THE UNITED REPUBLIC OF TANZANIA
PRIME MINISTER’S OFFICE
NATIONAL OPERATIONAL
GUIDELINES
FOR DISASTER MANAGEMENT
MARCH 2003
DISASTER MANAGEMENT DEPARTMENT,
P. O. Box 3021,
DAR ES SALAAM.
May, 2003
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TABLE OF CONTENTS
Abbreviation …………………………………………………………………
List of Tables and Figures……………………………………………………
Glossary ……………………………………………………………………..
Basic Factors of Tanzania …………………………………………………...
Chapters One: Background ………………………………………………….
Chapter Two: Institutional Framework ……………………………………..
Chapter Three: Purpose, Goals and Objectives ……………………………..
Chapter Four: Key Players in Disaster Response ……………………………
Chapter Five: Command, Control & Co-ordination …………………………
Chapter Six: Core Functions in Disaster Response ………………………….
Expanded Version: Glossary …………………………………………………
List of Annexes:
Annex C: Sectoral Disaster Response Committees on Mass Care …………..
Annex D: Sectoral Disaster Management Committee on Search and Rescue .
Annex 1: Hazard-Specific Guidelines ………………………………………..
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ABBREVIATIONS
CBO
DCU
DDMC
DMD
EPRU
HIV/AIDS
VDMC
MoAFS
MoCT
MoDNS
MoFAIC
MoH
MoHA
MoLHSD
MoLYD
MoME
PoRALG
MoW
MoWL
NCS
NDMC
NDRC
NECN
NGO
RCU
RDMC
SDMC
TCAA
TMA
PMO
TCRS
TACAIDS
TPDF
TTCL
NECN
Community Based Organisation
District Coordination Unit
District Disaster Management Committee
Disaster Management Department
Emergency Preparedness and Response Unit
Human Immune Virus/Acquired Immune Deficiency
Village Disaster Management Committee
Ministry of Agriculture and Food Security
Ministry of Communication and Transport
Ministry of Defence and National Service
Ministry of Foreign Affairs and International Co-operation
Ministry of Health
Ministry of Home Affairs
Ministry of Lands and Human Settlement Development
Ministry of Labour and Youth Development
Ministry of Minerals and Energy
Ministry of Regional Administration and Local Government
Ministry of Works
Ministry of Water and Livestock
National Communications System
National Disaster Management Committee
National Disaster Response Committee
The National Emergency Communications Network
Non Governmental Organisation
Regional Coordination Unit
Regional Disaster Management Committee
Sectoral Disaster Management Committee
Tanzania Civil Aviation Authority
Tanzania Meteorological Agency
Prime Minister’s Office
Tanzania Red Cross Society
Tanzania Commission for AIDS
Tanzania Peoples Defence Forces
Tanzania Telecommunication Company Limited
National Emergency Communication Network
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LIST OF TABLES AND FIGURES
Figure 1:
Disaster Incidents in Tanzania. ……………………………………
Figure 2:
Disaster Management Department Structure …………………..
Figure 3:
Emergency Communication Structure ………………………….
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GLOSSARY OF TERMS
In these guidelines these words have the following meaning:
Assessment: An evaluation or appraisal for making a judgement about the problems, needs,
priorities, resources or capacity, of a specific system, community or region. It may be carried out
through direct observation, review of literature, interview or survey.
Co-ordination: The process of systematically analysing a situation, developing relevant
information, and informing appropriate command authority of viable alternatives for selection of
the most effective combination of available resources to meet specific objectives.
Command and Control: A top-down emergency response structure that specifies who is in
charge and who reports to whom. Establishing this structure beforehand ensures all concerned
agencies understand their responsibilities and are ready to respond in a coordinated manner
when a disaster occurs.
Cooperating Agency: An agency supplying assistance other than direct tactical or support
functions or resources to the incident control effort (e.g., the Tanzania Red Cross, Tanzania
Telecommunications Company Limited).
Disaster: A serious disruption of the functioning of a society, causing a widespread human,
material and environmental losses which exceed the ability of the affected community to cope
with from its own resources.
The following disaster hazards are defined for the purpose of these guidelines:
Accident: A man-made transport type of disaster comprising of air, marine, road, and rail crash
which suddenly destroys life, property and quite often the environment;
Conflict: Disagreement between two groups which can cause social and economic disruption in
a community, e.g. war, insurgency from radical or political groups or civil unrest such as student
or mob activity;
Cyclone: A violent tropical storm, developing at sea with extremely high winds and
accompanied by rain. It is a mixture of heat and moisture forming a low pressure centre which
causes acceleration of wind;
Drought: A lack of adequate water for crops, livestock and communities due to prolonged low
rainfall. It is often caused by climatic change;
Earthquake: A movement, slippage of crystal rock, deep within the earth causing the surface to
move very violently and so causes damage to infrastructure and in so doing causes death;
Epidemics: A pronounced rise of cases of a disease (parasitic or infectious) often ending in
death or disability as a result of exposure to a biologically active agent;
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Explosion: A violent man-made event such as a bomb blast or liquid petroleum gas;
Fire: Uncontrollable burning of urban settlements or forests or aeroplanes that destroys life and
property;
Flood: Significant rise of water level in a stream, lake, ocean etc that destroys life and property.
Floods often build up slowly and are usually seasonal. They cause physical damage by washing
away structures, crops and animals. Casualties and deaths may occur from drowning;
Landslides: A landslide is a down slope transport of soil and rock resulting from naturally
occurring vibrations, changes of water content or removal of lateral support;
Pest infestations: Increase in pest numbers due to ecological factors e.g. temperature,
monoculture of crops, new pest species, favourable weather patterns, and migration. This leads
to excessive damage of plants and harvested crops, consequently leading to food shortages,
famine and economic stress;
Refugee: Any person who owing to a well founded fear of persecution for reasons of race,
nationality, religion, member of a particular social group or political opinion is outside his or her
country, who is unable, owing to such fear, to avail himself or herself the protection of that
country - someone who crossed an international frontier and is entitled to protection as a refugee
under the UN protocol (1967);
Technological disaster: There are a variety of installations in the country where disasters such
as fire, explosions, toxic releases are possible. As a result of increasing industrialisation,
incidence of these kinds of disasters are expected to increase;
Volcano: A violent expulsion of the molten material, magma, and gases at high pressure from
inside the molten earth through the crust.
Early Warning System: A programme established to monitor and warn of the threat of
disasters ahead of time, to trigger timely, appropriate, preventive measures. Such a programme
involves monitoring at household, community, district, and national levels.
Emergency: A situation generated by the real or imminent occurrence of an event requiring
immediate attention by the affected community using its own resources.
Emergency public information: This involves developing and delivering timely and accurate
messages and instructions to the public throughout an emergency or disaster. It informs the
public on what is happening, how the government is responding and what the public should do
to maintain its own safety.
Evacuation: This is the movement of people to a safe area from an area believed to be at risk
when an emergency or disaster situation occurs. Sufficient warning of the threat is critical for
ensuring the safe and orderly movement of all people located in an area threatened by a hazard.
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Incident: An occurrence or event, either human-caused or by natural phenomena, that requires
action by emergency response personnel to prevent or minimise loss of life or damage to
property and/or natural resources.
Preparedness: Measures taken to enhance the abilities of individuals, communities, and
businesses to respond to a disaster. Disaster exercises, disaster-preparedness training, and
public education are examples of preparedness activities.
Lead Agency: The central government department or agency assigned primary responsibility to
manage and co-ordinate a specific emergency or preparedness function under the central
government response plan for national response to a major disaster.
Mass Care: All actions taken to protect evacuees and other displaced victims from the effects of
an emergency or disaster. It includes the provision of temporary shelter, food, medical care,
clothing and other essential life-support needs to those displaced because of a disaster or threat.
Mitigation: Measures taken to reduce the loss of life, livelihood and property by disaster, either
by reducing vulnerability or by modifying the hazard, where possible.
Prevention: Measures aimed at stopping a disaster from occurring and/or preventing such
occurrence having harmful effects on communities (or groups of individuals) such as
vaccination programmes by the health sector.
Response: All activities taken during or right after a hazard that address the immediate and
short-term effects of an emergency or disaster. Response includes immediate actions to save
lives, protect property, and to meet basic human needs.
Recovery: Those activities necessary to provide a rapid return to normalcy both for the affected
community and for those involved with the response.
Search and Rescue: This includes locating, extricating and providing first aid to victims
trapped in collapsed buildings or other structures. It also involves providing immediate medical
treatment to the seriously injured on site and transportation to medical facilities.
Support Agency: Any central government department or agency designated to assist a specific
lead agency with available resources, capabilities, or expertise in support of the national
response operations under the co-ordination of the lead agency.
Vulnerable Groups: Categories of disaster affected persons, or displaced persons, with special
needs, invariably defined to include: unaccompanied minors, the elderly, the mentally and
physically disabled, victims of physical abuse or violence and pregnant, lactating or single
women.
8
THE UNITED REPUBLIC OF TANZANIA: BASIC FACTS
Location
Tanzania is in East Africa. Other East African countries are Kenya and Uganda. Tanzania lies
between longitudes 290 and 410 east and latitudes 10 and 120 south. On the north it is bordered
by Kenya and Uganda, on the west by Rwanda, Burundi and DRC. It shares a border with
Zambia, Malawi and Mozambique on the south and is bordered by Indian Ocean on the east.
Map of Tanzania:Location
Size and topography
The country lies on an area of 945,000 sq.km of which 884,000 sq km is land mass and 61,000
sq. km is (lakes, rivers and seashore). The land attitudes range from 0-1500 metres above sea
level and has three physiographic regions namely the Islands and the coastal plains to the east,
the inland saucer-shaped plateau, and the highlands. In the north and northeast the high plateau
leads to distinct volcanic mountains among which are mountain Meru and Kilimanjaro. About
half of the land is savannah with bush land and semi arid account for the rest. The Great Rift
Valley runs from north east of Africa through central Tanzania forming two massive scarps of
east and west rift valley arms, commonly affected by earthquakes.
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Climate:
Tanzania has a tropical type of climate. There are two rainfall regimes namely: unimodal between December and April and the other is by bimodal - October to December and March and
May. The formal is experienced in southern, southwest, central and western part of the country,
and the later is found to the north and northern coast.
The coastal plains and the islands of Zanzibar experience hot, tropical climate with temperatures
reaching 32 degrees centigrade during the hottest months of late January, February and early
March, but as low as 18 degrees centigrade in the months of June, July and August. The
southern and northern highlands are characterized by cool climate with temperatures ranging
from 5C to 26C. Rainfall is heavy in the highlands and in the coastal belt. In the central part
of the country rainfall is sparsely distributed and sometimes the areas are faced with drought.
Population:
Tanzania has an estimated population of 33,776,988, of whom 16,384,340 are males and
17,392,647 females. (Source: National Bureau of Statistics, projections of 2001 based on 1988
National Census). According to the 1988 Census, 29.8% reside in Dar es Salaam, and over 60%
of the total population reside in urban regions of Dar es Salaam, Coast, Morogoro, Mwanza,
Mbeya,
Arusha
and
Dodoma.
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CHAPTER ONE
BACKGROUND
1.0
INTRODUCTION
There are several truths about disasters. First disasters can strike suddenly, unexpectedly and
anywhere. Secondly, many agencies have a part in dealing with the disaster and its aftermath,
and the effectiveness of the total response will depend on how well the emergency services,
local authorities and central government have harmonised their preparations and exercised their
arrangements and emergency procedures. Thirdly, it can also be recognised that no single
organisational arrangement will be appropriate to each and every disaster, nor will a single
organisational planning blueprint meet every need. Fourthly, disasters have a variety of effects
on society and the environment. They demand networking through a combined and coordinated response, linking the expertise and resources of the emergency services, the local
authorities, supplemented as appropriate by non-governmental and other organisations. There is
no single agency within the country, which has all the skills, and resources, which may be
needed.
The essence of good preparedness and management for disasters is competent planning. This
involves recognising that disasters are possible, assessing the consequences of such disasters,
and deciding on the preparedness and emergency procedures, both on site and off site, that
would need to be implemented in anticipation and in the event of a disaster. While the causes of
disaster may be sudden and unpredictable, certain incidents and kinds of human activity carry
known risks and are subject to legal requirements for planning the response to the corresponding
disaster incidents. For this reason it is possible to make detailed plans and guidelines in advance
for the appropriate action to be taken. The existence of such plans and guidelines reduce the
likelihood of errors resulting from decisions being taken under crisis conditions and promote
safety.
As a result of the above the key to effective response to the problem in hand is to apply sound
multidisciplinary, multi-sectoral principles, founded on experience. The prerequisite for this is
that all who are involved with the response to any disaster should be actively and regularly
associated with planning that response. This requires guidance in the form of National
Operational Guidelines (NOGs).
This guidance has been produced in order to provide a framework within which the more
detailed plans of the emergency services, local authorities and other organisations are normally
prepared. It is not intended to be prescriptive but it does incorporate the best practices and the
lessons learned, during the planning for, response to and recovery from disasters during recent
years. The guidance does not replace existing guidance for the individual emergency services
and other agencies. It sets the minimum standard of performance. Failure to respond to this
guidance can fail those who are caught up in the disaster incident.
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1.1
The Disaster Problem to be Addressed
Tanzania has been affected by very many disasters. It is highly vulnerable because arrangements
for coping with disasters have been inadequate. Thus, the impact on the people and the economy
has been great. The following disasters are common in Tanzania (See Figure 1):
Drought leading to famine: History shows that drought occurs in Tanzania every four years.
Within a 10-year period from 1991-2001, drought occurred 8 times, affecting 3,629,239 people.
The most frequently hit areas are Central Regions of Dodoma, Singida and Tabora. Some parts
of Pwani, Shinyanga, Mwanza and Mara are also regular victims of droughts. These are low
rainfall areas, which receive between 200 – 600 mm of rainfall annually.
Epidemics have regularly struck the country. The following have been common: cholera,
bubonic plague, meningitis and HIV/AIDS. Between 1991 and 2001, epidemic outbreaks
occurred eight times, killing 375 and affecting 1265 people. HIV/AIDS pandemic has devastated
the country since 1983. Precise information on those infected, by HIV/AIDS and have died is
not readily available. But it is estimated that over 1,000,000 people have been infected with
HIV, while a total 600,000 have developed AIDS, the majority of whom have already died,
leaving behind an estimated 130,000 orphans.
Vermin, Pest infestation and Livestock diseases records indicate six occurrences between
1991-2001. Commonly reported pests are armyworms, cassava mealy bugs, quelea quelea,
rodents and red locust swarms. Regions prone to invasion by red locusts and rodents are Tabora,
Rukwa and Lindi respectively while Ruvuma (Mbinga District), Mwanza (Ukerewe Distrcit)
Iringa (Ludewa District) and Musoma Rural in Mara Region have been victims of the cassava
mealy bugs. Tanzania is also known to have suffered rinderpest and other livestock diseases,
which claim huge number of animals.
Transport accidents Road, marine, aviation and railway accidents have claimed large numbers
of lives, caused grave injuries and destruction of property in the past two decades. Nine major
incidents have occurred between 1991-2001 claiming approximately 1579 lives, and injuring
1479 persons. A catastrophic accident occurred in 1996 involving MV Bukoba, the ship that
capsized in lake Victoria killing over 900 people, leaving several injured with substantial loss of
property. Apart from MV Bukoba, several marine accidents involving ships and boats have
been occurring in our waters although their effects are not recorded. Major road accidents have
been recorded in Bukoba, Pwani, Morogoro, Dodoma and Tanga regions. There is increasing
concern over the occasional passengers and cargo train derailments especially the central line.
The number of accidents involving air transport especially charter planes have been on increase
too. About 43 aircraft accidents were reported in Tanzania over the last ten years, 1990 – 1999.
In 1999 alone, there were 19 accidents, one of them being fatal. This involved a small plane,
Cessna 404, which crashed on Mount Meru in bad weather, killing 12 persons. This was the
worst incident in the country since 1955 when a DC 3 crashed on Mount Kilimanjaro in bad
weather and killed all 20 persons on board.1 Most of the aviation accidents occurred in the
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northern belt, notably Arusha area and the East Coast. This is probably because these regions
carry most the aviation activity in the country.
Conflict: The country has experienced various internal conflicts due to land use or tribal
differences. Some of these conflicts cost lives of people and destruction of properties, for
example in Arusha, Morogoro, Mbeya and Mara.
Civil wars in Rwanda, Burundi, Congo, Uganda and other southern African countries have
caused huge influxes of refugees into Tanzania. The largest refugee influx was that of 1994
during the Rwanda genocide. These refugees have caused substantial environmental
degradation, overstretching of social amenities in Kigoma, Kagera, Tabora, Rukwa, Tanga,
Ruvuma, Lindi and Mtwara Regions. Information shows about one hundred people died and
more than 2 million have been affected by refugee activities.
Floods The country is vulnerable to floods because many people reside in vast areas of flat and
low lying plains and along rivers, coastal and lake regions. Poor town planning and building
along waterways and drainage exacerbates the risk of floods. Some parts of Dar es salaam and
Mwanza experience flooding almost every rain season
Fires Twenty one major incidents of urban and bush fires were reported between 1972 –1982,
which have affected about 1489 people, killed huge numbers of livestock, destroyed buildings,
and hundred of thousands of hectares of forests. Prior to that, urban fires in Arusha, Dar es
Salaam, Lindi, Mtwara and Tanga destroyed several industrial enterprises and government
buildings including the Bank of Tanzania (1984 and 1998), Office of the Ministry of Home
Affairs, NASACO Building, the Central Medical Stores (in 1984), Temeke District Hospital and
Ministry of Lands and Human Settlements. Bush fires not only destroyed flora and fauna but
also distorted the vision of drivers along neighbouring highways. For example, Morogoro and
Iringa road accidents, claimed over 117 people and scores of others injured.
Chemical fires are no exception. Of late, there have been incidents of fuel tankers being gutted
by fire, killing substantial number of people. The cases in point are the burning of Tipper, and
fuel truck accidents occurred in Mbeya (2000) and Dar es Salaam (Mbezi 1990's) regions.
Earthquakes: Because the country is transversed by two rift valleys, Tanzania is also
vulnerable to earthquakes. Two incidents are recorded in which 11 lives were lost and 6500
persons affected. Areas prone to earthquakes include Mbeya, Kigoma, Rukwa, Arusha,
Kilimanjaro, Dodoma, Singida and Iringa regions.
Landslides are common, especially in loose hilly lands and following heavy rainfall. Between
1991 – 2001, four major incidents were reported in which 12 people died, 20 sustained injuries
with destruction of cropland and accelerated environmental degradation. Areas commonly
affected by landslides are Kigoma, Same, Rungwe, Lushoto and Sumbawanga.
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Figure No: 1 Frequency of Disaster Occurrence in Tanzania.
Frequency of Disaster Occurence in Tanzania
(1991 to 2001)
Others
Explosions
Refugees
Pests
Types of hazards
Landslides
Floods
Fire
Epidemics
Earthquake
Drought/famine
Cyclone/strong winds
Conflicts/IDPs
Major accidents
0
5
10
15
20
25
30
35
Percentage
Vulnerability Assessment Survey: July 2001- PMO
The above list of hazards should not be considered as exhaustive and may be revised.
1.2
Legal Authority and Responsibility
The National Operational Guidelines derive their existence from the Disaster Management Act
No 9 (1990), which also spells out the agencies responsible for making and implementing it.
The Act in turn derives its powers from the Constitution of the United Republic of Tanzania,
(1997). The Constitution empowers the President to proclaim a state of emergency if there is
imminent occurrence of danger disaster, which threatens the communities or part thereof in the
United Republic of Tanzania.
Correspondingly, at the regional level, the representative of the head of the state is the
appropriate authority to declare a regional disaster situation, and so to the district level.
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1.3
Other legal instruments
There are a variety of laws that empower different agencies of government to take discrete
action on disasters. These include:
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Inland water transport Ordinance Cap 172
Road traffic Act, of 1973
Civil aviation Act, of 1977
Aerodromes (licensing and control) Act of 1974
Aerodrome licensing regulations, 1983
Executive (The Tanzania airport Authority)(Establishment) order 1999
Tanzania Harbours Authority Act, of 1977
Tanzania Harbours Authority regulations 1991(subject to Merchant shipping Act of
1967)
Tanzania Railways Corporation Act, 1977
Territorial Sea and Exclusive Economic Zone Act, of 1989
Allocation of Business to Departments and Assignments of Responsibilities to Minister’s
Government Notice Number 720 of 1995.
Infectious Diseases Ordinance Cap. 96
Tsetse Fly Ordinance Cap 100
Public Health (Sewerage and Drainage) Ordinance cap 336
Plant protection Act, 1997
Factories Ordinance Cap 297
Workmen’s Compensation Ordinance, cap 263
Mining Act 1978
Food Security Act 1991
Food (Control of Quality) Act of 1978
Merchant Shipping Act 1967
Employment Ordinance Cap 366
Wildlife Act……….
Fire and Rescue Act. 1985
Grass Fire (Control) Ordinance Cap. 135
Protection from Radiation Act. 1983
Petroleum (Exploration and Production) Act. 1980
National Environmental Management Control Act. 1983
Marine Parks and Reserves Act, 1997
Town and Country Planning Ordinance, Cap 378
Land Act 1999
Local Government (Urban Authorities) Act, 1982
Local Government (District Authorities) Act, 1982
Local Government (District Authorities) (Miscellaneous Amendments) Act. 1999
Forest Act…….
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CHAPTER TWO
INSTITUTIONAL FRAMEWORK FOR DISASTER MANAGEMENT
2.0
INTRODUCTION
Disaster management requires an integrated multi-sectoral approach, which provides for a
comprehensive and active participation and interaction of all key players. As a result, structures
need to be established at each administrative level and across sectors. Emphasis is on using
existing institutions and organizations, and all existing skills and expertise wherever possible.
The focus is on coordination and facilitation, bringing together the required elements and
creating an appropriate operational environment. Central to the effectiveness of this is the
importance of the sectors, regions and districts. They have a pivotal role in providing a link
between the national level competence and the local level needs. It is at these levels that the
main emphasis for operational guidelines should be.
2.1
TANDREC
The established national disaster management organisation is the Tanzania Disaster Relief
Coordination Committee (TANDREC). The secretariat is the Disaster Management Department
(DMD). - outlined at Annex A. Explanatory notes describe the structure, the chain of control
and reporting, and the main working relationships.
This is a government institution, forming part of the Prime Minister's Office. The TANDREC
structure is Annex B. This body established by the Act of parliament reports to the Prime
Minister and also to the Minister responsible for disaster management on matters that require
Cabinet and or Parliamentary action. The TANDREC is the body that has been assigned
leadership and coordinating responsibilities for the nation’s disaster management system. Its job
is to lead the country in developing and maintaining a national disaster preparedness and
management system that helps people to protect themselves, their families, , business and
environment from all disasters.
In order to do its job, TANDREC and the DMD are responsible for developing, exercising, and
maintaining a plan and guidelines and implementing response at the national level.
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2.2
The Disaster Management Department
This is the Central Government agency specifically created as a secretariat to the TANDREC to
co-ordinate and supervise disaster management activities in the country. The functions of the
Department are set up in the Disaster Management Act No 9 (1990) Paraphrased in an action
form for the purpose of guidelines these functions are:
During the period of non-emergency:
i.
Provide early warning of an approaching disaster and predictions of its effects on the
country, its population and people’s livelihood;
ii.
Maintain a data collection and dissemination system and strategic reserves of essential
commodities and equipment with which to mount initial, immediate disaster relief
measures until further national and international assistance is forthcoming;
iii.
Formulate disaster mitigation, preparedness and response objectives, strategies,
guidelines and action plans to meet all foreseeable requirements, having consulted with
all lead agencies;
iv.
Review the National Disaster Management Plan and the Disaster Management
Guidelines after 5 years, unless a drastic events requires it early.
v.
Hold in readiness a series of National Disaster Relief Plans for implementation when the
particular characteristics, circumstances and requirements of crisis are known;
vi.
Develop and sustain viable, effective structures and capacities within regions, districts
and at central level, in order to respond should a disaster strike the country or a part of
the country;
vii.
Create and maintain a national cadre of trained and qualified personnel dedicated to, or
closely and directly involved with disaster management;
viii.
Arrange in-house and other training for public officers and members of the armed forces,
and employees of inter-governmental, non governmental and community based
organizations who are permanently employed on, or who are directly involved with
disaster management;
ix.
Promote general education, training, research and information management on disaster,
emergency plans and relief measures in national institutions as part of their public
administration, development, management, curricular, etc.;
x.
Run public awareness campaigns throughout the country;
xi.
Conduct active public relations and media briefing programmes;
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xii.
Review regularly and improve as necessary the Department’s organisation, staffing, and
budgetary arrangements, methods of functioning and appraisal procedures; and
xiii.
Ensure that regions, districts and primary agencies have prepared disaster management
plans of action.
During an emergency:
i.
Assume a coordination role for disaster response upon the government’s declaration of a
state of disaster-induced emergency until the national crisis ends;
ii.
Set up the provision of early warning predictions and other information required, and
consult widely and prepare an appeal for donor assistance should this be needed by the
likely nature and effects of the threatening disaster;
iii.
Implement the appropriate national disaster relief plan to meet current emergency
requirements, assisting to mobilize the strategic reserves, other internal resources and
external assistance;
iv.
Assist with the establishment of a national disaster relief budget to meet the requirements
of the current emergency, to manage the budget, and to allocate funds for emergency
disaster relief program;
v.
Coordinate the implementation of a national reconstruction and rehabilitation plan during
the current emergency, thus ensuring the country’s full post-disaster recovery, and to
assist with the funded plan’s integration within government’s mainstream national
development plan; and
vi.
Review and evaluate the response to the emergency, recording lessons learnt,
conclusions drawn and recommendations made in the national post-disaster review
report.
2.3
The Technical committees (TC)
The PMO may form as many technical committees as it considers necessary to give advice on
technical matters related to disaster management on terms and conditions specified by the PMO.
These technical committees will have a flexible membership to reflect the need for changing
technical inputs but the membership will be largely technical officers from the sectoral
ministries, specific government departments, together with relevant expertise from UN agencies,
non governmental organizations, the private sector, etc.
In addition to giving technical advice in relation to the implementation of particular elements of
the programme, they may be called upon to execute certain duties as may be delegated by the
18
PMO. Also, they will assist in the development of disaster management plans, provide inputs in
training and awareness raising and assist in the review of programmes.
The functions of the technical committees will be to -
2.4
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Keep under review sectoral early warning reports;

Propose for the DMD approval and, when approved monitor the implementation of
sectoral mitigation, preparedness, response/relief and recovery measures;

Recommend sectoral budgetary, information and training requirements to the DMD

Give regular technical advise and sectoral progress reports to the DMD, and brief the
media daily during a disaster including emergency and recovery phase.
Linkages with line Ministries
While the DMD will be charged with monitoring, planning and coordination of disaster
management, implementation will be the responsibility of the relevant line Ministries. Thus, the
development of strong links between these Ministries and the DMD is critical if effective
coordination is to be achieved.
A focal point offices will be created in line Ministries ministry this will be responsible for
disaster management activities concerned with disaster management activities.
The key ministries will participate in the disaster management committee in the fulfilment of the
multisectoral and participatory approach of disaster management. The NDMC is a committee to
be established by law will have the following function:
2.5
Linkages at regional and district levels
The development of strong links between communities and the DMD is crucial for effective
implementation of the guidelines. In this context, the DMD's strategy vis-à-vis the regions and
districts will be to enlist the support and participation of local people. In order to achieve this,
The DMD will:
Build Regional and local government disaster management capacity to enable them sustain ably
manage disasters; and Assist the regional and district to develop their own disaster management
action plans and byelaws.
The regions and districts themselves will have ultimate responsibility. They will:
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Ensure that disaster management concerns are integrated at the district and local level
planning processes;
19
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Collect and disseminate disaster management information;

Take actions for disaster induced emergencies;

Ensure that the local people, non governmental organizations and the private sector
participate in disaster management planning, decision making and implementation of
disaster management activities;

Mobilise people and resources to solve disaster problems; and

Ensure that national disaster preparedness and management policies are implemented at the
local level.
In order to ensure effective management at the regional, district and grassroots levels, the DMD
will ensure that the regions and districts have the capacity to identify, analyse and manage
disaster problems. The DMD will provide technical expertise where required and will ensure
that data is collected, analysed and disseminated. The DMD will also ensure that this
information will be used in policy formulation and review.
The regions and districts on the other hand will follow these principles:

Accord priority to capacity building in disaster management;

Ensure integrated and multi-sectoral planning for disaster management at the district and
lower local government levels;

Ensure collection and dissemination of disaster management information among the
district officers;

Ensure adequate information and technical backstop from the line ministries to the local
levels;

Ensure collection and dissemination of disaster management information from the field
to the line ministries;

Facilitate rapid actions on disaster induced emergencies;

Facilitate the work of the District Disaster Management Committees and the office of the
District Commissioner;

Enable local people to freely participate in disaster management decision making and
planning process;

Enable and promote NGOs and the private sector to be active in the planning and
implementation of disaster management programmes and projects; and
20

Mobilise people and resources to tackle disaster problems.
In this context, the DMD's functional linkages with the regions and districts will be established
through the creation of Regional Disaster Management Committees (RDMC), District Disaster
Management Committees (DDMC) and Ward and Village Disaster Management Committees
(WDMC, VDMC) and the strengthening of the Office of the Regional and District
Commissioners. The main links between the DMD and the regions and districts will be through
assistance with policy and legislative issues. DMD's assistance to the regions and districts in
disaster management planning and training will be primarily through the Regional and District
Disaster Management Committees. Linkages to lower levels of government will be assured by
the creation of Ward Disaster Management Committees at the ward level.
2.6
Role of the Regional and District Disaster Management Committee
These roles are to:













2.7
Act as the executive focus for multi-sectoral disaster management planning and action,
including funding in areas of their jurisdiction;
Co-ordinate and monitor multi-sectoral disaster relief and later post-disaster recovery
measures in the event of a disaster-induced emergency;
Receive sectoral and district progress reports;
Agree on the content of situation reports for the DMD and other recipients;
Review, agree and evaluate disaster management training;
Recommend the annual disaster management training programme to the DMD;
Present expenditure estimates and budgetary changes to the relevant executive;
Keep under review sectoral early warning reports relevant to its area of influence;
Propose for the full council approval and, when approved, co-ordinate and monitor the
implementation of sectoral mitigation, preparedness, response/relief and recovery plans;
Appoint District Disaster Management Task Force as and when the need arises; and
Assess particular hazards facing its area of influence;
Ensure that Disaster Preparedness and Management Plans have been prepared by each
employer whose activities are likely to lead to disasters; and
Carry out any other functions incidental to the above;
Regional and District Coordination Unit
In keeping with the government's decentralization policy, many of the disaster management
activities by the DMD will operate at the regional, district and lower local government levels.
In order to assist the regions and districts to manage disasters, each division within the DMD
will undertake a variety of technical and capacity building activities at the regional/district level.
The effective development and implementation of these assistance activities require careful
planning, coordination and monitoring. In this context, the Regional Coordination Unit (RCU)
and District Coordination Unit (DCU) - under the Director and managed by the District Support
21
Coordinator - will be responsible for linkages between the DMD and the districts. The members
of the District Coordination Unit will be drawn from members of existing staff. The DCU will
meet on a regular basis to ensure coordination of the various district support activities and
programs.
Specifically the RCU or the DCU will:
2.8

Monitor the progress of each district in developing and implementing district plans;

Inform the DMD on regional or district priority needs and requests for assistance;

Develop, in association with the DMD's technical committees, a program for
assistance and support activities to regions, districts and lower local governments;

Integrate and coordinate the DMD's work plans and schedules for field-level
activities; and

Assure appropriate and timely responses to requests for assistance from regions and
districts.
Sectoral Disaster Management Committees
The NDMC will initiate the establishment of as many sectoral disaster management committees
(herein referred to as SDMCs) as it deems necessary to plan and respond to disasters when they
occur. These will form the basis for linkage with the sectors.
The SDMCs will:

Mobilize and keep in preparedness adequate resources in anticipation of a disaster
occurrence;

Coordinate with other SDMCs in the performance of its duties;

Report to the NDMC its activities and resource requirements; and

Ensure proper, adequate and timely relief operations when a disaster strikes.
2.8.1 Activation of SDMCs
The National Operational Guidelines will be used to address particular requirements of a given
disaster or emergency situation. Selected SDMCs will be activated based on the nature and
scope of the event and the level of national resources required to support the districts and
community response efforts.
22
Once a response requirement is identified, the relevant parts of the guidelines will be activated.
At the national level, the DMD in consultation with the Technical Committees has the authority
to activate part or all the response structures at the DMD to address the specific situation.
At the Regional and District levels, the RDMC and DDMT may also activate part or all of the
response structures of their plans within the region or district for the purposes of providing
response support to an affected area in the district.
Based on the requirements of the situation, the NDMC, the RDMC and DDMT will notify
individual institutions regarding activation of some or all the SDMCs and other structures of the
Plan. Prior notification by the DMD will be given to the lead agencies.
2.8.2 Procedure for Notification
The following procedure of notification will apply:

The DMD may receive initial notification or warning of a disaster from multiple sources;

Upon confirmation of the extent of a disaster emergency which needs national attention,
the NDMC will be convened. The committee will notify the PM to recommend to the
President to declare a state of emergency.

The NDMC in turn will notify the SDMCs and lead agencies concerned;

At the regional and district levels, the Regional Commissioners and District
Commissioners will notify the RDMC and DDMC respectively;

The RDMC and DDMC will appoint the RDMT and DDMT for the purpose of that
particular disaster;

Upon notification by the DMD, each agency is responsible for conducting its own
internal national, regional and district notifications and will notify them accordingly;

Technical committees may be called upon at any time to give advice on the disaster
during the initial response period.
2.8.3 Deployment
When activated, the SDMCs and other operational elements will take actions to identify,
mobilize and deploy personnel and resources to support district and national response
operations, including the SDMC activities in the districts.
23
CHAPTER THREE
PURPOSE, GOALS, OBJECTIVES AND PRINCIPLES
3.0
INTRODUCTION
These guidelines represent the concerted effort by the central Government to provide assistance
in an expeditious manner to save life, property or any other human interest that may be affected
by the disaster event.
They have been produced in order to provide a framework within which the more detailed
sectoral operational plans that will be prepared by various line ministries, local authorities and
other organisations. The guidelines do not replace existing plans for the individual emergency
services and other agencies.
These guidelines supplement the National Disaster Management Policy, Legislation and Plan.
They contain responsibilities and procedures to assist with implementing and maintaining
certain of the Plan’s provisions, details that are better incorporated in a working manual rather
than in a National Plan.
The guidelines will be disseminated in Kiswahili and English in order to achieve wide
application.
3.1
Goals
To set up an institutional and legal framework, which will guide appropriate and timely actions
in disaster management so as to minimize their impacts
3.2
Specific Objectives
Irrespective of the particular responsibilities of organisations and agencies that may be involved
with the disaster response these organisations and agencies will all work to the following
common objectives, namely to:

Identify the stakeholders and to describe their responsibilities in the management of disasters

Secure and facilitate proper utilization of available resources

Ensure proper coordination among stakeholders

Ensure that disaster preparedness and response measures are in place and functioning
efficiently

Develop a document which will be used as a reference for disaster training
24

Promote public awareness on disaster management
3.3
Guiding Principles
The key to an effective disaster management is to apply sound principles, founded on
experience, to the problem in hand. The following is a list of the underlying key principles,
which guide the development and implementation of the guidelines:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
ix.
x.
xi.
xii.
xiii.
xiv.
xv.
xvi.
xvii.
xviii.
Competent planning;
Legitimate interests;
Participatory approach;
All concerns should be considered;
Adequate expertise;
Institutional capacity;
Multi-sectoral approach;
The spirit of co-operation;
Co-ordination;
The value of safety;
The right to know;
The right to be prepared;
The linkage with development;
Economic incentives;
Data collection and surveillance;
Vulnerable groups;
Public Awareness;
International co-operation.
3.4
Scope Of The Guidelines
The Guidelines apply to all stakeholders that have a responsibility or mandate to respond to
disasters. The guidelines cover the broad subjects of mitigation, preparedness, response and
recovery, which constitute “comprehensive disaster management”. Under this:

Mitigation: involves taking sustained actions to reduce or eliminate long-term risks to
people and property from hazards and their effects;

Preparedness: involves building the emergency management capacity to effectively
prepare for, mitigate against, respond to, and recover from any hazard by planning,
training, and exercising;
25

Response: involves conducting emergency operations to save life and property by
positioning emergency equipment and supplies, evacuating potential victims, providing
food, water, medical care, etc., and restoring critical public services;

Recovery: involves rebuilding communities so that individuals, businesses, and
governments can function on their own, return to normal life, and protect against future
hazards.
The guidelines pay attention to two scenarios: “during crisis” and “outside crisis”. Particular
attention is paid to emergency response at the time of crisis. This constitutes actions taken in
response to a disaster warning, or alert, to minimise, or to contain the eventual negative effects,
and those taken to save and preserve lives and provide basic services in the immediate aftermath
of a disaster impact, and for as long as an emergency situation prevails. Attention is also paid to
the preparations outside crisis in readiness for the crisis.
The tasks involved in disaster response therefore, which these guidelines are expected to cover,
include:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
ix.
x.
xi.
xii.
xiii.
xiv.
xv.
Provision of information and warning;
Evacuation of persons from a disaster site;
Provision and management of shelter to the displaced;
Provision of basic utensils and management of energy needs of the displaced;
Rescue of persons from a disaster site;
Medical services (including first-aid) and religious assistance;
Fire fighting;
Detection and marking of danger areas;
Decontamination of hazardous areas and similar protective measures;
Provision of emergency accommodation and supplies;
Emergency assistance in the restoration and maintenance of order in distressed areas;
Emergency repair of indispensable public utilities;
Emergency disposal of the dead;
Assistance in the preservation of objects essential for survival; and
Complementary activities necessary to carry out any of the tasks mentioned above,
including, but not limited to, planning and organisation.
In any instance where a disaster may result in a situation affecting the national security,
appropriate national security authorities and procedures will be utilised to address the situation
to the extent of the security threat.
3.5
Assumptions in Drafting the Guidelines
The following assumptions were made by the taskforce responsible for drafting the operational
guidelines:
i.
The disaster profile of Tanzania will generally remain as outlined.
26
ii.
iii.
iv.
v.
3.6
The nature of hazards and organizational capacity for response may change.
Once individuals and organizations become familiar with the national operational
guidelines, they will execute their assigned responsibilities.
Assistance and resources will be available when needed.
Some changes may have to be made during implementation.
Updating National Operational Guidelines
The National Operational Guidelines is a dynamic document. New problems emerge, situations
change, laws may be altered, government ministries may be merged. Therefore the operational
guidelines need to be reviewed and updated periodically in order to reflect these changes and to
ensure they remain valid and useful. A process for review and revision of the operational
guidelines needs to be established. A multi-disciplinary task force, led by DMD, needs to meet
annually to discuss significant issues and problems. The task force may subsequently take
remedial action, such as:




Revising planning assumptions and operational concepts.
Changing organizational tasks or responsibilities.
Modifying standard operating procedures of various organizations.
Conducting table-top exercises for revised national operational guidelines.
DMD and key government officials at the central level may review regional operational
guidelines. Regional officials may review district operational guidelines, with assistance from
DMD.
27
CHAPTER FOUR
KEY PLAYERS IN DISASTER RESPONSE
4.0
INTRODUCTION
Creating an integrated and multi-sectoral systems approach to planning, prevention/mitigation,
preparedness, response and recovery to disasters is fundamental to the achievement of the goals.
Consequently the guidelines are built on partnership of national, district, local communities,
individual, voluntary agencies, business and industry all with a focus on saving life and property
and reducing suffering. The underlying theme is “partnership for a safer Tanzania.”
4.1
Assignment of responsibilities
The guidelines provide standing mission assignments to the designated key players with leading
and supportive responsibilities to carry out sectoral disaster management committee (SDMC)
activities. The lead agencies are authorised, in co-ordination with the Department of Disaster
Management, Regions , districts, wards and villages to initiate and continue the actions to carry
out the SDMC missions.
4.2
Response Requirements
The SDMCs will work under the co-ordination of the DMD and the affected regions or districts
to identify specific response requirements. The lead agencies will provide assistance based on
priorities identified by the districts.
4.3
Response Co-ordination
Each SDMC will provide resources using its lead and support authorities and capabilities, in coordination with other SDMCs, to support its mission. SDMCs will allocate available resources
to each declared district based on priorities identified in conjunction with the district and in coordination with the DMD. If resources are not available within the declared region/district, the
SDMC will seek to provide them from the lead agencies or support agencies. If the resource is
unavailable, the requirement will be forwarded to the appropriate SDMC headquarters office for
further action.
Where a conflict of priorities develops as a result of more than one SDMC needing the same
resource, the affected SDMCs will work directly with the DMD to resolve the conflict. The
DMD also serves as a central source for information on the availability of resources, which do
not conflict, with response operations.
28
4.4
Lead Agencies
These are agencies that already have a clear mandate to render disaster related services. Such
agencies include the Tanzania Peoples Defence Force (TPDF), Fire and Rescue Services, the
Marines, and those giving health care and ambulance services,. In addition to these, are line
ministries or lead agencies such as the Ministry of Health, the Ministry of Defence, the Ministry
of Agriculture and Food Security, etc., and other agencies such as the utilities (electricity,
water), voluntary organisations and faith communities (churches, mosques). These are vital and
are required to maintain a state of readiness so that they can provide a rapid initial response and
alert local authorities and other services as soon as possible. All organisations, which need to
respond quickly to a disaster, are required to have internal operational plans and arrangements,
which can be activated at short notice. These arrangements should be clearly established and
promulgated to all who may be involved with response.
At the national level, the lead agencies are responsible for planning and co-ordinating with their
support agencies for the delivery of assistance covering prevention, preparedness, response
and recovery. Lead agencies are responsible for preparing and maintaining detailed sectoral or
agency plans to reflect the policies, procedures regarding assistance to be provided, and
associated responsibilities of the designated lead agencies.
Each lead agency at the national level will:

Designate an official to serve as a representative to the national disaster response committee;

Designate staff to serve as a point-of-contact on the Sectoral Disaster Management
Committee (SDMC) activities and to provide support for parliamentary relations, public
information and financial management activities, as required;

Designate an official at the headquarters level and in each area where the Disaster
Management Department is operating. This officer is to be responsible for the development
of the planning process and procedures for each support activity;

Provide direction and assistance to national and district institutions that have been assigned
tasks to assist with planning and response operations;

Formulate the sectoral or agency plan and liase with outside authorities, including other
emergency services;

Participate in the process of developing and exercising the Plan; and

Co-ordinate the development of supplementary material to the Plan, including national and
district plan annexes, appendices and other supplements describing specific policies and
procedures for response operations;

Assess of the size and nature of the events foreseen and the probability of their occurrence;
29

Activate emergency procedures when needed such as actions on-site or off-site.

At the regional and district level, lead agencies will work with their support agencies to
provide assistance to the district and to participate in other related activities, as may be
required.
4.5
Support Agencies
These are agencies that may be identified to support and assist the primary agencies in preparing
and executing their function.
Each support agency will:

Designate the headquarters-level office which will serve as the primary point of contact
for all actions relating to the Plan;

Participate in the process of exercising, reviewing, maintaining and implementing the
Plan; and

Designate representatives to serve on the national disaster response group and staff to the
primary agency teams field operation at the disaster field office and at other operational
locations.
4.6
Role of Key Players
Each service or agency working at the scene of a disaster has its own role and functions, as
mentioned below:
4.6.1 Ministry Responsible for Home Affairs
The Ministry of Home Affairs comprises of several key players for disaster management namely


Tanzania Police Force (Traffic,Marine,FFU)
Fire and Rescue Services,
4.6.1.1 Tanzania Police Force
30
The police are responsible for maintaining law and order during emergency and non-emergency
situations. They have trained personnel in all administrative areas. Police co-ordinate all the
activities of those responding at and around the scene, which must be preserved to provide
evidence for subsequent enquiries and possibly criminal proceedings, unless a disaster has been
caused by severe weather or other natural phenomena.





Where practicable the police establish cordons to facilitate the work of the other
emergency services in the saving of life, the protection of the public and the care of
survivors.
They oversee any criminal investigation.
The Road Traffic Act No.30 of 1973 allows Traffic Police to perform their duties. They
facilitate inquiries carried out by the responsible accident investigation bodies.
The police process casualty information and have responsibility for identifying and
arranging for the removal of the dead and to liase with the institutions that have legal
responsibility for investigating the cause and circumstances of deaths arising from a
disaster.
The Marine Police Force maintains law and order at the ports of inland lakes and the
Indian Ocean.
The Police Force is inadequately equipped with communication and transportation facilities
such as radio calls, vehicles, motorcycles and others to be able to deal effectively with disasters
4.6.1.2 Fire and Rescue Services
During emergency situations, the Fire and Rescue Services is responsible for the following
activities:
 The first concern of the Fire Services is to rescue people trapped in a fire, wreckage or
debris.
 They also try to prevent further escalation of the disaster by extinguishing or undertaking
protective measures to prevent fires.
 They control the release of chemicals or other contaminants in order to render the
incident site safe.
 They assist the ambulance service with casualty handling and the police with recovery of
bodies.
 The fire service is responsible for the health and safety of personnel of all agencies
working within the inner cordon, and will liase with the police about who should be
allowed access to ensure that they are properly equipped, adequately trained and briefed.
 However, in the event of any situation which is, or which is suspected to be, the result of
a terrorist incident, all activities within cordons are under the direct control of the police.
Providing additional training and fire-fighting and rescue equipment would render the Fire and
Rescue Services more effective in disaster management.
31
4.6.2 Ministry Responsible for Defence and National Service
The Ministry of Defence and National Service is construed as relating to the Civilian element at
the Ministry’s headquarters and Military formations, unit, detachments or other elements of
Defence Forces and National Services. The call to deal with disaster would involve the entire
Tanzania Peoples Defence Forces and the national service establishments in collaboration with
the National Disaster Management committee, so established to organize government and non
governmental Organizations, instruments of power and the public in all formations and units
areas of responsibilities.
When any party of the Defence forces or the National services is involved in disaster
management activities or services in support to civil power, they do not replace the civil power,
but assist in the maintenance of law and order, participate in technical committees and TPDF
would assist in the organization of reserve forces, equipment, coordinate the supply of inputs
and resources as would be provided.
As long as the Tanzania Peoples Defence Forces are organised in formations and units with
fixed areas of responsibility, as it may be practicable formations and units in affected areas be
tasked to assist civil power and authorities in the areas.
The Tanzania Peoples Defence Forces shall organise and control the mobilised regular and
volunteer reserves to deal with a disaster situation.
The Tanzania Peoples Defence Forces shall assist in the establishment of field emergency
centres including
Search and rescue operations:

The evacuation of people and their properties to safety
Delivery of relief materials;
Establishment of communication both mobile and fixed;
Assist in delivery of first aid to the injured;
Cooperate with the national and international groups in the distribution of humanitarian
assistance to the needy and disaster victims.
Mode of operation:
When an emergency occurs, and the NDMC is of the opinion that immediate assistance is
required and after TPDF acknowledgement, a firm follow-up network will be established
immediately, in accordance with the defence Forces Regulations and the National Disaster
Operation Guidelines and Procedures.
32
4.6.3 Ministry Responsible for Health
The responsibility of this ministry is to provide preparedness and response to health needs
related to emergencies and disasters. This involves identifying and meeting the health and
medical needs of victims.
The following tasks will be undertaken:
Assessment of health /medical needs;
Conduct health surveillance;
Provision of medical care and relevant personnel;
Provision of health/medical equipment and supplies;
Carrying out patient evacuation;
Provision of in-hospital care;
Provision of drugs, and patient safety;
Ensuring of health worker safety;
Identification of biological hazards;
Provision of mental health care;
Carry out safe blood transfusion for life-saving purposes;
Provision of public health information;
Supervise vector control activities;
Monitor supply of potable water and disposal of waste water and solid waste;
Victim identification and mortuary services.
4.6.3.1
Mode of Operation:
The Ministry in collaboration with the DMD will establish a multidisciplinary technical
committee on health and epidemics to coordinate the above tasks. The Ministry may from time
to time also set up special advisory groups made up of experts in any relevant matter of the
disaster.
Upon receiving a notice to respond following the occurrence of a significant disaster incident,
the Ministry of Health will:
Be responsible for activating and directing activities to fulfil the above named tasks as a lead
agency responsible for public health and medical response;
Liase and maintain co-ordination with the related sectoral agencies, national medical and public
health organisations and officials, district organisations through the Prime Minister’s Office;
All sectoral agencies participating in the named tasks will work together with the Ministry and
report their requirements, information and contribution to it;
33
Provide long distance radio communications between the national and district governments to
obtain current status information;
Analyse, evaluate, and verify medical and public health assistance required of it and develop and
update assessments of the said requirements, and keep adequate records of all transactions for
after action reports and other documentation of the disaster;
Develop and provide medical and public health situation reports to the Prime Minister’s Office
and disseminate appropriate information to the public.
4.6.3.2 Emergency Preparedness and Response Unit (EPRU)
In recognition of the public health importance and the implications of emergencies and disaster
to the well being of the society, the Government of Tanzania, through the MOH, established a
functional unit of emergency preparedness and response to address all health aspects of
emergencies and disaster in the country. The Emergency Preparedness and Response Unit
(EPRU) is directly under the Chief Medical Officer’s office and is headed by the Principal
Medical Officer.
4.6.3.3 Scope and Functions of EPRU


Develop and formulate health sector policy guidelines for strengthening, prevention,
preparedness and response to emergencies and disaster.

Develop national health sector plans for emergency and disaster preparedness and response.

Conduct health related hazards and vulnerability assessment.

Mapping disaster – prone areas in the country and conduct needs assessment for specific
emergency response.


Conduct situation analysis of human and material resources required for emergency medical
response throughout the country.

Coordinate training of health emergency and disaster response teams.


Coordinate participation of the health sector in the international/national/inter-sectoral
emergency response to disaster.

Collaborate with other departments in MOH in controlling major epidemics and other health
emergencies and disaster.

Liaise and collaborate with other government departments and Non Government
Organizations (NGOs) in all issues pertaining to preparedness and emergency medical
response to disaster.
34


Prepare and submit reports on health emergencies and disaster to appropriate authorities.
Serve as a data bank for health emergencies and disaster in the country.

Disseminate appropriate health information to the public on emergencies and disaster.

Ensure table top and field simulation exercises on emergency and disaster preparedness
response for the health workers are conducted.

Set up, coordinate and supervise regional emergency and disaster preparedness and response
health team activities.
4.6.3.4 Function of Health Facilities (Hospital, Health Centre, Dispensary)
Upon the direction of the EPRU at the Ministry of Health, health facilities with potential for
receiving casualties of emergencies and disasters will respond to requests from the Incident
Commander to accept casualties for medical treatment and to provide appropriately trained staff
to act as Medical Incident Officers and Mobile Medical Teams.
Specific tasks for health facilities include the following:
Develop facility’s contingency plan, based on available resources and capabilities;
Facilitate on-site sorting and care of victims of emergency and disaster (triage);
Provide basic health care to evacuees in temporary shelters;
Referral and transportation of victims needing higher level care;
Identify and provide mortuary services for the dead victims of an emergency or disaster, in
collaboration with the police;
VI.
Maintain up to date records of emergencies and disasters;
VII.
Provide medical care and psychological services
VIII.
Ensure availability and proper use of protective materials for health personnel and other
volunteers;
IX.
Liase with local district and regional authorities in drawing the emergency preparedness
plan.
X.
Conduct ongoing public awareness and education programs on emergency and disaster
management.
I.
II.
III.
IV.
V.
4.6.4 Ministry Responsible for Agriculture and Food Security
The purpose of this ministry is to strengthen the nation’s food self-reliance capacity and to
eliminate the root causes of famine. Consequently its function is to prevent famine and to
provide preparedness and response to the food needs related to a significant disaster. This
involves identifying and meeting the food and nutrition needs of victim communities.
35
The following tasks will be undertaken:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
ix.
x.
xi.
xii.
xiii.
Create awareness among the masses of drought and famine and their roles in the
prevention of famine;
Develop and execute a food security strategy for the country;
Ensure food availability in the country;
Increase food production in drought prone areas;
Promote and propagate drought resistant strains of crops;
Develop and supply drought-resistant high yielding seed varieties;
Develop strategic seed reserve schemes to cover all drought prone climatic zones;
Ensure proper management of available moisture in drought prone areas;
Educate and train people to harness and utilise run-off water;
Exploit ground water to increase food production;
Promote soil and moisture conservation;
Create irrigation schemes at all relevant levels;
Advise peasants on agronomic practices to sustain and improve productivity in moisture
stress situation when drought is anticipated;
4.6.4.1 Mode of Operation
The Ministry in collaboration with the DMD will establish a multidisciplinary technical
committee on disaster issue related to agriculture. The Ministry may from time to time also set
up special advisory groups made up of experts in any relevant matter of the disaster.
Upon receiving a notice to respond following the occurrence of signals of a significant disaster
incident, the Ministry will:
i.
Be responsible for activating and directing activities to fulfil the above named tasks as a
primary agency responsible for food production;
ii.
Liase and maintain co-ordination with the related sectoral agencies, national research
institutions, medical and public health organisations and officials, district organisations
and the Prime Minister’s Office on the implementation of sectoral mitigation,
preparedness, response/relief and recovery measures;
iii.
All sectoral agencies participating in the named tasks will work together with the
Ministry and report their requirements, information and contribution to it;
iv.
Provide long distance radio communications between the national and district
governments to obtain current status information;
v.
Analyse, evaluate, and verify food assistance required in famine disaster situation and
develop and update assessments of the said requirements, and keep adequate records of
all transactions for after action reports and other documentation of the disaster;
36
vi.
Develop and provide food supply prospects situation reports to the Prime Minister’s
Office and disseminate appropriate information to the public.
37
4.6.5 Ministry Responsible for Water and Livestock
The purpose of this ministry is to strengthen the nation’s animal husbandry capacity and to
eliminate the root causes of livestock diseases. Consequently its function is to prevent or contain
the spread of animals’ diseases and to provide preparedness and response to livestock significant
disaster.
Develop a livestock preservation strategy for drought prone areas;
Develop green fodder production programmes to preserve livestock during drought;
Provide cattle feed supplements;
Organise and manage migration of livestock to areas where they can be sustained during
drought;
Mount vigil and prophylactic measures such as vaccination against outbreak of livestock
epidemics in vulnerable areas at appropriate time;
Establishment of an effective early warning system focussing on weather transmitted
diseases, and performance of livestock production in the country;
.
4.6.5.1 Mode of Operation
The Ministry in collaboration with the DMD will establish a multidisciplinary technical
committee on disaster issues related to livestock. Ministry may from time to time also set up
special advisory groups made up of experts in any relevant matter of the disaster.
Upon receiving a notice to respond following the occurrence of signals of a significant disaster
incident, the Ministry will:
Be responsible for activating and directing activities to fulfil the above named tasks as a
primary agency responsible for food production;
Liase and maintain co-ordination with the related sectoral agencies, national research
institutions, medical and public health organisations and officials, district organisations and
the Prime Minister’s Office on the implementation of sectoral mitigation, preparedness,
response/relief and recovery measures;
All sectoral agencies participating in the named tasks will work together with the Ministry
and report their requirements, information and contribution to it;
Provide long distance radio communications between the national and district governments
to obtain current status information;
Analyse, evaluate, and verify drug assistance required in livestock disease disaster situation
and develop and update assessments of the said requirements, and keep adequate records of
all transactions for after action reports and other documentation of the disaster;
38
Develop and provide drug supply prospects situation reports to the Prime Minister’s Office
and disseminate appropriate information to the public.
4.6.6 Ministry Responsible for Regional Administration and Local Government
The following task will be undertaken:



Assist district councils in the preparation of disaster management plans
Monitor the implementation of district councils in respect to disaster management
Collaborate with DMD in resource mobilisation for mitigation, preparedness, response
and rehabilitation
4.6.8 Other Ministries (includes those responsible for Tourism, Trade, Industry and
Commercial Organisations)
Industrial or commercial organisations, including the utilities, may play a direct part in the
response to disaster if their personnel, operations or services have been involved. They may
provide support, for example by providing equipment, services or specialist knowledge.
Organisers of large outdoor and indoor events such as sporting competitions, folk festivals, pop
or classical concerts will also have a role in the response to a disaster in terms of their
organisational and out reach capacity.
4.6.9 Other National and International Agencies
These are government departments and agencies, which may have the mandates, resources,
capabilities or expertise that may be required to support response operations, but that have not
been formally designated under the guidelines. Those organisations may be requested to
participate in national planning and response operations and may be asked to designate staff to
serve as representatives to the disaster response group, and to provide support to response
operations in the field.
4.6.9.1 Tanzania Red Cross Society
The Tanzania Red Cross Society was established in 1962 by Act # 71 and accorded the
following mandate:
 In time of war, to furnish aid to the sick and wounded both of the armies and among nonbelligerents, and to prisoners of war and civilian sufferers from the effects of war;
 In time of peace or war, to carry on and assist in work for the improvement of health, the
prevention of disease and the mitigation of suffering throughout the world;
 To do all things necessary, advantageous or convenient to or in connection with the better
carrying out of the above.
39
TRCS is part of the huge network of the International Federation of Red Cross and Red Crescent
Societies. Central to the work of this network is reducing the vulnerability of households and
communities in disaster prone areas and improving their ability to cope with the effects of
disasters. The TRCS strives to achieve this at the branch, national and international levels.
Traditionally it has been assuming the lead role of coordinating the national response assistance
to the mass care response of the central and local governments.
TRCS, like other National Societies, has to ensure that all its disaster preparedness activities and
programs are carried out according to the Disaster Preparedness Policy adopted at the
International Federation of Red Cross and Red Crescent General Assembly in October 1999.
The following are stated in the policy:








Recognise the role of Red Cross/Red Crescent in disaster preparedness as complementary to
government and thus will not replace state responsibilities;
Advocate where necessary with government, donors, NGOs and the public the need for and
effectiveness in disaster preparedness. ;
Strengthen the organizational structures at international, national and local levels required
for effective disaster preparedness;
Improve coordination by promoting better cooperation and partnerships between all
concerned;
Identify those persons, communities and households most at risk to disaster;
Raise public awareness of disaster hazards;
Improve the ability of vulnerable communities to cope with disasters through communitybased disaster preparedness strategies;
Strive to provide the resources required to carry out appropriate and sustainable disaster
preparedness activities.
4.6.9.2 The National Environment Management Council (NEMC)
NEMC has primary responsibilities for the environmental protection and has the scope including
water, land and air in the country. NEMC has key responsibilities for environmental impact
assessment for operations that have harmful effects. These responsibilities cover direct, remedial
action to prevent and mitigate the effects of the incident, to provide specialist advice, to give
warnings to those likely to be affected, to monitor the effects of an incident and to investigate its
cause. NEMC also collects evidence for future enforcement or cost recovery.
4.6.10 Local Authorities
In the immediate aftermath of a disaster the principal concerns of local authorities are to:




Provide support for the emergency services,
Continue normal support and care for the local and wider community,
Use resources to mitigate the effects of the emergency; and
Co-ordinate the response by organisations other than the emergency services.
40
As time goes on, and the emphasis switches to recovery, the local authority will take a leading
role to facilitate the rehabilitation of the community and restoration of the environment. Even a
relatively small disaster may overwhelm the resources of the local authority in whose area it
occurs. Against this, possibility plans need to be made which will, in appropriate circumstances,
trigger arrangements for mutual aid from neighbouring district authorities, delivering cross
boundary assistance if required. Arrangements may range from simple agreements to offer
whatever assistance is available in the event of an incident, to more formal arrangements for the
shared use of resources, which could include vehicles, equipment and people (payment
arrangements may need to be included in any agreement). Emergency financial assistance may
be available for affected local authorities under arrangements made by the Central Government.
4.6.11 Community Resources
The following are essential community resources that should be part of the list of active
participants in any disaster:

Fire Brigade (where available);

The police (both local administration police and The Tanzania Police);

Emergency medical/paramedic services associated with local hospital or fire brigade;

Civil defence organs e.g. sungu sungu, reserve force etc;

Public health agencies;

Local environment management committee;

Public works and or transport departments;

Volunteer groups e.g. Tanzania Red Cross Society;

Local industry and local industrial associations;

Other local community resources e.g. public housing, schools, communications;
4.6.12 NGOs, Community Based Organisations ,Private Sectors, Religious Organization
and Volunteers
The voluntary sector in Tanzania situation can be large and diverse considering, that by cultural
expectation, all the public are expected to and usually will want to be part of the action to save
life. It is therefore necessary to plan this participation in advance to the extent that it does not
interfere with the skills desired in the event.
41
Setting up a voluntary forum, which is normally chaired by the local authority Emergency
Planning Officer, can help co-operation between the statutory services and local voluntary
organisations. In achieving this co-operation, it is necessary to take into account four kinds of
voluntary effort:
Established organisation such as the Tanzania Red Cross, the Salvation Army, the scouts and
girl guide, the church, groups;
Specialist skills offered by, for example, search and rescue organisations including the Tanzania
Mountaineering Guides;
Individuals, not necessarily in recognised voluntary organisations but who have special status
particular skills, such as interpreters or indigenous influential leader/elder within community.
Organisations which specialise in providing emotional support and counselling such as
Daughters of Charity and Babies Homes.
Bona fide volunteers can contribute to a wide range of activities, either as members of a
voluntary organisation or as individuals. However the following aspects should be noted:








Record of skills
Consistent Reliability
Understanding of roles
Chain of command
Responsibility and Professional standards
Regular and reliable contact
Individual offer of help
Demonstration of competence
42
CHAPTER FIVE
COMMAND, CONTROL AND CO-ORDINATION
5.0
Introduction
In order to achieve a combined and co-ordinated response to a major incident the capabilities of
the emergency services must be closely linked with those of local authorities and other agencies.
A national framework has been developed which ensures that all involved parties understand
their roles in the combined response and how the different levels of management arrangements
inter-relate.
This framework embodies the same principles irrespective of the cause or nature of the incident,
but remains flexible to individual circumstances.
This framework:
i.
ii.
iii.
iv.
Allows each agency to tailor its own response plans to interface with the plans of others.
Ensures all parties involved understand their role in the combined response.
Explains how the differing levels of management arrangements relate to each other.
Retains flexibility of option to suit local circumstances.
The management of the response can be divided into three levels - Operational, Tactical and
Strategic. The management of the response to the disaster will normally be undertaken at one or
more of three levels.

Operational Level
The level at which work on the incident site or sites is undertaken.

Tactical Level
The level for more serious incidents at which designated Tactical Commanders
determine priorities in allocating resources and at which planning and co-ordination of
all resources involved with the response is undertaken. Tactical Command is undertaken
from the Incident Control Point in the vicinity of the disaster site.

Strategic Level
The level of management, infrequently needed, which establishes the strategic
framework within which the Tactical Commanders will work. The strategic level of
management is normally located away from the disaster site.
The need for implementing one or more of these management levels will depend on the nature
of the incident. Most incidents will be handled at the Operational Level. Activities move to the
Tactical and finally the Strategic levels only when necessary.
43
These three levels of emergency management can be adapted for use by any organisation
associated with the response, and adoption of this methodology can aid communications and
avoid inter-agency confusion.
In it's planning, each agency will need to recognise the said three management levels
(Operational, Tactical and Strategic) and the functions to be undertaken. This will allow the
integration of management processes across agency boundaries. It is not intended that the
management levels necessarily predetermine the rank or seniority of the individual discharging
the functions. If any one agency activates its major incident plans then it may be necessary for
others to start to activate their own plans in order to facilitate liaison.
It is a characteristic of the command and control chain that it tends to be created from the bottom
upwards.
5.1
Operational level
At the start of any incident for which there has been no warning the Operational level will be
activated first, with the other levels coming into being with the escalation of the incident or a
greater awareness of the situation.

On arrival at the scene of an event, the emergency services will take appropriate immediate
measures and assess the extent of the problem, under the command of their respective
Incident Officers. They will concentrate on their specific tasks within their areas of
responsibility and act on delegated responsibility from their parent organisations until other
levels of command are established. All this takes place at the Operational level and is the
normal day-to-day arrangement for responding to any incident.

The command of the resources belonging to any agency and applied within a geographical
area, or used for specific purpose, will be retained by that agency. Each agency must liase
fully and continually with others employed within the same area to ensure an efficient and
combined effort. Where appropriate, the police will normally act as the co-ordinator of this
response at the scene.
These arrangements will usually be adequate for the effective resolution of most incidents.
However, for more serious incidents - requiring significantly greater resources - it may be
necessary to implement an additional level of management.
5.2
Tactical Level
A Tactical level of management is introduced in order to determine priority in allocating
resources, to plan and co-ordinate when a task will be undertaken, and to obtain other resources
as required.
Most, but not all, of the Tactical functions will be discharged at or close to the scene of the
incident. Some agencies, particularly local authorities, will prefer to operate from their
44
administrative offices but will normally send a liaison officer to the scene to liase with the
Incident Officer(s). Planning must also take into account that there may be a number of
individual scenes, or in fact no actual scene to attend, for example where the incident is
overseas.
When more than one agency is operating at the tactical level, there must be consultation between
the various agencies Incident Officers. The Tactical Commanders should not become involved
with the activities at the scene being discharged by Incident Officers, but concentrate on the
overall general management. In order to effect co-ordination, an inter-agency meeting should be
held at regular intervals attended by each Tactical Commander and normally chaired by the
police. Liaison officers from the local authority should attend and other agencies such as the
transport police or utilities may be invited to attend.
If it becomes apparent that resources, or expertise beyond the level of the Tactical Commander
is required, or should there be the need to co-ordinate more than one incident/scene (where
tactical command has been established), it may be necessary to implement a Strategic level of
management.
5.3
Strategic Level
The purpose of the strategic level of management is to establish a framework of policy within
which Tactical Commanders will work.
It gives support to the Tactical Commander(s) by the providing resources, and giving
consideration to the prioritisation of demands from any number of Incident Officers.
It determines plans for the return to a state of normality once the incident is brought under
control.
The requirement for strategic management may be confined to one particular agency. However,
certain incidents require a multi-agency response at the Strategic level in order to effect
resolution. In such incidents a Strategic Co-ordinating Group should be formed.
5.4
The Strategic Co-ordinating Group
It will normally be a police responsibility to establish and chair the Strategic Co-ordinating
Group. However, due to the nature of some major incidents other agencies may wish to initiate
its formation and chair the group, e.g. for a rabies threat. Chairmanship may at some stage be
passed to another agency (e.g. from the police to the local authority to manage the recovery
phase).
The Strategic Co-ordinating Group is normally made up from a nominated senior member from
each statutory agency involved with the response. Each person must be able to make executive
45
decisions in respect of resources within their agency and have the authority to seek the aid of
other agencies in support of their role.
Functions of the Strategic Coordinating Group will include the following:

To provide the focus for communication to and from the Lead Government Department.
Depending on the nature of the incident, technical advisors or liaison officers may attend
meetings, such as for nuclear or terrorist incidents.

To take account of the features of the particular incident, together with the professional
expertise of each of the agencies and their statutory duties.

On occasions it may be necessary to assign the control of specific functions to one or more
of the agencies. In extreme circumstances, for example a terrorist incident, it may be
necessary for the police to take executive action in respect of the total incident.

To be aware of its wider role, which may encompass central government interests, handling
requests for advice and assistance from individual services and agencies, and media
demands. In the event of widespread disaster the SCG will need to liase with similar
neighbouring SCGs and, during the recovery phase, with the appropriate Government Office
of the Region.

To develop a strategy for dealing with the media, designate a media briefing centre and
appoint a media-briefing centre manager (normally a police press officer).
The Strategic Co-ordinating Group should be based at an appropriate pre-planned location, away
from the commotion of the scene. It is usual to locate the Strategic Co-ordination Group at
Police Headquarters, but this may move to the local authority during the recovery phase when
the emergency services may have little or no involvement.
46
CHAPTER SIX
CORE FUNCTIONS IN DISASTER RESPONSE
6.0
INTRODUCTION
As mentioned above, the prerequisite for efficient response is that every actor in disaster
response operations should plan in advance. Competent planning at national level shall address
the following core functions in disaster response:









6.1
Communications
Early Warning
Evacuation
Search and Rescue
Mass Care
Health and Medical
Emergency Public Information and Media Relations
Resource Management
Efficient security and network at disaster scene
Assumptions on Disaster Condition
A major disaster or civil emergency or terrorist activity may cause conditions that vary widely in
scope, urgency and degree of devastation. Substantial numbers of persons could be in lifethreatening situations requiring prompt rescue and medical care. Because the mortality rate will
dramatically increase beyond 72 hours, search and rescue must begin immediately. Rescue
personnel will encounter extensive damage to buildings, roadways, public works,
communications and utilities. In an earthquake disaster, after shocks, secondary events, and
other effects such as fires, landslides, flooding, and hazardous material releases will compound
problems and may threaten both survivors and rescue personnel.
Access is restricted until the area is considered safe for entry or use by the public. Only those
directly involved with the emergency response operation are allowed to enter the collapsed
structure. Control of access is put in place by the police whenever practical and intended to
allow rescue services to continue unhindered as well as to preserve evidence at what may be the
scene of a crime.
The magnitude of damage to structures and lifelines will rapidly overwhelm the capacity of the
districts and lower local governments to assess the disaster and respond effectively to basic and
emergency human needs. Damage to roads, and other communication systems will hamper
emergency response efforts. The movement of emergency supplies will be seriously impeded.
Many professional emergency workers an others who normally would help during a disaster will
be dead, injured, involved with family problems resulting from the disaster, or are unable to
47
reach their assigned posts. The district, county and village facilities will be severely damaged or
inaccessible.
Hundreds of thousands of disaster victims will be forced from their homes, depending on such
factors as time of occurrence, area demographics, building construction, and existing weather
conditions.
There will be large numbers of dead and injured. Families may be separated immediately
following a sudden impact disaster, such as children in school and parents at work. Foreign
visitors and tourists may be involved.
6.2
Communication
Planning can only be as good as the information available for it. It is therefore necessary to
ensure that accurate and timely information is available to the Prime Minister's Office. The tasks
involved in this are to collect, process and disseminate information about a potential or actual
disaster or emergency with a view to facilitate the smooth coordination of activities by the Prime
Minister's Office.
6.2.1 Communication Facilities
The engine of an effective response is good communications. Every sectoral or agency plan
must set out arrangements to supplement public and general communication facilities.
Tanzania Telecommunications Limited (TTCL) is the major provider of communication services
ranging from simple telephone circuits and facsimiles to audio and video conferencing, private
circuits (kilostream and megastream) and small switches.
It can respond reasonably quickly to meet the needs of the emergency services and local
authorities so long as needs have been discussed before hand. It can for example designate
emergency lines and link them to the appropriate agencies. It however has gaps in its services
that impede communications during a disaster emergency.
Similar arrangements need to be made with other licensed mobile phones service providers such
as Mobitel, Celtel and Vodacom.
The central Government will establish a national emergency communications network (NECN)
as a robust communications network, which links directly a number of central government
departments, police, fire and local authorities. Arrangements can be made to link this with other
authorities through the public telephone network. The NECN should supplement the public
telephone network but in an emergency the latter can quickly become overloaded and the NECN
facility will ensure that urgent contacts can continue to be made.
The assets below are of critical importance to providing telecommunications to the affected
area:
 Mobile or transportable telecommunications equipment;
48
6.3

Multi-channel radio systems;

Base station and hand held portables;

Mobile or transportable microwave systems;

Mobile or transportable switchboards and station equipment;

Trained installation and operations personnel available for deployment to the
field; and
Early Warning
This function comprises of timely forecasts and dissemination of information on potential
hazards to appropriate government officials and the population at risk. It includes notifying all
concerned of the appropriate action to be taken in order to prevent death, injury or damage to
property. For some hazards, early warning may be critical for saving life and property.
As regards early warning measures:

Co-ordinate the collection and analysis of monthly early warning data received form districts
supplemented by data available from the Tanzania Meteorological Agency, the Ministry of
Agriculture and Food Security and other agencies that collect data on potential hazards;

Carry out assessment in all disaster prone areas to determine if there is immediate need for
the emergency signal as well as estimate the capacity to cope;

Carry out independent assessments of the potential emergency situation throughout the
country, relief needs in terms of type, amount, geographical location, and numbers of
persons at risk and rank and prioritise such needs across the country;

Promote basic standardisation of early warning systems and procedures in the districts to
ensure comparability;

Carry out training of early warning staff, especially training of trainers at district level;

Disseminate early warning data such as rainfall estimates available to the nation from
satellite imagery.
6.4 Evacuation
This is the movement of people to a safe place from an area believed to be at risk when an
emergency or disaster situation occurs. Sufficient warning of the threat is critical for ensuring
the safe and orderly movement of all people located in an area threatened by hazards.
49
It begins with developing evacuation plans, including making provisions for precautionary
evacuation and the considering alternative routes for such activity. Facilities that can be of use
within the evacuation plan should be identified in terms of duration of availability and the
estimated number of evacuees and displaced. Facilities that are at risk due to their proximity to
the hazard should also be noted.
6.5 Search and Rescue
This function includes locating, extricating and providing first aid to victims trapped in
collapsed buildings or other structures. It may also involve providing immediate medical
treatment to the seriously injured and transporting them to medical facilities for further care:
National search and rescue assets will assist and augment district and local agencies with their
search and rescue responsibilities.
The Ministry for Home Affairs and the Ministry for Defence are responsible for planning,
coordinating and managing the national search and rescue response upon implementation of the
National Response Plan, hereafter referred to as the Plan.
The Ministry for Home Affairs under the direction of the NDMC will establish an affiliation of
nationally sponsored civilian Search and Rescue task forces.
The Committee will interface with the SDRC on Health and Medical Services. The point of
interface will be outside a damaged structure where the Committee's personnel place the victim
into the SDRC on Health casualty collection point or transportation conveyance. This hand off
location will be in proximity to the collapsed structure.
6.6
Mass Care
Mass care encompasses all actions taken to protect evacuees and other displaced victims from
the effects of an emergency or disaster. It includes the provision of temporary shelter, food,
medical care, clothing and other essential life-support needs to those displaced because of a
disaster or threat.
Initial response activities will focus on meeting urgent needs of disaster victims on mass care
basis. While the guidelines do not specifically address recovery assistance, such as temporary
housing, and loans and grants for individuals, initial recovery efforts may commence as
response activities are taking place. Likewise, the provision of the customary Red Cross disaster
services of emergency assistance and additional assistance will be considered based on the needs
of disaster victims, the disaster situation and available resources.
50
As recovery operations are introduced, close coordination will be required between those
government departments responsible for recovery assistance, including the Tanzania Red Cross
Society.
i.
The SDMC on Mass Care will be implemented upon the DMD’s request for national
response assistance following a disaster.
ii.
All appropriate government departments, voluntary organizations and private sector
resources will be used as available.
iii.
All services will be provided without regard to economic status or racial, religious,
political, ethnic, or other affiliation.
iv.
The guidelines will not supersede the Tanzania Red Cross’ response and relief activities.
The Tanzania Red Cross relief operations should conform to the Tanzania Red Cross
Policy on disaster management. The Tanzania Red Cross will maintain administrative
and financial control over its activities.
6.7 Health and Medical Care
This function comprises of all activities associated with the provision of health and medical
services including emergency medical services, hospital care, public health, mental health and
mortuary services. Other related activities include evacuation and transportation of the injured,
disposal of the dead and disease control activities (sanitation, prevent contamination of food and
water supplies).
Health facilities in the emergency or disaster area are responsible for co-ordinating the health
services for all casualties of emergencies and disasters brought to the facility. Health workers
will strive to save life and limb through effective emergency treatment at the facility. At the
scene, they will determine the priority for release of trapped casualties in conjunction with the
fire service, and ensure safe transport of the injured to receiving health facilities in order of
priority.
6.8
Public Information and Media Relations
Emergency public information involves developing and delivering timely and accurate messages
and instructions for the public throughout an emergency or disaster. It informs the public on
what is happening, how the government is responding and what the public should do to ensure
its own safety. The flow of accurate and timely public information during an emergency or
disaster is critical for protecting lives and property. It needs to be coordinated with the early
warning as sometimes there is little time for warning. Initially, public information may be
focused on the people at risk. Later this focus widens according to the public’s interest, concern
or desire to help.
51
Any incident will attract the interest of the media, and a major disaster is likely to involve
widespread radio and television coverage. It has to be anticipated that the broadcasting media in
particular will bring large communications vehicles to the scene. In addition, media helicopters
are often deployed and control of the airspace should be an early consideration. Unless
appropriate arrangements are made, the media can divert responders from the task of handling
the emergency. It is essential to make arrangements for the authoritative release of information
during any emergency of significant length.
6.8.1 Establishing a Media Liaison Point
Arising from the control of access to the scene, and the need to ease the pressure from the
media, it is necessary to establish a media liaison point so that the interests of the media and
their responsibility to the public can be fulfilled.
A media liaison point is a designated point at the disaster scene, preferably outside the outer
cordon, for the reception of media personnel, checks on their bona fides and briefing on
arrangements for reporting, filming and photography. It may be little more than a rendezvous
point with further facilities provided at a media center established elsewhere.
6.8.2 Nominating a Media Liaison Officer
Corresponding to the above, if the media representatives do not get access to information, they
might approach anybody else available. This could lend credibility to inaccurate sources. While
the media contact takes the responsibility away from those coping with the disaster, brief
interviews with senior police, fire, and ambulance officers at the site, as well as with specialists
from appropriate agencies such as rail or airport officials, will add authority to the information
being given.
It is therefore necessary to nominate a media liaison officer to supply briefs and information and
to create cohesion among the partners in the service.
6.9
Resource Management
Critical resources may be depleted by direct effects of certain hazards (e.g. drought, flooding) or
because of problems with the transportation or distribution network. It is expected that the
affected community will use its own resources to cope with the disasters during the first 72
hours. At each level, complete listings of the following categories of resources should be
maintained, either as attachments to the Guidelines or within appropriate Sectoral Operational
Plans:




Personnel
Communications equipment
Vehicles
Heavy equipment for public works
52


Mass care supplies
Portable generators
53
Expanded Version
GLOSSARY OF TERMS
Assessment: An evaluation or appraisal for making a judgement about existing problems, needs,
resources or capacity, of a specific system, community or region. It may be carried out by direct
observation, interviews, surveys, literature review, etc. It is more than simply giving marks or
scores, although that may form part of it. One should strive to make the assessment as objective,
fair and transparent as possible as assessment plays a crucial role in the decision-making
process. It helps in identifying the key problems and vulnerable groups as well as determining
the priorities and the best approach for disaster response.
Co-ordination: The process of systematically analysing a situation, developing relevant
information, and informing appropriate command authority of viable alternatives for selection of
the most effective combination of available resources to meet specific objectives. The coordination arrangement, which can be either intra-or inter-agency, does not involve dispatch
actions. However, personnel responsible for co-ordination may perform command or dispatch
functions within the limits established by specific agency delegations, procedures, legal
authority, etc.
Disaster: The occurrence of a sudden or slow major misfortune, which disrupts the basic fabric,
and normal functions of a society (or community). An event or series of events, which gives,
rise to casualties and/or damage or loss of property, infrastructure, essential services or means of
livelihood on a scale, which is beyond the normal capacity of the affected communities to cope
with unaided. Disaster is sometimes also used to describe a catastrophic situation in which the
normal patterns of life (or eco-systems) have been disrupted and extraordinary, emergency
interventions are required to save and preserve human lives and/or the environment. Disasters
are frequently categorised according to their perceived causes and speed of impact. In the
context of community disaster education, not every event arising out of a hazard is a disaster. A
disaster occurs when a disruption reaches such proportions that there are injuries, deaths, or
property damage, and when a disruption affects many or all of the community's essential
functions such as water supply, electrical power, roads, and hospitals. Also, people affected by
a disaster may need assistance to alleviate their suffering.
The following disaster hazards are defined in greater detail:
Flood: Significant rise of water level in a stream, lake, ocean etc that destroys life and property.
Floods often build up slowly and are usually seasonal. They cause physical damage by washing
away structures, crops and animals. Casualties and deaths may occur from drowning. Floods are
followed by an outbreak of malaria, diarrhoea and viral infections. The floods also contaminate
wells and ground water. As a result of this clean water becomes scarce, unavailable and a
possible outbreak of cholera;
Landslides: A landslide is a down slope transport of soil and rock resulting from naturally
occurring vibrations, changes of water content or removal of lateral support. Landslides are very
54
difficult to predict but their frequency and extent can be estimated by use of information on the
area geology, geomorphology, hydrology, climate and vegetation;
Pest infestations: Increase in pest numbers. Pest infestations are a major problem in tropical
climate both during the growing and post harvest seasons. Pest numbers increase due to one or a
combination of ecological factors including temperature, monoculture of crops, introduction of
new pest species, overcoming genetic resistance in host, overcoming pesticide effects,
conducive weather patterns, and migration. This leads to the damage of plants and harvested
crops, consequently leading to food shortages, famine and economic stress;
Emergency: A condition of disaster or of extreme peril to the safety of persons and property
caused by such conditions as air pollution, fire, flood, hazardous material incident, storm,
epidemic, riot, drought, sudden and severe energy shortage, plant or animal infestations or
disease, a Government’s warning of an earthquake or volcanic prediction, or other conditions,
other than conditions resulting from a labour dispute. An emergency is any occasion or instance
for which, in the determination of the President, national assistance is needed to supplement
district and local efforts and capabilities to save lives and to protect property and public health
and safety. An emergency occurs when an event reaches such proportions that it disrupts a
community’s essential functions.
Emergency Response: The actions taken in response to a disaster warning or alert to minimise
or contain the eventual negative effects, and those taken to save and preserve lives and provide
basic services in the immediate aftermath of a disaster impact, and for as long as an emergency
situation prevails. This includes, as and where needed: evacuation (pre-or post-disaster impact)
and other precautionary measures; fire- and flood-fighting measures; search and rescue; relief;
and the establishment of essential communications and transport services. Precautionary (preimpact) measures are taken on the basis of established preparedness plans.
Post-disaster emergency responses are planned and implemented on the basis of the (postimpact) assessment.
Emergency Response Agency: Any organisation responding to an emergency or providing
mutual aid support to such an organisation, whether in the field, at the scene of an incident, or to
operations centre.
Emergency Response Personnel: Personnel involved with an agency’s response to an
emergency
Imminent Peril to the Public: Emergency condition where immediate and possible serious
danger threatens the public and time does not permit fully co-ordinated response actions. Under
these conditions, the Prime Minister’s Office may act unilaterally, in conjunction with a district
or local government, to take immediate measures.
Incident: An occurrence or event, either human-caused or by natural phenomena, that requires
action by emergency response personnel to prevent or minimise loss of life or damage to
property and/or natural resources.
55
Pre-Disaster Response:. Based on the potential or known threat of a natural disaster, i.e.,
earthquake, drought leading to famine, flood, landslide, etc, or other event, preparatory actions
taken by the central, district, or local governments to protect life and property and to minimise
the effects of the event on response personnel and equipment. These actions facilitate the
deployment of resources necessary for immediate response and initial recovery operations, as
required.
Pre-disaster Period/Measures: A period when there is no immediate threat but long-term
actions are taken in anticipation of the disaster event;
Pre-disaster Response: Based on the potential or known threat of a natural disaster, i.e.
earthquake, drought leading to famine, flood, landslide, etc, or other event, preparatory actions
taken by the central, district, and local governments to protect life and property and to minimise
the effects of the event on response personnel and equipment. These actions facilitate the
deployment of resources necessary for immediate response and initial recovery operations, as
required.
Preparedness: Involves the development and regular testing of warning systems (linked to
forecasting systems) and plans for evacuation or other measures to be taken during a disaster
alert period to minimise potential loss of life and physical damage; the education and training of
officials and the population at risk; the establishment of policies, standards, organisational
arrangements and operational plans to be applied following a disaster impact; the securing of
resources (possibly including the stockpiling of supplies and the earmarking of funds); and the
training of intervention teams. Preparedness must be supported by enabling legislation;
Lead Agency: The central government department or agency assigned primary responsibility to
manage and co-ordinate a specific emergency or preparedness function under the central
government response plan for national response to a major disaster. Primary agencies are
designed on the basis of their having the most authorities, resources, capabilities, or expertise
relative to accomplishment of the specific emergency or preparedness support. Primary
agencies are responsible for overall planning and co-ordination of, in conjunction with their
support agencies, the delivery of response function-related national assistance to their district
counterparts. Designated officials of the primary agencies serve as national executive agents,
and have the authority to commit funds and task support agencies under the authority of the
Disaster Management Act.
Mitigation: Encompasses all activities undertaken in anticipation of the occurrence of a
potentially disastrous event, including preparedness and long-term risk reduction measures. The
process of planning and implementing measures to reduce the risks associated with known
natural and manmade hazards and to deal with disasters, which do occur. Strategies and specific
measures are designed on the basis of risk assessments and political decisions concerning the
levels of risk, which are considered to be acceptable, and the resources to be allocated (by the
national and sub-national authorities and external donors). Mitigation has been used by some
institutions/authors in a narrower sense, excluding preparedness. It has occasionally been
defined to include post disaster response, then being equivalent to disaster management, as
defined in this glossary. Measures, which reduce the impact of a disaster phenomenon by
56
improving a community's ability to absorb the impact with minimum damage or disruptive
effect. The measures include both preparedness (see above) and protection of physical
infrastructure and economic assets. In practice mitigation involves actions such as:
 Promoting sound land use planning based on known hazards;
 Relocating or elevating structures out of flood plains;
 Developing, adopting, and enforcing effective building codes and standards;
 Engineering roads and bridges to withstand earthquakes;
Response: is a set of activities to address the immediate and short-term effects of an emergency
or disaster. Response includes immediate actions to save lives, protect property, and meet basic
human needs. Based on the requirements of the situation, response assistance will be provided
to an affected area under the National Response Plan using a partial activation of selected
primary agencies or the full activation of all the primary agencies to meet the needs of the
situation. Response activities, during the immediate aftermath of a disaster, deal with
emergency needs and restore community services. For example, Red Cross mass care,
spontaneous and professional search and rescue, damage assessment, and provision of
communications are ways that people and organisations respond;
Task Force: A combination of single resources assembled for a particular tactical need, with
common communications and a leader.
Also, a group of resources with common
communications and a leader temporarily assembled for a specific mission.
Technical Specialists: Personnel with special skills who are activated only when needed.
Technical Specialists may be needed in the areas of fire, behaviour, water resources,
environmental concerns, resource use and training.
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Consequences of Disasters
The spatial extent of disasters that may occur in Tanzania will vary according to the hazard type
and intensity. Some disasters may affect a small geographical area while others may affect
whole districts or a number of districts together. In some occasions a disaster will
geographically affect the entire country. However, the incidental effects of even localised
disasters may be felt far more widely.
Occurrence of disasters may result in a combination of some or all of the following effects:








 Loss of life;
Injury;
Damage to and destruction of property;
Damage to and destruction of subsistence and cash crops;
Disruption to production;
Disruption to or loss of livelihoods;
Disruption to essential services;
Destruction of the environment;
Damage to national and local infrastructure and disruption to governmental systems National
and regional economic loss and disruption to or destruction of development programmes
and targets.
Goals and Objectives of Disaster Response
The goals of disaster response are to:
i. Protect lives and prevent loss of property from all hazards;
ii. Reduce human suffering and enhance the recovery of communities after a disaster strikes;
iii. Ensure timely and efficient service to the public.
Specific objectives: Irrespective of the particular responsibilities of organisations and agencies
that may be involved with the disaster response these organisations and agencies will all work to
achieve the following common objectives, namely to:








Save life and prevent fatalities and injuries;
Prevent escalation of the disaster;
Relieve suffering;
Safeguard the environment;
Protect property;
Facilitate criminal investigation and judicial, public, technical, or other inquiries;
Continue to maintain normal services at an appropriate level;
Inform the public;
58



Promote self help and recovery;
Restore normality as soon as possible;
Evaluate the response and identify lessons to be learned.
1.2 LEGAL AUTHORITY AND RESPONSIBILITY
Currently the Disaster Relief Act No. 9 of 1990 governs the disaster management activities in
the country. However this act is outdated since it takes consideration only the relief aspects and
leave out preparedness, mitigation, rehabilitation and reconstruction. The act therefore is in the
process of being repealed and be replaced by the Disaster Management Act which will take into
consideration all aspects of disaster management. i.e. mitigation/prevention, preparedness,
response, recovery, rehabilitation and reconstruction. In additional to that the Disaster
management act will not replace the existing sectoral disaster related laws which are in place.
1.2.1 Authority to declare a national disaster
Disaster occurrences have the tendency to disrupt National Development Plans and Programmes
of different sectors. Interventions thereafter demand huge mobilisation and reorganisation of
human and financial resources over and above the sectors ability, which call for high-powered
authority vested with the head of the state. Therefore at the National level the President of the
United Republic of Tanzania should be the appropriate authority for declaration of a national
disaster situation.
The Constitution of the United Republic of Tanzania, of 1977, empowers the President to
proclaim a State of Emergency if inter alia there is imminent occurrence of danger disaster,
disaster or environmental calamities, which threatens the society or part thereof in the United
Republic of Tanzania.
Subsequently at the regional level the representative of the head of the state should be the
appropriate authority to declare a regional disaster situation, and so to the District level. The
legislation to be enacted should succinctly state these authority holders for clarity to all sectors
and other stakeholders.
The guidelines address recovery assistance matters to the extent of resettlement but does not
address matters of loans (individual or business), grants to individuals, grants to district or
local governments in regards to disasters;
3.3
Guiding Principles
The key to an effective disaster management is to apply sound principles, founded on
experience, to the problem in hand. The following is the summary of the underlying key
principles, which guide the development and implementation of the guidelines:
Competent planning: The essence of effective preparedness and management is competent
planning which takes into account the relation between disasters and development.
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Consequently it is necessary to require that disaster management plans be drawn up at
national, sectoral, and district levels;
Legitimate interests: Respect for legitimate interests is pivotal in creating justice and
therefore support for the exercise, correspondingly, all affected parties have a legitimate
interest in the choices among planning alternatives;
Participatory approach: All-important decisions should be made and taken with the
participation of the populations and local communities concerned. It is therefore necessary to
ensure involvement of communities in the process;
All concerns should be considered: For a comprehensive approach, it is necessary to take
into account all concerns. Consequently a representative choice of participants will ensure
that all concerns of various elements of the community have been catered for;
Adequate expertise: Access to a wide range of expertise on the subject especially the
mechanics of emergency response is vital to the successful development and implementation
of the actions. The development of adequate expertise is therefore a priority;
Institutional capacity: The institutional capacity for disaster preparedness, response, and
management should be taken as a priority for efficient minimisation of adverse effects;
Multi-sectoral approach: An integrated and multi-sectoral systems approach is an essential
aspect for the effective management of disasters It is therefore important to institute multisectoral integrated interventions;
The spirit of co-operation: Co-operation and co-ordination at all levels and particularly at
national, regional and local levels are the most crucial elements of any action. It is therefore
necessary to improve co-ordination and co-operation among all the institutions concerned;
Co-ordination: Disaster management operations involve many independent participants
usually operating in a situation of emergency. They therefore demand a high level of coordination. Consequently it is necessary to develop a system with high ability to co-ordinate
these operations.
The value of safety: Better understanding of the nature and value of safety is the
prerequisite and underlies acceptance and therefore participation and the development of a
spirit of partnership and co-operation among all levels of Government, communities, NGOs,
and landholders. It is therefore necessary to establish this understanding and develop a spirit
of partnership.
The right to know: The communities who are exposed to disasters have a right to know the
risks facing them. The institution responsible for disasters or for setting up disastrous
situation therefore has the corresponding responsibility to inform the said communities.
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The right to be prepared: The first level of coping is the community level. A well trained
and well prepared community is better able to cope with a disaster than one that is not. The
communities who are at risk from disasters have a right to be prepared for any eventualities.
All persons assisting them with the response to a disaster event have a responsibility of
developing this preparedness.
The linkage with development: disasters and development are closely related and for their
proper management an integrated multi-sectoral plan is necessary based on this relation;
Economic incentives: For effective preparedness and management to be carried out it must
make economic sense. Consequently social and economic incentives and disincentives
should complement regulatory measures to influence people's willingness to invest in
disaster preparedness and management;
Data collection: Regular data collection, monitoring and accurate assessment of the factors
that increase vulnerability are crucial and should be carried out and the information widely
publicised;
Long term surveillance: Long-term surveillance on meteorological and geological factors is
essential for food security and necessary investment since this prevents adverse effects;
Vulnerable Groups: Women and children often bear the brunt of disasters and so effective
involvement of women and youth in disaster management programmes, planning, decision
making, management and program implementation is essential and should be encouraged;
Public Awareness: The task of disaster preparedness can only be achieved if it is backed by
supportive awareness raising activities. Increased awareness and understanding of disasters
and their effects on development by Government and the public should therefore be
promoted;
International co-operation: Sub-regional, regional and global nature of disaster should be
recognised and international co-operation built around it.
3.5
Scope of The Guidelines
The Guidelines apply to all Government departments, which have responsibility in their
mandates to provide services, which touch any aspect of disaster prevention, preparedness,
response and recovery.
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4.4.8 Volunteers
Bona fide volunteers can contribute in a variety of ways following a disaster. However, the
following issues should be considered:
Record of skills: The skills and expertise available from the voluntary sector may vary from
place to place. A record of available local voluntary resources should be made and kept up to
date by the Local Disaster Management Committee (LDPMC).
Consistent Reliability: The voluntary sector needs to be able to demonstrate its capabilities to
the statutory services, particularly when the volunteers attend the scene as part of the response
plan. It is of vital importance that, if disaster strikes, the voluntary sector should be able to
contribute what has been mutually agreed and written into local plans. Voluntary agencies have
therefore to be able to demonstrate that their support is reliable, consistent and sustainable to the
required standard.
Understanding of roles: The statutory and voluntary sectors should be clear about their
respective roles in a disaster. Voluntary organisations must appreciate that the statutory services
bear the responsibility for the overall disaster response but, equally, the statutory services must
develop an understanding of the voluntary sector as a rich resource of personnel skills and
equipment with their own structure and constraints.
Chain of command: There should be agreement and effective plans on the use of voluntary
effort, the decision making process leading to their call-out and the method of call-out.
Consideration will also need to be given to the range of functions the voluntary effort will cover,
for example how and by whom the voluntary effort will be organised, managed, briefed and
debriefed, and supplied with appropriate clothing, identification and equipment.
Responsibility and Professional standards: Clarity on the accountability of volunteers to a
professional agency is important because of issues of legal liability, including statutory
requirements particularly for children such as under the Children Statute, and because of
insurance indemnity issues. Agencies using volunteers may become responsible for the health
and safety of volunteers and will need to ensure that they are properly equipped, trained and
supervised.
Regular and reliable contact: Planning will be more effective if it is carried out with the
voluntary sector within a well-defined and mutually agreed structure, kept up to date by regular
formal and informal contact at a local level. This structure needs to suit local circumstances, be
understood by all concerned and have clearly identified points of contact.
Individual offer of help: As mentioned above, according to the nature of the social set up,
when disaster strikes, people who are not part of any voluntary organisation will also wish to
help and will offer their services. The local authority, in conjunction with the police, should
establish a volunteer receiving point away from the scene to deal with such approaches. If the
volunteer receiving point wishes to accept the offer of help, the volunteer can then be asked to
report to the rendezvous point or to any other designated position.
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It should be noted that individual volunteers might require a considerable amount of
management and leadership if they are to be effective. The expertise of local volunteer bureaux
or experienced members of established voluntary organisations may be helpful in this respect,
but much will depend on the skills and managerial experience of individual volunteers.
Demonstration of competence: When considering the particular contribution, which the
voluntary sector can make to the disaster response, it is important to note, that established
voluntary organisations and volunteer groups will usually have their own training arrangements.
Wherever possible these should be demonstrated to the local statutory services. Additionally,
the statutory services and voluntary agencies should aim for joint training and exercising so that
problems can be identified, plans and procedures updated and working relationships fostered. It
is very important that voluntary organisations understand the management framework of the
response and how they fit into the response as a whole. There will be some overlap between the
functions and capabilities of different voluntary organisations.
Effective communication, planning and training should ensure that opportunities are identified
for sharing heavy workloads and providing mutual support.
4.6.1.1 Tanzania Red Cross Society
TRCS, like other National Societies, has to ensure that all its disaster preparedness activities and
programs are carried out according to the Disaster Preparedness Policy adopted at the
International Federation of Red Cross and Red Crescent General Assembly in October 1999.
The following are stated in the policy:




Recognise the role of Red Cross/Red Crescent in disaster preparedness as
complementary to government and thus will not replace state responsibilities. In addition,
the National Society should engage in debate with the government on the focus and nature of
the National Emergency Plan and encourage the assignment of a clear role and
responsibilities to the National Society, supported by appropriate legislation;
Advocate where necessary with government, donors, NGOs and the public the need for
and effectiveness in disaster preparedness. National Societies should contribute to raising
awareness of hazards, levels of risks and coping mechanisms adopted by society and
mitigation programs such as early warning systems that may reduce the loss of lives and
property when a disaster strikes.
Strengthen the organizational structures at international, national and local levels
required for effective disaster preparedness. In particular, prioritise the strengthening of
branches and mobilization and training of Red Cross/Red Crescent volunteers in high-risk
areas and the responsibility of National Societies to be prepared to be part of the
Federation’s international disaster response programming. Integrate or harmonize such
activities with institutional development and other relevant program areas.
Improve coordination by promoting better cooperation and partnerships between National
Societies, ICRC, governments, non-governmental organizations and other disaster response
agencies at local, national, regional and international levels.
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



Identify those persons, communities and households most at risk to disaster. Through
assessment and analysis of risks, vulnerabilities and capacities (Vulnerability and Capacity
Assessment) as a basis for prioritising location and focus of programming activities.
Raise public awareness of disaster hazards through public education, encouraging
vulnerable people to take preventive and mitigating actions where possible before disaster
strikes. Ensure that the knowledge from prediction and early warning systems can be
accessed, understood and acted upon by local communities.
Improve the ability of vulnerable communities to cope with disasters through
community-based disaster preparedness strategies that build on existing structures,
practices, skills and coping mechanisms. Recognizing that a community-based approach is
the best guarantee that improvement in disaster preparedness will be realized and sustained,
the assisted population must participate in the planning and preparation for disasters. All
activities and programmes should be sensitive to issues of gender, generation and the needs
of vulnerable groups such as the disabled.
Strive to provide the financial, material and human resources required to carry out
appropriate and sustainable disaster preparedness activities. In particular, maximize the
strategic advantage of the International Federation to mobilize all available resources and
establish regional networks of National Societies that will strengthen the Federation’s
collecting impact on disaster preparedness.
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ANNEX C
SECTORAL DISASTER RESPONSE COMMITTEE ON MASS CARE
LEAD AGENCY:
The Tanzania Red Cross Society
SUPPORT AGENCIES:
Ministry responsible for Agriculture
Ministry responsible for Finance,
Ministry responsible for Defence
Ministry responsible for Home Affairs
Ministry responsible for Health
Ministry responsible for Works,
Ministry responsible for Information
Ministry responsible for Local Governments
The Private Sector
The Minister may designate such other agencies as need may arise.
1.0
INTRODUCTION
1.1
Purpose
The purpose of this Sectoral Disaster Response Committee is to:
(a)
Coordinate efforts to provide sheltering, feeding and emergency first aid following a
catastrophic earthquake, significant natural disaster or other event requiring national
response assistance.
(b)
Operate disaster welfare information system to collect, receive and report information
about the status of victims and assist with family reunification within the disaster area.
(c)
Coordinate bulk distribution of emergency relief supplies to disaster victims following a
disaster.
1.2
Scope
The Tanzania Red Cross Society independently provides mass care to all disaster victims as
part of a broad programme of disaster relief, as outlined in the Tanzania Red Cross Act. The
Tanzania Red Cross Society also assumes the lead agency responsibility under these Guidelines
to coordinate national response assistance to the mass care response of the central and local
governments, and the efforts of other voluntary agencies, including the Tanzania Red Cross
relief operations.
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Initial response activities will focus on meeting urgent needs of disaster victims on mass care
basis. While the guidelines do not specifically address recovery assistance, such as temporary
housing, and loans and grants for individuals, initial recovery efforts may commence as
response activities are taking place. Likewise, the provision of the customary Red Cross disaster
services of emergency assistance and additional assistance will be considered based on the needs
of disaster victims, the disaster situation and available resources. As recovery operations are
introduced, close coordination will be required between those government departments
responsible for recovery assistance, including the Tanzania Red Cross Society.
1.2
Concept
Mass care encompasses:
1.2.1 Shelter

The provision of emergency shelter for disaster victims includes the use of pre-identified
shelter sites in existing structures;

The creation of temporary construction of shelters; and

The use of similar facilities outside the disaster affected area, should evacuation be
necessary.
1.2.2 Feeding
The provision for feeding disaster victims and emergency workers through a combination of
fixed sites, mobile feeding units, and bulk food distribution.

The operations should be based on sound nutritional standards and will include provisions
for meeting dietary requirements of disaster victims with special dietary needs.
1.2.3 Emergency first aid

Emergency first aid services will be provided to disaster victims and workers at mass care
facilities and at designated sites within the disaster area.

The Emergency first aid service will be supplemental to emergency health and medical
services established to meet the needs of disaster victims.
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1.2.4 Disaster Welfare Information
Disaster welfare information regarding individuals residing within the affected area will be
collected and provided to immediate family members outside the affected area through the
Disaster Welfare information system.
Disaster Welfare Information will also be provided to aid in reunification of family members
within the affected area who were separated at the time of the disaster.
1.2.5 Bulk distribution of emergency relief items
Sites will be established within the affected area for distribution of emergency relief items
The bulk distribution of emergency relief items will be determined by the requirement to meet
urgent needs of disaster victims for essential items.
2.0
POLICIES
2.1
General
v.
The SDRC on Mass Care will be implemented upon the DMD’s request for national
response assistance following a disaster.
vi.
All appropriate government departments, voluntary organizations and private sector
resources will be used as available.
vii.
All services will be provided without regard to economic status or racial, religious,
political, ethnic, or other affiliation.
viii.
The guidelines will not supersede the Tanzania Red Cross’ response and relief activities.
The Tanzania Red Cross relief operations should conform to the Tanzania Red Cross
Policy on disaster management. The Tanzania Red Cross will maintain administrative
and financial control over its activities.
2.2
Mass Care

Sheltering, feeding, and emergency first aid activities will begin immediately after the
disaster occurrence (or before, if there is advance warning).

Due to the magnitude of a significant disaster event, parent organizations of relief workers
should plan to provide for those workers to be self-supporting for the first 72 hours after
arrival in the affected area. Following this time period, feeding for emergency workers will
be provided until commercial food facilities are made available, or alternative arrangements
are established by the workers’ parent organization.
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2.3
Disaster Welfare Information System (DWI)

DWI, consisting of those persons identified on shelter lists, National Disaster Medical
Systems casualty lists, and any further information made available by the districts
Emergency Response Centres and hospitals will be collected and made available to
immediate family members within or outside the affected area.

An initial moratorium, not exceeding 48 hours, may be issued to allow activation of the
system and determination of the affected area.

Information about those injured and remaining within the affected area will be limited to
that provided by local medical care units to the DWI system.

Information on casualties evacuated from the affected area to other medical facilities will be
limited to that provided by the National Disaster Medical System’s tracking capability. The
listing of disaster-related deaths will be limited to officially confirmed fatalities.

The National Emergency Communications Network (NECN) National will be tasked with
transmitting information to the DWI Centre.

The DWI operation will be discontinued as soon as is practical.
3.0
THE SITUATION
3.1
Disaster Condition

The magnitude of damage to structures and lifelines will rapidly overwhelm the capacity of
the Districts and lower local governments to assess the disaster and respond effectively to
basic and emergency human needs. Damage to roads, and other communication systems will
hamper emergency response efforts. The movement of emergency supplies will be seriously
impeded. Many professional emergency workers an others who normally would help during
a disaster will be dead, injured, involved with family problems resulting from the disaster, or
unable to reach their assigned posts. The district, county and village facilities will be
severely damaged or inaccessible.

Hundreds of thousands of disaster victims will be forced from their homes, depending on
such factors as time of occurrence, area demographics, building construction, and existing
weather conditions.
There will be large numbers of dead and injured. Families may be separated immediately
following a sudden impact disaster, such as children in school and parents at work.
Foreign visitors and tourists may be involved.
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3.2
Planning Assumptions
i.
The Committee’s planning is based on a worst case scenario in which a disaster occurs
without warning at a time of day that will produce maximum casualties, but also
consider other disasters which could cause large numbers of casualties and result in wide
spread damage necessitating the temporary relocation of disaster victims.
ii.
The nature and extent of the disaster event requires a pre-planned, immediate, and
automatic response from the entire Tanzania Red cross organization and cooperating
agencies.
iii.
The Tanzania Red Cross branches in the affected area will immediately provide first aid
services. These branches will plan to provide these services without external support for
at least the first 72 hours following the onset of the disaster. An independent Tanzania
Red Cross relief operation will be established to support this response.
iv.
A formal Sectoral Disaster Response Committee on Mass care organizational structure
for supporting the efforts of other voluntary agencies and government agencies to
provide feeding, shelter, and emergency first aid stations, bulk distribution centres, and
providing for disaster welfare information will be in place in the disaster area within 48
hours after implementation of the emergency plan.
v.
Sheltering and feeding activities will be required to accommodate up to at least 50,000
people for a period of not less than 30 days after the onset of the disaster.
vi.
The DWI system should be capable of responding to at least five hundred thousand
disaster welfare inquiries, from around the world, within 30 days of the disaster’s onset.
These inquiries will relate to persons who are residents of the disaster affected area, as
well as transients such as foreign and domestic tourists, business travellers, students, etc.
in addition, the system must provide information needed to reunite family members
separated at the time of the disaster.
vii.
Some victims will go to mass shelters; others will find shelter with friends and relatives;
many victims will remain with or near their damaged homes.
viii.
The magnitude of the disaster will require the operation of large long-term shelters.
ix.
The massive relocation of disaster victims will limit or prevent routine mail delivery.
x.
The names of many of the injured and treated will continue to appear on the casualty
lists. Many of the seriously injured will be transported to hospitals outside the disaster
area, some of them hundreds of miles away. Some medical facilities will be overtaxed
that accurate record keeping on treated, released, hospitalised, and transferred individuals
will be impossible.
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xi.
The restoration of communication systems, disrupted by damages and overloads, may
take weeks.
xii.
Mass care shelter facilities will receive priority consideration for structural inspections to
ensure safety of occupants. Mass care operations and logistical support requirements will
be given high priority by the National support agencies.
xiii.
Large numbers of spontaneous volunteers in the affected area and around the country
will require a pre planned recruitment strategy and operational training effort.
xiv.
The Tanzania Red Cross will coordinate the Committee’s planning activities to ensure an
immediate and automatic mass care response.
4.0
OPERATIONS
4.1
General

Red Cross has been designated the lead agency responsible for managing the activities of the
Sectoral Committee on mass care. Government departments have been designated to support
the Committees mission. Resources from the private sector will also be applied to the
response effort.

The Committee will work directly with the regions and districts and agency counterparts to
provide the support needed as identified by the districts. Requests for assistance will be
channelled from local jurisdictions through the regional and district Commissioners for
action. Assistance will be provided from the Committee to the region/district, or at the
region/district’s request, directly to an affected local jurisdiction.

Direction for the Committee will originate from the Tanzania Red Cross head quarters upon
implementation of the emergency plan.

The Tanzania Red Cross Society will immediately deploy administrative staff to establish
temporary field headquarters for the Committee to support initial response. The field
headquarters staff will immediately establish a direct reporting link with the Tanzania Red
Cross Society's national headquarters.
The Committee will immediately convene at the Tanzania Red Cross Headquarters following
Plan implementation to evaluate the situation, and to implement plans established to support
mass care operations. The Committee will consider and respond to requests for mass care related
resources needed by the Tanzania Red Cross disaster field office, and anticipate additional
resource requirements.
All support agencies will be notified and expected to provide 24-hour representation as
necessary. Support agency representatives will have sufficient knowledge of the capabilities and
70
resources of their agencies, with appropriate authorities to commit resources to the response
effort.
4.2
Organization
4.2.1 National Level support structure
The Committee will operate under the direction of the Director of Disaster Preparedness and
Relief of the Tanzania Red Cross, and the Tanzania Red Cross Headquarters will provide
administrative support to the Committee.
The Disaster Command Operations Centre will be activated at the Tanzania Red Cross
Headquarters under the direction of the Director.
Representatives of all agencies designated to support the Committee will be available on a 24hour basis for the duration of the emergency response period. In addition to providing support to
the district, the Committee will begin to examine transition to recovery issues as the situation
permits.
4.2.2 Regional and District level response structure

The regional and district level response structure is initially composed of representatives to
the Regional and District Disaster Management Committee and the corresponding Disaster
Management Team.

The DDMT will coordinate national resources to support mass care response activities, in
cooperation with the Tanzania Red Cross Society branches and the affected local
jurisdictions.
This will channel governmental and other requests for assistance to the Tanzania Red
Cross relief operation and other voluntary agencies for action and exchange of
information with these response organizations.

Full time liaisons from support agencies will be available to the districts at the District
Disaster Response Centre as necessary.

Liaison with other Sectoral Disaster Response Committees will be identified and deployed
by the DDMT.
4.3
i.
Notification
The DMD is responsible for notifying Government departments and the Tanzania Red
Cross that a major disaster has occurred that could result in activation of the response
procedures as described in the emergency plan.
71
ii.
Upon notification of full activation of the emergency plan or the Committee’s activities,
the Tanzania Red Cross will inform the Committee and other voluntary organizations
active in disaster management, and share information about what has occurred and initial
response actions.
iii.
The Committee support agencies will notify their representatives to report to the
appropriate locations as designated in the district plans.
iv.
Upon notification by the DMD, The Tanzania Red Cross Director Disaster Preparedness
and Relief will report to the DMD for an initial meeting with the NDMC, and be
available as necessary for the duration of the initial response period.
5.0
RESPONSE ACTIONS
5.1
Initial Actions

The Tanzania Red Cross National Headquarters will:

Activate the Disaster Command Operations Centre at the Tanzania Red Cross headquarters
within two hours of notification.

Convene the SDRC on Mass Care at the Tanzania Red Cross headquarters.

The Committee will determine and discuss the following initial response actions:

Areas where emergency sheltering and feeding are needed;

Where problems may exist in using pre-designated shelter facilities based on available
damage information;

Adequacy of food and water supplies for the implementation of initial mass care activities;

Need for immediate deployment of additional personnel from outside the affected area;

Communication needs for mass care operations;

Needs and availability of transportation and access to the disaster area;

Plan for the activation of the disaster welfare information system and for informing the
general public of the service;
72

Anticipated level of response by the Tanzania Red Cross branches and volunteers during the
first few days; and

Anticipated district response capability, and the availability of national and local resources
in the affected area.

The District response structure will support response elements which will:

Open and operate all needed shelters, including registration of shelter residents;

Provide meals at fixed feeding locations and provide mobile feeding as may be required;

Distribute portable water;

Distribute bulk emergency relief items as needed;

Provide disaster welfare information services;

Staff and supply shelters, feeding units, emergency first aid stations, and the disaster welfare
information operation;

Secure transportation and needed supplies; and

Establish communications between shelters, feeding units, emergency first aid stations, and
relief operation location(s).
1.27
Continuing Actions

The Committee will mobilize the resources necessary to support the:

Operation of all required mass care services;

Operation of all disaster welfare information services; and

Management of logistical support and fiscal activities such as recording of expenditures and
passing bills from vendors to accounting units for payment.

The Committee will maintain contact with the DDMT to coordinate assistance provided, and
evaluate the needs of the mass care for the purpose of guiding the Committee in the
allocation of resources most effectively. Where scarce resources are involved,
recommendations will be made to the District Commissioner to establish priorities.
73

The Support agencies’ representatives to the Committee will provide coordination with their
agencies on an ongoing basis to meet the Committees needs using existing arrangements for
providing such support.

Evaluation of support requirements coming to the Committee will be based upon analysis of
information on the:

Number of people requiring shelter, food, and emergency first aid, and the number of
disaster welfare information requested received. (This information will be compiled and
reported daily through the appropriate channels);

Number of people being housed and fed each day, and the number of disaster welfare
information requests being processed. (The number of people requiring mass care may not
be the same number receiving mass care, especially if there are shortfalls in service delivery.
If all people requiring mass care are not receiving assistance, the Committee will request
field personnel to re-evaluate mass care operations);

Availability of resources to meet the mass care requirements;

Availability of food resources to meet the needs of the people;

Status of restoration of public utilities and the estimated restoration of residential services;

Logistical shortfalls that require national level intervention, including communications,
transport, supplies, and personnel; and

Anticipated time frames for implementation of recovery assistance programmes such as
temporary housing.

Based on the Continuous monitoring and evaluation of the above information, each SDRC
will task needs to the specific lead agency or agencies involved. Some needs may be referred
to other SDRCs. The DMD will be advised of all requests and the steps taken by the
Committee to meet them.
6.0
RESPONSIBILITIES
Lead Agency: The Tanzania Red Cross Society
The Tanzania Red Cross Society will:
Support the management and coordination of sheltering, feeding, supplemental disaster health
services, emergency first aid services, bulk distribution of emergency relief items, and disaster
welfare information services to the disaster-affected population.
74
Establish and operate mass care shelters and feeding facilities for victims requiring these
services.
Aid in the transition to recovery operations for victims who do not require the use of mass care
facilities.
Provide casualty and illness information to appropriate authorities.
Within its agreements, coordinate the provision of relief efforts by any and all volunteer
organizations actively engaged in providing assistance to disaster victims.
Coordinate the registration of shelter residents.
Provide shelter registration lists to family reunification units that may be established by the
DDMT.
Manage mass care logistical and related fiscal activities.
6.1
Support Agencies
6.1.1 Ministry responsible for Agriculture

Locate and secure supplies of food to supplement food supplies in the disaster affected area.

Arrange for the provision of available departmental resources for the shelters.
6.1.2 Ministry responsible for, Planning and Economic Development

Arrange for the provision and analysis of census data on disaster areas, and assist with the
analysis of potential relocation data.
6.1.3 Ministry responsible for Defence and Ministry responsible for Internal Affairs

Provide available resources such as communication systems, transportation, shelter facilities,
blankets, field kitchens, food service personnel, and emergency food supplies.

Provide portable water through the army Engineers for mass care use and bulk distribution to
disaster victims.

Provide assistance in inspecting mass care shelter sites after the disaster to ensure suitability
of facilities to safely shelter disaster victims.
75

Provide assistance in constructing temporary shelter facilities, if necessary, in the disaster
area.
6.1.4 Ministry responsible for Health
Assist in locating health and welfare workers to augment personnel assigned to shelters.
Assist the Committee in obtaining casualty information from within the disaster area.
Provide technical assistance for shelter operations related to food, vectors, water supply, and
waste disposal.
Assist in the provision of medical supplies.
6.1.5 Ministry responsible for Works, and Communication

Provide listings of available habitable housing units, owned or in possession of or under the
influence of the Ministry responsible for works, and Communications, within or adjacent to
the disaster affected areas; and make these units available for temporary use when needed.

Provide available staff to assist when needed during the mass care operations.

Provide information on all Housing and Urban Development programmes, which might be
of assistance to the districts and the lower local governments, or individuals affected by the
disaster.

Provide available information as needed, regarding public housing authorities and fair
market rents for the affected areas.

Provide transportation to support mass care efforts, as required.
6.1.6 Ministry responsible for Information

Assist in the release of information for notification of relatives.

Assist in establishing and coordinating the transition of mass care operations with recovery
activities based on disaster situation information and the availability of resources that can be
appropriately applied.

Provide logistics support, including communications for disaster operations, as appropriate.
6.1.7 The Private Sector
76

Assist in the collection and distribution of mass care resources, including financial support.
7.0
RESOURCE REQUIREMENTS
7.1
Requirements to support the Committee
The Committee will require space at the Tanzania Red Cross headquarters with telephones, fax
machines and E-mail services.
The Committee will require appropriate administrative support for its representatives located in
the affected areas.
Each support agency will provide representatives available on a 24-hour basis to the district
affected.
7.2
Support to the district

Resources which may have to be mobilized in support of the district mass care activities
include the transportation of blankets, water containers, cooking equipment, registration
forms, first aid and medical care equipment, sleeping bags, personnel, etc. Many of these
supplies will already be in shelter locations or can be obtained through normal disaster
supply channels.

The Tanzania Red Cross, Ministry of Home Affairs, Ministry of Transport, Ministry of
Defence and the DMD will provide vehicles. Communication systems such as two way
radios may be needed.

Available undamaged facilities may have to be augmented by tents from outside the disaster
area.

Personnel resources will include The Tanzania Red Cross, voluntary agencies, labour
unions, scouting associations, professional associations; and private corporations with which
the Tanzania Red Cross has an agreement. Specially skilled individuals will be identified
among these groups and from various government departments by the Committee.

Information sources will be the Tanzania Red Cross, the DMD and appropriate district
departments.
77
ANNEX D
SECTORAL DISASTER MANAGEMENT COMMITTEE
ON SEARCH AND RESCUE
Lead Agency:
Ministry responsible for Home Affairs
Ministry responsible for Defense
SUPPORT AGENCIES
Ministry responsible for Health
Ministry responsible for Social Affairs
Ministry responsible for Works/Housing
The Department of Disaster Management
Ministry responsible for Water, Lands and Environment
The Private Sector
1.0
INTRODUCTION
1.0.1 Purpose
The purpose of this Committee is to mobilize national Search and Rescue assets following an
event requiring national response.
1.0.2 Scope
The scope of the Committee's activities includes locating, extricating and providing for the
immediate medical treatment of victims trapped in collapsed structures.
2.0
POLICIES

National search and rescue assets will assist and augment district and local agencies with
their search and rescue responsibilities.

The Ministry responsible for Home Affairs and the Ministry responsible for Defence are
responsible for planning, coordinating and managing the national search and rescue response
upon implementation of the National Response Plan, hereafter referred to as the Plan.
78

The Ministry responsible for Home Affairs under the direction of the NDMC will establish
an affiliation of nationally sponsored civilian Search and Rescue task forces.

The Ministry in consultation with the NDMC will solicit civilian task force participation,
develop Search and Rescue doctrine, standardize and certify civilian task force personnel,
equipment, and training. The DMD in support of the Committee will fund and reimburse the
employment of civilian task forces upon implementation of search and rescue activities
under the Plan. Upon activation of the Committee, these civilian task forces become
national search and rescue assets.

This Committee addresses all search and rescue missions including, search and rescue,
which is defined as the process of searching for, extricating and providing for the immediate
medical treatment of victims trapped in collapsed structures.

The Committee will interface with the SDRC on Health and Medical Services. The point of
interface will be outside a damaged structure where the Committee's personnel place the
victim into the SDRC on Health casualty collection point or transportation conveyance. This
hand off location will be in proximity to the collapsed structure.
3.0
SITUATION
3.1
Disaster Condition
A major disaster or civil emergency or terrorist activity may cause conditions that vary widely in
scope, urgency and degree of devastation. Substantial numbers of persons could be in lifethreatening situations requiring prompt rescue and medical care. Because the mortality rate will
dramatically increase beyond 72 hours, search and rescue must begin immediately. Rescue
personnel will encounter extensive damage to buildings, roadways, public works,
communications and utilities. In an earthquake disaster, after shocks, secondary events, and
other effects such as fires, landslides, flooding, and hazardous material releases will compound
problems and may threaten both survivors and rescue personnel.
3.2
Planning Assumptions

All available district and local search and rescue organizations will be committed
immediately, and will be unable to respond to all requirements.

Large numbers of local residents and workers or convergent volunteers will initiate activities
to help search and rescue operations and will require coordination and direction.

Access to damaged areas will be restricted; initially, some sites will be accessible only by
air.

In an earthquake, aftershocks, secondary events the effects of additional earthquakes, and
other disasters will threaten survivors as well as search and rescue personnel.
79

The Tanzania armed forces, Police Force and the Fire Brigade will be deployed on State
active duty to support the search and rescue operations.
4.0
MISSION
When authorized and directed by the NDMC, the Ministry of Home Affairs and the ministry
responsible for Defense will conduct search and rescue to save lives in designated disaster areas
in support of regional, district, and local governments as the case may require.
5.0
OPERATIONS
5.1
General
The Ministry responsible for Internal Home and the Ministry responsible for Defense with
support from the DMD, civilian search and rescue task forces, and other national agencies, will
provide support to the region, district and local search and rescue operations under execution
phases, in addition to pre-event activities. The execution phases include notification, initial
response actions, and continuing actions. Because of the urgency to rescue trapped victims, the
first two phases must be accomplished within 72 hours of the occurrence of the disaster.
5.2
Pre-Event Activities
The Ministry of Defense, the Ministry of Home Affairs and supporting national agencies will
plan support for search and rescue, and as required, engage in training and other related
activities in order to expeditiously execute the provisions of this annex.
5.3
Exaction Phases
5.3.1 Notification Phase
Upon notification that a disaster has occurred which requires search and rescue activities, the
Committee will alert the Permanent Secretaries of the Ministry of Defense and the Ministry of
Home Affairs, the civilian search and rescue task forces, and the Permanent Secretary of the
Ministry of Health. It will also alert othe relevant sectoral committees. Each civilian task force
will alert its members regarding activation. The Ministry responsible for Defence and the
Ministry responsible for Internal Affairs will designate a Supported Commander-In-Chief
(CINC) and issue a warning order to all their appropriate components.
5.3.2 Initial Actions Phase
i.
The NDMC, the Ministry responsible for Defense, Ministry responsible for Home
Affairs, and the Supported CINC will assess the situation. Based on this analysis, they
80
will determine the allocation of civilian task forces for the response. The Ministry of
Home Affairs will activate the civilian task forces and direct them to be deployed to the
scene. The Permanent Secretary, Ministry of Defence and the Permanent Secretary
Ministry of Home Affairs will evaluate alternatives and may direct the Transportation
Departments of their respective Ministries to move some civilian task forces by military
aircraft. Other civilian task forces may move to the disaster area by their own ground
transportation.
ii.
The Permanent Secretaries of the Ministry of Defense and Ministry responsible for
Home Affairs will direct the Supported CINC to appoint a Defense Coordinating Officer
(DCO) and conduct search and rescue. The Supported CINC will deploy one or more
tailored Joint Task Forces (JTF) to manage the overall civilian task force effort and
conduct basic and light search and rescue. Each JTF will consist of a number of
Medium and Heavy Rescue Teams, Basic and Light Rescue Units, and service support.
The Medium and Heavy Rescue Team is a team composed of a military unit
headquarters and support units, and provides support for a number of civilian task forces.
The Basic and Light Rescue Unit is a police unit and fire brigade unit (and may be
augmented with nationally sponsored civilian search and rescue specialists tasked to
conduct basic and light search and rescue.
The JTF will receive mission direction from the DCO. The Committee provides the DCO with
the requirements for search and rescue. The DCO coordinates these requirements with the JTF,
which assigns search and rescue units to one or more specific jurisdictions. In each jurisdiction,
one or more Local Incident Commanders will direct the specific operations of the subordinate
units of the JTF.
5.3.3 Continuing Actions Phase
The Committee may provide the DCO with additional requirements or change the priority for
support. The DCO will coordinate with the JTF to provide civilian, police and/or military
search and rescue units to other locations. If requested and made a available, foreign search and
rescue teams will be integrated into the operation. Units will be reassigned to other jurisdictions
as required. Upon completion of the search and rescue mission, the JTF, if not needed for
follow-on missions, will be disbanded.
6.0
RESPONSIBILITIES AND TASKS.
Lead Agencies: Ministry responsible for Home Affairs and Ministry responsible for Defense
The Permanent Secretaries of the lead agencies
6.1
Pre-Event Activities
81
i.
6.2
Monitor the planning, training, and other activities of the CINCs and other Committee
activities.
Notification Phase:
Upon notification of a disaster requiring national response, the Permanent Secretaries may
establish a response operations Centre at the DMD. All Committee member agencies will be
notified and will be prepared to provide 24-hour representation.
6.3
Initial Actions Phase

Assess the situation and allocate civilian search and rescue task forces with the Supported
CINC at the DMD.

Direct the Ministry of Home Affairs to activate civilian task forces as required.

Provide status of the search and rescue operations to the Committee.
6.4
Continuing Actions Phase:
Monitor response efforts.
Provide status reports to the NDMC.
6.5
The Supported CINC
6.5.1 Pre-Event Activities

Prepare Police and fire brigade units to conduct basic and light search and rescue.

Conduct periodic search and rescue exercises including combined exercises with civilian
task forces.

Develop and validate air movement requirements in coordination with the appropriate
DDMT,

Develop plans for transporting by air, civilian search and rescue task forces in coordination
with the NDMC and the Departments responsible for Transport;
6.5.2 Notification Phase:
i.
Augment the Defense Coordinating Officer (DCO) with a Committee member. Provide
a liaison officer to the DDMT.
82
ii.
Upon arrival at the DDMC or at some other location in the area, receive and accept into
the JTF civilian and foreign search and rescue resources.
iii.
Establish communications with the appropriate DDMT. Deploy the DCO and
Committee's staff to link up with the DDMT. The DCO should join the DDMT at the
DDRC to be deployed in the field. Later, the Committee will provide representation to
the DDMT at the DDRC.
iv.
Report to the Permanent Secretaries relating to information received from the disaster
area through subordinate commands as to the magnitude and scope of the search and
rescue requirements. Report immediate lifesaving support being provided by the
subordinate commands.
6.5.3 Initial Actions Phase:
i.
Coordinate with the DDMT to determine requirements for national support.
ii.
At the DDMC, task supporting national agencies will provide available assets as required
and submit unfulfilled requirements to the Permanent Secretaries.
iii.
Recommend to the DDMT and district officials how to use national search and rescue
assets, both military and civilian.
iv.
Link up with departing civilian search and rescue task forces at their aerial Point of
Departure, if possible. If not, link up with arriving task forces at the Point of Arrival and
Provide assignment information upon link up.
v.
Conduct search and rescue and provide liaison teams for the civilian task forces and the
local incident commanders.
vi.
Report the use of national search and rescue assets to the SDRC on Information and
Planning at the DMD and to the Permanent Secretaries.
vii.
Liase with and integrate the use of international search and rescue assets.
6.5.4 Continuing Actions Phase:

Report the use of national search and rescue assets to the SDRC on Information at the DMD
and to the Permanent Secretaries.

Continue to conduct search and rescue.

Redeploy when released by the DDMT.
83
6.6
Transportation Departments of the two Ministries
6.6.1 Pre-Event Activities
Upon receipt of valid movement requirements and departure locations, Develop Special Airlift
Assignment Missions (SAAMs) for the civilian task forces and provide technical assistance to
these missions
6.6.2 Notification Phase.
When tasked by the Supported CINC, be prepared to transport civilian search and rescue task
forces and the JTF. As tasked by the Permanent Secretaries, provide transport to international
search and rescue teams upon their arrival in Uganda.
6.6.3 Initial Actions Phase
As required by the Supported CINC, provide air transportation to deploying military, police
and civilian task forces.
6.6.4 Continuing Actions Phase
As required, provide air transportation to redeploying military, police and civilian task forces.
6.7
The Departments Of Engineering
6.7.1 Pre-Event Activities
Develop a short duration training program for police units, military units in basic and light
search and rescue techniques.
6.7.2 Notification Phase
Upon notification that a disaster has struck which requires search and rescue, alert the search
and rescue resources within the Committee for possible deployment.
6.7.3 Initial Actions Phase
Provide, as requested, engineers capable of advising on structure stability.
Provide available victim detection equipment and operators.
Provide contract support for the leasing of heavy equipment and other requirements.
6.7.4 Continuing Actions Phase
84
Provide available support as requested.
6.8
Support Agencies.
6.8.1 Ministry responsible for Works, Housing and Communication
In all Phases;
i.
Be prepared to provide available aircraft, equipment, materials, and personnel as
requested.
ii.
As required, provide liaison between the Ministry and the Committee's Mobilization
Centres.
6.8.2 Ministry responsible for Health
In all Phases:
i.
Assist in planning, managing and coordinating immediate medical treatment of victims
trapped in collapsed structures and provide assistance in managing human remains
including victim identification and disposition.
ii.
Support civilian search and rescue task forces' Medical Teams and in particular:

Arrange for national civilian medical team personnel that support the search and
rescue task forces and who are not full-time public service employees being
deployed as a part of the national response system.

Develop an appropriate pay scale for civil medical team personnel. Register
medical teams for each civilian task force as a specialized Disaster Medical
System and manage billing and other administrative duties for medical teat
operations.

Ensure deployed medical personnel have an appropriate and valid license to
practice.

Provide liaison to the Committee.
6.8.3 Ministry responsible for Social Services
In all Phases Provide specialized equipment, as available, and other support to the lead agencies
as required.
85
6.8.4 Ministries responsible for Lands, water and Environment.
In all Phases:
i.
Provide sampling and monitoring assistance to search and rescue teams. Identify and
train personnel who can assist police and military units in search and rescue operations.
ii.
Conduct and/or participate in training of the search and rescue task forces to ensure that
the task forces are prepared for working in situations where they may encounter
hazardous material releases.
6.8.5 The DMD/NDMC
6.8.5.1 Pre-Event Activities.

Assist the Ministry of Home Affairs to establish an affiliation of nationally sponsored
civilian search and rescue task forces. The DMD will assist in soliciting civilian task force
participation, developing search and rescue doctrine, standardizing and certifying civilian
task force personnel, equipment, and training modules.

Assist the Ministry of Home Affairs to plan, coordinate, and manage civilian search and
rescue task force activities.

Maintain the National Search and Rescue Response System Database, which includes
current information on the civilian response system. Monitor the readiness of civilian search
and rescue task forces to deploy.
6.8.5.2 Notification Phase:

Notify Permanent Secretaries of the lead agencies and the Ministry responsible for Health
that a disaster has occurred and may require search and rescue.

Alert civilian search and rescue task forces that a disaster has occurred which may require
search and rescue

Assess the readiness of civilian search and rescue teams to deploy.

Provide to the Permanent Secretaries of the lead agencies information received from the
DDMT, and district and local sources as to the magnitude and scope of the search and rescue
requirements.

Notify the Permanent Secretaries of the lead agencies the locations of all Mobilization
Canters other than the DDRC, which the Committee intends to use.
86
6.8.5.3 Initial Actions Phase:
Determine the status of disaster declarations and requests for assistance from affected area(s).
Assess the requirements for search and rescue and pass this information to the Permanent
Secretaries of the lead agencies.
Request operational status of district and local search and rescue capabilities.
In coordination with the Permanent Secretaries, activate civilian search and rescue task forces
and nationalize civilian task force members as required.
6.8.5.4 Continuing Actions Phase:
i.
Serve as the Committee's focal point for requests to provide assistance from national and
international civilian service organizations. Coordinate with the Committee, to obtain
foreign search and rescue teams.
ii.
Continue to provide to the Permanent Secretaries information received from the DDMT,
district and local sources as to the magnitude and scope of the search and rescue
requirements.
iii.
Capture all costs incurred by the civilian task forces prior to attachment and after release
by the JTF. The DMD will provide appropriate reimbursement to the civilian task forces
home station jurisdiction for salaries and other expenses incurred as a result of the use of
these task forces (with the exception of the medical team which will be processed
through the Ministry responsible for Health). Coordinate reimbursement with the lead
agencies. Upon approval, provide reimbursement to the civilian teams.
7.0
COORDINATING INSTRUCTIONS.
7.1
Reports
The Supported CINC will provide the following information to the Committee, initially every 6
hours;
 State capabilities and commitments.
 Quantities and locations of national resources committed to include the
jurisdiction supported.
 Pending requests for assistance.
 Status of communications and transportation requirements.
ii.
The Supported CINC will coordinate requests or changes in requirements for search and
rescue resources or assistance with the Committee.
87
8.0
ADMINISTRATION AND LOGISTICS
8.1
Concept of Support
The Committee with support from the DMD, and other supporting national agencies will
provide necessary logistical and administrative support to search and rescue assets.
8.2
Logistics
The JTF will provide itself and civilian task forces all necessary logistical support using existing
supply systems. The JTF will deploy equipped personnel to conduct search and rescue.
Logistical support includes food, water, shelter, and transportation. Requests for specialized
equipment not available to the JTF will be routed through the DCO's staff to the appropriate
SDRC. Although civilian task forces are capable of sustaining operations for a period of 72
hours, the JTF will support them upon their link-up. While with the JTF, civilian task forces
will receive replenishment to the extent feasible for resources expended during their initial
deployment period. Support provided by local and State resources will be used if made
available. Upon redeployment, the JTF may move to the DDRC or other Mobilization Centre.
Here, the Committee will order any supplies needed by the civilian task forces to replenish their
deployment stocks.
8.3
Administration.
The JTF will provide both itself and the civilian task forces necessary administrative support.
8.4
Funding.
The JTF will record the expenditure of all funds associated with search and rescue operations.
This record will include those expenses incurred by civilian task forces while under the control
of the JTF. The DMD will be responsible for capturing all costs incurred by the civilian task
force prior to attachment and after release by the JTF. The DMD will provide appropriate
reimbursement to the civilian tasks forces home station jurisdiction for salaries and other
expenses incurred as a result of the use of these teams.
9.0 COMMANDS AND CONTROL
The Supported CINC will use existing command, control, and communication systems for
search and operations. Military forces remain under the military chain of command. The
DDMT, district and local officials may provide mission assignments in support of response
operations but do not command military personnel.
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