From Disaster to Reconstruction
PDNA Training
October 18-21, Gatt, Switzerland
Overview
Post-Disaster Needs Assessments
 Recovery Framework
 Reconstruction Planning
 Reconstruction Financing
 Pooling resources
 Donor harmonization

PDNAs
A Post-Disaster Needs Assessment is government-led with
support of the international community with the goal to:



Estimate the economic and human impact of the disaster
Determine the reconstruction and recovery needs
Prioritize reconstruction and recovery activities in the Recovery
Framework
The PDNA is based on DaLA and HRNA:


The DaLA: Damage and Losses Assessment is a quantitative
estimation of damage and losses and the impact on the overall
economy
The HRNA: Human Recovery Needs Assessment “are
assessments that determine the requirements for the full resilient
recovery of human development for affected populations, including
restoration of governance systems
PDNAs
PDNA is not a stand-alone activity. It triggers a process integrating predisaster preparedness and capacity building with post-disaster planning,
implementation and monitoring.
Pre-disaster:
Consolidate and expand partnerships
Scale up in-country , regional and global capacity development
Streamline the mobilization of experts
Establish protocols of cooperation
Further refine the PDNA methodology
Develop good practices and guidance notes, lessons learned
Foster regional cooperation and community participation
Post-disaster:
Integrate development strategy with recovery and reconstruction financing
Post-disaster engagement to strengthen preparedness and response
Measure the impact of PDNA on prioritization and financing of DRM
Monitor the recovery process – social impact, economic impact,
risk and vulnerability impact.
PDNAs
Post Disaster Needs Assessments
Guiding principles of PDNAs:
Government led process
Partnership between EU, UN, WB, and with an inclusive
approach toward civil society and others
One process, one team, one
output
Resilient Recovery” – a
Strong emphasis on “
DRR-driven recovery and reconstruction process
Partnership in PDNAs




Paris Declaration on Aid Effectiveness
(2005)
Joint Declaration (JD) on Post-Crisis
Assessment and Recovery Planning,
signed in 2008 by EC, UN and WB
JD is a platform for partnership and action
to boost a coordinated, effective,
sustainable response to crisis
Develop joint methodology and tools,
undertake joint missions and trainings,
and support government jointly in postdisaster recovery planning and
implementation.
Stages of a PDNA and Partnership Process
Common elements that lead to a PDNA:

Government request for assistance in assessing the impact of a natural disaster

Inter-agency communication at national and global level

Rapid financial commitment to facilitate the PDNA

PDNA planning mission to set the goals and process of the assessment

Identification of local and international experts for the multi-agencies
assessment team led by the Government staff

Joint report writing and presentation to Government and donors
PDNA and post-disaster main phases
PDNA and recovery process
Actors involved in PDNA
PDNA Secretariat
(Senior management of
DMA; UN coordinator, EU
counselor, WB country rep)
Line ministries, DMAs of the
government
PDNA actors
Civil society, Private sector,
Technical and Academic
Institutions
UN, EU, WB/GFDRR
( Regional organizations and
development banks,
Bilaterals)
PDNA milestones
Government
requests a PDNA
[average of 1 week
after a disaster]
Govt and
International
Community teams
work together
[3-5 weeks after
disaster]
Govt and International
Community draft ToRs
[2 weeks after a
disaster]
Govt and
International
Community
draft Report
[6 weeks after a
disaster]
PDNA outcome: ensuring resilience recovery
Common elements that ensure the PDNA is disaster proofed:

Including DRR and CCA expertise in the assessment team

Providing guidance on DRR to sector teams

Making sure the needs assessment is disaster proofed

Dedicating a chapter to disaster risk management that analyses the policy
framework, DRM strategies and institutional capacities and needs

Dedicating a chapter to CCA measures

Crystallization & prioritization of Needs; Recovery Framework

Implementation Arrangements.
Some PDNA damages and losses
Social Sectors
Bolivia
95
Bangladesh
86
Myanmar
122
Madagascar
224
Haiti
143
Namibia
53
Bhutan
51
Indonesia
183
Senegal
54
Yemen
224
Samoa
20
the Philippines
919
Lao PDR
11
Central African Republic
6.04
Burkina Faso
60.8
El Salvador
39.66
Haiti 2010
1374.7
Total
3666.2
Productive Sectors Infrastructure Cross Sectoral
334
115
0
490
1060
6
2918
837
254
429
159
85
137
52
0.5
121
39
1.3
0
0
1
266
1831
68
24
18
1.2
1226
143
19
117
124
0.55
3219
237
7.1
22.31
25
0
2.4
1
0
55.75
17.85
3.72
82.36
103.09
14.08
1330.4
4549.8
499.4
10774.22
9311.74
960.85
PDNA outcome: leveraging financial support
Haiti Donor Conference
The total amount of pledges over
the next three years and
beyond added up to $9.9 billion
from 59 countries and
International organizations.
Pakistan Development Forum
International dialogue of government and donors to
discuss planning and financing of future growth
strategies including DRR and post-disaster
reconstruction strategies.
Pledges of around $ 2 billion from donors.
Effective Post-disaster Recovery & Reconstruction
Recovery framework
Defined and prioritized needs
Reconstruction planning
Preparation of projects in line with reconstruction needs
Reconstruction financing
 Pooling of various resources – domestic and external
 Donor harmonization and alignment
Reconstruction management
 Institutional framework
 Implementation arrangements
 Performance management including monitoring and
evaluation
 Transparency and accountability
 Grievance redressal
Performance management
Transparency
 Grievance policy
 Accountability – to people; to donors
Communication
Internal and external
Recovery Framework
A disaster recovery framework provides cohesion and focus to the recovery
efforts defining what needs to be done, the guiding principles, and implementation
arrangements
 A recovery framework is crucial in identifying how various parts of the
government will work together to address recovery needs in cooperation with
donors, NGOs, and the private sector
Reconstruction Planning
Developing program and project work plans for phases of recovery
activities
 Detailed evaluations and process flows of how projects will be designed,
processed, implemented, and monitored
Financing Reconstruction
Reconstruction can be financed from domestic and external sources.
 The challenge of post-disaster reconstruction is to mobilize additional resources reconstruction should not be at the cost of the development processes.
 Additional domestic resources can be generated through:
 Reallocation among the budget items from “less” to “more” disaster-hit sectors
 Issue of sovereign reconstruction or development bonds
 Levy of tax or surcharge for reconstruction
 Introduction of policy incentives for private sector to share reconstruction costs
 Voluntary civil society and private philanthropies’ contributions
 Insurance
Financing Reconstruction cont.
External resources for post disaster reconstruction can be sourced from multilateral
development banks, regional development banks, bilateral development partners,
international NGOs, private philanthropies and charities, and remittances
 External development finance from multilateral, regional or bilateral sources
can be loans or grants
Trust Funds or Multi-donor Trust Funds
Loans can be concessional or semi-concessional
International NGOs and Private Philanthropies usually operate off budget and
vertically
Remittances can play a significant role in post-disaster recovery of affected
communities, vertical and off budget addition to public resources
Financing Reconstruction – WB’s Role
The Bank offers a basket of options to clients for post disaster recovery and
reconstruction
 Bank’s comparative advantage arises from a combination of:
 Concessional finance
 Global expertise and good practices in reconstruction and risk management
 Harmonization of diverse sources of international development assistance
 Since 1984 the Bank has financed 725 disaster related projects, providing clients
countries with $ 56.3 billion in disaster related assistance (9% of the portfolio)
Financing Reconstruction – WB Instruments
Available Bank instruments for financing post-disaster recovery and reconstruction
IDA Credit under OP 8.00
IBRD Loan under OP 8.00
Reallocation of existing portfolio
Self Standing Contingent Financing Loans (IDA or IBRD)
Ex ante contingent component of standard investment operations
Specific Investment Loans
Development Policy Operations – budget support
Innovative Instruments – CAT-DDOs and Risk Insurance
Multi-donor Trust Funds
IDA CRW
Reconstruction Management – Institutional Framework
To be Considered
 The suitability of the existing laws and institutions for the requirements of a
post-disaster program
 Relying on existing laws and institutions can avoid legal issues during
reconstruction
Disasters do provide an opportunity for improving pre-exiting laws and
streamlining the operating frameworks and coordination across institutions
Political fragmentation can make consensus-building on goals very difficult to
achieve.
Institutional Options
Create a New Institution
+ Autonomy of agency, clear line of responsibilities, clear and effective internal and external
communication, capacity to handle complicated financial, M&E arrangements
- Possible lack of authority to achieve results, lack of ownership and institutional resentment, high
administrative costs, difficulties with dissipating the assembled capacity, knowledge and experience at
the end of the program
Strengthen and Coordinate Existing Line Ministries to be the Reconstruction Leader,
Sector by Sector
Challenges: the existing capacities of government line ministries must be highly adequate to deal
with additional responsibilities; rapid recruitment of temporary staff may not be adequate; line
ministries may struggle to focus on reconstruction programs at the expense of longer term goals;
and coordination may be difficult without sufficient prior experience
The More Contemporary Hybrid Option: Temporary Reconstruction Agency
• combines the advantages of both these options and attempts to minimize or offset the risks of
singularly taking either of the two options
• Provide dedicated attention towards ensuring relatively speedy delivery of reconstruction
deliverables and targets.
• It is of paramount importance to ensure that such an institution is formed with a clear exit and
transitional strategy and sunset clause
Implementation Arrangements
Strategy Formulation
and Setting Standard
for Reconstruction
Time
•Development of
an overall
strategic vision on
reconstruction
with a phased
program and
clear
implementation
timeframe
•DRM
mainstreaming
•Key actors:
Central/National
government
Setting up the
Institutional
Arrangements
•Quick assessment
of strengths and
weaknesses of
pre-disaster
delivery
mechanisms
• Defining the
institutional
implementation
model (e.g. hybrid
model with
iterative strategy)
•Key Actors:
Central/National
Government
Setting up consultative
mechanisms
• Establishing
intergovernmental
fora to assess pros,
cons and risks
associated with
various institutional
options
•Consultation with
sub-national
government, civil
society, private
sector, technical
institutions and
academia, etc. to
foster partnerships
and benefit from
specialized skills
and capabilities
•Key Actors:
Community and
Sub-national
Government
Preparatory
Exercises, Surveys
and Fieldwork
•Assessments of
risks
•Post-Disaster
Damage, Loss and
Needs
Assessment
•Key Actors:
Technical experts
Monitoring and Evaluation
 As development community moves towards results-based frameworks for
measuring impact of programs, similar push needed for reconstruction programs
post-disaster.
 M&E should be put at forefront of reconstruction programs.
 Reconstruction programs have lagged
 One reason is the lack of availability of effective monitoring and control tools.
 M&E frameworks across different reconstruction programs not fully
comparable
 Developing standardized M&E frameworks in reconstruction is important given
increasing frequency and scale of disasters.
 Post-disaster Reconstruction involves substantial resources and can take
priority over country developmental agendas in short term.
Results-Based Performance Management
 Reconstruction Performance Management helps improve the likelihood of
achieving development objectives
 Performance Management should be an inalienable part of the overall
recovery program from the get go
 A five pillar approach to Performance Management provides multidimensional views into development
 Fundamental to a results-centric Performance Management regime is the
development and operationalization of an overarching ‘Results Framework’
 Implementation of a well drawn out strategic Performance Management
roadmap is key
 Performance Management is an on-going process
 Reconstruction Performance Management has significant operational and
strategic implications
Performance Management Pillars
Performance Management of DRR
Results
/Outcome
Based
Program Level
M&E
Project Level
Physical and
Financial
Progress and
Output M&E
Aid Tracking
Mechanisms
Governance &
Accountability
Systems
Social Impact
Monitoring
A Multi-Faceted Approach to Reconstruction Performance Management
Grievance Mechanism
Grievance Mechanisms and Complaint Redressal Mechanisms are crucial tools in
accountability and reducing the risk of corruption.
Must be participatory and demand-driven.
Important to include complaint/grievance redress module within the project’s
overall M&E system.
Monitoring such mechanisms should have two objectives:
Track complaints and follow-up solutions;
Provide real-time feedback and feed-forward loops.
Grievance Mechanism cont.
Feed-forward loop process provides valuable information for designing risk mitigation
strategies based on operational realities of governance and accountability.
Grievance redress mechanisms at the project level different from ther overall
reconstruction program level.
Priority be given to project-level GRM, as it is used by direct project beneficiaries and
becomes crucial part in measuring project performance and impact.
Importance of Communication
Helps reduce risks of failure
Helps mobilize beneficiaries
Helps build relations and image
All are inter-linked and mutually reinforcing
Strategic communication helps build consensus and makes implementation
smooth
Delays in sending messages creates information void: gives rise to rumors and
uncertainty
Communication Strategy
Two ways of communication:

Above The Line (ATL): Radio, Newspaper

Below The Line (BTL): Community Organizations, Social Mobilization
Mobilizes and ensures goodwill and cooperation of stakeholders
Creates allies for work
Minimizes or isolates opposition
Pre-empts crises, or defuses them in timely manner
Communication – Pakistan Earthquake 2005
Approach to Social Mobilization:
Provision of Timely Information and Involving Beneficiaries from the very
outset
Community Validation Mechanism for determining Grant Eligibility
Providing an Enabling Environment for Grant Beneficiaries to Comply
Even though individual assets are being created, it is important to breed a
community driven approach
The message has to be repeated – communities tend to forget or overlook
Public Sector still needs to be involved; for oversight and implementation
Communication Example cont.
Communication – Lessons Learned
Radio turned out to be the most effective dissemination medium
Feedback channels must be established
Message does reach people, they pick and choose
Messages should be such that they give people a chance to think rather than reasons
to panic
Delays in sending messages creates information void: gives rise to rumors and
uncertainty
Difficult to control damage caused by an incorrect message: therefore need to be well
researched.
In such post-disaster scenario’s sustained, continuous information campaign plays
critical role