INDEX
1. Introduction ....................................................................................................................... 3
2. Executive Summary .......................................................................................................... 4
3. Framework of the Early Warning System in the Dominican Republic............................... 5
4. The 2008 hurricane season in the Dominican Republic.................................................... 7
4.1. Summary of the 2008 hurricane season by the Emergency Operations Centre
7
Summary of Displaced and Sheltered ..................................................................... 8
Summary of Affected Housing................................................................................. 9
5. Methodology for evaluation of lessons learned in the hurricane season ........................ 11
5.1. Methodology for evaluation of the Early Warning System....................................11
5.2. Methodology for evaluation of Inter-institutional Response..................................12
6. Evaluation of the Early Warning System (EWS) ............................................................. 13
7. Evaluation of Inter-institutional Response coordination .................................................. 19
8. Proposal to integrate an annual exercise of lessons learned in the Emergency
Operations Centre (EOC) routine........................................................................................ 22
9. Conclusions..................................................................................................................... 24
10. ANNEXES ..................................................................................................................... 27
3
1. Introduction
The management of an emergency situation caused by extreme events such as
hurricanes tests the strengths and weaknesses of the National System of
Prevention, Mitigation and Response. An objective and analytical debriefing of
the technological, organization and operational functioning of the System
following an event allows for improvement and enables a more effective and
efficient response in the future.
The 2008 hurricane season was one of the most intense in recent years. It
included 16 storms, eight of which became hurricanes, five of those which were
very intense reaching category 3 or greater on the Saffir-Simpson scale.
Due to this situation, the Emergency Operations Centre (EOC) was very active
and put to test its operational capacity in light of a real event. When the season
ended it was considered an opportune moment to review how the EOC
functioned with the aim of identifying best practices and areas of weakness, as
well as systematizing the experience and defining action steps for an improved
response.
The Emergency Operations Centre organized a Lessons Learned in the 2008
Hurricane Season workshop, from December 4-6, 2008 in the Boca Chica
municipality of the Dominican Republic. Support was provided by the Program for
Disaster Prevention and Preparedness (PPD, acronym in Spanish).
The goal of this document is to systematize the experience and follow up on the
workshop recommendations in order to provide a learning tool for all members of
the National Prevention, Mitigation and Response System. This serves as a step
towards ensuring more efficient and timely actions during disasters, given that
hurricanes are recurring events in the Dominican Republic.
4
2. Executive Summary
The Emergency Operations Centre (EOC), with support from the PPD, organized
the Lessons Learned in the 2008 Hurricane Season workshop, from December
4
th
– 6
th
, 2008 in the Boca Chica municipality of the Dominican Republic. The goal
of the workshop was to evaluate the performance of the EOC during the 2008
hurricane season for the purpose of documenting and systematizing the best
practices and highlighting areas to improve. EOC personnel, counterparts and
sector board members participated in the three day event.
The evaluation was conducted in two parts. The first part involved looking at the
functioning of the Early Warning System (EWS) and its components such as
information production, information management, transmission of alerts and the
response. The second part included evaluating the coordination of the inter-
institutional response and the work of the sector boards in the areas of logistics,
infrastructure, humanitarian aid, shelter and health.
In regards to the EWS, the participants identified the following as good practices:
bulletins sent by the National Weather Office (ONAMET, acronym in Spanish) to
the EOC; diffusion of the alerts; preparation of technical information; use of tools
such as maps and the Internet, and; support to mass media.
To improve the EWS, the following should be considered: reduce time for
warnings; perfect the alert dissemination mechanisms to aid organizations
(through SMS text messages) and the public (through regional communication
media); increase public understanding of the meaning of the alerts; ensure that
the alerts reach isolated areas; establish dialogue between the vulnerable
population and response organizations; raise awareness of the importance of
evacuations in order to reduce resistance, and; run simulation exercises in
vulnerable populations.
Regarding the inter-institutional response, participants valued the damage
assessment and verification of information as good practices. To improve
response coordination, participants proposed 1) the standardization of the
evaluation formats used by different institutions to make the response more agile
2) the creation of mixed evaluation teams at a provincial level 3) the simplification
of the EOC procedure manual 4) the strengthening of the shelter coordinating
board, and 5) the provision of more adept information feedback mechanisms for
partners.
The workshop wrapped up on Saturday, December 6th, after a session with the
donors in which the EOC members committed to a series of meetings where
workshop recommendations would be put into practice.
5
3. Framework of the Early Warning System in the Dominican
Republic
The Emergency Operations Centre (EOC) is the coordinating body for disaster
preparation and response (in agreement with Law 147-02, Article 12).
Therefore,
the
EOC
is
the
institution responsible to give
different levels of alerts at a
national level when an event
occurs and it is anticipated to
affect the country. Institutions
specialized in the key areas need
to send correct and pertinent
information to the EOC on time so
that the EOC can perform its role
to inform the potentially affected
communities.
The institutions responsible for supplying information are the National
Meteorological Office (ONAMET, acronym in Spanish) and the Dominican
Institute of Hydraulic Resources (INDRHI, acronym in Spanish), given that the
greatest hazards to the Dominican Republic are hydro-meteorological in nature.
An early warning system provides information in a timely and efficient manner
through the identified institutions (ONAMET and INDRHI). This allows the
corresponding institution, the EOC, to make the decisions necessary to prevent
or reduce risks and prepare an effective response. A EWS should be solid and
redundant. That is to say, that an EWS should maintain its capacity for
operational efficiency and provide the necessary information (redundancy) for
decision-making even in extreme situations (solidity of the system) and even
when its technological platform is partially damage. The primary objective of a
EWS is that it activates the response system before a risk has converted into
damage and becomes a disaster for a particular human group.
To have an efficient and effective early warning system to address hydrological
risk, the following basic aspects should be taken into account:
•
Have an efficient meteorological – hydrological and hydraulic – monitoring
system in place (technological platform), capable of monitoring and
predicting imminent events.
6
•
Knowledge of the effects that events can produce (risk mapping, technical
platform).
•
Have a process of transmitting warnings that is understood by the political
authorities, who have the legal obligation to issue warnings (EOC) in a
clear, irrefutable manner (operational platform). It is noteworthy to mention
that warning reports should include the announcement of the return to
normal conditions.
•
The broadcast of alerts to the population should be appropriate (with
indications of what measures should be taken), without causing panic.
The efficiency of a EWS depends on the process of sharing the information
(transmission of the alert) and the quality of its interpretation.
A EWS provides institutions and vulnerable populations with the possibility of
protecting themselves from extraordinary and potentially harmful events.
A EWS is a tool to coordinate alerts and/or warn the population that they could be
affected by a specific natural phenomenon and subsequent institutional action.
A EWS should include the participation of State bodies, institutions of higher
education, non-governmental organizations and private entities that generate
pertinent, efficient and useful information for a population vulnerable to natural
hazards. These organizations could be associated with the meteorological,
hydrological, geological or environment sectors.
The EWS is supported by two pillars: the sharing and promotion of information
and the application of adequate measures in correspondence to the level of alert.
The best system for producing information is useless without a strategy for its
dissemination and the application of appropriate measures for the alert level.
7
4. The 2008 hurricane season in the Dominican Republic
The 2008 hurricane season, which started on June 1 and ended on November 30,
was very active. In this period, sixteen storms were formed and named in the
Atlantic. Eight of these were hurricanes of Category Three or greater on the
Saffir-Simpson scale: Bertha, Dolly, Gustav, Hanna, Ike, Kyle, Omar and Paloma.
Additional to this, there were Tropical Storms Arthur, Cristobal, Edward, Fay,
Josephine, Laura, Marco and Nana. Tropical Storm 16 remained unnamed as it
never fully developed.
The 2008 season was
more robust than normal,
with a high number of
named tropical storms,
and intense hurricanes.
The national territory of
the Dominican Republic
was affected directly by
Tropical
Storm
Fay
(August 16
th
, 2008) and
indirectly by three major
hurricanes, Gustav (Aug
25, 2008), Hanna (Aug
29, 2008) and Ike (Sep 7,
2008).
The Dominican government did not declare any emergencies in 2008, and
therefore did not mobilize international aid.
4.1. Summary of the 2008 hurricane season by the Emergency
Operations Centre
The Emergency Operations Centre (EOC) evaluated the management of the
2008 hurricane season as positive. The best indicator of this was the dramatic
reduction in victims as a result of the timely broadcasting of alerts, good decision
making regarding evacuations and a perceptible shift in the attitude of the
population concerning the need to evacuate.
8
Below is a summary of affected housing, persons displaced and persons
sheltered during the five most impactful hydro-meteorological events in 2008:
Hurricanes Gustav, Fay, Ike and Hanna and one tropical storm.
Summary of Displaced and Sheltered
Total in official shelters
2,450
Total displaced to homes of families or acquaintances
3,805
Total displaced
6,255
Hurricane Hanna
Tropical depression
Total in official shelters
1,023
Total displaced to homes of families or acquaintances
11,192
Total displaced
12,215
Total in official shelters
7,047
Total displaced to homes of families or acquaintances
36,788
Total displaced
45,735
Total in official shelters
1,728
Total displaced to homes of families or acquaintances
4,752
Total displaced
6,480
Total in official shelters
2,573
Total displaced to homes of families or acquaintances
4,197
Total displaced
6,770
Hurricane Gustav
Tropical Storm Fay
Hurricane Ike
9
Summary of Affected Housing
Hurricane Gustav
Hurricane Fay
Hurricane Ike
Hurricane Hanna
Tropical Depression
No. of flooded residences
1,239
No. of flooded residences seriously affected
0
No. of destroyed residences
12
Total number of residences affected
1,251
No. of flooded residences
2,439
No. of flooded residences seriously affected
2
No. of destroyed residences
2
Total number of residences affected
2,443
No. of flooded residences
8,666
No. of flooded residences seriously affected
30
No. of destroyed residences
71
Total number of residences affected
8,767
No. of flooded residences
1,252
No. of flooded residences seriously affected
30
No. of destroyed residences
14
Total number of residences affected
1,296
No. of flooded residences
1,345
No. of flooded residences seriously affected
5
No. of destroyed residences
4
Total number of residences affected
1,354
10
The EOC concluded that the season
resulted in a total of 15,111 affected
residences, of which 14,941 were lightly
damaged, 67 severely damaged and 103
completely destroyed.
A total of 75,555 persons were displaced;
15,821 of these were located to shelters.
There were 301 communities left without
communication and 28 adverse incidences.
•
Number of dwellings affected
•
Number of persons sheltered
•
Number of persons displaced
11
5. Methodology for evaluation of lessons learned in the
hurricane season
The Workshop on Lessons Learned in the Hurricane Season, held Dec 4
th
-6
th
,
2008 in Boca Chica, aimed to evaluate the performance of the Emergency
Operations Centre (EOC) during the 2008 hurricane season, and systematize the
good practices as well as identify areas in need of improvement. The three day
event included participation by staff of the
EOC and its partners, who are members of
sector
boards.
After
the
summary
presentation by the EOC about the 2008
hurricane season, the workshop was
structured in two parts:
•
Evaluation of the Early Warning
System
•
Evaluation of the Inter-institutional
Response
Participatory methodology was used to evaluate the good practices and
weaknesses of the system. First, the different components and function of the
Early Warning System (EWS) was evaluated. This included information
production, information management, dissemination of the alerts and response.
Second, the coordination of the inter-institutional response and the work of the
five sector boards (logistics, infrastructure, humanitarian aid, shelter and health)
were measured.
Participants were divided into working groups to discuss the two areas using a
question guide, following which each group presented its conclusions in a plenary
session. These findings were consolidated. Separate groups were formed to
discuss the findings related to the EWS and the Inter-institutional Response so
that a balanced vision of the final opinion could be reached. At the end of the day,
the participants confirmed the findings.
5.1. Methodology for evaluation of the Early Warning System
Evaluation of the Early Warning System entailed an analysis and evaluation of its
technological, technical and operational platform. From the technological point of
view it had to be determined whether the monitoring system was solid, redundant
and produced trustworthy information.
12
From a technical point of view the data that is
produced by the Monitoring System needs to be
translated into comprehensible information that is
useful to the different partners. From an
operational perspective the evaluation had to
include an evaluation of the procedural capacity
to transmit information in an efficient manner. As
such, without entering into a discussion of the
technical aspects, the evaluation of the EWS could be conducted through an
evaluation the production, management and transmission of information.
5.2. Methodology for evaluation of Inter-institutional Response
The evaluation of the response
must take into account when and
how entities or institutions linked to
a crisis situation intervene.
The response clearly must be in
accordance with the established
level of alert and the demands and
needs that arise in the crisis. In
addition, the response should be
calibrated to the evolution of the
event, and how the area is
affected. Considering that different entities intervene with different organizational
structures, a high level of coordination between them is necessary to have an
efficient and effective response. Therefore, the System's capacity to respond, in a
simplified manner, can be evaluated by way of assessing the coordination level of
the entities that make up the system and the performance capacity of each one.
13
6. Evaluation of the Early Warning System (EWS)
On the first workshop day, participants assessed the functioning of the EWS in its
different components: information production, information management,
transmission of the alerts and response.
To refresh the group on the conceptual framework, a detailed presentation was
given on Early Warning Systems.
The participants were then divided into groups and given a questionnaire (see
Annex 1) aimed at assessing the different aspects of the EWS such as weather
bulletins, INDRHI bulletins, EOC bulletins, and alert communications (activation,
reception of the alert by the media, and reception of the alert by the population).
Guided questions:
1. Was there technical-scientific information available on the event?
a) Was the information clear and specific?
b) Was the information shared?
2. Was the decision regarding alert states timely and appropriate?
a) Were the inter-institutional operative bulletins timely and precise?
3. Were the alert states adequately broadcast to the population?
4. Was the population's reaction appropriate, given the alert?
For each question the group was asked to identify actions resulting in a positive
impact (good practices), practices to improve (deficient practices) and lessons
learned.
Afterwards each group presented its findings from the evaluation exercise and in
a follow-up plenary session conclusions were drawn from the positive aspects,
areas to improve and the lessons learned.
14
INFORMATION PRODUCTION:
The production of information is mainly related to the
activities of National Weather Office (ONAMET) and the
Dominican Institute of Hydraulic Resources (INDRHI), who
through their Monitoring System can analyze the events
and transmit the data to the Emergency Operations Centre
(EOC).
Good Practices
•
The technical information released by the ONAMET
and the INDRHI was available, clear and shared with
different national and international organizations.
•
The information released by ONAMET and INDRHI was clear and specific
and allowed bulletins announcing different levels of alert to be emitted at
opportune times.
Practices to Improve
•
Improve the instrumentation for follow-up of national hydro-meteorological
events.
•
Place more emphasis on maintenance programs and vigilance of the
hydro-meteorological and telemetric stations
Lessons Learned
•
If the maintenance and vigilance of the technological platform were more
systematic, the Monitoring System would be more efficient.
INFORMATION PREPARATION
The preparation and management of information should anticipate taking into
account two aspects. The first aspect is the preparation of the data by the INDRH
and ONAMET technological platforms, which needs to be transmitted to EOC in a
clear and understandable way. The second aspect includes the elaboration and
use of this information by the EOC to create warning and situational maps and
the alert bulletins for diffusion and broadcasting.
Good Practices
•
Information preparation was adequate because the different levels of alerts
allowed for a timely response favouring at-risk communities
•
The inter-institutional operative bulletins were timely.
15
Practices to Improve
•
The INDHRI must be more efficient in preparing information reports.
Lessons Learned
•
In order to prepare and manage information better, the EOC should adopt
more advanced technology.
•
Strengthen the technical relationship between the ONAMET, INDRHI and
the Secretariat of Environment and Natural Resources (SEMARENA), so
they become “information mirrors”, such that each institution has a screen
that shows the information that the other institutions are receiving in a
simultaneous manner.
•
When there are many consecutive events it is necessary to both maintain
quality control of the information and systematize the information in the
registry.
•
Bulletins from the EOC should be used by institutions to activate a
contingency and/or emergency plan.
TRANSMISSION AND DIFFUSION
Processing of information must be done on
two levels. The first level is the
transmission of information between
INDRHI/ONAMET and the EOC as the first
response institution, applying protocols of
transmission or external work protocols.
The second level is the diffusion of
information, which must be processed in
agreement with the entities who will receive
it. For example, first response entities like
the Dominican Red Cross or National
Guard require different information from
that which is needed by the media or the general population.
PARTNERS:
The relationship with partner organizations and/or liaison persons should be
defined through protocols or standardized work procedures in which the
information that each institution is to receive from the EOC is clearly defined, and
outlines how each partner organization is related to the other. This allows the
EOC to facilitate the coordination process in an emergency.
Good Practices
•
ONAMET was punctual in sending bulletins to the EOC.
•
Most partner organizations responded to the alert calls.
16
•
The operative bulletins arrived on time and allowed the partner groups to
activate the information mechanisms and execute response actions.
•
It was evident that as long as information flow is updated the results are
satisfactory.
Practices to Improve
•
EOC partner organizations should have more modernized units in order to
be more efficient.
•
Reduce the diffusion time for releasing alerts.
•
The National Emergency Commission (CNE) must increase action
coordination between its respective institutions.
•
Avoid frequent changes of the sector board members to improve
performance. Some partner organizations did not receive warnings on time.
•
Improve coordination of partner organizations
Lessons Learned
•
Raise awareness with institution directors regarding the need to modernize
their units in order to make communications with the EOC more efficient.
•
Qualify and empower partner groups/liaison persons to make them
permanent.
•
Update and share a profile and description for the partner organization
/liaison role.
•
Work towards making the liaison have a direct line of authority to the
secretary or department to which they belong. This would create a tighter
relationship with the decision-making structure.
•
Strengthen the distribution and exchange of information process between
all the actors of the EWS.
•
Strengthen the information distribution channels.
•
Improve the revision of reports before they are transmitted through bulletins
to all partner organizations.
•
In the information production process, the role of aid organizations such as
the Dominican Red Cross and National Guard should be defined clearly.
•
Strengthen the police units so they can perform their role in the
evacuations more efficiently.
COMMUNICATIONS MEDIA/POPULATION
Communications Media is an important element in the EWS insofar as it allows
for rapid and extensive broadcasting of the alerts to the population. It is of vital
importance that the information is clear and appropriate in order that the
population is oriented correctly in a timely manner.
17
Good Practices
•
The states of warning to the population were broadcast adequately by the
media, allowing communities to act accordingly.
Practices to Improve
•
Develop a technology that allows for visual representation of the alert
situation in real time.
•
Ensure that information regarding the updated situation reaches the most
remote populations through radio and television.
•
Ensure that alert information reaches municipal radio stations.
•
Apply the laws and rules that require the media to faithfully retransmit the
EOC bulletins.
•
Increase organizational credibility among the population.
Lessons Learned
•
Train social communicators, especially those in radio, in the concepts and
basic meanings of alerts and bulletins.
•
Create a single alternative network of information diffusion as a backup in
case of a situation whereby all others collapse.
•
Standardize communication so audiences receive specific messages.
•
Develop a public network for transmission of alerts to the population, in
which there are “multipliers” that are able to transmit the information to
those without radio access.
•
Increase diffusion of alerts.
•
Make a brochure or pamphlet that explains the different alerts and that
could be distributed through all the toll booths in the country.
•
Include the Secretariat of Foreign Relations in the alert broadcast to ensure
that information reaches different embassies.
•
Strengthen the exchange of information throughout the region.
Impact Analysis
This term applies to the final beneficiary, the population, and how it perceived the
performance of the Early Warning System (EWS). It also addresses whether or
not the EWS has impacted the populations’ attitude and willingness to follow and
support the actions of the National Prevention, Mitigation and Response System.
In terms of the population, this means there is adequate knowledge of warning
levels and a corresponding attitude and behaviour required to facilitate and
improve the response of the National System of Prevention, Mitigation and
Response.
An Impact Analysis also studies whether or not institutions involved in the
emergency respond adequately and in accordance with the alert level established.
18
It also determines if the institutions gave the alert its due importance by activating
the prioritized emergency operations structure using specific procedures in
agreement with the level of alert.
Good Practices
•
Adequate transmission of alerts.
•
The population understands and was receptive to the alerts, which had a
noteworthy impact in terms of reducing mortality rates.
POPULATION
Practices to Improve
•
Explain alerts to the population.
•
The broadcasts and SMS messages must reach a greater number of
people.
•
Information must arrive on time from the partner organizations/liaison
persons to the EOC in a standardized way.
•
Resistance by the population to comply with evacuations.
•
Communities must create vigilance or watch groups.
•
Make an emergency operations toolkit using the information in the EOC
manual and national emergency plan.
•
Follow protocols that say what to do and when.
•
Avoid creation of parallel coordination sites
Lessons Learned
•
A permanent education campaign should be implemented to teach the
population how to behave during alerts, the significance of the different
colours and the actions to take.
•
The topic of prevention and management of emergencies should be
incorporated in primary, secondary and university curriculums.
•
Establish simulations exercises as practice in the most geographically
vulnerable populations.
ADMINISTRATION/INSTITUTIONAL
Recommendations or possible actions to take
•
Lobby for increased national budget allocation to the EOC.
•
Create regional or provincial EOC offices that can assume responsibility at a local
level.
•
Work towards establishing clear risk management policies accompanied by public
policies to sustain them.
19
7. Evaluation of Inter-institutional Response coordination
On the second day, the participants assessed the coordination of the Inter-institutional
Response and the work of the logistics, infrastructure, humanitarian aid, shelter and
health sector boards.
In similar fashion, the workshop participants were divided into group to work with guided
questions and present the information in a plenary session. At the end of the day, a
summary of key points was compiled into one document.
Guided questions
1. How was the assessment of damage and needs?
a) How was the collection of information, locations, events and/or affected populations?
2. What elements were required in order to respond to the needs?
3. How was information processed?
a) Was the inter-institutional communication fluid and consistent?
b) How was feedback between the work divisions in the COE assessed?
4. Was the decision-making timely and appropriate? Were the evacuations timely and to
adequate shelters?
The groups identified the actions with a positive impact, practices to improve and
lessons learned. The responses were presented in a plenary and consolidated in one
document with the consent of all.
Coordination of Inter-institutional Response
1) How were the damage and needs assessments and the organization of
information, places, events, victims, etc?
Good Practices
•
The assessments arrived on time.
•
The validation process took place on time.
•
The damage was assessed.
Practices to Improve
•
Quality of the data information.
•
Qualify the EDAN (Damage Assessment and Needs Analysis) personnel to help
provide improved or better data.
•
Solidify the EDAN teams and divide them into specific areas.
20
•
Adapt the EDAN formats and models to the Dominican context
•
Define the roles of the evaluators.
•
Specify needs.
•
Preliminary reports must be completed and sufficient.
Lessons Learned
•
Strengthen the capacity of the SIN-EDAN members with courses and equipment
training.
•
Prepare a standard and universally used tool for information gathering.
•
Local and multi-sectoral EDAN teams should be formed.
•
Preliminary sector damage reports must be prepared.
2) That which was required was fulfilled?
Good Practices
•
Adequate reponse to needs
•
Management of resources only responded partially to identified needs
Lessons Learned
•
Have a pre-established method of defining needs in the case of an event
•
Have teams in key or strategic areas as a preventative measure
3) How was the information processed, and to what extent was it inter-institutional?
Was feedback between work units appropriate?
Good Practices
•
Communication was consistent and fluid.
•
News bulletins were quickly processed.
•
Institutions provided partial feedback to the EOC.
Practices to Improve
•
Information transfer to the EOC should be improved.
•
Internal flow of information should be improved.
•
Feedback mechanisms between divisions were weak. Neither the material nor
the information reached the media.
•
The quality of information processing should be improved.
•
Event classification needs to be bettered.
•
Include a photography archive of the situation.
•
Include systematic maps of the situation.
•
Reactivate the command and control board.
•
There is a gap in information management at a provincial level.
21
Lessons Learned
•
Revise the procedures in order to make the transmission of information to the
coordination board (centres) simpler and more agile
•
Improve information flow from the center to the periphery.
4) Were Evacuation Decisions appropriate?
Good Practices
•
The evacuations were appropriate and timely.
Practices to Improve
•
Information regarding shelters should be improved.
•
Upon making a decision to evacuate, the shelters should have all required goods
and logistics.
•
Implement a mechanism that ensures that the EOC evacuation orders are
complied with.
Lessons Learned
•
Develop an information and education program about available shelters and
when to make use of them.
22
8. Proposal to integrate an annual exercise of lessons
learned in the Emergency Operations Centre (EOC) routine.
Justification
A lesson learned is that it is important to
identify those elements which are needed to
improve the organizational systems so that
deficiencies due to poor organizational
functioning are reduced.
Evaluate those aspects which worked and
identify the corresponding resources
necessary to make this work, in order to
ensure that an effective response and
resource allocation is repeated.
•
Maximize the potential of best practices.
•
Transform errors into learning opportunities.
•
Establish actions or trajectories that will improve qualitatively the next actions.
Protocol Proposal
WHO
•
The EOC will convene the workshop.
•
All partner groups will be invited.
WHEN
•
After the hurricane season
•
After a major event
•
At minimum once a year
WHY
•
To grow institutionally.
•
Revise what worked and what did not in relation to the alerts and the coordination
of the institutional response.
•
Define an action plan.
•
Correct weaknesses.
HOW
•
Meet with the principal representative of the Early Warning System.
•
Analyze the event or the season.
23
•
Prepare a Lessons Learned document.
•
Publish and disseminate the document.
•
Comply with the proposed actions.
HOW TO SECURE A CULTURAL AND INSTITUTIONAL COMMITMENT
The elaboration of this document should be part of the system's routine activities. In
order to guarantee that this process is undertaken annually it should be included in
respective statutes or ordinances. It must be a document that includes sufficient
institutional characteristics so it is accepted by every institution.
24
9. Conclusions
Without a doubt the 2008 hurricane season provided important lessons learned in the
Dominican Republic regarding disaster management and risk reduction for the National
System of Prevention, Mitigation and Response.
In general, prevention, mitigation and response is understood as a system for the
"protection of people, goods, and surroundings when faced with a common risk, whether
generated by natural or human activity”. The system is structured in an integrated
manner and is made up of organizations, services and institutions in both the public and
private sectors, including volunteers and community organizations. In this system each
entity maintains its own structure and has full liberty to coordinate its organization, with
the goal of maximum efficiency in the fulfilment of its task.
The system is sustained by two principles: mutual aid and scaled use of resources. The
mutual aid element purports that to be efficient institutions and people are required to
work in multidisciplinary and institutional teams. The scaled use of resources implies
efficient use of existing means, or a gradual use or mobilization of human resources,
technicians and materials, in order to satisfy the needs that arise in an emergency.
Guaranteeing these two principles implies an elevated level of organization and
coordination of institutions at all levels, a role which legitimately is performed by the
Emergency Operation Centre (EOC) in the Dominican Republic.
It is useful for the EOC to periodically analyze the levels of organization, coordination
and functioning of the early warning system and inter-institutional coordination in order
to identify good practices, practices to improve, lessons learned and subsequent actions
to take.
In the workshop of Lessons Learned in the 2008 Hurricane Season the composite
institutions of the EOC concluded the following:
Early Warning
An analysis of the 2008 hurricane season determined that the early warning system
currently in place in the Dominican Republic only partially fulfils its responsibilities. Good
technical-scientific information is produced by events, but this information is often
communicated in an unclear, vague and inadequately fluid manner to the entities that
make up the monitoring and alert system.
This situation affects the declaration and the state of the EOC warnings, which although
during this hurricane season were adequate and timely, were not always consistent and
25
precise. Due to this, even though the population received alerts through the media, they
were not always clear on how to respond or act.
In terms of what was discussed and analyzed in the workshop on lessons learned, the
conclusion was that the internal work processes in information production and the inter-
institutional relationship between those responsible for hydro-meteorological bulletins
and the EOC needed to both improve. To guarantee a better flow of information an
outreach to all levels of the system and the population a flow chart was designed (see
annex 4). This flow chart proposes a more linear connection between the institutions
and the information by way of different mediums. In 2009, the EOC will seek to make
this flow chart operational by developing internal work procedures in each institution and
establish protocols of interrelation between them.
Coordination of Inter-institutional Response
The Workshop on Lessons Learned concluded that the inter-institutional response to
disaster situations during the 2008 hurricane season took into account and conducted
damage and needs assessments but in many cases the results were too general,
incomplete and did not give a clear and complete idea of the needs.
The institutions determined that this aspect was due to the tools used in the collection
and processing of information and in the level of technical preparation of the
communication teams. Additionally, inter-institutional communication between the
central and peripheral level was not always fluid and consistent. This influenced the
feedback from the EOC's work divisions and consequently the decision-making in
regards to evacuation and needs assessment. The EOC institutions concluded that the
tool and its procedures used in damage and needs assessment must be simplified and
adapted to the Dominican context. They also determined that there is a need to train the
EDAN operators and improve the flow of information between the periphery and core
levels.
As a result of evaluation of the 2008 hurricane season, the EOC institutions jointly
decided on the following Priority Actions:
Early warning:
•
Create an automatic SMS message system list of 3,500 people at the national
level including civilian and provincial military authorities.
•
Train social communicators, especially in radio.
•
Print and distribute a learning pamphlet to educate the population about the
different levels of EOC issued alerts and their meanings.
•
Run an annual lessons learned exercise following each hurricane season.
26
Response coordination:
Update and simplify the EOC manual for easy use by its members. Key procedures
would be:
•
Adapt and formalize the EDAN document to Dominican conditions with the goal
of institutionalizing it.
•
Upgrade the regional capacity level through EDAN courses of the National Guard
and the Dominican Red Cross (request materials from the Office of Coordination
of Humanitarian Affairs OCHA for the three levels of EDAN).
•
Revise the respective roles of each institution involved in risk management.
•
Host a meeting outside the hurricane season with the shelter board and all its
members.
•
Run a national simulation exercise each year.
•
Publish results of the workshop on lessons learned of the 2008 hurricane season.
Santo Domingo, January 2009
27
10. ANNEXES
Annex 1
ACTIVITIES TO UNDERTAKE
When?
By Whom?
1. DC, CB, CRD run a joint national seminar on damage
assessment.
First week of February
EOC
2. Meet once outside the hurricane season with the shelter board
and all its members.
First week of January
3. Formalize the EDAN document for institutionalization.
First week of February
4. Review the roles of every institution involved in risk
management.
5. Request an OCHA course for the three levels of EDAN
6. Update the EOC manual, making it easy to use for members.
Key procedures.
January15
EOC
7. Run an annual lessons learned exercise after each hurricane
season.
from Dec 1-5
8. Publish a document on the Workshop of Lessons Learned
from the 2008 Hurricane Season.
PPD-COE
9. Create a list of 3,500 people who will receive SMS, including
civilian and provincial military authorities. Hold Provincial
information workshops.
January 30
EOC
10. Make brochures to be distributed at toll booths that explain the
different alerts.
COE
11. Create offices or regional and provincial Emergency
Operations Centres to assume responsibility locally.
12. Hold a national simulation exercise.
1st week of May
28
Annex 2
QUESTIONAIRE ON EVALUATION OF EARLY WARNING SYSTEM
Guide questions
Positive Impact Actions
Good Practices
Actions to Improve
Deficient Practices
Lessons Learned
1. Was there technical-
scientific information
available on the event?
a) Was the information
clear and specific?
b) Was the information
shared?
2. Was the decision
regarding alert states
timely and appropriate?
a) Were the inter-
institutional operative
bulletins timely and
precise?
3. Were the alert states
adequately broadcast to
the population?
4. Was the population's
reaction appropriate,
given the alert?
29
Annex 3
QUESTIONAIRE FOR EVALUATION OF RESPONSE SYSTEM
Guide questions
Positive Impact
Actions
Good Practices
Actions to Improve
Deficient Practices
Lessons Learned
1. How was the
assessment of damage
and needs?
a) How was the collection
of information, locations,
events and/or affected
populations?
2. What was required to
respond to the needs?
3. How was information
processed?
a) Was the inter-
institutional
communication fluid and
consistent?
b) How was feedback
between the work
divisions in the COE
assessed?
4. Was the decision-
making timely and
appropriate?
Were the evacuations
timely and to adequate
shelters?
30
Annex 4
LIST OF PARTICIPANTS IN THE BOCA CHICA WORKSHOP
Name
EOC Title
Tel 1
Tel 2
E-Mail
Juan Manuel Méndez
Director
809 472 0909
Carlos Paulino
Vice-director
operations
829-961-8832
planificacionesceo@gmail.com
Francisco Arias
Director -Santiago
829-961-8805
Yesmín Simon
Public Relations
EOC
829-344-5634
slyesmin@gmail.com
Edwin Olivares
Chief operations
829-961-8833
edwinolivares@gmail.com
Eduar Castillo
Communications
EOC
829-961-8813
edwardcastillo_70@hotmail.com
Alfredo Saint-Amand
Director of
Computer Science
829-961-8893
829 970 7337
computos@coe.gov.do
William Suazo
FFAA-Public Health
EOC
829-961-8852
809 280 1313
williamsuazo@yahoo.es
Cornelio Pérez
EOC
829-961-8816
809 472 0909
corneliop04@hotmail.com
Cornelio Wilper
Transportation
829-961-8807
wispe1@hotnail.com
Julián Román
829-961-8808
Amaury Gutiérrez
829-962-9872
Fernando Manuel
Félix
EOC Executive
829-961-8834
feliz_fernand@hotmail.com
Rafael Zabala
Director of shelters
EOC
829-961-8827
829 961 8828
imatias@gmail.com
Juan Tomas Pimentel
Warehouse
Manager EOC
829-344-5603
juan_tomasi@hotmail.com
Luis Island
La Romana
809-485-6297
Francis Margarita
Paulino
EOC
829-910-9872
mangapauline@yahoo.es
Iván Peña
Vice-director
Rafael Bello
809-961-8871
Luis David Esor
National Evacuation
Director
829-961-8819
829 961 8884
evacuaciones_de@hotmail.com
Bolívar Ledesma
Director Previsions
809 788 1122
ext 232
829 961 8840
bloesma@yahoo.com
Fausto Estévez
EOC Attache
829 868 9003
Marc Van
Wynsberghe
International
Coordinator.
809 852 5311
marc@pnud.org.do
Martín Meléndez
National
Coordinator
809 591 1577
mmelendez@pnud.org.do
Cecilia Corporán
PPD official
809 995 1157
carmenewa@yahoo.es
Alfil Bernardo
PPD expert
Noemí Araujo
PPD official
809 472 0909
naraujo@pnud.org.do
31
Tamara Altman
PPD Assistant
829 498 2077
altmantamara@yahoo.fr
Buyeon Hwang
VNU/PPD
829 341 5083
bhwang@pnud.org.do
Dongjien Park
Civil Engineer
829 665 6271
donghien@gmail.com
Llunguan Song
Web programmer
829 960 5724
smilingstone@gmail.com
José Díaz
PPD Programmer
Ana María Pérez
Program Officer
Manuel Vázquez
Tineo
EOC Attache
Gregorio Gutiérrez
EOC Attache
809-910-8466
809 549 4780
gutierrezcoe@gmail.com
Octavio Rodríguez
EOC Attache
809-383-7992
Lic. Tommy Ferrera
Nin
EOC Attache
809 671 8865
Ing. María Solano
EOC Attache
809 565 281
Manuel Aybar
Colonel Almonte
Morrobel
Link between the
national Police and
the EOC
809 756 4515
Sócrates Urraca
829-961-8849
Pablo Polanco
829-961-8847
José Almonte
809-220-2423
INADA link
809 567
1241/809 710
3767
Dionicio Ayala
EOC Attache
dionicioayala@hotmail.com
Atahualpa Rid
EOC Attache
809-722-6917
Ambioris Casillas
Jaime García
INDRHI-EOC
Attache
(Infrastructure
board)
809 820 2110
sanfausto19@hotmail.com
Fausto Colon
EOC Attache
809-820-2110
Dionisio Ayala
IDAC EOC Attache
809 549 0137
pironb@gmail.com
Tte. Crnel. Ramon A.
Piron
EOC Attache
809-796-3115
Secretary of State
EOC Attache
809 845 1115
jogonzalez@orange.com.do
Jonathan González
EOC Attache
809-845-1115
Manuel Ortega
Operations
Administrator
809 979 1208
carlos.burgos@optic.gov.do
Marjorie Ramírez
EOC Attache
809-948-2360
829 962 9872
Anna María Escaño
Infrastructure
Technician
809 221 8618
829 890 3020
anamariaescano@onfed.gov.do
Luis Osoria Lara
829 923 3085
osoria1@hotmail.com
Fermín Estévez
Forecast
Administrator
809 788 1122
Hiyiana González
Grullon
809 565 8165
hiyianap@gmail.com
32
33
Acronym List
CNE
National Emergency Commission
DGM
General Department of Mining
DIGECOOM General Department of Multilateral Cooperation, previously ONFED
EDAN
Damage Assessment and Needs Analysis
EOC
Emergency Operations Centre
EWS
Early Warning System
INDRHI
Dominican Institute of Hydraulic Resources
OCHA
Office for the Coordination of Humanitarian Affairs
ONAMET
Dominican National Meteorological Office
ONAPLAN Previous National Office of Planning; Currently Sub-Secretariat of State for
Planning (SSEPLAN)
ONESVIE
National Office of Seismic Assessment and Vulnerability of Infrastructure
and Buildings
PPD
Program for Disaster Prevention and Preparation
SEE
State Secretariat of Education
SEMARENA State Secretariat of Environment and Natural Resources
SEOPC
State Secretariat for Public Works and Communications
SNMPR
National System of Prevention, Mitigation and Response
SMS
Short Message Service
34
The European Union and UNDP support the Lessons Learned of the EOC
The European Union and United Nations Development Program supported the Lessons
Learned from the 2008 Hurricane Season, through the PPD, as part of their strategic
alliance to support the Dominican Republic in the reduction of risk.
Due to this analysis, the PPD suggested a joint work agenda with the EOC and its
partner institutions and will continue to support the EOC so that this exercise becomes a
routine process within institutional procedures.
The PPD's goal is to reduce human, social, economic and environmental losses caused
by disasters. It also aims to strengthen the National System of Prevention, Mitigation
and Response (SNMPR, acronym in Spanish) through concrete contributions to the
system, increasing awareness of public representatives and bureaucrats and the
professionalization and betterment of equipment for the emergency and response
organizations.
The European Union has donated financial resources to the PPD, the UNDP provides its
international experience and leadership in managing disaster programs and the
Dominican government, through its General Department of Multilateral Cooperation
(DIGECOOM, acronym in Spanish), has designed this program conscious of the need to
increase efforts in risk management to reduce disasters in the Dominican Republic.
Main associates of the Program (Spanish acronyms):
National Guard (DC)
State Secretary OF Public Health (SESPAS)
Secretariat of State of Environment and National Resources
(SEMARENA)
Dominican Red Cross (CRD)
Associates from other governmental institutions in execution of the Program (COE,
ONAPLAN, ONAMET, SEE, SEOPC, DGM, INDRHI, ONESVIE, CNE).
On the last day of the workshop representatives of donor institutions and the media
were invited to be present, to hear the conclusions of the workshop and provide
feedback.
www.undp.org.cu/crmi