SIXTH (6 TH ) MEETING OF THE COUNCIL OF THE CARIBBEAN DISASTER EMERGENCY MANAGEMENT AGENCY (CDEMA) Bridgetown, Barbados June 26, 2015 CONCEPT PAPER FOR THE DEPLOYMENT OF THE REGIONAL RESPONSE MECHANISM REFERENCE: CNC15/06/27.0 The Council is invited to: 1. Note the current status of financing for the Regional Response Mechanism(RRM) 2. Also note the opportunities for resourcing of the RRM 3. Encourage Member State advocacy with the CDB on their consideration of the CDEMA proposal for the financing of the RRM Page 1 of 12
1.0 Context Concept Paper for the Deployment of the Regional Response Mechanism The Caribbean region is one of the most disaster prone areas in the world and has been subject to extensive damage from natural hazards over the years. The region has seen loss due to damage from the impact of natural hazards that far exceeds GDP. The table below is an abridged representation of the impact of hazards on the GDP of several countries in the Caribbean. Table 1: Damage from Hurricanes (Source World Bank and EM-DAT) Country Date Hurricane Damage (%GDP) Saint Lucia 1988 Gilbert (Tropical 365 Storm) Grenada 2004 Ivan 212 Montserrat 1989 Hugo 200 St Kitts & Nevis 1998 Georges 140 Dominica 1979 David & Fredrick 101 Sint Maarten 1995 Luis 100 St Kitts and Nevis 1995 Luis 85 Saint Lucia 1980 Allen 66 Jamaica 1988 Gilbert 65 Antigua and Barbuda 1995 Luis 61 Established in the Articles of Agreement, the CDEMA CU coordinates, manages and maintains the Regional Response Mechanism (RRM) which seeks to deliver a timely response and effective and efficient use of resources to impacted states. The need for the RRM was first highlighted in 1988 following the impact of Hurricane Gilbert on Jamaica. Over the years the RRM has evolved into a set of arrangements for the coordination of disaster response and support to Participating States (PS). As part of this set of arrangements are the earmarked response teams such as the CARICOM Disaster Relief Unit (CDRU), the Regional Search and Rescue Team (RSART), the Rapid Needs Assessment Team (RNAT) and Technical Teams. The RRM is designed and operates in accordance with the Regional Disaster Response Support Doctrine, and is central to the Comprehensive Disaster Management Strategy Output 1.4 Strengthened Coordination for Preparedness, Response and Recovery at the National and Regional Levels. The 2010 events such as the Haiti Earthquake and Hurricane Tomas, highlighted the need for the review of a number of Regional and International Protocols. At the regional level, this included the review of the Regional Needs Assessment Team (RNAT), the CARICOM Disaster Relief Unit (CDRU) and Regional Page 2 of 12
Urban Search and Rescue Teams. In the after action reviews it was also noted that the inadequate understanding of the Regional Response Mechanism and the growing need for orientation to the system both at the national and regional level. Within this context there have been recent developments aimed at strengthening the RRM. The expansion of the RRM to include the CARICOM Disaster Assessment and Coordination (CDAC) Team and the CARICOM Operational Support Team (COST) and an overall standardization of the multi-agency coordination mechanism in the form of a Caribbean brand of the Incident Command System are recent enhancements to the RRM to greater improve efficiency and deliver on the CU s mandate and to strengthen the support provided to an affected state of the CDEMA System. Notwithstanding the above, the RRM is not sufficiently financed hence significantly compromising the delivery of support to the affected state as espoused in the Articles of Agreement 2009. Whilst the requisite procedures and plans have been in place to operationalize the RRM, since inception the question of financing the RRM has not received a comprehensive treatment. As a contingency measure, and in an effort to ensure that the RRM functions in times when required, the CDEMA CU has put in place a range of contingency arrangements. These include the Emergency Assistance Fund (EAF), the Caribbean Development Bank Emergency Response Grant (CDB ERG), arrangements with the partners such as the Eastern Caribbean Development Partner Group, Disaster Management (ECDPGDM), Memoranda of Understanding (MOU's) with Caribbean Airlines (CAL) and LIAT. Whilst these partner arrangements have facilitated the work of the RRM the reality is that this arrangement leaves a measure of unpredictability in the financing of the RRM and places the system at risk since it is based on the assumption that these facilitating arrangements will always be available when required. There are numerous issues related to each aspect of the arrangement these include extensive internal bureaucratic procedures to access as in the case of the ERG. The evidence of this is documented in the 2011 CDEMA Council meeting Report Review of Emergency Events see extract below. 2.5 Delayed Access to Response Resources The experiences of the 2010 emergency events and indeed response experiences over the past few years, has revealed too many instances where response related resources are not becoming available to countries, until well after the expected response period has ended. In that regard, victims are not receiving timely assistance and the response process is being unnecessarily prolonged. Delayed access to assistance may be a reflection of inadequate technical, human and material resource as well as prolonged access procedures by funding entities. 2.6 Unpredictability and Insufficient Response Resources Most of the issues emerging from the recent emergency events raise the question of the adequacy of the response resources, tools and competencies for emergency response Page 3 of 12
events. Response Resources in the region are limited at best. The Regional Response Mechanism (RRM) has a float - Emergency Assistance Fund of EC $135,000 (US$ 50,000) and is highly dependent on donor contributions in financing response efforts. Air and marine assets for response in the region is minimal and coordination of available transportation is very difficult. The Caribbean Development Bank provides up to US $200,000 for emergency relief supplies. However whilst these funds were previously provided automatically through CDEMA there are now three (3) modalities of access. This has created some challenges in country access during the recent events. It has also raised the issue of how the Regional Response Mechanism will be financed when mobilized on behalf of the impacted state 1 3.4 Improve Resource Predictability Efforts should be advanced to increase the allocation of the Emergency Assistance Fund of CDEMA from US $50,000 to US $200,000. Operationalising the Security Assistance Treaty for emergencies as this can also facilitate access to human and material resources for response. Operational mandates given to the CDEMA Coordinating Unit should also be appropriately resourced to enable its successful delivery. It is also noted that the CDB Grant under the ERG does not cover deployment of operational personnel and resources. Also these funds currently take two to three months to be approved. Over the last four years the situation has worsen. The global economic decline has resulted in many Participating States being unable to fully meet the annual contributions much less the Emergency Assistance Fund. These countries are still very negatively impacted by natural hazards as was the case in the December rains of 2013 2 where the need for surge capacity in the impacted states was highlighted. With very limited funding the CDEMA CU served on its mandate to provide assistance to the impacted States by deploying to St Vincent and the Grenadines and Saint Lucia, CU staff to the Emergency Operations Centre to provide coordination support. Notwithstanding the limitations placed on the CU in accessing the ERG, in particular specific clauses which prevents funding for CDEMA CU personnel deployment 3, there are regional expectations at the level of the Eastern Caribbean Donor Group Partners Disaster Management (ECDGPDM) on which the CDB sits, that the CU will manage the Damage Assessments and Needs Analysis (DANA) reports to ensure accuracy and timeliness. It is within this context that this Concept Paper for the support for the deployment of the RRM has been prepared. Specifically, a Grant sum of USD 1 million is proposed to support the immediate deployment of the RRM when there is an incident or emergency in any of the CDEMA 18 Participating States. It 1 CNC11-06-3.2 Summary of Emergency Events 2010-2010 in CDEMA Participating States 2 After Action Review, December Rains 2013 St Vincent and the Grenadines and Saint Lucia 3 CDB Disaster Management Strategy and Operational Guidelines (DiMSOG) 2009 Appendix 3 Page 4 of 12
must be noted that this Grant will be a sleeping Grant until there is an emergency situation. It will only be activated at the time of the incident as a predictable means of financing an operation. The Grant at that point in time should be easily accessible. The operational mandate of the CDEMA CU needs to be adequately resourced with improved predictable financing. The financial support is required to facilitate the cost associated with the deployment of teams to provide the necessary response support to countries in a predictable manner. This includes daily subsistence allowance, accommodation and airfare. Page 5 of 12
2.0 Expected Results Generally, the proposed intervention will facilitate the rapid mobilization of the RRM and deployment of its response teams by the CDEMA. This includes 1) increased rapidity to which the DANA report is generated, 2) increased efficiency at which the EOC can coordinate national as well as regional and international aid and response. 3) Rapid deployment of Emergency Support Personnel and resources The expected results and outputs of this intervention are outline below. The link to the CDM Strategy and the CDEMA CU Corporate Plan are presented in Table 2. Impact: An effective and efficient Regional Response Mechanism Impact Indicator: Level of efficiency in the mobilisation and operations of the RRM teams Table 2: Results Framework CDM Strategy CDEMA CU Corporate Plan: Immediate Outcomes Component 2.2 Component Output 4.2 (C.O.4.2 ) Output Indicators Activities Inputs 1.4 Strengthened coordination for Preparedness, Response and Recovery at the national and Regional levels Specific Institutional Outcome 4: Enhanced CDEMA System and CU Operational Readiness and Responsiveness Emergency Response Coordination Emergency Response System enhanced effective response coordination for # of RRM teams deployed (upon request from impacted states) # of Comprehensive DANA reports generated as a result of the deployment of CDAC % improvement of national and regional 1. Prior to impact: the RRM teams will be pre-activated/placed on standby (pending an early warning). With this intervention the funding to support mobilisation, deployment, operations on the ground and redeployment will be covered. The teams are designed to carry out specific functions and operations on the ground. The CDEMA CU, through the Regional Coordination Centre (RCC) will coordinate and manage the entire process from preparation of the teams (by training and exercising) to managing and coordinating the deployment and operations during emergency times. The CU will also act as the key point of contact with the impacted countries and other Page 6 of 12
CDM Strategy CDEMA CU Corporate Plan: Immediate Outcomes Component 2.2 Component Output 4.2 (C.O.4.2 ) Output Indicators Activities Inputs level emergency Coordination at the EOC level as a result of the deployment of COST (upon request) 2. At the point of impact: The RRM teams will be deployed to the impacted state stakeholders to manage the report framework and stand down operations. The CU will also account for funds expended. Page 7 of 12
3.0 Beneficiaries The intended beneficiaries of the intervention are the CDEMA System which includes the Coordinating Unit and eighteen (18) Participating States and the impacted citizens. The ultimate benefits are the people of the Caribbean region. 4.0 Approach and Methodology The teams under the RRM will be trained and equipped for deployment during the course of the year. For example the CDRU team has been trained for deployment in May 2015. The CDAC and COST pilot teams are ready for deployment further to an orientation in May 2015. All of the teams have specific Terms of Reference/ Operations Orders/Standard Operating Procedures which they are required to follow when deployed. These TORs/Ops Orders or SOPs govern their actions on the ground as well as their rules of engagement. Further to the training, the list of key activities should there be an incident are as follows; Pre-activation of the teams (standby)- this will be done by an emergency call out via a contact list Mobilisation includes the team preparing for departure, assembling at the staging areas for briefings, Deployment - movement to the impacted zone Reporting for duty- making the contact with the NDC Conducting Operations As per the TOR/Ops Orders/ SOPs the teams will carrying out their functions and report as per required Close/stand down- upon completion of their work the teams will close operation, report to the NDC, submit Handover report and conduct the exit strategy Debriefing and deployment return to staging area to debrief and redeploy Redeploy return to home base until next operation The key activity under the Grant is to ensure that there is quick access to funding to facilitate the deployment of personnel. Therefore, the financial mechanism for activation of the Grant should coincide with the operational mechanism to start mobilisation. The specific activities on the ground will be undertaken by the teams. The contact lists are attached. The management of the teams will be at the level of the RCC management by the RCC team led by the Preparedness and Response Unit of the CDEMA CU. Overall monitoring and evaluation of the project will be led by the OED. Page 8 of 12
5.0 Schedules for Completion Generally teams will be deployed for 2-3 weeks. This could be shorter or longer depending on the extent of impact. If it is longer, a rotation of teams will be undertaken. As noted above the teams will follow specific procedures for reporting. The reporting on the use of the Grant and results delivered will be done by the CDEMA CU. 6.0 Budget Based on the events occurring in the Haiti 2010 earthquake, drawing on that situation the following budget for deployment of teams has been prepared. In the same year as the Haiti earthquake other events occurred across the region, these included impacts from hurricanes, floods etc which would warrant a similar response and similar cost. It is noted that there would be times when the Grant would not be required i.e. where deployment is not warranted, hence the recommendation for a sleeping Grant. Page 9 of 12
CDAC team of 5 persons COST team of 3 persons RNAT High level teams USAR LL CDRU Total Scenario 1 Worst case scenario (Haiti Earthquake) deployment for 3 weeks in impact zone and national EOC (multicountry impact - several teams to roll out) average per diem of USD 300 30 persons*300 USD *21 days (6 teams deployed) average per diem of USD 300 12 persons *300*21 days (4 teams deployed) average per diem of USD 300 14 persons *300*3 average per diem of USD 300 9 persons *300*1 average per diem of USD 300 20 persons *300*14 days average per diem of USD 300 70 persons*300*14 Total $189,000.00 $75,600.00 $12,600.0 0 $2,700.00 $84,000. 00 airfare $1,000.00 $1,000.00 $1,000.00 $1,000.00 $1,000.0 0 $30,000.00 $12,000.00 $14,000.0 0 $9,000.00 $20,000. 00 vehicle rental (200 per day) $8,400.00 $600.00 $200.00 $5,600.0 0 $294,000.00 $657,900.00 RSS flight USD 1000 per hour (fuel cost) average 36 hrs (based on number of trips ) $36,000.00 $121,000.00 $5,600.00 $20,400.00 Page 10 of 12
CDAC team of 5 persons COST team of 3 persons RNAT High level teams USAR LL CDRU Total translation services (estimated at 100 per day for 21 days by 10 persons) $21,000.00 RSS Pilots (average cost 100 per hour at 36 hrs at 2 pilots) Communications (minutes on phones) $7,200.00 $10,000.00 Internet/wifi $10,000.00 Relief Supplies movement of goods and supplies out of Regional and Sub regional warehouses eg RSS flight is USD 1000 per hour shipping cost estimated $40,000.00 Insurance estimated at 300USD per person @ 149 44700 $44,700.00 $932,200.00 Page 11 of 12
7.0 Stakeholders The key stakeholders collaborating in these activities include the CDEMA CU, the Participating States - National Disaster Offices, the members of the RRM Response support teams such as the CDAC, COST, CDRU, RNAT, etc and the institutions which make up the teams. 8.0 The Proposal The CDEMA CU proposes that there be an Emergency Facility resourced to the amount presented and made available to CDEMA through an annual advance of this amount in part of full for which the CU will report on and audit annually. Page 12 of 12