Disaster Management: A Disaster Manager's Handbook - Asian

416 Pages·2012·1.09 MB·English

by  Asian Development Bank

DISASTER MGMT_FINAL_APPROVED copy.pdf 2/3/12 11:02:54 AM
Disaster Management: A Disaster Manager's Handbook
This handbook is a ready reference guide for those actively involved with
management of natural disasters before, during, and after disaster
situations in developing member countries. It draws upon disaster
management practices in Asia and the Pacific and endeavors to relate D
realistically to the needs of national disaster managers. IS
A
About the Asian Development Bank S
T
E
ADB’s vision is an  Asia  and Pacific region free of poverty. Its mission is R
to help its developing member countries substantially reduce poverty and M
improve the quality of life of their people. Despite the region’s many A
successes, it remains home to two thirds of the world’s poor: 1.8 billion N
people who live on less than $2 a day, with 903 million struggling on less A
G
than $1.25 a day. ADB is committed to reducing poverty through
E
inclusive economic growth, environmentally sustainable growth, and
M
regional integration. 
E
  Based in Manila, ADB is owned by 67 members, including 48 from N
the region. Its main instruments for helping its developing member T
:
countries are policy dialogue, loans, equity investments, guarantees,
A
grants, and technical assistance.
D
i
s
a
s
t
e
r

M
a
n
a
g
e
r
’
s

H
a
n
d
b
o
o
k
Asian Development Bank
6 ADB Avenue, Mandaluyong City
1550 Metro Manila, Philippines
Tel [phone]
Fax [phone]
www.adb.org
[email protected]
ISBN 978-971-561-006-3
Publication Stock No. 041508 Printed in the Philippines
Disaster
Management
A Disaster Manager’s Handbook
W. Nick Carter
© 1991, 2008 Asian Development Bank
All rights reserved. Published 2008.
Printed in the Philippines.
Cataloging-In-Publication Data
Publication Stock No. 041508
ISBN 978-971-561-006-3
Cataloging-In-Publication Data
Carter, W. Nick.
Disaster management: a disaster manager’s handbook.
Mandaluyong City, Phil.: Asian Development Bank, 2008.
1. Disaster management. I. Asian Development Bank.
The views expressed in this book are those of the authors and do not necessarily reflect the
views and policies of the Asian Development Bank (ADB) or its Board of Governors or the
governments they represent.
ADB does not guarantee the accuracy of the data included in this publication and accepts
no responsibility for any consequence of their use.
Use of the term “country” does not imply any judgment by the authors or ADB as to the
legal or other status of any territorial entity.
ADB encourages printing or copying information exclusively for personal and noncommercial
use with proper acknowledgment of ADB. Users are restricted from reselling, redistributing,
or creating derivative works for commercial purposes without the express, written consent
of ADB.
6 ADB Avenue, Mandaluyong City
1550 Metro Manila, Philippines
Tel [phone]
Fax [phone]
www.adb.org
For orders, please contact:
Department of External Relations
Fax [phone]
[email protected]
Contents
List of Acronyms ix
Preface xi
Foreword xiii
Introductory Notes xvii
PART I - BASIC DISASTER MANAGEMENT ASPECTS
Chapter 1 The Significance of Disaster 3
The Traditional Disaster Threat 3
The New Disaster Threats 4
The Geography of Disaster 5
The Modern Loss Factor 6
Major Aspects of Significance 6
Chapter 2 The Disaster Threat 9
The General Effects of Disaster 10
Outlines of Individual Disasters 10
Process of Defining the Disaster Threat 21
Use of Disaster Threat Information 22
Chapter 3 National Disaster Management Policy 25
Clear Definition of National Policy 25
The Process of Policy Definition 26
Main Elements of National Policy 29
Arrangements for Monitoring and Review 31
Chapter 4 Major Requirements for Coping with Disaster 35
Scope of Disaster-Related Action 35
The Philosophy for Coping with Disaster 36
Foundation Factors 37
Organization 37
Planning 41
Use of Resources 43
Specialist Skills 45
Training Needs 46
IV Disaster Management
Chapter 5 The Disaster Management Cycle 49
The Disaster Management Cycle 49
Composition of Main Activities 51
Application to Practical Disaster Management 56
Chapter 6 Disaster and National Development 59
Disaster and the National Image 59
The Impact of Disaster on National Development 62
National Development and Disaster
Management Policy 66
Chapter 7 Disaster Legislation 71
The Need for and Value of Legislation 71
Main Areas Covered by Legislation 72
Sample Draft of a National Disaster Act 73
Chapter 8 Counter-Disaster Resources 81
Types of Resources 82
Evaluation of Resources 84
Roles and Responsibilities of
Resource Organizations 86
Annex: Military Forces in the Counter-Disaster Role 94
Chapter 9 International Disaster Assistance 101
Modern Concept of International Disaster
Assistance 101
Types of International Assistance 102
Sources of International Assistance 104
Arrangements by Recipient Countries 105
Local Problems Arising from International
Assistance 108
The Relationship between Donors and Recipients 109
Chapter 10 Leadership in Disaster 111
Leadership under Crisis Conditions 111
Some Ramifications of Political Leadership 113
Leadership in the Direction of Response Operations 116
Leadership in Resource Organizations 118
Community Leadership 119
Some Leadership Attributes and Desirabilities 120
Contents V
Chapter 11 Organization 125
Factors Affecting Organizational Systems 125
Organizational Components 129
Organizational Structures 138
Chapter 12 Plans 145
The Need for Counter-Disaster Plans 146
Some General Considerations Applicable
to Planning 146
The Format of Plans 150
The Planning Process 152
Critical Areas in Planning 154
Aspects for Consideration during Planning 161
Annex: Suggested Outline for a Main Action Plan 170
Chapter 13 Use of Resources 173
The Need for Optimum Use of Resources 174
Functional Requirements of Resource 176
Organizations
Management of Resources for Optimum 178
Effectiveness
Activation of Resources 180
Graduated Response 182
Commodity Management 183
Annex: Suggested Format for Standard 185
Operating Procedures
PART II – LONG-TERM MEASURES
Chapter 14 Prevention 191
The Need to Consider Disaster Prevention 191
Problem Areas in Prevention 192
Positive Approaches Toward Prevention 193
Resources Relevant to Prevention 195
Chapter 15 Mitigation 197
Guiding Principles of Mitigation 199
Examples of Mitigation Measures 200
Problem Areas in Mitigation 200
Requirements for Effective Mitigation 202
Major Mitigation Components 203
Resources Relevant to Mitigation 207
VI Disaster Management
Formulation and Implementation of 209
Mitigation Programs
PART III – MAJOR FACTORS PRIOR TO DISASTER IMPACT
Chapter 16 Preparedness 213
The Nature of Preparedness 214
Some Problem Areas in Preparedness 214
Summary of Preparedness Needs 216
Maintenance of Preparedness Levels 220
Funding 223
Warning Aspects 224
Precautionary Measures Prior to Disaster Impact 224
Resources Relevant to Preparedness
Arrangements 227
PART IV – RESPONSE TO DISASTER IMPACT
Chapter 17 Response 231
Important Characteristics of Response 232
Some Problem Areas in Response 234
Requirements for Effective Response 237
Follow-on from Response Operations 246
Human Factors in Response 248
Resources Relevant to Various
Aspects of Response 249
Annex: Notes on Evacuation 251
Chapter 18 Logistics 259
General Description of Logistics 259
The Importance and Place of Logistics
in Disaster Management 260
Response Aspects 260
Recovery Aspects 264
Preparedness Requirements 265
Management, Administrative, and Accounting
Considerations 269
Contents VII
PART V – MAJOR POST-IMPACT FACTORS
Chapter 19 Recovery 275
Key Points from Disaster Analysis 276
Transfer of Responsibilities from Response
to Recovery 276
Continuation of Response Activity 277
The Basis for Recovery Action 278
Problem Areas in Recovery 278
Major Requirements for Effective Recovery 279
Human Factors in Recovery 285
Resources Relevant to Recovery Programs 288
Projection of the Recovery Process 289
Chapter 20 Post-Disaster Review 291
The Importance of Post-Disaster Review 292
Reasons for Omission of Post-Disaster Review 292
Aspects Covered in Post-Disaster Review 293
Major Investigations into Disasters 293
Use of Results 294
PART VI – DISASTER MANAGEMENT SUPPORT REQUIREMENTS
Chapter 21 Training 297
Individual Country Requirements 298
The Need for Training 298
Training Policy 299
Types of Training and Trainee Categories 299
Implementation of Training 301
Public Education 304
Annex: Examples of In-Country Training Programs 305
Chapter 22 Public Awareness 307
The Importance of Public Awareness 308
Responsibility for Public Awareness Programs 309
Main Aspects of Programs 310
Information Format 311
Information Channels 312
Organization of Programs 312
Effectiveness of Information 313
Maintenance of Awareness Levels 313
VIII Disaster Management
Chapter 23 Research 315
The Extent of Modern Disaster-Related Research 315
The Importance of Research 317
Practical Use of Research Information 318
APPENDIXES
Appendix A Vulnerability Analysis 323
Appendix B Warning and Warning Systems 333
Appendix C Survey and Assessment 343
Appendix D Examples of Disaster Legislation 355
Cook Islands 355
Papua New Guinea 365
Queensland, Australia 375
LIST OF ACRONYMS
ADPC Asian Disaster Preparedness Center
AIDAB Australian International Development Assistance Bureau
AODRO Australian Overseas Disaster Response Organization
ASEAN Association of Southeast Asian Nations
CCG Central Control Group
DMC developing member country
EOC emergency operations center
GIS Geographic Information System
NATO North Atlantic Treaty Organisation
NDC National Disaster Council
NDMO National Disaster Management Office
NEOC National Emergency Operations Center
NGO nongovernment organization
OGC Operations Control Group
PIDP Pacific Islands Development Program
UK United Kingdom
UNDRO United Nations Disaster Relief Office
UNHCR United Nations High Commission for Refugees
US United States
USAID United States Agency for International Development