ForDistrictDisasterManagementUnits (D DMU),KhyberPakhtunkhwa

Gender&ChildCell ,ProvincialDisasterManagementAuthorityKhyberPakhtunkhwa

GUIDELINES FOR PROTECTION OF

VULNERABLEGROUPSINDISASTERS

Developedincollaborationwith:Gender&Childcell(PDMA),

DistrictDisasterManagementUnit,(DDMU)KhyberPakhtunkhwa,

IslamicReliefPakistan

GUIDELINESFORPROTECTIONOF

VULNERABLEGROUPSINDISASTERS

Gender&ChildcellProvincialDisasterManagementAuthorityKhyberPakhtunkhwa

Table of Contents

Forward 1

Acknowledgements 2

Rationale and Scope of the Guidelines 3

Children & Risk Factors 4

Guidelines for ensuring the Protection of Children 4

During-Disaster 5

Post-Disaster 5

Women & Risk Factors 6

Guidelines for the Protection of women 6

During-Disaster 7

Post-Disaster 7

Person With Disabilities & Risk Factors 8

Guidelines For Protection of Person with Disabilities 9

Pre-Disaster 9

During-Disaster 9

Post-Disaster

Aged/Elderly Population & Risk Factors

Guidelines For Protection of Aged/Elderly Population

Pre-Disaster

During-Disaster

Post-Disaster . 12/13

12

12

12

11

9/10

1

Pakistan is situated within hazards prone zone and exposed to a series of natural and man-made disasters, such as floods, cyclones, earthquakes, landslides, droughts, fire and conflicts. In a country like Pakistan rapid population growth, uncontrolled development and unmanaged expansion of infrastructure are the most common factors that result in more people being vulnerable to natural hazards than ever before. Khyber Pakhtunkhwa having a mixed topography ranges from mountains to plans with many unplanned seasonal and perennial streams, is highly vulnerable to disasters especially to floods. Additionally, proximity with Afghanistan, close borders with erstwhile FATA, militancy and conflicts had a major devastating impact on the province in the past, especially, hosting of a large number of TDPs and Afghan refugees. The vulnerability of people and especially of children, women, older people and persons with disabilities has increased during these disasters that caused a serious threat to the lives of all these vulnerable groups. However, in order to plan for remedial action, certain guidelines need to be formulated and then implemented on every level to safeguard the weak. Provincial Disaster Management Authority is mandated to look after the needs of these groups and to achieve this task certain blueprint was needed and this guideline will help provide that much needed blueprint. In the development of these guidelines multiple stakeholders took part like District Administration and DDMUs, District Front Line Departments and all other relevant humanitarian organizations. A number of meetings were held with these organizations and after much consultation these guidelines were formulated. They were also then disseminated to all the DDMUs in district KP for their implementation during disaster. These guidelines will help them in addressing the needs of vulnerable groups and this will also strengthen the DDMUs and help them in delivering inclusive response to disasters. Perwaiz Sabatkhel Director General, PDMA

2

Acknowledgements The vulnerability guidelines are first of their kind to address the basic needs of vulnerable groups such as

Women, Children, Older People and Persons with Disabilities. Provincial Disaster Management

Authority believes in building the resilience of the people of Khyber Pakhtunkhwa and to achieve this

task it is important that the needs of the most needy and vulnerable are taken into account.

These vulnerable groups have specific needs and issues and these require special attention from the

humanitarian organizations and it is also state’s responsibility to address their specific issues and provide

them with extra care and attention. To complete this task, the vulnerability guidelines had been

formulated and disseminated to the relevant stakeholders to be used post, during and after disaster.

In successful completion of this report, many people contributed including PDMA staff, especially

Gender and Child Cell, District Administration and DDMUs, NGOs and INGOs.

I am thankful to the District Administration of all the districts in KP for their active participation and

useful contribution. Without their participation, we would not be able to complete these guidelines. I pay

gratitude to all the staff of District Disaster Management Units who spared their precious time for this

great cause and thank them for their excellent cooperation and participation in all the meetings.

My thanks go to all the NGOs and INGOs for extending all possible support and playing an active role in

the completion of these guidelines. Finally, I pay special thanks to Muhammad Saddique Child Protection

M&E Officer for his tireless efforts and commitment and also Mr. Haseeb Ur Rahman who has supported

Muhammad Saddique in formulation of these guidelines, they left no stone unturned in completing this

task and held continuous coordination with all the relevant stake holders and held meetings to refine the

guidelines that are now available in their final form here.

Ms. Saba Dad Khan Program Manager, Gender and Child Cell

3

Vulnerable groups include (but is not limited to) children, women, elderly and persons with special needs.

These groups have specialized needs and concerns as they require special attention during disasters. It is

state`s priority to cater to the focused needs of vulnerable groups in times of disasters. Provincial Disaster

Management Authority, Khyber Pakhtunkhwa has worked for the needs of vulnerable groups in order to

better cater services for them in disaster management cycle.

This document is prepared in order to streamline the various processes involved in supporting these

vulnerable groups and to strengthen efforts and coordination mechanisms to reduce the vulnerabilities of

these groups. These guidelines will support District Disaster Management Units and the line departments

of Government of Khyber Pakhtunkha to deliver an appropriate, context sensitive and need based

response to the vulnerable groups in Khyber Pakthunkhwa.

The Provincial Disaster Management Authority (PDMA) is committed to taking proactive measures to

ensure that the communities and responders are well equipped to mitigate the risks, and manage any type

of disaster if and when it occurs. In making this commitment, PDMA also recognizes the importance and

role of District Disaster Management Units which are important components in the implementation of any

disaster management & mitigation plan in Khyber Pakhtunkhwa.

Keeping in view the mandate given to PDMA by the relevant legislation these guidelines have been

developed for DDMUs. These guidelines are divided into pre, during and post disaster situations for each

vulnerable group. These guidelines are also a living document and will be updated routinely by

incorporating learning from emerging needs

RATIONALE AND SCOPE OF THE GUIDELINES

4

CHILDREN AND RISK FACTORS According to Article-1 of the UN convention on Rights of Child (1989), a child is anyone under the age

of 18 years, unless under the (national) law, majority is attained earlier. Moreover, Child Protection

Welfare Act 2010 Khyber Pakthunkhwa, article 2 (Definitions) subsection (d) defines child as “a person

who has not attained the age of eighteen years”

Children are one of the most vulnerable groups during and after a disaster. They are also the most

dependent population. They depend on their parents, families and caregivers in order to fulfill their basic,

social, economic and emotional needs.

Children’s reaction to a disaster is driven by anxiety including concern about self, parents and family

members and regarding the possible re-occurrence of the event. According to national policy guidelines

on vulnerable groups in disasters issued by NDMA, “Children in a disaster situation tend to suffer on

account of malnutrition, exploitation, abduction and sexual violence amongst other factors. Their situation

becomes further vulnerable due to their inability to share their experiences and to participate in the

decision-making affecting their lives” (NDMA - Gender & Child Cell, 2014).

In this context, it is important to utilize and strengthen the pre-existing social support network to support

children during and after disasters. This network incudes families, community based programs and

educational institutions. Post-disaster interventions addressing the needs for children must include family,

community and educational institutions and should be delivered in developmentally appropriate ways.

The focus of these interventions should be to “normalize” children’s daily routine and to reduce the acute

stress reaction amongst children.

GUIDELINES FOR ENSURING THE PROTECTION OF CHILDREN

PRE-DISASTER � Ensure that proper statistics of children (under age of 18) is available at district level.

� Arrange trainings on protection of children for line departments, community members and front

line staff for disaster management.

� Work closely with academic institutions and ensure that Child focused disaster risk reduction

training is provided to staff and students.

� Develop emergency coordination mechanism for protection of children in times of disaster with

clear roles and responsibilities of related stakeholders.

� Develop information and education material for awareness purpose and disseminate that for

awareness purpose.

� Ensure that standard operational procedures and interim care arrangements are in place for

protecting children in time of disasters.

5

DURING-DISASTER � A Child protection emergency coordination mechanism is activated and safety of children is

ensured.

� Interim protective places for children for safety and security.

� Ensure age and gender disaggregated data of affected population.

� In collaboration with security agencies, activate standard operational procedures for protecting

children in emergencies and reporting mechanism of issues.

� Food packages are according to the needs of children for ensuring proper nutrition.

� Emergency health teams should include pediatricians.

POST-DISASTER � Set up interim protective spaces for children in safe locations

� In coordination with humanitarian actors and relevant stakeholders ensure the basic needs of

children that include food, health, clothing, safety, shelter, emotional support etc.

� Ensure that specialized care for children facing acute trauma is available to children near their

homes or temporary shelters.

� All cases of reported abuse, neglect and violence against children must be referred immediately to

Social Welfare Department /Auqaf and Minority / partner NGOs for immediate action according

the referral pathway established.

� In coordination with humanitarian actors and concerned line departments, ensure that children

return to daily routine life as soon as possible including schools or child friendly spaces setup by

humanitarian agencies.

� In coordination with humanitarian actors ensure that parents and caregivers are adequately

supported to care for their children in post disaster phase.

6

Women are at risk due to their culturally vulnerable position in the society. The pre-existing

vulnerabilities of women relate to their vulnerable position in the social structure, including: reduced

access to, wages, communication, education, and health services. It also includes the reduced social

mobility of women in our society. These vulnerabilities play a key role in increasing risks for women

during and after a disaster and can prevent them from learning about any evacuation options, shelter

facilities and health facilities.

Furthermore, the post disaster relief efforts generally fail to pay adequate attention to gender specific

impact of disaster. The post disaster response needs to cater to these inherit vulnerabilities of women in

our society. The first responders group needs to include a large percentage of women due to our social

context and to help infiltrate the societal barriers which otherwise would block access to this important

vulnerable group. Emotional support and orientation of women needs to be the cornerstone of the

response; as this not only allows them to cope with the demands of the disaster but also helps them in

their enhanced caregiver role.

For women, the most significant biological factors increasing their vulnerability are pregnancy and

lactation; this is due to heightened nutritional needs and reduced physical mobility. Malnourishment of

mothers, unsafe conditions and lack of provisions during disaster are the key factors which increase the

vulnerability of pregnant women during disasters. Therefore, any response needs to cater to these

essential provisions for women during disasters. Lady Health Workers and community midwifes can play

a key role in identifying these women in a disaster affected area. Post disaster, their role becomes more

important because of their access to these women. Therefore, coordination mechanisms with Health

department are essential to an effective disaster response.

GUIDELINESS FOR THE PROTECTION OF WOMEN

PRE-DISASTER � Setup coordination mechanism with line department to ensure that data about women is available

for disaster planning purpose.

� In coordination with Social Welfare Department, ensure that data about households headed by

women is available.

� Ensure that CBDRR Trainings conducted by DDMA’s include representation from women.

WOMEN AND RISK FACTORS

7

� Develop training module for emergency responders catering to the support and needs of Women.

� Ensure that the training module is adopted by all disaster management actors. This training

module should cover at least the following topics: Needs of Women in Disasters, Roles and

Responsibilities of Women in Disasters, Pregnant Women & their Needs (Including Nutrition &

Health), and psychosocial support to Women.

DURING-DISASTER � Ensure that all actors in an emergency situation are aware about the special needs of women and

train the first responders appropriately.

� All the response and relief activities must be culturally appropriate.

� Ensure that women have access to early warning system in case of any emergency

� Ensure age and gender disaggregated data of effected population.

� Ensure that the first responders include a sizable representation from women.

POST-DISASTER � Coordinate with disaster management actors and ensure that the availability of temporary housing

arrangements that include provision for separate toilets/washrooms for women.

� Emergency supplies should include women specific hygiene supplies including culturally

appropriate sanitary items.

� Medicine kits need to include vitamins and supplements for pregnant and lactating women.

� Ensure that women are involved and consulted during distribution and need assessments and that

their voice is well recorded.

� Protective spaces for women should be established for specialized services.

� All cases of reported abuse, neglect and violence against women must be referred immediately to

Social Welfare Department /Auqaf and Minority / partner NGOs for immediate action according

the referral pathway established.

� In coordination with humanitarian actors ensure that breast milk substitutes are provided to

Women where needed. However, distribution of breast milk substitutes need to be kept in control

and should only be delivered to mothers who have stopped lactating due to stress.

� In coordination with Health department and humanitarian actors ensure the availability of

required medicines for the specialized needs of elderly women at the primary health facilities.

8

According to national policy guidelines on vulnerable groups in disasters issued by NDMA, ”Persons

with disabilities are defined as those who have physical, sensory or emotional impairments or learning

difficulties that impede their access and use of standard disaster support services”. This definition

includes people with physical and mental disabilities and for the purpose of these guidelines will include

both groups.

Both physical and mentally disabled people are a vulnerable group and frequently neglected during

disasters or emergency situations. Disasters tend to have a disproportionate impact on people with

disabilities. People with disabilities are also prone to face discrimination and exclusion during and after a

disaster.

The mentally disabled could also be on the receiving end of physical abuse in a disaster situation. They

are usually found wandering in temporary shelters completely aloof to their situation with physical signs

of abuse and malnutrition.

An important factor to consider about the mentally disabled people is lack of knowledge and experience

of the first responders in recognizing psychiatric symptoms and disorders and in catering to the

specialized needs of these people. It is therefore important that the first responders and subsequent

response teams include people who have adequate training in identifying and providing primary care for

such people. It is equally important that psychotropic medication is part of the first aid kit provided to the

emergency teams

People with physical disability are at greater risk of mortality, injury & diseases when compared with the

general population, while new injuries also swell the disabled population during a disaster. The risks

faced by the physically disabled population during a disaster situation are dependent on the type of

disability. For example, people with sight and hearing issues might be unable to recognize the signs of

danger or the orders to evacuate while a person on wheelchair should be able to recognize the signs but

may not be able to evacuate due to mobility issues.

The risks to the disabled people are compounded because certain disabilities might not be inherently

visible to the first responders. Therefore, a coordinated effort with families is required to mitigate the risk

of exclusion of the physically disabled. Moreover, the physically disabled are also at risk of

discrimination from the first responders. Mitigation of this risk requires disability related trainings of the

responders.

PERSON WITH DISABILITIES AND RISK FACTORS

9

PRE-DISASTER � Setup coordination mechanism with Health and social welfare department to ensure that data

about persons with disabilities is available.

� Develop training module and arrange trainings for emergency responders catering to the support

needs of the person with disabilities. Ensure that this training module is adopted by all

humanitarian actors. This training module should cover topics like: Needs of persons with

physical and intellectual/mental disability during Disasters, Psych-social support to the Person

with disabilities, Identification of various mental and physical disabilities, discrimination an

exclusion of person with disabilities during emergencies.

� Special DRR orientation should be provided to the families with persons with disability.

� Ensure that early warning system is based on different mediums to ensure access of people with

various impairments

� Ensure that care givers and person with disabilities are invited in mock drills conducted for

emergency response

� Ensure that data on person with disabilities and level of disability is gathered and shared widely

with related departments and non-government social services organizations.

� Keep/advise at least 0.5-1% budget for physical accessibility of person with disabilities to

services like WASH and Shelter.

DURING-DISASTER � Ensure that all actors in an emergency situation are aware about the special needs of the disabled

person with disabilities and have received appropriate trainings.

� Response activities must be carried out with sensitivity towards needs of persons with disabilities.

� Ensure age and gender disaggregated data of effected population.

� Ethical and moral procedures should be adapted to respect the needs of this vulnerable group.

� Ensure that person with disabilities have access to all services like information, distribution

points, WASH and shelter facilities at safe heavens etc.

POST-DISASTER � In coordination with relevant actors, ensure that the responders include specialized doctors who

can deal with and advice related to both mentally and physically Person with disabilities.

GUIDELINESS FOR PROTECTION OF PERSONS WITH DISABILITIES

10

� Ensure that Disable People Organizations-DPOs and other relevant stakeholders like

organizations working on disability are contacted and consulted

� Ensure that staff engaged in post disaster work is sensitized on the specific needs of person with

disabilities.

� All cases of reported abuse, neglect and violence against disabled must be referred immediately

to Social Welfare Department /Auqaf and Minority / partner NGOs for immediate action

according the referral pathway established.

� In coordination with humanitarian actors ensure that families are oriented about providing care

and support to the disabled.

� In coordination with Health department and humanitarian actors ensure the availability of

required medicines for the specialized needs of physically and mentally disabled at the primary

health facilities.

11

Elderly are one of the most vulnerable groups in any emergency situation in Khyber Pakhtunkhwa as they

are dependent on others for the fulfillment of their basic needs. In an emergency situation, they are less

likely to pay attention to disaster warnings; they are usually reluctant to move to safer locations and may

require physical assistance. Because of their age, they are also likely to have chronic medical/psychiatric

ailments. Generally 60 years and above is considered as aged or elderly person. However the responders

in emergency related work are encouraged to use their own judgment for the need of a person and are not

bonded to rigid classification.

According to national policy guidelines on vulnerable groups in disasters issued by NDMA, “Older

persons are characterized as amongst the most vulnerable group in disasters due to their mental and

physical strength that is weakened by the age that makes their coping abilities equally fragile. This

vulnerability is further exhibited as they are generally isolated within their family and community support

structures due to their immobility and disruption in earning their livelihood” (NDMA - Gender & Child

Cell, 2014).

Any response to the elderly needs to be informed by the special needs of this vulnerable group who by

their very nature could pose difficulties in an emergency response. These challenges include their

diminishing sensory abilities, physical feebleness, age related health issues, cognitive impairment,

emotional isolation, psychiatric issues and overall dependence on others for physical mobility.

Responders need to be educated about these difficulties while dealing with older people in order to

provide appropriate emotional and physical support. Like Children, the priority should be the restoration

of daily routine for the elderly in a safe and familiar environment otherwise it could result in further

difficulties and therefore may require specialized emotional support.

Elderly are likely to have pre-existing chronic medical/psychiatric conditions. Because of their old age

and physical fragility, they are also like to develop health related consequences due to the emergency and

may require specialist support in primary/secondary health care facilities. The first responders therefore

need to be able to identify such cases and be able to develop a clear referral procedure for the elderly.

AGED/ELDERLY POPULATION AND RISK FACTORS

12

PRE-DISASTER � Work closely with Health Department and ensure that primary health providers are able to

perform an initial diagnosis of mental health problems of the elderly.

� Establish clear referral procedures in all primary and secondary health facilities as well as social

services.

� Develop training module for emergency responders catering to the support needs of elderly.

Ensure that this training module is adopted by all humanitarian actors. This training module

should cover at least the following topics: Needs of Elderly in Disasters, Common issues of

elderly and their mitigation, Psych-social support to Elderly

� Ensure that CBDRR Trainings conducted include representation from the elderly population.

� Ensure that session plan in CBDRR training should include session on ageing and issues with

older age like physical, intellectual and social.

� Ensure that related stakeholders like social welfare, Tehsil Municipal Authorities-TMAs and

other are trained on collecting age disaggregated data.

� Ensure/advise that 3-5% is budgeted for elderly related services like wheel chairs, elbow crutches

and hearing aids etc.

DURING-DISASTER � Ensure that all actors in an emergency situation are aware about the special needs of elderly and

train the first responders appropriately.

� Ensure that response packages include age friendly food and nonfood packages.

� Ensure that Older People Associations-OPAs and organizations working on ageing are consulted

and coordinated for age inclusive response.

� Ensure that age disaggregated data is collected during any disaster for effective response and

relief work.

POST-DISASTER � In coordination with disaster management actors, ensure that the elderly are reunited with their

families/caregivers and returned to a familiar environment as soon as possible.

� Ensure that the actors engaged in response and relief activities pay special attention to the

functional needs of the elderly including their mobility and self-care.

� All cases of reported abuse, neglect and violence against elderly must be referred immediately to

Social Welfare Department /Auqaf and Minority / partner NGOs for immediate action according

the referral pathway established.

GUIDELINESS FOR PROTECTION OF AGED/ELDERLY POPULATION

13

� Ensure that the humanitarian actors provide orientation to family members and caregivers of the

elderly about their expected behavior due to trauma and the requisite care.

� Establish an effective accountability mechanism which ensures that the actors involved in disaster

response and relief provide fair and equal access to resources to the elderly and that there is no

exploitation of their status.

� Ensure that people providing response is sensitized on age related issues e.g. physical access,

access to information and invisibility of older people.

� In coordination with Health service organizations ensure the availability of required medicines for

the specialized needs of elderly at the primary health facilities.