Author's Accepted Manuscript

The Need for Local Involvement: Decentrali-

zation of Disaster Management Institutions in
Baluchistan, Pakistan
Syed Ainuddin, Daniel P. Aldrich, Jayant Kumar
Routray, Shabana Ainuddin, Abida Achkazai

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PII: S2212-4209(13)00024-1
DOI: http://dx.doi.org/10.1016/j.ijdrr.2013.04.001
Reference: IJDRR40

To appear in: International Journal of Disaster Risk Reduction

Received date: 11 November 2012

Revised date: 2 April 2013
Accepted date: 2 April 2013

Cite this article as: Syed Ainuddin, Daniel P. Aldrich, Jayant Kumar Routray,
Shabana Ainuddin, Abida Achkazai, The Need for Local Involvement:
Decentralization of Disaster Management Institutions in Baluchistan, Pakistan,
International Journal of Disaster Risk Reduction, http://dx.doi.org/10.1016/j.
ijdrr.2013.04.001

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The Need for Local Involvement: Decentralization of Disaster Management
Institutions in Baluchistan, Pakistan

*a
Syed Ainuddin, bDaniel P. Aldrich, cJayant Kumar Routray, dMrs. Shabana Ainuddin, eMs
Abida Achkazai
a Assistant Professor, Faculty of Earth and Environmental Sciences, Department of
Geography,
University of Baluchistan, Quetta, Pakistan.
bAssociate Professor, Purdue University USA, and Fulbright Research Professor, Tokyo
University.
b Professor and Coordinator of Regional and Rural Development Planning and Disaster
Preparedness, Mitigation and Management, Asian Institute of Technology, Thailand.
dLecturer, Faculty of Social Sciences, Sardar Bhadur khan Women University, Baluchistan
e Lecturer, Faculty of Earth and Environmental Sciences, Department of Geography,
University
of Baluchistan, Quetta, Pakistan.

Abstract:

After the 2005 earthquake in Kashmir, the Pakistani government set up the National Disaster
Management Authority (NDMA) to handle future disasters and then created Provincial
Disaster Management Authorities in all the provinces. This paper analyzes the
decentralization of the disaster management institutions in the community of Baluchistan,
using interviews of key actors in government and non-governmental organizations involved
in disaster risk reduction and management activities. The data revealed that disasters in
Baluchistan are still handled at the provincial level and that disaster institutions are not yet
fully implemented at the district and community levels. This has exacerbated the people’s
vulnerability to disasters. The paper recommends efficient preparedness and coordination of
provincial and national level agencies to enhance community awareness and preparedness. In
addition, the paper concludes that disaster management authorities should implement
programs and activities to empower communities for disaster risk reduction.

Key Words: Disasters, Institutions, Decentralization, Risk Reduction, Baluchistan

1 Introduction

Globally, the risks, vulnerabilities and impacts induced by natural hazards and disasters are
on rise[1]. Their economic costs and damage are widespread as seen in recent disasters such
as the 2004 Indian Ocean Tsunami, the 2005 Kashmir Earthquake, and Japan’s 2011 tsunami.
Many government agencies have utilized disaster management principals in an attempt to
minimize the impact of disasters. The development literature on hazards and disasters reveals
that most of the countries around the globe still practice the post-disaster relief approach [2,
3, 4, 5, 6, 7, 8, 9]. As a result, many individuals and communities remain vulnerable to
natural hazards [10]. However, a paradigm shift from relief to risk assessment, preparedness
and early warning systems [11] under the Hyogo Framework for Actions is underway,
emphasizing community resilience to disasters for hazard mitigation [12, 13, 14, 15, 16, 17].

Research has underscored that local level vulnerability assessment and resilience are required
to empower communities to cope with disasters [18, 19, 20, 21, 22, 23, 24]. Local level
vulnerability assessments incorporate assessment of vulnerable communities both at the
district, Union council and community levels in line with national level assessment. This
would set the ground for risk reduction strategies at the grassroots level. Once we know the
risks and vulnerabilities, better mitigation and preparedness measures can be take to avoid
disaster impacts. By taking these measures, the communities would cope better with the
disaster impacts, subsequently their vulnerabilities would be reduced and enhance their
resiliency to natural disasters. Further, it is widely acknowledged that local government
engagement in risk reduction and management activities serves as a viable strategy for
disaster management [25]. Local communities, and not national authorities, are always the
first to respond to any disasters [3, 26, 27].

Effective and decentralized policies for disaster risk reduction can greatly reduce the loss of
life and assets caused by disasters [28, 29]. The existing research on the impacts of
decentralization of disaster management institutions envisions the procedure positively in
terms of public service delivery [30] because nations with decentralized government
processes experience fewer disaster-related deaths [31]. Such governments prepare for and
respond to disaster more effectively relative to more centralized systems. In addition
decentralization reduces disaster-induced deaths by enhancing human capital [32].

Disaster risk reduction is not just a process of identification, assessment and management of
disaster risks. It is also a process of understanding people perception about their risks and
vulnerabilities, their interaction with each other and indigenous coping strategies, power
structures along with laying out the methods of effective cooperation. Prevention and
mitigation need to be understood as social phenomena. An effective disaster response entails
more than resource management, evacuation, shelter and health interventions; it also rests on
an understanding of human behavior, stresses and strains and vulnerability. Similarly, post-
disaster recovery is not merely a mega-project involving construction and rehabilitation.
Community-based disaster management activities serve as increasingly important elements of
vulnerability reduction and disaster management strategies at the local levels [33]. This paper
attempts to address the implementation of disaster management institutions at the local level
in Baluchistan so that communities at the district and sub-district levels engage in the
planning and implementation of disaster management and risk reduction strategies.
According to the Disaster Management Act of Pakistan (2007) that ensures the
implementation of the disaster institutions but so far these institutions are not yet
implemented for risk reduction at the district, union council and community levels. As we are
well aware that communities always respond first to any disaster’s impacts therefore their
role becomes imperative that they are engaged in disaster related activities at the local level.
i.e, they are engaged in decision making, preparedness and mitigation activities, design,
implementation and evaluation of the risk management activities at the community and union
council level. Further, the effective implementation of mitigation strategies requires the
incorporation of local decision-making in disaster management processes [34].

2 Natural Disasters in Pakistan

Geographically Pakistan is situated in a region very much prone to natural hazards,

particularly the northern part of the country where Himalayan and Hindukush mountains are
situated [35, 36, 37]. The area experiences natural hazards such as earthquakes, landslides,
floods, glacial melting and soil erosion [38]. Pakistan’s vulnerability to natural hazards and
disaster ranges from moderate to severe. It has faced both natural as well as man-made
disasters in its history. Natural hazards for the country include cyclones, earthquakes, floods,
glacial outburst, storms, droughts, landslides, river erosion, tsunami and epidemics. Pakistan
is also under the threat of a number of human induced hazards such as forest fires, civil
conflicts, transport, and industrial disasters. However some of the floods, earthquakes,
droughts, wind storms and landslides have caused immense damage to life and property in
the past. Table 1 below shows the number and effects of major hazards in Pakistan over the
last two decades.

Table 1 Major Geophysical and Hydro-meteorological Hazards in Pakistan (Last 20 Years)

Hazard No of Persons Affected Damage In Million
Year
Type Events Killed People Villages Rupees.
Earthquakes 1990
1 15 NA NA NA
(Magnitude..6.1)
2000
1 20 456 NA NA
(Magnitude. . 6)
2005
1 86,000 108,000+ NA NA
(Magnitude. 7.6)
2008
1 166 68,200 NA NA
(Magnitude. 6.4)
Drought 1999-2001 1 143 2200000 NA NA
Flood 1992 1 1,008 NA 13,208 69,580
1995 1 591 NA 6,852 8,698
2001 1 219 NA 50 450
2003 1 484 NA 4,376 5,175
2004 1 85 NA 47 15
2005 1 59 NA 1,931 NA
2006 1 541 NA 2,477 NA
2007 1 586 NA 6,498 NA
Storms 1999 2 258 657,566 NA NA
2001 1 4 500 NA NA
2003 1 51 2,557 NA NA
2005 1 57 NA NA NA
NA: Data not available
Sources: [39]
Flooding from river overflows is the most common natural disaster in Pakistan. They are
costly natural hazards due to damage to property and croplands. Floods are usually short-
lived events that can happen with little or no warning [40]. The Indus basin - the biggest in
the country - covers 70% area of the country and generally major floods occurs in the basin in
the late summer when south Asian region is subjected to heavy monsoon rainfall [41]. Major
flooding in Pakistan is associated with the monsoon low depression that develops in the bay
of Bengal and move across India west/north westerly direction to enter Pakistan [42]. The
Indo-Australian plate upon which Pakistan, India and Nepal lie, is continuously moving
northward and sub-ducting under the Eurasian plate, thus triggering earthquakes in the
process and forming the Himalayas mountain range [3]. The collision of the two continental
plates indicates that Pakistan is situated in a highly seismically active region of the world
[43]. Major earthquakes over the past100 years include the 1945 Makran earthquake with
magnitude above 8.0 to the Kashmir earthquake in 1905 with magnitude of 7.6 has caused
heavy damage to life and properties [7]. The October 2005 Kashmir earthquake enhanced
consciousness about the increasing vulnerability of Pakistan’s growing population in the area
[43, 44]. The areas in Pakistan which are likely to be susceptible to the future earthquakes are
the northern areas, Chitral district in North West Frontier Province (NWFP), and Kashmir
including Muzaffarabad, and Quetta. The region of Kashmir, northern Areas and parts of the
NWFP are particularly vulnerable to landslide hazards. Apart from the young geology and
fragile soil type of mountain ranges, accelerated deforestation is a major cause behind being
increased incidences of landslides (NDMA 2007). In all natural hazards and disasters
droughts have tremendous potential impact across broad areas compared to other disasters
like flood, tropical cyclones etc. Due to the unique geoclimatic conditions in some parts of
the country drought have been a major threat and will have substantial consequences on
sustainable development and food security, agriculture, live stock, water resources,
environment and hydro-electricity [9]. The main arid areas of the country include D. G.
Khan, D. I. Khan, Kohistan and western Baluchistan. Some of the areas are drastically
vulnerable to droughts. For example in Baluchistan due to the decrease of both the vegetation
cover and precipitation has affected about 92% area of the province [45]. Pakistan’s
vulnerability to tsunamis is low, but it did experience a large tsunami on 28 November 1945
due to a submarine 8.0 magnitude earthquakes near the Makran coast. The tsunami produced
a wave 12-15 meters in height which had killed at least 4000 people near the coastal belt of
Baluchistan [38]. The cities like Karachi and Gawader are likely to be the victims of any
future tsunami.

3 Institutional Mechanism of Disaster Management in Pakistan

The structure of disaster and emergency management in Pakistan, centered on the National
Disaster Management Commission (NMDC), was established immediately after the
disastrous Kashmir Earthquake in 2005 and has been operational since 2007. As Figure 1
below illustrates, the institutions begin at the national level and extend to the Union Council
levels for the implementation of disaster policies. The commission is the highest policy- and
decision making-body for disaster risk management. It is also oversees the integration of
disaster risk management issues into sectoral development plans and manages the
implementation of this policy through National Disaster Management Authority (NDMA),
chaired by the Prime Minister. Since disaster risk is a multi-sectoral activity that requires
timely response, the NDMA was established to serve as focal point and coordinating body to
facilitate the implementation of disaster related mitigation strategies. It directly
communicates with all stakeholders, including ministries, departments and other agencies
which are likely to participate in disaster risk management.

The provincial government has the authority to form the Provincial Disaster Management
Authority (PDMA) which is chaired by the Chief Minister. The authority lays down the
provincial/regional disaster risk management policy and develops the provincial disaster risk
management plans in accordance with guidelines laid down by the national commission. It
also reviews the implementation of the provincial plans and oversees the provision of funds
for risk reduction and preparedness measures. Further, it coordinates and provides technical
assistance to local authorities for carrying out their function. A District Disaster Management
Authority (DDMA) can be established by Provincial governments in the hazard prone areas
on a priority basis. This authority is headed by Nazim (district chief) of the district. The
authority formulates disaster risk management plans and coordinates their implementation. It
also prepares guidelines for local stakeholders on disaster risk reduction. In the event of a
disaster, it organizes emergency response through district emergency operation center and
maintains linkages with PDMA and relevant departments.

Authorities at the town and Tehsil levels serve as the frontline organizations of disaster risk
reduction and response, interfacing directly with communities. Tehsil and town Nazims lead
the risk and response operations with the help of Tehsils and town officers in consultation
with DDMA. Other key players include extension workers, police officers, fire services,
community organizations, traditional leaders and NGOs. The Union Council is the lowest
tier in the governance system, but has important roles in allocating resources for local
development works. Union councils are expected to advocate for the communities with the
district councils and disaster management authorities.

The Figure 1 in the article describes the institutional mechanism of Pakistan. The relationship
among the different levels is important starting from national to union council level. This is in
fact the subject matter of this article that elaborates that disasters in Baluchistan are managed
and handled only at the provincial level (top down approach) but it is imperative that
disasters to be handled at all levels including district, union council and community levels.
 National Disaster Management • Emergency Relief Cell, OCHA,
Commission (NDMC) WHO, UNDP,UNICF
• Crisis Management Cell, Fire
National Level Services, Defence ministry.
Education, foreign affairs, Federal
flood commission, National logistic
National Disaster Management cell, NGOs. Media, Federal Relief
Authority (NDMA) Commission, Information
Technology

• Provincial Relief department,

Provincial Level Provincial Disaster Management
Emergency Operation Center,
Commission (PDMA)
Baluchistan Rural support program,
Crisis Management Cell, Fire
Services, Red Cross, Defence
ministry, OCHA, Media, UNICEF,
WHO, UNDP.

District Disaster Management • Fire services, Pakistan Red Cross,

District Level Authority (DDMA) Defence, and Baluchistan Rural
support Program, UNICEF, UNDP,
World Health Organization, Local
NGOs.

• Pakistan Red cross, Baluchistan

Tehsil Structures
Rural support Program, Community
Local Levels Based Organizations, Community

Union Council
Figure 1: Structure and Mechanism of Disaster Risk Management in Pakistan

A number of situations in the aftermath of October 08 earthquakes gave NDMA some

favorable opportunities to promote disaster risk reduction in Pakistan. These include: i)
Heightened awareness among highest level decision-makers, officials, media and civil society
about disaster risks and vulnerabilities, ii) Enhanced commitment of donors and the UN for
establishing institutional arrangements and developing capacity on disaster risk management,
iii) Approval of the National Disaster Management Ordinance 2006, establishment of
NDMC, and the NDMA, and iv) Commitment of the NDMA leadership. Existing disaster
risk management system also has a number of strengths. For example, Pakistan has relatively
well developed systems for flood mitigation, preparedness and response. Provincial revenue
departments have policies, systems and procedures in plac for disaster relief, particularly for
floods and droughts. Pakistan armed forces are generally well experienced in managing
various kinds of disasters. A number of departments including agriculture and irrigation
departments have been implementing drought mitigation strategies. Some NGOs have
extensive experience in community level disaster risk reduction and preparedness. NDMA is
trying to build upon the above mentioned strengths and opportunities, while developing
systems for disaster risk management at the local levels. However at the local levels
(community and village), disaster’s impacts are handled through social networking with the
support of local NGOs. Faith-based NGOs have also worked in the response along with
community groups at the village levels.

This study is basically exploratory in nature based on qualitative data from primary and
secondary sources. Both types of data were used in order to understand the disaster
management institutional framework in Baluchistan and investigate the issues associated with
the community preparedness and implementation of disaster management institutions.
Secondary source data facilitates understanding the overall situation and assessing the
earthquake preparedness and institutional mechanism of disaster management in Baluchistan.
The secondary sources include: Pakistan Meteorological Department, Survey of Pakistan,
Seismic Center Quetta, Provincial Disaster Management Authority, Pakistan Engineering
Council, Quetta Development Authority, websites of Provincial Disaster Management
Authority and National Disaster Management Authority. The other sources include journal
articles, books, training manuals and other government reports, documents from all levels
(national to district).

The primary data was collected from various institutions responsible for disaster
management. The sources for the data are the Provincial Disaster Management Authority,
district government, Union council offices, Civil defense department, Baluchistan Rural
support Program, Muslim Aid, Pakistan Red Crescent Societies, In addition the primary data
was collected through face to face interviews with concerned institutions and Some NGOs
working on disaster Management in Baluchistan such as PDMA, District Government, Union
Council, Civil defence, Baluchistan Rural Support Program, Muslim Aid, and Pakistan Red
Crescent Societies. Primary data was collected in the field from the key informants such as
union and districts Nazim representatives and non-governmental organizations involved in
disaster management activities and programs through face-to-face interviews. The key
informants were selected from the government and other organizations, who were directly
involved in the disaster management process at the provincial, district and union councils.
The positions of the key informants are clearly mentioned in Table 2. The discussions sought
to identify the problems associated with preparedness and implementation of disaster
management institutions at the local level. As the article highlighted that top down approach
is practiced in Pakistan and Baluchistan regarding disaster management that always does not
work. We need to start activities of disaster management at the grassroots levels. In addition
to that political will, poor coordination, among the agencies and departments are the main
causes of decentralization and sometime worst situation in mega disasters.

4 Results and Analysis

The role of national, provincial and local institutions in disaster management can play an
important role in risk reduction at local level. However the data indicate that despite a
number of recent disasters, Pakistan as a whole has not sufficiently strengthened its
institutions to implement disaster risk strategies at the local levels. The Pakistani government
has created new disaster management institutions as a response to the 2005 Kashmir
earthquake; relevant documents provides for the active participation of all stakeholders and
development partners for the priority areas identified in the ordnance. But since its inception
it has not been possible to fully implement the local institutions and risk reduction strategies
at the district and community levels in Baluchistan. In order to address the existing gaps, a
discussion has been attempted with key stakeholders involved in the process of disaster
emergency management in Pakistan from Provincial to district, sub-district levels. The results
of the key informant analysis are presented below.

Government officials

Provincial Disaster Management Authority: The results of the key informant interviews
reveal diverse set of perceptions of disaster preparedness and implementation of disaster
institutions in Baluchistan as shown in Table 2. An official of the Provincial Disaster
Management Authority argued that “the provincial government and the provincial disaster
management authority are well aware of the importance of disaster risk institution at the local
level, but the lack of funds from the federal level has not made it yet possible.” The official
further stated that since disaster management is in its initial stage in Baluchistan and the
government still seeks to implement project and activities related to disaster risk reduction at
the local levels in Baluchistan. The discussion reveals that the lack of human and technical
resources has resulted in poor disaster awareness and lack of effective implementation at the
local levels. The author personal visit and discussion with the Provencal disaster management
authority’s director shows that the authority lacks both technical and human resources. The
director argued that due to lack of fund from the federal government, they are not in the
position to have skilled technical staff and disaster related activities. Even their staff needs
capacity building. Most of the staff members were from irrelevant field that consequently
resulted in poor disaster awareness in the province and decentralization of disaster institutions
at the local levels (district, union council and community).

It can also be inferred that the situation is exacerbated by the poor political will towards
implementation of disaster institutions in the province. The results also indicate that the
authority is more active in the response phase compared to pre-disaster activities such as
public awareness, preparedness. It was also noted that there was no qualified/specialized
(DM) personnel in these organizations, and that has resulted in fewer numbers of projects
related to disaster awareness and risk reduction programs at the local levels. Above all, at this
point of time there are no projects or activities for disaster awareness and preparedness and
hence the system lacks capacity building at the district, sub-district or community levels.

District Government: At the district level, the District Disaster Management authority is not
yet functional, so the district nazam was interviewed. In response to one question the Nazim
(district chief) argued that, “we have never participated in any meeting of PDMA and the
PDMA works along without our consultation.” It is indeed the responsibility of the PDMA to
involve all stake holders for any disaster related policies, and this outcome indicates poor
coordination between the district government and PDMA. Such coordination is essential for
informed emergency management and risk reduction activates at the local level. Further, the
Nazim has not been informed by the district government of any combined meeting or
activities related to disaster risk management at the district levels.

Union Council: The Union Council is the smallest administrative unit in Baluchistan based
on the Local Government Ordnance 2001 and the nazam is the head of the union council. Ten
union council nazams were interviewed regarding the decentralization of institutions and
activities implemented by PDMA. Based on discussions most of the nazams were not aware
of the new disaster management framework. They believed that “the PDMA is the sole
authority implementing all the disaster management activities in the province without any
consultation with agencies and departments at the local levels.” The union nazams at the sub-
district (union council) level are not well informed about the decentralization process of
disaster management supposedly underway through the national disaster management
framework. On the other hand the nizams at the union council level also did not take any
interest in the disaster management meeting and programs arranged by the PDMA.

Civil Defense: The director of the civil defence department was interviewed. He argued that
civil defense was the only department equipped with all kinds of resources but after the
inception of Disaster Management Authority, this department has been neglected and the
powers are given to PDMA. He further added that there should be coordination between
PDMA and all other stakeholders which would involve them in the overall spectrum of
disaster cycle. It is essential to incorporate the roles and responsibilities of the civil defence in
disaster management activities because civil defence plays a key role in whole cycle of
disaster management. Furthermore before the establishment of National Disaster
Management Authority, disaster emergencies in Pakistan were handed by civil defense and
army institutions.

Non-governmental Organizations

A number of NGOs which are working in disaster related activities in Baluchistan were
interviewed. The role of NGOs is extremely important because they always work at the
community level. These NGOs include Baluchistan Rural Support Program, Muslim Aid and
Pakistan Red Crescent Societies. It was observed that most of the NGOs are working on post
disaster response, relief and rehabilitation.

Baluchistan Rural Support Program: This is a local NGO mostly working in the response
and relief operation in emergencies situations throughout Baluchistan. Their work was widely
recognized following the 2008 earthquake in Ziarat district. The director for Social Sector
was interviewed about the coordination between the agencies and decentralization of the
disaster institutions in Baluchistan. He argued that the PDMA lacks coordination both
vertically and horizontally. He further added that due to the absence of disaster risk
institutions, it is always difficult to empower communities at the local level for risk reduction
strategies. It can be inferred that the Baluchistan Rural Support Program - the largest NGO
working in Baluchistan - only works in the relief operation during disasters in Baluchistan.
PDMA needs to have close coordination with such NGOs for disaster institution
implementation in Baluchistan and work closely for disaster risk reduction at the local level.
Coordination plays an important role in disaster and emergency management. The paper
argues that due to the poor coordination among the departments and line agencies has
resulted in lack of decentralization of institutions at the local level. In addition to that poor
coordination among the intuitions, departments and agencies lead small disasters into major
devastations.

Muslim Aid & Pakistan Red Crescent Societies: These organizations also lack a deeper
understanding of the implementation of disaster institutions in Baluchistan. They argue that
“the PDMA needs to involve all the agencies, departments and non-governmental
organizations for the implementation of risk reduction, preparedness activities at all levels
(Provincial to community),” They believe that the PDMA should have a clear cut roles and
responsibilities for emergency management at the local levels. Without the involvement of
community in disaster preparedness, awareness activities, it would be difficult to reduce the
disaster risks at local level. Pakistan Red Crescent Societies are popular for the shelter
provision in the response. It will be a viable option for PDMA to involve the NGOs in
disaster management activities and implementation of disaster institutions which have good
experience in disaster management.
Table 2 Results of the Key informants’ Interviews

Organization Position Key informants’ Weaknesses Recommendation

understating
Provincial Director The authority’s focus is No implementation Need to implement DM
Disaster General more on disaster of DM institutions institutions at local levels
Management response and relief at local level. and build their capacity.
Authority operations. Lack of Poor capacity Both vertical and
technical and financial building. horizontal coordination is
resources have limited Poor coordination required throughout the
other programs and with national and whole spectrum of disaster
projects related to international cycle.
disaster management. agencies and
departments.
District Nazam The nazam is not well- DDMA is not PDM needs to involve all
Government (Chief of informed on disaster implementing yet at the stakeholders in disaster
the related activities. the district level. related activities at the
district). DDMA authority is not Little expressed local level.
yet functional. interest in disaster DDM should be
PDMA does not related activities. implemented to extend
involve the district disaster related activities
government in any at the sub-district and
policy regarding community level.
disaster management.

Union Council Union Unaware of disaster Poor coordination Need awareness activities
(Sub-district) Nazams management activities with DDMA and at the union council level.
at union level. PDMA.
No projects on disaster Lack of resources
management. Poor awareness
Unaware of disaster about disaster and
management disaster
framework at the management
national and sub activities.
national levels.

Civil Defense Deputy The civil defense Lack of human and Need to review civil
Director structure has been technical resources. defense policies and
replaced by NDMA Civil defence is less mainstream its goals and
and PDMA. active in DM. activities in line with
PDMA has failed to provincial disaster
effectively decentralize management authorities.
the institutions to the
local level.
Civil defence is not
involved in disaster
related activities.
Baluchistan Director Works only response Does not implement Need to work on pre
Rural Support of phase. projects on pre disaster activities
operations Poor coordination of disaster activities involving community at
Program PDMA regarding Lack of local level for risk
 disaster related coordination. reduction.
activities.

Muslim Aid Director PDMA failed to Focus on post Need to coordinate with
implement disaster disaster relief and PDMA and implement
institutions at local response. programs and activities on
level. preparedness and
Muslim aid does not awareness.
take part in policy
implementation.
Mandate focused on
post disaster relief.
Pakistan Red Area Unaware of the Focus only in Need to work on pre-
Crescent Director implementation of DM response disaster activities such as
authorities. particularly awareness programs at
Societies Poor coordination of providing shelters to different level for capacity
PDMA with other the survivors. development.
agencies.

5 Conclusion

The Provincial Disaster Management Authority (PDMA) should clearly define the role and
responsibilities of various departments and authorities at the district level through stronger
institutional coordination. For example, the Kashmir earthquake revealed a number of
challenges, including the coordination of search and rescues and relief operations, the
transport of goods to affected areas, the need to supply a certain number of vehicles, ensuring
security of relief convoys and communication infrastructure, and so on. The overall rescue
operation was extremely difficult because of the lack of professional expertise, specialized
machineries, equipments and limited internal capacity along with the lack of availability of
foreign specialists at the time. Similarly after the 2010 floods, authorities were once again
confronted with similar issues in providing shelters and relief goods, particularly food, water,
health-related provisions and goods for meeting the immediate needs of the affected
communities. Another ongoing problem facing similar challenges is the current flooding in
the south Baluchistan. Therefore policy makers should focus on enhancing the participation
of local level institutions along with coordinating the implementation of disaster risk
reduction from the national to level levels.
Disasters happen in society and disaster risk reduction is the key in reducing disaster impacts
at all levels. Disaster institutions for risk reduction at the local level serve as the best
approach for reducing community vulnerabilities to natural disasters. The paper has analyzed
the decentralization of disaster institutions in Baluchistan through various stakeholders
involved at the provincial, district and sub district levels in Baluchistan. It has revealed that
disasters in Baluchistan are handled at the provincial level and the disaster management
institutions are not yet implemented at the district, sub-district and community levels. The
absence of decentralized system has exacerbated the community vulnerability to a
considerable level; however Pakistan is slowly emerging from a rescue-relief regime to a
comprehensive disaster management strategy.

The analysis further revealed that there is little coordination among the involved agencies in
disaster management activities throughout the whole cycle of disaster management.
Therefore the paper recommends that focusing on enhancing the participation of local
communities. As such, studying social organization, change and institutional development
becomes important. Another policy recommendation involves the implementation and
decentralization of disaster management institutions in Baluchistan with clear roles and
responsibilities to allow communities at the local levels to take part in disaster risk reduction,
awareness and preparedness activities. Given the strong likelihood of future man-made and
natural disasters throughout Pakistan, devolving power to local communities will enhance the
nation’s ability to respond to future crises.

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