Definition

National Disaster Management Authority, abbreviated as NDMA, is an agency of the Ministry of

Home Affairs whose primary purpose is to coordinate response to natural or man-made disasters
and for capacity-building in disaster resiliency and crisis response.
It is an autonomous and constitutionally established federal authority mandated to deal with whole
spectrum of disasters and their management in the country.

Purpose
To achieve sustainable social, economic and environmental development in Pakistan through
reducing risks and vulnerabilities, particularly those of the poor and marginalized groups, and by
effectively responding to and recovering from all types of disasters events.
1- To act as the implementing, coordinating and monitoring body for disaster management;[3]
2- To prepare the National Plan to be approved and implement, coordinate and monitor the
implementation of the National policy;[3]
3- To provide necessary technical assistance to the Provincial Governments and the Provincial
Authorities for preparing their disaster management plans in accordance with the
guidelines laid down by the National Commission;[3]
4- To coordinate response in the event of any threatening disaster situation or disaster.

NDMA
National Disaster Management Authority (NDMA) is the lead agency at the Federal level to deal with
the whole spectrum of Disaster Management activities. It is the executive arm of the National Disaster
Management Commission (NDMC) which has been established under the Chairmanship of the Prime
Minister as the apex policy making body in the field of Disaster Management. In the event of a disaster,
all stakeholders including Government Ministries/Departments/Organizations, Armed Forces, INGOs,
NGOs, UN Agencies work through and form part of the NDMA to conduct one window operations. It
is established under the National Disaster Management Act – 2010 and functions under the supervision
of National Disaster Management Commission (NDMC) which is headed by the Prime Minister of
Islamic Republic of Pakistan. NDMA manages the whole Disaster Management Cycle (DMC) which
includes Preparedness, Mitigation, Risk Reduction, Relief and Rehabilitation. A National Disaster
Management Plan (NDMP) is prepared and is followed towards provision of better services to the
affected ones.
Vision

To achieve sustainable social, economic and environmental development in Pakistan through reducing
risks and vulnerabilities, particularly those of the poor and marginalized groups, and by effectively
responding to and recovering from all types of disasters events.

Mission
To manage complete spectrum of disasters by adopting a disaster risk reduction perspective in
development planning at all levels, and through enhancing institutional capacities for disaster
preparedness, response and recovery.

Aims
NDMA aims to develop sustainable operational capacity and professional competence to undertake the
following task:-

 Complete spectrum of disaster risk management at national level.

 Act as Secretariat of the NDMC to facilitate implementation of DRM strategies.
 Map all hazards in the Country and conduct risk analysis on a regular basis.
 Develop guidelines and standards for national and provincial stakeholders regarding their role in
disaster risk management.
 Ensure establishment of DM Authorities and Emergency Operations Centres at provincial, district
and municipal levels in hazard-prone areas.
 Provide technical assistance to federal ministries, departments and provincial DM authorities for
disaster risk management initiatives.
 Organize training and awareness raising activities for capacity development of stakeholders,
particularly in hazard-prone areas.
 Collect, analyze process, and disseminate inter-sectoral information required in an all hazards
management approach.
 Ensure appropriate regulations are framed to develop disaster response volunteer teams.
 Create requisite environment for participation of media in DRM activities.
 Serve as the lead agency for NGOs to ensure their performance matches accepted international
standards, e.g. the SPHERE standards.
 Serve as the lead agency for international cooperation in disaster risk management. This will
particular include, information sharing, early warning, surveillance, joint training, and common
standards and protocols required for regional and international cooperation.
 Coordinate emergency response of federal government in the event of a national level disaster
through the National Emergency Operations Centre (NEOC).
 Require any government department or agency to make available such men or resources as are
available for the purpose of emergency response, rescue and relief.

DISTRICT LEVEL:

Composition of DDMA
1. Each Provincial Government shall, as soon as may be after issue of notification under sub-section
(1) of section 13, by notification in the official Gazette, establish a District Disaster Management
authority for every District.
2. The District Authority shall consist of such number of members, as may be prescribed by the
Provincial Government and unless the rules otherwise provide, it shall consist of the following
members, namely :-
a. Head of the local council at the district level (by whatever name called ) who shall be
Chairperson, ex-officio.
b. The District Co-ordination Officer.
 c. The District Police Officer ex-officio.
d. The Executive District Officer, Health.
e. Such other district level officers, to be appointed by the District Government.

Mandate of DDMA
1. Subject to the provisions of NDMA Act 2010, the District Authority shall be as the district
planning, coordinating and implementing body for disaster management and take all measures
for the purposes of disaster management in the districts in accordance with the guidelines laid
down by the National Authority and the Provincial Authority.
2. Without prejudice to the generality of foregoing provisions, the District Authority may :-
a. Prepare a disaster management plan including district response plan for the province.
b. Co-ordinate and monitor the implementation of the National Policy, Provincial Policy,
National Plan, Provincial Plan and District Plan.
c. Ensure that areas in the district vulnerable to disasters are identified and measures for the
prevention of disasters and mitigation of its effects are undertaken by the departments of
the Government at the district level as well as by the Local Authorities.
d. Ensure that the guidelines for prevention, mitigation, preparedness and response
measures as laid down by the National Authority and Provincial Authority are followed
by all departments of the government at the district level and local authorities in the
District.
e. Give directions to different authorities at the district level and local authorities to take
such other measures for the prevention and mitigation of disasters as may be necessary.
f. Lay down guidelines for preparation of disaster management plans by the departments of
the Government at the districts level and local authorities in the district.
g. Monitor the implementation of disaster management plans prepared by the departments
of the Government at the district level.
h. Lay down guidelines to be followed by the departments of the Government at the district
level.
i. Organize and coordinate specialized training programmers for different levels of officers,
employees and voluntary rescue workers in the district.
j. Facilitate community training and awareness programmers for the prevention of disasters
or mitigation with the support of local authorities, governmental and non-governmental
organizations.
k. Set up, maintain, review and upgrade the mechanism for early warnings and
dissemination of proper information to public.
l. Prepare, review and update district level response plans and guidelines.
m. Co-ordinate with, and give guidelines to local authorities in the district to ensure that pre-
disaster and post-disaster management activities in the district are carried out promptly
and effectively.
n. Review development plans prepared by the departments of the Government at the district
level, statutory, authorities or local authorities with a view to make necessary provisions
therein for prevention of disaster or mitigation.
o. Identify places and buildings which could in the event of a disaster situation, be used as
relief centres or camps and make arrangements for water supply and sanitations in such
buildings or places.
p. Establish stockpiles of rescue and relief materials or ensure preparedness to make such
materials available at a short notice.
 q. Provide information to the Provincial Authority relating to different aspects of disaster
management.
r. Encourage the involvement of non-governmental organizations and voluntary social-
welfare institutions working at the grassroot level in the district for disaster management.
s. Ensure communication systems are in order and disaster management drills are carried
out periodically.
t. Perform such other functions as the Provincial Government or Provincial Authority may
assign to it or as it deems necessary for disaster management in the district.

Composition of PDMA
1. Each Provincial Government shall, as soon as may be after issue of the notification under. Sub-
section (1) of section 3 of NDMA Act 2010, by notification in the official Gazette, establish a
Provincial Disaster Management Authority for the Province.
2. The Provincial Authority shall consist of such number of members as may be prescribed and
shall include as its Chairperson the Provincial Director General or Provincial Relief
Commissioner.
3. There shall be a Director General of the Provincial Authority, to be appointed by the Provincial
Government, with the status and powers on such terms and conditions, as may be prescribed
by the Provincial Government.

Mandate of PDMA
1. Provincial Authority shall be responsible for implementing policies and plans for Disaster
Management in the Province.
2. Without prejudice to the generality of the foregoing provisions, the Provincial Authority may:-
a. Formulate the provincial disaster management policy obtaining the approval of the
Provincial Commission.
b. Coordinate and monitor the implementation of the National Policy, National Plan and
Provincial Plan.
c. Examine the vulnerability of different parts of the Province to different disasters and
specify prevention or mitigation measures.
d. Lay down guidelines to be followed for preparation of disaster management plans by
the Provincial Departments and District Authorities.
e. Evaluate preparedness at all governmental or non-governmental levels to respond to
disaster and to enhance preparedness.
f. Coordinate response in the event of disaster.
g. Give directions to any Provincial department or authority regarding actions to be taken
in response to Disaster.
h. Promote general education, awareness and community training in this regard.
i. Provide necessary technical assistance or give advice to district authorities and local
authorities for carrying out their functions effectively.
j. Advise the Provincial Government regarding all financial matters in relation to disaster
management.
k. examine the construction in the area and if it is of the opinion that the standards laid
down have not been followed and it may direct the following same to secure
compliance of such standards.
l. Ensure that communication systems are in order and disaster management drills are
being carried out regularly.
m. Perform such other functions as may be assigned to it by the National or Provincial
Authority.
The 8 October 2005 earthquake

An earthquake measuring 7.6 on the Richter scale struck the northern areas of Pakistan and India on 8 October 2005.
Its epicentre was 19 km northeast of Muzaffarabad. Azad Jammu Kashmir (AJK) and North West Frontier Province
(NWFP) were severely affected. Since that day, more than 1,200 aftershocks have been recorded in the region, some
of them close to 6.0 on the Richter scale.

At the time of writing, the estimated death toll is 73,000, and expected to rise. Most buildings in the affected area had
poor earthquake resilience. Of the total housing stock, 84 percent was damaged and destroyed in AJK and 36 percent
was damaged or destroyed in NWFP. The latest estimates indicate that 3.2 million to 3.5 million people have been
affected by the disaster and are in need of assistance, including winterized shelter, medical care, food and water and
sanitation facilities.

Government, army and civil society response

The immediate response from the Government, the Army, civil society and the population at large was swift and
exemplary. The Government established a Federal Relief Commission (FRC) within days of the disaster to mount
coordinated action for rescue and relief operations. A massive response was mounted by civil society organizations,
the population at large and the affected people. The Government also created the Earthquake Rehabilitation and
Reconstruction Authority (ERRA) to support medium- to long-term rebuilding efforts. It functions as the main
interface between the Government and international lending institutions, other international organizations, as well as
national authorities and philanthropist organizations focusing on the rehabilitation of the stricken areas.

On 17 October, the Prime Minister of Pakistan announced a 12 Point Plan for Relief, Recovery and Reconstruction.
In addition, the Government presented a National Plan of Action on 1 November, to meet the logistical and
organizational challenges posed by the earthquake. Under the National Plan of Action, financial support on the order
of several billion rupees was approved to compensate survivors for loss of life, injuries and damage to property. In
addition, government assistance includes the re-building of 'warm rooms' for the winter and the provision of 'one room
transitional shelter' using retrievable materials. Other resources will be mobilized through a National Volunteer
Movement and the private sector. Special provisions will be made to avoid mismanagement during the rehabilitation
and reconstruction work.

Organization of the international response and main actions

The international support for rescue, relief and early recovery has been organized in 10 sectoral cluster groups,
bringing together the Government and a broad range of UN and other humanitarian partners. Considering the
challenges under which the humanitarian community is operating -- the large number of people affected, logistical
difficulties in the terrain, and the narrow time window for reaching out to the affected areas -- the progress of the
operation has been exemplary. A Flash Appeal was issued three days after the disaster. Its latest revision is requesting
some $550 million for priority humanitarian operations over six months.

Section 2: The Early Recovery Framework

Early recovery needs assessment

As a first step in formulating the Early Recovery Framework, the UN system undertook an assessment of early
recovery needs in affected areas, in support of the Government's early recovery interventions. This assessment was
complemented by a damage and loss assessment that was spearheaded by the Asian Development Bank and the World
Bank in a simultaneous endeavour to identify long-term reconstruction needs. Objectives of the early recovery needs
assessment were to: assess key vulnerabilities; identify strategic interventions to address these vulnerabilities over the
next 12 to 18 months; anticipate spontaneous early recovery efforts by the affected communities; and identify key
programme areas to facilitate early recovery and transition from relief in different geographic locations

The needs assessment identified a variety of social groups that have become particularly vulnerable in the aftermath
of the earthquake. It also detected emerging environmental risks such as those associated with the unsafe disposal of
waste, the unsustainable exploitation of natural resources to meet increased demands for building materials, and
damaged buildings in danger of collapsing and causing new injury. It is essential that recovery strategies and
programmes adopt appropriate mechanisms to immediately contain and address these emerging risks while at the same
time addressing the longer-term underlying root causes.

The present report describes early recovery interventions that the Government, with the support of the UN system and
international community, will pursue on a priority basis.

Guiding principles for recovery

The Early Recovery Framework is guided by a set of 10 principles that are to be applied during the planning and
implementation of early recovery interventions.(1) These principles take a rights-based approach. They also reflect
the articulated priorities of the affected communities in a participatory and people-centred manner. The guiding
principles for the Early Recovery Framework are as follows:
1. Focus on the most vulnerable

2. Restore capacities

3. Rebuild people's livelihoods

4. Secure human development gains

5. Reduce disaster risk

6. Engage the private sector

7. Independence and self-sufficiency

8. Transparency and accountability

9. Subsidiarity and decentralization

10. Coordination

The most appropriate vehicle for delivering early recovery interventions is an integrated multi-sectoral approach
focusing on the specific needs of key affected areas. This approach utilizes the knowledge of problems, needs,
resources, capacities and development potentials available at the local level. Programmes are identified for operational
interventions over a period of 12 to18 months after the disaster. Certain sectors are considered to be particularly
relevant during the early recovery phase. These include: shelter, employment and livelihood, agriculture and livestock,
governance, disaster risk reduction, environment, education, protection, food and nutrition, health, and water and
sanitation.

The total cost of the earthquake is estimated to be $ 5.2 billion (see table 1). Of this total, the preliminary cost estimate
is $398 million for early recovery.2 The Framework outlines strategies for early recovery in different sectors and
suggests key programmatic areas, for which the UN system has considerable expertise and long-standing engagement
in the country. Some of these areas include cash for work (e.g. rubble clearance), transitional shelter, micro-finance
schemes for the restoration of livelihoods, disaster risk reduction, support to aid coordination, and capacity building
for local governance.
Table 1: Estimated Cost of the Earthquake
Category US$ US$
Death & Injury Compensation 205,000,000
Relief 1,092,000,000
Early Recovery 398,000,000
Livelihoods: grant portion 97,000,000
Livelihoods: non-grant portion 12,303,500
Other sectors 288,696,500
Sub-total 301,000,000
Reconstruction 3,503,000,000
Short-term reconstruction 450,000,000
Long-term reconstruction 3,053,000,000
Total 5,198,000,000
Source: As reported by UN Agencies Recovery Needs Assessments and ADB/WB Preliminary Damage and Needs Assessment,
November 2005.