Federal Democratic Republic of Ethiopia

NATIONAL POLICY AND STRATEGY ON DISASTER RISK

MANAGEMENT
(DRAFT DOCUMENT)

March 2009
Table of Content.........................................................................Page
Acronyms............................................................................................................................ 3
1. Introduction and Background ................................................................................... 4
1.1. Disasters and Disaster Management Practices in Ethiopia ................................. 4
1.1.1. Disasters ........................................................................................................4
1.1.2. Disaster Management (DM) Practices ............................................................4
1.2. Policy Revision Process ......................................................................................... 5
1.3. Existing Disaster Management Policy: Strengthens, Limitations and
Challenges .......................................................................................................................... 7
1.3.1. The National Policy on Disaster Prevention and Management ........................7
1.3.2. Strengths........................................................................................................7
1.3.3. Limitations ....................................................................................................8
1.3.4. Implementation Challenges ............................................................................9
1.4. Definitions of Key Terminologies as Applied in this Policy ............................... 11
2. Disaster Risk Management (DRM) Policy Framework.......................................... 13
2.1. Key Policy Issues.................................................................................................. 13
2.2. Objectives of the DRM Policy.............................................................................. 14
2.2.1. General Objective ........................................................................................14
2.2.2. Specific Objectives ......................................................................................14
2.3. Guiding Principles ............................................................................................... 14
2.4. Policy Directions .................................................................................................. 15

2.4.1. Organization and Structure...........................................................................15

2.4.2. Core Disaster Risk Management (DRM) Phases...........................................15
2.4.2.1. Pre-disaster Phase: .......................................................................................16
2.4.2.2. Disaster Phase..............................................................................................16
2.4.2.3. Post-disaster Phase.......................................................................................17
2.4.3. Decentralized DRM and Disaster Declaration...............................................18
2.4.4. DRM Mainstreaming ...................................................................................18
2.4.5. Multi-hazard DRM.......................................................................................19
2.4.6. Funding Arrangements.................................................................................19
2.4.7. Information Management and Communication System.................................19
2.4.8. DRM Plans ..................................................................................................20
2.4.9. Partnership and the Role of Civil Societies and Humanitarian Partners .........20
2.4.10. Cross-Cutting Issues ....................................................................................20
2.4.11. Regional Administration and International Cooperation ...............................20
2.4.12. Monitoring and Evaluation...........................................................................21
2.4.13. Policy Enforcement and Implementation Guidelines.....................................21
3. Directives for the Implementation of the National Policy on DRM ...................... 22
3.1. Organization and Structure ................................................................................. 22
3.2. Operational Modalities under Each Core DRM Components ........................... 32

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 3.2.1. Pre-disaster Phase ........................................................................................32
3.2.2. Disaster Phase activities:..............................................................................36
3.2.3. Post disaster phase activities: .......................................................................37
3.3. Decentralized DRM and Disaster Declarations .............................................38
3.4. DRM Mainstreaming ...................................................................................39
3.5. Multi-Hazard DRM......................................................................................40
3.5.4. Funding Arrangements.................................................................................40
3.6. Information Management and Communication System.................................42
3.7. Consolidated DRM Plans .............................................................................43
3.8. The Role of Civil Society and Humanitarian Partners ...................................43
3.9. Cross-Cutting Issues ....................................................................................44
3.10. Regional Administration and International Cooperation ...............................45
3.11. Monitoring and Evaluation...........................................................................45
3.11.6. Policy Enforcement and Implementation Guidelines.....................................46
Annex 1:- Definitions of Key Terminologies as Applied in this Policy ................... 47

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Acronyms
AU African Union
DM Disaster Management
DPPA Disaster Prevention and Preparedness Agency
DPPC Disaster Prevention and Preparedness Commission
DRM Disaster Risk Management
DRMC Disaster Risk Management Council
DRMCO Disaster Risk Management Coordination Office
DRRF Disaster Response and Recovery Fund
DRMU Disaster Risk Management Unit
ETF Emergency Task Force
FDRMC Federal Disaster Risk Management Council
FDRMCO Federal Disaster Risk Management Coordination Office
FDRMU Federal Disaster Risk Management Unit
HIV/AIDS Human Immunosuppressive Virus/Acquired Immune Deficiency
Syndrome
ICT Information and Communication Technology
IGAD Inter-Government Authority on Development
MDG Millennium Development Goals
MCI Mass Casualty Incidents
MoARD Ministry of Agriculture and Rural Development
NPDPM National Policy on Disaster Prevention and Management (1993)
NDPPC National Disaster Prevention and Preparedness Committee
NGOs Non Governmental Organizations
PASDEP Plan for Accelerated and Sustainable Development to End Poverty
PSNP Productive Safety Net Program
RDRMC Regional Disaster Risk Management Council
RDRMCO Regional Disaster Risk Management Coordination Office
RDRMU Regional Disaster Risk Management Unit
RM Risk Management
RRC Relief and Rehabilitation Commission
UN United Nations
Z/WDRMC Zonal/woreda Disaster Risk Management Councils

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1. Introduction and Background
1.1. Disasters and Disaster Management Practices in Ethiopia
1.1.1. Disasters
1.1.1.1. Disasters triggered by various types of hazards are not
uncommon in Ethiopia. The impacts of disasters on the lives of
people and on the country’s social, economic, and political
development have been significant. Disasters impose serious
impediments to development, destroy years of effort, squander
vast resource investments, and perpetuate poverty. They
damage infrastructure and the natural environment, impoverish
communities, and divert national priorities and development
resources to emergency management operations.
1.1.1.2. A wide range of natural and human-induced hazards are
associated with the country’s diverse geo-climatic and socio-
economic conditions. Disasters arising from some of the
hazards have caused widespread damage and loss, while others
remain potential threats.
1.1.1.2.1. Natural hazards in Ethiopia include, among others, drought,
flood, human and livestock diseases, crop pests, and seismic
and volcanic activities. Historically, severe droughts and
famines have been particularly important causes of loss of
lives and livelihoods and of political instability.
1.1.1.2.2. Human-induced hazards include, among others, conflicts as
a result of resource computation and other factors, war,
transport accident, fire, , and other factors. These hazards
are assuming greater importance over time.
1.1.1.3. The vulnerability of the country is aggravated by poor
agricultural and livestock practices, a fragile and degraded
natural environment, extensive poverty, limited transport and
communication infrastructure, uneven settlement patterns,
inefficient markets, variable and changing climatic conditions,
high population growth, lack of good governance, competition
over scarce resources and border issues. The frequency,
severity, and impact of some hazards are likely to increase in
the future, especially due to climate change and other
exogenous factors.

1.1.2. Disaster Management (DM) Practices

1.1.2.1. The first formal governmental disaster management institution
was the Relief and Rehabilitation Commission (RRC),
established in the wake of the 1973/74 famine with a mandate
of relief supplies to drought victims. The RRC responded to

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 crisis through relief food distributions and other emergency
supplies and services.
1.1.2.2. Responses to crises prior to the establishment of the Relief and
Rehabilitation Commission (RRC) were ad hoc. Ethiopian
citizens have had a generous tradition of helping each other in
times of crises. Communities have been the primary
responders to crises.
1.1.2.3. The RRC was re-organized in 1978 and merged with the
Settlement and Awash Valley Development Authorities with a
mandate of relief supplies to victims of natural and manmade
problems and rehabilitating them through various programs
including settlement programs.
1.1.2.4. Following the ratification of the NPDPM in 1993, the
government restructured and renamed the RRC and
established, with significant changes in mandate to strengthen
linkages between relief and development, the Disaster
Prevention and Preparedness Commission (DPPC) in 1995.
1.1.2.5. Policy making and oversight responsibilities regarding disaster
management have been vested on the National Disaster
Prevention and Preparedness Committee (NDPPC) since 1993.
1.1.2.6. Since its ratification in 1993, the policy has played an
exemplary role in Africa.
1.1.2.7. With roles and responsibilities defined in the 1993 NPDPM,
since 2003 key line departments such as the Ministries of
Agriculture and Rural Development, Health, and Water
Resources became more involved in disaster management
through the establishment of emergency sectoral task forces.
1.1.2.8. In 2004, the DPPC was renamed by proclamation as the
Disaster Prevention and Preparedness Agency (DPPA), with a
revised mandate to focus on emergency response.
1.1.2.9. The government, with support of the international community,
has increased investments in poverty reduction programs, such
as the PSNP and the PASDEP.

1.2. Policy Revision Process

1.2.1. The DPPA initiated a policy revision process in 2004 after a review of
the NPDPM and identified strengths, limitations and challenges.
These are listed in detail in Section 2, below.
1.2.2. In 2004, it established technical, core and steering committees
comprising of DPPA management members and experts from
different departments, responsible for guiding the revision process.

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1.2.3. In 2004 and 2006, the DPPA undertook experience exchanges with
other countries namely Bangladesh and South Africa, respectively.
1.2.4. In 2006, the DPPA re-organized its committees and re-established
multi-sectoral technical and steering committees including disaster
management focal bodies in key line departments (Ministry of
Agriculture and Rural Development, Ministry of Health and Ministry
of Water Resource Development).
1.2.5. In 2006, the DPPA sought external technical assistance (consultancy
service) to augment its efforts and speedup the policy revision
process.
1.2.6. In 2008, an extensive literature review was conducted to identify best
DRM practices that are applicable to the Ethiopian context.
1.2.7. Stakeholder meetings at the federal, regional, and local levels were
conducted in 2007 and 2008. These meetings included representatives
from line departments, regional government, civil-community,
academia, and the international community. The draft policy
document was distributed to stakeholders throughout the revision
process through meetings and workshops.
1.2.8. The final draft of this Policy was completed in 200X and was
followed by drafting of legislation.

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1.3. Existing Disaster Management Policy: Strengthens,
Limitations and Challenges

1.3.1. The National Policy on Disaster Prevention and

Management
1.3.1.1. The Government of Ethiopia revised its disaster management
strategy and adopted the National Policy on Disaster Prevention
and Management (NPDPM) in 1993.
1.3.1.2. The accompanying policy directive was issued in 1993 and
the policy implementation guidelines were developed in 1995.
1.3.1.3. The major objective of the NPDPM was to save lives,
integrate relief assistance with development efforts in order to
mitigate the impacts of disasters, and enhance the coping
capacities of the affected population through the creation of assets
in the affected areas.
1.3.1.4. The NPDPM served as the national framework for disaster
management until the adoption of this Policy in 200X.
1.3.1.5. The NPDPM guided relief management policies, institutions,
and processes whereby drought disasters were detected and
resources, especially food aid, were mobilized and prioritized for
affected areas. At critical times, millions of citizens have been
assisted with humanitarian aid.
1.3.1.6. Through a process of national consultation, stakeholders
identified the strengths, a range of policy limitations and
implementation challenges in the disaster management system to
be addressed through a process of policy reform. These are
detailed in the following sections.

1.3.2. Strengths
1.3.2.1. With the establishment of the National Disaster Prevention
and Preparedness Committee as the highest decision making body,
chaired by the Prime Minister, the Government has been the
leading body for all matters of disaster management.
1.3.2.2. Emphasis was given to the need to link relief with
development and, hence, to contribute to addressing the root
causes of vulnerability.
1.3.2.3. The NPDPM underlined that disaster management is a multi-
sectoral responsibility and coordinated effort of various institutions
rather than a one-agency responsibility.
1.3.2.4. The NPDPM gave due attention to the development of
different preparedness modalities and the involvement of the

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 community in the planning, programming, implementation
and evaluation of all relief projects.

1.3.3. Limitations
1.3.3.1. The Constitution and a range of policies (such as PASDEP,
population, health, environment etc) and global strategies (such as
the MDGs) were instituted after the NPDPM, giving rise to
inconsistencies and inadequate integration between policies. The
composition of the NDPPC was diluted by proclamation. The
mandates of some line departments changed, others were
abolished, and new ones established. Therefore, over time,
important strategic, conceptual, and institutional changes have
rendered some aspects of the NPDPM obsolete.
1.3.3.2. The Policy directions for the response and management of
crises were primarily drought-focused. However, multi-hazard
induced disasters and related losses have increased in recent years.
Epidemics (human and livestock) have adversely affected lives
and livelihoods. An increasing frequency and intensity of floods
demonstrates that Ethiopia is prone to multi-hazards other than
drought that may have lower frequency but still important impacts.
War and conflict have led to losses of lives and displacement.
Signs of earthquake and volcanic activities were observed mainly
in the rift valley of the country. Transport/traffic accidents is
another major hazard that causes the loss of lives and property.
Such diverse hazards hold considerable potential to affect
development gains across community.
1.3.3.3. The policy implementation was not supported by legal
enforcement.
1.3.3.4. Responsibilities for disaster management were not adequately
detailed and no mechanisms for accountability in the NPDPM
were in place.
1.3.3.5. Some aspects of the NPDPM and its guidelines were not fully
implemented (e.g., livestock preservation, water harvesting,
contingency agricultural plans, seed reserves, many of agricultural
support activities, etc.) due to various reasons.
1.3.3.6. The NPDPM required overly centralized resource
management that was at odds with the decentralized structures
subsequently required by the Constitution.
1.3.3.7. The NPDPM did not state the need for research, and risk
mapping of hazards (e.g. climate change impacts, emerging
pathogens such as small pox), trends in changing hazard profiles).
Historical records of hazards, disasters, and responses have not
been maintained in a coordinated manner, undermining capacities
to learn from past experiences.

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 1.3.3.8. Inter-regional and cross-border mechanisms for collaboration
and mutual cooperation with regard to disasters were not outlined
and, thus, such relationships were ad hoc.
1.3.3.9. Globally, DRM practices are changing partly due to the
pressures of climate change and to improvements in the global
institutional environment (e.g., the Hyogo Framework). Therefore,
in Ethiopia, the changing context requires substantive policy,
institutional and philosophical shifts from relief response to more
comprehensive and holistic DRM.
1.3.3.10. Relief and preparedness modalities mainly focused on
drought-induced disaster. The early warning system focused on
drought and agriculture and had limited scope for other hazards.
1.3.3.11. With an emphasis on response, policy guidance on risk
reduction and post-crisis recovery and rehabilitation was lacking.
Prevention, mitigation and preparedness modalities and capacities
were not sufficiently emphasized as critical for reducing disaster
vulnerability and for protecting development initiatives.
1.3.3.12. The NPDPM in general did not contribute adequately to
sustainable development.
1.3.3.13. Inadequate attention was paid to the relationships among
development, risks, and vulnerabilities

1.3.4. Implementation Challenges

1.3.4.1. Support for livelihoods affected by crises has been insufficient

for building resilience to future crises.
1.3.4.2. The policy provisions were not enforced with accountability.
The resulting DM system was responsive, being activated only
when disasters were imminent. Some relief efforts were marred by
nepotism and misuse of resources.
1.3.4.3. The disaster response structure was excessively reliant on
external resources. There were limited structures, mechanisms, and
sustainable mobilization of domestic financing of disaster relief
programs and contingency reserves.
1.3.4.4. Mechanisms for multi-year or sustainable resource allocation
were not put in place and this contributed to the failure of the
major implementation modality of the NPDPM (Employment
Generation Schemes) for linking relief to development.
1.3.4.5. In practice, disaster management was seen as the
responsibility of one institution (DPPC/DPPA). Institutional
commitments and arrangements for sectoral/multi-sectoral

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 leadership, integration, and coordination were inadequate, while
horizontal and vertical institutional relationships were unclear.
1.3.4.6. There were weak vertical and horizontal DM information
flows, especially to and from grassroots level, exacerbated by a
poor national communication network. Information content and
flows were unreliable.
1.3.4.7. While the NPDPM stressed local capacities and community
participation, this was not adequately realized in practice.
1.3.4.8. Targeting of relief to the destitute in some cases encouraged
the depletion of productive assets, rendering beneficiaries
dependent on cycles of relief. Errors of exclusion in distribution
resulted from inadequate resources, quota requirements,
geographical remoteness, and other factors. Errors of inclusion
resulted from inflated estimates of beneficiaries and the frequent
distribution of relief resources to the same areas and other factors.
1.3.4.9. Policy implementation in practice focused on rural areas,
giving low attention to urban-based hazards.
1.3.4.10. Preparedness for non-food emergencies is inadequate. Gaps
existed in organizational and coordination mechanisms to respond
to vulnerabilities arising out of non-drought disasters, such as
conflict, internal displacement, flood, or urban disasters.
1.3.4.11. Policy monitoring and evaluation mechanisms were not
adequately stated in the NPDPM and its implementation
guidelines.
1.3.4.12. The institutions of disaster management suffered from a
shortage of skilled manpower and were characterized by frequent
turnover of qualified staff and inadequate physical and financial
resources and other capacities.

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1.4. Definitions of Key Terminologies as Applied in this
Policy
Definitions of selected key terminologies frequently applied in this policy are
listed below and other important terminologies are given in the annex.
1.4.1. A disaster: the occurrence of an abnormal event triggered by a
hazard(s) that impacts a given entity (including a vulnerable community,
geographical area, infrastructure or a group of people in significant
numbers gathered in one place) causing damage and/or casualties,
leaving the affected entity unable to function normally, eroding survival
mechanism and forcing it to seek outside assistance for survival.
1.4.2. Disaster risk reduction (DRR): the broad development and application
of policies, strategies, and practices to minimize vulnerabilities
throughout communities via prevention, mitigation, and preparedness.
DRR action may include the construction of physical structures (such as
flood protection dykes, retaining walls for landslides), environmental
protection and rehabilitation, rainwater harvesting, relocation of
vulnerable households, provision of safer means of livelihoods, and other
proactive social protection measures.
1.4.3. Disaster Risk Management (DRM): collective actions and efforts
of concerned institutions, policies, programs, and other measures
designed to prevent, mitigate, prepare for, and respond to a disaster and
to provide recovery and rehabilitation support.
1.4.4. Disaster Risk Management System: a system of organizational
structures, mechanisms and process, strategies, policies, procedures,
programs, and other measures designed to prevent, mitigate, prepare for,
and respond to a disaster and to provide recovery and rehabilitation
support.
1.4.5. Hazard: a potentially damaging physical event, phenomenon, and/or
human activity that may cause the loss of life or injury, property damage,
social and economic disruption, or environmental degradation.
1.4.6. Mainstreaming: integrating and institutionalizing disaster risk
management in the process of the development of policies and strategies,
and in the planning and implementation stages of regular programs
across all sectors and at all levels.
1.4.7. Mitigation: actions or processes designed to reduce the severity of
potential consequences or level of likely harm of a hazard. Mitigation
measures can be both physical/structural and nonstructural and can take
place before, during, or after a disaster.
1.4.8. Preparedness: specific measures taken before disasters strike, usually
to forecast or warn against them, to take precautionary measure when

11
 they threaten, and to be ready for the appropriate response. Preparedness
includes actions and measures being undertaken before the occurrence of
a disaster to avert or minimize the suffering of the affected entity.
Preparedness entails the building of capabilities before a hazard threatens
to overwhelm coping capacities in order to reduce the impacts of future
disasters.
1.4.9. Prevention: measures taken to reduce the risk of disasters posed by
hazards, primarily through eliminating the root causes that render
individuals, households, communities, and nations vulnerable to
disasters.
1.4.10. Protection: measures that address threats to or the vulnerabilities of
someone or some thing and preclude damage or injury that would cause
disruption or interference with normal practices.
1.4.11. Reconstruction: longer-term activities required to restore physical
infrastructure and services damaged by a disaster.
1.4.12. Recovery: actions taken after a disaster to restore the living conditions
of disaster-stricken people or communities while encouraging and
facilitating necessary adjustments to build resilience to prevent similar
crises in future.
1.4.13. Rehabilitation: the measures applied after a disaster which are
necessary to restore normal activities and build resilience to future
shocks in affected areas, communities, and economic sectors.
1.4.14. Relief: activity undertaken in the immediate aftermath of a
disaster to save lives, protect livelihoods, and address immediate
humanitarian needs, including the provisional restoration of essential
services.
1.4.15. Risk: the probability of a specific hazard occurring in a given location
and its likely consequences for people and property.
1.4.16. Sustainable development: development that meets the needs of the
present without compromising the ability of future generations to meet
their own needs. It contains two key concepts: the concept of "needs", in
particular the essential needs of the world's poor, to which overriding
priority should be given; and the idea of limitations imposed by the state
of technology and social organization on the environment's ability to
meet present and future needs.
1.4.17. Vulnerability: the potential to suffer harm or loss. Determinants of
vulnerability include physical, social, economic, political, cultural, and
institutional factors.

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2. Disaster Risk Management (DRM) Policy Framework
2.1. Key Policy Issues
2.1.1. From Disaster Response to DRM: DRM represents a paradigm shift
in the approach to disaster management. DRM refers to a full
management cycle: prevention (avoiding disasters by addressing
vulnerabilities), mitigation (minimizing potential disaster impacts
through risk management), preparedness (ensuring readiness through
strengthening early warning system, building logistic capacity,
maintaining adequate resource reserves and other precautionary
measures), response (saving lives and livelihoods), recovery
(immediate post-crisis assistance), and rehabilitation (building
capacities to withstand future crises).
2.1.2. Accountabilities, Responsibilities and Resources: The responsibility
for disaster risk management rests primarily with government. DRM
is also the responsibility of all sectors, organizations, agencies,
companies, communities and individuals that may be affected by
disasters or those bodies whose actions may lead to an increase or a
reduction in disaster risks. This Policy delineates functions,
responsibilities, rights, resources, and accountabilities for disaster risk
management at all levels and sectors.
2.1.3. Development First: DRM, particularly its prevention, recovery and
rehabilitation components, is principally the responsibility of
development actors. Crises expose weaknesses in development
strategies. Appropriate development initiatives are essential for risk
reduction, disaster prevention, and crisis recovery. It is essential that
hazards and their risks are managed before they become disasters.
2.1.4. Protecting Lives and Livelihoods: This Policy enhances systems for
disaster response to protect the lives and livelihoods of vulnerable
populations when crisis threatens to overwhelm their coping
capacities. However, emergency response should not be the primary
strategy for DRM.
2.1.5. Addressing Baseline Risks: Most disasters are predictable. This
policy details necessary measures for contingency planning and
domestically financed contingency reserves so that recurrent risks can
be managed before they become disasters. International assistances
will be solicited to complement domestic capacities or in the events
whereby national preparedness/response capacity is threatened.
2.1.6. Constitutional Relevance: This policy capitalizes on the strong
principles enshrined in the Ethiopian Constitution regarding the rights
of citizens and the responsibilities of the government (Article 93).

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2.2. Objectives of the DRM Policy

2.2.1. General Objective

The overall objective of the National Policy on Disaster Risk Management is to
reduce risks and the impacts of disasters through the establishment of a
comprehensive and integrated disaster risk management system within the
context of sustainable development.

2.2.2. Specific Objectives

The specific objectives of the National Policy on DRM are to:
2.2.2.1.Reduce disaster risks and vulnerability that hinder development,
primarily by focusing on proactive measures, establishing a
culture of risk reduction in regular development programs, and
addressing the underlying causes of recurrent disasters.
2.2.2.2.Save lives and protect livelihoods in the event of disasters and
ensure the recovery and rehabilitation of all disaster-affected
populations.
2.2.2.3.Promote the resilience of people vulnerable to disasters and
thereby combat dependency on relief resources.
2.2.2.4.Insures that institutions and activities for DRM are mainstreamed
in to all sectors, coordinated, integrated in to regular development
program and implemented at all levels

2.3. Guiding Principles

The guiding principles of the National Policy on DRM are:
2.3.1. Integration into development: DRM shall be an integral
component of national development efforts. All development programs,
including post-disaster recovery measures, shall incorporate disaster risk
management components in their regular plans and programs.
2.3.2. Protection of natural resources: natural resource endowments in
crisis-affected and crisis-prone areas shall be protected and promoted in
the context of comprehensive risk management strategies.
2.3.3. Decentralized and community-based: DRM systems shall be
decentralized and community-based whereby communities play decisive
roles in the planning, execution, monitoring and evaluation of disaster
risk management projects and programs.
2.3.4. A participatory approach: DRM systems will ensure the proper
participation of all stakeholders including the private sector, academic
and research institutions, humanitarian organizations, etc.
2.3.5. Accountability and responsibility: DRM systems will ensure
accountability and responsibility of all concerned actors at all levels.
2.3.6. Protection of human life: no human life shall be lost for want of basic
relief assistance in times of disaster.

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 2.3.7. Information is power to DRM: information management is a vital
element of disaster risk reduction, Early warning information in
particular is citizen right.
2.3.8. Ensuring basic needs: DRM systems shall protect and fulfill the basic
needs, rights, and dignity of affected populations.
2.3.9. Impartiality: relief interventions shall impartially address the basic
needs of all disaster victims, especially at the initial stages of fast onset
emergencies.
2.3.10. Respect cultural norms: DRM systems shall take into account the
cultural norms, beliefs and practices of communities.
2.3.11. Minimize dependency and promote livelihood recovery: relief efforts
shall be followed by development initiatives in order to minimize
detrimental effects such as dependency on relief assistance and promote
the recovery of livelihoods.
2.3.12. Give due attention to the most vulnerable groups: DRM systems will
give due attention to especially vulnerable groups such as women,
children, the infirm, people living with HIV/AIDS, the disabled and the
elderly.
2.3.13. Avoid malpractices: DRM systems shall be free from all forms of
malpractice.

2.4. Policy Directions

In accordance with the above set of goals, objectives and principles, the National Policy
on Disaster Risk Management (NPDRM) defined clear institutional arrangement and all
the risk management directions as indicated in the following sections are set out by
complete DRM cycle/phases and other essential policy provisions.

2.4.1. Organization and Structure

2.4.1.1. DRM shall be everyone’s responsibility: government,
communities, private sector, civil society, and development and
humanitarian institutions. This policy spells out a clear
organizational structure at all administrative levels and sectors to
ensure its proper implementation with clear delineation of tasks
and responsibilities.
2.4.1.2. This policy requires the establishment of strong coordinating
and regulatory bodies with proper authority at all levels and
defines relationships between coordinating bodies and line
departments.
2.4.1.3. This Policy details mechanisms for vertical and horizontal
coordination, accountability, and integration of all parties involved
in DRM.

2.4.2. Core Disaster Risk Management (DRM) Phases

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DRM is a continuous process that guides a coherent and transparent system,
emphasizing three major phases or categories (pre-disaster, during disaster
and post-disaster). Given the geographic diversity of hazards, risks and
vulnerabilities in Ethiopia, such components or phases are not necessarily
linear and may be managed simultaneously.

2.4.2.1. Pre-disaster Phase:

2.4.2.1.1. Includes prevention, mitigation, and preparedness activities
before the event of disaster. Post-crisis recovery and
rehabilitation measures undertaken in on-going crises could
also serve as preventative interventions for future crises.
2.4.2.1.2. Disaster prevention, mitigation, and preparedness elements
shall be a focus of development strategies, policies, and
programs and need to be incorporated in the strategies, plans,
and programs of line departments and other relevant bodies.
2.4.2.1.3. The abilities to respond to disasters shall be developed
during the pre-disaster phase. All actors shall be prepared for
discharging their roles, managing resources, and upholding
their responsibilities during disasters well in advance of crises.
2.4.2.1.4. There will be multiple, decentralized, and adequate
reserves of physical and financial stocks to manage
predictable levels of crises for all major hazards and sectors.
2.4.2.1.5. Risk assessment, hazard mapping, and forecasting
processes will be developed to reflect actual threats, provide
genuine information, and produce accurate estimate and needs.
2.4.2.1.6. Contingency planning shall be an essential component of
disaster preparedness.
2.4.2.1.7. Assessment results shall not be compromised or influenced
by the limitations of response capacities.

2.4.2.2. Disaster Phase

2.4.2.2.1. The initial responsibility for detecting, responding to,
recovering from, and mitigating the effects of disaster rests
with the local (woreda) administrations. Communities as well
have a major role to respond to disasters but disasters often
overwhelm the capacity of communities to cope or respond.
The primary effort of the local administration shall be made in
order to support or strengthen communities to deal with
emergencies effectively.
2.4.2.2.2. When an emergency event strikes, the concerned DRMCOs
and DRMUs shall immediately activate/mobilize the
preparedness facilities at their disposal. They shall assume
responsibility for coordination of all humanitarian actors

16
 working in their sectors through the establishment of
emergency task forces (ETF). ETFs shall meet as necessary
and be chaired by empowered, senior government
representatives who will be held accountable and evaluated for
the management of ETFs and other emergency coordination
responsibilities.
2.4.2.2.3. Where there is inadequate capacity for disaster
management, the Government will solicit international
assistance.
2.4.2.2.4. DRMCOs and DRMUs shall establish/strengthen a joint
government, UN, and donor coordinating body that meets as
necessary for the duration of a disaster.
2.4.2.2.5. Every effort will be made to ensure timeliness, adequacy,
rationality, and appropriateness of disaster response measures
in order to mitigate effectively disaster-related loss of lives
and livelihoods.
2.4.2.2.6. International humanitarian principles and minimum
standards of operations will be taken into account and adapted
as per the local conditions.
2.4.2.2.7. Disaster response strategies shall protect the dignity and
basic human rights of affected populations. The protection of
the rights and livelihood systems must be of equal importance
to the provision of goods and services.
2.4.2.2.8. The nature and scope of disaster response measures shall be
based on the actual needs of at risk populations.
2.4.2.2.9. The commencement of disaster response measures shall
automatically follow the declaration of disaster. However, it is
not always necessary to await a formal disaster declaration if
lives are threatened to perish for want of relief assistance.
2.4.2.2.10. Other risks of sensitive nature with humanitarian
consequences such as those emanating from a political nature,
such as border conflicts, refugee flows, or terrorist incidents
shall be managed according to the same principles as spelled
out in this Policy.

2.4.2.3. Post-disaster Phase

2.4.2.3.1. Following a disaster a proper damage assessment will be
conducted to identify the magnitude and extent of the damage
caused by a disaster and specific post-disaster early recovery
and rehabilitation program will be developed and implemented
by all concerned bodies.

17
 2.4.2.3.2. Rehabilitation measures shall be integrated with
development programs.
2.4.2.3.3. Post-disaster activities shall ensure the development of
livelihood security and mitigate medium- and long-term
consequences of disasters, thereby reducing vulnerability.

2.4.3. Decentralized DRM and Disaster Declaration

2.4.3.1. DRM functions, resources, and accountabilities shall be
appropriately decentralized. Both standing and ad hoc institutional
structures and appropriate chains of command shall be clear.
2.4.3.2. Information shall flow across and within levels of government
to facilitate multi-hazard mapping, risk analysis, resource
rationalization, and other processes to ensure efficient and
effective DRM.
2.4.3.3. Regional states at all levels are obliged to consider and
promote mutual cooperation in times of disaster.
2.4.3.4. The responsibility for declaring national level disasters that
require extraordinary measures rests with the Federal Disaster Risk
Management Council.
2.4.3.5. The responsibility for declaring regional, zonal and local
levels disasters that require extraordinary measures rests with the
Regional Disaster Risk Management Councils. This responsibility
may be delegated to the Zonal and/or Woreda / Disaster Risk
Management Councils where necessary for the best interest of at
risk populations.
2.4.3.6. Disaster declarations shall be announced when the effects of
crises exceed the capacity of the affected populations and
concerned institutions to effectively mitigate the impact of the
disasters.
2.4.3.7. In the event of external military aggression and other crises
that endanger the constitutional order, a state of emergency shall
be declared according to the Constitution.

2.4.4. DRM Mainstreaming

2.4.4.1. DRM is a crosscutting and multi-sectoral responsibility
whereby concerned institutions shall integrate DRM into their
regular development activities. National development cannot be
sustainable unless DRM is considered as part of sectoral
development processes.
2.4.4.2. DRM will be guided by concerns for the specific
vulnerabilities and capacities that arise from differences in gender,
age, livelihood systems, and other defining characteristics.

18
 2.4.4.3. DRM efforts shall be sensitive to local customs, beliefs, and
practices, and be adopted to local conditions.

2.4.5. Multi-hazard DRM

2.4.5.1. Understanding hazards, their behaviors, the risks they pose,
and the vulnerabilities they create are fundamental to achieving
successful DRM. Therefore, each sectoral line department shall
identify, map, and be a lead agency for the main hazards that have
critical effects on their sector.
2.4.5.2. DRMCs shall ensure that multi-hazard holistic DRM systems
are in place at different places, as appropriate.
2.4.5.3. DRM strategies, plans, and programs shall be based on
holistic and proactive approaches that are concerned with a wide
range of hazards identified and the interaction of multiple hazards.

2.4.6. Funding Arrangements

2.4.6.1. Fundamentally, this Policy envisions the development of a
sustainable and nationally self-reliant DRM system. Resource
mobilization for DRM strategies, plans, and programs shall, to the
extent possible, rely on domestic sources.
2.4.6.2. The DRM system for the management of baseline (that is,
routine, predictable) levels of hazards, risks, and vulnerabilities
shall be funded through multi-year development strategies.
2.4.6.3. Resource mobilization from local sources shall be the
responsibility of DRMCOs and DRMUs at all levels.
2.4.6.4. Resource mobilization from international sources shall be the
responsibility of the Federal Disaster Risk Management
Coordination Office (FDRMCO).
2.4.6.5. Contingency relief reserves of different categories shall be
established/maintained at different levels as necessary based on
realistic estimates of potential response and recovery operations at
each level.
2.4.6.6. Government resource at all levels will be mobilized and made
readily available to preserve lives and livelihoods during disasters.

2.4.7. Information Management and Communication System

2.4.7.1. As DRM is multi-disciplinary and multi-sectoral, it requires a
range of data and relies on the timely, smooth, and efficient
communication of information and reliable data generated by a
range of institutions, sectors, and decision-makers.
2.4.7.2. The interoperability of Information and Communication
Technology (ICT) for effective disaster management among key
disaster responders shall be uninterrupted and sustainable.

19
 2.4.7.3. Effective DRM shall be guided by research, objective
analysis, communication, and knowledge management.
2.4.7.4. A centrally managed DRM information system that integrates
information from different sectors and documents all hazards and
vulnerabilities shall be established at federal and regional levels
within the DRMCOs.

2.4.8. DRM Plans

2.4.8.1. Sectoral DRM and emergency response contingency plans
shall be prepared by each DRM unit and focal bodies and shall be
consolidated at all levels and submitted to the respective
DRMCOs.
2.4.8.2. Integrated and consolidated DRM plans shall be developed by
DRMCOs at all (federal, regional, zonal and woreda) levels.

2.4.9. Partnership and the Role of Civil Societies and Humanitarian

Partners

2.4.9.1. Community based organizations, the private sector and

humanitarian organizations such as UN agencies, Donors, NGOs,
professional institutions, etc., play important roles in the
implementation of DRM strategies.
2.4.9.2. DRMCOs and DRMUs/focal bodies will promote the
involvement of these partners as appropriate.
2.4.9.3. Humanitarian partners are expected to deliver support to
DRMCOs, DRMUs and the affected population in a cohesive and
coherent manner in line with the strategies of the DRMCOs and
DRMUs in areas of their specific sectoral involvement.

2.4.10. Cross-Cutting Issues

2.4.10.1. Vulnerabilities associated with gender will be given due
attention in DRM.
2.4.10.2. Vulnerabilities associated with age, HIV/AIDS, poverty,
environment and disability and other socially-defined or disaster-
induced will be given due attention in DRM.

2.4.11. Regional Administration and International Cooperation

2.4.11.1. Disaster threats as well as DRM opportunities are trans-
boundary by nature. Some hazards, such as human and livestock
diseases, pest outbreaks, conflicts and refugee flows, may affect
neighboring regional administrations within Ethiopia and countries
that share common boundaries.
2.4.11.2. The country will promote active collaboration and mutual
assistance for DRM with neighboring regional administrations

20
 (within Ethiopia) and countries and regional organizations (within
Africa) such as IGAD.

2.4.12. Monitoring and Evaluation

2.4.12.1. Monitoring and evaluation of the impact and consideration of
DRM practices and the effectiveness of this policy are the key
means by which DRMCOs and DRMUs/focal bodies ensure that
the provisions of this Policy are upheld in practice, that lives and
livelihoods are saved and protected, and that sustainable
development can be pursued.
2.4.12.2. Relevant stakeholders (including at risk communities) shall be
active in the monitoring and evaluation of this policy and related
interventions.
2.4.12.3. There shall be an inter-sectoral forum for the regular review,
and monitoring and evaluation of DRM implementation.

2.4.13. Policy Enforcement and Implementation Guidelines

2.4.13.1. There shall be enabling legislation to strengthen the
mechanisms of accountability for DRM as outlined in this Policy.
2.4.13.2. Detailed, specific sectoral implementation guidelines and
manuals shall be developed for policies that require further
elaboration. These shall be reviewed and updated as necessary.
2.4.13.3. There shall be a review and, where appropriate, revision of
existing legislation, implementation guidelines and manuals across
all sectors to strengthen DRM efforts, accountabilities, and
directions.
2.4.13.4. Responsible individuals and bodies shall be empowered and
capacitated to implement risk management activities and be held
legally accountable in case of failures of discharging their DRM
duties and responsibilities.

21
3. Directives for the Implementation of the National Policy
on DRM
3.1. Organization and Structure
3.1.1. DRM responsibilities will be distributed over three core structures
at federal and regional levels: the Disaster Risk Management
Councils (DRMCs); the Disaster Risk Management Coordination
Offices (DRMCOs); and, sectoral Disaster Risk Management Units
(DRMUs)/focal bodies at all administrative levels (federal, regional,
zonal,, woreda and Kebele/Farmer’s Kebele Administration).
3.1.2. Disaster Risk Management Councils (DRMCs)
3.1.2.1. The Federal Disaster Risk Management Council
(FDRMC)
3.1.2.1.1. The FDRMC is the highest policy and oversight body
for DRM.
3.1.2.1.2. The Council consists of the following members:
3.1.2.1.2.1. Prime Minister (chair)
3.1.2.1.2.2. Minister of Agriculture and Rural Development
3.1.2.1.2.3. Minister of Health
3.1.2.1.2.4. Minister of Water Resources
3.1.2.1.2.5. Minister of Defense
3.1.2.1.2.6. Minister of Mines and Energy
3.1.2.1.2.7. Minister of Federal Affairs
3.1.2.1.2.8. Minister of Transport and Communications
3.1.2.1.2.9. Minister of Foreign Affairs
3.1.2.1.2.10. Minister of Trade and Industry
3.1.2.1.2.11. Minister of Education
3.1.2.1.2.12. Minister of Finance and Economic Development
3.1.2.1.2.13. Minister of Labor and Social Affairs
3.1.2.1.2.14. Minister of Works and Urban Development
3.1.2.1.2.15. Minister of Women’s Affairs
3.1.2.1.2.16. Minister of Science and Technology
3.1.2.1.2.17. Ministry of Youth and Sports
3.1.2.1.2.18. Minister of Government Communication Affairs
Office
3.1.2.1.2.19. Director General of Federal Police

22
 3.1.2.1.2.20. Director General National Intelligence and
Security Service
3.1.2.1.2.21. Director General of National Meteorology
Agency
3.1.2.1.2.22. Presidents of Regional States including Addis
Ababa and Dire Dawa City Administration Councils
3.1.2.1.2.23. Director General of Environmental Protection
Authority
3.1.2.1.2.24. Head of Federal Disaster Risk Management
Coordination Office (Secretary)

3.1.2.1.3. The FDRMC will perform the following functions:

3.1.2.1.3.1. Oversee the implementation of the National

Policy on Disaster Risk Management.
3.1.2.1.3.2. Provide general direction regarding DRM.
3.1.2.1.3.3. Oversee the integration of DRM into sectoral
development strategies and programs, and the
implementation of DRM policy through the
Federal Disaster Risk Management Coordination
Office (FDRMCO).
3.1.2.1.3.4. Ensure proper legislation and its enforcement
mechanisms are in place in support of DRM
functions.
3.1.2.1.3.5. Approve general rules for operating, financing,
and releasing funds from Federal Disaster
Response and Recovery Funds (DRRF) that are
managed by DRMCO.
3.1.2.1.3.6. Prescribe general guidelines for DRMCO to:
a) Declare national level disaster on behalf of the
council.
b) Mobilize domestic and foreign resources for
DRM functions.
c) Manage federally owned central DRM
resources.
d) Mobilize inter-regional (i.e., within Ethiopia)
DRM resources.
3.1.2.1.3.7. Approve national disaster contingency plans.
3.1.2.1.3.8. Ensure that the FDRMCO and other members of
the council effectively perform their functions.

23
 3.1.2.1.3.9. Declare National Disaster Risk Management
Day.
3.1.2.1.3.10. Meet twice annually to review the national state
of DRM.
3.1.2.1.3.11. Meet at the request of the Secretariat
(FDRMCO) when circumstances so demand.
3.1.2.1.3.12. Ensure the necessary capacity of the FDRMCO
is in place.
3.1.2.2. Regional Disaster Risk Management Councils (RDRMC)
(The federal structures and responsibilities mentioned
under 3.1.2.1 will be replicated/adapted to regions, with
the inclusion of the participation of municipalities and fire
brigades as appropriate.)
3.1.2.3. Zonal Disaster Risk Management Councils (ZDRMC) (The
regional structures and responsibilities mentioned under
3.1.2.2 will be replicated/adapted to zonal level.)
3.1.2.4. Woreda/Kebele/Farmer’s Kebeke Administration Disaster
Risk Management Councils (WDRMC) (The zonal
structures and responsibilities mentioned under 3.1.2.3 will
be replicated/adapted)

3.1.3. Disaster Risk Management Coordination Offices (DRMCOs)

3.1.3.1. Federal Disaster Risk Management Coordination Office
(FDRMCO) is a coordinating and regulatory body at
federal level for DRM-related matters that will be
accountable to the Office of the Prime Minister. The
FDRMCO will:
3.1.3.1.1. Act as the secretariat for the FDRMC and serve as the
central agency for ensuring proper and effective
implementation of DRM activities among all line
departments at the federal level.
3.1.3.1.2. Have the authority to communicate directly with
ministers, directors, and head of sectoral DRM units on
all DRM issues.
3.1.3.1.3. Consolidate all DRM plans and activities conducted by
DRMUs and focal bodies at national and regional
levels.
3.1.3.1.4. Play coordinating role for handling:
a) National (multi-regional) level disasters.

24
 b) Hazards that do not fall under any one of lead
agencies indicated in section 3.1.4.1.3.
c) Mass Casualty Incidents (MCI) where the scale of
the incident is considered as a national disaster.
3.1.3.1.5. Ensure that key national level preparedness and
mitigation facilities and capacities are in place and
effectively functional.
3.1.3.1.6. Facilitate the development of procedures for mutual
disaster risk management and mutual cooperation with
neighboring regions.
3.1.3.1.7. Provide support on request by RDRMCs to authorize
additional appropriate measures, if necessary.
3.1.3.1.8. Serve as a repository/custodian of national level DRM
information.
3.1.3.1.9. Establish technical committees and forums drawn from
sectoral DRM unit/focal bodies, civil society and
humanitarian partners, religious organizations, and
others to perform DRM duties as and when necessary.
3.1.3.1.10. Be organized in three core functional units: Federal
Integrated Information Management and Mapping Unit;
Federal Risk Management Unit; Federal Plan, Program
and Research Unit; and establish other support units as
necessary.
3.1.3.1.10.1. The Federal Integrated Information
Management and Mapping Unit will:
3.1.3.1.10.1.1. Conduct comprehensive analysis of sectoral
DRMUs/focal bodies, regional DRMCOs
and other sources of early warning
information, and issue and disseminate
consolidated national early warning
information.
3.1.3.1.10.1.2. Using a range of sources, develop and
maintain databases of all key hazards and all
disaster impacts (damage assessment), and
conduct multi-sectoral and multi-hazard risk
analyses.
3.1.3.1.10.1.3. Issue, at a minimum, monthly and quarterly
summaries of national risk and disaster
outlooks.
3.1.3.1.10.1.4. Develop and disseminate standard
operational guidelines for the management

25
 of information and databases to be used at
different levels.
3.1.3.1.10.1.5. Organize trainings on information
management and other related fields for
capacity development of stakeholders and
institutions involved in DRM at different
levels.
3.1.3.1.10.1.6. Ensure that DRMUs and RDRMCOs and
other relevant bodies develop, maintain, and
enforce appropriate information systems.
3.1.3.1.10.2. The Federal Risk Management Unit will:
3.1.3.1.10.2.1. Ensure the implementation of multi-hazard,
multi-sectoral, and/or multi-regional disaster
risk management (RM) initiatives including
prevention, mitigation, preparedness,
rehabilitation; and response, early recovery
and rehabilitation initiatives for
unprecedented crises and mass causality
incidents.
3.1.3.1.10.2.2. Review the integration of RM in major
national multi-sectoral development
strategies, plans, and programs.
3.1.3.1.10.2.3. Ensure that DRMUs develop and
disseminate standards and appropriate
guidelines for effective and transparent
sector-specific risk reduction, emergency
response and recovery that are updated, at a
minimum, every five years.
3.1.3.1.10.2.4. Set quality control and minimum standards
of imported relief resources and ensue the
quality of imported resources maintain this
standards in collaboration with the
appropriate institution.
3.1.3.1.10.2.5. In collaboration with other relevant DRM
stakeholders, regularly monitor and evaluate
the proper implementation and effectiveness
of risk reduction, emergency response and
recovery activities.
3.1.3.1.10.2.6. Organize trainings and awareness raising
activities for capacity development of
stakeholders and institutions on this Policy
in relation to prevention, mitigation,

26
 preparedness, response, recovery and
rehabilitation activities.
3.1.3.1.10.2.7. Ensure that DRMUs, RDRMCOs and other
relevant bodies develop, maintain, and
enforce appropriate and clear RM ,
emergency response and recovery
operational guidelines consistent with this
Policy.
3.1.3.1.10.2.8. Establish a crisis management and response
center for the coordination of response and
recovery initiatives for unprecedented crises
and mass causality incidents.
3.1.3.1.10.2.9. Review sectoral and regional risc reduction
and disaster contingency response plans and
develop consolidated national risk reduction
and disaster contingency plans.
3.1.3.1.10.2.10. Develop and maintain relations with
local and international humanitarian and
development partners in order to mobilize
DRM resources and technical cooperation.
3.1.3.1.10.2.11. Establish and manage the Federal
Disaster Response and Recovery Fund.
3.1.3.1.10.3. The Federal Plan, Program and Research Unit
will:
3.1.3.1.10.3.1. In collaboration with academia, research
institutions and humanitarian experts and
organizations, develop and disseminate
standards and appropriate guidelines for an
effective research management.
3.1.3.1.10.3.2. Develop and issue a standard guideline for
the preparation of DRM plans (risk
management and disaster response
contingency) at different levels.
3.1.3.1.10.3.3. Conduct comprehensive research on the
interrelationships among hazards, risks, and
vulnerabilities in Ethiopia.
3.1.3.1.10.3.4. Ensure that DRMUs/focal bodies develop
and disseminate standards sectoral DRM
plans.
3.1.3.1.10.3.5. Develop consolidated and comprehensive
national DRM plans.

27
 3.1.3.1.10.3.6. Organize trainings on DRM, policy
implementation, research techniques,
planning, and monitoring and evaluation for
capacity development of stakeholders and
institutions involved in DRM at different
levels.
3.1.3.1.10.3.7. In collaboration with DRMUs and relevant
stakeholders, regularly monitor and evaluate
the effectiveness of sectoral DRM strategies,
plans and programs and the proper
implementation of this Policy.
3.1.3.1.10.3.8. Ensure that DRMUs, RDRMCOs and other
relevant bodies develop, maintain and
enforce appropriate and clear planning,
monitoring and evaluation operational
guidelines based on this Policy.
3.1.3.1.11. The Head of the FDRMCO will:
3.1.3.1.11.1. Be directly accountable to the Prime Minister
and serve as a secretary for FDRMC.
3.1.3.1.11.2. Initiate a process of review of (and revise as
required) the National Disaster Risk
Management Policy every five years.
3.1.3.1.11.3. Present comprehensive DRM reports to the
House of Peoples Representative about the
performance of DRM initiatives nationwide.
3.1.3.1.11.4. Organize an annual disaster risk management
summit that includes all DRMCOs,
DRMUs/focal bodies and Regional Presidents
to review the status of DRM in the country.
3.1.3.1.11.5. Ensure the implementation of this Policy.
3.1.3.1.11.6. Perform other functions as may be required by
the FDRMC.
3.1.3.2. Regional Disaster Risk Management Coordination Offices
(RDRMCOs) (The federal structures and responsibilities
will be replicated/adapted, with the inclusion of the
participation of municipalities and fire brigades.)
3.1.3.3. Zonal Disaster Risk Management Coordination Offices
(ZDRMCOs). (The regional structures and responsibilities
mentioned above will be replicated/adapted.)
3.1.3.4. Woreda/Kebele/Farmer’s Kebele Administration Disaster
Risk Management Coordination Offices (WDRMCOs).

28
 (The zonal structures and responsibilities mentioned above
will be replicated/adapted.)

3.1.4. Disaster Risk Management Units (DRMUs)

3.1.4.1. Federal Disaster Risk Management Units (FDRMUs)
3.1.4.1.1. Relevant federal line departments will establish,
maintain and manage DRM units and play the lead role
and coordinate all stakeholders to work together on all
stages of DRM in their sector and others will assign
focal body responsible for the management of all DRM
activities within their sector.
3.1.4.1.2. The following institutions at the Federal level will
establish DRMUs and play the lead role in their sector:
3.1.4.1.2.1. Ministry of Agriculture and Rural
Development: all crop production, livestock,
forest fire, food, and food security related
hazards.
3.1.4.1.2.2. Ministry of National Defense: search and
rescue in times of war and other emergences as
required.
3.1.4.1.2.3. Ministry of Federal Affairs; conflict related
hazards.
3.1.4.1.2.4. Ministry of Mines and Energy: seismic activity
(earthquake and volcanic activities), landslides,
dam failure, etc., related hazards.
3.1.4.1.2.5. Ministry of Health: human health including
HIV/AIDS and malnutrition related hazards.
3.1.4.1.2.6. Ministry of Transport and Communications:
transport accident especially road and
communications network damage.
3.1.4.1.2.7. Ministry of Water Resources: climate change
especially flood, drought, water supply,
sanitation and hygiene related hazards.
3.1.4.1.2.8. Ministry of Works and Urban Development:
urban infrastructure development and urban
fire related hazards.
3.1.4.1.2.9. Environmental Protection Authority:
environment and radioactive pollution related
hazards.

29
3.1.4.1.3. Other governmental institutions who are members of the
FDRMC will designate DRM focal body responsible for
all DRM matters in their sectors.
3.1.4.1.4. All DRMUs and focal bodies shall report directly to the
Minister or Head of Agency and perform the following
duties and responsibilities in common. Each will:
3.1.4.1.4.1. Coordinate all sectoral DRM activities and
ensure the integration of Disaster Risk
Management into the regular duties and
responsibilities of their institutions and other
relevant stakeholders involved in their areas of
responsibilities.
3.1.4.1.4.2. Develop and implement sectoral strategies and
plans for DRM and coordinate their
implementation within their institution and with
partners.
3.1.4.1.4.3. Review the implementation of these strategies,
plans, and programs.
3.1.4.1.4.4. Establish, maintain, and manage sectoral
contingency reserves of financial and/or physical
stocks for addressing disaster risks within their
sectors.
3.1.4.1.4.5. Establish a sectoral early warning system and
disseminate early warning information to
regional DRMUs, regional DRMCOs, sectors
partners, the FDRMCO, and the general public.
3.1.4.1.4.6. Develop and maintain an integrated
comprehensive sectoral DRM plan.
3.1.4.1.4.7. Test through simulations the disaster response
contingency plans for their sectors.
3.1.4.1.4.8. Conduct sector-specific risk assessments and
vulnerability analysis, and design and coordinate
strategies to addresses these risks and
vulnerabilities.
3.1.4.1.4.9. Define detailed sector specific duties and
responsibilities and develop sectoral DRM
standards, procedures, and guidelines/directives.
3.1.4.1.4.10. Promote the involvement of communities and
other stakeholders particularly women and other
vulnerable groups in the design, planning,
implementation, and monitoring and evaluation
of sectoral DRM strategies.

30
 3.1.4.1.4.11. Play a leading role in emergency responses in
collaboration with other relevant stakeholders in
their areas of responsibility.
3.1.4.1.4.12. Establish and lead sectoral ETFs comprising
actors in their sector, other relevant line
ministries, UN agencies, donor governments,
humanitarian organizations, and private sector
representatives, as appropriate.
3.1.4.1.4.13. Establish and maintain an effective and reliable
system of communication with regional DRM
offices and the FDRMCO, maintain and secure
databases, and analyze information regarding
sectoral DRM activities and disaster risks.
3.1.4.1.4.14. Conduct damage assessments after the event of a
disaster and maintain proper records.
3.1.4.1.4.15. Ensure the availability of the necessary resources
and capacities for the implementation of DRM
responsibilities.
3.1.4.1.4.16. Ensure gender is adequately integrated and
mainstreamed in to DRM planning,
implementation, monitoring and evaluation
3.1.4.1.4.17. Establish, maintain, and manage sectoral
Disaster Response and Recovery Funds
(DRRFs) if deemed necessary.
3.1.4.1.4.18. Regularly assess and evaluate the effectiveness
of sectoral DRM strategies, plans, and programs.
3.1.4.1.4.19. Participate in FDRMCO technical committees
and other relevant sectoral DRM units and
provide technical assistance on request.
3.1.4.1.4.20. Undertake other DRM activities deemed to be
necessary and relevant to their sector.
3.1.4.2. Regional Disaster Risk Management Units (RDRMUs) (The
federal structures and responsibilities will be
replicated/adapted, with the inclusion of the participation
of municipalities and fire brigades.)
3.1.4.3. Zonala Disaster Risk Management Coordination Offices
(ZDRMCOs) The regional structures and responsibilities
mentioned above will be replicated/adapted
3.1.4.4. Woreda/Kebele/Farmer’s Kebele Administration Disaster
Risk Management Coordination Offices /WDRMCOs)

31
 The zonal structures and responsibilities mentioned above
will be replicated/adapted

3.2. Operational Modalities under Each Core DRM Components

3.2.1. Pre-disaster Phase
3.2.1.1. Pre-disaster (prevention, mitigation and preparedness) activities
include:
3.2.1.1.1. Conducting routine hazard identification and vulnerability and risk
assessments in all sectors and at all levels of administration.
3.2.1.1.2. Ensuring that governmental institutions, private entities, and
charitable organizations at all levels develop, maintain, monitor,
and enforce appropriate and clear DRM operational guidelines
consistent with this Policy.
3.2.1.1.3. Developing and implementing appropriate risk reduction strategies,
programs, and plans.
3.2.1.1.4. Developing, maintaining, and testing through simulation DRM
contingency plans for all sectors at all levels.
3.2.1.1.5. Establishing, strengthening, and maintaining necessary and
appropriate preparedness capacities at different levels in all sectors.
3.2.1.2. Prevention activities include:
The following are the primary activities that will be undertaken to prevent
disasters:
3.2.1.2.1. Identifying and assessing areas and populations subject to recurrent
crises and prioritizing multi-year, multi-sectoral development
investments to address underlying, interlocking disaster
vulnerabilities.
3.2.1.2.2. Auditing every development strategy, plan, and program for any
and all potential increases in disaster risks related to such
endeavors.
3.2.1.2.3. Prioritizing preservation and regeneration of degraded and
threatened environmental bases for multi-year, multi-sectoral
development investments in order to minimize risks and
vulnerabilities arising from resource-based conflicts, and to
promote sustainable development.
3.2.1.2.4. Addressing the rapidly-developing urban environment (which
poses unique hazards and threats) through urban planning,
improvement and rigorous enforcement of building codes, and
infrastructure developments that are geared towards risk reduction.

32
 3.2.1.2.5. Ensuring that where communities are resettled as part of disaster
risk management initiatives, crisis response strategies, or
development investments, that such communities will have access
to full resources to ensure their rights, health, livelihoods, and
security.

3.2.1.2.6. Raising the levels of disaster prevention through education and

public awareness will contribute to reducing the impacts of
disasters. This will entail the following activities:
3.2.1.2.6.1. Mainstreaming of DRM into appropriate subjects at primary
and secondary schools and encouraging extra-curricular
DRM activities to create future generations with a culture of
resilience to disasters.
3.2.1.2.6.2. Encouraging higher learning institutions and think tanks to
conduct DRM research, develop expertise, teaching
modules, and cultivate a sense of professionalism for
disaster risk management.
3.2.1.3. Mitigation activities include:
3.2.1.3.1. Establishing social safety-net mechanisms to assist at risk
populations (women, children, the poor, the elderly, displaced, and
people with disabilities) so that basic resilience against risk is
protected and enhanced.
3.2.1.3.2. Promoting diversified income options through long-term
development initiatives for population in high-risk areas to reduce
their vulnerability to hazards.
3.2.1.3.3. Protecting proactively through development initiatives the nation’s
physical infrastructure and natural environment to mitigate disaster
risk.
3.2.1.3.4. Promoting the development of financial risk sharing mechanisms
(such as insurance and reinsurance) to protect at risk communities
and public and private institutions,
3.2.1.3.5. Improving the capacities of DRMUs staff in basic DRM concepts
and applications, including first aid.
3.2.1.3.6. Establishing/encouraging the Ethiopian Red Cross Community, the
school scouts movement and similar volunteers to develop the
skills of youth in basic first aid and community service in times of
disaster.

3.2.1.3.7. Mitigation measures for large scale disasters and mass causality
incidents:
3.2.1.3.7.1. Crisis management and response centers shall be
established, financed, equipped, and maintained by
DRMCOs.

33
 3.2.1.3.7.2. Simulations of the management of mass casualty incidents
shall be undertaken annually in large cities and major
transport hubs.
3.2.1.3.7.3. The Ethiopian Defense Forces and the police shall develop
capacities for search and rescue in times of earthquake,
bombings, floods, and similar crises.
3.2.1.3.7.4. The government shall develop standing agreements for
mutual cooperation with other countries.
3.2.1.3.7.5. The government shall develop regulations governing the
temporary commandeering of private sector assets and
procedures for compensation in times of disaster.
3.2.1.4. Preparedness activities:
3.2.1.4.1. Preparedness measures to be in place before disasters threaten shall
include, among others, strategic contingency reserves (physical and
financial), early warning systems, reliable information
communication networks, contingency plans, human resource
development, simulations, and institutions, guidelines, standards
for response initiatives.
3.2.1.4.2. The following are primary activities to be carried out in support of
local, regional, and national disaster risk preparedness.
3.2.1.4.2.1. Early Warning Systems
3.2.1.4.2.1.1. There shall be regional and national level multi-hazard
and multi-sectoral early warning systems linked to
hazard profiles.
3.2.1.4.2.1.2. DRMUs shall develop and maintain early warning
systems that monitor hazards with the potential to
impact their sectoral areas, guide sectoral risk
management responses, and feed into national multi-
hazard, multi-sectoral early warning systems.
3.2.1.4.2.1.3. Early warning systems will establish trigger indicators
linked to agreed preparedness measures, including
contingency plans that are linked to specific
vulnerabilities of affected communities, sectors,
institutions, and livelihood systems.
3.2.1.4.2.1.4. DRMUs will estimate the current and forecast future
magnitude of disasters and provide this information
across their line departments as well as to DRMCOs.
3.2.1.4.2.1.5. The DRMCOs must review and conduct comprehensive
analysis on information provided by each sector’s early
warning systems.

34
3.2.1.4.2.2. Identification, monitoring and forecasting of hazards
and risks
3.2.1.4.2.2.1. Each line department shall establish a capacity for
hazard and risk monitoring and forecasting as it
pertains to its sectoral focus at the federal, regional and
woreda levels.
3.2.1.4.2.2.2. DRMCOs shall coordinate and synthesize hazards and
risks profiles and forecasts of emerging trends
conducted by DRMUs, focal bodies and specialized
agencies.
3.2.1.4.2.2.3. DRMUs and DRMCOs shall be active participants in
international fora and initiatives regarding regional and
global hazard and risk assessment, mapping and
forecasting.
3.2.1.4.2.2.4. To prioritize resources to impartially identified at risk
areas and populations and to ensure that analysis is free
from political influence, individuals engaged in
assessment, mapping and forecasting shall have
separate lines of accountability from individuals
responsible for disaster response functions.
3.2.1.4.2.2.5. An updated national disaster risk forecast, including
details of the hazard and risk profile by region,
livelihood system, and international trans-boundary
shall be issued annually by the FDRMCO.
3.2.1.4.2.2.6. Civil society will be encouraged to undertake hazard
and risk identification and forecasting, with the outputs
by these efforts taken under consideration by
government in its own process of assessments, mapping
and forecasts.
3.2.1.4.2.2.7. Civil society and government shall work together to
ensure that accurate, complete and permanent records
of the history of risks, hazards and responses are
maintained and are accessible for planners and analysts.
3.2.1.4.2.2.8. Other risks of sensitive nature with humanitarian
consequences should be appropriately monitored by
relevant government institutions according to the same
principles as spelled out in this Policy.

3.2.1.4.2.3. Contingency Planning Processes

3.2.1.4.2.3.1. DRMUs will be responsible for the development of
contingency plans with respect to their sectors.

35
 3.2.1.4.2.3.2. DRMUs will maintain historical records of past crises
and contingency plans that must be consulted when
developing new contingency plans.
3.2.1.4.2.3.3. For threats affecting multiple administrative boundaries
and/or sectors, the DRMCO at national and regional
levels shall be responsible for developing holistic
contingency plans based on DRMU plans.
3.2.1.4.2.3.4. There shall be an independent evaluation of each
contingency plan in the post-crisis period to refine
future contingency measures.
3.2.1.4.2.3.5. DRMUs and DRMCOs will exercise periodic disaster
simulations specific to their sectors.
3.2.1.4.2.3.6. Contingency planning and simulations shall take into
account the potential impacts and roles of the private
sector and community based organizations.
3.2.1.4.2.4. Contingency Resource Mechanisms
3.2.1.4.2.4.1. In hazard-prone areas, communities shall be
encouraged to develop and maintain a minimum level
of resources to manage predictable disasters through
their own capacity and resources, government support,
and development initiatives.
3.2.1.4.2.4.2. Each DRMU shall establish/strengthen and maintain a
minimum emergency contingency reserve of financial
resources and/or physical stocks (e.g., cash, food, non-
food reserves).
3.2.1.4.2.4.3. DRMCOs shall establish/strengthen and maintain
centralized Disaster Response and Recovery Funds
(DRRFs) to augment DRMU units once the DRMU
contingency reserves have been exhausted.
3.2.1.4.2.4.4. DRMUs and focal bodies will ensure the inclusion of
budgeted and financed contingency reserves in sectoral
development projects that can be rapidly reprogrammed
in the event of disasters that threaten to affect project
areas or project progress.

3.2.2. Disaster Phase activities:

3.2.2.1. DRMUs shall be responsible for organizing unilateral or joint disaster
and emergency need assessments. Assistance should normally be
provided on the basis of such assessments except when human life
will perish for want of assistance.
3.2.2.2. DRMUs shall initiate rapid disaster area assessments, make
preliminary estimates of affected populations, losses of lives and

36
 property, identify priority needs, and review contingency emergency
plans as per prevailing conditions.
3.2.2.3. DRMUs shall ensure the rapid supply of relief materials to affected
areas.
3.2.2.4. DRMUs shall activate ETFs and emergency operations and coordinate
their activities with others, involving humanitarian actors in
emergency responses if necessary.
3.2.2.5. In case of MCI, the relevant DRMU shall:
3.2.2.5.1. Establish crisis management and response centers.
3.2.2.5.2. Immediately launch search and rescue operations and mobilize the
necessary search and rescue equipment and other relief resources as
required.
3.2.2.6. DRMUs shall closely and continuously follow up and monitor the
progress of emergency response operations, identify problems and
additional needs, and take appropriate actions.
3.2.2.7. DRMUs shall provide adequate and timely information and
comprehensive progress reports to the DRMCOs.
3.2.2.8. DRMUs shall insure rapid information flows from affected areas,
maintain regular contact with relevant actors in the affected areas, and
provide timely and adequate information to the public about the
impacts of disasters and emergency operations.
3.2.2.9. DRMCOs and DRMUs must permanently maintain and make publicly
available current records of all emergency activities within their
sector.
3.2.2.10. DRMCOs shall provide the necessary and timely support to DRMUs
as necessary.
3.2.2.11. In case of MCI, national level disaster and hazards that do not fall
under any one of lead agencies, the DRMCOs shall act according the
directives indicated above.
3.2.2.12. If NGOs and other humanitarian partners are directly involved in
emergency operation, they shall be required to provide complete
details of their activities, materials, and financial reports on a regular
basis to the relevant sector in which they are working.

3.2.3. Post disaster phase activities:

3.2.3.1. DRMUs shall develop a strategy and comprehensive plan for early
recovery and rehabilitation following the declaration of disaster in
their areas of responsibility and implement the plan accordingly.
3.2.3.2. The private sector shall be encouraged, through tax breaks and other
incentives, to participate in post-crisis recovery planning and
implementation.

37
3.2.3.3. Disaster-affected and disaster-prone areas and populations shall
benefit as a matter of highest priority from development investments
in the post-crisis period.
3.2.3.4. DRMUs shall conduct post-crisis evaluations and damage assessments
each time a disaster is declared. The evaluations must review
preparedness, prevention, mitigation, and response strategies in each
affected area. The evaluations must be stored in physical and
electronic format within relevant DRMCOs/Us and be made publicly
available. Recommendations must be formally reviewed by
DRMCOs/Us to improve standards, procedures, strategies, and
guidelines.

3.3. Decentralized DRM and Disaster Declarations

3.3.1. National level disaster declarations shall be made only by the
FDRMC. However, this responsibility can be delegated to the
FDRMCO.
3.3.2. Regional, zonal and woreda levels disaster declarations shall be made
only by a RDRMC. However this responsibility can be delegated to the
RDRMCO.
3.3.3. Each level of administration shall coordinate and utilize all available
resources within their administrative units to manage disaster risks
before seeking additional assistance from the next highest level of
authority or neighboring entity.
3.3.4. If the local administration is unable to manage and coordinate the
disaster with its capacity accordingly, higher levels of administration
shall intervene and provide assistance.
3.3.5. It is not necessary to declare a local disaster if local administrations are
able to manage the crisis without undue adverse impact.
3.3.6. If a local or regional governmental institution(s) determines that a
disaster will exceed existing capacities, that institution(s) shall request
the regional DRMCO to issue a timely disaster declaration. The
RDRMCO will review the request and issue declaration on behalf of the
RDRMC, if deemed appropriate.
3.3.7. If a sectoral FDRMU or regional DRMC/DRMCO determines that a
disaster will exceed existing capacities, that sector or regional
DRMC/DRMCO shall request the FDRMCO to issue a timely disaster
declaration. The FDRMCO will review the request and issue declaration
on behalf of the FDRMC, if deemed appropriate.
3.3.8. Where crises exceed the capacity of a single region, a national disaster
declaration shall be issued.
3.3.9. Disaster declarations shall be issued based on objective situation
analysis and technically-sound early warning systems.

38
 3.3.10. For disasters that arise without warning, responsible authority at
federal and regional levels may declare a disaster in the absence of early
warning reports or situation analysis.
3.3.11. Unlike the declaration of a state of emergency, the declaration of
disaster does not avail government the right to derogate from citizens
their full rights as specified in the Ethiopian constitution and other legal
instruments. However, private property rights may be overridden in the
best interest of at risk communities provided that rights holders are
offered adequate compensation.
3.3.12. Disaster declarations immediately empower DRMCOs in the affected
area(s) to coordinate government efforts to:
3.3.12.1. Mobilize local, regional, federal, and international resources.
3.3.12.2. Re-program humanitarian, development, and private sector
resources to alleviate life-threatening situations.
3.3.12.3. Reschedule personal debts.
3.3.12.4. Suspend certain tax and public labor requirements not to
exceed the expected duration of the crisis impact.
3.3.13. A disaster declaration entails the following duties, privileges and
obligations:
3.3.13.1. Implementation of contingency plans.
3.3.13.2. Development of post-crisis recovery plans and utilization of
contingency reserves against contingency plans, emergency
responses, and post-crisis recovery plans.
3.3.13.3. Empowerment of FDRMCO in consultation with the relevant
DRMUs to appeal for additional assistance beyond government
resources (provided that they can demonstrate that contingency
reserves will be exhausted by the crisis).
3.3.13.4. Upon the advice of FDRMCO, the Ministry of Inland
Revenue will allow for the duty and tax-free importation of
specific emergency supplies. The FDRMCO will ensure that such
imports are used only for humanitarian operations.
3.3.13.5. The official declaring a state of disaster shall organize,
finance, and disseminate an evaluation of the crisis response
within six months of the end of the declared period or one year
after the disaster declaration, whichever is sooner.

3.4. DRM Mainstreaming

3.4.1. All DRMUs and focal bodies will integrate DRM into existing and
future local, regional, and national development strategies, policies,
plans and programs for sustainable development, as well as the policies
and practices of the private sector.

39
 3.4.2. All DRMUs and focal bodies will promote DRM strategies and
coordinate their implementation at different levels and between
government agencies, private sector, communities, UN agencies, NGOs,
and donor governments in their areas of responsibility.
3.4.3. Each DRMU and focal body shall develop its own specific sectoral
DRM standards and guidelines in support of this Policy.
3.4.4. DRM education shall be integrated into formal and informal systems
of education at all levels and shall be promoted through community
awareness.
3.4.5. All development schemes in vulnerable areas shall include DRM
measures.

3.5. Multi-Hazard DRM

3.5.1. Each DRMU and focal body will identify the range of hazards that
may relate to its area of responsibility and develop and implement DRM
strategies to address these hazards.
3.5.2. DRMCOs shall develop regional and national hazard profiles based on
profiles provided by DRMUs.
3.5.3. DRMUs will collaborate with each other to ensure cross-sectoral
cooperation for addressing the range of risks arising from multiple,
interrelated hazards.

3.5.4. Funding Arrangements

3.5.4.1. Financing of Disaster Prevention, Mitigation, Preparedness and

Rehabilitation
3.5.4.1.1. Federal and regional governments shall allocate budget for disaster risk
management initiatives (prevention, mitigation, preparedness, and
rehabilitation) through regular development programs.
3.5.4.1.2. All DRMUs and relevant focal bodies shall include prevention,
mitigation, preparedness, and rehabilitation requirements in their
annual sectoral DRM plans and budgets.
3.5.4.1.3. All DRMUs shall ensure that sufficient DRM funds are secured.
3.5.4.1.4. DRMCOs and DRMUs shall encourage communities to establish local
self-help or community support mechanisms and build and maintain
DRM funds for use in times of disasters.
3.5.4.1.5. DRMCOs and DRMUs will provide technical support to communities
to design fund mobilization mechanisms for emergency response (e.g.,
taxes and surtaxes, voluntary contributions from the public and the
Diaspora, encouraging investors to contribute through tax exemptions,
etc.)

40
 3.5.4.1.6. DRMCOs and DRMUs shall establish National and Regional DRRFs
and the sectoral contingency reserves from a wide range of sources
(e.g., by contributions from federal and regional government budgets,
the private sector, the public, the Diaspora, and international
contributions).
3.5.4.1.7. The DRRFs shall be managed by the FDRMCO and the RDRMCO,
with the oversight of the FDRMC and RDRMCs.
3.5.4.1.8. DRMCs shall guarantee that operational costs for DRMCOs are
included and financed in national and regional annual budgets, and that
DRRFs are replenished in a timely fashion.
3.5.4.2. Financing of Disaster Response and Recovery
3.5.4.2.1. The woreda DRMC is the first government institution to respond to
disasters at local levels. The council will mobilize relief assistance if
the affected kebele in the woreda and communities are unable to cope
up the disaster.
3.5.4.2.2. The primary source of funding for disaster responses shall be from
communities and local administrations in affected areas. The secondary
source will be the next highest level of administration above the
affected areas.
3.5.4.2.3. Federal and Regional DRRFs will be established by federal and
regional DRMCOs to provide resources in times of disasters to
augment sectoral DRM contingency reserves.
3.5.4.2.4. The DRRFs shall be used only for emergency relief and recovery
measures during disaster and post-disaster periods.
3.5.4.2.5. Federal and regional governments should be approached for funding
only when capacity and resources at local levels are overwhelmed by
crises.
3.5.4.2.6. When a crisis threatens to overwhelm available resources, a special
local fund raising event may be organized by federal and regional
sectoral offices in collaboration with the respective DRMCOs.
3.5.4.2.7. When the disaster threatens to overwhelm national capacity, appeal for
external assistance will be issued by FDRMCO upon the guidance of
the FDRMC.
3.5.4.2.8. The FDRMCO in collaboration with the appropriate institution shall
set quality control and minimum standards of imported relief resources
and ensue the quality of imported resources maintain this standards.
3.5.4.2.9. DRMCOs will establish guidelines for the procedures for accessing
contingency funds. Such guidelines shall not contravene the structures
and procedures detailed in this Policy.

41
3.6. Information Management and Communication System
3.6.1. DRMOs and DRMUs shall develop/strengthen and manage integrated
central DRM information management systems and networks that will
serve all DRM components at all levels.
3.6.2. Each DRMUs/focal bodies at all levels shall supply sectoral DRM
information to respective DRMCOs on a regular basis. Similarly,
DRMCOs at different levels shall supply consolidated periodic DRM
information to the next higher level of DRMCOs.
3.6.3. DRMCOs shall ensure the consistency of DRM information/ reports.
3.6.4. DRMCOs shall ensure that all DRM coordination bodies have clear
lines of communication across vertical and horizontal linkages.
3.6.5. DRMCOs will establish a secure and separate communication network
for emergency communication for all disaster managers. This network
shall remain operable even when public network are unavailable.
3.6.6. Each DRMU and DRMCO will develop, maintain, and make
accessible integrated databases of hazards, disasters, and DRM
programs. The database shall include, at a minimum:
3.6.6.1. Hazard types, frequency and intensity (area and population
affected).
3.6.6.2. Disaster types, frequency, intensity and impacts.
3.6.6.3. Disaster risk management interventions by type, cost,
implementing agency, and population affected.
3.6.6.4. Vulnerability by area, population, and livelihood system.
3.6.6.5. Livelihood baseline information that is updated, at a
minimum, every five years.
3.6.7. DRMUs and DRMCOs shall have adequate analytical capacity for
data management, manipulation, analysis, presentation, and
dissemination.
3.6.8. A disaster risk/hazard and vulnerability map shall be produced and
updated by each DRMCO, at a minimum, every five years.
3.6.9. DRMCOs in collaboration with Finance and Economic Development
Offices and other relevant institutions shall estimate the economic and
social impacts of disasters.
3.6.10. All studies and evaluations of any aspect of DRM program shall be
properly documented and maintained by the respective DRMU or
DRMCO for a period of no less than ten years.
3.6.11. External agencies shall provide full cost information on the expenses
relating to disaster responses on a quarterly basis to the DRMU for the
sectors in which they work, and provide comprehensive annual report to

42
 the DRMCOs at the regional and federal levels where they are
operational.
3.6.12. With the exception of information deemed sensitive to national
security, databases shall be made available to the public.

3.7. Consolidated DRM Plans

3.7.1. The major objective of DRM planning is to minimize the adverse
effect of hazards through proactive development and implementation of
comprehensive, integrated, and multi-sectoral DRM interventions.
3.7.2. Each DRMU has the responsibility of developing DRM plans within
their sector (taking into account the different hazards that affect the
sector) and submitting them to their respective DRMCOs.
3.7.3. The plans shall include among other components analysis of hazards,
vulnerabilities, resources and other capacities, details of how
responsibilities, accountabilities, and resources are to be allocated to
specific institutions or individuals, and strategies for risk reduction.
3.7.4. Each DRMU shall ensure that the planning process involves all
relevant bodies, including communities.
3.7.5. All DRMCOs shall compile consolidated DRM plans at their levels.

3.8. The Role of Civil Society and Humanitarian Partners

3.8.1. Civil society and humanitarian partners will:
3.8.1.1. Work in close harmony with relevant DRMCOs and DRMUs
and take direction from them in areas of their specific sectoral
involvement.
3.8.1.2. Participate in different forums and technical committees
dealing with specific hazard types.
3.8.1.3. Provide technical, financial, and material support for DRM
capacity development in addition to responding to humanitarian
crisis.
3.8.1.4. Assist in development of technical skill, knowledge
management, and sharing of best practices for DRM.
3.8.2. NGOs and other humanitarian partners directly involved in emergency
operation shall submit complete details of their plans, implementation
performance, and financial and material utilization on a quarterly basis to
the relevant authorities in the sector in which they are working.
3.8.3. Organized community organizations can mobilize the community to
participate in recovery and rescue operation, early stages of emergency
response operations, and recovery and rehabilitation programs in special
circumstance.
3.8.4. Universities, think tanks, and international partners shall promote
research on DRM.

43
3.9. Cross-Cutting Issues
3.9.1. In times of disaster, the vulnerabilities associated with HIV/AIDS shall
be given special attention.
3.9.2. Disasters may exacerbate social vulnerabilities such as those relating
to gender, age, occupation, location, nationality, or other potential
sources of discrimination. In times of disaster, socially vulnerable groups
shall be given special attention. This includes at a minimum in disaster
affected areas:
3.9.2.1. Protecting the rights of vulnerable groups in all DRM
activities.
3.9.2.2. Ensuring that DRM guidelines, codes, standards, strategies,
legislation, and implementation plans and programs reduce social
vulnerabilities.
3.9.2.3. Collecting and analyzing disaggregated information on DRM
issues by sex and age and other indicators of potential social
vulnerability.
3.9.2.4. Ensuring full participation of vulnerable groups including
women, elderly, and disabled in decision making at all stages of
DRM.
3.9.2.5. In time of emergencies targeting of relief supplies shall be
gender sensitive and give due attention and priority to other
socially vulnerable groups.
3.9.2.6. Providing counseling support to vulnerable groups to enhance
their capacity to manage disaster risks such as reducing the
workload of women and or expanding their income generating
opportunities or protecting enrollment of children in schools.
3.9.3. Disasters may increase gender and age inequalities while exposing
women, men, girls, and boys to unique risks as a result of their age and
sex, such as changing labor roles and increased risk taking in economic
and social coping strategies.
3.9.4. DRMUs are responsible for ensuring that a primary aim of DRM is to
reduce risks faced by socially vulnerable groups.
3.9.5. There shall be equal pay for equal work in all DRM related
institutions. Discrimination in hiring or other benefits based on gender,
disability or age is to be expressly prohibited.
3.9.6. Natural resource degradation and population pressure are major
sources of disaster risks. Therefore, DRM programs shall attach special
importance to environment and population issues. More specifically,
comprehensive DRM plan shall:
3.9.6.1. Address the consequences of rapid population growth and the
nation’s large population base.

44
 3.9.6.2. Give due emphasis to the improvement and protection of the
natural resource base.
3.9.6.3. Have in-built environmental risk reduction and protection
components.
3.9.7. Ensure that all DRM activities are environmentally friendly.

3.10. Regional Administration and International Cooperation

3.10.1. Regional DRMCOs shall develop procedures for mutual disaster risk
management and mutual cooperation with neighboring regions. This will
be facilitated by FDRMCO
3.10.2. DRM is a shared responsibility that shall be fostered through
partnership with neighboring countries. The FDRMCO (in collaboration
with the Ministry of Foreign Affairs) will:
3.10.2.1. Establish and maintain links with IGAD, IGAD member
countries, AU and AU member counties and other international
bodies for DRM activities.
3.10.2.2. Share early warning information on all cross-border hazards.
3.10.2.3. Encourage simulations of mutual cooperation exercises with
neighboring countries for key disaster hazards.
3.10.2.4. Strengthen cooperation and collaboration with other
international DRM institutions with similar aims and purposes.
3.10.2.5. Develop and establish partnerships with international
institutions for DRM functions, including active participation in
international protocols, treaties, and agreements for global DRM
activities.

3.11. Monitoring and Evaluation

3.11.1. DRMCOs and DRMUs shall review and evaluate their progress in the
implementation of DRM plans and incorporate lessons learned.
3.11.2. DRMCOs and DRMUs shall regularly monitor the implementation of
this Policy.
3.11.3. Federal and Regional DRMCOs will initiate and lead reviews and
evaluations of the performance of DRM policy implementation and
provide feedback to the respective DRMCs.
3.11.4. DRMCOs shall organize an annual DRM summit to review the status
of DRM implementation at federal and regional levels, respectively.
3.11.5. Monitoring and evaluation activities shall ensure that DRM system at all levels
address gender and other crosscutting issues adequately and timely.

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3.11.6. Policy Enforcement and Implementation Guidelines
3.11.6.1. Legislation shall be issued and enacted for enforcing the implementation
of the policy in support of the provisions detailed in this Policy.
3.11.6.2. DRM legislation shall ensure that the rights of citizens as enshrined in the
Ethiopian Constitution be protected in times of disaster.
3.11.6.3. The legislation shall specify the duty and responsibilities of all DRM
actors. Relevant institutions and individuals will be accountable for the
failure of discharging their duties and responsibilities indicated in this
Policy. The legislation shall specify the implications, including penal
measures.
3.11.6.4. Federal and regional DRMU shall incorporate DRM duties and
responsibilities in their formal mandates and proclamations.
3.11.6.5. The DRMUs at federal and regional levels will develop sector specific
rules and regulations, detailed standards, implementation procedures and
technical guidelines/directives for effective implementation of this Policy.
3.11.6.6. The DRMUs at federal and regional levels will define duties and
responsibilities of all actors and ensure the availability of adequate
resources for sectoral DRM.
3.11.6.7. The DRMCOs and DRMUs at federal and regional levels will take
corrective measures in case of failures of DRM actors to fulfill their
responsibilities.
3.11.6.8. Federal and Regional DRMCOs shall oversee the implementation of
DRM policies and legislation.

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Annexes
Annex 1:- Definitions of Key Terminologies as Applied in this Policy

1. At risk: the condition of being more likely to be exposed to conditions or

circumstances which would reasonably result in disaster.
2. Basic needs: relief items and other essential assistances to be supplied to disaster
victims to sustain lives and livelihoods.
3. Capacity: a combination of all the strengths and resources (human, material, and
financial) available within a community, society, or organization for effective
disaster risk management.
4. Civil society: encompasses both the wide range of organizations outside of the
government and the family. These include social, cultural, and religious bodies,
voluntary organizations and others such as professional associations, think thanks
or foundations, etc.
5. Community: a group of people with a commonality of association, having
common interest, shared experience, or function and living in the same locality
and under the same public administration.
6. Contingency planning: a process in which scenarios and objectives are agreed,
managerial and technical actions are defined, and potential response systems are
put in place in anticipation of potential crises to mitigate or better respond to a
likely emergency situation.
7. A disaster: the occurrence of an abnormal event triggered by a hazard(s) that
impacts a given entity (including a vulnerable community, geographical area,
infrastructure or a group of people in significant numbers gathered in one place)
causing substantial damage and/or casualties, leaving the affected entity unable to
function normally and forcing it to seek outside assistance for survival.
8. Disaster declaration: the official announcement of the occurrence of a disaster by
the responsible authority if the concerned body in the affected area determines
that scale/impact of the disaster is beyond its capacity to cope with effectively,
thereby requiring the support of others.
9. Disaster phase: is time when an emergency event strikes. DRM activities
implemented during this period include warning/evacuation, saving of people,
provision of immediate assistance and assess sing damages.
10. Disaster risk reduction (DRR): the broad development and application of
policies, strategies, and practices to minimize vulnerabilities throughout
communities via prevention, mitigation, and preparedness. DRR action may
include the construction of physical structures (such as flood protection dykes,
retaining walls for landslides), environmental protection and rehabilitation,
rainwater harvesting, relocation of vulnerable households, provision of safer
means of livelihoods, and other proactive social protection measures.

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11. Disaster Risk Management (DRM): collective actions and efforts of concerned
institutions, policies, programs, and other measures designed to prevent, mitigate,
prepare for, and respond to a disaster and to provide recovery and rehabilitation
support.
12. Disaster Risk Management System: a system of organizational structures,
mechanisms and process, strategies, policies, procedures, programs, and other
measures designed to prevent, mitigate, prepare for, and respond to a disaster and
to provide recovery and rehabilitation support.
13. Displacement: the process of people being forced to move from their homes to
other places because of a natural hazard, war/conflict, or other human-made
action.
14. Emergency response: the provision of essential goods and services to a disaster
affected population to save lives and protect livelihoods in times of disaster.
15. Entity: something that exists as a particular and discrete unit and is affected by a
disaster event.
16. Federal: the first and highest tier of Government in the administrative structure of
the Federal Democratic Republic of Ethiopia.
17. Gender: is part of the broad socio-cultural context that is socially constructed
roles of and relations between men and women that are learned through
socialization process. It refers to historically, socially, and culturally constructed
differences between the sexes.
18. Hazard: a potentially damaging physical event, phenomenon, and/or human
activity that may cause the loss of life or injury, property damage, social and
economic disruption, or environmental degradation.
19. Kebele/Farmer’s Kebele Association: the lowest administrative unit with
its own jurisdiction in urban and settled rural areas, respectively. It is an
organized body of the inhabitants of a given urban or rural locality.
20. Lead agency: the organization that has the responsibility, accountability, and
specialist expertise to lead DRM activities for specific hazards or emergency
situations.
21. Local disaster: a disaster that affects a single woreda or community within a
woreda and the administration of the woreda concerned, either alone or with the
assistance of others in the area is able to deal with it effectively.
22. Line department: a relevant government institution that has full responsibility in
a specific sector at all levels.
23. Mainstreaming: integrating and institutionalizing disaster risk management in the
process of the development of policies and strategies, and in the planning and
implementation stages of regular programs across all sectors and at all levels.
24. Mass casualty incident (MCI): a major incident such as an earthquake, terrorist
attack, a severe flood, or any other incident which because of its physical size, the

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 number and criticality of victims, its complexity or its intensity is likely to
suddenly overwhelm existing capacities.
25. Mitigation: actions or processes designed to reduce the severity of potential
consequences or level of likely harm of a hazard. Mitigation measures can be both
physical/structural and nonstructural and can take place before, during, or after a
disaster. It can be achieved through proper planning and implementation of
programs before the disaster event, during or after a disaster.
26. Mutual cooperation: cooperation and voluntary provision of resources, services,
and facilities, particularly among neighboring countries, federal, regional, zonal
and woreda administrations, etc., to assist each other when existing resources
prove to be inadequate and there is a need for additional support.
27. National level disaster: a disaster is a national level disaster if it affects more
than one region or if a single region is unable to manage using regional resources
and capacities effectively at all levels, thereby requiring federal intervention.
28. Post disaster phase: is an event after the occurrence of disaster. DRM activities
during this period includes coordinated measures of support to affected
communities/areas to recover and rehabilitate from the effects of crisis and
construction/reconstruction to reduce vulnerability to hazards, to mitigate against
the risk of future hazards, and to restore social, economic and physical well-being
to proper levels of functioning.
29. Pre-disaster phase: is an event before the occurrence of disaster. DRM activities
implemented during this period include prevention, mitigation, and preparedness
activities in order to eliminate or reduce the root causes of disaster.
30. Preparedness: specific measures taken before disasters strike, usually to forecast
or warn against them, to take precautionary measure when they threaten, and to be
ready for the appropriate response. Preparedness includes actions and measures
being undertaken before the occurrence of a disaster to avert or minimize the
suffering of the affected entity. Preparedness entails the building of capabilities
before a hazard threatens to overwhelm coping capacities in order to reduce the
impacts of future disasters through maintaining contingency reserves and
strengthening early warning system.
31. Prevention: measures taken to reduce the risk of disasters posed by hazards,
primarily through eliminating the root causes that render individuals, households,
communities, and nations vulnerable to disasters. Taken before a disaster occurs,
prevention measures can better prevent disasters and ensure a hazard has no
disastrous impact
32. Protection: measures that address threats to or the vulnerabilities of someone or
something and preclude damage or injury that would cause disruption or
interference with normal practices.
33. Reconstruction: longer-term activities required to restore physical infrastructure
and services damaged by a disaster.

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34. Recovery: actions taken after a disaster to restore the living conditions of
disaster-stricken people or communities while encouraging and facilitating
necessary adjustments to build resilience to prevent similar crises in future.
35. Region: the second tier of Government in the administrative structure of the
Federal Democratic Republic of Ethiopia.
36. Regional level disaster: a disaster is designated as regional if it affects more than
one zone in the same region and if the region concerned is able to deal with it
effectively, or if a single zone in the region is unable to deal with it effectively
using local resources and capacity within its reach, thereby requiring regional
intervention.
37. Rehabilitation: the measures applied after a disaster which are necessary to
restore normal activities and build resilience to future shocks in affected areas,
communities, and economic sectors.
38. Relief: activity undertaken in the immediate aftermath of a disaster to save lives,
protect livelihoods, and address immediate humanitarian needs, including the
provisional restoration of essential services.
39. Resiliency: the capacity to withstand an extreme natural event with a tolerable
level of losses, including mitigation actions consistent with achieving that level of
protection.
40. Risk: the probability of a specific hazard occurring in a given location and its
likely consequences for people and property.
41. Social vulnerability: those determinants of vulnerability that arise from non-
physical factors (e.g., identity, economic, political, cultural, etc.) and are related
to gender, age, occupation, location, etc.
42. Sustainable development: development that meets the needs of the present
without compromising the ability of future generations to meet their own needs. It
contains two key concepts: the concept of "needs", in particular the essential
needs of the world's poor, to which overriding priority should be given; and the
idea of limitations imposed by the state of technology and social organization on
the environment's ability to meet present and future needs.
43. Volunteer: individuals or a broad array of organizations, institutions, agencies,
collectives (including charities), cooperatives, religious groups, professional and
economic associations, social service providers, etc. who freely enlist or are
involved in services in disaster management without expectation of return or
profit.
44. Vulnerability: the potential to suffer harm or loss. Determinants of vulnerability
include physical, social, economic, political, cultural, and institutional factors.
45. Woreda: the fourth tier of Government in the administrative structure of the
Federal Democratic Republic of Ethiopia.
46. Zone: the third tier of Government in the administrative structure of the Federal
Democratic Republic of Ethiopia.

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47. Zonal level disaster: a disaster is defined as a zonal level disaster if it affects
more than one woreda in the same zone and the zone concerned is able to deal
with it effectively, or if a single woreda in the zone is unable to deal with it
effectively using local resources within its reach, thereby requiring zonal
intervention.

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