United Nations Development Programme
Progress Report
Post-Ketsana Typhoon Early Recovery Project in Viet Nam
September 2010
Prepared for the
Bureau for Crisis Prevention and Recovery (BCPR)
Background
Typhoon Ketsana hit the central region of Viet Nam on September 29th 2009. As the typhoon had
already affected the Philippines, the Government of Viet Nam (GoV) undertook widespread
evacuation in the region, relocating approximately 200,000 people prior to the typhoon making
landfall. Through this early action many lives were undoubtedly saved but the typhoon caused
significant damage to infrastructure, crops and livelihoods.
The Government subsequently distributed food and emergency relief to the affected regions. In
addition, the Red Cross societies, INGOs and UN agencies supported the national efforts through the
provision of medications, food and shelter material. Although the GoV did not make an international
appeal, the People’s Aid Coordination Committee (PACCOM) sent a letter asking for support from
in-country NGOs.
Due to the intensity and severity of the floods, the Disaster Management Working Group (DMWG),
with support from PACCOM, agreed to send six joint assessment teams to the most affected
provinces to corroborate the data identify the immediate humanitarian needs of the population and
ensure that cross-cutting issues, such as gender and issues pertaining to ethnic minorities were
addressed. In early October the teams consequently reported their findings in a meeting convened by
the GoV and the United Nations. The main recommendations for people in the affected areas included
food aid, school equipment, non-food items and roofing materials for damaged houses.
On November 2nd typhoon Mirinae made land fall on the coast of Viet Nam. Several provinces that
were affected had already been hit by typhoon Ketsana - and had started early recovery (ER)
programmes - thus increasing the complexity of addressing the needs of everyone affected. There was
apparent a clear need for appropriate ER assessment to ensure that affected individuals were able to
recover completely as well as to link emergency relief to long-term development plans already in
place in the country.
The ER cluster was activated by UNDP (co-convenors with the GoV) along with health, WASH,
education, nutrition and livelihood clusters.
In order to assist the UNDP Country Office (CO) in its role as ER cluster co-lead, an ER Specialist
was sought. A ToR was developed, recruitment and selection process initiated and suitable candidate
identified. The objective of the assignment was to improve capacity and performance of the ER
cluster through the provision of technical advice and support to the cluster system members and
guidance and training on ER for GoV counterparts, UN agencies, INGOs and Red Cross staff working
in ER.
The original request for USD100, 000 from the Immediate Response Category (II) of TRAC 1.1.3,
was made by the UNDP CO to BCPR in Bangkok on the 14th October - a few weeks after typhoon
Ketsana struck. In July 2010 (three months before the expiry date), a No-Cost Extension for the
project was requested. While the objectives and outputs of the project remained as envisaged at the
outset, the intention of the CO was to make a slight adjustment - due principally to delays in
recruitment of the ER Specialist and changes in circumstance that made some original activities
irrelevant. The reason for reallocating the funds was to support the ongoing preparedness to minimize
the impact of future disasters by identifying ER gaps and providing technical training/dissemination
of supporting materials to Government officials and other stakeholders. On the basis of the
justification provided by the Viet Nam CO, the supporting documentation submitted and
consideration of the importance of preparedness to reinforce the originally agreed outputs, the request
to reallocate funds and extend the duration of the project through to December 2010 was approved.
Progress during the reporting period
Output 1
Early recovery cluster functions strengthened
Indicators
Coordinated response to ER needs ensured through regular coordination meetings and communication at the
central level
Targets
 Improvement of a strategy and future plans for ER in Viet Nam
 A strengthened mechanism for ER coordination and mainstreaming; consensus among DRM stakeholders
sought
 A monitoring mechanism for ER
Activity 1.1
Recruit an ER specialist (international) to provide technical support to the cluster
system members and guidance and training on ER for the UN, the Government and
other development partners on ER
Progress
An ER Specialist (Tony Stitt) was recruited in June 2010.
Challenges
A ToR was developed and approved initially for a 6 month period. The Specialist was approached
initially in late 2009, but was asked to work in Haiti following the January earthquake there.
Changes affected
A ToR for a three month period was developed in April 2010 (see Annex I ToR for an International
Early Recovery Consultant for improved capacity and performance of the early recovery cluster) and
a fresh recruitment and selection process initiated. A number of candidates applied and Tony Stitt was
deemed to be the most suited for the tasks in terms of his experience, skills availability and fees and
was subsequently hired upon his return to Hanoi in mid-2010 on a three month contract.
Due to the reduced time available for this work by the Specialist and the fact that a considerable time
had elapsed since the impact of typhoon Ketsana, changes were made to the original project proposal
(of October 2009) reflecting the shortened time period and including additional activities. This revised
proposal was submitted to BCPR in UNDP Regional Centre Bangkok in late July and subsequently
approved.
Activity 1.2
Review and develop a strategy and planning for ER in Viet Nam
Progress
The ER Specialist has provided a number of comprehensive submissions that addressed the
deliverables required by the ToR. The first of these (see Annex II Submission 1: summary of early
recovery needs assessments following typhoons Ketsana and Mirinae; review of coordination
following typhoons Ketsana and Mirinae; review of emergency response and early recovery
guideline) provides a summary of ER needs assessments following typhoons Ketsana and Mirinae; a
review of coordination following these typhoons and a review of the GoV emergency response and
ER guidelines (developed in first draft under the UNDP/MARD project). This provides a summary of
assessment information and associated ER recommendations for Viet Nam following the Ketsana and
Mirinae typhoons - compiled from a variety of sources (this does not aim to provide a complete
survey of assessment data and recommendations but instead it is limited to issues related to ER).
In addition, in a separate submission, (see Annex III Submission 3 Recommendation to Improve Early
Recovery Strategy), recommendations to improve ER strategy were provided. The main
recommendation is to form an ER Network (ERN), guided by a Terms of Reference and Operating
Guidelines. An initial ToR and Operating Guidelines were drafted for review – in brief the main
characteristics of the ERN would be as follows:



Three components: The ERN would consist of Cluster Focal Points, an Advisory Board drawn
from the DMWG, and an ER Coordinator (ERC) serving as the convener and secretariat.
Two contexts: The ERN would function in two existing contexts – the PCG-NDE and the
DMWG.
Two outputs: The primary outputs of the ERN would be ER Assessment Teams and an ER
Framework and Action Plan.
The proposed design of the ERN, and specifically the ER Framework and Action Plan, is based on
approaches, lessons learned, and templates from other disaster contexts. However, it has been tailored
to the specific context of Viet Nam – in particular, it has been significantly simplified and is not
driven by the UN Appeal process.
Challenges
No major challenges were faced in this element of the work. A large number of stakeholders were
interviewed and documentation reviewed. The main challenge will lie ahead in driving forward these
recommendations.
Changes affected
None made.
Activity 1.3
Establish - or strengthen - inter-agency coordination and mainstreaming of ER at
the national level
Progress
In a further submission (see Annex IV Submission 2 Recommendations for ER Mainstreaming and
Interventions), recommendations for ER mainstreaming and interventions were detailed. Disasters
(especially storms, floods, and typhoons) are a common occurrence in Viet Nam, coping mechanisms
tend to be high (except for the very poor or marginalized). As such, spontaneous, self-initiated
recovery efforts by the affected populations are common. One of the principles of the ER Cluster is to
build upon such spontaneous efforts when and where they occur. Therefore, opportunities for ER
programming and mainstreaming of ER into relief operations tend to be high following most disasters
in Viet Nam.
A recommended tool for ER assessments was developed (see Annex V Submission 4 Early Recovery
Needs Assessment Tool). The main recommendation is to expand the DMWG Joint Assessment Team
(JAT) methodology and toolkit to establish a new “Early Recovery Assessment Team” (ERAT). The
ERAT would utilize existing DMWG JAT protocols, with some modifications in activation
procedures, objectives, and assessment questions. The rationale for this approach is the general desire
to avoid the creation of new systems where existing systems can, with some adjustments, meet the
needs of the humanitarian community. As the JAT system is already well established and is an
accepted mechanism in the country, and has associated protocols, tools, and training events, it
presents a solid platform on which to build the ERAT methodology. This submission provides
recommendations on how to establish an ERAT, ERAT objectives and features, and specific
modifications to current JAT questions in order to address early recovery issues. It builds from the
general ER model recommended (see Submission 3) and the existing JAT ToR and assessment
questionnaire. The general approach has been to minimize changes to the JAT procedures and
questionnaire; suggested modifications are made only where necessary to address ER.
Challenges
No major challenges were encountered in this conceptualisation stage.
Changes affected
The major challenges will lie ahead with in the promotion amongst assessment teams of this improved
ERAT methodology in the future following disaster events.
Activity 1.4
Develop monitoring mechanism for ER
Progress
The final submissions (see Annex VI Submission 5 Advice on M&E) provided recommendations for
how to address ER M&E. A draft of M&E guidelines - designed for the Viet Nam Early Recovery
Network (ERN) proposed (see Annex III Submission 3). These guidelines were drafted with the
intention that they would eventually serve as an appendix to the ERN ToR and Operating Guidelines.
These proposed guidelines are based on approaches, lessons-learned, and templates from other
disaster responses. However, they have been tailored to the specific context of Viet Nam.
Further to these various submissions (that cover the majority of core deliverables) further work was
undertaken to consolidate these into a practical, usable set of reference documents that can be: a)
reviewed by UNDP, then b) disseminated for review by other stakeholders, and then c) finalized and
put into practice.
Challenges
No major challenges were encountered in developing these recommendations.
Changes affected
Challenges will arise in the future assuming that the ERN can be established in a timely and
appropriate manner – in ensuring that the advice on M&E is taken forward.
Output 2
UNDP Country Office capacity enhanced to address the disaster situation and to lead effectively the ER
cluster
Indicators
Gaps in ER needs are facilitated and advocated at national level; joint needs assessments mission completed
with a coherent methodology for ER
Targets
 A set of awareness raising and knowledge building events introduced with regard to ER to Government
DRM managers, UN agencies and INGOs
 A set of materials for ER (with particular focus on emergency market analysis)
 20 stakeholders trained on EMMA
 A refined assessment methodology ensuring that ER is mainstreamed in inter-agency Joint Need
Assessment practices of the Disaster Management Working Group (DMWG).
Activity 2.1
Recruit consultant to develop ER assessment methodology
As above (Activity 1.1).
Activity 2.2
Thematic roundtable/workshops to raise awareness and knowledge on gaps in ER
stages:
Progress
Several thematic roundtable meetings and workshops on post-crisis governance were planned or have
taken place:
o Lessons from 2009 responses by Government, UN Programme Coordination Group for
Natural Disasters and Emergencies (UN agencies coordination mechanism) and the
Disaster Management Working Group (DMWG)
This multi-stakeholder dialogue on lessons learned from the 2009 disaster season and on DRM
coordination issues (i.e. the UN Programme Coordination Group for Natural Disasters and
Emergencies – PCG NDE, DMWG, the cluster approach, etc.) will be discussed; the meeting is
scheduled for the 13th September.
o Workshop on responding to silent disasters - drought, forest fires and salt water intrusion
A multi-stakeholder meeting on drought, forest fires and salt water intrusion situation took place on
the 4th August and was attended by GoV (including the departments for Irrigation, Crop Protection
and the DMC of MARD), UN agencies, the Red Cross, various INGOs and the World Bank (See
Annex VII for meeting minutes).
o Orientation to ER programming in Viet Nam
This meeting is tentatively scheduled for late October and will discuss ER in the aftermath of disasters
(and include a presentation on ER documentation developed under this project and launch of GoV
guidelines on emergency response and early recovery – developed under the UNDP/MARD project).
Challenges
The main challenges faced are with the timely organisation of such meetings and the attendance of
decision makers – who are often too busy to attend.
Changes affected
Advance notice of meeting and follow up of invitees is necessitated. In addition, letters jointly from
the UNDP and GoV and signed off at high level will better ensure numbers and level of attendees at
meetings.
Activity 2.3
Develop materials and carry out capacity training on the Emergency Market
Mapping and Analysis (EMMA) for Government and other DRM stakeholders
Progress
A seven day training event was held in Hanoi for 24 participants at a local hotel venue.
Accommodation for 4 trainers was also provided as well as the services of an interpreter (nonsimultaneous for 7d). Costs of the venue, trainer’s flights other training related costs (i.e. stationery,
projector, printing hand outs, etc.). In addition the EMMA handbook was translated from English to
Vietnamese and 30 copies of the EMMA handbook in English purchased. Printing of EMMA
handbook (following proof reading during EMMA course) will take place in the final quarter of the
year.
A five day EMMA training event was conducted by two experienced, independent specialized trainers
(Tony Dines and Adam Clark) supported by a resource person from the International Rescue
Committee, IRC (Ben Burrows) and the ER Specialist. A senior national level Oxfam GB staff
member (who had previously trained in EMMA) was also present throughout the training event. The
EMMA training was designed to target approximately 20 national staff from the GoV (the Disaster
Management Centre), Mass Organizations (notably the Viet Nam Red Cross Society and Women’s
Union) agencies (see Annex VIII EMMA Training event participants). The training was aimed at
preparing staff involved with disaster response for the implementation of cash-based/ER programmes.
The ER Specialist served as the in-country focal point for the planning and execution of this training.
A summary evaluation report is attached in Annex ĨX.
In addition to the five day “classroom” exercise, the EMMA training was designed with a two day
practical filed based exercise in Hanoi and was conducted by Ms Karri Goeldner Byrne, the Director,
Economic Recovery and Development Technical Unit, IRC and included a critical market analysis of
items commonly lost in disasters in Viet Nam, e.g. roofing material and mosquito nets, water
collection and storage equipment. Where markets are expected to rebound quickly after a disaster,
cash interventions (such as cash for work, cash grants, and microcredit) to address these needs are
typically preferred over commodity donations. The exercise results will be used to inform future ER
programmes.
Ms Bryne conducted also a 2hr overview session on EMMA aimed at leadership and senior
management of the organizations who had committed their staff to the EMMA training. Fifteen
people from ADRA, the American Red Cross, CARE, Catholic Relief Services, Development
Workshop France, Handicapped International, Save the Children, USAID/OFDA, UNIFEM, the
VNRC, the Women's Union and World Vision participated in the event.
Challenges
The main challenges faced were the complex arrangements required with the three different
organisations involved in organising the event: Oxfam GB, IRC and UNDP.
Participant selection was undertaken with a degree of rigour aiming to ensure that the “right” people
attended although the event was faced with challenges of drop outs at the last minute and also
distractions due to holding the event in Hanoi (the consequence of saving budget and not having the
event out of town).
In addition, the event was considered to be rather lengthy and participants faced demands from their
respective offices to deal with their existing workloads.
Various time-consuming and frustrating challenges were faced dealing with procurement issues
involved with the printing, copyright issues, translation and interpretation services, and the hotel
venue.
Changes affected
An Activity and Expense Agreement, identifying the roles and responsibilities of each organisation
was drawn up (see Annex X Activity and Expense Agreement) which clarified the respective roles
and responsibilities of the concerned agencies.
The day to day management of the event was undertaken with some strictness in terms of attendance
records and follow-up of participants for tardy arrival, absence, etc. Detailed records were then used
by the trainers/others to determine who would receive certification.
Most procurement matters were resolved through diligent follow up and action by the ER Specialist
with the support of UNDP Procurement team and other UNDP staff. Personal contact with Oxfam GB
also resolved the issue of copyright for the Vietnamese version of the EMMA material.
Activity 2.4
Logistics support to conduct joint ER needs assessment of worst affected areas as
part of the UN Contingency Plan
Progress
It is anticipated that an ER consultant will be hired in the fourth quarter to develop further the Early
Recovery Assessment Methodology.
List of Annexes
Annex I
ToR for an International Early Recovery Consultant for improved capacity and
performance of the early recovery cluster
Annex II
Submission 1: Summary of early recovery needs assessments following typhoons
Ketsana and Mirinae; review of coordination following typhoons Ketsana and
Mirinae; review of emergency response and early recovery guideline)
Annex III
Submission 3 Recommendation to Improve Early Recovery Strategy
Annex IV
Submission 2 Recommendations for ER Mainstreaming and Interventions
Annex V
Submission 4 Early Recovery Needs Assessment Tool
Annex VI
Submission 5 Advice on M&E
Annex VII
Minutes: “Workshop on responding to silent disasters - drought, forest fires and salt
water intrusion”, August 4th 2010
Annex VIII
EMMA training event participants
Annex IX
Summary evaluation report for EMMA training event
Annex X
Activity and Expense Agreement
Annex XI
Financial Report