ECONOMIC COMMUNITY OF COMMUNAUTE ECONOMIQUE
WEST AFRICAN STATES DES ETATS DE L’AFRIQUE
DE L’OUEST
ECOWAS POLICY FOR DISASTER RISK REDUCTION
HUMANITARIAN AFFAIRS DEPARTMENT (DHA)
AUGUST 2006
i
ABBREVIATIONS AND ACRONYMS
ACMAD African Centre of Meteorological Applications for Development
AMCEN Africa Ministerial Conference on the Environment
AU The African Union
DES-PADS Deputy Executive Secretary – Political Affairs, Defence and Security
DM Disaster Management
DHA Department of Humanitarian Affair
DMOs Disaster management organizations
DRR Disaster Risk Reduction
ECOMOG ECOWAS Ceasefire Monitoring GroEERT ECOWAS Emergency Response Team
EPF ECOWAS Peace Fund
IACPs Inter Agency Contingency Plans
ECOWAP ECOWAS Agriculture Policy
ECOWAS Economic Community of West African States
HFA Hyogo Framework for Action
HIV/AIDS Human Immuno Virus/Acquired Immune Deficiency Syndrome
ISDR International Strategy for Disaster Reduction
NEPAD New Partnership for Africa’s Development
OCHA Office for the Coordination of Humanitarian Affairs
OMC Observation and Monitoring Center
PADEP Peace and Development Programme
PRSPs Poverty Reduction Strategy Papers
SEAF Special Emergency Assistance Fund
UNDAF United Nations Development Assistance Framework
UNDP United Nations Development Programme
UNICEF United Nations International Children Educational Fund
UNHCR United Nations High Commission for Refugees
UN/ISDR UN Inter-agency Secretariat of ISDR
WSSD World Summit on Sustainable Development
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EXECUTIVE SUMMARY
In general, ddisasters triggered by natural hazard events have increased in occurrence and severity
in the sub-region, particularly the Sahelian zone, since the last three decades. Over 75% of the West
Africa’s population lives in areas affected at least once in every two years by a tropical cyclone,
flood, drought or an earthquake. Hundreds of people and their livelihoods in West African countries
are periodically exposed to, at least, one disaster event caused by vulnerability to natural hazards.
Between 2000 and 2001, 13% of Africa’s population (35 million) were recorded affected by at least
one form of disaster. In West Africa, natural hazards compounded by conflicts impact heavily on
food security and compromise efforts to combat HIV/AIDS and other tropical diseases. Disasters
and conflict are linked and are mutually reinforcing.
Disasters put development at risk and development choices can likewise generate new disaster risks,
The increasing interest of ECOWAS member states in disaster risk reduction has mainly been
driven by efforts to fulfill its peace and security mandate, including the management of
humanitarian outcomes of conflicts. The focused attention on disaster issues culminated in the
establishment of disaster reduction as an operational theme. The ECOWAS Council of Ministers
51
st
Session in December 2003 in Accra established a Technical Committee on Disaster
Management to recommend ways to operationalize a disaster prevention and reduction capacity.
This Policy document is presented in three parts: Part I provides the background to the Policy, an
introduction, a summary of reviews of disaster management practices and capacities in West Africa,
including key challenges, and, justification for a policy for disaster risk reduction for West Africa.
Part II covers the policy vision, statement, objectives, scope and principles, in addition to the focus
areas, strategies and priorities for action under the Policy. Part III covers the institutional
mechanisms for implementation
The Policy focuses on reducing disaster risks through development interventions by looking at
managing disaster risks as a development challenge. Hence, the recommendations cover actions in
sustainable development aimed at strengthening the sub-regional capacity for disaster risk
management. The Policy addresses disasters triggered by natural hazards that may be exacerbated
by conflict but will not contain explicit interventions on conflicts.
Priorities for action under the Policy include:
• supporting development and sub-regional networking of national platforms for disaster
reduction
• promoting expansion of the various early warning systems in operation and facilitating their
coordination and harmonization
• supporting public awareness and advocacy of disaster reduction
• integrating disaster risk reduction principles in the harmonization programme and
Agriculture Policy of ECOWAS and in national development policies
• developing sub-regional disaster response capability based on the ECOWAS Standby Force
and the ECOWAS Emergency Response Team (EERT)
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CONTENTS
PART I
1. Introduction …………………………………………………………..……………...… 4
2. Review of disaster reduction and management
in West Africa : Status and Challenges ……….…………………………………..…. 5
2.1 Disaster Problem in West Africa ………………………………………………... 5
2.2 Status and Major Challenges of Disaster Reduction in West Africa ……………. 5
3. Justification for a Policy for Disaster Reduction in West Africa ……………..……. 8
PART II
4. The ECOWAS policy for Disaster Risk Reduction ………………………………….. 9
4.1 Vision ………………………………………………………………………….. 9
4.2 Policy Statement ……………………………………………………………..... 9
4.3 Goals …………………………………………………………………………... 9
4.4 Scope of the Policy ……………………………………………………………. 9
4.5 Principles ……………………………………………………………………… 10
5. Policy focus areas, strategies and priority actions ……………………...…………… 11
PART III
6. Operational arrangements for implementing the Policy …...……………….………. 18
6.1 Implementing Structures ………………………………………………………. 18
6.2 Implementation Responsibilities and Functions ………………………………. 18
7. Financing the Policy …………………………………………………………………… 22
7.1 Sources of financing …………………………………………………………… 22
7.2 Resource mobilization and partnership issues ………………………………… 22
8. Monitoring and reviewing the Policy ……………..………………………...………... 22
8.1 Institutional Responsibilities ……………….……………………………….….. 22
8.2 Monitoring Indicators …………………….………………………………..….. 23
8.3 Means of Verifications ……………………………………………………..….. 23
8.4 Country Progress Reporting Arrangements ………………………………..….. 23
8.5 Policy Review process ……………………………………………………….... 23
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PART I
1. Introduction
Disasters arise from the interaction of hazards with vulnerability. In West Africa, several natural
hazards constitute disaster threats. These include geological events (such as earthquakes), hydro
meteorological phenomena (such as flood, drought and windstorms) and biological factors (such as
disease epidemics). Due to the high vulnerability of individuals and communities, the occurrence of
these natural hazards often results in disasters that destroy life, property and the environment and
undermine West Africa’s development. Disasters also jeopardize achievement of the Millennium
Development Goals and slow down the process towards sustainable development. However, efforts
are underway at all levels to address the problem.
At the international level, the International Decade for Natural Disaster Reduction (1990 – 1999),
the Yokohama Strategy for a Safer World and the International Strategy for Disaster Reduction
(ISDR) launched in 2000 focused global attention on the need to address the issue of disaster
reduction. The 2002 World Summit on Sustainable Development (WSSD) addressed disaster
reduction as a key issue of sustainable development. Consequently, the Hyogo Framework for
Action 2005-2015 provided strategic directions and set five areas of priority for further expanding,
deepening and strengthening local, national, regional and international actions to reduce disaster
risks.
At the regional level, the African Union has, together with the NEPAD Secretariat, developed the
African Regional Strategy for Disaster Risk Reduction (the African strategy), with the support of
the UN Inter-agency Secretariat of ISDR (UN/ISDR), in cooperation with the United Nations
Development Programme (UNDP) and the African Development Bank. The Strategy was endorsed
by the 10
th
Meeting of the Africa Ministerial Conference on the Environment (AMCEN) and was
favourably noted by the 2004 African Union Summit, which called for the formulation of the
Programme of Action for the Implementation of the Africa Strategy (2005-2010).
The Africa Ministers responsible for disaster risk management at its first AU Ministerial
Conference on Disaster Risk Reduction (DRR), held 5-7 December 2005 in Addis Ababa Ethiopia
developed the African Programme of Action for DRR which was later on approved by the
Executive Council, in Khartoum, Sudan, December 2005 (Decision EX.CL/Dec 250 - VIII).
Implementation of the strategy rests at the sub-regional and national levels.
The organizational mandate and programme mix of ECOWAS allow its Secretariat to coordinate
the development of a sub-regional strategy and programme that integrates disaster risk reduction
into the sub-regional poverty reduction, security, and sustainable development agenda. Articles 22
and 29 of the Revised Treaty of ECOWAS provided for cooperation by members to strengthen
existing institutions to manage natural calamities, provide food aid in the event of serious food
shortages, and, to establish early warning systems. The Protocol Relating to the Mechanism for
Conflict Prevention, Management, Resolution, Peace-Keeping and Security, mandated the
development of effective policies that will help alleviate the suffering of the population and restore
life to normalcy after complex humanitarian emergencies and disasters.
Consequently, over the last couple of years, ECOWAS has increasingly focused its attention on
disaster issues culminating in the establishment of disaster risk reduction as an operational theme.
5
The Secretariat participated in reviews of disaster risk reduction by the UN/ISDR in 2002, for the
Africa Strategy in 2003 and in some workshops. Then, the ECOWAS Council of Ministers 51
st
Session in December 2003 in Accra established a Technical Committee on Disaster Management to
recommend ways to operationalize a disaster prevention and reduction capacity. A meeting of the
Committee in March 2005 outlined the scope of the ECOWAS mechanism for disaster
management, which has been developed into this Policy.
2. Review of Disaster Reduction and Management in West Africa: Status
and Major Challenges
2.1 The Disaster Problem in West Africa
Disasters triggered by natural hazard events have increased in occurrence
i
and severity in the sub-
region, particularly the Sahelian zone, since the last three decades. Other significant hazards
include diseases
ii
, pest (particularly locust invasions), deforestation, forest degradation, flooding,
sea erosion, sea level rise, coastal wetlands degradation, invasive alien species, and wildland fire.
Lower and more variable rainfall levels during the last three to four decades have contributed to
worsening desertification, food security, natural resource degradation and coastal vulnerability.
Climate change factors are likely to worsen drought conditions and coastal erosion, change
vegetation patterns, and increase tidal waves and storm surges. Large-scale seismic activity is rare
but active fault areas experience earthquake swarms involving minor tremors. Other hazards
include transportation, industrial and chemical accidents and technological systems failure.
The extent of vulnerability to hazards determines the extent of the impact of disasters.
Vulnerability to natural hazards in the sub-region will likely worsen due to several factors,
including the high poverty level, negative population and demographic trends, development-
generated factors, such as inadequate public investment to maintain and enhance resilience, fragile
environment, conflict, and, HIV/AIDS.
2.2 Status and Major Challenges of Disaster Reduction in West Africa
Recent reviews
iii
done by the UN/ISDR have identified gaps in five areas of disaster risk reduction
in West Africa.
2.2.1 Prioritizing disaster risk management and developing institutional base
Status: National authorities recognize the need to develop and strengthen institutions required to
build resilience to hazards. Consequently, political commitment to disaster risk reduction is
increasing in the sub-region. Countries are establishing and developing national platforms for
promoting disaster risk reduction in the context of development, including Mali, Nigeria, Ghana and
Senegal.
The effort in developing the ECOWAS disaster management mechanism with a financing facility is
further evidence of this. However, many countries are yet to develop national policies, legislation,
or plans for disaster risk reduction. Some countries recognize grassroots disaster volunteers
iv
and
community level structures of civil protection organizations, but national policies and plans have
not explicitly focused on either risk reduction or strengthening local coping strategies.
6
The establishment of national platforms for disaster reduction was requested in the Economic and
Social Council (ECOSOC) resolution 1999/63 and in the United Nations General Assembly
resolutions 56/195, 58/214 and 58/215. The expression ‘national platforms’ is a generic term used
for national mechanisms for coordination and policy guidance on disaster risk reduction that need to
be multi-sectoral and inter-disciplinary in nature, with public, private and civil society participation
involving all concerned entities within a country (including United Nations agencies present at the
national level, as appropriate). National platforms represent the national mechanism for the
International Strategy for Disaster Reduction.
Major challenges: The major challenge is to how to make disaster risk reduction a priority
development concern, including strengthening the capacity of the ECOWAS Secretariat to support
disaster risk reduction in the sub-region.
2.2.2 Developing and strengthening disaster risk assessment and early warning
Status: Disaster risk assessment is low in the sub-region: data collection on hazards, particularly
small-scale hazards and impacts is not common or systematized, risk indexing is yet to begin, risk
maps are generally unavailable and land use capability maps do not indicate natural hazard risks.
Early warning systems covering food security, drought and climatic factors operate in the sub-
region
v
. However, mechanisms for warnings on desertification and other major hazards are largely
undeveloped or are limited to risk surveillance and monitoring. The emerging ECOWAS Peace and
Security Observation System is yet to be integrated in disaster early warning systems. National
early warning institutions are not well facilitated but improved networking and partnering
arrangements with external partners have helped to alleviate the constraint of weak data collection
and analysis capabilities. The capacities of several sub-regional institutions
vi
that provide vital
services for risk assessment and early warning need to be strengthened and their output made more
people-centered.
Major challenges: (a) promoting the practice of hazard and vulnerability assessment, monitoring
and early warning; (b) strengthening all elements of famine and food security early warning systems
in operation in the sub-region and harmonizing the various systems; (c) monitoring desertification
and climate impacts.
2.2.3 Enhancing use of knowledge and innovation to reduce disaster risks
Status: National information systems are not geared towards generating, analysing and
disseminating information on disasters. A sub-regional disaster information sharing house does not
exist. On the demand side, the capacity within disaster management organizations (DMOs) to
analyze available data is often weak. Some countries have made public information more easily
available through press pluralism that bodes well for disaster mitigation and response but public
access to disaster information is generally inadequate. ACMAD initiated an innovative approach to
disseminating weather information to farmers in the Sahel through solar rechargeable radios but
expansion is hampered by the relatively high cost of the radios. Education and training systems do
not incorporate instruction in disaster risk reduction while research and analysis on risk behaviour
in the sub-region is relatively lacking. Various means are utilized to create public awareness of
disaster risk reduction, including official events and the media but the language and mode of media
presentations are often not people-centered.
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Major challenges: (a) expanding and enhancing generation and dissemination of disaster risk
information (b) integrating disaster risk reduction in formal and informal education, (c) enhancing
research and innovation in disaster management.
2.2.4 Reducing development risk factors
Status: Rain-dependent agrarian and primary-commodity based economies and poverty contribute
to the high vulnerability to natural hazards in the sub-region. Countries have pursued pro-poor
growth policies but some policies have not enhanced the resilience status of the sub-region while
food insecurity persists. The ECOWAS Agriculture Policy (ECOWAP) is aimed at sustainable
food security and poverty reduction partly by reducing famine and other disasters triggered by
natural hazards through interventions in early warning, hazard management, post-conflict food
crises and other areas. National disaster management frameworks also emphasize food security as a
requirement for disaster risk reduction through several interventions
vii
. To further manage natural
hazards and environmental degradation, countries have implemented interventions to protect and
better safeguard the natural capital base but many factors, including lack of effective legislation,
hamper compliance.
National authorities have developed policies to regulate and ensure integrated land resource use but
physical planning and economic planning are not integrated. Consequently, the regulatory
framework for land use planning and physical development is weak while compliance with
settlement planning and development policies, controls, and standards is low. This is partly because
national disaster management policies do not clearly aim to integrate disaster risk reduction in
national development policies, planning and implementation processes. Also, many national poverty
reduction strategies do not directly link with disaster risk reduction.
Major challenges: These include: (a) improving the design and enforcement of public regulations
on physical development; (b) meeting food security challenges with existing drought and
desertification management programmes; (c) addressing regional, trans-boundary and emerging
risks, such as crop pest infestation, migratory livestock herding, and, invasive alien species; (d)
coordinating and ensuring complementarities between disaster risk reduction and conflict
management; (e) expand public-private partnerships; (f) enhance and expand measures for social
protection.
2.2.5 Strengthening preparedness and response
Status: Preparedness planning involves contingency planning, early warning and evacuation.
Countries have developed national contingency and evacuation plans but the quality varies
viii
. Also,
countries are unable to rehearse contingency plans
ix
. Several countries, including Benin, Burkina
Faso, Cote d’Ivoire, Ghana, Guinea, Guinea Bissau, Mali, Mauritania, Niger and Togo have
completed Inter Agency Contingency Plans (IACPs) with OCHA, UNHCR, UNICEF and other
agencies of the United Nations system to coordinate the assistance of development agencies to
national response efforts but the institutional and physical infrastructure for emergency management
remains limited. For example, most countries lack central facilities for coordination, command and
control of response interventions in emergencies. The recent development of a mission control
centre for emergency management by Nigeria offers an example of good practice. Early warning
systems contribute positively to emergency preparation and response in the sub-region but the
8
integration of early warning into emergency management planning is limited and, disaster
management information systems do not adequately distinguish between localized crises and acute
emergency situations.
Development partners provide humanitarian assistance in times of disasters but are increasingly
focusing their assistance on long-term development while the ability of countries in the sub-region
to adequately finance disaster response requirements is limited. Logistics problems persist in the
management of emergency assistance, targeting commodity distribution can be inadequate, and,
there are sometimes imbalances between the mix of food and non-food assistance. However,
increasingly innovative approaches to emergency response linking relief to development are
emerging, including cash-for relief, instead of food, small-scale water harvesting, and, integration of
food, health and functional education programmes.
Major challenges: (a) enhancing the capacity for sub-regional emergency response and contingency
planning; (b) integrating early warning into disaster management; (c) harmonizing national
emergency systems; (d) strengthening interaction between disaster managers and development
practitioners; (e) developing voluntarism in emergency management.
3. Justification for a Policy for Disaster Reduction in West Africa
There are several reasons for designing and implementing a common policy for disaster reduction in
West Africa, including the following:
a) Increasing disasters in the sub-region, due partly to increasing vulnerability and emerging
hazards, can only be addressed effectively through disaster reduction interventions at both
national and sub-regional levels.
b) There is growing recognition that globally investment in disaster reduction saves far more
expenditures on response.
c) Resources spent on responding to disasters that recur frequently need to be reallocated to
development interventions that help reduce the risk of future disasters.
d) There is the need to utilize post-disaster recovery and reconstruction opportunities to reduce
disaster risks through risk-sensitive development interventions.
e) There is a global move towards balancing disaster response with disaster reduction in managing
disasters.
f) Disaster reduction is a development challenge that should be addressed through development
interventions that help prevent and reduce disaster risk.
g) Countries in the sub-region are developing frameworks for disaster risk reduction; there is the
need for a sub-regional policy framework to support national efforts in this direction.
h) ECOWAS has increasingly focused its attention on disaster issues in accordance with the
Revised Treaty; it requires a policy framework for disaster reduction to guide its actions in
moving forward.
i) The Policy fulfills mandatory requirements of ECOWAS under the Revised Treaty and the
Protocol Relating to the Mechanism for Conflict Prevention, Management, Resolution, Peace-
Keeping and Security.
j) Regional Economic Communities are required to design disaster reduction policies and
programmes under the Africa Strategy for Disaster Risk Reduction.
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PART II
4. The ECOWAS Policy for Disaster Risk Reduction
4.1 Vision
The vision of the Policy is a sub-region of resilient countries and communities in which natural
hazards do not negatively impact development and where development processes do not lead to
accumulation of disaster risks from natural hazards.
4.2 Policy Statement
The policy for disaster reduction of ECOWAS is to facilitate sustainable integration and
development of West African States and Governments through promoting and supporting effective
disaster risk management that helps create safer and resilient communities in social, economic and
environmental terms.
4.3 Objectives
The objectives of the ECOWAS Policy for Disaster Risk Reduction Policy are to:
• Provide an inter-governmental framework for collaboration and partnership for ECOWAS
Member States in Disaster Risk Management;
• Promote integration of disaster risk reduction into ECOWAS Member States National
Development Policies, Plans and Programmes;
• Facilitate ECOWAS Member States to develop and strengthen institutions, mechanisms and
capacities for building resilience to hazards;
• Promote incorporation of risk reduction approaches in emergency preparedness, rehabilitation
and recovery programmes of ECOWAS Member States;
• Enhance the contribution of disaster reduction to peace, security and sustainable development of
the sub region.
4.4 Scope of the Policy
This document presents ECOWAS policy framework for disaster risk reduction in the sub-region.
The Policy would focus on areas of importance to the West African situation under the guidance of
the Africa Union Strategy for disaster risk reduction and the Hyogo Framework for Action.
The Policy focuses on reducing disaster risks through development interventions.
Recommendations under the Policy would not narrowly focus on disaster management, but cover
actions in sustainable development aimed at strengthening the sub-regional capacity for disaster risk
management.
Issues of conflict and their humanitarian implications are at the centre of ECOWAS interventions
currently and are providing the impetus for developing sub-regional capacities in disaster risk
reduction. There exists a two-way relationship between disasters and conflicts: not only do conflicts
10
affect disaster outcomes but the type, onset and intensity of conflicts are also influenced by
environmental factors and circumstances. Because both natural and conflict disaster situations result
in humanitarian crises that undermine individual, country, regional and ecosystem security, both
will be addressed in a complementary manner under the peace and security mechanism of
ECOWAS. Thus, the Policy will address disasters triggered by natural hazards exacerbated by
conflict but will not contain explicit interventions on conflicts, except in areas of collaboration
under the EPF Peace and Development Programme (PADEP). Furthermore, achieving the
objectives of the Policy will contribute to reduction of conflict.
The Policy is not a detailed prescription or blueprint for national action but it is an expression of
agreed principles, objectives, priorities and institutional aspects of developing effective, efficient
and sustainable disaster risk management in the sub-region. Consequently, the Policy would not
contain details on operational matters or detail descriptions of components of priority actions. The
latter would be the covered in follow-on documents including a Programme of Action for the
Implementation of the ECOWAS Policy and Mechanism for Disaster Reduction.
4.5 Principles of the Policy
The Policy will be guided by the following principles:
1) Recognizing that effective disaster reduction involves empowering people and local
communities to act to protect their lives, property and the environment, ECOWAS will play a
catalytic role in enhancing self-protection by promoting adoption of effective coping capacities
at the national and local level.
2) Mindful of the inter-connectedness of livelihood, technological, political and other threats and
hazards, ECOWAS will adopt a multi-hazard approach that addresses small, recurrent and
localized disasters and large infrequent disasters triggered by natural, technological and other
threats.
3) In the event that the capabilities and resources of member states are unable to cope with
impending, occurring or past disasters, ECOWAS will provide material, financial and other
emergency management assistance to member states upon their request to develop emergency
preparedness and response activities.
4) Aware of the need to utilize existing disaster management capabilities, ECOWAS will address
disaster issues by supporting and supplementing local, national and international capacities and
efforts in disaster reduction and management.
5) Recognizing that the effects of emergencies last after the physical manifestation of hazards end,
and recognizing that risk reduction as a key objective of rehabilitation and recovery in policy
and in practice, ECOWAS will adopt a contiguum, long-term approach involving the
simultaneous delivery of relief, rehabilitation and development services.
6) Aware that disaster reduction is not a stand-alone sector but that it requires integrating
capacities across stakeholders, ECOWAS will adopt multi-stakeholder participatory approaches,
including community and volunteer participation, in designing and implementing programmes
and activities under the Policy.
11
7) The Policy will also pay attention to the gender perspective and the cultural diversity of the sub-
region.
8) The development and implementation of programmes under the Policy will emphasize cost-
sharing by all partners.
9) To ensure effectiveness of sub-regional disaster management, the Policy will promote and
support partnerships at three levels: (a) between different role players, including civil society,
within countries, (b) among member states, and (c) between countries, ECOWAS and the
international community.
10) Recognizing the need to ensure sustainability of interventions under the Policy, the Technical
Committee and member states will agree on what conditions will trigger the ECOWAS
assistance under the Policy and the terms under which member nations can access that
assistance. Issues to consider will include: (a) eligibility criteria (b) the quantum of support to
be provided under each access, (c) number of times a country can access support under the
facility, (d) expected cost-sharing and other complementary inputs by accessing countries.
5. Policy focus areas, strategies and priority actions
The Policy comprises five areas of focus and associated strategies and priority actions as follows:
5.1 Focus area 1: Enhancing disaster reduction by making it a development priority
with the requisite institutional capacities
Strategy 1.1: Making disaster risk reduction a priority in ECOWAS requires incorporating
disaster risk reduction principles in the development agenda and programmes of the Community.
To emphasize the priority status of disaster reduction in the agenda of ECOWAS, the Authority of
the Heads of State and Government will take a Decision to adopt the Policy. To further
demonstrate strong and committed leadership, the Authority will dedicate a portion of the
ECOWAS Peace Fund to financing the Policy and facilitate co-financing of the Policy by all
stakeholders.
Priorities for Action:
• promote integration of DRR into the ECOWAS development agenda and programmes,
including agreeing a Programme of Action for the Implementation of the Policy;
Strategy 1.2: Committed leadership empowers those at risk to achieve protection from
disaster impacts by discharging its governance responsibilities. A major responsibility is the
development of conducive institutional conditions for disaster risk reduction. The Policy will
contribute to the development of national frameworks for disaster risk reduction by promoting the
establishment or strengthening of national platforms for disaster risk reduction.
Priorities for Action:
• support creation, strengthening and sub-regional networking of national platforms for disaster
reduction with strong policy, legislation and resource base, and, community and volunteer
participation
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Strategy 1.3: Disaster risk reduction systems can play significant catalytic roles in
enhancing self-protection by safeguarding and strengthening local coping mechanisms, capacities
and institutions. This requires that local survival strategies inform national and sub-regional disaster
assistance interventions. The Policy proposes to facilitate strengthening of sub-regional capacity for
disaster reduction, including through increased use of local consultants and service providers in the
sub-region.
Priorities for Action:
• Develop and strengthen specialized sub-regional institutions for disaster risk management
services
• Develop database on and strengthen disaster risk management capacity, including local expert
capacity and coping strategies, in the sub-region, particularly as part of the ECOWAS
Emergency Response Team (EERT), and in Africa.
Strategy 1.4: ECOWAS recognizes that it can best meet its responsibilities in humanitarian
assistance if it builds the internal capacity to support disaster risk reduction. The Policy will,
consequently, focus on progressively enhancing the capacity of the Executive Secretariat in disaster
risk reduction, including through institutional structuring, human resource development and
technical assistance. A major component of this capacity is a mechanism for concerted sub-regional
action to support efforts to reduce disasters in the long run and meet emergency needs in the
immediate aftermath of disasters.
Priorities for Action:
• develop disaster risk reduction capacity of the ECOWAS Secretariat, including creation of a
sub-regional Mechanism for Disaster Risk Reduction with a financing facility
5.2 Focus Area 2: Reducing disasters by improving identification, assessment,
monitoring and early warning of risks
Strategy 2.1: West Africa is best with a multitude of hazards and threats; consequently, the
risk setting changes frequently. Therefore, reducing disasters effectively requires a multiple-risk
approach underpinned by comprehensive and continuous monitoring of hazard and vulnerability
threats. Such a monitoring system has to foster understanding of disaster risk trends and be useful
for normal development planning and for disaster early warning during times of crises. It should
also contribute to learning, adaptation and accountability. The Policy will support the development
of standard risk assessment and monitoring instruments based on participatory approaches for the
sub-region. It will also achieve this by coordinating agreement on a common set of risk data
collection formats and analysis methodologies, indicators and presentation guidelines.
Priorities for Action:
• Promote the understanding and practice of risk identification and assessment, including through
development and supporting use of guidelines, standard procedures, operational manuals,
handbooks, maps, training modules, and similar tools;
13
Strategy 2.2: The Policy will also support strengthening of the technological capacities for
risk data collection, storage and exchange. In addition, it will develop the seasonal climate outlook
forums scheme as a useful model for seasonal forecasting of climate-related hazards, and,
strengthen sub-regional disaster management service institutions.
Priorities for Action:
• support strengthening hazard monitoring capacities, particularly:
disaster risk information capacity, including national statistical records, collection and
management
development of systems of indicators of disaster risk and vulnerability at national and sub-
regional levels
the technological base (equipment and systems) for risk surveillance and monitoring
regional disaster management service institutions;
Strategy 2.3: For risk reduction to be effective, improved risk knowledge and strengthened
technical monitoring need to feed into people-centered warning systems
x
. This will ensure timely
and accurate dissemination of informative and comprehendible warnings and other information on
all hazards targeted at those at risk. This depends on strengthening the institutional base of
warnings. Consequently, the Policy will facilitate balanced and coordinated development of the
major international drought and food security warning systems in operation in the sub-region,
emphasizing the dissemination and preparedness elements. The Policy will also support
interventions to directly link risk assessment processes and early warning systems, and, to develop
risk databases, including indicators of complex humanitarian emergencies.
Priorities for Action:
• promote understanding of the concept of and requirements for early warning, involving risk
knowledge, technical monitoring and warning service, dissemination and preparedness;
• promote expansion of the scope of hazard coverage, timeliness of warnings, accessibility to
people of various early warning systems in operation and facilitating their coordination and
harmonization
• develop gender-sensitive disaster and humanitarian indicators for integration in the early
warning system of the ECOWAS Observation and Monitoring Center (OMC) and in the
PADEP.
5.3 Focus Area 3: Building safe and resilient societies by enhancing the use of
knowledge
Strategy 3.1: The Policy believes that disasters can be substantially reduced if people are
well informed, guided and motivated to develop a culture of disaster prevention and resilience
through improved access to knowledge, information and communication on disaster risk reduction.
This requires the development and strengthening of capacities to transform risk information and
knowledge (from education, training and tradition) into sound disaster risk reduction judgment and
action at all levels. The Policy will adopt various approaches to help enhance public awareness of
disaster risk reduction including: (a) supporting increased interactions between disaster managers
and the public through the media, (b) promoting integration of disaster education in formal and non-
formal education systems, and, (c) disseminating good practices.
14
Priorities for Action:
• Support public awareness and advocacy of disaster reduction
Strategy 3.2: To further help enhance access to information and expand information
dissemination, the Policy will support a pilot regional disaster risk reduction information service
based on networking of national information services and the general strengthening of public
communication mechanisms. The Policy will promote public-private partnerships that increase the
availability and adaptive use of modern information and communication technologies, including
space technology and geographical information systems, for disaster reduction. These partnerships
will stress the integration of these modern technologies with local and traditional modes.
Priorities for Action:
• Develop and strengthen disaster information systems and networks, including development of
pilot sub-regional disaster information service
• Develop disaster education, training, research and technology programmes
Strategy 3.3: To enhance research and innovation in disaster reduction, support for the
development of training programmes in disaster risk reduction will be tied to the strengthening of
sub-regional disaster service institutions under the Policy. Priority issues to research include: the
risk implications of development interventions, cost-benefit of disaster risk reduction interventions,
development policy constraints to disaster risk reduction, prospects for risk sharing instruments as
disaster management tools, and climate change effects in West Africa.
Priorities for Action:
• Support programmes to monitor and review national progress in disaster risk management,
including undertaking and publishing sub-regional and national baseline assessments
5.4 Focus Area 4: Reducing underlying risk factors by addressing priority
development concerns through disaster reduction interventions
Strategy 4.1: Reducing underlying risk factors require mainstreaming disaster risk
reduction in development policies, planning and implementation. This should start with a
fundamental attitudinal change: both development and disaster communities need to recognize that
disaster risk reduction is a development challenge. Meeting this challenge depends on promoting
risk-sensitive development and development-oriented risk reduction. Towards this end, Policy
interventions in Focus Area 3 above to enhance dialogue and collaboration between disaster
management practitioners and development policy makers and planners will directly contribute to
mainstreaming disaster risk reduction in development.
Priorities for Action:
• integrate disaster risk reduction principles in the economic and financial policy harmonization
programme of ECOWAS and in national development policies
15
Strategy 4.2: In addition, the Policy will promote the integration of disaster risk reduction
in national sustainable development strategies, as the PRSP and UNDAF. Also, the Policy will be
coordinated with the ECOWAP to facilitate achievement of food security, stable agricultural
incomes and integrated land and water management. Given the very strong linkages between the
environment, vulnerability and poverty in Africa, the Policy will encourage the integrated and
sustainable use and management of environmental and natural resources, including management of
effects of climate variability and change.
Priorities for Action:
• Promote integration of disaster reduction in the implementation of the ECOWAS Agriculture
Policy, emphasizing gender aspects, to ensure food security for resilience
• Support integration of disaster reduction strategies with climate change adaptation, particularly
drought management and desertification control
• Facilitate sustainable ecosystems and environmental management
Strategy 4.3: The Policy will emphasize disaster risk reduction through interventions to
address sources of vulnerability, including the major health challenges in the sub-region. Epidemics
of malaria and communicable diseases such as HIV/AIDS, cholera and celebrospinal meningitis
(CSM) either constitute, or predispose people to, disaster. Also, disasters from natural hazards can
create favourable environmental and other conditions for disease epidemics. Consequently, the
Policy will support mainstreaming disaster risk reduction in health interventions and promote
utilization of the health and human resource development programmes of ECOWAS to address the
complex factors driving these heath challenges in the sub-region.
Priorities for Action:
• Support mainstreaming of disaster risk reduction into health sector development
interventions
Strategy 4.4: It is essential that physical planning integrates socio-economic and spatial
planning to promote sustainable land use, orderly settlement development, critical infrastructure
protection, and, public safety. The Policy will encourage national authorities to strengthen
regulatory interventions, provide incentives to those who apply such measures, and, show the way
through demonstration of good practice. In addition, the Policy will work with construction
professional associations to promote increased compliance by their members with these standards
and codes while encouraging the private sector and other role players to ensure universal
compliance.
Priorities for Action:
• collaborate with appropriate authorities and groups to enhance public regulation on land use,
physical development and infrastructure protection
Strategy 4.5: Financial tools endow individuals and communities with the financial
wherewithal to strengthen their prevention and coping capabilities. The Policy will encourage
initiatives that promote effective financial intermediation to widen access to affordable financing,
and risk spreading and transfer, such as through microfinance and insurance schemes.
16
Priorities for Action:
• support identification of viable financial instruments for disaster risk reduction
5.5 Focus Area 5: Improving effectiveness of response through stronger disaster
preparedness
Strategy 5.1: Enhancing response through more effective preparedness requires developing
strong and efficient response preparedness with disaster risk reduction focus. Disaster management
can be strengthened and re-oriented towards the disaster risk reduction approach by ensuring
complementarities between disaster mitigation and disaster response. The Policy will ensure linkage
between hazard risk management, response capability and long-term recovery by supporting
measures to strengthen preparedness for effective response. Ensuring this linkage also requires
integration of disaster risk reduction into post-disaster relief, rehabilitation and reconstruction
processes through risk-reducing interventions during the response phase.
Priorities for Action:
• Support strengthening of national disaster response capacities and their re-orientation towards a
disaster risk management focus
• Develop programmes for information sharing and cooperation between disaster managers and
the development community
Strategy 5.2: Minimizing the divergence between emergency management and
development requires adequate and prompt financing of post-disaster development activities.
Integrating emergency management and development also depends on local capacities for
development management at the community level. Another factor is the capacity of national
disaster authorities to manage comprehensive recovery programmes involving rehabilitation and
reconstruction with international assistance. The Policy will adopt and encourage strategies that
develop response capacity and balance immediate emergency needs with measures to bridge the
relief-rehabilitation gap. A key ECOWAS tool for fostering post-disaster development is the Peace
and Development programme (PADEP) of the ECOWAS Peace Fund (EPF). The policy will
promote integrated post-disaster development by supporting implementation of gender-sensitive
interventions under or linked to PADEP, particularly those that promote economic recovery of local
economies in post-emergency periods. The Policy will also strengthen the process of developing
zonal bureaux for emergency monitoring by implementing recovery and rehabilitation interventions
through the bureaux.
Priorities for Action:
• enhance sub-regional contingency planning through preparation of a Sub-regional Emergency
Management Plan that links the disaster mechanism to relevant programmes such as the OMC
and PADEP
Strategy 5.3: The ability of member states to respond effectively to disasters depends on
their internal response capabilities, both civil and non-civilian, and the ability to rapidly deploy such
response mechanisms in emergencies before external assistance arrives. A crucial component of
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this internal response capacity is the complement of trained civilian experts, including volunteers, in
relevant multi-disciplinary fields of humanitarian assistance management who are located in situ in
member states and are available for rapid deployment, either alone or together with security and
agencies, in times of emergencies. Thus a key strategy will be to nurture the spirit of volunteerism,
particularly from civil society at community levels, and to support development of effective
civilian-military cooperation in emergency management. The existence of such capability in
member states will facilitate sub-regional coordination of emergency response interventions. A key
tool for achieving these objectives is the planned ECOWAS Emergency Response Team (EERT)
which will constitute civil deployment along emergency and peacekeeping missions. The EERT
will be used to develop capabilities of first responders to emergencies (such as the fire, medical,
police, military and medical services) at the national level. The EERT will also provide the basis
for national emergency planning and for coordinating sub-regional response, particularly to
managing cross-border emergencies. Consequently, the Policy will promote development of the
EERT and its integration in the both disaster emergency and peace support operations of ECOWAS.
Priorities for Action:
• develop sub-regional disaster response capability, including the EERT, as part of the sub-
regional mechanism for disaster management
• coordinate and support review and rehearsal of sub-regional preparedness and contingency plans
for major hazards
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PART III
6. Operational arrangements for implementing the Policy
6.1 Implementing structures
6.1.1 Existing institutions and structures
Various institutional actors have key roles to play in implementing the Policy. These are:
• ECOWAS Council of Ministers
• ECOWAS Disaster Management Technical Committee
• ECOWAS Executive Secretariat
• National Governments
• Major Groups, including civil society, private sector and the scientific community
• African Union Commission
• National Platforms for Disaster Risk and national chapters of the ECOWAS Emergency
Response Team
• United Nations system
• International Development Partners.
6.1.2 Proposed new structures
All the above institutions and structures already exist but, to ensure effective management of the
Policy, three new structures will be created within ECOWAS. These are as follows:
a) a committee of ECOWAS Council of Ministers to be called the Ministerial Disaster
Management Steering Committee
b) an Inter-Departmental Coordinating Committee within the ECOWAS Secretariat to be
composed of Directors of the Departments of Humanitarian Affairs, Defence and Security,
Observation and Monitoring Center (OMC), Political Affairs, Agriculture and Environment,
and, Human Resource Development. The Committee will be coordinated out of the office
of the Deputy Executive Secretary for Political Affairs, Defence and Security (DES-PADS)
c) a Disaster Management Unit within the Humanitarian Affairs Department of the ECOWAS
Secretariat.
The links between all these structures are shown in an organogram in Figure 1.
6.2. Implementation responsibilities and functions
The respective responsibilities of the key structures in implementing the Policy are as follows:
6.2.3.1 ECOWAS
6.2.3.2 ECOWAS Ministerial Disaster Management Steering Committee
a) provide overall oversight of the Policy
b) act on behalf of and report to the Council of Ministers
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Figure 1
Organogram of structures for implementing the ECOWAS Policy for Disaster Risk Reduction
Council of Ministers
Ministerial Disaster Management
Steering Committee
Disaster Management
Technical Committee
ECOWAS
African Union
Commission
ECOWAS SECRETARIAT
Inter-Departmental
Coordinating
Commi
ttee
Department for
Humanitarian Affairs
Disaster
Management Unit
National Governments
International
Development
partners & United
Nations s
y
ste
m
Major groups
(including civil
societ
y
)
20
6.2.3.3 ECOWAS Disaster Management Technical Committee
a) provide technical oversight of the Policy
b) provide consultation platform for the review of the Policy
c) report to the Council of Ministers
6.2.3.4 ECOWAS Executive Secretariat
a) coordinate the implementation of the Policy within ECOWAS, between ECOWAS and
member states, and, between ECOWAS and other Regional Economic Communities
(RECs), the African Union Commission and International Development Partners
b) provide guidance on implementation of the Policy to states
c) coordinate states initiatives under the Policy at the sub-regional level
d) facilitate provision of vital sub-regional information services for disaster risk reduction, such
as early warning and research that support disaster management
e) facilitate and coordinate sub-regional financial resource mobilization to supplement national
efforts
f) facilitate, support and coordinate sub-regional capacity development initiatives under the
Policy
g) develop sub-regional and national indicators and prepare periodic reporting on progress
towards achieving the Africa Regional Strategy for Disaster Risk Reduction objectives to
assist countries measure their progress towards achieving the Millennium Development
Goals (MDGs).
These responsibilities of the Executive Secretariat will be met through the functions of the Inter-
Departmental Coordinating Committee and the Disaster Management Unit as indicated below.
6.2.3.5 Inter-Departmental Coordinating Committee
a) coordinate operational programmes of ECOWAS Departments that bear on disaster
reduction particularly those of Agriculture and Environment, Human Development,
Infrastructure and Industry, Defence and Security, and, OMC
b) provide management oversight of ECOWAS response actions under the Policy during
regional disasters and national disasters with sub-regional impacts
c) recommend initiation of sub-regional emergency management procedures during
emergencies to the Executive Secretary
d) promote incorporation of disaster risk reduction approaches in ECOWAS programmes
e) report to the Deputy Executive Secretary for Political Affairs, Defence and Security (DES-
PADS)
6.2.3.6 Disaster Management Unit
a) facilitate incorporation of disaster risk reduction approaches in ongoing thematic ECOWAS
programmes
b) provide secretarial and other support services to the Inter-Departmental Coordinating
Committee
c) support coordination and harmonization of national disaster risk reduction practices and
capacities based on a framework for inter-country cooperation in disaster operations
d) initiate and coordinate financial resource mobilization to support activities under the Policy
e) support capacity building at the national level in disaster risk reduction and management
f) operate as a central point of call for emergency assistance to states in the sub-region
21
g) process requests from member states for emergency assistance under the Policy for review
by the Inter-Departmental Coordinating Committee
h) coordinate multi-country disaster assistance requests to international development partners
in cases of multi-country disasters or national disasters with sub-regional impact
i) undertake joint risk assessment and disaster loss assessment with national authorities
j) operate as a clearing house of disaster management information in the sub-region
k) manage sub-regional monitoring of disaster reduction interventions at country level.
6.2.3.7 National Governments
a) exercise primary responsibility for implementing the Policy at national and community
levels
b) create conducive environment for disaster reduction interventions at local and national levels
c) provide strategic guidance to major groups and partners in implementing disaster reduction
initiatives
d) monitor implementation of the Policy at local and national levels.
6.2.3.8 Major groups
a) participate in developing the Policy
b) partner governments to design and implement disaster risk reduction initiatives at local,
national and sub-regional levels.
6.2.3.9 The African Union (AU) Commission
a) provide guidance on sub-regional implementation of regional initiatives in disaster risk
reduction
b) coordinate implementation of the Policy with the ARSDRR, other sub-regional strategies
and international frameworks
c) facilitate and manage ECOWAS access to financing under the Special Emergency
Assistance Fund (SEAF) for sub-regional emergencies
d) coordinate sub-regional input into regional reporting on progress in achieving the ARSDRR
and HFA objectives.
6.2.3.10 International Development Partners
a) provide assistance and resources for sub-regional initiatives
b) encourage increased commitment from national leaders for disaster risk reduction
c) advocate for support for sub-regional disaster reduction programmes at international for a
d) support integrated and coordinated disaster reduction by harmonizing their assistance for
disaster management at the country level.
6.2.3.11 The United Nations and its programmes and specialized agencies
a) incorporate the Policy in country development assistance programming
b) provide assistance and resources for sub-regional initiatives in disaster reduction
c) develop global and regional indicators and prepare periodic reporting on progress towards
achieving the Hyogo Framework objectives to assist countries and ECOWAS measure their
progress.
22
7. Financing the Policy
7.1 Sources of financing
Experience has shown that inadequate financial resources undermine the efficient and sustainable
operation of disaster management mechanisms, particularly during emergencies. Consequently, the
Policy establishes a disaster management window under the ECOWAS Peace Fund to provide core
financial resources for implementing its programmes and activities. Thus, the Fund would serve as
a principal source of financing the Policy and as seed funding to attract donor support.
Other sources of financing the Policy will include complementary co-financing of related areas,
such as conflict monitoring, desertification, and, agriculture, and, new funding from states,
development partners and the private sector. Regarding major groups, the Policy will encourage
innovative approaches that allow citizen contribution to risk reduction services. These include
participatory approaches that promote inter-group partnerships in implementing the Policy at the
national and community levels.
7.2 Resource mobilization and partnership issues
The Policy will pursue an active strategy of resource mobilization and partnerships with role
players, particularly the private sector, civil society and international development partners (IDPs).
Priority areas for action will include the organization of a forum for IDPs, as part of the process of
finalizing the Policy. This Forum will agree on a financing framework for the Policy and reporting
arrangements between the ECOWAS Secretariat and IDPs on partner resources. Partnership
arrangements to be concluded under the Policy will include agreements on key partnership
principles and arrangements for North-South and South-South, as well as intra-ECOWAS,
cooperation.
8. Monitoring and reviewing the Policy
Disaster risk reduction policy-making needs to be evidence-based. Effective tracking of movement
towards disaster reduction objectives at community, national and sub-regional levels and beyond
depends on monitoring information on disaster risks.
8.1 Institutional responsibilities
The ECOWAS Secretariat, acting through the Disaster Management Unit, is responsible for
devising sub-regional indicators for national authorities to report on. These indicators will represent
milestones in implementing the Policy and in achieving agreed outcomes and impacts. The
Secretariat will report on progress towards achieving the Policy and the objectives of the Africa
Regional Strategy for Disaster Risk Reduction to member countries and development partners.
National governments will have primary responsibility for monitoring the Policy at the country
level, using participatory approaches. Sub-regional disaster management service institutions will
provide scientific and specialized data and information to facilitate identification, assessment and
monitoring of hazards.
23
8.2 Monitoring indicators
At the sub-regional level, several indicators will be utilized to monitor the implementation,
outcomes, and impact of disaster reduction interventions under the Policy, including the following:
• adoption of the Policy and its Programme of Action by the Council of Ministers
• number of countries with national platforms for disaster risk reduction
• availability of financing for emergency assistance under the ECOWAS Peace Fund
• number of countries undertaking risk mapping
• number of countries operating early warning systems
• extent of public awareness of early warning
• number of countries introducing disaster management as part of school curricula
• number of research programmes in disaster risk management in sub-regional institutions
• number of countries including disaster reduction included in Poverty Reduction Strategy Papers
(PRSPs) or other development strategy frameworks
• adoption of disaster safe principles by professional associations of engineers
• adoption of guidelines for mainstreaming disaster risk reduction in development by national
disaster management authorities and major groups
• number of countries revising their emergency management plans to include disaster risk
reduction principles
• number of countries instituting EERT structures
8.3 Sources of monitoring information
Existing national statistical systems and relevant international databases will provide the means to
verify evidence on movement towards meeting disaster reduction objectives. Monitoring formats
and protocols to be agreed will be consistent with the Hyogo Framework for Action and feed into
monitoring requirements of the African Regional Strategy.
8.4 Country progress reporting arrangements
Countries will report periodically to ECOWAS on progress in implementing the Policy. The
Disaster Management Unit and states will agree the scope and frequency of reporting, reporting
formats, feedback arrangements, and, validation procedures.
8.5 Policy review process
It is important that the experience gained from monitoring should inform the management of the
Policy through effective learning from monitoring. This would lead to effective review of the
Policy. The Policy will be reviewed every five years within established ECOWAS procedures for
reviewing its policies.
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i
West Africa accounted for 15 percent of cumulative disaster events in Africa between 1975 and 2002 but the number of
disasters in the sub-region rose by 94 percent from the 1970s to the 1990s. Already 154 disasters have occurred during
the first five years of this decade, compared to 136 during the past two decades.
ii
Epidemics accounted for 40% of disasters in the sub-region during 1975 to 2003, compared to 20% by flood and
drought, and cause most human fatalities and debilitation. However, the most pervasive disasters in terms of the
numbers of people affected and disruption to livelihood support systems are those due to flood, drought, and famine.
iii
These include: (1) the global review of the International Strategy for Disaster Reduction (ISDR) in 2002; (2) sub-
regional review of early warning for the Second International Early Warning Conference in 2003; (3) review of disaster
risk management in Africa for developing the Africa Regional Strategy for Disaster Risk Reduction in 2003; (4)
national reporting by some ECOWAS countries for the World Conference on Disaster Reduction in 2005.
iv
Volunteers are persons and institutions that choose to assist in providing disaster management services, are registered
in a volunteer’s register and trained to be part of emergency management teams at the local level. Legal frameworks
need to cover developing the capacity, command structures, activation and deployment, indemnity, and, compensation
of the volunteers.
v
Major international drought and food security warning systems in operation in the sub-region are the Famine Early
Warning System Information Network (FEWSNET), Food Insecurity and Vulnerability Information and Mapping
Systems (FIVIMS), Global Information and Early Warning System on Food and Agriculture (GIEWS), Vulnerability
Analysis and Mapping (VAM) and the Early Warning and Agricultural Production Forecast Project (AP3A) of CILSS.
vi
These include the Africa Centre for Meteorological Applications to Development (ACMAD), the Regional Centre for
Training and Application in Agro-meteorology and Operational Hydrology (AGRHYMET), and, the Regional Remote
Sensing Centre (CRTO), Centre de Suivi Ecologique (CSE) in Senegal, and, the Centre for Remote Sensing and
Geographical Information systems (CERGIS).
vii
These include as support for small-holder production, minimization of on-farm risks, land and environmental
resource conservation, community productive capacity development, early warning to ensure safety of food stocks,
vulnerability assessment for planning mitigating interventions, and, relief interventions
viii
in terms of coverage of key response interventions, scope of national and hazard coverage, integration of sectoral
contingency plans, coordination of various role players in emergencies, and, incorporation of risk-reducing practices in
relief assistance.
ix
Simulation pays off in enhancing response. The authorities the Gambia simulated a transportation disaster in 1999
that revealed critical issues, including: confusion among the actors as to their roles, inadequate materials for response,
long-lead time in assembling members of task forces, inadequate recognition of the key role of local people, and
inadequate public awareness and readiness. When the Jola boat disaster occurred in the Senegal, a neighbouring
country, soon after, the lessons of the simulation became invaluable in shaping the Gambia’s response to the disaster.
x
Early warning systems should comprise four components for: (a) hazard detection, observation and forecasting, (b)
warning formulation, (c) warning dissemination, (d) response to warnings.
