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Institutional Framework for Disaster Risk Management in Pakistan: Issues,

Challenges and Policy Recommendations

Article · December 2017

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Abasyn Journal of Social Sciences – Volume 10, Special Issue November 2017: Disaster Risk Management and
Climate Change for Business Continuity and Sustainable Development

National Framework of Disaster Risk Management in Pakistan: Issues, Challenges &

Policy Recommendations

Muhammad Yahhya Maqbool

MS Scholar, Department of Government and Public Policy, Faculty of Contemporary Studies, National
Defense University, Islamabad, Pakistan. Email: myahyamaqbool@gmail.com
Shahzad Hussain and Muhammad Bashir Khan
Assistant Professors, Department of Government and Public Policy, Faculty of Contemporary Studies,
National Defense University, Islamabad, Pakistan.

Abstract
The paper aims at examining the process of institutionalization of Disaster Risk Management in
Pakistan. Initially case was built to Pakistan’s proneness to natural disasters by presenting the hazard profile and
supported by the historical data. Attempt was made to explore the historical evolution of institutional framework
of DRM by dividing it as Pre-2005 & post-2005 era, followed by the critical analyses of new institutional
framework. The main focus of the study was on the challenges and gaps in the Institutional framework. The
methodology adopted for this descriptive research was exploratory & Analytical in nature, both primary &
secondary sources were utilized. The Secondary sources includes, Pakistan’s disaster related laws and policies,
research literature and the reports by other stake holders reached by national/international journals and
databases, while more than ten interviews with officials national to district level and experts were conducted as
primary data. The study found that the key gap was lack of proactive approach to DRM since independence,
while still existing reactive mindset of policy makers is key challenge today. The analysis explores major gaps
in the existing institutional framework, which includes multiple institutes with overlapping jurisdiction,
followed by poor linkage and coordination among the disaster related agencies and last but not least the capacity
issue (financial, technical and human). The paper articulated some key policy recommendations for a effective
& efficient institutional framework of DRM in the country especially in the post 18th amendment scenario. The
research is a humble contribution to the future Institutional reforms both at national & provincial level to
constitute a proactive, effective & efficient institutional frame work of disaster risk management in the country.

Keywords: Disaster Management, Disaster Risk Reduction, mitigation, Institutional Framework, Governance
of DRM, Disaster laws, Pakistan

Introduction
There is no denying fact that disasters always impart negative and multifarious impacts on the overall
development of country affecting important sectors such as agriculture, infrastructure, environment and health.
In addition to far reaching impacts on infrastructure, disasters do also affect the economic development by
promoting poverty. The paper pinpoints the important aspects of Natural Disasters. Since the subject matter has
succeeded to attract the attention of the policy makers due to its proliferated frequency and intensity, the matter
has acquired an important place in policy making. It is pertinent to mention at the very outset that rate of disasters
has been increased during last few decades("Disaster risk management in South Asia : a regional overview,"
2012).The patron has no difference for south Asian region and Pakistan as well.
Pakistan, from 1947 to 2000, has experienced 85 natural disasters culminating in the loss of
approximately 29 thousand human lives and almost 2.55bn $. However, the record of human losses in the wake
of natural disaster during the last 13 years (2000-2013) is heart saddening. Almost 80,000 human lives have
been lost and an economic loss of almost 22.38bn $ has been sustained because of 84 natural disasters so far
since 2000. Although the situation pertaining to natural disaster in Pakistan is extraordinary, the approach of
government towards such a serious issue is regrettably responsive focusing merely on relief and rehabilitation.
The after effects of 2005 earthquake compelled our policy makers to join their heads in order to devise a uniform
mechanism of DRM in the country. Here very first time in the history of this country, efforts were concentrated
on proper institutionalization of Disaster Risk Management in a holistic manner.
Disaster risk profile of Pakistan
Pakistan covering a total area of 796,095 sq. km, Pakistan lies between 24 and 37 degrees north and longitudes
62 and 75 degrees east.Prone to hazards, the region wherein Pakistan lies is geographically bestowed with

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Climate Change for Business Continuity and Sustainable Development

topographical and environmental extremes("International Disaster database,").Thus, the region hosts all types
of terrains and climes, and barely manages extreme conditions.
Disaster history
If we look at the history, statistics of the period 1947 to 2014 lays out Pakistan’s disaster profile. One hundred
and seventy-two (172) natural disaster events resulted in loss of 11 hundred thousand human lives, left near 9.5
million people homeless and coasted an economic loss of more than 2.6 billion dollar. The pie charts given
bellow describes a more detailed and clearer picture about the disaster history of Pakistan("The world fact
book,").
The Disaster Occurrence in Pakistan (1947-2014)

Storm, 20 Drought, 1
Earthquake, 26

Mass movement
wet, 21 Epidemic, 10
Mass movement
Inscectdry,
Infection,
1 1

Extreme
temperature, 15

Flood, 77

Source: EM-DAT by CRED(2011).

Vulnerability Profile
According to a study conducted by Lubna Rafiq & Thomas Blaschke in 2012, The district vise vulnerability is
mapped out in this way.

Figure 2: Patterns of total risk from natural hazards for Pakistan by district

("Annual progress report," 2010).

According to the study by Lubna Rafiq & Thomas Blaschke in 2012, approximately 6% of the total area of
Pakistan is in high risk zones, while 30% is in medium risk zones. Only 27% is considered low risk and 7% very
low risk("Annual progress report," 2010). While, approximately 2% of total population live high risk zones and
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Climate Change for Business Continuity and Sustainable Development

18% in moderated risk zones, whereas 38% of the population is in low risk zones. Only 28% of the population
lives in very low risk areas.(Rafiq & Blaschke, 2012).
Pre- 2005 Institutional framework of DRM in Pakistan;
According to 1Asar-ul- Haq (personal communication, April 24,2014) since independence Pakistan is
facing multilateral challenges, Natural disasters are one among them. Before disaster management revolves
around the flood management. It’s not the case that mitigation was not considered, But Pakistan has been
dominated by mindset which has been reactive in nature and all the preparedness was around how to respond. It
was not perceived to mitigate the risk. There are a lot of factors, i.e. since our independence we were sandwiched
in a geo political struggle between communism and capitalism and rivalry with neighbors etc. so the focus was
on building defensive capability which led to logistic supply chain oriented development. Risk perception has
been incorporate but not at the disaster risk point of view. Although few legal instruments were developed, like
The West Pakistan National Calamities (Prevention and Relief) Act of 1958, for instance, was the first legislation
for disaster management and even later the efforts like Civil defense Act, ERC etc. but the focus was on
management of consequences of the disasters(2012).
The world at large has adopted the new approach to DRM in as early as 80’s. But it remains alien
discipline to our part of the world till 2005 earthquake. The new Proactive Approach to DRM can minimize the
adverse effects of a hazard to a large extend. But it was never Realized it until 2005 earthquake that we have
now entered into an era where there is not even one country in the world, which can bear all these losses single
handedly. So with the help of international community the modern concept of DRM was imported. (2Muhammad
Akmal Khan, personal communication May 6,2014).
National Calamities (Prevention and Relief) Act
The West Pakistan National Calamities Act was enforced on 24th of April 1958 to ensure the restoration
and maintenance the affected areas by calamities be it man – made or natural and also the control and relief
attached thereto. Earlier a few areas like FATA was excluded from the sssphere of the act. So later in 1963 an
attempt to include such areas in the said statute, the West Pakistan Natural Calamities (Prevention and Relief
Act – Extension to Tribal Areas) Regulation was promulgated. In this Act, the ‘response’ to emergencies was
primarily focused so it does not look beyond that. Moreover, another important step was suggested to be initiated
with regard to relief, compensation and punishment to law breakers in the wake of calamity(2012).
The Civil Defense
The Civil Defense Act was promulgated on 29th April 1952 in order to secure the Civil Defense and
regulate all the matters related thereto. As the Act has clearly lays down the directorate has been mandated to
take steps only in situation arising from the holistic attack. Realizing the lacuna existing in the statute, it was
attempted to amend the act in 1993 so that its sphere could be expanded to remedial measures against natural as
well as man-made disasters. However, the nature of natural disaster management was not changed in the said
amendment("The West Pakistan national calamities act," 1958).
3
Mr. Muhammad Manshah (personal communication, June 6,2014) said that Civil Defense services are
constituted in two parts, the Federal Directorate and Field Services. The Directorate was the dominant
organization that was responsible for responding to disasters till 1970. However, gradually a major decline in
financial resources and few other political decisions led to a continuous decline in the roll and performance.
Now Civil Defense has become an almost redundant institution. Civil Defense has already very limited resources
now even these resources are being transferred to Emergency Rescue services 1122. Emergency Relief Cell
(ERC)
ERC was established back in 1970s with a mandate to support relief and provision of compensation to
calamity hit areas, in reaction to a cyclone caused a widespread devastation in former East Pakistan. It works
under cabinet division as per rules of business 1973 the subject of disaster relief has been allocated to Cabinet
division. In addition, a warehouse of relief goods is also maintained in the capital, Islamabad. Relief Goods
Dispatch Organization (GDO) located in Karachi to receive and dispatch all relief goods from local and foreign
agencies during the disaster. The ERC also maintains an Aviation Squadron consisting of a fleet of 9 helicopters,
to assist rescue operations during the disaster and VVIP movements. The ERC also operates the Citizen Damage

1
Mr. Asar-ul Haq is DRR Specialist at Mercy cop. International Islamabad.
2
Muhammad Akmal Khan is director of General Knowledge Management Cell (KMC) of Earthquake Reconstruction and
Rehabilitation Authority (ERRA).
3
Muhammad Mansha is instructor of Civil Defense department at Gujrat.
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Compensation Program. This program was launched by the GOP in respond to devastating floods 2010(4Inam-
ul-haq, personal communication, May 20,2014).
Federal Flood Commission
Through a resolution dated 4th January 1977, the Federal Flood Commission (FFC) was established to
manage flood management issues across Pakistan. The commission was mandated to take only such steps which
are necessary in mitigating the effects and impacts of flood. Hence, the responsibilities assigned to the
commission include the preparation of the national flood protection plans, the improvement of flood forecasting
system, the standardisation of specification and designs in the field of flood protection as well as the undertaking
of research programmes for flood control and protection.
Pakistan Emergency Services Ordinance and Pakistan Emergency and Fire Code
The Pakistan Emergency Service Ordinance and Pakistan Emergency and Fire Code were enacted in
2002. The enactment was actually a reaction to the fire ignited in the Shaheed-e-Millat Secretariat building.
Since it affected massive number of people, the government sought to provide for the setting up of a new federal
institution through the aforesaid enactment in order to address such situations in future. The act has also
empowered the Pakistan Emergency and Fire Council to formulate and implement any code, rules, regulations
and specifications in order to ensure the safety of life and property from fires, explosions and other hazardous
materials. Subsequently, an entity was constituted by amalgamating the roles assigned to Civil Defense and Fire
Brigade. This entity was mandated to inspect any building or premises having been built in violation of the
Pakistan and Fire code. What is even more ironic is the fact that after the laps of years, the department had still
no means to improve discrepancies in its systems("Government of Khyber Pakhtunkhwa," 1958).
Punjab Emergency Service
The skeleton of Punjab Emergency Service was envisaged in 2004. To supply with the administrative
and implementing unit the Service of 1122 was launched. Thereafter, the governing legislation was approved in
2006. The service is mandated to a number of tasks including the sensitive emergency response, medical
evacuation, monitoring disaster respond, undertaking capacity building and coordinating emergency response.
Post 2005 Institutional framework: According to 5Brg. Sajid. Naeem (personal communication, May15,2014)
with the toilsome legal efforts to mainstream the functions and roles of various entities tasked with the
rehabilitation of those who suffer in either natural or man – made disasters, the institutional shortcomings are
impeding the way of effective institutionalization. Given the fact that all the enactments and legislations so far
made in DRM cannot be made proactive and responsive unless and until they are linked together.
Being the milestone in the institutionalization of DRM under new Proactive approach, the earthquake of
October 2005 has played a pivotal role in the development of a comprehensive institutional framework.
Pakistan’s existing institutional framework was inadequate to deal with the consequences of the massive
earthquake. Need for a harmonized, overarching institutional framework was felt, which could coordinate the
national DM effort, and deal with the domestic and external agencies in synergistically marshalling the entire
assistance effort to mitigate the effects of future disasters. The government has therefore, to rolled up its sleeves
and come up with pragmatic initiatives in order to establish an effective institutional framework of DRM in
Pakistan. Earthquake Reconstruction and Rehabilitation Authority (ERRA) appeared immediately after the
earthquake, the National Disaster Management Commission and Authority (NDMC and NDMA) were made in
2006. Initially it was enacted as presidential ordinance in 2006 named known as NDMO 2006. Later another big
disaster event of 2010 floods lead to the approval of the same ordinance as act of parliament in 2010.
Therefore, the event of 2005 Earthquake has occupied the most dominant role in the institutionalization
of DRM by giving birth to the new entities: National Disaster Management Authority (NDMA) and ERRA.Since
the significance of new institutional framework of DRM cannot be undermined, this section provides a critical
analysis of the newly evolved institutional framework that deals with disaster management.
Earthquake Reconstruction and Rehabilitation Authority (ERRA)
The Earthquake Reconstruction and Rehabilitation Authority (ERRA) appeared immediately after the
earthquake, the ordinance was notified by ministry of law and justice, it took effect from 26 November
2009.(2010) The ERRA Act was enacted on March 14, 2011. However, it was enforced as an ex-post facto law
from July 1, 2007. It is important to note that the Act aimed to rehabilitate the victims of 2005 earthquake. The

4
Inam-ul-Haq is Deputy Secretary of emergency relief cell of Cabinet Division, Islamabad.
Brig. Sajid. Naeem is senior institutional and capacity building specialist at National Institute of Disaster
5

Management (NIDM), Islamabad.

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Climate Change for Business Continuity and Sustainable Development

authority has been vested in with the powers such as to undertake the construction and developmental work,
seeking information from any person or institution (including army and civilian) and the transfer of the works
to other government agencies.
Institutional framework under MDMA Act
Being the milestone in the institutionalization of DRM under new Proactive approach, the earthquake of
October 2005 has played a pivotal role in the development of a comprehensive institutional framework.
Pakistan’s existing institutional framework was inadequate to deal with the consequences of the massive
earthquake. Need for a harmonized, overarching institutional framework was felt, which could coordinate the
national Disaster Management effort, and deal with the domestic and external agencies in synergistically
marshalling the entire assistance effort to mitigate the effects of future disasters. The government has therefore,
to rolled up its sleeves and come up with pragmatic initiatives in order to establish an effective institutional
framework of DRM in Pakistan. The National Disaster Management Commission and Authority (NDMC and
NDMA) were made in 2006. Initially it was enacted as presidential ordinance in 2006 named known as NDMO
2006. Later another big disaster event of 2010 floods lead to the approval of the same ordinance as act of
parliament in 2010(S. Naeem, personal communication, May 15,2014). Therefore, the event of 2005 Earthquake
has occupied the most dominant role in the institutionalization of DRM by giving birth to the National Disaster
Management Authority (NDMA). Since the significance of new institutional framework of DRM cannot be
undermined, this section provides a critical analysis of the newly evolved institutional framework that deals with
disaster management.
NDMA Act 2010
Realizing the expediency of an effective DRM system after the devastating event of 2005 earthquake, the
National Disaster Management Act was approved by the parliament on August 11, 2010. It deals with the
establishment, functions and powers of Statutory Administrative agency known as National Disaster
Management Authority (NDMA). The legal foundation of the act lies with the resolution passed by all provincial
assemblies under article 144 of the constitution of Pakistan that Parliament may regulate NDMA to overcome
unforeseen situations.("Federal Flood Commission – Charter of Duties,"). The table given below depicts the
hierarchy of the new framework tasked to mitigate and prevent the devastating impacts of natural disaster.

National Disaster Management Commission (NDMC)

National Disaster Provincial/ Regional Disaster

Management Authority (NDMA) Management Commission (PDMCs)

Provincial/ Regional Disaster

Federal Ministries,
Departments, Technical Agencies Management Authorities (PDMAs)

Media, Banks, Insurance &

District/ Municipal Disaster

Donors, UN, NGOs, Media Management Authorities (DDMAs)

Tehsil Structures

Community Based
Organizations (CBO’s) Union Council

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Figure 3: Institutional Framework for Disaster Risk Management: NDMA Act 2010
Source: NDRMFP - Feb. 2014
DISTRICT & LOCAL DISASTER MANAGEMENT AUTHORITY
District Disaster Management Authority (DDMA) will be chaired by the head of district council and
comprise of DCO, DPO and EDO (Health) and other district level officers. It will be responsible for formulation,
implementation and Coordination of national and provincial DRM polices and plans at district level.
Local authorities under DDMA shall ensure the trained human resource, availability of the relevant resources at
time of disaster or disaster threat, Buildings codes to be followed in the area of their jurisdiction and carry out
all other pre and post disaster activities.
The federal Govt. shall establish National Institute of Disaster Management (NIDM for planning and
promoting DRM related research, training and development of national data base on policies, prevention
mechanisms and mitigation measures. A national Disaster response force shall be established under NDMA for
specialist response to a threatening disaster situation or disaster. Federal and Provincial Govt. shall constitute
National and Provincial Disaster Management Funds (NDMF & PDMF), which shall be financed by proposed
budget allocation, grants, loans, aids and donations etc.
Comparative Analysis
At the end, keeping in view the whole process of institutionalization of Disaster Risk Management in
Pakistan, a comparison of key disaster related laws has been presented in a table below. The help in a way of
understanding the laws by comparing that what are their main focus, how they co relate with each other and in
which way they are overlapping.

Table: A Comparison of key Disaster Related Laws

Issue NDMA Act 2010 West Pakistan National Punjab Emergency Civil Defense Act
Calamities (Prevention Services Act 2006 1952
and Relief) Act 1958
Disaster “disaster means a Whenever the province of Emergency means a Includes following
catastrophe or … or any part thereof is serious and in situation
calamity in an affected or threatened by potentially dangerous warrants action:
affected area, arising flood, famine, locust or situation requiring Any form of hostile
from natural or man – any other pest, hailstorm, immediate action attack by foreign
made causes or by fire, epidemic or any other such as an accident, power
accident which results calamity which in the hazardous material Natural or man –
in substantial loss of opinion of the government accident, fire, made disaster in
life or human warrants action. explosion, natural or peace time
suffering or damage man – made disaster.
to, destruction of
property”
Disaster Managing the Maintenance and Aims to provide: time Defining the
management complete disaster restoration of order in area sensitive emergency civilian population
spectrum including: affected by certain response to SAR and against enemy
Preparedness calamity and for the emergency Medical attack.
Response prevention and control of Evacuation.
Recovery and relief against flood,
Reconstruction famine, locust or any other
pest, hailstorm, fire
epidemic or any other
calamity.
Key NDMA (Prime Relief Commissioner
Punjab Emergency Civil Defense
Institution Minister Secretariat) (Senior Member Board ofService, Home Department
PDMA, DDMA Revenue) Section 3A Department working, working
under Home
Department. At
district the
responsibility rests
with DCO
Government National Disaster Provincial Government/ Punjab emergency Home Department
Body Management Council Chief Secretary Council (PEC)
Section 6
Field District Management DCO District Emergency Civil Defense
Organization/ Authority Service/ District Department under
Office Emergency board DCO
(Section 8)
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DRM Provides a Focus on relief, multi Emergency Response Capacity building,

Framework comprehensive DRM hazard DM approach. in selected areas, first aid
framework Provides vertical coordination only administration, fire
encompassing all key configuration with the with Police fighting, search and
areas (Mitigation, little coordination Department Rescue. An
Preparation, operational
Response, recovery, discount in Civil
Reconstruction) Defense operations
in the province.
Integration of Coordinated disaster
Disaster response through its
Response established inter – tier
linkage
Declaration NA Declaration of Calamity is NA NA
of Disaster done by the provincial
government
Adopted from: Website of NDMA and Ministry of Climate Change.

Issues & Challenges

The disaster Risk Management system in Pakistan is facing multiple issues and gaps. The foremost issue
is the reactive mindset at both policy making and society level. Then later it come the governance issue which
include multiplicity of institutions with overlapping or conflicting jurisdiction and poor formal linkage and
coordination between key line agencies and departments, led by gaps in legal framework. Then it also includes
the issue of institutional, technological and human resource capacity.
Reactive mindset of policy makers: -
Until the enforcement of disaster management, Emergency response was the most predominant approach
in Pakistan to deal with disasters. Although we have been claiming a proactive approach to DRM in the aftermath
of wide-scale destruction caused by the 2005 earthquake but people at federal, provincial and district level still
have a mindset of “relief”. A disaster occurs and they can’t avert it, because it is beyond their control, they
provide relief goods to the victims and that’s the end of the story (Asrar-ul-Haq, personal communication, April
24,2014). The institutions and communities are not well aware and sensitized to treat disaster risk reduction as
an integral part of sustainable development. Although at the federal level the system enjoys a little political
support but at provincial level the fact is that no meeting of PDMC in the Punjab and Sindh took place to date,
which reflects a lack of ownership of the issue and a trivial level of political support to the DRM system. Now,
if we look into third tier “District Level” which is the key point as it connects with the people, the situation is
even worse. Here, the subject is handled by an officer who has many others job to do in his routine work and he
comes back to this portfolio only when a disaster hits; means there is a dearth of specialized human and financial
resources. An expert working with an INGO says, “I have yet to come across a district which is actively working
on risk mitigation, whereas, in the case of preparedness only those districts who are highly vulnerable or
regularly hit by disasters have made progress like contingency planning etc. This adhoc style of policy making
undermines the evolutionary process of newly established system.
Vulnerability and Risk Assessment: -
Multi-Hazard Vulnerability and Risk Assessments are the core tools that put together all scientific data
relating to hazards and local vulnerabilities in each geographic location. Not only no comprehensive hazard and
risk assessment for the country even Pakistan does not have any such assessment tool at national, provincial and
district levels. As baseline data and risk profiles for different geographic is particularly useful policymakers for
devising holistic policies, plans, strategies, and interventions. Compilation of district-based risk atlas is the need
of the time. There is an absence of a standard methodology for risk assessments, as well as very limited
collaboration between technical agencies. Furthermore, the absence of a fiscal risk assessment has also led to
the underestimation of fiscal impact on disasters. Overall, a lack of understanding of disaster risk hinders
investment in resilience across sectors.
Multiple Institutions with Over Lapping Mandate: -
Presently there are working a number of institutions and organizations with different aspects of
managing disasters. The new DRM framework fails to address the issue of overlapping or conflicting jurisdiction
of various DRM related institutions and instead of consolidating has created yet another corresponding
administrative entity(2010). However, this is also no denying fact that these organizations are often tasked with

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overlapping responsibilities and functions which create administrative hazards.("ERRA annual review 2010-
2011," 2011). This overlapping exists in all three tiers.

National Level:
The National Calamities (Prevention and Relief) Act 1958, for example, is entrusted with a wide range
of responsibilities such as maintenance, restoration of order, prevention and control or relief in the affected
areas. On the other hand, the Rules of Business 1973 lays down very explicitly th at national level the segment
of Disaster Relief is with to the ERC which was established under Cabinet Division. Another important legal
instrument in this regard is the Civil Defense Act 1952 (As Amended In 1993). The National Crisis Management
Cell is another organization that works under the ministry of Interior. The cell functions as control room round-
the-Clock to prepare report and obtain information on Crises/Emergencies.
Provincial Level:
This multiplicity and overlapping of institutions also exists at provincial level. It has also created
uncertainty and non-clarity regarding roles and responsibilities. The scope of Punjab Emergency Service Act
2006, constitution and functions of Punjab Emergency Council are to a large extent the same as are provided for
Provincial Disaster Management Commission, Provincial Disaster Management Authority() in the National
Disaster Management Act 2010.
District Level:
The same phenomena can be observed at district level where the district emergency board and district
disaster management commission exists separately having the same scope and functions. Bothe is headed by the
district Executive (DCO/Chairman/Nazim). Then the DDMA District Civil Defense and Emergency rescue
services 1122 along with fire brigade under TMA are working with the same mandate.
Formal linkage and coordination:-
Although a national platform has been constituted, the disaster management presently suffers from poor
communication and gross duplication. What is more perturbing is the fact the in combatant framework does not
provide any linkage or establish ministry, department or directorate in order to streamline the relief operation.
The legal arrangement (NDMA-2010) fails to identify and define relationship between key disaster related
institutions. It is obvious that the existing laws are not taken into consideration while drafting the Act("National
disaster management act number XXIV," 2010). The clear example in this regard is the failure to discern any
reference or attempt to relate or incorporate the provision of existing laws in the NDMA Act 2010. A succinct
comparison with Punjab National Calamities (Prevention & Relief) Act 1958 and Punjab Emergency Service
Act 2006 can elicit this. Along with that a long list of agencies having mandate of disaster response including
Civil Defense, Army, Police Emergency, Pakistan Red Crescent Society (PRCS), fire Fighting etc. But the
existing Disaster Management Law fails to establish tangible linkages for a harmonized response strategy("A
comparison of key disaster laws,").
According to6MR. Aziz Ahmed (personal communication, June 6,2014) at district level departments like
civil defense, Emergency & rescue 1122 and Fire brigade has no direct linkage to coordinate with each other.
They coordinate through the DCO as District Executive/District Collector which is a lengthy channel especially
when it is about emergency. Instead of Coordination and cooperation there is contestation among notables from
these departments which undermines the upheld noble cause (M. Manshah, personal communication, June 6th
,2014).
Of equal significance is the failure to envisage any effective warning & information management by bridging
the already existing gulf among NDMA, PMD and SUPARCO. Other important institutions which are not
formally linked with the National Disaster Management System include: FFC, Environment Ministry,
Geographical Survey of Pakistan, Dams Safety Council, NVM (National Volunteer Movement) etc.
Weak and reactive financial framework: -
An advanced and well established institutional mechanism is a pre-requisite for active disaster
preparedness and response, where availability of sufficient financial resources is equally important. Adequate
resources and efficient utilization are of critical importance for effective disaster risk management. But
unfortunately, the financial framework for DRM is very unstable and poorly implemented. A Disaster
Management Fund at both national and provincial level has been established and named as NFDM and PFDM

6
Aziz Ahmed is EDO of Rescue 1122 at Gujrat.
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respectively. These funds shall be financed by federal and provincial govt. grants, (respectively) aids, loans,
donations by national and international agencies, and PMDRF etc. The federal and provincial govt’s shall
allocate funds for disaster management in their annual budgets("A comparison of key disaster laws,").

The key issue with financial framework is that as per rules of business 1973 constitution Finance division
can only transfer disaster funds to ERC cabinet division. While ERC spends this money on procurement of relief
goods in accordance with their relief oriented mandate. So no development funds are given to NDMA except
non development funds (salary, stationery, fuel etc.) ( S. Naeem,personal communication, May 15,2014).
Although two percent of development fund is supposed to be spent on disaster management but it could never
be fulfilled. That is the reason No work has been done under long term planning except donor funded project
based work in bits and pieces. Even NIDM is also supported by donors.
The reactive nature of public financing on DRM can also be supported by few financial figures during
2003-4 to 2007-8 federal govt. allocated RS 128 billion for DRM in Pakistan, which comprised of only 10%
budget for preparedness and 90% for response. Even at provincial level figure shows that the response
expenditure of Baluchistan, Sindh and KPK are higher than of expenditures on preparedness. This explicitly
reveals the presence of old reactive approach in public financing despite establishment of new institutional
framework("Issues in institutional framework for DRM in pakistan," 2011).
Capacity: The deficiency of institutional capacities and expertise is also a major challenge to implement the
Policies and Plans in letter and spirit especially at the local level. NDMA Annual report 2011 says that despite
notifications throughout the country, many districts still lack DDMAs to steer all disaster management activities
across different sectors. Even the existing DDMAs lack human, material and financial resources to undertake
the disaster management activities. The local department personals lack requisite professional knowledge, skills,
resources and equipment’s to plan or respond to the impending challenges of disaster risks with a scientific
approach("National disaster risk management framework Pakistan," 2014, p. 52).DRM being a pretty new field
of practice in Pakistan, the availability of skilled human resources in DRM is very limited.
Policy Recommendations
Pro-active approach and mindset: The promulgation of the National Disaster Management Act and formulation
of National Disaster Risk Management Framework, National DRR policy and focus of the NDMA on
preparedness and disaster risk reduction one can say a paradigm shift is taking place with a focus on preparedness
and DRR instead of being reactive to disasters. However, this proactive approach had some impact on changing
the mindset, but at large mindset of relief still prevails. It is dire need to change this mindset.
Now DRR is taught to the civil servants as subject and even policy makers after attending so many
workshops and seminars and documents by INGOs are familiar with, they can talk about it but it should be
reflected by the effective measures on the ground by them (A. Haq, personal communication, April24,2014).
But some at helm of resources and decision making has to take this up. For example, DG PDMA, Baluchistan
in his among all the districts interview shared a nice strategy to proactively engaging the officials it seems an
excellent practice to be copied in other parts as well. He shared that he organized n competition of preparing a
District Disaster Management plan of Baluchistan which motivated all the officials to better prepare themselves
for any kind of Disasters.
GIS based Risk & Vulnerability Mapping: As comprehensive and reliable multi-hazard vulnerability and risk
assessment is a starting point of any meaningful disaster risk reduction measure. So, the concerned authority
should create a risk assessment model by utilizing latest GIS technology capable of simulating disaster scenarios.
This would enable the authorities to reduce vulnerability by budding comprehensive regulatory mechanism. The
Concerned authority should ensure standardized methodology of risk assessment and data feed into national
database. Upgrading Early Warning System: Efforts should be made to upgrade multi-hazard early warning
system to latest lines for timely information. Early warning system, particularly against flash floods / hill
torrents, needs to be strengthened. Although our short-range weather forecasting capability is quite impressive,
however, medium and long-range weather forecasting capability should be enhanced.
Institutional Reforms: A harmonized institutional structure is foremost requirement for an effective DRM
system. So, the issue of multiple institutions with overlapping mandate but different chain of command should
be addressed by reforming the legal and organizational framework. The law should be amended. Incorporating
all other existing laws there should be single law regulating the whole framework by making a single authority
responsible for whole spectrum of disaster. It should clarify the roles and responsibilities of each institution so

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Abasyn Journal of Social Sciences – Volume 10, Special Issue November 2017: Disaster Risk Management and
Climate Change for Business Continuity and Sustainable Development

that this confusion should be resolved. Law should establish a formal linkage between the institutions by giving
them under one central command. The best example in practice could be the PDMA KPK they passed their own
legislation and they merged all relevant department under one command of PDMA and DMU at provincial and
district level respectively (S. Naeem, personal communication, May15,2014).
According to 7Shah Nasir (personal communication, May 13, 2014) later they also took the initiative of
Emergency and rescue service 1122, this service is also under command of PDMA. At the moment it is
functional in two districts. The framework should meet the international standard and local needs at the same
time. During last government, a ministerial committee consisting of federal minister for interior Rehman Malik
and Dr. Babur Awan then Mininter for law and parliamentary affairs and then Sec. Cabinet division NirgesSethi
suggested that the department like civil defense and ERC with disaster squraden should be merged or handed
over to NDMA. During an interview DG PDMA Baluchistan told that he also suggested the Chief Secretary to
merger the departments like civil defense, fire brigade and all other rescue services with PDMA and DDMAs at
provincial and district level respectively (8Hashim Khan, personal communication, April 11,2014). Few
Provinces like KPK taking lead from the center has done this by amendment in law, While Punjab has done it
on temporary biases. The best example to study this harmonized institutional structure for Disaster management
are the FEMA (USA) and NEMA (Korea) (S. Naeem, personal communication, May 15,2014).
Strengthening financial framework:-
The realignment of budgetary allocation to meet the needs of new institutional framework is required.
For this purpose, there should be an amendment in the rule of business in constitution 1973 that the subject of
disaster management is now under climate change division so that the funds should be allocated to relevant
authority So that they could spend it on preparedness in accordance to their mandate. (S. Naeem, personal
communication, May 15,2014). It is essential to have a dedicated budget line, both at federal and provincial
levels, with sufficient budgetary provision to be made available to the concerned authorities for timely carrying
out preparedness and mitigation functions. Timely and adequate investment on DRR would not only reduce
hazard risks but also the costs associated with response, recovery and rehabilitation. Despite having been
mandated, the DRM institutions did not receive any dedicated budget for preparedness, mitigation and response
during the year.("National disaster management act chapter III & chapter IV(Article 13-24)," 2010, p. 51).
Hence, their capacity to plan and deliver remained limited.
Disaster response force: According to the 9Brig. Kamran Zia (personal communication, May 5,2015) response'
is the most perceptible and visible amongst all elements of disaster management cycle and entails creation of a
specialized, multidisciplinary and multi-skilled force, which is well equipped and trained to effectively respond
to various disasters. The idea of retaining a full brigade of Army as DRF is will be required a lot more financial
resources and it will also create many other administrative issues like promotion of officers etc.As a pilot project,
disaster response force may be raised at Islamabad on the pattern of Punjab Emergency Services (Rescue 1122).
This would require integration of human resource from Civil Defence, CDA (Urban Search and Rescue Team),
fire brigade services and scouts etc. the capacity building and skill enhancement would then be needed to turn
them into a cohesive and vibrant force. Upon successful experiment, the idea could be replicated in other
provinces and districts.
Channelizing the efforts by other stake holders: Govt. through its concerned agencies should create a national
platform for all non-government stake holders in order to channelizing their efforts in the direction where it is
much needed. It should be coordinated in a way that all the NGOs working in Pakistan should work under the
Govt umbrella that means only coordinating not controlling them (A. Haq, personal communication, April
24,2014). It should not be like everybody is doing haphazardly its own DRM. This channelization of resources
and efforts would not only lead to efficiency and effectiveness but it will also help in managing financial
constraint to a large extent.
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7
Mr. Shah, Nasir is housing adviser of Provincial Disaster Management Authority (PDMA), Khyber Pakhtunkhwa.
8
Hashim Khan is Director General of PDMA, Baluchistan.
9
Brig. Kamran Zia isMember Operations of NationalDisaster Management Authority (NDMA).
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Abasyn Journal of Social Sciences – Volume 10, Special Issue November 2017: Disaster Risk Management and
Climate Change for Business Continuity and Sustainable Development

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