Lessons Learnt from Tropical Cyclone Pam for Tafea Provincial Disaster Committee

Transcription

1 Lessons Learnt from Tropical Cyclone Pam for Tafea Provincial Disaster Committee TAFEA PROVINCIAL DISASTER COMMITTEE EMERGENCY OPERATION CENTER a Province Emergency Operation Centre Tanna

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3 Lessons Learnt from Tropical Cyclone Pam for Tafea Provincial Disaster Committee June 2015 The development of this report has been supported by Tafea Provincial Disaster Committee and CARE International in Vanuatu with funding from the Australian Department of Foreign Affairs and Trade (DFAT) from the Australian Government, however the views expressed do not necessarily reflect the Australian Government s Tafea Province Emergency Operation Centre Tanna TAFEA PROVINCIAL DISASTER COMMITTEE EMERGENCY OPERATION CENTER

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5 Foreword As we review and take the lessons from our collective efforts to respond to the devastating effects of Tropical Cyclone Pam and to provide relief assistance to affected communities, memories from previous disasters come to my mind. I remember specifically category 4 Tropical Cyclone Uma, which affected Vanuatu in 1987, and killed more people than this year s category 5 tropical cyclone Pam. We have come a long way in our approach to deal with disasters and we have collectively managed to save more lives this time. This is essentially due to the considerable investments made by the government of Vanuatu, supported by international and national partners, to reduce the risk of communities and build their resilience to disasters. Significant investments on disaster preparedness have been made at community, area and provincial levels, which helped us to rise to the challenge brought by TC Pam. This lessons-learnt workshop, facilitated by CARE International, provides an opportunity to reflect and learn from the response to TC Pam and building our collective resilience to future disasters. Our experience demonstrates that crisis provide opportunities for positive change and transformation. Transformation of the ways we look at and engage with one another, transformation of relationships, such as between men and women, transformation of communities in their ability to face, learn and adapt to new challenges. I would like to extend special thanks to all actors who have been involved into the response including the national government, all PDC members, CDCs, Area Council Secretaries, chiefs, church leaders, volunteers, Act For Peace (VCC), ADRA, Asian Development Bank, AOG, the Australian Army, Australian Connection, CARE International, ETC Communication, Fijian Health team, French Electrical Company, the French Army, Korian, German medical team, Lions Club, Live and Learn, Mormon Church, Muslim Aid, NEV House, Red Cross Societies, Samaritans Purse, the Salvation Army, Save the Children, Shelter Box, the Tahiti Army, Tanna and Tafea Solitarity, UNICEF, World Bank, World Food Program and World Vision. For all not mentioned by names, tank u tumas! David Tovovur David Tovovur, Assistant Secretary General, Tafea Province Emergency Operations Controller i

6 Table of Contents Foreword List of Abbreviations and Acronyms Executive summary 1 Map of Tafea Province 8 1. Introduction 9 2. Tropical Cyclone Pam The Tafea government-led Response Coordination architecture Needs assessment Coordination Methodology and Approach Methodology Participants Facilitators Approach Findings Timeline Good Practices Challenges Recommendations 25 Annexes 30 Annex 1: Participants list 31 Annex 2: Agencies engaged with the Tafea Provincial Government during TC Pam Response 34 Annex 3: Timeline Exercise 36 Annex 4: Terms of Reference for the EOC 37 Annex 5: Maps of Tafea islands 42 i iii ii

7 List of Abbreviations and Acronyms ASC Area Secretary Councils CDC Community Disaster Committee DRR Disaster Risk Reduction EOC Emergency Operations Centre EPP Emergency Preparedness Plan HH Household INGO International NGO PDC Provincial Disaster Committee MT Metric Ton NDMO National Disaster Management Office NFI Non-Food Item NGO Non-governmental organisation OCHA United Nations Office of Coordination of Humanitarian Affairs PDC Provincial Disaster Committee SADD Sex, Age and Disability Disaggregated Data TC Tropical Cyclone TPG Tafea Provincial Government UN United Nations USD United States Dollars VHT Vanuatu Humanitarian Team WASH Water, Sanitation & Hygiene WFP United Nations World Food Program iii

8 Executive summary T he people of Vanuatu are facing frequent natural hazards and a complex and changing environment. The United Nations University's 2012 World Risk Report identified Vanuatu as the country with the greatest vulnerability to natural hazards. In addition to large-scale and recurring hazard events, Vanuatu is now faced with more rapid and uncertain change related to the impacts of climate change. Tafea province comprises five islands and while the largest island is Erromango, the most populated is Tanna. Some parts of Tanna and the other islands remain geographically, socially and economically disadvantaged, isolated and vulnerable to natural hazards. CARE with funding from the Australian Government led the facilitation of a workshop for the Tafea Provincial Government to undertake a Lessons Learned of the 2015 Cyclone Pam emergency response in Tafea Province. The Lessons Learned workshop was held in the Tafea Provincial government offices in Isangel on 11 and 12 June The Lessons Learned workshop had the following objectives: 1. To discuss how the Emergency Operations Centre worked well and what could have been improved in the preparation and response to TC Pam 2. To make recommendations for improvement to the upcoming NDMO lessons learned workshop In March 2015 Vanuatu was struck by one of the worst disasters ever experienced in the Pacific. Winds gusting up to 320 km per hour destroyed homes, infrastructure, crops and livestock and left more than half the population in need of emergency assistance. Tafea was one of the hardest hit provinces in Vanuatu The Provincial Government rapidly mobilised the Emergency Operations Centre two days prior to the cyclone hitting The EOC met daily for over a month and coordinated international assistance that was mobilized to Tanna, including French and Australian military resources, internationals agencies, Red Cross movement and Vanuatu Government resources. In the initial weeks, the PDC mobilised assessment teams to Tanna worked in conjunction with military assets to open roads and managed food distributions with WFP and operational agencies across Tanna island. 1

9 Participation at this workshop aimed to represent all levels of staff involved in the response across the Provincial Government. This included Provincial Government staff that were involved in running the Emergency Operations Centre, Area Secretaries from across Tafea, some select community and Community Disaster Committee (CDC) representatives as well as international stakeholders from INGOs, UN and other organisations The Lessons Learned workshop started with a brief timeline exercise, carried out to remind participants of main events, both internal and external to the Provincial Government. Following the timeline exercise, the facilitators managed a lessons learned exercise which discussed what went well and challenges both internally within the PDC and externally with other stakeholders including community, Area Secretaries, INGOs. UN Agencies and other Government Departments. Lessons learned, recommendations and actions plans were all developed through group works and gallery walk. The first day focused on generating lessons learned within these groups. On the second and last day, the groups were asked to generate preliminary recommendations based on these lessons learned and the feedback provided by the other groups. 2

10 The key challenges and good practices identified are as followed: GOOD PRACTICES CHALLENGES COMMUNNITY LEVEL Information dissemination Pre-disaster DRR activities Early road clearance Shelter/WASH relief distribution Lack of community preparation Communication breakdown Closure of schools Damage from the cyclone and delay in relief distributions AREA COUNCIL LEVEL Pre-disaster PDC Training and Simulation Exercise NDMO s SMS emergency system Cyclone tracking map available at area council PDC EOC and early activation Relief Supply distribution Coordination challenges Communication breakdown Community knowledge around disaster preparedness Logistic challenges Prioritising relief needs (Shelter before food) Allocation of emergency funding PROVINCIAL GOVERNMENT LEVEL Organised and trained before a disaster Activated and functioning EOC Commitment by staff to running the EOC Approved emergency budget Commitment and resilience of affected communities Prioritising relief needs (Shelter before food) Strengthening the link between national and provincial authorities Logistic challenges Lack of PDC capacity to oversight relief distributions EOC Information management (Sitreps and report writing) Lack of population data and statistics 3

11 Working on these findings, the groups formulated a list of recommendations for each of the groups, which culminated in a list of high priority recommendations to the National Government, which include: Community Level Recommendations Preparedness Disaster Preparedness Planning, kits, training, and CDC awareness should be conducted in all communities, which can promote traditional preparedness measures such as food preservation Sub Police Posts and local warehouses/emergency stocks should be established in outer islands, to enable security provision before, during and after disasters. Coordination & Response Future emergency distributions should ensure that men and women are consulted, work alongside traditional community structures as well as Community Disaster Committees Approved permanent houses should be built according to traditional ways of building, with consideration for permanent evacuation centres in communities built to agreed specifications VHF radios should be located in all key government sites like schools and aid posts to ensure widest reach for information dissemination when conventional communication channels are damaged 4

12 Area Council Level Recommendations Coordination & Response Permanent individual houses should be built according to traditional ways, possibly combined with modern techniques and materials; community buildings identified as evacuation centres should be built to standard building codes. Review innovative ways for Information dissemination to the community level (either through community level communication equipment or at the Area Council level). Provincial level coordination and operational plans should include Area Councils. Training and simulations should reinforce protocols around coordination between NDMO, PDC, Area Councils and CDCs. Preparedness Training should be provided to all area secretaries and CDCs on how to use standard NDMO templates, including assessments and data collection (to speed up assessment without waiting for NDMO staff deployments). Disaster Preparedness Planning, kits, training, and CDC awareness should be conducted in all communities, which can promote traditional preparedness measures such as food preservation. This should include Area Disaster Committees at the Area Council level. 5

13 Provincial Government Level Recommendations Preparedness Continue to provide training and simulation exercises for Provincial authorities to ensure understanding on roles and responsibilities during emergency operations Coordination & Response Provincial Authorities and the National Government should work with operational agencies to develop standards around CDC set up and operation, to ensure CDCs are coordinated with government authorities Review PDC EOC protocols to ensure stakeholders are aware of the need to coordinate with PDC when setting up response operations in the province Review PDC EOC Information Management protocols to ensure information dissemination within the EOC and with the National Government is strengthened. This would include reviewing the need for a full time IT officer in the province to support EOC operations Provincial Government should ensure that Area Secretaries are recruited and Area Council Disaster Committees set up Review innovative ways for Information dissemination to the community level (either through community level communication equipment or at the Area Council level) Review provincial logistics requirements, including warehousing requirements and logistics protocols and training (around inventory and asset management) PDC to consider issuing certificates of acknowledgement to PDC and Provincial Government staff and worked during the emergency to recognize individual service during this period Open Bank Accounts for the PDC to manage emergencies (National Bank of Vanuatu) 6

14 Recommendations to the national government NDMO should provide standard templates with same language to be used by PDC, ADC and CDC PDC should have a standby logistic capacity for emergency response Provide VHF Radio system and satellite phones to all aid post, schools, community infrastructures in all area councils Reinstating media services (especially FM104 radio station) and improve infrastructure for service delivery NGOs /Agencies should work according to guidelines of Vanuatu Humanitarian Team. A Provincial Humanitarian Team should also be set up Bylaws similar to those existing for cruise ships should be developed for the volcano in order to strengthen disaster preparedness and response at provincial and community levels 7

15 Map of Tafea Province 8

16 1. Introduction The overarching objective of this Lessons Learned workshop was to assist the Tafea Provincial Government continuously improve its work, especially regarding its disaster preparedness and response. The Lessons Learned Workshop was a participatory and consultative process by which the Provincial Government and partner organisations reflect back on their activities and actions in order to use these learning to improve their performance. Following the Provincial Government s response to Cyclone Pam in Tafea, a Lessons Learned workshop was held in Isangel at the Provincial Government headquarters on the 11 and 12 June The workshop had the following objectives: To discuss how the Emergency Operations Centre worked well and what could have been improved in the preparation and response to TC Pam To make recommendations for improvement to the upcoming NDMO lessons learned workshop The Lessons Learned workshop was successfully conducted and produced a list of recommendations for to be considered at Community, Area Council, Provincial and National levels. Past experience has highlighted the importance of ensuring the participation of not only Provincial Government staff but also that of partners and key stakeholders. Therefore the participants of this Lessons Learned workshop included PDC staff involved in decision making, planning and implementing the response, senior management from the Provincial Government as well as representatives from other non-government stakeholders. A list of participants is at Annex 1. 9

17 2. Tropical Cyclone Pam On the evening of 13 March 2015 at around 11p.m. local time, Vanuatu was struck by one of the worst disasters ever experienced in the Pacific. Winds around 250 km per hour, gusting up to 320 km per hour destroyed homes, infrastructure, crops and livestock and left more than half the population in need of emergency assistance. Tafea was the hardest hit province, particularly Tanna and Erromango, but all five islands were affected. Overview of loss and damage resulting from Cyclone Pam 50% of Vanuatu population or an estimated 188,000 people across all six provinces (Shefa, Tafea, Malampa, Penama, Sanma and, Torba) have been affected by TC Pam Damage and losses from the cyclone was estimated at 48.6 billion Vatu Total economic losses amounted to approximately 60.8 percent of Vanuatu GDP At the height of the disaster, around 188,000 people were affected across more than 22 islands of the country, with 110,000 people in need of safe drinking water, schools closed, and most crops (particularly cash crops) damaged. Across Tafea, between per cent of community housing was damaged, and in Tanna island the main township of Isangel/Lenekel was severely affected, which meant provincial government authorities and staff were themselves victims of the Cyclone. The impact of the cyclone was felt most acutely by rural communities who had less support, and assets to cope with such disasters. Immediate assistance was therefore required in order to meet the urgent needs of these populations, including in the area of water, sanitation and hygiene (WASH), food, shelter and livelihoods. 10

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19 3. The Tafea government-led Response 3.1 COORDINATION ARCHITECTURE National structures The Government of Vanuatu is leading and coordinating the response to TC Pam. As one of the most disaster-prone countries in the world, Vanuatu has set up a national structure for disaster preparedness and emergency operations as part of its disaster preparedness. This structure is composed of a National Disaster Committee (NDC) and the National Disaster Management Office (NDMO) at national level, Provincial Disaster Committees (PDC) at provincial level and Community Disaster Committees (CDCs) at community level. Vanuatu has also developed a National Disaster Plan (NDP) and a National Cyclone Support Plan (NCSP), which specifically details cyclone preparedness and response arrangements in Vanuatu. The Vanuatu Humanitarian Team The Vanuatu Humanitarian Team (VHT) is a network of agencies committed to effective humanitarian coordination, disaster preparedness and humanitarian response. The VHT is convened by Oxfam; its members include the Vanuatu Red Cross, French Red Cross, Vanuatu Association of NGOs (VANGO), UNICEF, Oxfam, CARE International, Save the Children Australia (SCA), the Adventist Development and Relief Agency (ADRA), the World Health Organization (WHO), PeaceCorps, World Vision and Act for Peace, IOM and OCHA. Cluster coordination and inter-cluster coordination The cluster coordination mechanism, adopted by the NDMO, OCHA and the VHT in 2011, was activated for the response. The clusters are led by relevant line ministries, and co-led by VHT agencies. The VHT and the Clusters provide fortnightly reports on activity levels, funding usage and against agreed performance targets to Government through the Prime Minister s Office. 12

20 3.2 NEEDS ASSESSMENT The NDMO, supported by humanitarian partners, led initial rapid assessment teams in the most affected areas from March These assessments found that Shefa and Tafea provinces, where all of the 11 confirmed fatalities occurred, were the hardest-hit provinces. Information collected during this first phase was detailed enough to inform immediate response planning and the development of the Flash Appeal launched immediately afterwards. However, it lacked the depth to advise medium and longer-term planning of humanitarian response and early recovery, prompting the Government to initiate multi-sector in-depth assessments at the community level from 1 to 8 April COORDINATION Something along the lines of: The Provincial Government rapidly mobilised the Emergency Operations Centre on March 11, 2 days prior to the cyclone hitting Tanna. The EOC met daily for over a month and coordinated international assistance that was mobilized to Tanna, including French and Australian military resources, UN agencies INGOs and Vanuatu Government resources. In the initial weeks, the PDC mobilised assessment teams to Tanna island, worked in conjunction with military assets to open roads and managed food distributions with WFP and operational agencies across Tanna island.. The TC Pam response in Vanuatu will continue for some months, and emergency response efforts will gradually be replaced by reconstruction and recovery efforts, aimed at re-building Vanuatu s infrastructure, housing stock, and agricultural and tourism enterprises. 1 From 1 to 8 April government-led teams assessed 23 islands in Tafea and Shefa provinces. The teams assessed humanitarian needs across six thematic areas: Water, Sanitation and Hygiene (WASH); Shelter; Health and Nutrition; Education; Gender and Protection; and Early Recovery, Agriculture and Livelihoods. 13

21 4. Methodology and Approach 4.1 METHODOLOGY The review was designed to ensure maximum involvement of the participants with a mix of plenary talks, group work and gallery walks. Appropriate guidance was given for the various sessions. Presentations were made during the workshop about the response and feedback from community leaders and international stakeholders. 4.2 PARTICIPANTS Participation at this workshop aimed to represent all levels of staff involved in the response across the Provincial Government. This included Provincial Government staffs that were involved in running the Emergency Operations Centre, Area Secretaries from across Tafea, some select community and Community Disaster Committee (CDC) representatives as well as international stakeholders from INGOs, UN and other organisations. In total, 65 participants, comprising 37 Provincial Government staff and 28 external stakeholders (community and CDC representatives, church representatives, NGOs) were present at the workshop (see full participants list in Annex 1). 14

22 Picture 1 - Charlie Damon, CARE International Program Manager and workshop facilitator 4.3 FACILITATORS The Lessons Learnt workshop was facilitated by CARE as part of the Australian Government funded, Humanitarian Partnership Agreement Cyclone Pam response project. Both facilitators (Charlie Damon and Sebastien Fesneau) have extensive experience in emergency response, as well as a clear understanding of Tafea s operational response to the Cyclone. The facilitators were supported by a core group of Tafea Provincial Government staff that managed the preworkshop logistics and note taking. 15

23 Picture 2. Restitutition of group discussions in plenary session 4.4 APPROACH The Lessons Learnt Workshop started with a brief timeline exercise, carried out to remind participants of main events, both internal and external to the Provincial Government. The timeline was developed with contributions from all the participants. This initiated the reflection process as the participants were not only asked to identify key events and decisions, both external and internal, but also organize these (when possible) by successes and challenges (i.e. proud of and not so proud of ). Following the timeline exercise, the participants were then divided into groups based on functions (village and Community Disaster Committee representatives, Area Council representatives and the Provincial Government representatives). These groups reflected on key lessons from the response what worked well, what didn t work so well and what could be improved. Lessons learned and recommendations were developed through group work and gallery walks. The first day focused on generating lessons learned within these groups. The facilitators provided guiding questions to help frame the groups thought process: What went well? What did not? What would recommend to improve in the future? 16

24 After reflecting on lessons learned within the groups, the participants were given the opportunity to provide feedback to the other groups through gallery walk. On the second and last day, the groups were asked to generate preliminary recommendations based on these lessons learned and the feedback provided by the other groups. Individuals were then asked to vote for their top 5 recommendations that would improve the Provincial Government s capacity to respond to future emergencies. These votes were tallied to form the level of priority the recommendation should receive. Picture 3. Group discussions during the lessons learnt workshop, 17

25 5. Findings 5.1 TIMELINE Picture 4 - Secretary General Mr Reynolds Surmat contributing to the timeline exercise The Lessons Learnt workshop identified a summary of the main events and actions undertaken by the Provincial Government during this response which are summarised below. A full version can be found in Annex 3. 18

26 5.2 GOOD PRACTICES Community Level Information Dissemination: Community members present expressed that information dissemination to the communities and CDCs was sufficient and timely Pre-Disaster Disaster Risk Reduction activities: Community members who had received Disaster Risk Reduction training and emergency kits (loudspeakers, radios, life vests) noted how crucial both the training and emergency kits were at the community level, particularly in remote areas. This helped to save lives and reduce injuries in communities that had received this training. In addition, Community Disaster Plans that were developed through these projects enabled communities to have a clear approach to preparing for oncoming disasters (e.g. people tied down their roofing, cut the top off their manioc and banana plants to protect them, and prepared food and water for their families, removed overhanging branches over houses, ensuring all community members were informed of the upcoming disaster both during and immediately afterwards). Early Road Clearance: Community representatives appreciated early clearance of major roads to hospitals and schools immediately after the storm has passed.. Shelter and Water, Sanitation and Hygiene relief distribution: The importance of early Shelter and WASH support was noted and appreciated. 19

27 Area Council Level Pre-Disaster PDC Training and Simulation Exercise: Area Councillors noted that the previous PDC Training and simulation exercise conducted by CARE in 2014 and VHT in 2013 had been pivotal in ensuring that key Provincial and Local Government representatives had some experience and training in what to do during a large scale emergency response. NDMO s SMS Emergency System: Councillors noted the importance of the NDMO SMS text system both as a warning tool pre-disaster as well as a useful tool for communication and message dissemination post disaster. Cyclone Tracking Map available at Area Council: Access to the Cyclone tracking map (allow grid reference real time tracking of the path of the storm via radio updates) was a vital communication tool for Area Secretaries to assist in keeping their constituents updated on the progress of the storm. PDC EOC and early activation: Area Secretaries noted the quick activation and early coordination efforts of the Provincial Disaster Committee in assisting to coordinate activities, particularly on Tanna island. Relief supplies: Similar to community level feedback, the importance of early food, shelter toolkits and WASH assistance was noted and appreciated. 20

28 Provincial Government Level Organised and trained before a disaster: PDC representatives noted the importance and value of PDC training on their roles and responsibilities, on how the Emergency Operations Centre operated and running of a simulation. This ensured PDC and EOC members understood basic roles and responsibilities and were able to operate effectively during the response. Activated and functioning EOC: Representatives were proud of the early activation of the Emergency Operations Centre (EOC) as well as its smooth operation. Roles were well understood, it was well set-up, well organised with clear command and control and ran daily briefings (twice a day, seven days a week for over a month). Staff felt there was good sharing of resources and responsibilities across Provincial Government departments (although it was noted that in certain circumstances not all Directors felt informed of PDC operations). EOC members felt they gained good response and coordination skills. Commitment to running the EOC: Related to the above was the commitment by Provincial Government employees to effectively staffing and running the EOC during the height of the response, despite all members being personally impacted by the storm. PDC members actively attended meetings, shared the management of the EOC and worked extra hours without additional allowances. It was felt there was generally good teamwork and cooperation. Approved Emergency budget: Emergency funds were allocated at national level by NDMO for the Tafea PDC totalling VATU 535,000. Commitment and resilience of affected communities: The PDC representatives noted the resilience and commitment of the people of Tafea to support each other and themselves during this massive emergency response (and example of free labour provided by community members during the response was one example noted). 21

29 5.3 CHALLENGES Community Level Lack of community preparation: While noted as a strength above, similarly for community representatives that had not received Disaster Risk Reduction training, lack of preparations at the community level in advance of the cyclone was noted. Participants also noted some cultural beliefs about preparedness or need for this impeded some communities in preparing for the Cyclone (particularly for areas that had not experienced a disaster for some time). Communication breakdown: Communities noted the lack of information dissemination due to telecommunication breakdown (e.g. Mobile Networks going down). Area Secretaries were often unable to travel right around their constituencies, which limited information dissemination due to lack of mobile communications. There were some concerns that information shared was not enough by National authorities. Damage from the Cyclone and delay in relief items: communities noted that damage to food, infrastructure and shelter were key challenges, as were several community protests around distribution delays which resulted in road blockages (delaying access to hospitals in Lenekel and Isangel. Ensuring that relief items (especially food and livelihoods items) were linked to the seasonal planting calendar as well. Closure of schools: Community participants noted that school closures 2 have greatly impacted on children, especially around delays to re-start schooling. 2 Full closure or partial operations (half day) due to water shortages after the cyclone (e.g. Middlebush) 22

30 Area Council Level Coordination: While EOC operations were considered a strength, coordination challenges were still encountered. Area Councillors felt they were not informed of PDC activation, that the National Disaster Management Organisation (NDMO) by-passed provincial coordination mechanisms and that there were often duplication of relief activities through organisations that did not coordinate through the PDC. Communication Breakdown: The breakdown of formal communication structures (e.g. mobile phone networks) made it difficult for Area Secretaries to be contacted, raising the need for Satellite phones and alternatives to disseminate information within Area Councils.. Community knowledge around Disaster Preparedness: Area Secretaries noted that often traditional beliefs, ignorance of warning messages and lack of communication at the community level made community engagement challenging. Logistical challenges: The high transport costs and large area to be covered made logistics a constant challenge to get relief items to affected communities in a timely and efficient manner. Prioritising needs: Area Secretaries noted that distribution of relief items could have been reviewed, with a greater focus on emergency shelter before food distributions. Allocation of Emergency Funding: Funds were allocated to Area Councils, however, funds were not available during the emergency period because grants were not released by the Ministry 23

31 Provincial Government Level (PDC) Prioritising needs: PDC participants also noted that distribution of relief items could have been reviewed, with a greater focus on emergency shelter before food distributions. Strengthening the link between national and provincial authorities: Participants noted that the link between national and provincial authorities could have been strengthened, including better communication of changes of structure at the national level and reducing the risk of unmet expectations from both sides about support forthcoming and information sharing. Logistic challenges: the challenges of limited logistical capacity, shipment delays due to weather, improper warehousing facilities, lack of proper inventory processes all contributed to delayed relief distributions which led to frustrations amongst affected communities. Lack of PDC capacity to oversight relief distributions: Involvement of PDC members in overseeing distribution centres was limited due to limited availability of staff, which also contributed to breakdown in communication between operational agencies and PDC about distribution process and approvals. The partial involvement of PDC members in precyclone disaster training and simulation created some coordination challenges for the PDC during the response as not all PDC members had the same knowledge and training. Information management: Lack of proper reporting templates, guidance and submission both to the national government and within PDC operations resulted in delayed Situation Reports being shared. Lack of population data and statistics: Population statistics for accurate planning for province wide food distributions was problematic, and delayed distribution of food on Tanna in particular. 24

32 6. Recommendations Community Level Recommendations Preparedness Disaster Preparedness Planning, kits, training, and CDC awareness should be conducted in all communities, which can promote traditional preparedness measures such as food preservation Sub Police Posts and local warehouses/emergency stocks should be established in outer islands, to enable security provision before, during and after disasters. Coordination & Response Future emergency distributions should ensure that men and women are consulted, work alongside traditional community structures as well as Community Disaster Committees Approved permanent houses should be built according to traditional ways of building, with consideration for permanent evacuation centres in communities built to agreed specifications VHF radios should be located in all key government sites like schools and aid posts to ensure widest reach for information dissemination when conventional communication channels are damaged 25

33 Area Council Level Recommendations Coordination & Response Permanent individual houses should be built according to traditional ways, possibly combined with modern techniques and materials; community buildings identified as evacuation centres should be built to standard building codes. Review innovative ways for Information dissemination to the community level (either through community level communication equipment or at the Area Council level). Provincial level coordination and operational plans should include Area Councils. Training and simulations should reinforce protocols around coordination between NDMO, PDC, Area Councils and CDCs. Preparedness Training should be provided to all area secretaries and CDCs on how to use standard NDMO templates, including assessments and data collection (to speed up assessment without waiting for NDMO staff deployments). Disaster Preparedness Planning, kits, training, and CDC awareness should be conducted in all communities, which can promote traditional preparedness measures such as food preservation. This should include Area Disaster Committees at the Area Council level. 26

34 Provincial Government Level Recommendations Preparedness Continue to provide training and simulation exercises for provincial authorities to ensure understanding on roles and responsibilities during emergency response Coordination & Response Provincial Authorities and the National Government should work with operational agencies to develop standards around CDC set up and operation, to ensure CDCs are coordinated with government authorities Review PDC EOC protocols to ensure stakeholders are aware of the need to coordinate with PDC when setting up response operations in the province Review PDC EOC information management protocols to ensure that information dissemination within the EOC and with the National Government is strengthened. This would include reviewing the need for a full time IT officer in the province to support EOC operations Provincial government should ensure that area secretaries are recruited and area council disaster committees set up Review innovative ways for information dissemination to the community level (either through community level communication equipment or at the area council level) Review provincial logistics requirements, including warehousing requirements and logistics protocols and training (around inventory and asset management) PDC to consider issuing certificates of acknowledgement to PDC and provincial government staff and worked during the emergency to recognize individual service during this period Open bank accounts for the PDC to manage emergency funds (National Bank of Vanuatu) 27

35 Recommendations to the national government NDMO should provide standard templates with same language to be used by PDC, ADC and CDC PDC should have a standby logistic capacity for emergency response Provide VHF Radio system and satellite phones to all aid post, schools, community infrastructures in all area councils Reinstating media services (especially FM104 radio station) and improve infrastructure for service delivery NGOs /Agencies should work according to guidelines of Vanuatu Humanitarian Team. A Provincial Humanitarian Team should also be set up Bylaws similar to the ones developed for cruise ships should be developed for the volcano to strengthen disaster preparedness and response at provincial and community levels 28

36 Thank You Mr Anthonius Rahardjo, World Food Program Head of Tanna Office, receives gift on behalf of all international agencies and donors, from Yakel Kastom village representatives, as part of traditional thank you ceremony 29

37 Annexes 30

38 ANNEX 1: PARTICIPANTS LIST Government Representatives Name President Prome SG Reynolds Surmat ASG David Tovovour Daniel Samson Joseph Nok Simon Naupa Naliag Lui Sera Upakoi Sam Nalieko Andrew Sedu Juliano John Kaloka Sam Harrison Inspector Rex B Richard Narinam Wendy Thomasi Iau Tuan Willie Kapaw Brian Dickson Thomas Iaru Allan Dan Joseph Jack Bolenga Rex Sam Kalapu Department / Agency President, Tafea Province Secretary General, Tafea Province Assistant Secretary General, Tafea Province NDMO Rep PDC Member Forestry Health FSB Dept PDC Member Public Works Department (PWD) Public Works Department (PWD) Ministry of Justice and Correction Services (MOJCS) Ministry of Justice and Correction Services (MOJCS) Police Department of Agriculture and Rural Development (DARD) Department of Women s Affairs (DWA) Customs Officer Dept of Immigration ALO Department of Livestock Department of Youth & Sport Rural Water Supply Rural Water Supply PDC Member 31

39 ANNEX 1: PARTICIPANTS LIST AREA COUNCIL REPRESENTATIVES Name Role Noel Yalou Area Council Secretary, Tanna Rasai Jeffet Area Council Secretary (Whitesands), Tanna Thomasi Sempet Area Council Secretary, Erromango South Remy Nambel Area Council Secretary, Erromango North Lenon Luken Area Council Secretary, Aniwa Renason N Area Council Secretary, Tanna Luke David Area Council Secretary, Tanna John Noklam Area Council Secretary, Tanna Henry Saute Area Council Secretary, Tanna Aliek Lui Area Council Secretary, Tanna Noel Noar Area Council Secretary, Tanna Toka Iatipu Area Council Secretary, Futuna Reuben Nerim Area Council Secretary, Anietym COMMUNITY REPRESENTATIVES Name Role Namu Samo Chief, Tanna Poia Dreny CDC Representative, Tanna Joel Noal Chief, Tanna Helen Naupa Community Leader, Erromango Martha Balkon CDC Chair, Aniwa William Lomas Plumber, Tanna Joe Niluan Community representative, West Tanna Pastor Bernard Yalimyou Pastor, Presbyterian Church, Tanna Nimanurn Tanna Antoin Kami Community representative, Southwest Tanna John Daniel CDC Representative, Tanna Samana CDC Representative, Tanna Tom John CDC Representative, Tanna Willie Kuahai CDC Representative, Tanna Kiel Iarpity Chief, Tanna Samantha J CDC Representative, Tanna OTHER REPRESENTATIVES Name Role Leimat Nok Vanuatu National Red Cross Society Mildret Simeon Women s Council Representative Nakat Project Officer David Kiel FM 104 Tom Kasso Training Manager, Napil Rural Training Centre Jacob Kapene TKS 32

40 ANNEX 1: PARTICIPANTS LIST FACILITATION TEAM Name Charlie Damon Sebastien Fesneau Natasha Venables Rita Naies Vanessa Joana Role Program Manager, CARE International in Vanuatu Tanna Team Leader, CARE International in Vanuatu Emergency Food Security and Livelihoods Coordinator, CARE International in Vanuatu Data Entry Assistant, CARE International in Vanuatu Volunteer, CARE International in Vanuatu Volunteer, CARE International in Vanuatu 33

41 ANNEX 2: AGENCIES ENGAGED WITH THE TAFEA PROVINCIAL GOVERNMENT DURING TC PAM RESPONSE Agency Act for Peace (VCC) Australian Army CARE International Emergency Telecommunication Cluster French Army French Electrical Company Lions Club Mormon Church Muslim Aid UNICEF Red Cross Solidarite Tanna Activity a. Wash Assessments in the east of Tanna b. Repair of 4 water system in the east of Tanna c. Donate NFI (Cloths) to local Communities in east of Tanna a. Assist in Road Clearance around Tanna b. Assist in Wash assessments c. Assist in most in repairing damage water systems around Tanna d. Assist rebuild back most of Damage buildings in Tanna a. Distribution of NFI to Middle Bush, South East, TAFEA Outer Islands (Erro, Aniwa, Futuna) North East b. Wash Assessments c. Assist PDC on EOC operation d. Distribution of Food in the outer Islands (Erro. Aniwa, Futuna) a. Provide communication service especially the access of the internet a. Assist most on the Road Clearance around Tanna b. Food distribution(first push) around Tanna c. Evacuate most of the injuries to Port Vila and Lenakel Hospital d. Assist in Wash Assessments e. Repair damage water systems f. Assess building damage in Lenekel/ Isangel a. Donate Generators to a few schools in Lenekel/ Isangel b. Donate Generators for water pumps in Lenekel c. Assist schools in Lenekel with rewiring damaged class rooms, Dormitories, Staff houses a. Assist provide food supplies to most of the local communities in Tanna b. Provide NFI to local Communities a. Distribute Food distribute to all LDS members around TAFEA b. Distribute NFI to all LDS members around TAFEA a. Distribute food supplies to local communities in Middle Bush b. Distribute NFI to local Communities of Middle Bush c. Help out maintenance work at the health centre, Middle Bush a. Conduct Schools assessments b. Assist donate Tents to Primary schools in TAFEA to be use as a temporary class room. c. Donate other school materials for students d. Assist wash Cluster Team donating some generators for water pump a. Distribution of NFIs b. Wash Assessments a. Distribute food supplies to most local communities in Tanna 34

42 Agency Salvation Army Samaritan Purse Tahiti Defence Force World Vision Activity b. Distribute NFI to local communities a. Distribute food supplies to few local communities b. Distribute NFI to few local communities in Tanna a. Distribution of food West Tanna, Middlebush, North Tanna, North East, Anietyum b. Distribution of NFIs West Tanna c. Wash Assessment in West Tanna a. Assist in Road Clearance around Tanna b. Assist in Wash assessments c. Help repair most of the damage buildings d. Assist food distribution to local Areas around Tanna a. Food Distribution South, South West, South East b. Wash Assessments c. Non Food Item (NFI) 35

43 ANNEX 3: TIMELINE EXERCISE 36

44 ANNEX 4: TERMS OF REFERENCE FOR THE EOC 9.0 Emergency Operations Centre Staff (Roles and Responsibilities) As per the NDMO Standard Operating Procedures (2013) the tasks and responsibilities of members of the NEOC are described in detail below. For a general outline of roles relating to the 7 functional areas in the NEOC (Executive/Directorate/Command, Intelligence and Planning, Operations, Logistics, Administration, Financial, Public Information and Media), 9.1 Director Activate the NEOC. Instructs the SG of the affected province to activate the Provincial Disaster Operation Centres Chair stakeholder meeting Update the NDC and other stakeholders with SITREPS Attend NDC meetings Liaising with Donors, line government agencies and the VHT members Signing off on external communications, such as press releases and media statements. To ensure the National Disaster Management Office (NDMO) performs its functions properly, efficiently and effectively. To ensure that clear directions are given to all government and nongovernment agencies responsible for taking action in relation to disasters To specify in writing agencies to be responding agencies. Such other functions as are conferred on the Director by the National Disaster Act. Approve SITREPS and other information through Public broadcasting networks, other media outlets and other communication facilities so as to keep members of the public throughout Vanuatu well informed. Request resources (including Human Resources) from NDM, if not possible the request to VHT. Call NDC meetings on the advice of the NDMO. Annual NDC Meeting before cyclone season. 9.2 Roles and Responsibilities The roles in the NDCO are assigned based on staff capacity and availability as assigned by the Director or Officer In Charge of the NDMO. These can be assigned to NDMO staff, government or partner agency staff as needed Controller The controller is line managed by the NDMO director and appointed by the Operations Manager during shifts. The NDMO Director calls for the NEOC to be activated in the time of a disaster. The Operations Manager then assumes the role of the Controller in the NEOC during the first shift. The Controller is the overseer of all activities in the NEOC. Controller is to brief all NEOC staff on their roles and responsibilities at the beginning and throughout the shift. Coordinate activities of all the staff in the NEOC and the emergency activities Approve requests for resources Coordinate and chair briefings between shift changes. To set the objectives and the tactical plans for an emergency response Ensure staff welfare and motivation Oversee the compiling of SITREPS Request regular updates from all staff in the NEOC 37

45 Work with finance and records to document process Compile costs for response for Director to present to the NDC to approve emergency funds Ensure operation center is manned 24hrs Authorise information release to the media if the Director is not available Operations The role of the Operations is to oversee the information management and resource moblisation processes and the implementation of response plans. Organise initial operations meeting to brief the team on the potential risks and impacts of the hazard Organise rosters and manage staff ensuring an effective operation Coordinate the deployment of aerial surveillance/initial assessment and Rapid Technical Assessment teams Operations reports to the Controller and provides feedback to Logistics, Administration, Planning and Intelligence teams. Ensure all finances, staffing, logistics etc. are in place to facilitate assessment and response activities Brief Controller of significant developments including requests from villages and communities Source resources as required i.e. vehicles or volunteers Compile recommendations from Rapid Technical Assessment for the Controller Brief Controller of resource requests (human, financial and other) Monitor and evaluate the SITREPS and make recommendation for use in the next operational shift Intelligence and Planning Collect, compile and analyse the information coming into the NEOC Maps of potentially affected or affected areas to be displayed in the operations centre. Intelligence and Planning reports to the Operations team. Information boards/ butchers paper set up for each island to receive information as it comes in. Island display boards for collection of incoming information Brief team of volunteers in the collecting of information form affected communities. Contact provincial SG, Area Secretaries and CDC s, in case the Area Secretaries are not available, in affected areas. Set up a hub in the province or space for rapid Assessment Team information collecting. Coordinate information collection as a part of Rapid Assessment Team Collate information from information support Collate all information coming back from the rapid assessment teams Analyse information collected Determine need for any specialized resources Communications Communications manages the information flow in and out of the NEOC. Communications reports to the Intelligence and Planning All raw intelligence is to go the Intelligence and Planning for analysis Maintain all telephone, and HF communications Manage the collection and collation of the information from multiple sources Identify critical information and prioritise on the EOC message form and decide what information goes to Intelligence and Planning or straight to the controller in a critical situation. 38

46 Maintain and update all contact lists Receive information from assessment teams Receive information from Area councils, provincial governments and CDC s Record and file all incoming and outgoing messages in Communication Log. Brief and supervise any volunteers that are assisting the NEOC with answering telephones and HF communications Liaise with CDC s, Areas Councils to transcribe community assessment forms over a communications tool (phone, HF radio etc.) Maintain and monitor the Short Code System and work with VMGD to ensure timely and accurate updates of the any alerts and warnings Media Liaison Responsible for interfacing with the public and media and with other agencies with incident related information requirements. Reports to the Controller Assemble and prepare information for release to the media and public Inform media and conduct regular scheduled meetings Obtain approval from Controller for the release of information Manage media requests and organise media interviews and briefings in the meeting room or via telephone with approval from the Controller Set up an information board outside the NDMO and update it as information is made available Liaise with media agencies and monitor all forms of media for rumours and inaccuracies Record all media and public information releases and any information received from the media in the activity log. Pre-recorded/ Written articles hazard messages to be air on radio, television, and in newspaper. All communications to be approved by the Controller Support the Communications officer in the dissemination of pre-recorded voice and SMS messages Liaise with Planning and Intelligence Officer for updated information Logistics Reports to Operations Provide Operation with periodic updates Ensure communication systems are operational Ordering of all resources Provide a list to finance officer of all supplies required during the emergency. Immediate transport. Utilise requisition forms Arrange with both helicopter and light aircraft to have on standby for aerial surveillance. Arrange for transport to be on standby for the potential deployment of rapid assessments teams. Logistics capacity Assessments and updates on wharfs, airstrips, roads, storage facilities and emergency resources in country Liaise with VHT on existing resources in country and potential evacuation centres Arrange with JPOC/Franz boat for the potential use during the deployment of relief supplies. Arrange with shipping companies on potential deployment of relief supplies. Arrange with information collector to develop a distribution plan. Ensure all documents for delivery and receiving of stock occurs in a timely and accountable manner Work with Media Liaison to inform the public on evacuation centres that are operational Logistics do not liaise with donors without the approval of the Director or Controller 39

47 9.2.7 Finance and Records Staff timesheets/ overtime records. Ensure there are correct financial documentation of all purchases, i.e. receipt LPO- food, fuel, stationary. Ensuring NDMO staff have DSA for travel i.e rapid assessments, Stock control forms. Stock received forms. Register incoming donor pledges. Register incoming donations. Maintenance of Operations Room records Ensure security of Operations Room by organizing identification cards for all visitors to the NDMO Ensure emergency and petty cash 3,000,000 vt Financial agreements M & E in line with funding agreements Ensure staff entitlements are met i.e overtime, breaks or DSA or extra duty allowance General Support Admin Ensure NEOC and the office is stocked with essential supplies such as, paper, stationary, tea, coffee, toilet paper ect. Answer all incoming calls Manning the reception desk at all times. Ensuring al visitors are registered and only authorised persons allowed in the NDMO office Maintain the Sign In/Out Log. All forms available Screening all calls to the NEOC and referring calls to either 166 or to the relevant staff member Maintain inventory of supplies. Attend to the clerical/typing Ensure that all hard copy forms are digitised in a timely manner Ensure the NDMO office is cleaned Photocopying and other office duties Ensuring equipment is operational VMGD Provide information to Director of NDMO on the increase threat of hazard Update the NDMO, Ministers/ Cabinet, Police on updated information Liaise with local media on the technical aspects of the hazards Provide any feedback from remote meteo offices to NDMO on impact of the hazard Work with VMGD HF Radio systems Issue alerts or warning on behalf of the NDMO after liaising with NDMO Vanuatu Humanitarian Team Provide Planning and Intelligence Officer with updated contact list of all NGO s, Red Cross etc. working in the affected area as well as any updates or information from VHT members in the field Forwarding approved SITREPS to VHT member and Donors Invite cluster & VHT members on coordination Meetings as required by the NDMO. Liaise with VHT members to identify potential; staff in affected area to assist the Rapid Assessment Teams with cluster members or resources if required (e.g. Staff, Office space, access to transport, etc). 40

48 Provide logistics with updates on VHT member prepositioned stock lists of all NFIs to logistics. Liaise with the controller / NDMO director/ any technical advisors on additional technical staff required for the response or the NEOC and seek support from the VHT. Eg. Medical staff, information management staff, logistics, UNDAC staff, etc Provincial Disaster Coordinators Activates the Provincial Disaster Operation Centres on the instruction of the NDMO Director Liaise with their respective Agency heads on tasking of Agency resources, personnel and any other aspects of the emergency operations. Provide reports on Agency emergency response, relief and rehabilitation operations. Reports to the Planning and Intelligence Officer with updates in their respective provinces 41

49 ANNEX 5: MAPS OF TAFEA ISLANDS Tanna 42

50 Erromango TORBA SANMA PENAMA MALAMPA SHEFA TAFEA Legend National Capital Provincial Capital Major Towns $ Schools E Dispensary G Health Center v Hospital! Populated Places o r r International Airport Domestic Airport Remote Airstrip Major Creeks Lakes Area Council Boundary (Admin 2) Province Boundary (Admin 1) Tracks Roads Islands 43

51 Futuna 44

52 Aniwa 45

53 Aneityum TORBA SANMA PENAMA MALAMPA SHEFA TAFEA Legend National Capital Provincial Capital Major Towns $ Schools E Dispensary G Health Center v Hospital! Populated Places o r r International Airport Domestic Airport Remote Airstrip Major Creeks Lakes Area Council Boundary (Admin 2) Province Boundary (Admin 1) Tracks Roads Islands 46

54 June 2015 fea Province Emergency Operation Centre Tanna TAFEA PROVINCIAL DISASTER COMMITTEE EMERGENCY OPERATION CENTER