. The governance of disaster risk cannot be separated from the governance ofother, risks arising from climate change (CC), environmental degradation, and overall development. Therefore,
coordination is essential.
The strengthening of disaster risk governance calls for a clear vision, plans, competencies, guidance andharmonization within and across sectors and at all levels, especially at sub-national one. At the regional/state,self-administered zone, district, township and ward/village tract level requires unambiguous policy, guidelines
and plans and well-defined roles and responsibilities of stakeholders and their capacity building are crucial.
Disaster risk governance is an integral part of the overall governance. Since it is a long-term process, a phased
approach is necessary for creating an effective and efficient system.

3.3.2	Approach and Objectives
The overall objective of Pillar 2 of the MAPDRR 2017 is to create/strengthen systems approach to disasterrisk mitigation, preparedness, response and recovery that spans multiple disciplines and includes all relevant
stakeholders.
It calls for a long-term phased approach. In its first phase, until 2020, the objectives are:33•

To put in place public policies, frameworks, guidelines and other administrative tools aimed at
improving disaster risk mitigation, preparedness, response and recovery, including relocation•

To strengthen coordination and delivery mechanisms within and between governments and otherstakeholders at all levels, through clearly defined roles and responsibilities of key actors•

To   improve disaster response, recovery, preparedness and recovery by drafting/revising and practicing
at all levels in a phased manner. Adopt comprehensive disaster risk management plans at all levels ina phased manner•

To improve disaster response systems by creating special response teams, strengthening fire services
and improving allocation of resources

United Nations, Open-ended intergovernmental expert working group on indicators and terminology relating to disaster risk reduction,
December 2016.

| 39

Policies, frameworks, guidelines, plans and other documents, which will be drafted or updated for strengthening
disaster risk governance, will be in line with the Disaster Management Law, 2013 of Myanmar. The planned
disaster risk reduction policy instruments will be informed of the National Climate Change Policy (draft),National Environmental Policy and other relevant instruments of Myanmar. It will be prepared in a transparent
and wider consultative mode to ensure that the needs of different groups are addressed, especially people atmost risk.

3.3.3

Priority Actions: Pillar 2

Table 3.3
2.1

Priority Actions: Strengthening Disaster Risk Governance to Reduce and Manage Risk

Priority Action: Myanmar Disaster Risk Management Policy
Objective:

Indicative Activities:

To provide overarching edifice for a comprehensive disasterrisk
reduction
approachfor Myanmar that seeks toachieve the judicious balanceof mitigation, preparedness,
response and rehabilitation and reconstruction
Expected output:--

Myanmar DRR Policy enacted
and thus contributing to sustainable
andresilientdevelopment in Myanmar

Constitute a drafting group to lead drafting of the Myanmar
DRR Policy
Consult with line departments, region/state and development
partners to identify needs and approaches for DRR in
MyanmarStock take of DRM policies of different countries
Draft Myanmar DRR Policy covering all four phases:
mitigation, preparedness, response and rehabilitation andreconstruction
Policy will cover issues related to relocation in the context
of imminent disasters, relief distribution, needs of vulnerable
groups, human trafficking, DRR funding, engagement of
external partners, environmental issues and DRR, urbanizationin context of DRR, resilient development, etc.

-

DRR Policy will be an integrated policy and will have links
with the 12-point economic policy, NCDP, Myanmar climatechange strategy and action plan, Myanmar’s social protection
strategic plan and Myanmar’s financial inclusion roadmap,
etc.

-

Enactment of Myanmar DRR Policy and its wider dissemination

Duration: Two years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

All departments, UNDP, UN OCHA

RRD

12,000

Need:
Risk profile of Myanmar is changing and it is important to approach development from a resiliencelens
DRR is key to resilience and it requires a comprehensive approach (thematic areas, engagementof partners, etc.)
Challenges:
Policy need to be backed up by actionable instruments
-

40 |

2.2

Priority Action: Myanmar Disaster Relief Guideline
Objective:
To ensure timely disaster relief
to affected communities byoutliningprocedures
andstandards of relief items
To back-up disaster risk
management plan/SOP alongwith allocation of resources ona regular basis

Indicative Activities:
The scope of the guidelines covers relief, provided by
the government. Guidelines will briefly mention about
international assistance (quality of assistance, visa, custom,etc.) and medical relief, however, it will not be its primaryfocus
Formation of a drafting group/ committee to lead drafting of
the Myanmar Disaster Relief Guideline
Identify key elements of relief outlined in DM Law, 2013; DM
Rules,
2015; Myanmar Social protection strategic plan; state/
Expected output:
regional
DM Law/ Ordertransparent
andTimely,Analysisof relief codes, manuals, procedures, etc. of different
accountable relief distribution
countries in region, international good practices, SPHERE, etc.
in the aftermath of a disaster
Development of the Myanmar Disaster Relief Guideline(Relief items, procedure for identification of beneficiary, relief
distribution, documentation, formats, etc.) in consultativemode
Enactment of the guidelines through relevant administrative
ordersCapacity building of regional/state, self-administered zones,
districts and township -level officials on relief guidelines
Address the special needs of those ‘most at risk’ during
disaster relief
Duration: Two years

Estimated Cost (USD):

Lead Department:–– RRD

Other department and partners:
GAD, Ministry of Border Affairs, Budget Dept., DSW, Planning
Dept., 14 regional/state DM Bodies, Self-administered zone,
CDCs, University, UNDP, UN OCHA

12,000Need:
Speedy relief distribution in the aftermath of a disaster is vital for affected communities
Sub-national officials require well set procedures for decision making in the context relief
distribution
Disaster Management Plans /SOP requires well set relief procedures for its effectiveness in
response
Challenges:
Defining minimum quality and quantity for relief vis-à-vis need
2.3

Priority Action: Myanmar’s disaster rehabilitation and reconstruction framework/ strategy using build
back better
Objective:
Indicative Activities:
To identify approach, broad Assess existing rehabilitation and reconstruction policies,
steps, institutional arrangeprocedures, etc. including Disaster Management Law, 2013
ments, etc. for undertaking
and roles and responsibilities of NDMC Work Committee on
future rehabilitation and rerehabilitation and reconstruction
construction with build-back- Identify key elements of rehabilitation and reconstruction
better principles
for Myanmar using the ASEAN Recovery Reference Guide,
Myanmar Social Protection Strategic Plan and other related
Expected output:
documents
Myanmar rehabilitation and Draft rehabilitation and reconstruction framework/ strategy
reconstruction
framework/
incorporating institutional arrangements, assessments,
strategy developed
planning, funding, implementation. Issue related to vulnerable
groups, human trafficking, M&E and linkages with long-term
development
Approval of the framework /strategy by NDMC
Development of a training module on rehabilitation andreconstruction framework/strategy, which will be linked withrecovery training course offered by DMTC capacity building
module| 41

Duration: Two years

Estimated Cost (USD):

Lead Department:–– MoC

Other department and partners:
GAD, CDCs, RRD, Ministry of Border Affairs, PD, Budget
Department, MoHS, Ministry of Education, DSW, MoALI, UNDP

To be estimated

Need:
Rehabilitation and reconstruction offer a window of opportunity for risk reduction and Myanmar
has undertaken several programmes in the recent past
ASEAN Recovery Reference Guide has been recently developed under the leadership of Myanmar
and Indonesia with support from ASEAN Secretariat and UNDP. It is important to use the country
context learning
Challenges:
Rehabilitation and reconstruction is complex
2.4

Priority Action: Strengthening disaster management systems at national and sub-national levels in linewith DM Law, 2013 and Rules, 2015
Objective:-To
strengthen
disastermanagement bodies at theregional/statelevel,
selfadministered zone, district,township and ward/village
tract levels-

To improve coordination andfurther enhance capacity of line
departments in discharging
disaster management related
functions

Expected output:--

Create a DRR/CCA focal
section in each department
Improved coordination on
disastermanagementatnational and sub-national levelDMsystem,includingmainstreaming
DRR
indevelopment is strengthened

Duration: Four years

Indicative Activities:
Create DRR focal sections in each department
Draft terms of reference of the DRR focal section and include
it in the job description of related officers
DRR information management will be part of section
Develop multi-hazard Disaster Risk Management Plan
Review rules and regulations of departments in line with DM
rules and laws
Disaster management bodies at regional /state, selfadministered zone, township and ward/village tract meet atleast bi-annually and proceedings are documented
DM focal sections of departments and DM bodies work
closely with planning department and other departments atnational and sub-national levels respectively to ensure DRR/
CCA considerations in department/development projects
under annual budget
DM body members are oriented on its roles and responsibilities
as per the DM rules and laws. Ward/village tract Clerk
should be trained on DRR as she/he can create awareness at
community level
Mock drills/table top exercises conducted to improve
preparedness, including for ‘most at risk’ at national and subnational levels
Vertical and horizontal inter-agency coordination reviewed
and strengthened. It should also include civil-military
cooperation
Budget for functioning of the DM focal sections and DM
bodiesEstimated Cost (USD):

614,000(Phased approach: annually)
Lead Department:––––

Other department and partners:

GAD (sub-national DM bodies) All line departments, UN OCHARRD (DM focal section in eachdepartment)

Need:
Myanmar has enacted DM Law, 2013 and it is important to update department rules and regulations
in line with the law and rules
Sub-national DM bodies are most important in disaster response and risk reduction
Challenges:
Limited capacity at local level
Strengthening DM committees at VT requires a phased approach, hence prioritisation
42 |

2.5

Priority Action: Strengthening Fire Risk Management Systems in Myanmar
Objective:-

To strengthen fire services
capacity for managing disaster
response at the operational
level

Expected output:-

Myanmarfire
services
strengthening for effective andefficient disaster response-

Manpowerrationalized,
equipment
procuredandcoordination
arrangements
set-up

Indicative Activities:
Assess existing fire services capacities and functions,
including disaster response in case of fire and other disasters.
It should intersect with other response agencies such as
health, police, GAD, MRCS, auxiliary fire brigade, CSOs, etc.
Review training courses and engage fire services based on
the current risk profile of Myanmar
Analyze any gaps or overlaps in the delivery response related
services during fire and other disasters
Formulate recommendations on strengthening fire services
to respond to fire and other disasters at the operational level.
Coordinate with other agencies, intervening during response,
regarding institutional arrangements, manpower, equipment,
etc. Implementation will be in a phased manner
Pilot testing of new arrangements in one CDC and 20
townships across five regions/states
Increase awareness on civic duties (such as giving way to firetender, ambulances, informing FSD about fire at the earliest,etc.).

Duration: Five years and beyond

Estimated Cost (USD):

Lead Department:

Other department and partners:––

GAD, RRD, PD, Ministry of Border Affairs, Myanmar Police Force,
Budget Department, MOHS, YCDC, MCDC, Department ofIndustries

Fire Services Department

254,000

Need:
Risk profile of Myanmar is changing, and so is role of fire services in disaster response
Fire services capacity, functions, etc. need to be assessed, in light of DM Law, 2013, the risk profile
of Myanmar and future trends
Challenges:
Budget intensive
Restructuring existing arrangements is a challenge and is a long-term process
2.6

Priority Action: Strategy for Improving Disaster Risk Financing in Myanmar
Objective:-

To study existing disaster risk
financing, including insurance
mechanisms-

To identify a set of options
for disaster risk financing,including insurance products,
for disaster risks based on
feasibility,
demands
andeffectiveness

Expected output:-

Identify disaster risk financing,insurance
optionsandinsurance products-

Create a system for tracking
DRR investments and use it for
DRR allocation

Indicative Activities:
Create a system, including methodology for tracking existing
DRM (relief, rehabilitation and reconstruction and mitigation
separately) funding in Myanmar to gauge effectiveness of
mitigation and preparedness measures and allocation offunds for disaster response
It will build on pilot projects undertaken by RRD to understand
DRR investments in Myanmar
It will track union and regional/local budgets on DRR andwill assist MoPF and RRD in allocation for relief, mitigationand preparedness resources
Develop a status report on existing DRM financing options
including develop insurance products based on the status
report, risk profile and models, DRM financing mechanism
in ASEAN and other countries and other considerations, thestrategy for DRM financing will be formulated and developed
Strategy will include various DRM financing options andproducts based on a feasibility demand
The DRM financing options will be identified based on
feasibility, demand and effectiveness. It will also lay out aroadmap for implementation.
Identify types of risk transfers/ insurance products andrecommendations for its easy access and affordability| 43Duration: Three years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

RRD, GAD, Ministry of Border Affairs, CDCs, Myanmar Insurance,
UMFCCI

MoPF

Need:
Innovative disaster risk financing options have been developed and it is important to explore
options for effective and efficient DRM financing
Effective allocation of budget for disaster response/relief, mitigation and preparedness requires
systematic tracking of investments
Challenges:
DRR investment tracking is complex and an emerging topic
Disaster risk insurance market is at an early stage
-

44 |

3.4
Pillar 3:

Mainstreaming Disaster Risk Reduction
for Resilient Development in Myanmar

3.4.1

Introduction

Myanmar has set a course for high growth, which will enable it to surpass a middle-income country status by
2030, and lift millions of people out of poverty.34 It is important to note that development is never disaster
neutral; it can creates, exacerbates or reduces risk.35 Disasters impact all aspects of development; they
can cause loss of lives, livelihoods and infrastructure. Indirectly, they can generate diversion of funds fromdevelopment to response, relief, rehabilitation and reconstruction. A World Bank study has estimated that theannual expected economic losses, as a percentage of the national GDP for Myanmar is 0.9, which is the highest
among all ASEAN member states.36 This means disasters have the potential of derailing Myanmar’s economic
ambitions and its intention to lift millions out of poverty.
Hence, it is essential that disaster risk reduction is made a central component of the future development agenda
of Myanmar, so that disasters do not derail its development. Furthermore, rehabilitation and reconstruction
should be used as an opportunity for risk reduction by adhering to the principle of ‘build-back-better’. In anutshell, disaster risk reduction is a key development issue.

3.4.2	Approach and Objectives
The overall objective of Pillar 3 of the MAPDRR 2017 is to mainstream disaster risk reduction into the development
agenda of Myanmar, considering national, regional and local development planning and implementation. It also
includes development and investments by private sector.
It has the following objectives:•
To integrate disaster and climate risk considerations into national, regional/state and local development
planning•
To mainstream disaster and climate risk considerations into the tourism sector, private investment
guidelines and infrastructure sector•
To undertake comprehensive risk reduction and preparedness measures in priority sectors, like health,education and agriculture•
To support enforcement of building codes and implement location-specific risk reduction programmes
in hilly regions and urban centres

34
35
36

Ministry of National Planning and Economic Development, Government of Myanmar, National Comprehensive Development Plan, 2014.
UNDP and et al. Disaster risk reduction makes development sustainable, a call for action.
World Bank, Advancing disaster risk financing and insurance in ASEAN member states: framework and options for implementation,
volume-I, 2012.

| 45

The overall approach under this pillar is to build on the development framework of Myanmar with a special
focus on national, regional and local development planning, implementation, monitoring and evaluation. It will
use an evidence-based approach and analyze the impact of past disasters on overall development and acrosssectors, which development planning will rely on. It will approach priority sectors and regions in a phasedmanner to implement priority programmes and draw lessons for up-scaling. The risk reduction considerations
will use multi-hazard risk assessment information and climate change projections. The long-term risk reduction
will focus on reducing social and environmental vulnerability (including built environment) and other driversof disaster risk.

3.4.3

Priority Actions: Pillar 3

Table 3.4
3.1

Priority Actions: Mainstreaming Disaster Risk Reduction for Resilient Development

Priority Action: Mainstreaming DRR/CCA into national, regional/ state level development planning,project appraisal and monitoring and evaluation processes
Objective:-

To ensure integration of
DRR/CCA
elements
inproject appraisal processes,monitoring and evaluation ofnational sectoral planning andregional/statedevelopment
planning and budgeting

Expected output:-

Mechanisms for systematic
integration of disaster andclimate risks in the planning,
appraisalandmonitoring
evaluation
processesofdevelopment sectors
established.

Indicative Activities:
Analyze the impact of disasters and climate change on
development sectors and identify the most affected ones
Formulate DRR/CCA related Indicators and guidelines inselected sectors to be included in the planning, appraisal andmonitoring and evaluation processes of development plansand projects
Pilot test of indicators and guidelines, and incorporate theminto the planning, appraisal and monitoring and evaluation
processes in selected sectors
Build capacity of personnel concerned on application of theindicators and guidelines
Endorse and apply the indicators and guidelines in thesystems of selected sectors
Review the usefulness, effectiveness and gaps and improve
the systems, and replicate in the remaining sectors.

Duration: Three years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

Project Appraisal and Project Reporting Department, PD, Budget
Department, RRD, ECD, DMH

MSWRR

Need:
Comprehensive data to analyze the impact of disasters and climate change on development
sectors will be required
Political will, coordination among the concerned departments and the dedicated technicalexpertise of each selected sector are critical to achieve results
It has linkages with Myanmar climate change strategy and action plan and requires close
coordination with ECD
Challenges:
Development planning and budget in early stage
Limited evidence / reference on DRR /CCA inclusive planning approval and M&E process
Limited climate data at the sub-national level
3.2

Priority Action: Disaster and climate risk consideration into private sector investment guidelines
Objective:-

46 |To review and incorporate
disaster and climate risk
considerations into private
sector investment guideline,
procedures
andapproval
process

Indicative Activities:
Compile private investment related strategy, guidelines,
procedures, checklist, etc.
Create disaster/climate risk profile of Myanmar vis-à-vis
private sector
Identify gaps and entry points for DRR/CCA into the relevant
documents

Expected output:--

Privatesectorinvestment
is informed of disaster and climate risks-

Develop a set of guidelines / indicators to be incorporated
into private sector investment related documents
EIA/SIA studies conducted by the private sector before
setting up facilities to include DRR/CCA elements.
It has linkages with Myanmar Climate Change Strategy andAction Plan and requires close coordination with ECD
Capacity building of concerned government officials on
application of the guidelines/indicators. (Refer priority
action 1.3)

Duration: Two years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

GAD, DMH, RRD, ECD, Ministry of Commerce, UMFCCI, YCDC,
MCDC, NPT CDC, CSO

DICA

64,000

Need:
Disaster and climate risk is considered a major threat to industries
Complex disasters are increasing
Myanmar industrial sector is developing, hence important to develop resilience
Challenges:
Limited reference/ experience exists globally
Need to coordinate with ECD and to align to the Myanmar Climate Change Strategy and Action
Plan
3.3

Priority Action: Promotion and integration of disaster and climate risk management approaches in the
tourism sector of Myanmar
Objective:-

To enhance resilience of the
tourism sector from disasterand climate risk and contributeto development

Expected output:-

Disasterresilientsector of Myanmar

tourism

Indicative Activities:
Review tourism sector policy or related documents andidentify disaster and climate risk management entry points
Measure safe construction practices, disaster risk
management plans, evacuation plans, mock drills, check lists,
etc. to be included in the tourism sector guidelines
Annual mock drill in relevant tourism sectors
It will include earthquakes, landslides, tsunami, floods, fire,etc.
Construction standards related to tourism sector to include
DRR/CCA features
Annual self-risk compliance report using standard check list
through UMFCCI

Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:

66,000––

Ministry of Hotels and Tourism: GAD, RRD, Ministry of Border Affairs, MoC, ECD, Department ofLeadimmigration, UMFCCI––

Forest Department: Co-lead

Need:Tourism is vital to the economy of Myanmar and any disruption has multiple impacts on diverse
sectors
Myanmar coastline is prone to tsunamis, cyclones, floods while many other tourist locations areprone to earthquakes, floods and landslides
Challenges:
Disaster risk reduction is relatively new to the tourism industry
-

| 47

3.4

Priority Action: Mainstreaming disaster and climate risk considerations into village development planningand implementation including, infrastructure, livelihoods, agriculture and environment
Objective:-

To include DRR/ CCA into
small village development
plans, considering community
infrastructure, livelihoods andagriculture-To
undertakeecosystembased disaster risk reduction
measures

Expected output:-

Village development plan andcommunity-level infrastructure
is informed of disaster andclimate risk

Indicative Activities:
Include DRR/CCA considerations into village development
planning process, including small community level
infrastructure projects (refer Myanmar National Framework
for Community Disaster Resilience)
Capacity building on the use of risk information
Community level activities for risk reduction, such as revive/conserve water bodies (lake, ponds, etc.), creation of water
conservation/ storage facilities, small scale forest areas
creation and surplus from sales, awareness generation on
natural resource management, crop diversification andimproving usage of flood and drought resistant crops,
livestock diversification and alternate livelihoods, reducing
shifting agriculture, community level infrastructure andlivelihoods activities
Small projects, i.e. roads linking villages to cyclone shelters-

Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

PD, GAD, RRD, ECD, DMH, Forest dept., Dep’t of Agriculture,
Progress of Border Areas and National Races Development

Department of Rural
Development

7,500,000

Need:
Myanmar has developed the Myanmar National Framework for Community Disaster Resilience,
which requires resilience as a core component of community development
Challenges:
Development planning and budget in early stage
Limited climate data at the sub-national level.
3.5

Priority Action: Promoting Sustainable Development in vulnerable hilly regions by reducing landslide
risks and related risks
Objective:-

supportsustainableTo
developmentintargeted
hilly regions by addressing
underlying causes of landslides

Expected output:

48 |

-

Promote application ofsustainable agricultural
practices-

Communities living inmountainous areas are awareof proper laws and regulations
with regard to natural
resource management-

Communities living in target
hilly areas are capable ofsustainable land and natural
resource management

Indicative Activities:
Carry out studies in targeted areas on population, natural
resources, agricultural practices, watershed management,
income generation activities, etc.
Carry out assessments on landslide, land degradation andsoil erosion problems
Conduct public awareness activities to educate thecommunity on sustainable practices, do’s and don’ts related
to landslides and other risks. Educate on relevant laws andregulations with regard to the misuse of agriculture land,
shifting cultivation, unauthorized felling and cutting of trees,
wildlife hunting in protected forests.
Identify a sustainable mountain farming systems and conduct
demonstrations for application of such practices
Effect of climate change will be part of this priority
intervention
Lessons learnt from projects will be used in other regions

Duration: Two years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

Region/State DM Body, DMH, GAD, ECD, MGS

Forest Department

To be estimatedNeed:
Landslide and land degradation is a major risk to lives and livelihoods in hilly regions
Climate change will worsen the situation
Hilly region of Myanmar has substantial population engaged in agriculture and allied activities
Challenges:
Land degradation, is a development issues and requires a long-term approach to be addressed
successfully
3.6

Priority Action: Building urban resilience to address disaster and climate risk in selected urban centresof Myanmar
Objective:-

To improve resilience inselected urban centres ofMyanmar to ensure continuityof urban centres without any
limited interruption in theevent of an external shock

Expected output:-

Indicative Activities:
Develop/update disaster and climate risk profile of selected
3-4 urban centres, which will include hazards such as
earthquakes, floods, cyclones, landslides, lightning, fire,industrial and technological hazards, etc. It will also include
vulnerability and exposure, especially people who are at
most risk, in relation to housing and infrastructure-

Urban centres (selected) areresilient to disaster and climate risk--

Develop disaster risk management plan at city/municipal andward levels
Land use plan and urban development plan to incorporate
disaster and climate risk considerations
Strengthening of exiting services such as power, transport,
communication, etc. to withstand disaster risk
Strengthen systems to implement building codes and its
monitoring
Engagement of Builders Association through UMFCCI on
multi-hazard resistant safety features
Promote engagement of masons trained on multi-hazard
construction under the capacity building programme of MoC
Improve design of infrastructure such as roads, flyovers,
drainage, power line, etc. considering floods, earthquakes,
cyclone risks, etc.
Protect water bodies, trees and promote eco- system based
solutions
Create awareness on do’s and don’ts related to disasters andcauses of disasters and climate change
Engage housing associations on low carbon solutions.
Improve DRR coordination within sectorial agencies of urban
bodies, unions and regional/state departments for effective
and swift response

Duration: Four years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

City Development
MoC, MoHS, DMH, GAD, ECD, RRD, UMFCCI, YU, YTU, MU, MTU,
Committees and regional/
Other universities, UN Habitat
state governments of selectedurban centres

Need:
Myanmar’s economic growth is on a high trajectory and urban centres are key. Yangon is expected
to become a mega city of 10 million people by 2040. The urban centres such as Yangon, Mandalay,
Bago, Sagaing, etc. are exposed to multiple risks
The urban centres are likely to attract huge investments and it is important to have inbuilt resiliencein these investments
Challenges:
Limited capacity and resources at the local level
-

| 49

3.7

Priority Action: Integration of Disaster Risk Reduction in health facilities and other infrastructure
Objective:-To
ensuremulti-hazard
resistantdesignandconstruction of health facilities
and other infrastructure

Expected output:-

hospitals
ResilientinfrastructureandIndicative Activities:
Develop guidelines on integration of hazard specific structuralconsiderations in health facilities and other infrastructure
Other infrastructure will be defined and it will include roads,
bridges, markets, communication facilities, governmentbuildings, etc.
Develop multi-hazard resistant hospital and infrastructure
designs and prototypes
Widely promote usage of the guidelines
Set-up monitoring and evaluation mechanisms to ensurecompliance of guidelines
Engage construction companies engaged in development of
infrastructure and health facilities on DRR features in designand construction through UMFCCI

Duration: Four years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

MoC: Lead––

MoHS: Co-lead

MoALI, Ministry of Education, MOHS, GAD, RRD, FSD, Department
of Culture, DMH, Forest Department, WRUD, Regional / State DM
bodies, UMFCCI

Need:Myanmar is witnessing a high rate of development and the trend is likely to continue. It is importantthat future developments are informed of disaster and climate risk
Challenges:
Disaster and climate risk inclusive infrastructure requires technical as well as financial implications
3.8

Priority Action: Drought risk management programme for improving disaster and climate resilience inthe agriculture sector
Objective:-

To reduce drought risk by promoting
early warning and early action
against drought and related hazards-

Tostrengthen
drought-related
climate/weather data sets anddecision-support systems to enhanceearly warning and early action for
long-term drought impacts and risks-

To increase capacities, at different
levels, on the various aspects ofdrought risk management

Expected output:
-

-

-

-

50 |

Report on drought impacts and risks,
based on analysis of past damage
and lost data
Agriculture (crop, livestock, andfisheries) activities are guided
by drought risk and vulnerability
information and good/risk-reducing
practices for drought management
Drought monitoring system utilizing
a combination of field-derived,model-based and remotely sensed
information
Protocols for Early Warning and Early
Action, response and rehabilitation
Methodology on drought analysis
and declaration

Indicative Activities:
Identification of priority drought risk areas based onrisk/vulnerability assessments and long-term climate
projections
Analyze drought-related risks, hazards and impacts
such as increased pest infestations, increased fishkills, increased livestock mortality, forest fires anddevelopment/disseminationofcomprehensive
guidelines to reduce negative impacts; assess linkagesof drought impacts to other sectors; analysis will bedone at different levels using a combination of topdown and bottom-up approaches and model-based(e.g. crop water stress simulation) tools;
Development of drought-related climate and weather
datasets at different temporal and spatial scales(including sub-national level)
Utilization of complementary data sources for droughtrisk management, including remote-sensing-based
tools or systems or hybrids ie the Agriculture StressIndex (ASI) system
Development of an agricultural drought monitoring
system within MoALI in close partnership with DMH
Establishment of protocols and procedures fordrought early warning and early action, mitigation andresponse, and rehabilitation
Capacity building on drought risk management at subnational level
Drought risk mitigation measures such as usageof drought and saline resistant crops by engaging
community and CSOs through agriculture extension
workers and deployment of suitable droughtmanagement equipment

--

Reduced drought impacts due to increased access to enhanced
drought-risk information and riskreducing practices and technologies
in the agriculture and other sectors
Enhanced capacities for preparing to
respond to the impact of droughts

Enhance access to DRR good practices andtechnologies across the agriculture value chain (fromseed production, to crop production, and post-harvest,etc.).
Construction of drought mitigation infrastructure,
where applicable

Duration: Four years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

IWUMD, DALMS, Department of Agricultural Research,
DRD, DMH, ECD, GAD, RRD, MRTV, Dry Zone Greening
Department, Universities

Department of Agriculture

Need:
Drought is a major hazard in Myanmar and its impacts are expected to increase in intensity due toclimate change
There is a need for additional drought risk information especially for the agriculture (crop, livestock,fisheries) and forestry sectors since droughts (and related hazards and risks) could significantly
affect key livelihoods in the country
3.9

Priority Action: Myanmar Comprehensive School Safety Programme
Objective:
ensureconstruction
Toofmulti-hazard
resistantconstructionofschoolbuildings and other learningfacilities in safe locations
improvedisasterTo
preparedness in school thus,
protecting children, teachers,
and school authorities fromdisasters
Expected output:
Constructsafe
schoolbuildings and other learningfacilities
Include disaster and climate
risk issues in the educational
curricula
School DRM Plan prepared,
practisedandprioritised
schools.
Raise awareness on DRM
among students, teachers andschool authorities

Indicative Activities:
Update designs of school buildings and related infrastructurewith reference to Safe School Construction Guidelines
Strengthening systems for identification of safe site selection
for schools
Include/update disaster risk and climate risk issues in syllabus
Capacity building for imparting chapters/ sections related todisaster /climate risk issues for teachers
Identify 10-15 schools each in all regions/states giving priority
to Ayeyarwady, Chin, Magway, Mandalay, Rakhine, Sagaing,
Bago and Thanintharyi
Train school teachers of identified schools on disaster
preparedness
Drafting of individual school preparedness plans by trainedteachers in consultation with students
Organise school activities, such as drawing competitions,debates, essay writing, on DRM themes
A disaster management club can be formed in schools along
the lines of science club, nature club, etc. It is a body forcreating awareness on DRR among students. The School
DRM Committee will be overall in-charge for DRR in school.
PTA to be part of School DM Plan and DRM Committee.
School DRM plan should be linked with the township’s DRM
Plan
Practice School DRM Plan through mock drills
Small mitigation activities will be undertaken as part of the
project
Lessons learnt to be incorporated into next phase of School
Disaster Preparedness Programme
All schools will be covered in a phased manner
Develop a set of indicators to track all aspects of school
safetyThese activities are in line with the Comprehensive School
Safety Framework

Duration: Three years and beyond Estimated Cost (USD):

1,150,000| 51

Lead Department:–– Ministry of Education

Other department and partners:
GAD, MoC, FSD, Region/State DM Bodies, RRD, DSW, DMH, ECD,
Universities

Need:
Multi-hazard school buildings to ensure a safe learning environment
Students are highly vulnerable to disaster
Capacity building of students has multiple benefits over the short and long-term
Myanmar has initiated several school preparedness programmes and it can be up-scaled
Challenges:
High number of schools in vulnerable areas
-

52 |

3.5
Pillar 4:
Enhancing Disaster Preparedness for
Effective Response and Resilient
Rehabilitation and Reconstruction
in Myanmar

3.5.1

Introduction

Disaster risk accumulated over decades and centuries of skewed development, as well as risks from unknown
weather extremes can’t be mitigated in few years. This residual risk,37 which remains in unmanaged forms
even when effective disaster risk reduction measures are in place, requires response and rehabilitation andreconstruction measures. As recognized in the Sendai Framework (SFDRR)38, there is a need to strengthen
disaster preparedness for response, take action in anticipation of events and capacitate stakeholders for aneffective response.
Rehabilitation and reconstruction after the initial response is equally important for recovery of affected
communities and long-term risk reduction, thereby contributing to sustainable development. Thus, preparedness
for rehabilitation and reconstruction is now a widely accepted concept as it helps to plan ahead in a way thatinterventions are predictable and can be implemented without delay.39
Preparedness for disaster is equally important. Speedy response and relief saves lives and assets. It also helps
reduce and manage resources required for rehabilitation and reconstruction. The preparedness measures
range from the establishment of end-to-end early warning systems and the creation of rapid response teams
to draft disaster response plans, and create of facilities for response and relief.

3.5.2	Approach and Objectives
The overall objective of Pillar 4 is to manage residual risk effectively and efficiently by creating systems,
including human resources, equipment, facilities and procedures for disaster response, rehabilitation andreconstruction.
It has the following objectives:

37
38
39

•

To update/develop disaster risk management plans of all regional/state, self-administered zones,
district townships and wards/village tracts in line with the Disaster Management Law, 2013 and Disaster
Management Rules, 2015.

•

To create an inventory of disaster response resources and set-up rapid response teams for effective
disaster response.

•

To improve capacity of stakeholders, including communities and vulnerable groups, throughstrengthening of institutions, curricula development and research.

United Nations, Open-ended intergovernmental expert working group on indicators and terminology relating to disaster risk reduction,
December 2016.
United Nations, Sendai Framework for Disaster Risk Reduction 2015-2030, 2015.
Ministry of Social Welfare, Relief and Resettlement, Myanmar and et al, ASEAN Disaster Recovery Reference Guide, 2016.

| 53

•

To strengthen end-to-end early warning systems at sub-national and community levels.

•

To undertake hazard specific and theme specific risk management measures targeted toward flood,
drought, disease and pest risks, and historical monuments.

•

To strengthen community-level preparedness through engagement of CSOs, foundations andvolunteers in disaster preparedness efforts.

Disaster response is undertaken under high-pressure circumstances, therefore it is important to have in-built
systems and procedures to address the needs of people most at risk.

3.5.3

Priority Actions: Pillar 4

Table 3.5
4.1

Priority Actions: Enhancing Disaster Preparedness for Effective Response andResilient Rehabilitation and Reconstruction

Priority Action: Updating/ developing multi-hazard disaster risk management plans of all regions/ states,
self-administered zones, districts townships and wards/ village tracts
Objective:-

Indicative Activities:

To update/develop disaster risk
managementplansof all regions /states, selfadministered zones, districts,
townships and wards/village
tracts in line with the Disaster
Management
Law,
2013,
Disaster Management Rules,
2015 and practice plan-

Expected output:-

DRM Plan based on risk profile and in accordance with DM Law, 2013 and DM Rules,
2015 is prepared/updated
for all regions/states, selfadministered zone, district,townships and wards/village
tracts-Develop a short guidance notes along with disaster risk
management plans to outline for regional/state, selfadministered zone township and ward/village tract . It willtake into account existing plans, guidelines and DM Law, 2013and DM, Rules, 2015
Guidelines on township disaster risk management plans shallbe updated before the revision of the Township DRM Plan
Guidance on ward/village tract Disaster Risk Management
Plan
Capacity building of stakeholders on DRM plan development
Development/updating of DRM Plans in a phased manner;
In the first year, all regional/state and self-administered zone
DRM plans and 50 most vulnerable townships and its ward/
village tract 150 vulnerable townships and its ward/village
tract in 2nd year Rest all 150 townships and its village tracts/
wards in 3rd year
DRM Plan will be based on the risk profile of the regions/state, self-administered zone, district, township and ward/
village tract. Vulnerability and effect of climate change will
be a key aspect of the DRM Plan. The plan will also include
elements of pre-disaster recovery planning-

Develop guidelines on how to conduct mock drills-

Mock drills to test DRM Plan and review/update plans basedon findings of the mock drills

Duration: Four years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

Regional and State
Government

DMH, RRD, ECD, Ministry of Border Affairs, YU, YTU, Universities––

General Administration
Department

235,000

Need:
Myanmar has enacted DM Law, 2013 and it covers institutional arrangements and practices and it
is important to update/develop DRM Plan at sub-national levels
DRM plans need to be practiced and institutionalized as Myanmar is vulnerable to multiple hazards
Challenges:
Limited resources and capacity at sub-national levels to develop multi-hazard DRM plans
-

54 |

4.2

Priority Action: Improved disaster response system in Myanmar
Objective:---

Indicative Activities:

To create rapid disaster Response Team
response teams at regional/ Develop terms of reference for disaster rapid response
state for effective disasterteams: composition, roles and responsibilities, coordination
responsemechanism, deployment, etc.
To develop a web-based
Identify personnel for teams based on the composition andinventory of resources
functions of teams, which will include fire/rescue members,(equipment, facilities,
medics, para-medics, structural engineers, police, etc.
manpower)
Capacity building of team members
To develop an online system
Procurement/allocation of equipment (rescue, communicafor management of thetion,etc.) and transportation facilities to the team
warehouse related to disaster
response and recovery
In first phase, team will be constituted at regional /state andself-administered zone level and based on learning’s, it canbe created at the district level

Expected output:

Inventory of response facilities-

Create and train disaster rapid response teams-

Web-based disaster response
resources inventory developedand institutionalized-

Develop data collection format of resources (manpower,
equipment and facilities such as warehouse, safe shelters,
hospitals, masons trained on multi-hazard construction
under the capacity building program of MoC, etc.)
Develop online inventory & manuals, along with facilities fordownloading/ updating data on standalone systems-

Warehouse management can be linked with emergency
logistics systems of ASEAN (DELSA) and World Food
Programme (WFP)-

Capacity building of officials on usage of the systems-

Institutionalisation of systems in National EOC/ RRD andlater in regional/ state EOCs-

MRCS has Resource Management System (RMS) and explore
its linkages with the National EOC

Duration: Three years

Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

GAD, FSD, MoALI, Ministry of Border Affairs, Myanmar Police
Force, MoC, MoHS, WFP, UN OCHA, MRCS

RRD

Need:
Disaster response requires resources at short notice. A central database of such resources will bevery helpful.
Decentralised Multi-function disaster response team is important for effective response.
Challenges:
Disaster response, especially complex disasters require highly trained personnel and equipment
Access to inventory in remote locations
Updating of offline systems and data
-

| 55

4.3

Priority Action: Capacity development on disaster resilience in a systematic, effective and sustainable
manner and strengthening Disaster Management Training Centre (DMTC)
Objective:

Indicative Activities:
DMTC:
Prioritise actions to strengthen DMTC based on RRD’s
Capacity. Development Strategy for National DMTC
Priority: Research, outreach and capacity building on delivery,amond other priorities.
Research topics should contribute to improved DRM policy,
strategy and trainings in Myanmar and focus on application/community aspects. It should be evidence based.
Conduct training in collaboration with universities, training
institutions, etc. in other parts of Myanmar
Develop a roster of experts on different topics of DRM
and engage experts, especially government officials, inexperience sharing for practical aspects.

-

To improve research facility,
course content, and delivery,
outreach of DMTC, as a centreof excellence on DRM-

To
includedisasterrisk
reduction and climate change
adaptation in civil services
training and GAD training
courses-

To develop online courses forincreased access on the basics
of disaster risk reduction,
response and recovery and its
linkages with climate change
and sustainable development Initiating Online courses through DMTC:
Through DMTC, undertake a feasibility study of online
courses on disaster risk management
Based on the feasibility, an approach paper will be developedand it may consider the following issues:
The proposed online interactive self-paced course based on
the needs assessment and stock taking of existing courses
on DRR and CCA
Training tools to be interactive and include self-assessment
as it progresses and at the conclusion

Expected output:--

DMTC strengthened and able
to discharge its mandate
effectively and efficiently-

Government officers and other stakeholders have a basic
understanding of componentsof risk and measures foraddressing risk

The course may include some type of assignment, which
requires participants to do some work, when they return totheir duty station
Course will include DRR, recovery and its linkages withclimate change and sustainable development
Option of offline course will be offered in Myanmar’s official
languages
Based on lessons learnt and demand, it can be up-scaled
to develop course specifics for the general public, children,
youth and women in subsequent phases

DRR/CCA&M in existing training courses
Develop courses including session plans, facilitator’s guide,
participants guide, etc. based on existing civil services
training and GAD trainings.
Train existing trainers on DRR/CCA&M session
Civil servants range from senior administrators to junior level
officials. The training courses should be group specific
DoPH has a similar course with focus on health issues
Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:

––

56 |

79,000––RRD (DMTC and online course) FSD, MoHS, Myanmar Police Force, University, DMH, MoC,
ECD, Ministry of Education, Forest Department, MES, YU, YTU,
Union Civil Service Board (Civil
Universities, UN OCHA
services training)––

GAD (GAD training course)Need:DRR is, primarily, a cross-cutting issue, hence all officials should be oriented
DMTC needs to be strengthened to cater to needs and expand its reach
Challenges:
DMTC is very new and has limited human resources capacity
Updating of course work
4.4

Priority Action: Construction and maintenance of multi-purpose community safe facilities based on risk
profileObjective:
-

To
offer
safe-haventocommunities
in
case
of
disasters and utilise sheltersfor other community purposes
during regular times

Expected output:-

Multi-purpose safe shelters forcommunities during disasters
and other community purpose
activities during regular times

Indicative Activities:
Identify areas where community safe shelters need to beconstructed. It should be based on a risk profile, access, landownership and coverage. The locally available construction
materials will be promoted and prioritized. Identify locations
for construction of new shelters and redevelopment ofexisting structures for phased implementation
Identify existing buildings, to be used as shelters andimprove them. Identify sites where new shelters need to beconstructed.
Community safe shelters will be multi-purpose facilities i.e.
during regular times it will be used for community meetings/
functions, markets, etc. or any other community level
activities
Safe community shelters are included in the local disasterrisk management plan
Set-up a community level safe shelter maintenance groups
Route of community safe shelters will be properly displayed
at public places
Community safe shelters should be designed consideringfeatures for people with disabilities, children, the elderly andother groups.

Duration: Three years and beyond Estimated Cost (USD): To be estimatedLead Department:

Other department and partners:––

Ministry of Border Affairs, GAD, RRD, DRD, DUHD, MIMU

MoC

Need:
In the aftermath of Cyclone Nargis, cyclone shelters have been constructed at several locations.
However, there is a need for additional shelters
Community safe shelters can be used for multi-purpose usage
Challenges:
Resource intensive
Needs in various parts of the country
4.5

Priority Action: Improving end-to-end multi-hazard early warning systems, through strengthening ofcommunication networks and early warning dissemination procedures and protocols
Objective:-

To reduce the negative impacts
of disasters through thedissemination of early warning
information and signals in atimely and effective manner
to sub-national authorities andcommunities

Indicative Activities:
Review existing communication networks and identify
locations, which require strengthening of communication
facilities
Offer incentives for private sector to provide communication
services in locations, currently not covered or have limited
coverage
Identify alternative communication network/all-weather
communication and cover Myanmar in a phased manner| 57

Expected output:
-

-

-

-

Establish communication
networks to expedite
transmission of warnings-

Early warning communicatedin sign language, apartfrom regular modes ofcommunication-

Local authorities andcommunities able to takesuitable action based on early
warning signals--

Develop early warning dissemination frameworks andinstitutionalised inter-agency arrangements and coordination
mechanisms for better information flow
Early warning through MRTV to include sign language forpeople with disabilities
Formalize early warning dissemination arrangements at alllevelsCapacity building of local authorities on understanding early
warning signals and actions
Awareness generation on early warning and related actions,
including evacuation efforts for communities

Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

To be estimated

Post and Telecommunications DMH, MRTV, GAD, Myanmar Police Force, RRD, UN Habitat,
Department
Private companies

Need:
Early warning models have improved and there is significant lead time between warnings anddisasters
Early warning can save lives and there is documented evidence to support it
Challenges:
Alternative communication is resource intensive
End-to-end early warning is beyond technology as it involves behavioural change
4.6

Priority Action: Improved community-level disaster resilience through community-based preparedness,volunteerism, civil society organizations and foundations
Objective:-

To increase the pool of DRR
volunteers including youth
volunteers and their active
engagement in all phases ofdisaster risk management-

Strengthen capacity of CSOs
and foundations on disaster
response,
recoveryandresilient development, using acommunity disaster resilience
framework

Expected output:

58 |

-

Improved disaster response
system at community level-

Local development plans andactivities are informed of DRR
and recovery efforts-

Spiritofencouraged
tapped-Clear roles and responsibilitiesof stakeholders intervening
at the community level –including CSOs, foundationsand volunteers; and clear SOP

volunteerism
and resources

Indicative Activities:
Finalise the DRR volunteer strategy based on lessons learnt
from previous implementations, clear institutionalised
linkages, SOPs and network management
Develop approaches and processes for mobilizing
volunteers including youth, CSOs and foundations in disaster
preparedness and mitigation
Upscale the present pool of volunteers for DRR (including
volunteers, CSOs and foundations) to five more townships
in the previous pilot area and in three new regional/state (sixtownships in each). Build capacity of CSOs and foundations
on contingency planning at the local level. Include risk
reduction in local development interventions and postdisaster recovery for enhancing community resilience andvolunteer management
Engage retired defence service personnel to tap theirexpertise
Form and train volunteer groups in pilot townships attownship village tract level through CSOs and foundations
Create a database of CSOs, foundations and volunteers basedon the area of operation, sectorial expertise and willingness
where he/she can be deployed
CSOs, foundations and volunteers to be linked with respective
township authorities for DRM activities.
Documentation of learning from volunteer programme
Upscale programmes in other townships in a phased manner

Duration: Two years and beyond

Estimated Cost (USD):

Lead Department:

Other department and partners:––

DSW, GAD, DRD, FSD, MoHS, Ministry of Education, Ministry of
Border Affairs, MoC, MRCS, UNV

RRD

8,000* (scoping)Need:
Myanmar is prone to multiple-hazards. It is important to recognize the role of volunteers and tap
their spirit of volunteerism for risk reduction and to build-back-better.
CSOs/foundations are key stakeholders to reach the community
Some volunteers can bring expertise and it can help in DRR and recovery
Challenges:
Sustainability of effort
4.7

Priority Action: Health sector preparedness for response and recovery through disaster risk management
plans including epidemics and disease control, mass casualty management system and psychosocial
supportObjective:-

To improve response andrecovery activities-

To effectively improve
preventive and control ofcommunicable diseases inpost disaster situations-

To improve mass casualty
management-

To improve psychosocial
supportExpected output:-

Indicative Activities:
Prepare a hospital level disaster risk management plan
including updating of mass casualties
Prepare township health department’s and disaster healthmanagement plans
Upgrade public health emergency operation centres andemergency call centres
Great System for prioritization of patients
Deliver relevant training to hospital staff, public health teammembers on EWARS, PHEOC management, hospital DRM
planning, epidemic control, acquisition and deploymentof resources, medicine and equipment stockpiling anddeployment, etc.

Reducetheimpactof disasters due to improved
health response and recovery, including epidemic control,
improvedmasscasualty management and psychosocial
support-

Table top and simulation exercises
Training on community-based epidemic prone disease
surveillance system
Improve awareness on water, sanitation and hygiene indisaster contexts
To prepare for psychosocial support, which includes
development of psychosocial care toolkit, training of staff,
CSO, etc., which can be utilised
On-the-job training on issues related to people withdisabilities

Duration: Two years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

GAD, Department of Medical Services, Ministry of Border Affairs,
RRD, Dep’t of Immigration, MoALI

Ministry of Health & Sports

To be estimated

Need:
Myanmar, including densely populated urban centres, is prone to multiple hazards and medical
response, including mass causality management
In post-disaster contexts, epidemics can occur and it can lead to several fatalities.
Psychosocial support to the affected communities is vital
Challenges:
Limited capacity
Limited resources
4.8

Priority Action: Comprehensive flood risk management through improved forecasting, monitoring,preparedness and mitigation in priority river basin areas of Myanmar
Objective:--

Indicative Activities:
Identification of priority flood risk basins based on riskToenhancetheflood assessments analysis of the causes of floods, which canmonitoring and forecasting
inform mitigation measurescapacity at the sub-national
Establish protocol and procedures for flood warninglevel
dissemination and coordination
To reduce flood risk in high risk
areas

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Expected output:

-

-

Flood
risk
mitigatedinhigh flood prone areas and increased resilience to floodrisk-

Sub-national DM bodies canbetter interpret the technicalforecast
informationforeffective
monitoring
and coordination.
---

Include flood monitoring among regional/state and townships
disaster management bodies roles and responsibilities
Capacity building on the usage of flood forecasts andmanagement measures at sub-national level
Review of flood preparedness at regional /state, selfadministered zone and township levels before the monsoon
seasonCover the areas prone to flash floods
Analysis of flood-related risks, hazards and impacts, such asincreased pest infestations, fish kills, livestock mortality anddevelopment /dissemination of comprehensive guidelines toreduce negative effects
Assess linkages of flood impacts to other sectors
Enhance access to good practices on agriculture water
management such as flood risk mitigation measures, including
use of flood and salinity resistance crops by engaging
community and CSOs through agriculture extension workers
Construction of embankments for high priority basins, desiltation/dredging of priority sites. Plantation along slopes,
etc. will be undertaken
Construct and maintain drinking water ponds
Mass awareness on do’s and don’t of floods
Flood risk mitigation will use climate change projections, if
available

Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

GAD, DMH, RRD, DWIR, Ministry of Border Affairs, DRD, Forest
Dep’t., MoC, Concerned Region /State and Township DM bodies

IWUMD

To be estimated

Need:
Flood risk is high in Myanmar and climate change will further increase the existing risk
Myanmar has a substantial population engaged in agriculture and floods continue to pose a major
threatSiltation is a major issue
Flood warning dissemination and coordination is an area of improvement for townships in
Myanmar
Challenges:
Flood risk mitigation measures are cost intensive
4.9

Priority Action: Disaster and climate risk management of historical monuments and archaeological
heritage in Myanmar
Objective:
To support conservation efforts
towards historical monuments
and archaeological heritage
sites in Myanmar by enhancing
resilienceTo
set-upcoordination
mechanism for risk reductionof historical monuments andarchaeological heritage forlong-term intervention
To develop tools for enhancing
resilience of monuments andarchaeological heritage
To implement pilot projects
and document good practices
related to risk reduction ofhistorical monuments andarchaeological heritage sites

60 |Indicative Activities:
Set-up and operationalize a coordination mechanism on
disaster resilience and heritage protection
Disaster risk profiling of historical monuments andarchaeological heritage sites
Analysis of existing legislatures and technical guidelines onconservation of historical monuments and archaeological
heritage sites to identify gaps and make key recommendations
Development of guidelines/tools for enhancing resilience ofmonuments and archaeological heritage during the disasterrecovery phase and pre-disaster phase. It will also include
guidance on integration/linkages with the development anddisaster risk management plans
Guideline/tools forcapacity building on resilience ofhistorical monuments and archaeological heritage sites
Pilot projects to prepare disaster and climate risk management
plans of Bagan heritage sites

Expected output:---

Coordination mechanisms on
disaster resilience and heritage
Guidelinesforenhancingresilience of monuments andarchaeological heritages sites
Demonstrable
projects
implemented for enhancing
resilience of monuments andarchaeological heritage

Pilot projects on disaster risk management of historicalmonuments in urban settings, preferably Shwedagon Pagoda
in Yangon
Documentation and sharing of good practices

Duration: Three years

Estimated Cost (USD):

Lead Department:

Other department and partners:––

460,000

Ministry of Religious Affairs Yangon Heritage Trust, YCDC, MCDC, MTU, YTU, RRD, DMH, ECD,
and Culture
GAD, YUNeed:
The recent Chauk earthquake affected 389 monuments in Bagan and many more in surrounding
areas.
Several historical monuments and Myanmar’s archaeological heritage sites are located in urban
centres and require special preservation and attention
Challenges:
Limited knowledge and expertise

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62 |

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64 |

4.1
Implementation Arrangements for
MAPDRR 2017

Disaster risk reduction, mostly being a cross cutting issue, calls for the engagement of multitude of stakeholders,
especially line departments. The identification of more than 10 ministries and departments as lead agencies
and more than 30 ministries and departments as supporting agencies for 32 priority actions emphasizes thatthe success of this action plan lies across the board. It requires coordination of priority actions, as well as
relatively independent implementation by identified lead ministries/departments.
Under the overall guidance of the National Disaster Management Committee (NDMC), the Disaster Management
Work Committee chaired by the Union Minister for Social Welfare, Relief and Resettlement will provide overall
direction for implementing MAPDRR 2017.

4.1.1

MAPDRR 2017 Steering Committee

To ensure effective leadership and coordination among inter-ministerial departments for MAPDRR
implementation, a 12-15 member MAPDRR Steering Committee will be set-up, soon after the action plan isendorsed. The Union Minister for Social Welfare, Relief and Resettlement will chair the Steering Committee.
The members will include Permanent Secretaries or Director Generals, who are from the lead ministries of 12
work committees under the NDMC.
The MAPDRR Steering Committee will:•

Coordinate with the lead ministries/departments for prioritizing MAPDRR projects and its
implementation.

•

Cooperate with the Ministry of Planning and Finance, and related ministries and departments inplanning annual budget, planning 5-years budget and settling annual expenditure.

•

Inform the needs and gaps identified for MAPDRR implementation, including the requirements offinancial resources, to the Disaster Management Work Committee, so that it will be able to coordinate
with the other work committees under NDMC to provide higher-level policy guidance and support foreffective implementation.

•

Cooperate with the Disaster Management Sub-sector Coordination Group, under the Social Protection
and Disaster Management Sector Coordination Group of the Development Assistance Coordination
Unit to mobilize development assistance for MAPDRR implementation.

•

Facilitate among the related ministries, departments, agencies, states and regions for smooth
implementation the MAPDRR projects.

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•

Propose solutions to address bottlenecks arising in the course of implementation of the MAPDRR that
require actions by the NDMC.

•

Keep track of the implementation of MAPDRR projects under the lead ministries/departments,
development partners, monitor the progress and report to the NDMC through the NDMC’s Disaster
Management Work Committee.

A Secretariat for the MAPDRR Steering Committee will be hosted by the MSWRR, to undertake the office work
relating to the functioning of the MAPDRR Steering Committee. The Secretariat will also support the MAPDRRSteering Committee to gather, review and summarize the implementation of the MAPDRR by lead ministries,
departments, agencies, and states and regions.

4.1.2	Lead Implementing Agencies
Lead ministries, departments, regional and state governments are responsible for implementing the priority
projects, as mentioned against each project in Chapter 3 of the MAPDRR 2017. The identified lead ministry/
department in consultation with concerned regional/state and self-administered zone government, line
departments and other partners should start detailing its priority projects. The process will help in firming up
implementation plan of priority projects by lead ministry/ department. The detailing of project will include
identifying roles and responsibilities of lead ministry/department and support agencies, implementation area,
engagement of development partners, technical know-how, funding, timeline and M&E including indicators.
The process will also help in identification of source of fund including annual budget of lead department,
regional/state budget and external funding. The activities of priority actions can be implemented as anindependent activity or can be integrated with other activities of the lead department.
The lead implementing agencies will be responsible to;1)

Prepare the detail activity plan and budget for the respective projects under MAPDRR.

2) Propose/include the priority project(s) in the annual/five-year plan of the respective sector plan.
3) Implement the respective project(s).
4) Coordinate with the other key departments and stakeholders to mobilize the required resources
including technical and financial resources.
5) Coordinate and inform MAPDRR Steering Committee on progress of the implementation, gaps
including financial resources.
6) Share good practices and lessons learnt with other departments.
7) Cooperate with the MAPDRR Secretariat for periodic reporting on MAPDRR implementation.

Figure 4.1

Institutional Arrangements for Implementation of MAPDRR 2017
National Disaster Management Committee (NDMC)

Disaster Management Work Committee

Lead Ministries/
Departments for MAPDRR
Implementation

66 |MAPDRR Steering
Committee

Disaster Management
Sub-sector Coordination
Group of DACU
(Coordinate with DPs for
MAPDRR implementation)

4.1.3	Other Implementing Partners for MAPDRR 2017
Development partners, UN agencies, international and local NGOs, the private sector can play an importantrole in supporting government- led implementation of the priority actions.
DRR Sub-sector Coordination Group: Ministry of Social Welfare, Relief and Resettlement is the Chair of Social
Protection and Disaster Management Sector Coordination Group (SPDM SCG) which is one of the ten SCGs
constituted under the Development Assistance Coordination Unit (DACU). DRR Sub-sector Coordination
Group is formed under SPDM SCG with the participation of government departments, development partners,
UN agencies and NGOs who are actively engaged in disaster risk reduction interventions in Myanmar. The
purpose of SCGs is to facilitate effective and coordinated development assistance within designated sectors.
MAPDRR 2017 is considered as the national DRR Sector Plan and the DRR Sub-SCG members will be informedof its priorities under the MAPDRR and the needs and gaps for implementation. DRR Sub-SCG will be able tofacilitate the development partners’ participation and effective aid coordination for MAPDRR implementation.
Disaster Risk Reduction Working Group: It includes UN agencies, international, local NGOs and professionalorganizations, the Red Cross and some donor agencies. DRR Working Group participated in the MAPDRR Task
Force and contributed to the MAPDRR development process. Continued engagement of DRR Working Groupin the MAPDRR implementation process will enhance coordination and mobilization of technical and financial
resources from development partners for the MAPDRR implementation.
The MPD-Network: The MPD-Network is a platform of the private sector participation in disaster management.
It aims to enhance private sector coordination and participation in disaster risk reduction led by the government.
Since it is in the early stage of operationalization, its current engagement is mostly in disaster response andrelief. Information sharing and facilitation with the MPD-Network on progress of MAPDRR will provide an entry
point for the private sector’s collaboration in MAPDRR implementation.

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4.2
Financial Resources

Financial resources for the implementation of the MAPDRR are mobilized from multiple channels, in compliancewith the Budget Law, Investment Law and other related legal documents. Financial resources include statebudget (both national and local); international support; resources from private sector and community
contributions•

Annual Departmental Budget: The annual planning process kicks off in October to prepare union andregional annual budgets for the next financial year starting from April 1 to March 31 (Union Government
Office on 7th September 2017 approved to amend Myanmar Financial Year. Instead of 1st April to 31st
March, it will run from 1st October to 30th September, starting from 2018 – 2019 financial year). The leadministry and department after consultation with supporting agencies finalise the implementation planand can include its MAPDRR priority actions in its departmental annual plan.

•

National Disaster Management Fund (NDMF): As per the Disaster Management Law 2013, the National
Disaster Management Fund is established in 2013. The Disaster Management Rules (2015) prescribesthat the Fund shall be allocated and utilized for the following purposes:(a)Implementation of national action plan on disaster risk reduction;(b)

Implementation of sector-wise disaster risk reduction plan;(c)Implementation of disaster prevention and preparedness activities;(d)Emergency response and search and rescue activities;(e)

Short and long-term reconstruction and rehabilitation activities.

Financing and Financial Management Work Committee under NDMC is chaired by the Union Minister
for Social Welfare, Relief and Resettlement with the participation of key ministries with disastermanagement mandates. The allocation and approval of NDMF is discussed and agreed in the workcommittee and approved by the NDMC. The lead ministry and department for MAPDRR implementation
can submit a project proposal of its prioritised actions to the Financing and Financial Management
Work Committee under NDMC for funding MAPDRR projects/actions.
•Regional/State Budget: Myanmar is moving towards decentralised development planning andimplementation and the provision of a regional/state budget has been created. Some of the MAPDRR
actions/projects, especially small-scale local level projects, can be funded through the regional/statebudgets.

•

Contingency Fund (erstwhile President’s Reserve Fund): The priority actions of high impact especiallycommunity level interventions can be funded through the contingency fund. The lead ministry anddepartment can submit the project proposal to the Pyithu Hluttaw after endorsement of the regional/
state government. The proposal should include the rational and impact at the community level.

68 |

•

Public-Private Partnership: UMFCCI is a member of the Task Force on drafting MAPDRR 2017. During
the drafting process, thematic consultation on private sector and disaster risk were also held. The
private sector expressed keen interest in supporting MAPDRR actions through financial, technical andhuman resource assistance. The MPD-Network can help in organising consultations with the private
sector to identify areas of support for specific priority actions of MAPDRR 2017.

In addition, the Global Environment Facility and the Green Climate Fund can be explored for funding projects
linked with environment and climate change. Myanmar is in final stages of drafting the Myanmar Climate
Change Strategy and Action Plan40 and has identified six key economic sectors for action. There is alignment
between these action plans, hence identified actions can be coordinated during implementation planning forleveraging resources, and maximization of impact.

40

Ministry of Natural Resources and Environmental Conservation, the Republic of the Union of Myanmar, Myanmar Climate Change Strategy and Action Plan 2016-2030 (draft 19th January 2017) MCCSAP, 2017

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4.3
Communications Strategy

It is important to have a strong communication plan for a successful role out of the MAPDRR. Its implementation
will heavily rely on all stakeholders including departments, development partners, donors, private sector
and community participation. The engagement of these stakeholders over a long-term will be possible
through regular communication regarding needs, achievements and most importantly impact of MAPDRR
implementation.
The communication requires a multi-phased approach. In the first stage, the priority needs and intended
outcome of the MAPDRR should be widely shared with policy makers, senior officers of departments, donors,
private sector and development partners. It needs to be followed by sharing progress on implementation ofpriority actions and success stories from the ground. Under the guidance of the MAPDRR Steering Committee,
the MAPDRR Secretariat will develop a communication plan and work closely with the Ministry of Information,
the private media and communications networks.
Some of the tools and networks proposed for communicating MAPDRR include; a flyer on MAPDRR, a section
on MAPDRR on the website of the Ministry of Social Welfare, Relief and Resettlement, which can provide a
glimpse of progress as well as success stories, annual reports on progress; case studies and usage of suchcases in DMTC courses, video clips, social media, among others. Periodic briefings to the media, including
MRTV on MAPDRR implementation, especially impact stories will also help in creating awareness as well asinterest.
The action plan and its progresses, should be widely shared in global and regional fora such as the Global
Platform on DRR, the Asian Ministerial Conference on DRR, the ASEAN Disaster Management Committee,
the Bay of Bengal Initiative for Multi-Sectoral Technical and Economic Cooperation (BIMSTEC), UN ESCAP
Committee on Disaster Risk Reduction.

70 |

4.4
Monitoring and Evaluation

Key to achieve any goal or target is measurement and accountability. Progress of the MAPDRR implementationmust be monitored, analyzed, documented and reported. The targets set under MAPDRR 2017 is aligned withtargets of the Sendai Framework for Action on Disaster Risk Reduction and disaster risk reduction related
indicators under the SDGs. The MAPDRR targets and indicators are also aligned with targets of the Asian
Ministerial Conference Declaration, Delhi 2016.
The monitoring and evaluation of MAPDRR is aimed:•

To track progress of individual priority projects/actions and its activities for achieving the statedobjectives.

•

To track overall implementation of MAPDRR actions/projects, identify gaps and areas of improvement,
coordination issues and successful case studies and to measure overall output of the MAPDRR,
providing information for reporting to NDMC and inputs for Communication to other stakeholders.

•

To measure outcome and impact of MAPDRR implementation, funding requirement and expenditure,policy support. It will help in global and regional reporting on disaster risk management. The monitoringand evaluation of the MAPDRR implementation will be attributed to lead ministries and departments
identified under priority actions and the MAPDRR Steering Committee and will be undertaken at
different time frames.

•

The lead ministries and departments are responsible for developing indicators and tracking progressof its priority actions and activities.

•

The MAPDRR Secretariat will collect information on progress of individual priority actions fromministries and departments. This apart, it will also be used to identify good practices and bottlenecks,
especially inter-departmental issues, technical assistance, etc.

•

The MAPDRR Secretariat will submit synthesized annual reports on implementation progress to the
MAPDRR Steering Committee.

•

MAPDRR Steering Committee will submit summary reports on key results and on challenges arisingfrom the implementation will be sent to NDMC through its Disaster Management Work Committee.

•

The MAPDRR Secretariat will develop management information systems to support MAPDRR
implementation including tracking progress of the MAPDRR priorities. This system will be embeddedin the website of the Ministry of Social welfare, Relief and Resettlement and will also have a menu tocapture success stories.

•

The MAPDRR Steering Committee will conduct a MAPDRR pillar level monitoring in late 2019 or early
2020.

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•

The MAPDRR 2017 implementation will be also shared in the DRR Sub-Sector Coordination Group
under the Development Assistance Coordination Unit (DACU).

•

The review will track progress against the milestones set for 2020 under this action plan and also on
disaster risk reduction related indicators under the SDGs. Furthermore, it will report at Asian Ministerial
Conference on Disaster Risk Reduction and ASEAN Committee on Disaster Management meetings.

•

There will be an impact assessment after five-seven years of the MAPDRR implementation and thesubsequent action plan by 2020. The lessons learnt from implementation of these plans will guidethe strategy for the last phase of the MAPDRR i.e. plans for 2025-2030. It will document changes indisaster risk management practices in Myanmar. This impact assessment will also track progress on
disaster risk reduction against the targets set for 2030.

72 |

4.5
Key Risks

The main risks envisaged in implementation of the MAPDRR and proposed remedial measures are:•

A national level disaster can lead to diversion of resources and manpower towards relief and recovery,
causing delays in the implementation of the MAPDRR 2017 priorities. In that scenario, the implementation
timeline and activities can be rescheduled, as relief and recovery needs to be prioritized. The MAPDRR
priorities related to disaster-affected regions should be linked with recovery efforts as ‘build-backbetter’ is an integral principle of recovery.

•

The implementation of MAPDRR 2017 envisages funds from internal as well as external sources.
NDMC, donors, Secretary for Natural Resource and Environment Committee, Pyithu Hluttaw and otherstakeholders should be periodically briefed on progress of MAPDRR 2017 and its implementation,
including success stories. This will help in ensuring that disaster risk reduction remains a priority andwill provide opportunities for funding support•

The role of identified lead ministries/departments is critical in the implementation of MAPDRR 2017; thisrequires coordination. It is important to ensure that MAPDRR 2017 remains a priority of lead ministries/
departments and in order to reach that, MAPDRR should be on the agenda of NDMC meetings. Annual
reports on progress of MAPDRR should be prepared and shared. The regular meeting of the MAPDRRSteering Committee is extremely important to address coordination issues.

•

The lack of interest of development partners and private sector in MAPDRR 2017 is another importantrisk, as implementation of the action plan requires an all-society approach. It is important to actively
engage the DRR Working Group, the Disaster Management Sub-Sector Coordination Group of DACU,
the MPD-Network and other relevant networks.

•

Unexpected changes in the development trajectory of Myanmar, can have implications on disaster risk.
It is important to periodically review the progress of the MAPDRR 2017 and adjust accordingly.

•

MAPDRR has envisaged a three-phase approach and in the absence of any phase, optimum results
can’t be achieved. It is important that the discussion for phase-II should start between late 2019 andearly 2020.

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74 |

9 |

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76 |

Annex A
National Disaster Management Committee and Work Committees
Composition of National Disaster Management Committee
1

Vice President (2)Chairman

2

Union Minister for Home Affairs

Vice Chair

3

Union Minister for Social Welfare, Relief and Resettlement

Vice Chair

4

Union Minister for State Counselor’s Office Ministry

Member5

Union Minister for President’s OfficeMember6

Union Minister for Defense

Member7

Union Minister for Border Affairs

Member8

Union Minister for Information

Member9

Union Minister for Religious Affairs and Culture

Member10

Union Minister for Agriculture, Livestock and Irrigation

Member11

Union Minister for Transport and Communication

Member

12

Union Minister for Natural Resources and Environmental Conservation

Member13

Union Minister for Electric Power and Energy

Member14

Union Minister for Labour, Immigration and Population

Member15

Union Minister for Industry

Member16

Union Minister for Commerce

Member17

Union Minister for Education

Member18

Union Minister for Health and Sports

Member19

Union Minister for Planning and FinanceMember20

Union Minister for Construction

Member21

Union Minister for Hotel and Tourism

Member22

Union Minister for Ethnic Affairs

Member23

Chief Ministers (All States and Regions)

Member24

Deputy Minister for Foreign Affairs

Member25

Chief of Staff (Army)

Member26

Chief of Staff (Navy)

Member27

Chief of Staff (Air)

Member28

Permanent Secretary for Social Welfare, Relief and Resettlement

Secretary

29

Director General of General Administration Department

Joint Secretary| 77

Duties and Functions of NDMCa.

To set up required organizations to implement the activities of the committee; to provide policies according to the priority of step by step activities; to review the progress of the work of the committee and give
instructions as necessary.

b.

To provide guidance to use domestic resources as necessary in the face of natural disasters.

c.

To adopt basic principles on coordination for activities which are necessary to receive assistance externalsources.

d.

To manage national finance and resources, and then to distribute them to required places.

e.

If necessary, to issue orders and instructions to carry out natural disaster management functions without
hindrances, avoiding the misuse of rescue materials and prevail law and order in the community during andafter the natural disasters.

Work Committees Under National Disaster Management Committee
S.N.

Name of Work Committee

Chair

1

Disaster Management Work Committee

Union Minister (MSWRR)

2

Financial and Financial Management WC

Union Minister (MSWRR)

3

Security WC

Union Minister (MoHA)

4

News and Information WC

Union Minister (MoI)

5

Health Care WC

Union Minister (MoHS)

6

Livelihood Restoration WC

Union Minister (MoALI)

7

International Relation WC

Deputy Minister (MoFA)

8

Search and Rescue WC

Union Minister (MoHA)

9

Logistic WC

Union Minister (MoTC)

10

Rehabilitation and Reconstruction WC

Union Minister (MoC)

11

Initial Need Assessment, Damage and Loss Verification and Need Union Minister (MoPF)
identification WC

12

Environmental Conservation WC

78 |Union Minister (MoNREC)

Annex B
List of Key Consultations During Drafting of MAPDRR 2017

S.N.

Title of Consultation

Date

Location

Number ofparticipants1

Lessons Learnt Workshop on Myanmar
Action Plan on Disaster Risk Reduction
Implementation, 2012

8 April 2016

Nay Pyi Taw

92

2

Towards a Safe and Resilient MyanmarTranslating the Global and Regional
DRR and Resilience Frameworks
into National Actions through a New
MAPDRR

15 June 2016

Nay Pyi Taw

109

3

Formulation of the new Myanmar 20 September 2016
Action Plan on Disaster Risk Reduction

Nay Pyi Taw

25

4First Meeting of the Task Force on the
new Myanmar Action Plan

27 October 2016

Nay Pyi Taw

45

5

Workshop on disaster risk reduction
issues and priorities in Ayeyarwady
region towards new MAPDRR

22-23 November
2016

Pathein, Ayeyarwady Region

87

6First meeting of the new MAPDRRTechnical
WorkingGroup
One:
Assessing disaster and extreme events
risk and creating public awareness on
DRR in Myanmar

30 November 2016

Nay Pyi Taw

34

7

First meeting of the new MAPDRRTechnical
WorkingGroup
Two:Strengthening disaster risk governanceto reduce & manage risk

6 December 2016

Nay Pyi Taw

36

8First meeting of the new MAPDRRTechnical Working Group Three:
Mainstreaming disaster risk reduction
for resilient development in Myanmar

8 December 2016

Nay Pyi Taw

40

9First meeting of the new MAPDRRTechnical Working Group Four:
Enhancingdisaster
preparednessfor effective response and resilient
rehabilitation and reconstruction in
Myanmar

13 December 2016

Nay Pyi Taw

37

10

Workshop on disaster risk informed
commerce and industries towards
disaster resilient Myanmar

20 December 2016

Yangon86

11

2nd Meeting of the Task Force on the
new Myanmar Action Plan

10 January 2017

Nay Pyi Taw

53

12

Workshop on Disaster risk reduction
priorities of central Myanmar towards
the New Myanmar Action Plan on
Disaster Risk Reduction

2-3 February 2017

Mandalay, Mandalay
Region

88

| 79

13

Second meeting of the new MAPDRRTechnical
WorkingGroup
One:
Assessing disaster and extreme events
risk and creating public awareness on
DRR in Myanmar

6 February 2017

Nay Pyi Taw

47

14

Second meeting of the new MAPDRRTechnical Working Group Three:
Mainstreaming disaster risk reduction
for resilient development in Myanmar

8 February 2017

Nay Pyi Taw

48

15

Second meeting of the new MAPDRRTechnical Working Group Four:
Enhancingdisaster
preparednessfor effective response and resilient
rehabilitation and reconstruction in
Myanmar

14 February 2017

Nay Pyi Taw

42

16

Disaster risk reduction priorities ofChin State towards the New Myanmar
Action Plan on Disaster Risk Reduction

22-23 February
2017

Hakha, Chin State

46

17

Secondmeetingofthenew
MAPDRR Technical Working Group
Two:Strengthening disaster risk
governance to reduce & manage risk

28 February 2017

Nay Pyi Taw

41

18

Workshop on disaster risk reduction
issues and priorities in Mon State
towards new MAPDRR

21-22 March 2017

Mawlamyine,

33

19

Thematic consultation on MAPDRR
and the People most at-risk “Leaving
No One Behind”

27 March 2017

Naypyitaw

61

20

Third meeting of the Task Force on the
new Myanmar Action Plan

11 April 2017

Nay Pyi Taw

39

21

Briefing to UN Agencies on MAPDRR

14 June 2017

Yangon

14

22

Joint Meeting of the new MAPDRRTechnical Working Groups

16 June 2017

Nay Pyi Taw

80

23

Briefing to Development Partners on
new MAPDRR

23 June 2017

Yangon28

24

Fourth Meeting of the Task Force on
the new Myanmar Action Plan

28 June 2017

Nay Pyi Taw

53

25

Fifth meeting of the Task Force on the
new Myanmar Action Plan

17 August 2017

Nay Pyi Taw

37

Mon State* Apart from these key consultations, MAPDRR 2017 was discussed during the DRR Working Group monthly
meetings, International Day for Disaster Reduction celebration on 13th October 2016, the Launch of the
Myanmar National Framework for Community Disaster Resilience and the Training and Workshop on DRM andStock taking of DRR and CCA in the agriculture sector.

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