Response Preparedness Plan Bangladesh: Floods

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Response Preparedness Plan Bangladesh: Floods

Humanitarian Coordination Task Team

Final Draft

June 2018

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Table of Contents

1. INTRODUCTION

2. FLOOD IMPACT MODEL

2.1 Summary of Floods Risk

2.1 Risk Monitoring of Floods

2.2 Consequences of Flood Disaster

3. NEEDS ANALYSIS

3.1 Community Perceptions on Needs

3.2 Analysis of Needs and Key Immediate Needs (KIN)

Immediate (1-2 weeks)

Short-term (2-4 weeks)

Sectoral Needs Analysis (5 weeks to 6 months)

4. RESPONSE CAPACITY ANALYSIS

4.1 Sector/Cluster Response Capacity

4.2 Response Modalities

5. COORDINATION AND MANAGEMENT ARRANGEMENTS

5.1 Humanitarian Coordination

5.2 Private Sector

5.3 Operational Support

6. PLANNING AND ADVOCACY

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1. INTRODUCTION

Bangladesh is one of the most flood prone countries in the world, which is situated in south Asian sub-

continent. Bangladesh has 230 rivers of which 57 are trans-boundary Rivers. Three large rivers systems e.g.

Ganges, Brahmaputra and Meghna, in the world covering a combined total catchments area of about 1.7

million sq. km. extending over Bhutan, China, India and Nepal, flow through this country. Out of these

huge catchments only 7% lies in Bangladesh. Floods are annual phenomena, with the most severe occurring

during the months of July and August. Regular river floods affect nearly 20% of the country on an average,

increasing up to 68% in extreme years.

Bangladesh tries to live with flood and disaster with structural and non-structural measures. Systematic

structural measures began by implementing flood control projects in sixties after the colossal flood of 1963.

Non-structural measures have introduced in seventies which includes early warning system, capacity

building of communities and institutions etc. Flooding is a natural phenomenon, which cannot be prevented.

Complete flood control is not in the interests of most Bangladeshi farmers. The flood control measures and

policies need to be directed to mitigation of flood damage, rather than flood prevention. The basic factors

of Floods in Bangladesh are as follows;

• Bangladesh has to drain out runoff of an area which is 12 times larger than its size. Only 7% of the

combined catchment areas of the Ganges, Brahmaputra and Meghna rivers (i.e., 0.12 Mkm2 out of

1.76 Mkm2) are within Bangladesh. The remaining 93% are distributed over Nepal, India, China

and Bhutan.

• Annually, 1,360,000 million m3 of discharge originate outside Bangladesh. About 85 per cent of

this discharge is generated between June-October.

• The amount of water which passes over the country can create a pool having a depth of about 9

meters.

• Besides water the rivers also carry high loads of silt from the steep and denuded upstream - an

estimated 1.2 to 2.4 billion tons of sediments are carried annually to the Bay of Bengal. The

combined, annual sediment load of the Ganges and Brahmaputra is estimated to, be 1185 million

tons. Their respective share is 38% and 62%.

• About 1/3 of Bangladesh or 49,000 sq. km. area are influenced by tides, in the Bay of Bengal.

The overall objective of this Flood Response Preparedness Plan is to strengthen the existing capacity of the

Government to lead and ensure an effective, timely, and coordinated response that will mitigate the risks

and reduce the impact of disaster on the vulnerable communities.

• To ensure the availability of the stock of assets under government and non-government custody in

the disaster affected area

• To ensure availability of additional assets if needed

• To ensure the safety and security of common people and rule of laws

• To undertake effort in reducing damage of properties and lives

• To undertake every effort needed as per the local disaster management planning

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2. FLOODS IMPACT MODEL

2.1 Summary of Floods Risk

According to the World Risk Report 2016, of 173 countries, Bangladesh is the fifth most disaster-prone

country in the world, particularly susceptible to devastating natural disasters such as flooding. Although

the country and its people have adapted to regular flooding that maintain the equilibrium of a range of

ecological systems, in extreme years, up to 68% of the country have been inundated with devastating

effect. Floods by nature are complex events caused by a range of human vulnerabilities, inappropriate

development planning and climate variability. There are different ways of classifying and categorizing

floods along geographic and geophysical characteristics. In Bangladesh, floods are most commonly

classified as:

• Flash floods, which affect both the hilly

areas of the south east and can cause

landslides and the Haor Basin area of the

north east;

• River flooding, also known as monsoon

flooding, an annual event which can be

extreme some years;

• Water logging, is the name given to the

phenomenon in the southwest of

Bangladesh where river flooding is unable

drain and causes prolonged flooding.

Widespread and prolonged flooding can lead

the population to become extremely

vulnerable and can bring devastation to crops,

livestock, and property as well as disrupt

livelihoods and cause loss of life and

livelihoods options.

In order to identify the kind of floods disaster

most relevant for Bangladesh, a risk analysis was conducted with government officials and members of

the Humanitarian Coordination Task Team (HCTT). Floods were identified, they were ranked twice on

a scale of 1 to 5; once to reflect their perceived impact and the second time for likelihood of occurrence.

Multiplying these two variables gave a value indicating the gravity — low, medium or high — of a given

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risk. The outcome of the risk analysis was a commonly agreed inter-agency Country Risk Profile for

Bangladesh (Figure 1).

Figure 1. Floods Risk Profile: Bangladesh

Imp

act

5. Critical

4. Severe River/Monsoon

flooding

Waterlogging

3. Moderate

Flash floods

Landslide

2. Minor

1. Negligible

1. Very

Unlikely 2. Unlikely

3. Moderately

Likely 4. Likely 5. Very likely

Likelihood

Likelihood:

1= Very unlikely (up to 20% chance of the event happening)

2 = Unlikely (20-40%)

3 = Moderately likely (40-60%)

4 = Likely (60-80%)

5 = Very likely (over 80%)

Impact:

1 = Negligible (minimal impact on overall population)

2 = Minor (minor impact on overall population)

3 = Moderate (moderate impact on overall population)

4 = Severe (severe impact on overall population)

5 = Critical (major impact on overall population)

*Hazards to be cross-checked and referenced with official data and statistics

Scenario 1: Landslide- Based on the landslide experience on 2017

People Affected 79,234 persons including 33,907 persons severely affected among whom 4,028 are

children.

Districts Affected 5 districts affected (Bandarban, Chittagong, Cox’s Bazar, Khagrachari and,

Rangamati) among which Bandarban, Chittagong and Rangamati are the worst

affected. Bandarban and Rangamati are part of the Chittagong Hill Tracts.

Deaths 160 (6 persons missing)

Injured 187 people injured severely and moderately

Main Impact • Destruction of shelters (est. 6,000) and other infrastructures (38 schools

damaged, 11 adolescent clubs severely damaged, 129 para-centers).

• High pressure on medical services.

• Main road access blocked, compromised access to life-saving services including

gender-based violence services.

• Main communication lines broken

• Power lines damaged

• Shortage of fuel, food and water

• Market prices increased

• Food stocks lost

• Livelihood activities hindered

• Heightened risk of harassment and sexual assault

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Scenario 2: Monsoon Floods- Based on the flood experience on 2017

People Affected 3.39 million people severely affected with number of displaced 344,785 people

Districts Affected 31 districts affected in northern part of Bangladesh among which 10 districts

(Kurigram, Gaibandha, Lalmonirhat, Dinajpur, Nilphamary, Bogra, Thakurgaon,

Sirajganj, Jamalpur, Sunamganj) are severely affected

Deaths 84 people

Injured 17,018 people injured severely and moderately

Main Impact • Most (>75%) houses severely damage

• Majority of the traditional houses inundation. Considerable damage to structures

of light to medium construction

• All crops (food and cash crops) have been lost

• Most of the household’s face difficulties to take care of their children

• Electrical power distribution and communication services are completely

disrupted

• Most of the tube well fully or partially damage

• Prices for basic commodities like fuel and water soared in the market due to

scarcity of goods.

• The power shortages hindered access to water.

• Access to health, nutrition assistance, and life-saving intervention was initially

limited due to road damage.

• Protection related concerns have also increased, in particular for children and

women.

Scenario 3: Water Logging- Based on the Flooding & Prolonged Water-logging in South West

Bangladesh on 2011

People Affected Estimated 921,942 people affected

Districts Affected 3 districts Satkhira, Jessore and Khulna

Deaths N/A

Injured N/A

Main Impact • Period of displacement and until rebuilding of houses and livelihoods

commences is predicted to be 3 months or more

• Community short term priority is adequate food support

• Significant losses to main forms of livelihood (agriculture, shrimp cultivation,

fisheries) which could take months to recover

• Inadequate sanitation (for displaced and non-displaced people)

• Inadequate temporary shelter

• Displaced people will need to rebuild homes when the water recedes. Most

houses of displaced people are destroyed

• Water sources in submerged villages require rehabilitation

• Health concerns include snake bite, diarrhea, access to services and pollution of

water sources used for washing

• Significant impact on children’s access to education

• Relief distributions at time of data collection were under-coordinated,

inconsistent and had generally targeted easier-to-reach areas

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2.2 Risk Monitoring of Floods

Flood Forecasting and Warning

Flood Forecast and Warning Centre

(FFWC) Bangladesh generates and

provides flood forecast and warning

information based on scientific principles,

real time data, weather forecast

information and mathematical models.

Purpose of this exercise is to enhance the

disaster management capacity of national

agencies and communities. FFWC, among

other issues, monitors water flow of the

rivers in Bangladesh. Specifically, during

monsoon it monitors rise and fall of the

water levels of various rivers from ninety-

five stations on daily basis. Based on its

findings, FFWC disseminates information about water level in absolute terms as well in reference to danger

level and flood prediction. According to the FFWC “danger level at a river location is the level above which

it is likely that the flood may cause damages to nearby crops and homesteads. In a river having no

embankment, danger level is about annual average flood level. In an embanked river, danger level is fixed

slightly below design flood level of the embankment.” To predict water level conditions, FFWC "collects

measurements of water level and rainfall, satellite pictures and simulates the water level conditions by use

of a numerical model of the Bangladeshi river network. Every day during most of the monsoon season the

model simulates the water level conditions during the previous 7 days (hind-cast simulations) and during

the coming 3 days (forecast simulation).”1 Bangladesh FFWC disseminates these information to all

stakeholders through telephone, cell phone, email, telex and wireless.

Flood Forecast System in Bangladesh: During the wet months of the year, Flood Forecasting and Warning

Centre (FFWC) monitor river water level daily at 90 preselected locations (that include one location of

Sangu river at Bandarban Sadar upazila). They analyse the information and photos received from the

satellites as well. Based on these, the FFWC issue flood forecasting for 1 to 3 days that indicates water level

in reference to predetermined danger level. Presently FFWC is experimenting on giving 5 days forecast.

1 http://www.ffwc.gov.bd/index.php/definitions

Flood

Forecasting

and

Warning

Message

Generator: Flood Forecasting

and Warning Centre (FFWC)

under Bangladesh Water

Development Board

Content: water levels of

various rivers in absolute

terms as well in reference to

danger level and flood

prediction

Channel: website, telephone,

cell phone, email, telex and

wireless

Audience: Government

agencies and non-

governmental humanitarian

agencies

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FFWC also disseminates the flood forecast through its website. On the other hand, it sends this forecast

through e-mail and fax to all concerned departments, district administration’s office and enlisted NGOs.

Upazila Disaster Management Committee receives the message from the district authority and then sends

it to Union Disaster Management Committee. However, the Union Disaster Management Committee may

receive the forecast directly from the FFWC through e-mail if they are enlisted.

Landslide Forecasting and Warning

A major factor of developing the landslide alerting procedure for this system is based on a scientific analysis

and understanding of the “precipitation threshold” for the respective areas. There is no such formal

procedure of warning for landslide. However, on an experimental basis, landslide warning disseminated by

CDMP 2 in the Chittagong Hill Tracts. The project suggested to measure the rainfall regularly, and also

instructed that:

• People need to be alert if the rainfall is recorded 75 mm in 24 hours;

• People need to be prepared for evacuation if the rainfall is 76-100 mm in 24 hours, and

• They have to evacuate to a safer place if the rainfall is 101-200 mm in 24 hours.

Practically landslide occurs due to heavy rainfall. For that reason, local community should be warned if

there is a heavy rainfall. For this reason, the UDMC may measure the rainfall by themselves in the nine

wards of the union. They may also disseminate warnings locally on that basis.

Landslide Warning System in Bangladesh: A precipitation threshold report with details of the threshold

generation process and information. Following are the recommendations emerged from the perception

threshold for Cox’x Bazar and Teknaf municipalities. Following is the detail recommended the threshold

values the following alerting system was developed for the target communities. Community volunteers

were identified from each of the vulnerable communities to orient the Threshold Values, different levels

and actions to be taken for the safety and preparedness of the community.

These rain gauges have three different color codes as shown below:

Color

Code

Level Threshold Values Actions

Evacuate 101-200 mm rainfall recorded within 24 hr. Evacuate to Safer

Place

Ready

76-100 mm rainfall recorded within 24 hr Get ready for

Evacuation

Alert 0-75 mm rainfall recorded within 24 hr Get Alert

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2.3 Consequences of Floods Disaster

• Many floods affected people camp out on roofs, roads, embankments or bamboo structures etc.

Children in these situations are extremely vulnerable and are less likely to receive assistance than

children in flood shelters as they are harder to identify and harder to reach.

• Critical infrastructures and means of communication can be disrupted. Floods make roads

impassable, destroy bridges, increase the danger in travelling on and crossing rivers, and increase the

costs of boat transportation when roads cannot be used.

• Food, in terms of quality, quantity and diversity, can be less than required. Food access hampered

by people being marooned (in their homes/locations which may be on raised plinths or high ground

and surrounded by water) and unable to access markets easily.

• Adoption of negative coping strategies; distress selling of assets; migration to non-affected areas to

work (e.g. as agricultural day labour, rickshaw puller, household help and non-agricultural day labour;

Advance selling of labour; taking loans from NGOs and Mohajans (local money lenders) and

borrowing from relatives; reduction of meal frequency and meal size.

• Water points are inundated and latrines are washed away. In areas where there is little available

land, displaced people will continue to have inadequate WASH facilities.

• Pre-existing high malnutrition rates could increase vulnerability of children <5 in the event of a

disaster, and in light of the high prevailing rates of malnutrition, the nutrition situation could easily

and quickly deteriorate after a major flood.

• The public health needs of the affected population increase as a consequence of flood; Drowning

and snake-bite are the main causes of death during flood. Health risks also are associated with the

inundation of health facilities by flood waters. Increased rates of diarrhea, respiratory infections,

hepatitis A and E, typhoid fever, skin-eye-ear infections, snake-bite, drowning.

• Post disaster disease outbreaks can be triggered by damaged water and sanitation systems; non-

availability of transport in and around all flood-affected areas and disruption of communications

seriously can hinder pregnant women’s ability to access health facilities for childbirth.

• Reduced ability of affected communities to obtain accurate and timely information about the

situation they are facing and thus reduced ability to respond independently and effectively.

• Areas affected by waterlogging, schools might be closed or occupied by IDPs. High risk of school

dropouts in areas affected by waterlogging as children are unable to study at home and due to loss in

family income may be required to seek employment.

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3. NEEDS ANALYSIS

3.1 Community Perceptions on Needs

Community coping mechanism

Bangladesh is well reputed across the global community for her resilience capacity. Community of the

disaster vulnerable Bangladesh has been showing their resilience to cope with the shock of disaster year

after year. Community coping is understandable within the broad social process, as community and

individual apply similar skills, resources, and knowledge and value system to cope with disasters. In

Bangladesh, like past community coping strategy is associated with social capital followed by fellow

feelings during the crisis. It is evident from the past disaster events that, affluent class in the society rush

with assistance what they have within their ability and stand beside the disaster affected community. Not

all copping are positive but some have the negative consequence in mid and long term. Common coping

mechanisms in Bangladesh are:

▪ Distress selling of assets

▪ Migration to non-affected areas to work (e.g. as agricultural day labour, rickshaw puller, household

help and non-agricultural day labour)

▪ Advance selling of labour

▪ Taking loans from NGOs and Mohajans (local money lenders) and borrowing from relatives

▪ Reduction of meal frequency, meal size, food quality and diversity

▪ Engaging in early marriage for young girls in exchange for dowry

Identification of needs based on experiences

Although a community level needs assessment by contacting community radio stations, member agencies

and reviewing newspaper articles to compile what affected people are saying about the floods impact on

their lives. This information may not be representative of all affected communities but it does give some

idea about their priorities and can be seen as indicative. The following priority needs has been identified

based on the previous experience of flood in Bangladesh; The priority overall needs are;

• Food remains the highest priority need of communities. Food distribution should be continued,

well-coordinated and expanded to ensure that the needs of the affected population are met.

• Nutrition interventions in order to support children under the age of 2 to counter the reported

reduction in breastfeeding and monitoring of the nutritional situation over the coming months.

• Emergency sanitation and hygiene responses should be expanded - high risk of disease including

cholera. Gender and protection concerns around bathing and sanitation need to be urgently met.

• Emergency cash interventions (based on market assessments) to meet immediate and livelihood

restoration needs are required.

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• Child friendly spaces and temporary learning centers to address the reduction in school attendance

due to displacement, damage to school buildings and the use of schools as collective centers.

Education and safe spaces for children should be used to address safety issues (road, water and

other accidents related to limited space) that have resulted in deaths and injuries of children.

• Protection concerns should be addressed: Participatory and community mobilization approaches to

deliver relief and recovery interventions should be employed to facilitate this.

Recovery needs

• Shelter reconstruction/repair considering “build back better”, and disaster resilience.

• Rehabilitation of water sources and latrines in areas of return.

• Rehabilitation of collective centers, particularly schools, so they can rapidly return to normal use.

• Food security and livelihoods support will be needed until the next harvest (April 2012)

The following diagram showing the needs based on 2017 flood experience in Bangladesh;

Flood Inundation

Fields

• Crops

Localities

• Homestead

• Tube-well

• Latrine

• Clinics

• Schools

• Market place

Roads Embankments Railway tracts

Difficulties faced

• Staying at home

• Cooking meals

• Collecting water

• Using toilets

• Maintaining hygiene

• Rearing animals

• Getting medical care

• Continuing education

Urgent need

• Safe water – install temporary shallow tube-wells by the roadside

• Sanitation facility - establish hygienic latrines in dwelling areas;

• Personal hygiene – supply hygiene kit;

• Medical care – run outreach clinic;

• Education in emergency – set temporary learning session;

• Child protection – setup safe space;

• Livestock rearing – supply fodder;

• Shelter – supply tent to displaced households

Difficulties faced

• Going to work

• Going to market

• Going to school

• Going to health center

Difficulties faced

• Reduced income

• Food insecurity

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3.2 Analysis of Needs and Key Immediate Needs (KIN)

Building on the results from the community perception exercise and the disaster impact model, a needs

analysis was undertaken to better understand prioritized humanitarian gaps, based on the results of the

planning workshops, interviews with stakeholders and a desk-review of previous disaster responses in

Bangladesh. While the bulk of the response will be led by the Government of Bangladesh, working with

national civil society organizations, including the Bangladesh Red Crescent Society and various private

sector organizations, the support of the international community will be required to address gaps in the

initial phase, provide targeted support to vulnerable groups and provide technical advice in specific areas.

For planning purposes, the response has been divided into two phases:

Immediate Phase I (0-2 weeks):

• Following an inevitable initial period of confusion and lack of access to affected people, the

Government will manage the overall situation and begin providing basic assistance.

• Many vulnerable communities will be largely dependent on their own resources for much of this

period.

• International and national partners, will release and begin distribution of in-country resources and start

to scale up their activities. Limited international resources,

(Please provides the specific points that has practically feasible for each of the cluster/sector in line

with Government agencies mandates)

Short-Term Phase II (3-4 weeks):

• Asset-transfer was predominantly the Government’s strategy for providing humanitarian assistance,

which included cash grants and distribution of rice, corrugated iron sheets, housing grants, blankets

and warm clothes amongst the disaster affected people.

• Humanitarian community both national and international mobilize quick resources based on the Joint

Needs Assessment (JNA) from institutional and non-institutional donor complementing the

Government assistance.

• Humanitarian community worked with the Government finalize the multi-purpose cash package

guidelines. Based on the market functionality humanitarian community will provide unconditional

cash grant to the vulnerable population complementing the Government effort.

(Please provides the specific points that has practically feasible for each of the cluster/sector in line

with Government agencies mandates)

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Sectoral Needs Analysis (5 weeks to 6 months)

(Please provides the specific points that has relevant to the each clusters/sector including cross

sectoral elements that has promoted by GoB and cluster to support affected community. Each

sections needs to provide key actions for better understanding)

Logistics, communications and Search and Rescue

• Support will be needed for logistics coordination, information management, and civil-military

coordination

Displacement and protection (Emergency Shelter, Food Security, GBV, Child protection)

Shelter and NFI: Shelters/houses in the flash flood prone rural areas are not designed to withstand flash

flooding, as they are mostly kutcha housing. The flash flooding season begins before the monsoon;

therefore, people who experience damage to their houses during this time are exposed during the

monsoon season unless repairs can be managed quickly. Many displaced people resort to living under the

open sky for protracted periods.

Embankments have encouraged more people to live in close proximity as the land is fertile; though this

means that people are increasingly living in highly vulnerable areas, as embankments often break and allow

for inundation of the nearby areas.

In the Haor Basin, people live in hatis, which are the highest peaks of the basin, so that their houses will

not be inundated during flash flooding season. The density of population of the hatis are high and houses

that are located on the edge of the peaks are continually at risk of inundation and erosion, when floodwater

fills up the basin. Families in these homes subsequently face the on going risk of being displaced. In 2012,

it was estimated that 3,000 shelters were destroyed or partially destroyed as a result of the flash flooding

(Haor Basin JNA 2012). In case of major inundations, most families temporarily migrate to nearby schools

where they often stay for several weeks.

Food Security: Flooding and heavy rainfall often cause damage to crops, seeds and agricultural land; often

affecting the quality and quantity of the harvest and exacerbating food insecurity locally, as well as

nationally as a big portion of the rice of national requirement is fulfilled from the crops of Northern

Bangladesh – which is flooded annually. As the food supply declines, markets face disruption.

Subsequently, livelihoods are disrupted. Inundation can also cause loss or damage to stored foods (rice,

pulse, wheat etc.). A combination of bad harvest and loss of stored foods can cause starvation.

The Haor is subject to sudden flash floods before the main monsoon season and farmers report that they

lose their total rice crop in one year out of four. This risk of total loss means farmers perceive it unwise to

invest in high levels of agricultural inputs. Early flash flooding can have a devastating impact in the Haor,

as there is only one Boro crop planted annually (Haor Basin JNA 2012).

Protection: During periods of flooding children are more vulnerable to exploitation and abuse as they are

often found taking shelter with strangers, or found separated or unaccompanied. In the event of flooding,

the affected population often shelters on higher ground or on embankments to wait until floodwaters recede.

Children in these situations are extremely vulnerable and are less likely to receive assistance than children

in flood shelters are, as they are harder to identify and harder to reach. This also creates a dangerous

situation for children, as they are at risk of falling in the water when living on narrow strips of land (Plan

International 14/08/2017; WHO 2011).

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Damage to power sources and loss of electricity raise protection issues, particularly for women and children,

who are at higher risk of being exploited in poorly lit areas. Women and girls often avoid using latrines, as

they do not feel safe using non-gender specific facilities. As a result, they often resort to open defecation

near their shelters, or control their food and water intake in order to avoid having to use unsegregated

WASH facilities; this raises further health concerns.

Health and Nutrition

Health: People living under the open sky are especially vulnerable to the spread of diseases. Road-side

shelters, or Beribandh, are often particularly unhygienic. The number of people suffering acute watery

diarrhea, skin-eye-ear infections, and other waterborne diseases, is likely to increase. Prominent causes of

death and injury are electrocutions from power lines, collapsing walls, snakebites, and drowning.

In the medium-term, infected wounds, complications of injury, and communicable diseases are indirect

effects of flooding. In the long-term, chronic disease, disability, poor mental health, and poverty-related

diseases and malnutrition are exacerbated by periods of flooding (NIH 2010).

Health risks also are associated with the evacuation of patients, loss of health workers, and loss of health

infrastructure including essential drugs and supplies.

The adverse health consequences of flooding are complex and not always directly attributable to the flood

event itself. ICDDRB identified Dhaka’s continued population growth, which has forced increasing

numbers of low-income households to live in areas with poor water and sanitation, as a contributing factor

to waterborne diseases during a flood event (ALNAP 2008)

Nutrition: In light of the high pre-existing rates of malnutrition across the country (54% stunted, 56%

underweight, 17% wasted), the nutrition situation can easily and quickly deteriorate after a disaster (FAO

2010). Factors such as insufficient hygiene and inadequate shelter and safe spaces for women to breastfeed

may negatively impact nutrition. The main causes of under nutrition are inadequate hygiene (hand washing)

and inadequately diversified diets of mothers and young children (KI, Nutrition cluster, 2014). In a disaster,

food crops and markets are destroyed and/or disrupted resulting in decreased access to diversified diet

leading to low micronutrient intake (KI, Nutrition cluster, 2014).

Summer months see higher levels of malnutrition, connected with restricted access to food as a result of

seasonal unemployment. This matches the flooding season, which can lead to increased diarrheal diseases,

which in turn is linked to increases in malnutrition.

WASH

Toilets are often washed away. Loss of latrines may result in open defecation; individuals using unimproved

sanitation methods are at higher risk of health issues. The risk of disease is aggravated in densely populated

areas (WASH Cluster Technical Working Group 01/10/2017). The water becomes polluted as it mixes with

solid waste, clinical waste, silt, contaminants, domestic wastes, and other human activities that increase the

risk of waterborne diseases.

Flooding can be caused by either freshwater from the river (in the North of Bangladesh) or saltwater from

the sea (in the South of Bangladesh). Each presents specific problems: freshwater carries suspended solids,

which leaves mud and soil behind when the floodwaters recede, and saltwater can make water sources

unsuitable for use because of the salinity of the floodwaters. There is no simple treatment method that can

be used to remove salinity from salt water (WASH Cluster). However, often people resort to drinking this

water as drinking water is harder to find in areas impacted by heavy flooding.

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Water supply in the hilly areas of the Chittagong Hill Tracts is already problematic; locals ascribe the

increasing water shortage to various reasons, from deforestation, to inward migration, to low and erratic

rainfall, as well as their own method of farming – which involves felling trees and clearing land by burning

the lower vegetation. Flash floods and adverse landslides further compound this.

Education (materials and supplies, technical assistance):

School buildings are regularly used as collective centers to accommodate people. Schools often provide

shelter to people that are displaced as a result of flooding; such a situation is often prolonged as people are

unable to repair shelters immediately. As a result, these schools are vulnerable to damage to their

infrastructure, learning environment and WASH facilities.

Reduced access to education, as well as loss and damage of learning materials and damage to physical

structure leads to irregular attendance. Students often drop out as a direct result of floods; for example,

students drop out due to temporary relocation because of the floods, engagement in family livelihood

activities immediately after floods.

There is correlation between remoteness, social deprivation, and out of schoolchildren rates. Education in

the Haor Basin is disrupted each year during the flash flooding period, as parents do not let their children

attend school due to fear of drowning (Haor Basin JNA 2012).

Early Recovery (Livelihoods, Environment and social cohesion)

Livelihoods: Most people living in flood prone areas rely on agriculture and fishing for their livelihoods

(see key characteristics below). Agricultural laborers experience seasonal unemployment, during the

monsoon season, due to inundation of fields and low demands for labor. This is further aggravated by low

wage opportunities in the lean season (September to October), along with high levels of debt post- disaster.

The impact of flooding on livelihood opportunities further aggravates poverty and vulnerability. Livestock

is an important livelihood alternative for the nomadic and for small farmers, as it provides employment

opportunities and a regular monthly income through the sale of meat and dairy products (GoB 2008).

However, floods often damage fodder, and people are unable to properly feed their livestock.

The Haor Basin is a saucer shaped depression, used during the dry period (December to Mid-May) for

agriculture and as a fishery area during the wet period (June to November) (Harvard 2013). Flash floods

that come from the steep uplands adjacent to the region in the Assam and Meghalaya hills range in India

cause immense damage to standing Boro crops (single crops), livelihoods, and properties every year

(BWDB 2014).

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4. RESPONSE CAPACITY ANALYSIS

Cluster Lead Response Capacity

Short Term Mid to Long Term

UNDP Pool of human resources ready

(SURGE Capacity) to be deployed for

needs assessment

Updated members ist shared in the

cluster website and District Focal

Persons for needs assessment identified

and utilized during JNA

To implement interventions in the

field of Early Recovery, UNDP

engages (national and international) to

carry out said interventions. UNDP

has pre-qualifies NGOs and TRMEs

(Training, Research and Monitoring

Establishments) for emergency

response and early recovery. The pre-

qualification of NGOs has been

undertaken so that UNDP as a cluster

lead in a position to respond quickly to

disasters and is capable of engaging

suitable NGOs in a timely manner to

respond to humanitarian and early

recovery needs of the affected people.

NGO Roster information has been

updated on six-month basis.

Development of Phase III Assessment

Methodology and Tools updated based

on specific hazards and Implement post

disaster needs assessment when

necessary

Early recovery guiding principles

developed and Catalogue on

Standardized Early Recovery practices

developed and shared among members

4.1 Sector/Cluster Response Capacity

In 2012, a Disaster Management Act was passed, creating the framework for Disaster Risk Reduction

(DRR) and Emergency Response Management (ERM) in Bangladesh. The National Disaster Management

Policy is a strategic policy document describing the broad national objectives and strategies for disaster

management. The 2010–2015 National Plan for Disaster Management outlines the systemic and

institutional mechanisms for DRR and ERM. The guidelines for government at all levels (Best Practice

Models) are available to guide the Government’s DRR and ERM. The Standing Order on Disasters (SOD)

and the disaster management guideline 2015 outline the national management arrangements and describes

the detailed roles and responsibilities of the relevant government bodies at the central and local level (SOD

2010).

The Local Consultative Group Mechanism (LCG) is one of the key structures through which the

Government engages in dialogue with development partners. There are 18 thematic LCG Working Groups

(in addition to the LCG Plenary) including the Disaster and Emergency Response (DER).

Within the LCG DER, the Humanitarian Coordination Task Team (HCTT) is a working group which

provides an operational level forum for coordinated disaster preparedness, response, and recovery across

sectors. The HCTT acts as an advisory group to the DER providing advice, taking forward agreed actions

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on behalf of, and feeding back to, the wider LCG DER group. At the national level, the Government of

Bangaldesh is taking steps to activate a National Emergency Operations Centre (NEOC), based in Dhaka

(see Coordination and Management Arrangements).

(Please summarize the Government and humanitarian community capacity to address the 3 types of

scenario based on the 4w Metrix and response capacity Metrix)

Logistics, Communications and Search and Rescue

Relief Goods and Services - Activity Caseload#

Technical Assistance

Displacement and Protection (Emergency Shelter, Food Security, GBV, Child protection)



Health and Nutrition



WASH



Education (materials and supplies, technical assistance)

Relief Goods and Services – Activites Caseload#


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Early Recovery (Governance, livelihoods, environment and social cohesion)


• Livelihoods: Livelihoods of the most affected populations are

supported through protection of livestock, support to prepare for the June-

July planting season, capital and good to restart business and enterprises of

men and women; food and cash transfer programmes, ensuring equal access

for women and men.

Governance: The institutions involved in human development are restored in

a manner that quickly enables them for service delivery.

Environment: Fragile ecosystems are protected while planning for

reconstruction.

Social Cohesion: Special institutional mechanisms are put in place to ensure

minimization of risk to the most vulnerable sections of the communities.

L1 and L2 Disasters

4.2 Response Modalities

EARLY RECOVERY

Criteria of selection:

▪ People who lost their house in the disaster events and who have been displaced,

▪ People who are residing in the worst affected districts

▪ Female headed households with several dependents,

▪ Families having disabled and or elderly family member’s dependent on the main income earner, landless,

daily laborers, lost small businessman and SMEs

▪ Families having school-going children at risk of school non-attendance and at risk of Sexual Gender

Based Violence (SGBV).

Cluster objectives:

1. To meet critical infrastructure needs of the most vulnerable population (including earthen

roads, small embankments, dykes, schools and any other community structures that have been

affected)

2. To ensure immediate resumption of off-firm livelihood (small businesses, SMEs) activities

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3. To identify response for governance and protection needs and support short term and long term

recovery

Targeting

1. Select the Unions with the highest number of severely affected HHs

Package

1. The package as defined by the livelihood sector (BDT 8000per HH) should serve

2. To link with MoDMR guideline (Cash for work, BDT 200 per man days)

5. COORDINATION AND MANAGEMENT ARRANGEMENTS

(Please provides the specific points that relate to the sectors/cluster coordination mechanism)

5.1 Disaster Management Coordination in Bangladesh (Work in Progress)

Coordination Mechanisms

Three (3) fora coordinate disaster response in Bangladesh at the national level: The National Disaster

Management Council (NDMC), responsible for strategic decisions for disaster management; the Inter-

Ministerial Disaster Management Committee (IMDMC), responsible for coordination across ministries;

and the National Disaster Management Advisory Committee, responsible for policy development and

advice. The NDMC is the highest level decision-making body for disaster management in Bangladesh.

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Following the 2015 Nepal Earthquake, the GoB decided to establish a National Emergency Operation

Centre (NEOC) to respond effectively to the severe disastrous situations of the unanticipated event. In 2015,

a National Emergency Operations Center (NEOC), also termed National Disaster Response Coordination

Center (NDRRC), was established at the Secretariat of the MoDMR as a coordination mechanism for

disaster response. Emergency operations centers can also be activated at the district levels for the

management and coordination of the response through strategic deployment of staff to the field as well as

coordination with various clusters and working groups. Ministry of Foreign Affairs (MoFA) leads the

coordination of incoming humanitarian assistance. It coordinates requests for international assistance as

directed by the government and NDMC.

Humanitarian Coordination in Bangladesh

In 2012, a humanitarian coordination system in Bangladesh was established following a consultative

process to review disaster preparedness and response arrangements. The review was jointly led by the

MoDMR Secretary and, by the UN RC under the auspices of the Local Consultative Group Disaster and

Emergency Response (LCG DER) itself co-chaired by the UN and the MoDMR. This process resulted in

the establishment of the Humanitarian Coordination Task Team (HCTT) under the LCG-DER and, of nine

(9) humanitarian clusters and several working groups.

Since its inception the HCTT has played an important role in coordinating humanitarian action. It has

overseen responses to a range of disaster events in Bangladesh. In addition to its coordination function the

HCTT plays a vital role in formalizing and strengthening the relationship between the Government of

Bangladesh and national and international humanitarian organizations. Today, the HCTT comprises an

additional cluster, the GBV cluster established in 2016, 3 representatives of the national NGO coordination

platform led by DDM, 3 representatives of international NGOs representing the INGO emergency sub-

committee and two representatives of the donor community. Working groups are: CwG, Shongjog, NAWG.

Discussions are on-going concerning the establishment of the ETC Cluster. Moreover, BDRCS is being

consulted for leading a new IMWG currently inexistent. IFRC is the co-lead of the Shelter cluster.

Reinforced National Humanitarian Coordination Architecture

To reinforce national ownership and national direction to HCTT’s work, proposals were made in order to

strengthen the humanitarian system, especially in preparation for a response to a large-scale disaster

response such as an earthquake in an urban centre.

a) Revise membership of the National Disaster Management Committee (NDMC)/Inter-Ministerial

Disaster Management Committee (IMDMC) to include the UNRC2 and BDRCS’s chairman for

supporting the overall guidance to the HCTT. That would foster strategy engagement at the

highest level as the NDMC is chaired by the PMO and comprises key authorities (including

MoFA).

b) Integrate military-to-military and civil-military coordination mechanism in the overall architecture;

c) Improve dialogue and coordination within the donor community;

d) Strengthen key clusters and inter-cluster groups3 by promoting the recognition of their added-value

by the GoB;

e) Integrate in the coordination architecture key tools and services that might be requested by the

national authorities in case of large-scale natural disasters (i.e. OSOCC, USAR, EMT);

f) Adapt and decentralize the humanitarian coordination architecture that takes notably in

consideration the specific context of intervention (e.g. CHT Districts)

2 To include also BDRCS Chairman 3Emergency Communications Group (ECG); Cash Working Group (CWG); Information Management Working Group; Private

Sector Liaison, Gender Working Group (GWG), Community Engagement Working Group

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The HCTT advocated for the inclusion of the cluster system and the HCTT platform in the current revision

of the Standing Order on Disasters (SODs). In addition, the need was highlighted to organize high-level

quarterly strategic meetings between NDMC members (that would include the UNRC) with a view to

reinforcing humanitarian engagement in support of key national authorities4. The elements of the proposed

structure are outlined below. The HCTT advocated for the strengthening of Humanitarian Civil-Military

Coordination. The PMO has recently established a Consultative Group on Civil-Military Coordination to

be led by MoDMR and AFD to facilitate interaction between humanitarian and military actors in disaster

response, and to guide the development of policy and strategic advice.

Some challenges related to Humanitarian Coordination:

▪ The DM system of Bangladesh is developed based on poverty-focused interventions under the

regular safety-net programme. Considering that the MoDMR-managed national relief fund has not

yet been established as per DM Act, a nationally funded response to a large-scale disaster is possible

through the Prime Minister’s Relief Fund.

▪ There is a clear and explicit legislative and policy framework which provides guidance for strong

inter-ministerial coordination but in reality MoDMR does not convene all relevant ministries for

coordination.

4 Ministry of Disaster Management and Relief (MoDMR) - Ministry of Foreign Affairs (MoFA)

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▪ National emergency response capabilities are positioned in Cox’s Bazar, limiting possible

interventions in other districts in the months to come. Reestablishing pre-crisis capabilities is costly

and time-consuming.

5.2 Private Sector (Work in Progress)

The HCTT will discuss with key private sector partners on the results of Key Immediate Needs and

inclusion of their unique assets and capabilities to be identified in the Preparedness Plan process. The HCTT

will consider adding private sector members to its composition so as to ensure their inclusion in the further

exercise of the Floods preparedness plan.

5.3 Operational Support (Work in Progress)

(Please explain each cluster WGs operational support procedure to the humanitarian community

that complement Government effort)

Information Management (cluster will describe its IM process)

The National Disaster Response Coordination Center (NDRCC) within MoDMR are performing the role

of information centre. There are also specific information centres such as the Health Crisis Management

Centre and Control Room within the Directorate General of Health Services, which collects countrywide

critical health-related data. Situation Reports (SITREPs) are issued by DDM,

Needs Assessments (NAWG and Clusters will describe their process of needs assessments)

NDRCC critical information product after a disaster is a rapid and consolidated assessment of the losses,

damages and needs. The Government of Bangladesh produces the long-established SOS and D forms in

this regard, and the HCTT conducts a Joint Needs Assessment (JNA) in close collaboration with the national

authorities. The Joint Needs Assessment (JNA) methodology to be led by the Government operated in

several key stages: Phase 0 for preparedness for assessments; Phase 1 in the initial 72 hours; Phase 2 during

two weeks after a disaster event. The JNA focuses on humanitarian needs and ensures that the specific

needs of affected people are responded to in real time and as part of a process of joint assessment and

response. As illustrated below (Figure 10), the JNA uses quantitative data from the SOS-Form and D-Form

received from the respective DMCs. Based on the Phase 1 and Phase 2 Joint Needs Assessment findings,

decision is made whether or not to undertake further in-depth sector specific needs assessment.

Response Monitoring (cluster will put their response monitoring efforts)

Monitoring will build upon a Joint assessment approach put in place in the first weeks of the response. The

HCTT will set up and manage a Humanitarian Response Monitoring Framework. The monitoring

framework will outline the process, timing, and responsibilities for the gathering and analysis of data on

the collective humanitarian response; set forth scheduled intervals for reporting key findings; and provide

evidence for HCTT decision-making and corrective actions.

At the inter-cluster level, outcome and output indicators will be tracked as well as progress against strategic

objectives of the response will be measured. Cluster coordinators will aggregate project outputs and assess

outcome indicators and measure progress towards cluster objectives, and individual organizations will

23

register their projects’ output results and feed them to the respective clusters. Analysis of monitoring

information will feed into a number of reporting products, including the Humanitarian Bulletin, the

Humanitarian Dashboard and the Humanitarian Needs Overview.

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7. PLANNING AND ADVOCACY (Work in Progress)

(Please provide the cluster and its counterpart effort and process of capacity building, resource mobilization as

well as advocacy to support disaster affected community)

Capacity Building for National Counterpart:

(Please highlight cluster members’ initiatives/actions/programs to strengthen capacities of cluster

national counterpart for increased effectiveness and efficiency of GoB-led response).

Resourcing:

Mobilising financial, material and human resources timely for response and recovery interventions is

imperative for the Government and humanitarian actors such as local and international NGOs, UN agencies,

International Federation of Red Cross and Red Crescent Societies (IFRC) and Bangladesh Red Crescent

Society (BDRCS). The 2012 Disaster Management Act constituted Disaster Management Fund at national

level (National Disaster Management Fund) and at district level (District Disaster Management Fund).

Resource also Mobilized from prime Minister’s Relief Fund, private sector and individual’s contribution.

Beside this as per the SOD, Ministry of Finance ensures quick allocation of fund meeting Relief and

recovery as per request of NDMC during any disaster.

The Government has operationalised the Humanitarian Assistance Programme Implementation Guidelines

2012-13. The guidelines helped the Government to clearly define the objectives of response interventions

and to determine the nature of the support packages that affected people should receive. The guidelines

listed six types of humanitarian assistances: Vulnerable Group Feeding (VGF), cash grant, rice, warm

clothes, CI sheet and housing grants. The guidelines also described criteria for eligibility to receive support

as well as the quantities of each type of support for a beneficiary. This helped the MoDMR and the

Department of Disaster Management to allocate financial and material resources promptly, and enabled the

Local Administration to determine and deliver support package to affected people quickly.

Office of the UN Resident Coordinator Bangladesh support HCTT to coordinate the development of

Humanitarian Response Plan and CERF submission. The fundraising strategy will include advocacy to

maintain donor awareness of Bangladesh disaster risk profile, so that donors are well positioned to make

swift funding decisions when needed.

Advocacy:

Advocacy efforts in the aftermath of a large-scale disaster will be guided by the priorities and commitments

outlined in Agenda for Humanity, especially those under Core Responsibility 3 “Leave No One Behind”.

As part of its advocacy work, the HCTT will communicate with Government counterparts to ensure that

sufficient attention is given to meeting immediate humanitarian needs before the decision is taken to shift

focus to disaster recovery activities.

Documents

Response Preparedness Plan Bangladesh: Floods