United Nations Development Programme
Government of Mozambique
National Disaster Management Institute
Strengthening Local Risk Management &
Mainstreaming Disaster Risk Reduction
Annual Report
2011
Prepared For
Bureau for Crisis Prevention and Recovery
Feb 2012
1
Contents
Executive Summary ............................................................................................ 4
Situational Background ...................................................................................... 7
Evaluation of Progress during the Reporting Period ...................................... 8
Gender Mainstreaming ..................................................................................... 25
Risk Management ............................................................................................. 25
Partnerships ...................................................................................................... 26
Challenges, Responses and Lessons Learned .............................................. 26
Conclusions and Ways Forward...................................................................... 29
Annexes (in separate file) ................................................................................ 31
2
Acronyms
ADPC- Asian Disaster Preparedness Center
BCPR – Bureau for Crisis Prevention and Recovery
CENOE - National Emergency Operations Centre
CERUM – Centre for multiple resources use ( Centros de Recursos de Uso Múltiplo)
COE – Emergency Operations Centre
CPD- Country Programme Document (UNDP)
CTGC - Conselho Técnico de Gestão das Calamidades (technical council for disaster
management)
DRM - Disaster Risk Management
DRR - Disaster Risk Reduction
EWS - Early Warning System
FAO - Food and Agriculture Organization
GRIP- Global Risk identification Programme
HEPIA- La Haute école du paysage ,d'ingénierie et d'architecture
HCTWG – Humanitarian Country team working group
HFA - Hyogo Framework for Action
INGC - Instituto Nacional de Gestão de Calamidades (National disaster management
institute)
JP- Joint Programme
PARPA-Action Plan for the Reduction of Absolute Poverty
PARP- Action Plan for the reduction of Poverty (from 2011)
PMT- Programme Management Team
SADC- Southern African Development Community
SIDA- Swedish International Development Agency
SMHI- Swedish Meteorological and Hydrological Institute
UEM – University of Eduardo Mondlane
UNDAF- United Nations Development Assistance Framework
UNIFEM- United Nations Development Fund for Women
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Executive Summary
The project on “Strengthening Local Risk Management and Mainstreaming Disaster Risk
Reduction in Mozambique” represented the UNDP’s contribution to the UN Joint
Programme for “Strengthening Disaster Risk Reduction and Emergency Preparedness”. It
was approved by the UN and the Government of Mozambique, under the “Delivering as
One” framework. This joint programme was implemented by UNDP, UNICEF, WFP,
UNFPA, WHO, FAO, IOM, UN-HABITAT and UNIFEM with UNDP as the lead agency.
Milestones in 2011
 Progress made on the elaboration of the Disaster Management Act, with
technical inputs provided by all JP agencies and by CTGC. Approval of the Act
pending with council of ministers.
 Early recovery strategy document finalized, led by UNDP. UNDP leadership also
on drafting of a national resettlement policy, a process which was coordinated
by GACOR – the office for resettlement and reconstruction - within INGC.
 Successful study tours realized in line with South-South principles; Visit of INGC
delegation to Vietnam; Ghana delegation hosted in Mozambique.
 Progress towards finalization of the Licungo river basin early warning system was
realized with river level gauges in place and local risk management committees
trained and equipped. Communications equipment procured to facilitate the
work of these committees.
 Tsunami early warning system put in place and awareness raising campaign
completed.
 Training completed with local communities in resettlement area of Goli Goli,
Mutarara.
The training topics included
leadership skills, pricing and
entrepreneurship, and formation of community associations. An opportunity
was taken to form a community association for production and sale of agroproducts and craftwork.
 National Disaster Observatory- Training manual finalized on recording disaster
losses and training also conducted in north, central and southern regions of the
country.
 National Risk Assessment- Hazard profile completed for flood hazards
 Seismic Risk assessment for Maputo city completed.
4

E –library available online with information on risk assessment studies etc.
Notable Impacts in 2011
 At provincial and district level, the project helped to increase awareness and
understanding of DRR issues and planning. Especially important was the level of
awareness among provincial and district level of authorities on the integration of
DRR concerns into provincial and district planning processes. In this way, the
project made a significant contribution to ensuring that DRR issues and risks are
fully owned by local authorities.
 The strength of the government emergency preparedness and disaster
management coordination capacities (through the CTGC) was evidenced by the
decision of the UN Humanitarian Country Team (HCT) clusters to integrate more
fully into the government structures with a joint contingency plan prepared for
the first time in 2011.
 The level of engagement of the local committees for disaster management is
high, as evidenced by community participation in simulation exercises, and the
fact that the mortality rate from the 2011 floods was zero, compared with higher
mortality rates in previous years, when floods were of the same magnitude.
 The study tour to Vietnam, involving 3 officials from INGC, resulted in renewed
interest at a technical level in the ‘living with floods’ approach, and adapting
practices from Vietnam in the Mekong delta region to Mozambique. This SouthSouth approach was particularly meaningful for enhanced knowledge
management initiatives.
 Community people from the resettlement areas in Goli-Goli, with experience in
craft making and agro-processing formed a community association for the sale of
products from these activities, subsequent to a training course on small business
and entrepreneurship. This helped people affected by disasters establish their
economic activities, thereby facilitating the early recovery process for
sustainable development.
 Civil society ownership of HFA monitoring was strengthened through
participation of the G20 in monitoring of DRR progress at local level (association
for local NGOs in Mozambique), with support from UNISDR and UNDP.
 Early warning systems in the country were strengthened. In particular, flood
early warning in the Licungo river basin, in Zambezia Province, and tsunami early
warning for communities living in risk areas of Pemba, Beira and Nacala.
 Availability and accessibility of risk information was increased through the
launching of national e-library containing information on studies, reports,
institutions and projects relevant to disaster risk assessment.
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Risks/Challenges in 2011
 Flood Red alert declared in the first quarter of 2011 meant that much attention
and time of government staff was diverted to the flood preparedness and
response. Annual project activities thus delayed in starting, with the first
advance of funds for the 2011 activities requested by INGC only in May. This had
a subsequent effect on activities planned for the year.
 During this red alert period, gaps in information management capacity within
INGC and the CTGC members at both central and provincial level were
highlighted. On this basis, it was agreed to recruit a specialist in Information
Management to consolidate the work of previous information management
initiatives and develop a roadmap for enhancing the information management
system.
 Human Resource capacity was a severe constraint in 2011. In 2011, the project
suffered from high staff turnover, i.e. UNDP programme associate and the
national DRR advisor left in November. Additionally, the head of unit position
was vacant for the last quarter. The fact that the main project funding (BCPR)
was not guaranteed beyond 2011 was a major factor in this high turnover, with
subsequent effects on project implementation. Additionally, delayed recruitment
processes for a financial advisor for INGC and a national technical advisor to
work with DARIDAS also affected implementation of activities.
 Slow procurement processes within UNDP and Government also delayed a
purchase of equipment for project activities, which impeded the achievement of
the desired results.
 Progress on the GRIP activities was slow in the first half of 2011, but more results
(see below) were achieved in the second half of the year. This was a result of
improved supervision and leadership from INGC on these activities in the second
half of the year.
 Being the final year of the original UNDP supported project on disaster risk
reduction, and the final year of the UNDAF and CPD, much time was devoted on
the part of the UNDP team to prepare the new project concept note, in line with
the UNDAF.
6
Situational Background
Taking into consideration that 25% of
Mozambique’s population faces a high
mortality risk from natural hazards, and that it
ranks as the second most geographically
exposed country in Africa, the overall goal of
the project was to strengthen national
capacities at all levels to reduce the risk of
disasters and mitigate their impacts on the
vulnerable population in the country. To
achieve this, the project built on the
Government’s National Master Plan for
Disaster Risk Reduction which aims at
strengthening institutional frameworks and
systems for disaster preparedness, mitigation,
response and rehabilitation at all levels within
an overall vulnerability reduction perspective.
The project served to strengthen the capacity of the National Disaster Management
Institute (INGC) at central and provincial and district levels, in the areas of institutional
development and the information and communication management system. It has
ensured a coordinated focus on risk reduction among different ministries, development
partners and NGOs, especially through the Technical Council for Disaster Management
(CTGC).
The project was articulated along the following outputs:
Output 1:
Disaster risk and vulnerability reduction mainstreamed in national development plans
and programmes, including development of policy and norms.
Output Target 1.1:
Policy/Norms developed for humanitarian response, DRR and vulnerability
reduction.
Output Target 1.2:
DRR and vulnerability reduction mainstreamed in national development plans
and programmes.
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Output 2:
Government and Civil Society capacities for disaster risk reduction strengthened at
central, provincial and local levels.
Output Target 2.1:
Central, provincial and district level institutions strengthened for DRR,
contingency planning and emergency preparedness and response.
Output Target 2.2:
Inter-sectoral co-ordination capacity for DRR and emergency preparedness
strengthened at central, provincial and district levels.
Output Target 2.3:
Participatory projects implemented to engage communities in disaster risk and
vulnerability reduction and emergency preparedness.
Output 3:
National Information System including Early Warning System, inter-sectoral information
sharing and knowledge management, set up for disaster risk reduction.
Output Target 3.1:
Early Warning System (EWS) strengthened for natural hazards at central,
provincial and local levels.
Output Target 3.2:
Information sharing and knowledge management strengthened between the
different sectors for preparedness, contingency planning, response and early
recovery.
In addition to these outcomes and outputs elaborated in the initial Project Document,
the following additional output was agreed, with financial support received from
AusAid.
Output 4: Livelihood opportunities in resettlement areas improved.
Evaluation of Progress during the Reporting Period
Output 1: Disaster risk and vulnerability reduction mainstreamed in national
development plans and programmes, including development of policy and norms.
8
Output Target 1.1: Policy/Norms developed for humanitarian response, DRR and
vulnerability reduction.
Milestones and Progress
Development of the Disaster Management legislation continued to be a focus of
attention in 2011 with inputs from UNDP and other agencies to the law. The UNDP
Chief Technical Advisor also held discussions with INGC in relation to the dissemination
of the Act. The Act is currently pending approval of the council of ministers.
A draft of a resettlement strategy was produced, with support from UNDP and a PhD
student from the UK. The strategy, covering disaster related resettlement as well as
development related to resettlement is being championed by INGC, and was presented
to a small group of stakeholders for initial inputs. At a more advanced stage, the
strategy will be presented to the CTGC. An early recovery framework incorporating DRR
considerations was produced in the aftermath of the floods of early 2011, with inputs
from all sectors.
Inputs to new PARP (2011-2014) and UNDAF (2012-2014) documents were made
ensuring that disaster risk reduction concerns are addressed both in the national
context, and in the context of UN support to Mozambique. DRR indicators were also
included in the 2012 PES (Economic and Social Plan).
HFA monitoring report was produced and the English version made available online. An
extended version was also produced in Portuguese, for dissemination to national
stakeholders. Integral to this process was an initiative undertaken with support from
UNISDR to report on progress of DRR initiatives at the community level. A dialogue took
place in April in Buzi, Sofala province with the participation of the local NGO umbrella
body, the G20, where DRR progress at local level was discussed and evaluated according
to the HFA indicators.
Results/Impacts
The work done under this output ensured that Disaster Risk and Vulnerability reduction
measures were reflected in national policies, strategies and plans. This in turn meant
that the central role of local risk reduction and emergency preparedness was
maintained as a priority area of the system of Governance in Mozambique, both at
central and provincial level. Development of disaster management law ensures that a
legal framework exists for emergency preparedness and disaster risk reduction
interventions. UNDP was integral in ensuring that the draft legislation document
9
incorporated inputs from a wide range of stakeholders, including CTGC focal points, thus
supporting national ownership. It was also ensured that progress in DRR in
Mozambique, is being monitored and registered, down to community level.
Output Target 1.2: DRR mainstreamed in national development plans and programmes
Milestones and Progress
Based on similarity of hazard profiles and focus areas identified by INGC, Vietnam was
suggested as the location for a study tour. This was realized in August with participation
of 3 INGC officers, and the UNDP chief technical advisor. The aim of the study tour was
to allow INGC to benefit from the good practices of DRR in Vietnam. Good practices
deemed applicable in the Mozambique context will be integrated into development
plans and programmes. Feedback from participants was very positive, and the group
had the opportunity to view DRR interventions in Hanoi and suburbs as well as along the
Mekong delta region, in the south. The ‘living with floods’ approach was especially well
received by participants, and may pave the way for new national DRR interventions
based around this model. A ‘lessons learned’ report was produced and a summary of
findings was presented to the CTGC in November.
Meetings were held between UNDP and INGC to discuss the incorporation of DRR into
local development plans and training seminars were held to inform district
administrators and planners on the integration of DRR into district plans, with technical
support provided by chief technical advisor. For example, in June/July training took
place in Caia, Sofala, for district administrators and planners on integration of DRR into
provincial and district plans. Training on the same theme also took place in Vilankulos
for district planners in the Southern regions (Gaza, Inhambane, Maputo city and
province).
Results/Impacts
At provincial and district level, the
project helped to increase awareness
and understanding of DRR issues and
planning processes. Especially important
was the level of awareness among
provincial and district level of authorities
on the integration of DRR concerns into
provincial
and
district
planning
UNDP Chief Technical Advisor addressing
participants in training on integration of DRR into
district planning
10
processes. This serves to ensure that the issue of DRR at decentralized level is a priority
on the development agenda in Mozambique, thus, paving the way for effective
decentralization of DRR activities. UNDP has a comparative advantage in this area as a
result of the support provided to decentralization processes and frameworks in
Mozambique for many years.
The study tour served to generate discussion and ideas for the mainstreaming of DRR
into national plans and programmes. Especially important was the fact that high level
INGC technical officials had the opportunity to observe in action new approaches to
mainstreaming DRR into national policies and plans, in a country with similar hazard
profile to Mozambique.
Table 1: 2011 targets achieved, Output 1
Indicator
Frequency of meetings
for discussion of these
issues
(DRR
and
vulnerability reduction)
2011 Target
At least 2
meetings per
quarter
Number
of
meetings/seminars
held for discussion and
dissemination of the
disaster management
act.
Meeting
held
to
present
national
Disaster Management
Act to parliament
Number
of
policy
documents
which
include DRR indicators
(e.g. PRSP, UNDAF)
Number
of
district/decentralized
At least 2
Achieved
Achieved. During the flood Red alert
period from Jan-March CTGC meetings
took place at least weekly and outside
of this period meetings took place
regularly. CTGC focal points also took
part in seminar on risk assessment in
June.
Achieved. Meetings took place at the
level of the UN JP partners, and at the
CTGC level.
At least 1 Partially achieved. The Act is currently
meeting held
pending approval of the council of
ministers.
At least
documents
At least 3
6 Partially achieved; 3 documents
produced (UNDAF, PARP 2011-2014,
PES 2012)
Partially
achieved.
District
administrators and technical staff
11
plans
incorporate
considerations
which
DRR
Number of lessons At least 3
learned from DRR from
other
regions
incorporated
into
national
policies/development
plans
Early
Recovery Approval
Document Developed
were equipped with additional
knowledge and information on
integration of DRR and Climate
Change Adaptation into district
planning processes.
Partially achieved: Lessons learned
report from Vietnam produced and
discussed at meeting of CTGC, but
results not yet integrated into national
policies and plans.
Achieved: Final version approved by
HCT and CTGC in 2011.
Output 2:
Government and Civil Society capacities for disaster risk reduction strengthened at
central, provincial and local levels.
Output Target 2.1: Central, provincial and district level institutions strengthened for
disaster risk reduction, contingency planning, and emergency preparedness and
response.
Milestones and Progress
Review was carried out of the DPM (Department of Planning and Mitigation) action plan
to ensure that the plan responds to current and future national needs including central,
provincial, district and community levels. A director of training has also been appointed
by INGC, and the CTA worked closely with him over the reporting period to ensure
quality and relevance of training activities and material.
Representatives from INGC (sponsored by UNDP) attended the global platform for
Disaster Risk Reduction in Geneva in May. The delegation included the director general
of INGC, and the director of the national centre for emergency operations.
Various training exercises were supported to increase DRR capacity throughout the
12
country. With UNDP support, financial and technical (provided by the chief technical
advisor), INGC conducted training in DRR for its staff and local government staff,
thereby increasing awareness of DRR actions and benefits. Aside from the training
activities already mentioned under output 1 above, provincial permanent secretaries
participated in training on concepts of DRR and Climate Change Adaptation. INGC
central level (Prevention and Mitigation Department) staff also conducted training for
provincial heads of INGC technical departments, in Nacala in December. Heads of
administrative posts were also trained in DRR concepts in June (Caia, Vilankulos) and
training for emergency preparedness was also conducted with local risk management
committees.
In the southern region of the country, 20 primary school teachers, representing 20
primary schools in the provinces of Maputo City, Maputo, Inhambane and Gaza also
attended a 5 day training workshop, led by INGC on integration of DRR in school lessons.
This training introduced key concepts of natural hazards, climate change, and disaster
risk reduction, and included educational videos and sessions with specific examples of
integration of concepts into school lessons. INGC used the opportunity to also test a
manual they had drafted for training teachers on DRR. In addition, an internal working
session for revision of the manual was organised by INGC, and attended by technical
staff. INGC also led a working group in discussions on formal integration of DRR into the
school curriculum. UN agencies and other partners including the ministry of education
and some NGOs (save the children, CARE) were also members of this working group.
Technical staff also benefitted from participating in various international workshops:
ADPC 7th International Course on GIS for Disaster Risk Management; ADPC (CRM03)
international course on Climate Change and climate risk management in a changing
urban environment; and SIDA/SMHI organized seminar on Climate Change- Mitigation
and Adaptation.
The national simulation exercise was held in the Buzi river basin in November 2011.
During training of radio operators in advance of the exercise, radio operation guides,
produced by UNDP in 2010 under an ECHO sponsored knowledge management project,
were used.
Results/Impacts
One important development over this reporting period was the decision of the UN
Humanitarian Country Team to be integrated more fully into the government structures
13
with the preparation of a joint contingency plan for the first time. This indicates the high
level of appreciation among the development partners of the strengthened capacity of
INGC and the national focal points of the CTGC in emergency preparedness.
Additionally, INGC benefitted from training activities, and thus the institution itself was
strengthened to act as the key trainer in DRR for other sectors. Especially important to
mention is the way in which INGC has taken on the role of advocating and training for
integration of DRR and Climate Change into provincial and district level planning. On the
initiative of the department for prevention and mitigation within INGC, provincial and
district level planners were better equipped to integrate DRR and CCA in district and
provincial level planning processes. This work will be further strengthened in the context
of the new UNDP DRR/CCA project which envisages a focus on the three provinces Gaza,
Nampula and Cabo Delgado, to capitalise on UNDP’s strategic advantage in those
provinces, as a result of the support to decentralisation.
At community level, through INGC, refresher training carried out for local committees,
already formed in previous years served to ensure community capacity for emergency
preparedness is maintained. Given the voluntary nature of these committees, these
refresher trainings were instrumental in generating renewed commitment among the
committee members to their role as primary responders in case of disaster occurrence,
and primary advocates of disaster risk reduction at the community level.
Output Target 2.2: Inter-sectoral co-ordination capacity for DRR and emergency
preparedness strengthened at central provincial and district level.
Milestones and Progress
UNDP staff played an active part in ensuring effective inter-sectoral coordination during
the flood red alert period at the beginning of 2011. Staff members acted as focal points
in government sectors of infrastructure sector (shelter), Social Sector (early recovery),
and Planning and Information sector (Information Management), and formed part of a
number of multi-sectoral teams who travelled to affected areas for needs assessments.
As such they offered advice and capacity building support on the ground to government
staff concerned with data collection etc.
Technical inputs were provided to CTGC meetings, and efforts were made to ensure
sectoral involvement in risk assessment training and processes. The presence of CTGC
14
focal points from various sectors in risk assessment training in the context of the GRIP
provided a valuable opportunity for technical knowledge exchange across sectors.
UNDP continuously advocated for the complete integration of HCT clusters into the
government emergency coordination structures, with positive results, including the joint
contingency planning exercise for the 2011/2012 rainy season, which took place in Q3
2011.
Results/Impacts
Inter-sectoral coordination for DRR and emergency preparedness was strengthened
over the period through the contingency planning processes and the realization of the
simulation exercise. This inter-sectoral coordination was evidenced through the
emergency preparedness and response phase in early 2011. Although gaps remain,
almost all of the relevant government ministries and institutions have active focal points
in the CTGC, and these focal points partake in contingency planning and simulation
exercises, and lead coordination when an emergency alert is declared. For example,
DNA (national directorate for waters) coordinates the infra-structure sector, and MPD
(Ministry for planning and development) coordinates the information sector. The
presence of CTGC focal points at training seminars on risk assessment and national
disaster observatory (under the GRIP- output 3), also helped to strengthen coordination
and promote cooperation between sectors.
Output Target 2.3: Participatory projects implemented to engage communities in
disaster risk and vulnerability reduction and emergency prepared strengthened at
central provincial and district level.
Milestones and Progress
A consultant conducted a study on native plants and fruits in Funhalouro, Massangena,
Chigubo and Mabote. The purpose was to establish an inventory of nutritional value and
uses, to assist local communities in food security and potential income generation
opportunities associated with these native plants and fruits.
15
Training in improved basketry techniques in Chigubo district, Gaza province was
completed in 3 communities in the district (Catine, Cubo and Saute), and meetings were
held with community leader to discuss the project. Processes were launched internally
in INGC for the realization of a
market study and small business
training.
UNDP continued to support capacity
building and equipping of local risk
management committees, with
refresher training of committees
completed in 60 districts, and 66
facilitators were trained. Kits were
also purchased for a total of 26
committees.
Results/Impacts
The level of engagement of the local
committees
for
disaster
management is high, and as a result
Products from Chigubo project
preparedness at community level is
strong, as evidenced by community participation in simulation exercises, and the fact
that the mortality rate from the 2011 floods was zero, compared with higher mortality
rates in previous years, when floods were of the same magnitude. Although,
vulnerability reduction projects with income generation components in Chigubo district
had a slow start, communities in the area improved their skills in the production of high
quality basketry, and were producing a range of different products (baskets, bowls etc)
for sale in local markets.
16
Table 2: 2011 targets achieved, Output 2
Indicator
2011 Target
Number of tools/manuals At least 4
developed
Number of districts where At
least
local government staff districts.
attend training on DRR.
Achieved
Partially
achieved
(50%).
Manual for training of teachers
on DRR was revised. Manual for
training of trainers of local risk
management committees was
revised
and
ready
for
publishing.
50 Achieved.
Number of local risk 30
management committees
equipped with emergency
kits.
Partially
achieved.
26
committees equipped. Due to
increase
in
costs
of
material/equipment comprising
the kits, was only possible to
purchase this number with the
budget allocated.
Simulation
exercise
realized.
Number of new projects
initiated under DARIDAS.
Number of provincial level
CTGC meetings held
Number of Maputo level
CTGC meetings held
Annually
Achieved (Nov 2011)
At least 5
Achieved
At least 1 per Achieved
year
At least 1 every Achieved
quarter; weekly
in
emergency
period
Number of line ministry At least 20
Achieved
officials
trained
to
participate
in
CTGC
processes at national and
provincial level
Number of small grants At least 10
Not Achieved.
Terms
of
17
projects initiated by NGOs,
community groups
Number of artisan projects At
least
running in drought-prone communities
areas
reference were elaborated for a
coordinator to oversee this
grant process, but it was
subsequently decided that
given that it was the final year
of the cycle, there was no
longer time to award grants in
2011, and the criteria for grant
application, already elaborated
in collaboration with GEF Small
Grants Programme, and INGC,
would be used to support a
similar initiative under the new
project cycle.
4 Partially
achieved.
3
communities in Chigubo district
benefitted from training in
improved basketry techniques,
and produced prototypes under
the project. The project
however was not yet running a
profit at time of writing report.
Output 3:
National Information System including Early Warning System, inter-sectoral
information sharing and knowledge management, set up for disaster risk reduction.
Output Target 3.1: Early Warning System strengthened for natural hazards at central,
provincial and district level
Milestones and Progress
The Licungo early warning system project was implemented with the support of two
consultants contracted through Eduardo Mondlane University, and under the
supervision of the national directorate for prevention and mitigation of disasters (DPM).
By the end of 2011, community river level gauges were in place and being monitored,
and 6 committees were trained and equipped in 2 districts in the river basin (2 in
Mocuba district and 4 in Maganja Da Costa district). Communications equipment was
18
also procured to ensure effective and speedy communications of flood information
throughout the river basin. In addition, a number of hydrometric (5) and rain gauge
stations (1) were rehabilitated in the districts of Mocuba, Lugela, Gurue and Ile, in
collaboration with ARA-Sul (Regional Water Administration- Southern region).
Tsunami monitoring capability was improved at both INAM and INGC, with training and
installation of monitoring equipment in Maputo and in the CENOE in Nacala. Awareness
of Tsunami risk, emergency preparedness measures (warnings signs, evacuation
procedures etc) was increased due to awareness campaigns in the critical locations of
Nacala, Beira, and Pemba.
UNDP also provided for a mission to assess the state of communications equipment in
use in the Buzi basin flood early warning system. As a result of this, certain
communications equipment constraints were identified, and related equipment
procured and maintenance carried out.
INGC missions were also realized to monitor and to provide support to the emergency
operations centres in Manica and Tete provinces, in the areas of information
management, monitoring of hazard phenomena and IT support.
Mapping of historical cyclone occurrence was also completed by CENOE technical staff
for the districts of Moma, Angoche, and Mossuril.
Results/Impacts
As a result of this work discussed above, early warning systems were strengthened in
specific areas, for specific hazards. At
central level, tsunami monitoring
capabilities exist, both in INAM and in
INGC, and both in terms of monitoring,
and equipment. At municipal level
authorities in the areas targeted are
more aware of the risks faced and where
the high risk areas are. They are also
aware of evacuation routes in each urban
area of Pemba, Nacala, and Beira. This
information is also known at community
level, and communities are thus better Pupils attending a lecture/video on Tsunamis, Escola
Primaria Completa dos Pineiros, Beira
prepared to respond to the risk should it
19
occur.
Working on Renovation of river level gauges in Licungo River basin
In the Licungo basin, communities are trained and equipped to monitor river levels, and
to pass that relevant information on to other communities throughout the river basin,
providing early warning of river level increases to communities downstream.
Additionally communities are linked by radio to local institutions such as INAM and ARASul, so they can receive weather hazard warnings in time.
The installation of equipment and regular maintenance of communications is imperative
to ensure that early warning systems function. Activities realized throughout the year
addressed this need in specific areas (Buzi river basin, COEs in Manica and Tete).
Output Target 3.2: Information sharing and knowledge management strengthened
between the different sectors for preparedness, contingency planning, response and
early recovery.
Milestones and Progress
The quality of information collected and shared on disaster losses was improved in the
context of the GRIP. A guide/manual on recording disaster losses was produced and
training on this manual was carried out covering 38 districts in the country, with total
participation of over 100 INGC and partners provincial technical staff across 3 training
locations of Vilankulos, Beira and Nampula. The training was carried out by a team from
the national CENOE who had benefitted from a series of training seminars in the context
of the GRIP.
Understanding of risk assessment for preparedness planning was supported through
general training on National Risk assessment took place in June with support from GRIP
20
Geneva, and a specialized flood risk modeling training course took place in October. As a
result hazard profiles were produced for flood hazard. This was supported by technical
experts from Switzerland, in the context of a joint collaboration between the Swiss
university HEPIA, the association of Swiss architects and the GRIP.
Information on risk assessment was also increased with final results of the urban seismic
risk assessment for Maputo city produced by the municipality team using the radius
tool. Technical training on use of the RADIUS tool took place in Q1 of 2011, with
technical support from NSET Nepal, and participation of UEM and National seismology
expert (National Directorate for Geology). Data inputs relating to building typologies
were verified through field work sampling conducted by student teams from UEM and
other institutions in Maputo. The teams collected data for representative samples of
housing types in 42 neighborhoods established in preliminary surveys by the
municipality as the most heterogeneous neighborhoods in terms of housing types. The
students also participated in a training workshop on seismic risk, facilitated by members
of the GRIP National risk assessment team from UEM and the municipality.
Cleanup and validation of data collection (based on in the Desinventar database) was
conducted (http://moz.gripweb.org/DesInventar). This database provide access to
valuable historical disaster loss information to practitioners, policy makers and the
general public.
To increase availability of disaster risk information, an e-library was created online, and
populated with information from the country situation analysis report, produced in
2011. This library contains information on projects, studies, key organizations and
personnel in disaster risk reduction in Mozambique and staff of the national CENOE
have been trained as country level editors for introducing content. It is accessible at the
following link: http://www.gripweb.org/gripweb/.
Results/Impacts
These activities have been instrumental in producing new information on risk in
Mozambique, and also ensuring that information is available and shared between
sectors. Information is readily available and can be accessed by policy-makers,
practitioner and general public.
Through the various activities realized under the GRIP, focal points from different
sectors have an appreciation of the role of risk assessment in disaster management. This
is evidenced by the willingness of institutions to share information in this context, much
21
of which is now available online in the e-library. Also, the quality of information
collected on disaster losses should begin to see improvements, as large numbers of
provincial level technical staff have been trained on the specifics of data loss collection.
The country is closer to producing complete risk assessment profiles for all major
hazards, although at the moment, only flood hazard has been completed. This
information will serve as the basis for evidence-based decision making related to
disaster risk reduction and disaster impacts.
Table 3: 2011 targets achieved, Output 3
Indicator
2011 Target
Early Warning System set 3 river basins
up in river basins.
National
Disaster Establishment
Observatory created
National Risk Assessment Report completed
report produced
Seismic risk assessment for Plan approved
Maputo city conducted and
pre-disaster shelter plan
developed.
Achieved
Partially Achieved (30%): In
one river basin (Licungo
basin)
Achieved
Partially achieved (for flood
hazard only)
Partially achieved (80%) (
Seismic risk assessment
conducted- pre-shelter plan
not completed)
Output 4: Early Recovery /Resettlement activities supported to improve livelihoods
opportunities in permanent resettlement areas
Milestones and progress
Training was completed for local communities in the resettlement area of Goli Goli,
Mutarara on Associations, leadership, pricing and entrepreneurship. These are
communities who are already trained in agro-processing and artisan skills. During the
training, the group learned about the legal aspects of forming an association. They
registered their own association and established a bank account for the organization.
Two companies contracted to provide materials for the construction of an agroprocessing workshop in Goli-Goli, Mutarara failed to deliver all the material. Subsequent
22
Discussions were held with INGC, and UNDP was requested to cancel the purchase
orders. The procurement process was handed over to INGC.
In resettlement areas of Morrumbala district, Zambezia Province, further training
activities took place aimed at both building on existing skills and introducing new skill.
This is aimed at increasing and diversifying income generation prospects for people
living in those areas. 30 people participated in the training for community promoters of
improved fishing techniques and processing. Material was also purchased to support
this process. Also in Morrumbala, a number of community vaccinators were trained and
equipped, as part of an initiative to strengthen small scale poultry farming. Training on
conservation of grains was also completed, strengthening food security. Other areas
focused on were the improvement of tomato processing, small business and enterprise
training, agro-processing and small scale irrigation. These activities were coordinated by
INGC Provincial delegation of Zambezia, with support from DARIDAS at central level.
Support was also provided to strengthen the capacity of the CERUMs in Mutarara and in
Massangena, taking into consideration the lead role these centres play in disseminating
new agricultural technologies in drought affected areas.
Results/Impacts
As a result of these and other activities carried out by INGC in the resettlement areas
(awareness raising and training of local committees for disaster management), most
people targeted have remained in the resettlement areas, and not returning
permanently to the low lying flood plain areas as in previous years, which was the aim of
this intervention. INGC reported that in cases of serious flood, such as occurred in 2011,
the number of people who are in need of evacuation is decreasing, as a result of
improved living conditions and livelihoods opportunities in the resettlement areas. In
some cases, people move temporarily from the resettlement areas to farm in the lowlying flood plains, returning to the resettlement areas when the low lands are flooded.
As the income generation projects mature and strengthen, it is expected that the
number of people engaging in temporary return would also decrease.
The stakeholder impact of the training activities
on enterprise and small business was such that
it provided a vulnerable cross-section of the
community, especially women, in the
resettlement areas in Mutarara district, with an
understanding of how associations work, how to
Participants in training in associations
and entrepreneurship in Goli Goli,
Mutarara
23
market and sell products and how finances can be managed in this context, thus,
contributing to increased income generation potential for that group. Through this
training, and the community mobilisation work conducted by the project manager in
Mutarara, the community had a greater understanding and appreciation of their own
skill set and potential for self-sufficiency.
In other resettlement areas of Morrumbala, the level of support to diverse income
generation activities was increased through the training and equipping of community
promoters, to provide vaccinations for poultry, advice on fish farming and processing
techniques. The conservation of grains was also a focus of training activities, which leads
to increased food security.
The training activities were coordinated at the level of the provincial INGC delegation in
Zambezia and Tete, with technical support provided by INGC- DARIDAS at central level,
and in cooperation with the decentralised government departments (agriculture, for
example). This allowed for a flexible approach, based on local knowledge and
partnerships established between INGC provincial delegation, down to district and
community level, further strengthening DRR at decentralised level.
Table 4: 2011 targets achieved, Output 4
Indicator
2011 Target
No of Income generation At
least
projects
established
and projects
generating profit
Achieved
3 Partially achieved (50%). Income
generation projects begun in GoliGoli, Mutarara (agro-processing),
Pinda (Tomato Processing), and in
Morrumbala (poultry), but not yet
generating profits.
Number of new artisan At least 2
Partially
achieved
(60%):
products produced and markets
Association formed in Mutarara for
successfully.
production, marketing and sale of
agro-processing,
ceramic
and
basketry products. AS before
No. of Improved Artisan At least 2 areas Partially achieved (80%); Improved
processes in use.
grain conservation processes in
practice in Morrumbala district,
Zambezia; Community vaccinators
disseminating
information
on
poultry care and vaccinations in
Morrumbala;
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Gender Mainstreaming
UNDP being part of the joint programme on DRR has worked closely with UNWOMEN in
mainstreaming gender and DRR. The increased vulnerability of women to disaster
impacts has been noted. Thus, women are given priority in interventions such as the
community artisan and income generation training conducted in resettlement areas.
At community level, in accordance with National Legislation1, when establishing local
risk management committees, INGC ensures that a minimum of 30% of the committee
are women. In reality, however, the number of women is much higher, and there are
often more women than men on the committees. One reason given for this is that the
spirit of volunteerism is generally stronger among women in the communities, than
among men.
UNWOMEN is also working on developing a toolbox on gender and DRR which can be
used in the future to address gaps in gender indicators and gender mainstreaming
within subsequent projects.
Risk Management
The risk profile of the country implies the risk of large scale natural disasters demanding
resources for extended periods, and diverting focus away from project activities during
the emergency response period. For this reason, certain activities are planned to take
place outside of the rainy season; for example, the training at decentralized level.
Internal risks relate to financial capacity issues of the implementing institution, as
previously mentioned. In 2011, the project financial modality changed from Direct
Implementation Modality (DIM) to National Implementation Modality (NIM) to increase
national ownership and leadership. This change in modality was closely monitored to
ensure financial procedures are followed, but processes were still submitted with delays
and internally within INGC; budget management of project funds is weak and needs
strengthening; and there remains a need to reinforce financial capacity within INGC.
UNDP addressed this risk in various ways:
1
LOLE ( Lei dos Órgãos Locais do Estado)- Law of local state bodies
25



Formal training workshops for financial personnel (from INGC and other
implementing partners) on submission of fund advance requests and
justifications via the Funding Authorization and Certificate of Expenditures
(FACE) process.
Informal support provided by UNDP programme associates to finance officer of
INGC in submission of FACE form.
UNDP programme staff organized regular meetings with INGC Department heads
to discuss spending of project funds and to review budgets.
Partnerships
UNDP acted as cluster lead for the Early Recovery cluster, attending regular meetings of
the Humanitarian Country Team, and the Technical Council for Disaster Management
during the emergency period. UNDP also participated in other government clusters,
providing support to the social, infrastructure and planning and information clusters.
Partnership continued with UEM and UDM for the realization of GRIP activities - for the
implementation of the National Disaster Loss Data Observatory, National Risk
assessment, etc. A number of UEM staff was contracted as part-time consultants,
through INGC, to undertake these activities. Partnership on GRIP was also continued
with Maputo Municipality, in carrying out the urban risk assessment.
In the context of the simulation exercise, it was agreed with the Swedish Civil
Contingencies Agency (MSB), who are supporting INGC in a number of areas including
logistics and radio communications, to use Radio Operations manuals products from the
ECHO sponsored knowledge management project in their training of radio operators.
UNDP supported the Tsunami Early Warning project continuing the partnership with
INAM and other organizations, including National NGOS such as FOCO and Kulima.
Challenges, Responses and Lessons Learned
Implementation delays:
There were challenges in implementing activities for a variety of reasons. Although the
AWP was signed on time, INGC did not request funds until May of 2011. One reason for
this was that the relevant heads of departments were fully occupied in responding to
26
the flood alert period at the beginning of the year, and were often travelling outside of
Maputo to affected areas. UNDP tried to address this by planning activities outside of
this emergency period, and by having UNDP staff working closely with INGC project staff
to submit the request for funds as soon as possible after the emergency period.
Through regular meetings with INGC technical staff and heads of departments, potential
delays in implementation were highlighted, and decisions taken to re-programme funds
to support related activities where necessary. This flexibility allowed funds to be
directed to relevant activities in need of finance.
At the end of 2011, construction of the agro-processing workshop in Mutarara (output
4) was still pending. There were issues with non-delivery of material from the
companies contracted. Eventually, it is planned to compete the construction in early
2012, with support from the national vocational training institute in Tete, under the
overall supervision of the INGC delegate in Tete, and with technical supervision provided
by a site inspector.
It was decided that the small grants for DRR interventions to be implemented by local
NGOs would be cancelled in 2011. This activity had suffered many delays and it was felt
that it would not achieve the required results to begin implementation at such a late
stage, and even that it was quite risky to advance grants without the appropriate
guaranteed follow-up and continuity of the project. The possibility to re-introduce the
activity in a new project was discussed, and it was seen as an opportunity to use UNDP
and UNCDF expertise on micro-finance to link micro-finance products with DRR
interventions, rather than simply making grants available. It was also agreed that
strengthening civil society interventions in DRR (the original goal of this activity) needs
to remain as a focus of the project, but that various ways of doing this should be
explored, aside from grant programmes, with the support of the CSO expertise in UNDP
poverty unit.
Human Resources:
Adequate Human Resource capacity is essential for achieving the goals of any
development project. During this period, there were capacity challenges in terms of
turnover of UNDP staff. The UNDP programme associate and national DRR advisor both
left their positions during the year. Additionally, the head of unit position was vacant for
the last quarter. The fact that the main project funding (BCPR) was not guaranteed
27
beyond 2011 was a major factor in this high turnover, with subsequent effects on
project implementation.
There were also staff shortages at INGC. It was previously noted that, in INGC, the
finance dept and the dept. of arid and semi-arid zones were in need of more senior level
technical staff. However, the hiring of a financial advisor and hiring of a national
technical advisor for DARIDAS were delayed. Eventually one of the challenges became
the short period available for contracting before the project end-date (December 2011).
For the financial advisor for INGC, it was agreed to include the position in the future
project to begin under the new UNDAF, in 2012. The same was agreed regarding the
technical advisor to support DARIDAS.
DARIDAS is the department within INGC that has been implementing the activities in the
resettlement areas (output 3). Capacity within this department for arid and semi-arid
zones (DARIDAS) is stretched to its limits, given the volume of activities and funds
allocated in this area (in general, not only referring to this project). One way in which
these capacity constraints were addressed was by encouraging implementation of
activities by provincial level INGC offices. Overall supervision was carried out by INGC
central, but the day-to-day implementation was realized at decentralized level. This had
the advantage that provincial staff was able to travel more often to project sites and
were familiar with local communities and local authorities. They were also able to
source required material locally, reducing transport costs. At the same time, there were
some challenges integral to this process, especially as it introduced an extra stage in the
disbursement of funds and return of justifications. Also, the possibility of INGC
collaborating more with FAO on these activities was discussed with INGC and with FAO.
FAO agreed, where appropriate to integrate DARIDAS support activities into FAO project
workplans.
In some activities, supervision of consultants contracted to implement specific activities
was weak, especially where consultants were contracted and directly supervised by
INGC (for example under the GRIP project). This improved in the second quarter of 2011
after this issue was highlighted with INGC. In future, it is recommended that deliverables
of consultants be clearly defined (both in terms of content and dates), with payments
based on deliverables (as the practice for UNDP hired consultants).
28
Diversity of Activities:
The project continues to face challenges in terms of the diverse range of activities which
form part of the DRR portfolio which impedes at times the ability to focus in-depth on
specific areas. This is true for UNDP DRR portfolio and for INGC’s scope of work. The
new UNDP DRR/CCA project, beginning in 2012 aims to bring more focus to specific
areas:


Mainstreaming of Disaster Risk and climate Change Adaptation into sectoral
plans and strategies.
Decentralization of Disaster Risk and climate Change Adaptation planning and
implementation.
In relation to these two points, the new project will focus on specific geographic areas,
namely the provinces of Gaza, Cabo Delgado, and Nampula in order to benefit from
UNDP experience in these provinces in the decentralization programme.
Another focus area of the new project will be to strengthen information management
for DRR and CCA throughout the country. Additionally, with recurrent hazards and
potential intensification of hazard events due to climate change effects, support to
emergency management continues to be a priority.
Conclusions and Ways Forward
During the reporting period, the project achieved successes in various areas, with a
number of new policies and strategies (some at draft stage, and some approved)
elaborated for disaster risk reduction including an early recovery strategy and
resettlement strategy. UNDP role and influence as the primary UN agency dealing with
disaster risk issues placed the agency in an excellent position to ensure that the
development of the disaster management legislation was a process which took into
consideration views and comments of various partners and sectors.
INGC and the other CTGC ministries and institutions demonstrate increased capacity and
commitment to disaster risk reduction, year after year. In 2011, it was clear that
although INGC maintains its role as the main coordinating agency, other institutions and
their focal points are assuming increased responsibility and supporting INGC as
necessary through the CTGC. For example, participation of MOPH, MINED focal points in
the CENOE sectors was very strong throughout the flood red alert in early 2011. At
29
provincial and district level also, progress was made, especially in developing capacities
of authorities and planners at this level to integrate DRR and CCA into local level
planning processes. INGC also led in advocating for formal integration of DRR into the
school curriculum, and training completed in this area, and also in the context of the
awareness campaign for tsunamis saw educational institutions (primary, secondary, and
higher level) become interested in learning more about disaster preparedness.
The local risk management committees remained the main focus of capacity building at
community level, and in addition to training completed and kits distributed,
improvements were made to the training process itself to ensure high quality
instruction and active committees. The training manual for facilitators was enhanced,
and was ready for printing and distribution at the end of the reporting period. At
community level, income generation and diversification projects managed to improve
livelihoods prospects for communities in those areas, although the full maturation
effects of those projects is yet to be seen.
Information systems for DRR have been strengthened and the GRIP initiative has been
primarily responsible for this. Strong national capacity now exists in the country for
disaster risk assessment and disaster loss recording. Various sectors came together as
part of the National Disaster Observatory, and for the first time, provincial level
technical staff received some guidance on registering of disaster losses. Additionally, a
wealth of information is now available virtually to any institution or member of the
public who wishes to access it through the e-library.
At the same time, Mozambique remains at high risk of major natural hazards, coupled
with the negative effects of climate change. Subsequently, there are still many areas of
intervention which are vital to bring disaster risk reduction into the development
agenda and to build disaster preparedness and response in the country. In the new
UNDAF cycle (from 2012) the UNDP project on “Strengthening national capacities and
frameworks for disaster risk reduction and climate change adaptation” will support the
government of Mozambique in these efforts.
The new 4 year UNDP project (2012-2015) was elaborated to address the ongoing DRR
and climate change adaptation issues relevant in the country. Increased coherence on
adaptation initiatives is foreseen as a result of integration DRR and adaptation under the
same project. The process of elaboration of the project involved extended consultations
with INGC, MICOA and other partners, and was done taking into account areas of
intervention of different agencies in the context of the new UNDAF. Priority areas were
30
identified based on analysis of the results of the current project, and include:
 Mainstreaming of DRR/CCA into sectoral plans and strategies to ensure that DRR
and CCA components are included in district development plans.
 Support to decentralization of DRR/CCA planning and implementation with
geographical focus on provinces of Gaza, Nampula and Cabo Delgado, to take
capitalize on UNDP comparative advantage in those provinces as a result of the
support already provided to decentralization processes in those provinces.
 Information management support including risk assessment and early warning
systems.
 With recurrent hazards and potential intensification of hazard events due to
climate change effects, support to emergency management continues to be a
priority.
Implementing partners for the project are INGC and MICOA. Efforts will be made to
ensure consolidation of initiatives began under the project which ended in December
2011.
In order to ensure the successful implementation of the new project, it is essential that
continued technical and financial support is provided by BCPR
Annexes (in separate file)
1. Provisional Financial Report
2. Concept note for new UNDP project on Disaster Risk Reduction and Climate
Change adaptation
3. 2012-2015 AWPs
31