Fielding of Consultants 04 September November February July 2004

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Veronica Mathews
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1 TECHNICAL ASSISTANCE COMPLETION REPORT Division: AFRM TA No. and Name TA: AFG 3875: Disaster Preparedness and Management Capacity Building Executing Agency: Source of Funding: TASF Department of Disaster Preparedness DDP Date Approval 30 May 2002 Description Signing 10 July 2002 Fielding of Consultants 04 September November February July 2004 Amount Approved: USD Revised Amount: TA Amount Undisbursed USD 20, Original 31 July 2003 Original 31 July 2003 TA Amount Utilized USD 479, Completion Date Actual 31 January 2005 Closing Date Actual 31 January 2005 In the Spring of 2002, Nahrin District of Baghlan province was hit by three major earthquakes, killing 1,800 people and leaving thousands more homeless. During the same period, flash floods in Western Afghanistan washed away more than 500 homes while the north suffered the worst infestation of locusts in 30 years, destroying all crops and affecting the livelihoods of thousands. Between 1970 and 1998, the country experienced 57 large-scale disasters, with a total number of persons killed estimated at 19,630 and affected persons estimated at 3,361,178. Natural disasters can cause heavy losses to capital assets and can have particularly severe and long lasting effects in less developed countries. With an estimated per capita GDP of only $167, Afghanistan is most vulnerable and least resilient to the physical, economic and social shocks of such large-scale disasters. It also has a debilitating effect on poverty reduction efforts undertaken by the Government or the donor community. Recognizing this, in the aftermath of the Nahrin earthquake, ADB offered technical assistance (TA) in disaster preparedness and capacity-building to the Islamic Transitional State of Afghanistan. Objectives and Scope The main purpose of the TA was to support capacity building in the Office of Disaster Preparedness (ODP), so that it may become a credible coordination agency and a focal point for multi-disaster efforts and issues in Afghanistan, from prevention and mitigation to relief and reconstruction. The TA's focus has been on strengthening the institutional arrangements for effective disaster risk and on supplementing this with capacity building activities focused on the ODP, and key line ministries. The TA s scope included provision of expert advice and training to support: (i) assessment of institutional and skills gap/training needs, (ii) assessment of database and information system needs, (iii) establishment of a national disaster committee, (iv) preparation of a framework for national disaster preparedness and, (v) development of action plans for natural disasters, and (vi) enhanced awareness and readiness among key government officials to carry out further capacity building and specific action plans. Evaluation of Inputs The TA was formulated in the aftermath of a major disaster and in a period of transition for cessation of conflict. The TA goals and objectives exceeded the level of funding available and the allocated time horizon of one year. Time lags between intervention and reaction are greater than normal in post-conflict situations. As a result, the TA design and terms of reference of various experts were eventually reformulated based on a work plan prepared in close consultation with the national counterparts. Expert inputs were provided by the International Institute for Disaster Risk Management, a Manila based organization. The quality of inputs into various activities and the on-going technical guidance and supervision of the consultant/team leader throughout the implementation period were found to be satisfactory. The consultant/team leader was able to work in a challenging cultural and political situation, and raise the visibility of the TA and awareness of the importance of disaster risk reduction to the level of the President s Office. The consultant/team leader was also instrumental in engaging the active support and guidance of the Vice President. Although the review missions were intermittent, they were output oriented and technical guidance was provided continuously by the team leader to the domestic consultant and ODP. A consultative and skills transfer approach was taken in each activity to ensure ownership of key stakeholders of the outputs and outcomes, and opportunity provided to staff of the restructured Department of Disaster Preparedness (DDP) to practice their new skills as facilitators and trainers. The TA was supervised first by SAOC staff and later by the Country Director, AFRM. Evaluation of Outputs

2 2 Implementation began in October 2002 and was completed in December The ODP was established by decree as an independent department in June 2003 with its own budget. The DDP was equipped with furniture, office equipment and a training facility. A national strategy was formulated in 2003 using a step-by-step process combining consultations with key stakeholders, advocacy at the level of the Cabinet, and skills and knowledge transfer. The strategy was endorsed by the Ministerial Advisory Committee (MAC) of the Independent Administrative Reform and Civil Service Commission (IARCSC) in May 2004, and DDP fast-tracked under the Priority Reform and Restructuring (PRR) process. DDP s PRR2 application was approved by the MAC in January The TA s capacity-building component was implemented in cooperation with the International Institute for Disaster Risk Management. This covered a wide range of technical, managerial, executive development, and on-the-job training activities, as well as custom-designed and facilitated study tours to Japan and the Philippines. The TA produced a final report that contains some useful lessons learned for similar projects. ADB s confidence building efforts among donors has resulted in the mobilization of significant resources for follow-on programs. The Government s appreciation of ADB s contribution in laying the foundation for comprehensive risk reduction is reflected in its recognition of ADB as the lead partner in the institutional development of DDP and the National Commission, and the endorsement of the disaster component under the Public Administration Reform Program TA. Overall, the quality of technical support, training activities, and assessments were found to be good, and the TA met expectations in all its component parts. Overall Assessment and Rating Successful Major Lessons Learned -A rolling philosophy, longer time horizons and flexible implementation arrangements were found to be essential in the context of Afghanistan which was undergoing a transition from conflict to peace and development. - Multiple changes in project approaches can impact on TA performance and institutional memory. Where possible, it is advisable to keep turnover to a minimum. - Champions at the Cabinet level helped raise the visibility of the TA. These champions helped raise awareness of the importance of the sector to national development, and impacted positively on the ability of the TA to achieve its results. This is an important lesson for other TAs. -The use of a range of technical resources from a specialist organization such as IDRM has meant that the TA had access to a network of activities, experts, networks in the region and to administrative and logistical support. This approach helped avoid duplication and make efficient use of all available resources in support of the TA goals. Recommendations and Follow-Up Actions Capacity-building projects to support the technical assistance requirements of the national strategy will continue to be provided by UNAMA and UNDP, and the German Government. Close monitoring of the recommendations made under the Priority Reform and Restructuring application (PRR2) is highly advisable to ensure that the gains made by the TA 3875 are sustainable. Prepared by Designation Brian Fawcett Country Director, AFRM

3 3 Annex Annotated Technical Assistance Framework Goal Reduction in the severity of impact of disasters in Afghanistan Improved preparedness and speedier and better orchestrated response to disasters Comments from consultant/team leader: The TA seeks to reduce the severity of the impact of disasters in Afghanistan through the establishment of recognized national disaster risk institutional arrangements; the level of priority given to the subject in the national development agenda; the establishment of a small cadre of trained officers; the availability of a national disaster risk plan; an established and equipped training facility and the active engagement of key sectoral ministers in the development of the national policy and laws. However, the current level of funding and time horizon may be inadequate to ensure that the required capacity is established within the key sectoral ministries to perform their roles and responsibilities, nor for essential areas such as emergency operations and coordination; and adequate capacity for first response; early-warning and community preparedness capability; hazard and vulnerability mapping and information systems; emergency communication systems, among others. These constitute integral parts of a well managed and effective multi-sectoral disaster risk capability necessary to genuinely impact on disaster risk reduction in any country. The significant loss of social, intellectual, economic capital resulting from years of protracted conflict; the transitional nature of the present government; security issues outside of Kabul; legitimacy and state control of the Afghan territory; center-provincial relations; capacity at the provincial level; all these constitute inherent risks for the sustained effectiveness of the TA, and for the successful completion of the TA goals and objectives. Purpose Improved capacity of the Office of Disaster Preparedness (ODP) as a credible coordination agency and the focal point for multidisaster-related efforts and issues in Afghanistan Enhanced coordination among government and nongovernment agencies Improved awareness, knowledge and capacity of ODP to handle future disasters Tripartite meetings among ODP, the consultant team, and the Asian Development Bank (ADB) TA progress reports Minutes/records of committee meetings The Government will approve the outputs of the technical assistance (TA) and take over and implement its recommendations

4 4 Consultant/Team Leader s comments: The purpose of the TA was achieved. The ODP has achieved its autonomy from General Administrative Affairs; gained the interest and renewed confidence of donors; gained a significant level of visibility on the national agenda, at the Cabinet level; and embryonic level engagement of key member ministries has been mobilized. At the start of the TA, the situation was vastly different- ADB being the only donor of any significance at ODP since October 2002, it would be reasonable to suggest that the current credibility and confidence enjoyed by ODP can be attributed in large part to the activities and advocacy of the TA. Outputs Establishment of a national disaster committee The committee and its coordination mechanism are established ADB participation in tripartite meetings and TA progress reports. Efficient communications and feedback among relevant agencies are feasible at the national and provincial levels Enhanced awareness and readiness among key government officials and beneficiaries Awareness and dissemination workshops are effective Evaluation by counterpart government staff, workshop participants, and beneficiaries Qualified counterpart staff are available in ODP for knowledge transfer Consultant/Team leader s comments: The necessary framework, strategy and plans were formulated in a participatory manner in consultation with all key stakeholders. Further strengthening of this output is earmarked under the Public Administration Reform Program TA with IARCSC. This will help to keep up the momentum created by the TA and to ensure the sustainability of the impact of this initial assistance. Activities Assessment of institutional and skills needs, and database information system The assessments are completed ADB participation in tripartite meetings and TA progress reports Qualified counterpart staff are available in ODP for knowledge transfer Preparation of a framework for national disaster preparedness and The framework is prepared The action plans are developed

5 5 Development of specific action plans for prioritized disaster types Consultant/Team Leader s Comments: See detailed descriptions of activities, outcomes, challenges encountered in the mid-term report and the various activity reports. The availability of qualified counterparts in ODP for knowledge transfer has been a moderate constraint, however, this was overcome by front-loading training activities. Inputs Specialist services (international and domestic consultants) Awareness and dissemination workshops Consulting services for a total of 20 person-months, and training workshops ADB financing of $500,000 equivalent for the TA ADB review and regular review by the disaster committee TA consulting inputs are approved Consultant s performance is satisfactory See evaluation form for details on the performance of the TA, the consultants and team leader.

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