Disaster response and contingency planning guide

Chapter 1 Introduction The International Red Cross and Red Crescent Movement is a world leader in disaster management. Effective preparedness for and response to emergency situations are fundamental elements of its mandate, and support the fulfilment of basic human rights and respect for humanity. The Movement’s comparative advantages are its large number of paid and volunteer staff throughout the world, who are able to respond immediately at local level, and the significant resources of the 186 National Societies and the International Federation’s Secretariat. Each of these 186 members bases its actions on the Movement’s seven Fundamental Principles of humanity, impartiality, neutrality, independence, voluntary service, unity and universality. Most National Societies are recognized by their governments as “auxiliary to the public authorities in the humanitarian field1 ”. National Societies and the International Federation are uniquely placed to work with governmental authorities and response agencies, and have the community-based outreach to identify those most at risk and vulnerable to disasters. Activities conducted within each country are delivered through a nation-wide network of volunteers who, in times of disaster, are often the first to provide assistance to those affected. Most countries periodically face emergencies so severe that international Red Cross Red Crescent humanitarian assistance is required. These disasters may arise from natural hazards such as earthquakes, floods, droughts and cyclones or from any number of risks, such as food or water shortages, epidemics, environmental or technological disasters, acute economic distress, civil unrest or armed conflict. Refugee outflows and internal displacements are consequences of humanitarian emergencies and are also emergencies in their own right. How to use this guide Disaster response and contingency planning is a responsibility at all levels of the organization. The International Federation recommends that National Societies and International Federation offices develop either a multi-hazard disaster response plan with hazard-specific annexes, or several hazardspecific contingency plans to cover high-risk disaster events. Many emergency management procedures are common to all disasters, regardless of the hazards involved. The information provided in the following chapters should be regarded as a guideline, rather than as strict rules. Planning priorities will differ according to the context and scope of the situation – whether local, national or regional. It is essential to work on response and contingency plans in consultation and cooperation with those who will have to implement or approve them. These guidelines aim to ensure that Red Cross Red Crescent disaster response is consistent and of high quality. The planning process is as important as the plan itself. In this regard, disaster response and contingency planning should be viewed as an on-going activity, which enables us to test and refine existing plans, integrate new partners, and orient staff and volunteers over time. The main topics covered in these guidelines include: ■ The response planning process; ■ Steps involved in developing the plan; ■ Communication and coordination of disaster response; ■ Plan implementation, training, updating and evaluation; and, ■ Standards, tools and templates. Disaster response and contingency planning guide 5 The leadership/management of the Red Cross Red Crescent is responsible for ensuring the production, implementation and monitoring of disaster response and contingency plans 1. Local or community level At branch and community levels, National Red Cross or Red Crescent Societies can play a useful role in supporting the organization of disaster planning committees responsible for developing community-based disaster response plans. Use of the International Federation’s vulnerability and capacity assessment (VCA) tool and its ‘Preparedness Planning Training Module’ is encouraged. First-aid training is another example of Red Cross Red Crescent contribution to a community’s level of preparedness. In addition, local communities can provide a great deal of information regarding their own risks and capacities. 2. National level A national disaster response plan addresses and assesses all potential hazards, evaluates the National Society’s capacity for response and describes the approach to be taken in emergencies. A ‘well-prepared National Society’ (WPNS) should follow the planning process described in this document. National Societies should each have a national disaster response plan. Their institutional role and planned response in times of disaster should also be recognized by their respective governments. This was agreed to as part of the 2004 International Conference’s Agenda for Humanitarian Action. 3. Regional and global levels As a function of the International Federation’s coordination support role to National Societies, regional delegations and pan-regional disaster response/ management units (DMU) must develop risk-area contingency plans. Risk-area contingency plans cover a specific hazard with the potential to cause destruction on a scale requiring extensive international humanitarian assistance. National Societies and the International Federation should plan for these events, setting out the necessary requirements, working relationships, and roles and procedures, as well as identifying event triggers. Those concerned should follow the planning process described in this document. The process to build response and contingency plans 6 International Federation of Red Cross and Red Crescent Societies Annex 1 Suggested structure Annex 2 Roles and mandate Annex 3 Emergency contacts Annex 4 Hazard/risk analysis and potential needs Annex 8 Essential information Annex 6 and 7 Areas of intervention based on capacities and resources Annex 9 Multisectoral organizational roles Annex 5 Scenariobuilding Annex 11 Regional potential hazards Annex 10 Preparedness and capacity building Annex 12 Standard operational procedures Introduction: Common understanding of the process for the development of response and contingency plan Steps for developing disaster response and contingency plans Internal and external coordination Plan standards Accountability and linkages Plan implementation and follow up Why plan? What to plan for? Who to plan with? When to plan? Where to plan? Local levels National levels Regional/global levels What is disaster response and contingency planning? Disaster response and contingency planning leads to organizational readiness in anticipation of an emergency. This includes management of human and financial resources, availability of emergency supplies, and communications procedures. Such planning can help mitigate the destructive effects of a disaster by ensuring timely and effective provision of humanitarian aid to those most in need. Time spent in disaster response planning equals time saved when a disaster occurs. Delays in providing services can result in needless suffering for individuals and families affected by a disaster, and create additional burdens for those responding. Effective disaster response planning leads to timely and effective disaster relief operations. It also helps in building realistic expectations. ■ Institutional disaster planning – This defines the general scope of humanitarian action that the National Society and/or International Federation will undertake. It is based on the organization’s institutional mandate, which provides a framework within which its policies, strategies, standards and norms, and legal remit can be defined. ■ Disaster response plan – Disaster response planning involves identifying, strengthening and organizing resources and capacities so as to reach a level of preparedness for timely and effective response to a potential disaster. This includes: determining roles and responsibilities; developing policies and procedures; and identifying and developing generic tools for response (e.g. the use of National Disaster Response Teams (NDRT), information management, etc.). Disaster response planning is preliminary in nature, based on educated assumptions of risks and hazards, and does not address specific disaster scenarios – as is the case for contingency plans. Once a disaster occurs, plans must then be monitored, evaluated and adapted to the specific situation. ■ Contingency plans – These are based on specific events or known risks at local, national, regional or even global levels (e.g. earthquakes, floods or disease outbreaks), and establish operational procedures for response, based on anticipated resource requirements and capacity. ■ Standard Operating Procedures (SOP) – These are a set of standard procedures that “operationalise” the disaster response and/or contingency plans. In other words, SOPs specify the way in which individuals or units will carry out their functions under the plan (e.g. alerting and mobilizing NDRT, deploying assessment teams and carrying out the assessment process). The SOPs set out what should be done, how it should de done, who is responsible for implementing what, and specifies available resources. These guidelines do not specifically deal with SOPs, but an example is given in annex 12. Disaster response and contingency planning guide