IPA Beneficiary Needs Assessment
Albania
This publication has been produced with the assistance of the European Union. The contents of this
publication are the sole responsibility of the UNDP and WMO and can in no way be taken to reflect
the views of the European Union.
1
Contents
Executive Summary ................................................................................................................................. 5
Introduction ............................................................................................................................................ 5
Natural Hazards and Disaster Risks ......................................................................................................... 5
Governance and Institutional Arrangements for DRR ............................................................................ 8
Legal and Strategic Framework .......................................................................................................... 8
Institutional Framework ..................................................................................................................... 9
Funding and Budgets ........................................................................................................................ 10
Civil Society ....................................................................................................................................... 11
Information Management..................................................................................................................... 12
Post-Disaster Assessment ................................................................................................................. 12
Risk Assessment ................................................................................................................................ 12
Information Management ................................................................................................................ 13
Early Warning Systems .......................................................................................................................... 14
Capacity Development .......................................................................................................................... 15
Awareness Raising ............................................................................................................................ 15
Training ............................................................................................................................................. 16
Disaster Prevention and Mitigation ...................................................................................................... 16
Preparedness for Disaster Response .................................................................................................... 17
Cross-cutting issues ............................................................................................................................... 18
Gender .............................................................................................................................................. 18
Climate Risk Management ................................................................................................................ 18
Regional and International Cooperation............................................................................................... 19
SWOT Analysis ....................................................................................................................................... 20
Strengths ........................................................................................................................................... 20
Gaps/Weaknesses............................................................................................................................. 20
Opportunities .................................................................................................................................... 21
Threats .............................................................................................................................................. 21
2
Recommendations Endorsed by the National Policy Dialogue ............................................................. 22
Bibliography .......................................................................................................................................... 26
Annex 1: South East Europe Disaster Risk Management Initiative ....................................................... 27
Annex 2 - List of Respondents ............................................................................................................... 29
Annex 3: Hazard Maps .......................................................................................................................... 31
Road Type...................................................................................................................................... 32
Seismic Hazard Map of PGA, 475 years of returned period ................................................................. 32
Stability Shading .................................................................................................................................... 32
3
List of Acronyms
ANSD
Average Number of Snowy Days
ARC
Albanian Red Cross
ASL
Above Sea Level
CEP
Committee for Environment Protection
CRIF
Catastrophic Risk Insurance Facility
DPPI
Disaster Preparedness and Prevention Initiative
DRMAP
Disaster Risk Mitigation and Adaptation Project
DRR
Disaster Risk Reduction
EBRD
European Bank for Reconstruction and Development
GDCE
General Directorate for Civil Emergencies
GDP
Gross Domestic Product
GoA
Government of Albania
HFA
Hyogo Framework for Action
ICOLD
International Committee of Large Dams
IEWE (or INEWE)
Institute of Environment, Water and Energy
IFRC
International Federation of Red Cross and Red Crescent
KTP-N.2-89
Construction Design Code, Nr. 2, Year 1989
MANDSC
Mean Annual Number of Days with Snow Cover
MDSC
Maximum Depth of the Snow Covers
MoI
Ministry of Interior
NCESS
National Civil Emergency Service System
NDP
National Development Plans
NEA
National Environment Agency
NEAP
National Environment Action Plan
NOCCE
National Operation Center for Civil Emergencies
OCHA
Office for the Coordination of Humanitarian Affairs
SEE
South East Europe
SME
Small and medium Enterprises
UNDP
United Nations Development Programme
UNFCCC
United Nations Framework Convention on Climate Change
UNISDR
UN International Strategy for Disaster Reduction
VCA
Vulnerability and Capacity Assessment
WMO
World Meteorological Organization
4
Executive Summary
Introduction
Albania is highly exposed and vulnerable to natural hazards. However, to date we know little about
the ability of the government and communities of the country to manage natural hazard-related
risks. This report identifies and elaborates general needs with respect to strengthening disaster risk
management in Albania.
The report covers the five priority areas of action under the Hyogo Framework for Action.1 It begins
with an analysis of the enabling environment and institutions involved in disaster risk reduction
(DRR). Risk assessment and early warning systems are then examined. The ensuing sections deal
with capacity development and education, the integration of DRR into development, and the state of
preparedness and response mechanisms. Cross-cutting issues covered include gender, mechanisms
for dealing with climate change, and regional and international cooperation. The report also
includes an overarching SWOT (strengths, weaknesses, opportunities and threats) analysis and
results and recommendations from a national policy dialogue.
The report was produced under the auspices of the South East Europe Disaster Risk Management
Initiative, for which UNDP, WMO, ISDR, and World Bank are collaborating in their respective areas of
comparative advantage (see Annex 1 for additional details). The UNDP component of the initiative
covers disaster risk reduction in general and aims to build capacity in DRR mainstreaming and the
establishment of National Platforms, to promote the harmonisation of DRR methodologies, plans,
and strategies, as well as to assess needs for the purpose of elaborating a regional strategy for
strengthening DRR. The WMO component of the project seeks to promote cooperation among
national meteorological and hydrological services (NMHS), as well as to assess their needs and
develop capacity for acquisition, assimilation, exchange and dissemination of data and information
related to hydrometeorological hazards.
To create this report, UNDP and WMO mobilized consultants to work jointly with national
consultants. These teams consulted with a wide range of DRR stakeholders. Initial results were
presented to national stakeholders during a National Policy Dialogue (held in 2010) for review and
discussion. During this meeting, participants endorsed the report, as well as a set of
recommendations emanating from it. These recommendations comprise the final section of the
document.
Natural Hazards and Disaster Risks
Albania is exposed to geologic (earthquakes, rock falls and landslides), hydro-meteorological
(flooding and torrential rain, rain or snowfall induced landslides and avalanches, snowstorms, high
snowfall, windstorms, droughts and heat waves) and biophysical hazards (forest fires and
epidemics). Landslides, biophysical hazards and avalanches are strongly related to hydrometeorology
and weather conditions.
1
The HFA was elaborated and signed by over 160 countries during the World Conference on Disaster
Reduction held in Kobe, Japan in January 2005. It sets the global DRR agenda through 2015
5
These hazards can be natural or human-induced and can cause spatially and seasonally localised
disasters (e.g. flash floods, wild and forest fires, landslides, rock falls, avalanches, etc.) or disasters of
a more widespread nature (e.g. earthquakes and epidemics, etc).
In terms of DRR, the country is exposed to a spectrum of environmental problems that were
inherited from the former planned and centralised economy. Some of these problems are the
deterioration of bio-diversity (previous deforestation and loss of flora and fauna), soil erosion, water,
air and land pollution and the continued existence of high risk areas (hot spots) with respect to
environmental pollution, all of which can potentially exacerbate the effects and impacts of natural
hazards. These problems are reinforced by shortcomings in the implementation of the legal and
institutional framework, despite recent significant improvements.
Albania is characterised by intense micro (1.0< Magnitude on the Richter Scale ≤3.0) earthquake
activity, small (3.0<M≤5.0) and medium-sized (5.0<M≤7.0) earthquakes and only rarely by large
(M>7.0) earthquake events. 5 major earthquakes affected Albania over the 20th century and resulted
in significant damage2. Over recent years, two earthquakes in 2005 and 2009 (in the north-east of
Albania and in Peshkopia District M: 5.2 and M: 5.1) caused considerable material losses but no
casualties. Considerable population growth and rural-urban migration reinforce Albania’s
vulnerability, since these phenomena lead to increased population density and concentrated
economic activity in high-risk urban areas. A typical example is the rapid population growth in the
region of Durres, located in an area of high seismic risk potential.
Recent flood records indicate that major flooding has occurred in all principal watersheds 3 .
Torrential floods frequently affect valleys throughout Albania. Historic evidence has localised the
torrents of Permet, Zaranika, Manasdere, Manatija, Lana, Zeza, Gjadri, Droja, Korca and Verdova,
and the rivers Kiri, Terkuzes, Gjoles and Drinosit as posing considerable threats. Following the floods
of 1962/63, Albania invested in and undertook numerous preventative engineering measures,
mostly in relation to the dyke system, the water retention reservoirs built on the Drini and Mati
rivers, etc. The structural measures undertaken, designed on the basis of 50 year return period
floods, had an important role in reducing the effects of the 1970/71 winter flooding.
Snow precipitation is characteristic of the inland mountainous regions in the north and north-east
and the centre and south. In mountainous regions, snowfall usually begins in November and lasts
until late March, but can last until the end of the summer in the Albanian Alps and on northern
oriented slopes. High snowfall and frequent avalanches caused substantial damage in the winters of
1933/34, 1940/41, 1953/54, 1963/64 and 1972/73. The avalanches of Bater (Mati District) in March
1965 and of Feken (Mali me Gropa) of March 1981 were the most dramatic occurrences.
Land instability in Albania primarily occurs after massive torrential rain or snowfall. Various modes of
landslide (rock falls, topples or torrent deposits) are often recorded along disturbed slopes close to
national and regional transportation routes, water irrigation and other surface channels and places
2
the Shkoder earthquake in 1905, M:6.6; the Lake Ohrid earthquake in 1911, M: 6.7, the Tepelene earthquake in 1920, M:
6.4, the Durres earthquake in 1926, M: 6.2 and the Montenegrin earthquake in 1979, M: 6.9
3
the Drini and Buna rivers in 1905, 1937, 1952 and 1960, the Ishem, Erzen and Shkumbini rivers in 1946 and the Semani
and Vjosa rivers in 1937
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of other engineering works. In 2009, eight serious landslides occurred in populated rural areas,
affecting a large number of families, houses, infrastructure, etc.
Table 1: Economic losses from disasters caused by the impact of natural hazards in Albania,
1974-2006
Economic loss (in millions of USD)
Years used to
calculate the
average
GDP per capita
[USD/inhabitants] in
2005
1974-2006
2,755.3
Annual average
economic loss
due to all hazards
(in millions of
USD)
68.67
Percentage
of GDP
Drought
Earthquake
Flood
2.49
2238
2 to 5
24.673
Source: UN/ISDR and the World Bank 2008. Notes: Economic loss from other hazards is also included for calculating annual
average economic loss
During the last two decades, the occurrence of forest fires in Albania has increased in number and
also in size of affected area. Albanian forests are especially prone to fire at the end of spring and
during unusually warm and dry summers. The causes of these fires can be anthropogenic (human
negligence, pasture burning and similar and to a lesser extent as a result of arson) or natural
(lightning). Most damage occurs in the coniferous forests.
Since the 1960s, the mean intensity, length and number of heat waves across the eastern
Mediterranean have increased, particularly the accumulation of short (less than 6 days) but more
intense heat wave events compared with previous decades. Albania is exposed to these increases
and at least three events leading to mortality and economic loss have been recorded since 1980.
.
According to EM-DAT data, 23 disaster events have been recorded for the period 1980 to 2010. Of
these, nine were flood events, four were earthquakes and three related to extreme temperatures.
During this period, 163 people were killed, nearly four million people have been affected and the
accumulated estimate of economic damage is close to US$25,000,000. However, one drought event
in 1989 was estimated to have affected 3,200,000 people. The economic cost of this drought has not
been calculated. In fact, the estimate of economic damage for the period relates to recent flood
events only.
The South East European Climate Change Framework Action Plan for Adaptation acknowledges that
the entire region of South East Europe will have to face increased annual mean temperatures,
decreased annual number of precipitation days and increased magnitudes and frequencies of
climatic extremes. The majority of SEE countries also share similar vulnerable groups: low-income
groups in drought-prone areas with poor infrastructure and market distribution systems, low to
medium-income groups in flood-prone areas due to the possible loss of stored food or assets and
farmers who may have their land damaged or submerged by increased floods. The first impacts of
7
climate change will likely be felt in the agricultural production, water resources availability, forestry
and energy (because of SEE countries’ heavy dependence on hydropower)4.
For Albania, as stated in its first and second National Communication to the Conference of Parties
under the UNFCCC, the most dramatic increases in temperature and decreases in total precipitation
are projected for the summer period. The increase of summer temperatures might result in greater
risk of crop damage from pests and diseases and in greater fire risk because of droughts. The
increase in winter temperatures is expected to lead to precipitation in form of rain rather than snow,
which may induce greater risks of soil erosion. Reduced runoff is likely to degrade water quality and
wetland. It will also reduce ground water supply, which might bring a shortage of adequate quality of
drinking water. Extreme rainfall events and increased variability of river flows will make flooding
more severe. By 2100, a sea level increase of up to 30-45 cm is predicted, flooding coastal areas.
Abatement measures such as energy saving through energy efficiency measures, promotion of
renewable energy sources, waste reduction and sustainable forestry development plans are detailed
in the national communications, and climate-change related issues have also been included in
Albania’s National Strategy for Development and Integration 2007-2013.
The vulnerability of Albania’s citizens and the impact of disasters in the country are significantly compounded by a relatively high degree of poverty, lack of infrastructure maintenance, unsafe building
and land use practices linked to rapid urbanization, exploitation of natural resources (overgrazing of
pasture, overexploitation of forests and riverbeds, etc.) as well as by the various consequences of
the transition from a state-controlled economy to a free-market one5. Nearly 47% of Albanians live
below the poverty line. Socio-economically fragile groups being often disproportionately exposed to
hazards, the effects of a disaster would negatively affect the prospects for long-term development.
Part of Albania’s structural vulnerability stems from the obsolescence of some installations such as
dyke systems, drainage channels, high water collection or flood-control facilities and pumping
stations. Many of these have not been improved in recent times and their deterioration may easily
aggravate the consequences of river flooding. During the winter 2009-2010, severe flooding created
a critical situation at the River Drini hydro-power plants and water-reservoirs as well as downstream,
in the area between Vau, Dejes and the Adriatic Sea. Albania’s flooding potential is further increased
by the proliferation of high earth dams constructed on rugged terrain subject to landslides and
earthquakes. The 2003 Risk Assessment Study of Natural Disasters established that the greatest
demand placed on the national civil emergency system would result from earthquakes occurring in
Durres, Elbasan, Berat or Vlora. In these regions, only a few hospitals and school structures are
designed appropriately and the safety of residential buildings is generally poor.
Governance and Institutional Arrangements for DRR
Legal and Strategic Framework
The primary legislation dealing with natural and made-made disasters in Albania is the Civil
Emergency Law that dates back to 2001 and focuses primarily on response rather than on
prevention and risk reduction.
4
5
SEE CC Framework, Action Plan for Adaptation
http://www.ifrc.org/PageFiles/86599/Albania.pdf
8
The adoption in 2004 of the National Civil Emergency Plan - a comprehensive practical guide which
covers in detail all stages of the disaster cycle, including prevention, mitigation and preparedness addressed on some level the lack of specific provisions for DRR in the current legislation. While the
plan is not yet fully implemented, it nevertheless highlights Albania’s will to gradually promote such
practices6. The National Civil Emergency Plan for Albania does not feature individual sectoral plans,
but is nonetheless linked to sectoral strategies and contingency plans such as the National
Environmental Action Plan, the Strategy related to Forest Fires, the Contingency Plan related to
Radioactivity or the Initiative on Land Use and Watershed Management7.
The draft Civil Protection Law formally recognizes the importance and the need to promote disaster
prevention and mitigation, not only at all levels of government - central, regional and local - but in
the private sector as well. The current draft law also clarifies mandates and competencies among the
relevant agencies.
Other laws pertaining to DRR activities are the Law on Fire Protection and the Law on Local
Government, which are completed by legal provisions dealing with environmental protection,
environmental impact assessments, protection and development of forests and pasture, agriculture
and rural area development, safety of dams and dykes, public health protection, urban planning and
construction, etc. Regarding the problem of forest fires, the Government has for example issued
extensive legislation that defines compulsory prevention measures for the protection of forests, such
as the construction of fire prevention barriers, biological/silviculture measures, the construction of
forest monitoring towers, the strengthening of the seasonal forest patrol system, prohibition of
igniting fires in forests, etc.
Overall, even though DRR is addressed in some policies, strategies or action plans, the adopted
approach is not organic and DRR is not yet fully integrated into sectoral and multi-sectoral plans.
Institutional Framework
For emergency situations only, an Inter Ministerial Committee for Civil Emergency Response is
established in law. In accordance with the national legislation presented above, a Department of
Civil Emergency Planning and Response is established within the Ministry of Interior. The
Department is responsible for ensuring the effective coordination between all ministries, institutions
and bodies in disaster management. It has close relationships with civil emergency officers in all the
prefectures (qarks) of Albania. It is divided into three structures:
6
7
-
Directorate for Civil Emergency Planning and Coordination, key institution for disaster
management, especially coordination. This Directorate has started moving beyond mere
preparedness and response, towards recovery activities and the incorporation of DRR
elements into development plans, in particular for disaster prone areas.
-
Directorate of Fire Protection and Rescue Police
-
National Operations Centre for Civil Emergency, which has direct links with all operational
forces.
http://www.ifrc.org/PageFiles/86599/Albania.pdf
http://www.unisdr.org/2005/mdgs-drr/national-reports/Albania-report.pdf
9
For now, each line ministry is responsible for the coordination of DRR pertaining to its area of
responsibility. There is little consultation with and guidance from other partners and the Directorate
for Civil Emergency Planning and Coordination. Thus, to match the existing legal provisions, the links
between the Directorate for Civil Emergency Planning and Coordination and line ministries/other
organizations or between implementation partners would need to be reinforced.
Although there are powers and responsibilities assigned to the regional and local governments in
DRR, the system in Albania remains highly centralised. Regional and local governments do not
receive sufficient funding and in practice are excluded from decision-making. Moreover, legislation
does not yet specifically encourage community participation in disaster risk reduction.
The meteorological and hydrological services 8 in Albania are represented by three different
Institutions: the Institute of Environment, Water and Energy (IEWE, which is part of Tirana
Polytechnic University and the largest institution), the Military Meteorological Service under the
Albanian Ministry of Defence and the Tirana International Airport Meteorological Service. Private
companies are also active in the field of meteorology. The IEWE is in charge of national hydrological
and meteorological observation networks, of monitoring surface and underground water, air quality
and deals with meteorology/climatology.
The Department of Seismology in the Institute of Geo-sciences (within the Polytechnic University of
Tirana) also plays an important role in terms of DRR since it studies and monitors continuously the
seismic activity in the country to provide real time data to decision-makers and public opinion. The
Albanian Seismological Network, Albanian Strong Motion Network, and the Geodynamics Network
are all part of this department.
Among the relevant institutions, there is inadequate understanding of and capacity for DRR. Overall
coordination is lacking. Albania does not yet have a National DRR Platform that would facilitate the
interaction of key development players around the national DRR agenda and serve as an advocate
for adopting DRR measures at all levels. DRR is frequently assumed without really being identified or
defined. Moreover, many institutions are not adequately involved. For example, the hydrometeorological sector does not yet participate fully in national and regional DRR through monitoring,
analyzing, mapping, warning and forecasting hazards. It should be reorganized, with the objective of
making it Public Service according to WMO standards. This can only be realized if adequate human,
technical and financial resources are allocated to this sector, so that it can sustain its role towards
the community and in different phases of DRR, including studies on impacts of climate change.
Funding and Budgets
Regarding financial resources, the Law on Civil Emergency Services mentions that the State budget is
the “primary financial resource for civil emergency planning and crisis management” and that
ministries should have an annual budget for civil emergency planning and response within their
respective field of activity. No mention is made, however, of the amount or percentage of budget
that should be allocated to DRR. The Department of Civil Emergency Planning and Response receives
an annual funding of US$ 200,000 and then allocates part of the amount to its units.
8
A detailed assessment in the role, products and capacity of the hydro-meteorological sector is given in Appendix 2.
10
For emergency issues, 4 types of budgetary provision are in place: the emergency budget of the
Ministry of Interior, the emergency budgets of local government, reallocated budgets of line
ministries and the Council of Ministers Reserve Fund.
The Law on the State Budget allocates a yearly reserve fund at national and local levels. The Council
of Ministers is entitled to use this fund in the event of a civil emergency situation, as well as for
disaster reduction measures. In recent years, an inter-institutional action aimed at flood risk
reduction has been implemented in the north-west part of Albania (the Lezha region). This increase
in investment in the financing of disaster reduction has had positive results in areas such as Lezha,
where flooding used to occur frequently but now the level of risk has significantly decreased.
Most of the funds are allocated for disaster preparedness and post-disaster recovery. These budgets
are primarily intended for emergency situations, although there are training and development
budgets within line ministries that include DRR elements. In overall terms though, the financial
means for DRR in Albania are extremely limited at the present time, particularly at the local level9.
On 16 May 2008, Albania has become the first country member of the Catastrophe Insurance Fund
established as part of the SEE Catastrophic Risk Insurance Facility (CRIF) to receive USD 2.5 million
from IBRD. These funds were allocated to cover its capital contribution to the Facility and the costs
for conducting a public education campaign on the benefits of catastrophe insurance. The CRIF will
offer innovative low-cost catastrophe insurance products for earthquake and flood risk to
homeowners and small and medium enterprises (SME), including stand-alone catastrophe insurance
coverage for damage to property and stand-alone catastrophe insurance coverage for financial
losses sustained by SME due to such concerns as the interruption of business and damage to
equipment. However, the national insurance sector is currently not involved; its mobilisation is not
guaranteed.
Civil Society
With 80,000 members, 2,000 volunteers and 39 branches, the Albanian Red Cross is the main nongovernmental stakeholder in DRR. Founded in the 1920s, its current activities are based on Law No.
7864 on the “Albanian Red Cross”10. The National Plan for Civil Emergencies in Albania assigns an
important role to the ARC for disaster prevention, preparedness, response and recovery. The ARC
has developed its own disaster plans. The ARC structure against disasters is organised on two levels:
the central level, which manages the main human and material resources and the local/district level,
where 39 disaster trained volunteer teams comprising between 25 and 30 people have been
established throughout Albania. In 2002 a partnership agreement was created between the Ministry
of Local Government (today the Ministry of Interior), the Albanian Red Cross and UNDP Albania.
The ARC is an active member of the International Federation of Red Cross and Red Crescent Societies
(IFRC). In the event that their disaster resources are insufficient, the ARC can launch an appeal
through the IFRC. The ARC’s activities against disasters are focused on disaster needs assessments,
first-aid, healthcare, hygiene issues, social issues and public awareness on DRR.
The ARC is equipped with a radio communications system and has one central and three regional
training centres. It owns a 2,200 sq m warehouse in the centre and three others in the regions of 300
9
http://www.unisdr.org/2005/mdgs-drr/national-reports/Albania-report.pdf
dated 29.09.1994
10
11
sq m each. The ARC is able to transport humanitarian relief throughout the country due to its
transportation team that is equipped with appropriate vehicles. The ARC manages a stand-by
material resource able to cater for 8,000 individuals.
Although ARC is quite active, support for community-led DRR remains inadequate. An incomplete
legal and regulatory framework, centralized institutions, financial constraints, and low capacity of
local actors are the main impediments at this level.
Information Management
Post-Disaster Assessment
The current legislative system does not have any law that defines a possible disaster recovery
process or how to conduct a post disaster needs assessment. After each event, institutions in charge
realize systematic reports for their field of operation but no detailed analysis of socio-economic and
environmental impacts and losses is conducted. The first efforts to prepare standard post event
reports are underway, but capacity is presently lacking to conduct more detailed analyses of this
nature11.
In order to unify the various reports on disaster situations prepared by various institutions, the
Ministry of Interior has developed a series of standard assessment tools to be applied: a First
Notification Form (prepared at the Prefect level), the First Disaster Information Report (prepared by
a Joint Assessment Team), a Disaster Situation Report to OCHA, and Request for Line Ministries in
Case of Emergencies.
The Rapid Needs Assessment Reports are practical tools presented in the Civil Emergency Manual
that have to be completed by the respective authorities to help them get immediate information on
the level of damage and the needs.
In the case of a large-scale civil emergency situation, a Joint Assessment Team undertakes a Rapid
Needs Assessment. However, prior to this, any contribution should be made by the NOCCE, the Qark
Civil Emergency officer or Prefect and communal and municipal authorities using the same format. In
extreme situations, initial interventions (mass medical care and other priority activities such as
evacuation, search and rescue) can be conducted before or during the Rapid Needs Assessment.
Successive follow-up assessments will be made using the same approach, but with greater detail as
information becomes available and the situation stabilizes.
Risk Assessment
The Law on Civil Emergencies Services appoints the Ministry of the Interior as responsible for
conducting risk assessments. For the first time, in October 2003, a national assessment of the
potential hazards and the risks that they represent was published in Tirana. Entitled “Disaster Risk
Assessment in Albania”, this study provided an expert analysis of specific hazards and risks, including
potential loss of life and property, and identified the areas that have historically been affected as
well as the areas that are most likely to be affected in the future. However, this assessment did not
systematically incorporate a full understanding of vulnerabilities (of communities, infrastructure,
11
http://www.unisdr.org/2005/mdgs-drr/national-reports/Albania-report.pdf
12
economy, environment, etc) or current capacities existing to address disaster risk. It has not been
updated since. The emphasis upon hazard analysis and lack of attention to non-structural aspects of
vulnerability reflects the capacities of the institutions involved.
Albania monitors and assesses its risks from natural hazards through several relevant institutions:

For seismic risk -

Floods/avalanches/heavy snow -

Landslides -

Forest fire -

Epidemics -
Department of Seismology within the Institute of
Geo-sciences (Tirana Polytechnic University)
Primarily by the Institute of Water, Environment
and Energy (Tirana Polytechnic University)
Institute of Geo-sciences (Tirana Polytechnic
University)
Department of Forests and Pastures (Ministry of
Agriculture, Food and Consumer Protection)
Institute of Public Health (Ministry of Health)
The Albanian Red Cross, with the support of UNDP, has undertaken a 2004 Vulnerability and
Capacity assessment at local level in high-risk areas.
Currently, municipalities do not carry out any risk assessments, since the law on Civil Emergency
Services does not mention any role or responsibility for municipalities on this topic. This might
change with the new draft law, which specifies that local level government units should also conduct
risk assessments in cooperation with relevant institutions at a regional or central level.
Information Management
The national focal point of the disaster risk information system is the Department of Civil Emergency
Planning and Response, which consolidates and analyses all risk related information. This done
mostly via a 24-hour National Operations Centre for emergency information concerning immediate
risks. At field level, Civil Emergency Officers in each Prefecture are linked to their counterparts in
communes and municipalities (with the exception of Tirana, which is directly linked to the
Department), but the linkage among them is often weak.
Disaster-related information is collected as part of normal Government data-systems. DRR
Information Management is conducted by sector line ministries/institutions that have already
developed the respective sector development strategies and integrated plans.
The Seismology Department, the Institute of Geo-Sciences and the Institute of Public Health are
deemed quite successful in cataloguing historical disaster events sent to the Directorate for Civil
Emergencies, while the Institute of Water, Environment and Energy is not always providing enough
data and analyses on disaster reduction from floods. Also, the institutions within the Tirana
Polytechnic University tend to focus on the academic aspects of their duties, thereby favoring a
reactive approach and creating a gap with DRR practitioners.
Data collection and sharing is far from being well institutionalized. No official agreement or
mechanism for information transfer exists as such.
13
Early Warning Systems
The Albanian meteorological observation network is composed of 7 automatic weather stations
(AWS), 15 agro-meteorological stations, 2 marine meteorological stations, 110 manned climate
stations and 15 rain gauge stations. None of the AWS is online except one, and only one AWS is
operational. None of the marine meteorological stations is currently operational and the climate
stations conduct observations only 3 times a day and reports monthly.
The IEWE conducts surface water monitoring and air quality monitoring through more than a
hundred stations covering all main rivers, tributaries and streams, and through one permanent air
monitoring station in Tirana coupled to 7 mobile stations. It also administers 125 meteorological
stations to monitor potential floods, erosion, tempests and thunderstorms.
The Military Meteorological Service possesses 10 climatologic stations, whereas Tirana International
Airport only has one climatologic station.
However, there is no overall level of coordination between these different institutions. The absence
of weather radars, upper air sounding stations or other upper air observation systems, the lack of
lightning detection systems and lack of capacity to run any numerical weather prediction models are
all detrimental to the production and accuracy of short-term (1-24h) weather forecasts. To issue
short- and mid-term weather forecasts, the IEWE is dependent on numerical weather prediction
products from the European Centre for Medium-Range Weather Forecasts and from Montenegro.
The Military Meteorological Service cooperates with the Italian meteorological service (a military
organization) and gets their numerical weather prediction products to be used for weather
forecasting.
All in all, the hydrological and meteorological observation network is at significantly lower qualitative
level than in the EU countries, and the absence of numerical weather prediction models represents a
serious impediment to the EWS. There is currently no capacity to operate a 24/7 hydrometeorological monitoring, forecasting and warning system in Albania.
The Albanian Seismological Network is presently composed of 13 stations equipped with various
digital instruments, while the Albanian Strong Motion Network is composed of 34 stations (16
digitally upgraded SMA-1 accelerographs, 10 CMG-5TD systems and 8 CMG-5T sensors) distributed in
various towns and soil ground conditions. A new, fully integrated digital seismograph system using
the satellite communication is now under operation as part of Albania’s seismographic network. The
data of this digital seismograph system coming from seven satellite remote stations in the country
are exchanged in real time with the INGV in Rome and Thessaloniki University, and efforts are being
made to accomplish real time data exchange with the Mediterranean Seismological Network as well
as the seismological networks of Kosova, Montenegro, Macedonia, Serbia, etc.
Hazard monitoring institutions provide periodic and specific information to the Department of Civil
Emergency Planning and Response. When certain thresholds are met (for example when a certain
level of precipitation triggering serious concern is reached), immediate contact is made with the civil
emergency structures and constant monitoring and transfer of data are undertaken to prepare for a
“Stage 1 Alert” as defined by the National Civil Emergency Plan. The National Civil Emergency Plan
defines roles, responsibilities and contacts to be established in the case of a civil emergency. Four
steps (Alert, Stand by, Activate, Stand Down) are defined, which establish the lines of conduct and
14
warning procedures for the General Director of the Civil Emergency Planning and Response
Department, the Minister of Interior, relevant prefects, departments and agencies.
When disaster/incidents are detected by individuals/police/authorities in the field, the information is
transmitted to the local/police authorities and from there to the National Operations Centre for Civil
Emergencies. The Directorate for Civil Emergency Planning and Coordination and relevant line
Ministries usually assess the situation through relevant experts and then disseminate the warning to
the regional police, local government authorities, operational organisations, NGOs, the media and
ultimately to the public. The 24-hour National Operations Centre for Civil Emergencies has its own
radio network present in all 12 prefectures of Albania. 24 operational centers and radio systems
under the authority of the Ministry of Public Order and Ministry of Defense provide a national
system where early warning can be transmitted very rapidly to alert and if necessary, evacuate
people and property from an area at risk. For most hazards, people can be informed within a
reasonable time frame. But the country lacks a 112 system and the media are not actively involved in
the dissemination of warnings or disaster management generally.
Early warning is still understood as warning about an imminent disaster and long-term risk
monitoring to identify developing trends and provide early warning information to national
authorities is missing. It is critical to improve the organizational framework for Early Warning by
promoting the capacity of the hydro-meteorological sector12 (for example through the use of
modern forecasting technology including numerical weather prediction products).
Capacity Development
Awareness Raising
Public and organisation awareness of specific risks and community participation in planning and
response have been encouraged through the production of leaflets, posters, hazard maps and other
educational materials, and the presentation of information through media, public meetings and
work in schools and organisations. Such activities are coordinated by the Directorate for Civil
Emergency Planning and may draw on the capacities of working groups and the support of key
stakeholders such as local level administration, education services, media, and the Police. Technical
institutes, such as the Seismological Institute and the hydro-meteorological sector, have a central
role in the production of hazard maps. Using appropriate language and approaches, the targeted
groups are the general public, including more vulnerable groups such as women, children, etc,
teachers, leaders at Qark, Commune and Municipality levels, community planners, identified urban
community groups, rural families and village communities, government departments with key roles
in civil emergency matters, key officials and decision makers in public and in private sector,
volunteer, non profit and non-governmental organisations, diplomatic and donor community. The
Albanian Red Cross has organised periodic national campaigns on disaster awareness issues,
including health issues and volunteering, and leaflets prepared by the Institute of Public Health on
disaster prevention and preparedness have been distributed to the population. But these attempts
to reach communities and to spread information on DRR measures are sporadic and usually not
systematized.
12
(see Appendix 2)
15
Disaster risk concerns are not covered by the education curricula at high school level. Only the
military education system organises regular lectures on DRR. Some attempts have been made to
integrate disaster preparedness and environmental awareness in schools, via optional modules on
disasters or community work, but these stay rather marginal. At the university level, there are no
specific training programs to form seismologists and hydrologists.
Training
According to the Law on Civil Emergencies (Article 8.5) the Ministry of Interior is tasked to “elaborate
educational and training programmes in the area of protection against natural and other disasters”.
In fulfilling these requirements over recent years, the Ministry of Interior has designed and
implemented the National Civil Emergency Training Curriculum, comprised of eight training
manuals 13 containing national and international civil emergency standards and guidelines,
undertaken training activities and organised conferences at the national and regional level.
Institutions who design and hold training and simulation activities on specific issues relevant to civil
emergency management, are obliged to inform and coordinate their activities with the Civil
Emergency System Service.
The Directorate for Civil Emergencies has a national training centre, the Albanian Red Cross is active
through its 4 training centres for volunteers and the Department of Civil Emergency Planning and
Response regularly conducts training courses for fire brigades at the Fire Brigade Training Centre in
Tirana. Through the Training of Trainers initiative, Albania now has its own core group of civil
emergency trainers. They have increased the capacities and confidence related to the design and
organisation of training activities for different target groups at both the national and local level.
However, to make a real contribution to the strengthening of DRR in Albania, training should be
expanded to cover more DRR issues and actions and include those in both government and the
private sector with defined DRR responsibilities. One possibility amongst others would be a more
efficient use of the Fire Brigade Training Centre to promote training in DRR programming involving
all stakeholders from national and local government personnel to community members.
Disaster Prevention and Mitigation
Prevention and mitigation measures have been undertaken regarding structural design
requirements. Considering the urgent need to revise and update Building Regulations in regard to
the country’s seismicity, the European Commission organized a workshop in November 2006,
entitled “Eurocodes: Building the Future in the Euro-Mediterranean Area” in collaboration with the
13 The 8 training manuals are the following:
- Fundamentals of Disaster Management in Albania (including a Disaster Management Glossary)
- Disaster Response Planning
- Local Disaster Preparedness and Response
- Disaster Damage and Needs Assessment
- Coordination of Disaster Response Operations
- Disaster Relief Logistics and Distribution
- Disaster Management Trainer’s Guide
- Design Guide for Emergency Preparedness, Desk-top Simulations and Field Exercises
16
NATO “Science for Peace and Security” Programme. Albania requested financial and technical
support by the EU for the implementation of this set of European design codes for building and civil
engineering works. A programme of seminars and technical publications, aimed at helping
practitioners in the application of the new regulation, was organized. In July 2011, the Albanian
government approved the decision on adopting construction Eurocodes. This will not only bring
Albanian legislation in line with European standards in the field of construction, but also contribute
to improvements in seismic designs, the design rules on building with steel, concrete, timber as well
as geotechnical design and safety in case of fire. For now, the implementation of this project is still
nascent, since adequate training materials for engineers have not yet been developed.
Following the National Civil Emergency plan, line ministries, central institutions, prefects and
councils of qarks, municipalities and communes are in charge of assessing high risk areas and
hazards, according to their field of operation. They should also undertake monitoring measures,
organize early warning systems, inform the public in the areas under their jurisdiction and provide
reports showing preventive and mitigation measures in their respective field of competence. The
National Civil Emergency Plan foresees the establishment of mitigation committees at local and
national level, that are supposed to hold discussions on the risks posed by the greatest specific
hazard in an area, consider the measures to be taken in order to prepare for such an event and
protect people and property against its effects. In reality, however, these mitigation committees are
dysfunctional.
Disaster prevention and mitigation is dealt with in legal documents, but not sufficiently practised. In
fact, prevention and mitigation is mainly conceived in terms of structural measures, land use and
urban planning, when the scope for DRR should be much wider. In the same spirit, risk assessment
needs to be strengthened for targeting purposes, that is, they should include more areas of
vulnerability (socio-economic for example).
Preparedness for Disaster Response
In the case of a disaster, the Inter Ministerial Committee appoints a Minister responsible for the
emergency response operations. The Department of Civil Emergency Planning and Response is
responsible for the coordination of disaster response preparedness. The Directorate for Civil
Emergencies will produce a situation analysis, then a response plan and coordinate the response
operations, damage assessment and reconstruction phase. According to the law, one focal point for
emergencies should be established within each ministry. The National Civil Emergency Plan
represents one of the key resources in Albania for preparedness and response. Following the
National Plan, the main prefecture administrations and municipalities have developed their own Civil
Emergency Plans. At the qark level, the prefect is responsible for civil emergency planning and
response, at the level of municipalities and communes, mayor and heads of communes assume this
responsibility. For disaster response, a local commission is established in each municipality and
commune. However, since disaster response capacities at Qark, Municipality and Commune level are
very weak, support from the central government is often needed for any disaster response
operation.
Albania benefits from the stand-by and readiness capacities of several state agencies that may be
made available in the event of a civil emergency situation. These capacities include those under the
17
administration of the Ministry of Economy, the Ministry of Agriculture, the Ministry of Public Works
and Transport, the State Reserve, the Ministry of Health and the Albanian Red Cross. In terms of
contingency planning, the Albanian Red Cross has developed capacities to assist 8,000 people during
one month in case of any disaster. The stand-by capacities may be supplemented by additional state
and private sector capacities, potentially available at the national and local level. Local level
contingency plans record these in much greater and more regularly updated detail.
Seasonal preparedness measures reflect the essentially seasonal risks of heavy rainfall and potential
flooding (October to April), high snowfall (December to February) and forest fires (July and August).
At different periods, Albania has successfully mobilised community capacities to participate in forest
fire protection. Part of this is also a variety of measures aimed at fire prevention, such as public
awareness campaigns and fire fighting preparedness.
During recovery, specialised groups/teams carry out damage and needs assessments of both the
immediate and long-term needs. These assessments serve as a basis for the development of
recovery and development projects and plans. However, recovery is not well defined in the
legislation.
Cross-cutting issues
Gender
There are no clear indications of a specific approach to gender issues in Albania’s DRR activities. The
specific vulnerability and levels of risk faced by of women in disasters is largely accepted by all DRR
related institutions and organizations, but is not recognised in emergency plans. The absence of
precise reference to gender mainstreaming in DRR can lead to inaccurate risk identification,
assessment and prioritization, inappropriate policy responses and financing of risk at national and
community levels, ineffective DRR interventions designed to minimize risk and vulnerability or
increase coping capacity, or even lead to outcomes that create or exacerbate gender inequalities.
However, women’s traditional natural resource knowledge and proactive attitude in preparedness
and response is important for managing disaster risk, adapting to climate change, and framing an
effective recovery process. Building upon the Albanian law, which requires that women represent at
least 50% of the total number of people employed, women’s participation in DRR activities should be
further encouraged.
Climate Risk Management
Climate change adaptation in Albania is handled by the Ministry of Environment, Forests and Water
Administration. In 2009, it conducted the second assessment of vulnerability and adaptation options,
which focused on the Drini River Cascade (area from Kukës District to Lezha Plain). The area is very
important for electricity generation since more than 95 % of electrical energy in Albania is produced
from hydro power sources, primarily in the Drini River cascade with a total exploitable capacity of
1.7 GW and a generation potential of 6.8 TWh.
The country’s strategy to mitigate climate change includes measures on reduction of emissions from
waste landfills, land use and forestry, industry, integration of climate change in social, economic and
environmental policies, technology transfer, etc. A set of adaptation options has been identified for
each sector, taking into consideration principles such as prevention of loss, tolerating loss, sharing
18
loss, changing use or activity, changing locations, research and restoration. Despite that, climate
change in Albania still needs a more pro-active attitude from the policy making level. A major
challenge for Albania is to explore the cost-effective synergy between adaptation to climate change
and disaster risk reduction. Additional progress needs to be made in identifying changes in hazard
exposure and risk patterns. The Institute of Energy, Water and Environment requires additional
capacity to produce adequate local scale projections of climate change and climate variability14.
Regional and International Cooperation
Albania’s Department of Seismology of the Geo-sciences Institute is participating in the project
“Harmonization of seismic hazard maps for the Western Balkan Countries” launched in 2007 in the
framework of the Disaster Preparedness and Prevention Initiative of the Stability Pact for South
Eastern Europe with the support of the NATO Science for Peace and Security Programme. The main
objective of the project is to prepare the ground for joint preparedness and prevention activities in
disaster management among the countries of the region. The process of harmonization of the
earthquake terminology and of the seismic risk maps will improve scientific collaboration between
the project partners and enhance cooperation and coordination in the field of seismic hazard
management.
Recently, bilateral activities have been organised between relevant Albanian Institutions and
counterparts in neighbouring countries. Albania has established bilateral cooperation with the Italian
Government, particularly in respect to DRR training activities. The Italian Government supports the
Military Meteorological Service under the Albanian Ministry of Defence on an ongoing basis; this is
part of the national hydro-metrological service15. Additional memoranda of understanding have
been agreed with Greece, Macedonia, Turkey, Croatia and Austria, especially regarding support in
case of large scale disaster response operations.
The World Bank is actively contributing to DRR goals in Albania, not only through the Albanian
Disaster Risk Mitigation and Adaptation Project16 (under the UN International Strategy for Disaster
Reduction (UN ISDR) supported by the Global Facility for Disaster Reduction and Recovery17), but
also through the Land Administration and Management Project and the Energy Community of South
East Europe APL Programme (Albanian Dam Safety).
A current national project built between the Ministry of Environment, Forests and Water
Administration and UNDP is entitled “Identification and Implementation of Adaptation Response
Measures in the Drini-Mati River Deltas”. Stretching from May 2008 to May 2012, this project is
funded by the Global Environmental Facility.
Since Albania’s disaster risk is similar to that of neighbouring countries, the strengthening of
consultation and networking between neighbouring countries and with international and regional
14
Appendix 2
See Appendix 2
16 Overall coordination of this project is done under the Ministry of Interior with a predicted total investment of USD 9.99
Million. The first component of this project is Disaster Risk Management and Preparedness (USD 4.89 million). The second
component concerns the strengthening of the hydro-meteorological services (USD 2.09 million). The third component deals
with the development of building codes (USD 0.36 million). The fourth component is aimed at catastrophe insurance (USD
2.65 million). The fifth component is the project management.
17 P.64SEE climate Change Framework Action Plan for Adaptation
15
19
institutions should be encouraged. Promising avenues of cooperation would be the establishment of
regional monitoring for hydro-meteorological events, seismic hazards, prevention of infectious
diseases, forest/wild fires, climate change, etc. In order to meet required technological standards,
investment in the technological adaptation of hydro-meteorological monitoring networks is
anticipated as part of the WB adaptation project. Besides, regional cooperation could also be
improved on early warning, in order to develop a new level of coordinated response to large, crossborder disasters. Past events of this type have demonstrated good cooperation practices between
the relevant countries in the region, paving the way for future improvement, for example through
regional bodies/commissions on assessment, monitoring, data sharing, warnings, etc.
SWOT Analysis
Strengths
The country has a legal and policy documentation that provides a framework for future DRR actions.
The 2003 Natural Disaster Risk Assessment Study and the 2004 Vulnerability and Capacity
Assessment Study provide qualitative and quantitative information about the main hazards for the
population, economy and infrastructure. A set of climate change adaptation options for each sector
has been identified, followed by some specific implementation arrangements. The government has
recognised that mechanisms for establishing good DRR practice are needed, although these are not
fully in place yet.
Albania has well established institutions dealing with preparedness, response and recovery at
national and local government levels, as set out by the Civil Emergency National Plan and other
instructive materials, although they would need a revision/update. Various governmental and nongovernmental organizations dispose of stand-by and readiness resources and can provide support in
the case of emergency.
Effective partnerships exist between the main relevant government organizations (like General
Directorate for Civil Emergencies, various Prefecture Administrations, etc.), and the civil society, in
particular the Albanian Red Cross, and cooperation with countries in the region, especially
experience gained during previous major events, is encouraging.
Gaps/Weaknesses
One of the main gaps in Albania is the lack of DRR mainstreaming into development plans. The DRR
is not yet integrated into national, communal and sector policies because of the lack of appropriate
mechanisms to drive this agenda. A major challenge will be to integrate DRR requirements into the
development plans of line ministries and local governments via consultation with DRR practitioners
within the own organization itself and experts from the General Directorate for Civil Emergencies.
While there are governance systems, structures and legal provisions in place at national and local
levels, Albania’s approach to disaster risk largely focuses on preparedness and response. DRR activity
is present principally on a conceptual basis. Research and monitoring institutions like INEWE,
Department of Seismology in the Institute of Geo-sciences, and other relevant institutions covering
DRR requirements and needs tend to adopt a reactive rather than a proactive attitude.
20
There is a gap between the legal provisions and obligations in overall DRR coordination between the
General Directorate for Civil Emergencies and line ministries/other organizations as well as between
respective implementation partners for preparedness and prevention. Communication between
governing bodies and the local population could also be improved.
At regional level, both disaster monitoring technology and regional coordination on early warning
lack permanent institutionalisation.
Further gaps are the absence of education curricula that would cover DRR or other disaster risk
concerns from the elementary to the high school level, the absence of gender mainstreaming into
DRR practical guidance and activities, the lack of insurance system involvement in DRR and the lack
of an adequate 24/7 early warning system.
Finally, Albania’s deficits in DRR include the inadequacy of forecasting techniques, defective
environmental control measures, inadequate training for emergency personnel and population in
prevention/protection measures, inadequate participation of local communities in DRR and
inadequate market mechanisms to help buffer against disasters and the expansion of risks.
Opportunities
The prioritization of disaster response by high level decision-makers creates a premise to put other
aspects of DRR among top political agendas. A revision of the Law on Civil Emergencies, National
Plan for Civil Emergencies, and other legal provisions on DRR could provide necessary conditions for
DRR mainstreaming into development plans and activities.
Another opportunity is the World Bank project of Disaster Risk Mitigation and Adaptation plans to
improve, or establish, crucial DRR elements like the insurance system’s involvement in DRR, eurocode adaptation, adequate hydro-meteorological monitoring system, etc.
The National Strategic Development and Integrated Development Plans of Albania could provide
opportunities for a shift in emphasis from preparedness and response to the full range of DRR
actions. A better inclusion of women could also contribute a great deal to moving the focus from
traditional Disaster Management to Disaster Risk Reduction.
The reorganization of relevant research and monitoring institutions could bring them closer to DRR
users. Better regional cooperation in the hydro-meteorological sector and the development of an
integrated early warning system/technology would prove useful.
Albania’s Training of Trainers initiative offers the opportunity to develop DRR capacities further.
Moreover, even though volunteerism in general has diminished in recent years, mass survey results
or experiences of previous disasters suggest that most Albanians would be willing to volunteer in the
case of an emergency.
Threats
The real threat to DRR in Albania is the ongoing gap between legal provision obligations and
mechanisms for implementation. The heavy focus on disaster response and recovery situations, and
the almost indifferent attitude to disaster preparedness and prevention, should also be addressed. If
DDR needs are always approached in a centralized way, the neglect of communities’ own capacities
21
could lead to decreasing community capacities. Finally, the lack of governmental financing to ensure
the sustainable development of technical institutes might also impede the development of DRR.
Recommendations Endorsed by the National Policy Dialogue
Based on the detailed analysis conducted in the course of development of preliminary findings of the
draft Needs Assessment report, the following recommendations have been suggested for discussion
and endorsement in the course of the DRR National Policy Dialogue in Albania.
The recommendations are aligned with the Hyogo Framework for Action, that is, its five priorities for
action 2005-2015, as follows:
1. Ensure that disaster risk reduction is a national and a local priority with a strong institutional
basis for implementation

To improve and strengthen national and local government mechanisms to institutionalise
lessons learned from previous disasters and incorporate them into DRR policy, planning and
programming. Previous experiences of disasters and the response to them reveal and good
knowledge of the disaster potential across the population and establish addressing disaster
risk as a national priority. Capturing these experiences and using them to guide future DRR
policy, planning and programming is an important step in ensuring that DRR is evidencebased and builds on the foundations of existing knowledge. Such mechanisms will help to
promote and support dialogue, the exchange of information and coordination among
relevant agencies and institutions at all levels with the aim of fostering a unified approach
towards DRR.

To establish a National Platform for Disaster Risk Reduction. To further support the
Government of Albania’s existing and ongoing programme of disaster risk management, the
establishment of a National Platform is proposed to strengthen the profile of DRR and to
ensure that debate across all levels of government, technical agencies such as the hydrometeorological, meteorological and the seismological services, civil society, nongovernmental organisations and the private sector is ongoing and contributes actively to
policy-making and planning. The National Platform will allow for the engagement of all
major practitioners and technical specialists as well as representatives of communities and
those affected. It will also promote awareness and coordination among the relevant sectors,
and ultimately support the linking of such awareness and coordination to national planning,
budgeting and implementation of DRR activities.
2.
Identify, assess and monitor disaster risks and enhance early warning

To establish and invest in fully operational 24/7 hydro-meteorological services (technical and
human resources) as well as in the seismological sector to support risk assessment and early
warning systems and promote operational monitoring, warning, forecasting and mapping of
meteorological, hydrological and seismological hazards. This will build on the existing
Disaster Risk Assessment and the Vulnerability and Capacity Assessment undertaken with
support from the ARC. It is critical to perform comparative analysis of the existing
institutional and legislative arrangements for meteorological, hydrological and seismological
22
services, upgrade and modernise hydro-meteorological and seismological observation
networks, data management and forecasting systems and provide sustainable
organisational, human and technical resources to maintain and operate them. It is also
necessary to strengthen the early warning capacity with a multi-hazard approach and
enhanced cooperation with the Ministry of Interior, General Directorate of Civil Emergencies
and other key stakeholders and the National Civil Emergencies Plan, to include contributions
by the hydro-meteorological and seismological services.

To create appropriate mechanisms to increase coordination between the three
meteorological organisations.
With three organisations responsible for delivering
meteorological services in Albania (Institute of Environment, Water and Energy (INEWE);
Albanian Air Force Meteorological Service (MWFS); and, Tirana International Airport
Meteorological Service) there is a need to develop an appropriate framework with the legal
basis to ensure that roles and responsibilities in DRR are clearly defined.

To integrate policy, planning and programming in adaptation to climate change with DRR
strategy. The frequency and magnitude of hydrological and meteorological hazards has the
potential to increase due to climate change. It is critical to invest in local scale climate
studies in order to promote adaptation to climate change and to ensure that climate change
adaptation and DRR are integrated into one programme coordinated through the
Directorate for Civil Emergencies and the hydro-meteorological service.
3. Use knowledge, innovation and education to build a culture of safety and resilience at all levels
4.

To integrate DRR into the education system in Albania at all levels – primary, secondary,
university. Building on existing levels of awareness and expanding understanding to
incorporate the future threats from climate change and other hazards, as well as new
development, it is recommended that the Ministry of Education examines the potential for
integrating DRR as a part of national curricula at all levels, particularly in those areas showing
the highest levels of risk. In addition, universities and other tertiary education institutions
should be encouraged to establish research programmes encompassing different disaster
risks, the results of which should have a natural outlet through the National Platform

To establish a National Training Centre for DRR and Civil Protection practitioners and
community members, using the existing National Fire Brigade Training Centre as a
foundation. The most challenging issue is the building (or, at least, the consolidation) of the
culture of safety and resilience. This requires ongoing, continuous activities aimed at
increasing community capacities, regular integration of DRR into (particularly local)
development plans, training activities and simulation exercises for all levels, and, most
importantly, greater potential for creating the potential for the development of the capacity
of women as powerful agents of the transmission of the culture of safety and resilience to
the younger generation. The establishment of a National Training Centre for DRR would
support this ambitious agenda and assist the process of strengthening capacities within the
many stakeholders.
Reduce the underlying risk factors
23

To systematically integrate measures aimed at reducing disaster risks into policies, plans and
programmes for sustainable development and poverty reduction.

Supported through bilateral, regional and international cooperation and partnerships,
sustainable development, poverty reduction, good governance and disaster risk reduction
are mutually compatible objectives and strategies, and in order to meet the challenges
ahead, accelerated efforts must be made to mainstream and integrate disaster risk
reduction into development and governmental and sectoral strategies. Furthermore, efforts
must be made to build the necessary capacities at all levels of institutional organization in
Albania to manage and reduce risk. Such harmonization of mutually compatible objectives
can help to counter the negative effects of increased population, unsustainable
development practices, degradation of natural resources, the increasing exposure of the
poor to disaster risks, ineffective forecasting, defective environmental control measures,
inadequate capacity development and lack of appropriate market mechanisms, all of which
are amplified if disaster risk is not addressed effectively as an integral component of the
implementation of development.

To support the development of studies and research around the reduction of specific risk
factors that affect Albania. Although the major hazards that affect Albania are well known,
far less is known about the detailed effects of these hazards, the vulnerabilities that are
constructed in the face of these hazards and the capacities that are necessary to address
them. Again, through the auspices of the National Platform for DRR, the results of studies
and research can be examined and recommended for inclusion in development planning.

In the context of reducing overall risks, and with consideration for increasing climate
associated, seismic and geological associated risks, to develop national capacities for climate
(hydrological and meteorological) and geological (including seismological) services to
support medium and long-term sectoral planing, as a critical aspect of disaster risk
reduction. Enhanced investments are needed in climate data rescue, climate and geological
modeling, forecasting and analysis to support sectoral planning in at-risk sectors.
Development of these capacities would require a strong collaboration and coordination
across many ministeries and with the meteorological, hydrological and geological services, as
well as enhanced regional cooperation in this area with other South East European and EU
countries.

To improve networking with international organisations/institutions present in the region
and to promote the increased involvement of such organisations in the strengthening of DRR
in Albania.

To enhance regional and international cooperation for the purpose of exchanging
observation data, knowledge, technology and expertise regarding DRR, to share research
findings, lessons learnt and best practice, participation in joint trainings and workshops all of
which would contribute to enhancing the ability of Government of Albania to strengthen its
DRR programme, raise overall awareness and improve capacity development measures.
24
5. Strengthen disaster preparedness for effective response at all levels

To strengthen disaster preparedness for effective emergency response at all levels and to
promote disaster prevention. First, ensure that emergency response plans are targeted to
the individual needs of the vulnerable communities, authorities and emergency responders.
Second, establish guidelines for systematic development of contingency plans at all levels
that are backed by the requisite human, material and funding resources. Lastly, harmonise
standard operating procedures governing response to emergencies and standardize
terminology and capacity development taking into account roles and responsibilities in
emergency response.

To strengthen awareness about the importance of preparedness. Promote the engagement
of the media in order to stimulate a culture of preparedness and strong community
involvement through sustained public education campaigns and public consultations at all
levels of society.

To increase the involvement of the private sector in activities aimed at DRR with special
emphasis placed on insurance companies for the purpose of building on achievements
already made in promoting public private partnerships (PPP) to better engage the private
sector in DRR activities. This can be done by encouraging the private sector to place greater
emphasis on and allocate more resources to pre-disaster activities, such as risk assessments
and early warning systems and through the promotion of the development of financial risksharing mechanisms, particularly insurance and reinsurance against disasters.

To strengthen regional and international links to support more effective fire risk
preparedness and prevention. During the last two decades the occurrence of forest fires in
Albania and across the region as a whole has increased in number and also in the size of the
area affected, the main causes being human negligence and pasture burning. Preparedness
to reduce forest fire impacts includes the creation of coordination mechanisms between the
forestry administration, local authorities, hydro-meteorological services and the population,
as well as civil emergency authorities (particularly fire fighters). Regional cooperation in
addressing the fire risk should be strongly promoted as there is an increasing fire risk
throughout the region. Existing regional cooperation can serve as a good basis for such
developments.

To increase the use of simulation exercises (including table-top exercises) as a regular
feature of emergency response and preparedness training. Increasing and cumulative
experience of disasters allows for the understanding and lessons learned to be used in
practising response and preparedness procedures through all types of simulation exercises
either in field situations or the classroom.
25
Bibliography

Natural Risks Assessment of Albania

Civil Emergency Law

National Plan for Civil Emergencies

Albania Disaster Risk Mitigation and Adaptation Project of World Bank

Law on Albania State Police

Law on Urban Planning

Law on Albanian Red Cross

ARC Report on Vulnerability and Capacity Assessment

Albania’s Second National Communication to the Conference of Parties under the United
Nations Framework Convention on Climate Change
26
Annex 1: South East Europe Disaster Risk Management Initiative
In 2007, the World Bank, together with European National Platforms for DRR and HFA Focal Points
and in partnership with the World Meteorological Organisation (WMO) and others, initiated the
South East Europe Disaster Risk Management Initiative (SEEDRMI), including the development and
upgrading of hydro-meteorological information and the flood forecasting system for the Sava River
Basin. Also in 2007 the World Bank, the WMO and the United Nations Development Programme
(UNDP), with support from the International Strategy for Disaster Risk Reduction (UNISDR)
Secretariat, initiated the South Eastern Europe Disaster Risk Mitigation and Adaptation Programme
(SEEDRMAP). This programme is aimed at the development and/or strengthening of national
capacities in this region in line with three components: (i) disaster risk management, institutional
capacities and governance; (ii) hydrometeorological services; and, (iii) financial risk transfer
mechanisms to assist countries in reducing risks associated with natural hazards. Beneficiary
countries of this initiative include Albania, Bosnia and Herzegovina, Bulgaria, Croatia, the Former
Yugoslav Republic of Macedonia, Moldova, Montenegro, Romania, Serbia, Kosovo (as defined by
UNSCR 1244/99), Slovenia and Turkey. During the first phase of the programme, fact finding surveys
and desk studies were performed in order to obtain the information required for the development of
relevant projects; the results of these analyses have been published in a number of reports.18 Based
on these results and consultations with the countries, WMO and UNDP developed, in parallel, two
complementary proposals that were funded by the European Commission (EC) Directorate General
for Enlargement.19 These EU funded projects, initiated in March 2009, cover Albania, Bosnia and
Herzegovina, Croatia, the Former Yugoslav Republic of Macedonia, Montenegro, Serbia, Kosovo (as
defined by UNSCR 1244/99) and Turkey.
The overall objective of the UNDP Proposal Activity 1 Regional Programme on Disaster Risk
Reduction in South East Europe is to reduce the risk of disasters associated with natural hazards in
the Western Balkans and Turkey, in line with the Hyogo Framework for Action, by building the
capacity of national and local authorities to promote a coordinated approach to DRR. The specific
objective is to increase the level of regional DRR cooperation in South East Europe and to promote
the harmonisation of Disaster Risk Reduction methodologies, plans and strategies in order to pave
the way for the eventual preparation of a harmonised and mutually accepted regional Disaster Risk
Reduction strategy.
The activities of the UNDP activity place special emphasis on strengthening the existing DRR
capacities of the eight IPA beneficiaries, particularly the enhancement of the Disaster Preparedness
and Prevention Initiative for South East Europe (DPPI SEE). The UNDP project/programme is largely
funded by the European Union, with a ten percent contribution from the UNDP Bureau for Crisis
Prevention and Recovery (UNDP BCPR) and the UNDP Regional Bureau for Europe and the CIS
(RBEC).
18
Risk Assessment for South Eastern Europe Desk Study Review, 2008; Strengthening the Hydrometeorological Services in South Eastern Europe, 2008; Mitigating the Adverse Financial Effects of
Natural Hazards on the Economies of South Eastern Europe, 2008; The Structure, Role and Mandate
of Civil Protection in Disaster Risk Reduction for South Eastern Europe, 2008.
19 Activity 1: Building Capacity in Disaster Risk Reduction through Regional Cooperation and
Collaboration in South East Europe (UNDP); Activity 2: Regional Cooperation in South Eastern
Europe for Meteorological, Hydrological and Climate Date Management and Exchange to Support
Disaster Risk Reduction (WMO).
27
The overall objective of the WMO Proposal Activity 2 “Regional Cooperation in South Eastern Europe
for Meteorological, Hydrological and Climate Data Management and Exchange to Support Disaster
Risk Reduction” Project is to reduce the vulnerability of South Eastern Europe to natural hazards and
address the loss of life, property and economic productivity caused by extreme weather and other
natural hazards. The specific objectives are two-fold:
Improve the basic systems for hydrometeorological forecasting and data sharing that underpins the
early warning systems for weather and climate related hazards and extreme events; and,
Improve the capacity (technical, human and institutional) of the national meteorological and
hydrological services (NMHS) in SEE to acquire, assimilate, exchange and disseminate data and
information on a range of hydrometeorological hazards and extreme weather and climatic events.
This is a first step towards an effective risk management system involving risk assessment, risk
reduction, and risk transfer to reduce the impact of natural hazards on lives and livelihoods. This
process will include all stakeholders with Disaster Risk Reduction mandates and competencies.
28
Annex 2 - List of Respondents
Phone
number
Status
1.1
General
Directorate of
Civil Emergencies
Director of Civil
Emergency
Planning and
Coordination
Sali
Kelmendi
+355 69
4109083
1.2
General
Directorate of
Civil Emergencies
Head of Civil
Emergency
Planning Sector
Bujar
Kapllani
+ 355 68
2061258
2
Ministry of Public
Works and
Transportation
Civil Emergency
Designated
Officer
Vasil
Premçi
+ 355 68
2424800
3
Ministry of
Health
Gazmend
Bejtja
+ 355 69
2033471
3.1
Ministry of
Health
Thanas
Bello
+ 355 69
2170972
4
Ministry of
Economy, Trade
and Energy
Thoma
Rush
+ 355 68
2638971
5
Tirana
Municipality
Civil Emergency
Designated
Officer
Ruzhdi
Baxhaku
+ 355 69
2066065
6
WHO Office in
Albania
Emergency
Programme
Coordinator
Adrian
Xinxo
+ 355 69
2089174
7
Albanian Red
Cross
Secretary
General
Zamir
Muça
7.1
Albanian Red
Cross
Disaster
Programme
Coordinator
Fatos
Xhengo
8
Albanian Air
Force
Deputy Chief of
meteorological
Service
Gentian
Bregu
+ 355 69
2150678
9
World Bank Local
office in Albania
Al-DRMAP
Manager
Drita
Dade
+ 355 4
2240540
Tirana
Politechnic
Deprtment of
Agim
Selenica
+ 355 69
10
Civil Emergency
Designated
Officer
First name
Last
name
Institution
29
e-mail address
University,
Fakulty of Civil
Engineering
11
12
14
Ministry of
Education
Institute of
Environment,
Water and
Energy
Ministry of
Agriculture, Food
and Consumer
Protection
Hydrotechnic
.2433879
Civil Emergency
Designated
officer
Director
Marenglen
Gjonaj
Head of Water
Management
Sector
Niko
Kurila
30
+ 355 68
2011051
nikokurila@yahoo.com
Annex 3: Hazard Maps
KUKES
SHKODER
LEZHE
DIBER
DURRES
TIRANE
ELBASAN
FIER
BERAT
KORCE
VLORE
GJIROKASTER
PREFECTURE (12)
DISTRICT (36)
COMMUNE AND
MUNICIPALITY (374)
Administrative Division of Albania
31
BAJRAM
BAJRAM
BAJRAM
CURRI
CURRI
BAJRAM
BAJRAM
BAJRAMCURRI
CURRI
CURRI
CURRI
SHKODRA
SHKODRA
SHKODRA
SHKODRA
SHKODRA
SHKODRA
KUKES
KUKES
KUKES
KUKES
KUKES
KUKES
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
BULQIZA
BULQIZA
BULQIZA
BULQIZA
BULQIZA
BULQIZA
TIRANA
TIRANA
DURRES
DURRES
DURRES
DURRES
DURRES
DURRES
ELBASAN
ELBASAN
ELBASAN
ELBASAN
ELBASAN
ELBASAN
POGRADEC
POGRADEC
POGRADEC
POGRADEC
POGRADEC
POGRADEC
FIER
FIER
FIER
FIER
FIER
FIER
BERAT
BERAT
BERAT
BERAT
BERAT
BERAT
KORCA
KORCA
KORCA
KORCA
KORCA
KORCA
VLORA
VLORA
VLORA
VLORA
VLORA
VLORA
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
Rivers
Lakes
SARANDA
SARANDA
SARANDA
SARANDA
SARANDA
SARANDA
Flooded Area
West Plain 100 Years Return
Period Flood Risk Map
32
BAJRAM
BAJRAM
BAJRAM
CURRI
CURRI
BAJRAM
BAJRAM
BAJRAMCURRI
CURRI
CURRI
CURRI
SHKODRA
SHKODRA
SHKODRA
SHKODRA
SHKODRA
SHKODRA
KUKES
KUKES
KUKES
KUKES
KUKES
KUKES
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
BULQIZA
BULQIZA
BULQIZA
BULQIZA
BULQIZA
BULQIZA
TIRANA
TIRANA
DURRES
DURRES
DURRES
DURRES
DURRES
DURRES
ELBASAN
ELBASAN
ELBASAN
ELBASAN
ELBASAN
ELBASAN
POGRADEC
POGRADEC
POGRADEC
POGRADEC
POGRADEC
POGRADEC
FIER
FIER
FIER
FIER
FIER
FIER
BERAT
BERAT
BERAT
BERAT
BERAT
BERAT
KORCA
KORCA
KORCA
KORCA
KORCA
KORCA
VLORA
VLORA
VLORA
VLORA
VLORA
VLORA
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
RP - 2,
AP=50%
RP - 5,
AP=20%
RP -10,
AP=10%
RP -20,
AP=5%
RP>20,
AP<5%
SARANDA
SARANDA
SARANDA
SARANDA
SARANDA
SARANDA
Road
Type
Nationa
l
Regiona
l
30 cm Snow Deposit Road Network Blocking Risk
33
Forest Fire Hazard Map
Forest fire hazard map
34
Seismic
43.0
Map of PGA, 475-years return period
Attenuation - Sabetta&Pugliese, Stiff soil
(Mean of the 5 models)
[% of Country
Total]
Hazard Map of PGA, 475 years of returned period
42.8
42.6
42.4
42.2
42.0
41.8
0.32
41.6
0.30
0.28
41.4
0.25
0.22
41.2
0.20
0.17
41.0
0.15
40.8
0.13
0.10
40.6
0.08
0.05
40.4
0.03
40.2
40.0
0.00
Fig. 19
Annual Frequency of Diarrhoeal Diseases By Districts
39.8
39.6
39.4
39.2
39.0
18.5
19.0
19.5
20.0
35
20.5
21.0
21.5
BAJRAM
BAJRAM
BAJRAMCURRI
CURRI
CURRI
CURRI
BAJRAM
BAJRAM
BAJRAM
CURRI
SHKODRA
SHKODRA
SHKODRA
SHKODRA
SHKODRA
SHKODRA
KUKES
KUKES
KUKES
KUKES
KUKES
KUKES
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
PESHKOPI
BULQIZA
BULQIZA
BULQIZA
BULQIZA
BULQIZA
BULQIZA
DURRES
DURRES
DURRES
DURRES
DURRES
DURRES
TIRANA
TIRANA
ELBASAN
ELBASAN
ELBASAN
ELBASAN
ELBASAN
ELBASAN
POGRADEC
POGRADEC
POGRADEC
POGRADEC
POGRADEC
POGRADEC
FIER
FIER
FIER
FIER
FIER
FIER
BERAT
BERAT
BERAT
BERAT
BERAT
BERAT
KORCA
KORCA
KORCA
KORCA
KORCA
KORCA
VLORA
VLORA
VLORA
VLORA
VLORA
VLORA
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
GIROKASTRO
G –
Limestone
I –
Magmatic
F –
Rocks
Flysch
Gi –
Gypsum
SARANDA
SARANDA
SARANDA
SARANDA
SARANDA
SARANDA
Stability Shading
M –
Molasses
Dh –
Cohesive
Re – Cohesionless
Soils
Rocks
Stabl
e
Relatively
Stable
Unstabl
e
Geotechnical Map of Albania
36