Training - Guideline On Gender and Social Inclusion in Disaster Risk Reduction-2012 PDF

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DISASTER RISK REDUCTION
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facilitators guidebook
PRACTICING

Developed by
A K M Mamunur Rashid
Hasan Al Shafie
Edited By
Mohammad Mohiuddin
GOVERNMENT OF THE PEOPLE'S REPUBLIC OF BANGLADESH
Practicing Gender & Social Inclusion in Disaster Risk

Reduction Practicing Gender & Social Inclusion in Disaster
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Disaster Risk Reduction Practicing Gender & Social Inclusion
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Gender & Social Inclusion in Disaster Risk Reduction
PRACTICING

PUBLISHED ON
June 2009, Dhaka

DEVELOPED BY
A K M Mamunur Rashid
Hasan Al Shafie
EDITED BY
Mohammad Mohiuddin
TECHNICAL SUPPORT
Comprehensive Disaster Management Program (CDMP)

O V E R A L L C O O R D I N AT I O N
Ian Stanford Rector

PUBLISHED BY
Directorate of Relief and Rehabilitation

Ministry of Food and Disaster Management
Government of the Peoples Republic of Bangladesh
FINANCIAL SUPPORT
United Nations Development Programmme (UNDP)

Department for International Development (DFID)
PHOTO COURTESY
Social Development Foundation (SDF)

Handicap International in Bangladesh
DESIGN & PRINT
Mass-line Printers
Phone: 8123446
office@masslineprinters.com
FORWARD
During the implementation of CDMP phase I it has been learning for all of us that
enabling communities vulnerable to disasters to strengthen their resilience to adverse
events needs more special attention to the most vulnerable group of people. It is also
observed that the most vulnerable group of people particularly the socially excluded
groups often remain invisible in disaster risk reduction program, neither they get
opportunity to become active stakeholders and designers or planners, voicing their
own needs and opinions nor adequate attentions are given by the change agents.
Keeping this view in mind CDMP has developed a guidebook for gender and social
exclusion analysis; the guidebook intends to provide thorough outlines for analyzing
and managing the risk situations of the most vulnerable groups in Bangladesh
through capturing their own voices.
Though the existing Community Risk Reduction Assessment (hereafter CRA)
guideline has the provision to include the stakeholders from all strata of population
but the agencies who are responsible for conducting CRA sessions and formulation
of Risk Reduction Action Plan need more specific understanding about gender and
social inclusion in respect to the background of the individual area where CRA would
be conducted, classification of the socially excluded people as well as the situation of
the excluded people in disaster. It is hoped that this guidebook will enable the
disaster professionals to increase the level of awareness and capacities to reduce the
effects of disasters on the most vulnerable communities.
The guidebook consist the issues and concerns of social inclusion, situation of the
people at risk and disaster, excluded people in major disasters, statement of the
problems, rationale, goal and objectives, scope and framework in this guidebook are
narrated sequentially.
The guidebook also elaborately mentioned how to do the disaster risk assessment
involving the socially excluded people as active stakeholder in the field step by step.
I therefore extend my deepest appreciation to the authors of this guidebook and their
team and Uttrayan Janakallyan Mohila Samity (UJMS), the CDMP partner for their
great efforts in producing this guide which would be incorporated in the existing best
practice CRA guidebook of CDMP.
Md. Fazlul Haque

Director General
ACKNOWLEDGEMENT
The Directorate of Relief and Rehabilitation (DRR) acknowledge the valuable
contribution of CDMP partner 'Uttrayan Janakallyan Mohila Samity' (UJMS), and in
the particular, the effort of Mr. Hasan Al Shafie the advisor of UJMS and the principal
author of the guidebook for developing, a Guidebook for Gender and Social Exclusion
Analysis for the Disaster Managers. Special recognition is given to Mr. A.K.M.
Mamunur Rashid, Program Manager-Field Service (CDMP) for developing the gender
and social exclusion analysis framework based on which this guidebook is illustrated.
All the development process of the guidebook was inspired by the continuous
encouragement and guidance from Mr. Ian Stanford Rector, Chief Technical Adviser
of CDMP.
We also express our gratitude to Mr. A. K. M. Abdul Awal Mazumder, Former
Additional Secretary, Ministry of Food and Disaster Management, Mr. Md. Khalilur
Rahman, Former Director General, Directorate of Relief and Rehabilitation and Mrs.
Farida Khaleque, President-UJMS for their kind presence in the sharing workshop
held on 24 November 2008 at the conference room of Hotel Abakash of Bangladesh
Parjatan Corporation and providing valuable suggestions and guidance to us. DRR
acknowledges all the participants from DRR and participants from other Govt. and
Non Govt. organizations who provided their valuable comments and suggestions for
giving the guideline a final shape.
DRR recognizes the contribution of Mr. Mohammad Mohiuddin, Senior Project
Specialist-CDMP for his persistent feedback to improve the guideline and for taking
the trouble of doing final editing of the guidebook. DRR also recognizes the
contribution of Ms. Mahmuda Begum, Short Term Consultant of CDMP for providing
guidance and inputs and working closely with UJMS to get the quality work done.
Nepur Ahmed
Director, Directorate of Relief and Rehabilitation &
Component Manager, Community Risk Reduction Planning
Comprehensive Disaster Management Programme (CDMP)
CONTENTS
Glossary
Acronyms
Chapter One: IntroductIon
13-22
1.1. Situation and Contexts

1.2. Framing the Context: Place and People
1.2.1. Ecological Features
1.2.2. Hazard Profile
1.2.3. Vulnerabilities and the People at Risk
13
14
14
14
15
1.3. Most Vulnerable People in Disaster: Issues and Concerns

1.3.1. The Most Vulnerable Groups
1.3.2. Social Exclusion and Vulnerabilities
1.3.3. The Exclusion of Women and Children
1.3.4. People with Disabilities in Disaster
1.3.5. Exclusion of Indigenous and Minority Communities
16
16
17
18
18
19
1.4. Profiling this Guidebook

1.4.1. Problem Statement
1.4.2. Purpose and Objectives
1.4.3. The User of this Guidebook
1.4.4. The Outline of the Guidebook
20
20
20
21
21
Chapter Two: Risk Management Model and Frameworks
23-30
2.1. Risk Management Model
23
2.2. The CDMP Framework
24
2.3. Social Exclusion Analysis Framework
26
2.4. Gender Analysis in Development Paradigms
27
2.5. Gender Mainstreaming: Basic Concepts and Principles
28
2.6. Gender Sensitive Indicators
29
2.7. Guidelines for Gender Sensitive Disaster Risk Reduction Measures
30
Chapter Three: General Methodological Guidelines
31-38
3.1. Selection of Research Teams

3.1.1. Training and Capacity
3.1.2. Composition of Research Team
31
32
32
3.2. The Facilitator/Moderator
32
3.2.1 Necessary Qualifications of Facilitators/Moderators
32
3.3. Participatory Rural Appraisal (PRA) Techniques

3.3.1. Focus Group Discussion (FGD)
3.3.2. Scenario Development Workshop
33
34
36
3.4. The Programme Setting

3.4.1. Appointments Making
3.4.2. Venue Selection
3.4.3. Materials and Supplies
37
37
37
38
Chapter Four: Activities in the Field
39-44
STEP ONE
4.1. Establishing the Context
4.1.1. Understanding Goal and Products
4.1.2. The Purpose
4.1.3. Define the Task
4.1.3.1. Defining the Internal/ Operational Context
4.1.3.2. Defining the External/ Strategic Context
4.1.4. Activities on the Ground
4.1.4.1. Identification of Vulnerable Population
4.1.4.2. Stakeholders Identification
4.1.4.3. Transect Walk
4.1.4.3.1. Preparation for the Process
4.1.4.3.2. Process
4.1.4.4. Key Informants Interview (KII)
4.1.4.4.1. Preparation for the Process
4.1.4.4.2. The Process
4.1.4.5. Secondary Information Collection
STEP TWO
4.2. Scenario Development Workshop
4.2.1. General Overview
4.2.2. Guidelines for Users
4.2.3. Developing Risk Criteria
4.2.3.1. Setting Criteria
4.2.3.2. Tips for Developing Risk Criteria
4.2.3.3. Setting Likelihood Criteria
4.2.3.4. Setting Consequence Criteria
4.2.4. Risks Identification
4.2.4.1. Guidelines for Users
4.2.4.2. Tips for Effective Risk Identification
4.2.5. Hazard Analysis
4.2.5.1. Describing Hazards or Sources of Risk
4.2.5.2.. Example Source of Risk Description
4.2.5.3. Guidelines for Analysing Hazards
4.2.5.4. Examples of Main Hazard Types
4.2.5.5. Identification of Risk Relationships
39
39
40
40
41
41
41
41
42
42
43
43
43
44
44
44
45-58
45
45
46
46
46
46
47
49
49
50
50
50
51
51
52
52
4.2.5.6. Example: Risk Relationship Identification Matrix

4.2.5.7. Examples of Hazard Analysis Output Matrix
4.2.6. Generate Risk Statements
4.2.7. Suggested Tools, Techniques and Activities
4.2.7.1. Social Mapping
4.2.7.2. Social Exclusion and Disability Mapping
4.2.7.3. Hazard Mapping
4.2.7.4. A gender-Disaggregated Activities Calendar
4.2.7.5. Hazard Venn
4.2.8. Progress Indicators
4.2.9. Process Documents
52
53
53
53
53
54
55
55
57
57
58
STEP THREE
4.3.2. Capacity and Vulnerability Assessment
4.3.2.1. Physical/Material Dimension of CVA
4.3.2.2. Social/Organizational Dimension of CVA
4.3.2.3. Motivational/Attitudinal Dimension of CVA
4.3.2.4. Notes for Facilitators
4.3.3. Access to and Control over Resources and Services
4.3.3.1. The Process
4.3.4. Gender Roles Analysis Framework
4.3.4.1. Mosar Framework For Gender Roles Analysis
4.3.5. Gender Analysis Matrix in Disaster Management
59-68
59
59
60
60
61
62
63
63
64
65
66
68
68
STEP FOUR
4.4.2. Risk Analysis
4.4.2.1. Tips For Effective Risk Analysis
4.4.2.2. Determining Likelihood and Consequence
4.4.2.3. Tips for Determining Likelihood and Consequence
4.4.2.4. Risk Rating Matrix
4.4.3. Risk Evaluation
4.4.3.1. Risk Evaluation and Acceptability
4.4.3.2. Tips for Risk Evaluation
69-75
69
69
70
70
70
71
73
73
74
74
75
STEP FIVE
4.5.2. Risk Treatment
4.5.3. The Need for Risk Treatment
76-85
76
76
77
4.5.4. Risk Response Criteria

4.5.5. Risk Treatment Option Identification
4.5.5.1. Risk Treatments Option
4.5.6. Assessing Risk Treatment Options
4.5.7. Implementing Risk Treatment Projects
4.5.7.1. Tips for Implementing Risk Treatments
4.5.8. Monitoring and Reviewing
4.5.8.1. The Purpose
4.5.9. Guidelines for Participatory Evaluation
4.5.9.1. Guiding principles of Participatory Evaluation in CRA
4.5.10. Resource Mobilization Matrix
4.5.10.1. The Process
77
77
78
80
80
81
82
82
83
83
84
84
85
85
Tables
1.1
Vulnerability Indicators for Stakeholders and Groups
15
2.1
Gender Sensitive Indicators
30
3.1
Overview of PRA Techniques/ Tools Relevant to Risk Analysis
33
3.2. Comparative Chart for Participatory Methods
34
4.1
56
Seasonal Activity Calendar Differentiated by Age and Sex
4.2. CVA Matrix (Physical/ Material)
60
4.3. CVA Matrix (Social/ Organizational)
61
4.4. CVA Matrix (Motivational/ Attitudinal)
61
4.5
63
Access to and Control of Resources Matrix Differentiated by Sex
4.6. Output Matrix for Evaluating Risk
74
4.7. Some Criteria for Assessing Risk Treatment Options
80
4.8. Output Matrix for Implementing Risk Treatment Projects
81
Figures & Charts

1.1
Understanding Hazard, Risk And Vulnerability
14
2.1
The Risk Management Process
23
2.2
The Focus of Gender Analysis in Different Development Paradigms
28
4.1
Inputs and Outputs in Risk Analysis
39
4.2
Impact Chain for Agriculture and income of Torrential Rain
69
4.3
Risk Treatment Model
76
Annex
86
References
95
GLOSSARY
Capability
A demonstrable capacity to respond to and recover from a particular threat or

hazard. Originally a military term, it includes personnel, equipment, training, and
such matters as plans, doctrine and the concept of operations.
Capability gap
The gap between the current ability to provide a response and the actual
response assessed to be required for a given threat and hazard. Plans should
be made to reduce or eliminate this gap, if the risk justifies it.
Capacity
Capacity is the existing strengths in individual and social groups. It includes

peoples materials and physical resources, social resources and beliefs and
attitudes which able the local people to cope with crises and recover from it.
CVA matrix
CVA is a framework for analysis developed by Mary Anderson and Peter

Woodrow. Capacities and Vulnerabilities can be categorized into material/
physical, social/organizational and attitudinal/ motivational.
Consequences
Impact resulting from the occurrence of a particular hazard or threat, measured

in terms of the numbers of lives lost, people injured, the scale of damage to
property and the disruption to essential services and commodities.
Damage
Physical destruction, corruption of information, or loss of beneficial social

phenomena (e.g. trust or affiliation).
Gender analysis matrix
The Gender Analysis Matrix (GAM) developed by Rani Parker makes clearer
the impact of any program or project on women, men, household and
community. This can be used during the planning to plot potential impact of the
project on four key areas: labour, time, resources, and culture. It also allows for
a disaggregated response between men and women, between household and
community.
Generic plan
A single plan designed to cope with a wide range of emergencies.
Hazard
An accidental or naturally occurring event or situation with the potential to cause

physical (or psychological) harm to members of the community (including loss
of life), damage or losses to property, and/or disruption to the environment or to
structures (economic, social, political) upon which a communitys way of life
depends.
Hazard assessment
A component of the risk assessment process in which identified hazards are

assessed for future action.
Hazard identification
A process by which potential hazards are identified.
Implementing risk treatment projects
An implementation strategy is developed on proposed consensual options by

the parti cipants (primary and secondary stakeholders).
Impact
The scale of the consequences of a hazard or threat expressed in terms of a

reduction in human welfare, damage to the environment and loss of security.
Indigenous communities
Indigenous communities, particularly those living in remote areas, face injury,

loss and damage from the effects of natural disasters each year.
Monitoring and reviewing
Monitoring and review is an integral part of the risk management system, it also
supports continuous improvement. Changing circumstances can affect the need
for treatment of risks, alter priorities, or mean that selected treatment methods
are no longer effective. This means that there needs to be monitoring of risks,
treatment plans and strategies, and the management systems set up to control
implementation. Clear arrangements for monitoring and review should be made
and documented throughout the CRA process.
Most vulnerable groups
The enduring experience of living with disasters in Bangladesh suggests that the
women, children, PWDs and socially excluded groups constitute the most
vulnerable segments of the society and are disproportionately affected by the
negative impacts of any disaster.
Planning assumptions
Descriptions of the types and scales of consequences for which organisations

should be prepared to respond. These will be informed by the risk assessment
process.
Resilience
The ability of the community, services, area or infrastructure to withstand the

consequences of an incident.
Risk
Risk measures the significance of a potential event in terms of likelihood and

impact. In the context of the Civil Contingencies Act, the events in question are
emergencies.
Risk Assessment
A structured and auditable process of identifying potentially significant events,

assessing their likelihood and impacts, and then combining these to provide an
overall assessment of risk, as a basis for further decisions and action.
Risk evaluation
Risk evaluation involves comparing the level of risk found during the analysis
process with previously established risk criteria, and deciding whether these
risks require treatment. The result of a risk evaluation is a prioritized list of risks
that require further action. This step is about deciding whether risks are
acceptable or need treatment.
Risk management
The culture, processes and structures that are directed towards the effective
management of risks.
Risk rating matrix
Matrix of impact and likelihood for an event, to ascertain the risk.
Risk treatment
A systematic process of deciding which risks can be eliminated or reduced by

remedial action and which must be tolerated.
Social exclusion
Social exclusion describes a process by which certain groups are systematically

disadvantaged because they are discriminated against on the basis of their
ethnicity, race, religion, sexual orientation, caste, descent, gender, age, disability,
HIV status, migrant status or where they live. Discrimination occurs in public
institutions, such as the legal system or education and health services, as well
as social institutions like the household, and in the community. (DFID 2005).
Social excluded community
Indigenous, religious minorities and minor occupational communities are social

excluded community. In Bangladesh context, religious minorities are mainly
other than the Muslim Sunni religious group. These are Hindu, Christian,
Buddhist, Shikh and etc. In rural Bangladesh, occupational minorities are mainly
Bedes, Fishermen, Tati, Kamar, Kumar, Methor, Muchi etc. who are included in
the socially excluded occupational community.
Specific plan
A plan designed to cope with a specific type of emergency, where the generic
plan is likely to be insufficient.
Threat
The intent and capacity to cause loss of life or create adverse consequences to
human welfare (including property and the supply of essential services and
commodities), the environment or security.
Threat assessment
A component of the risk assessment process in which identified threats is

assessed for future action.
Vulnerability
The susceptibility of a community, services or infrastructure to damage or harm

by a realised hazard or threat.
ACRONYMS
GENERAL
AEZ
Agro-ecological Zones
CBO
Community-Based Organization
CDM
Comprehensive Disaster Management
CHTs Chittagong Hill Tracts
CRA
Community Risk Assessment
Capacity and Vulnerability Analysis
CVA
ERM
Emergency Risk Management
FGD
Focus Group Discussions
GAM
Gender Analysis Matrix
GDP
Gross Domestic Product
GO
Government Organization
HIV
Human Immunodeficiency Virus
HR
Human Rights
KII
Key Informants Interview
M & E Monitoring and Evaluation
MSM
Males who have Sex with Males
NAPA National Adaptation Programme of Action
NGO
Non-Governmental Organization
PM&E Participatory Monitoring and Evaluation
PPRR Prevention, Preparedness, Response and Recovery
PRA
Participatory Rapid/Rural Appraisal
PWDS Persons with Disabilities
RM
Risk Management
UDMC
Union Disaster Management Committee
ORGANIZATIONS
BBS
CDMP
CIDA
DFID
LGED
UN
UNDP
UP
UJMS
Bangladesh Bureau of Statistics

Comprehensive Disaster Management Programme
Canadian International Development Agency
Department for International Development (U.K.)
Local Government Engineering Department
United Nations
United Nations Development Programme
Union Parishad
Uttarayan Janakallyan Mohila Samity
chapter one
INTRODUCTION
1.1. SITUATION AND CONTEXTS

The guidebook intends to provide thorough outlines for analyzing and managing the risk
situations of the most vulnerable groups in Bangladesh through capturing their own
voices. It is hoped that this guideline will enable the disaster professionals to increase the
level of awareness and the response capacities of local communities to potential and
frequent natural disasters, as well as to reduce the effects of these disasters on the most
vulnerable groups. This guidebook provides guidance for disaster professionals in
Bangladesh on carrying out risk management and emergency response programmes
through unfolding the ways to include the most vulnerable categories in the process.
In humanitarian emergency situations, women and children, persons with disabilities
(hereafter PWDs) and socially excluded groups constitute the most vulnerable segments
of the society and tend to be disproportionately affected by the negative impacts of
disasters. At the same time, they often remain invisible in disaster reduction or
emergency response programmes, even though their number statically makes up a
significant portion of any population. These most vulnerable categories are, most often,
not included in the various stages of disaster response, neither as recipients of aid to
meet their basic as well as specific needs, nor as active stakeholders and designers or
planners of aid measures, voicing their own needs and opinions.
The exclusion and enduring undervaluing of women, persons with disabilities and socially
excluded groups perpetuate a cycle of poverty and isolation. The realities on the ground
exhibit that these groups of people suffer the most from the disaster damages and have
least capacities to resist and recover from the losses sustained from a hazard or other
threats, without any external assistance. The situation turns even worse under policy and
performance breakdown in the planning for and response to the needs of the most
vulnerable categories in our social settings.
The excluded people are now being addressed in community base disaster risk reduction
action plan. But the stakeholders, who are responsible for the formulation of this plan,
need more specific understanding about gender and social exclusion in respect to the
background of the areas, classification of the socially excluded people as well as the
situation of the excluded people in disaster. In this chapter, the issues and concerns of
social exclusion, situation of the people at risk and disaster, excluded people in major
disasters, statement of the problem, rationale, goal and objectives, scope and framework
in this guidebook are narrated sequentially.
1.2. FRAMING THE CONTEXT: PLACE AND PEOPLE

1.2.1. ECOLOGICAL FEATURES
Agriculture is the mainstay of Bangladesh economy and of the people at large. This sector
also accounts for 48.1 percent of labour force (BBS 2007). The contribution of agriculture
to Gross Domestic Product (GDP) averages 22% of GDP (BBS 2007). Bangladesh is
endowed with potential agricultural resources and characterized by diverse physical
features that make up 30 major agro-ecological zones (AEZ) with high diversity indices of
genetic resources. These ecological zones resemble homogeneity in agricultural and
ecological features, while differences are accounted on four fold characteristic
classifications in relation to physiography, soil types, land types by inundation levels and
agro-climatology. Physiographic forms the primary element in delineating the agroecological regions, which comprises broadly of 3 regions including floodplain area,
pleistocene terrace, and the hilly regions. The floodplain covers 80% (NAPA 2005) which
are located in the north-western, central, south-central and north-eastern regions.
Pleistocene terrace covers 8% (ibid) which consists of Madhupur and Barind Tract. The
hills cover 12% of the total land area which include the low hills and hillocks of Sylhet and
the Chittagong Hill Tracts.
Bangladesh, known as the land of rivers, is geographically positioned at the receiving end
of perhaps the largest river system, and formed at confluence of the Ganges (Padma),
Brahmaputra (Jamuna), and Meghna rivers and their tributaries- the number would
exceed 310 (BBS 2006). While the Tropic of Cancer divides Bangladesh and has
endowed the country with a tropical monsoon climate characterized by heavy seasonal
rainfall, moderately warm temperatures and high humidity. Three distinct seasons can be
recognized in Bangladesh from
climatic point of view: the dry
winter season from November
HAZARD
through February; the premonsoon hot summer season
from March through May, and the
rainy monsoon season which lasts
RISK
till October.
1.2.2. HAZARD PROFILE

Bangladesh owing to the factors
like geographical positioning,
deltaic formation history and lowlying coastal morphology is
perhaps said to be the most
disaster prone region on earth. The
1 4
VULNERABILITY
Locations and populations (1) in the Yellow region are characterised by
certain types of vulnerability, (2) those in the Red and Orange regions are
threatened by natural events. However, risk only arises in the Orange area,
where hazard and vulnerability coexist.
FIGURE 1.1 n UNDERSTANING HAZARD, RISK AND VULNERABILITY
country is exposed to natural hazards of all possible sorts, such as, floods, river bank
erosion, cyclones, droughts, water logging, arsenic contamination, salinity intrusion,
tornadoes, heat waves, cold waves, earthquakes etc. The (co) occurrence of these natural
events are often coupled with and multiplied by the high base vulnerabilities of the
individuals, households and communities resulting in disasters that further drive the country
towards greater environmental degradation, hunger, poverty, social deprivation and political
conflicts, and thereby impeding the socio-economic development of the country.
The country is highly susceptible to natural hazards and climate change impacts. The
livelihood base of the people significantly suffers from erosion resulting from recurrent
and over exposure to diverse natural hazards. Underlying the impact of a disaster is the
issue of vulnerability. Vulnerability, at the national level, to natural hazards is determined
by a complex and dynamic set of influences, such as the economic structure of a
country, its stage of development and prevailing economic conditions and policy. The
figure (Figure 1.1) illustrates the basic understanding and relations of vulnerability with
hazard and risk, in general.
TABLE 1.1
VULNERABILITY INDICATORS FOR STAKEHOLDERS AND GROUPS

LESS VULNERABLE
MORE VULNERABLE
Special Needs/Health
Healthy stakeholders and

communities
Frail, infirm, dependent on

medical support/systems
Critical Infrastructure
Robust, protected
Frail, exposed
Employment
Little unemployment
Substantial unemployment
Ethnicity
Groups with sufficient

knowledge of Bangla (in the
context of CHTs), socially
cohesive members of
supporting groups
Groups with no or insufficient

Bangla (in the context of CHTs),
socially not cohesive, nonmembers of supporting groups
Government Planning Processes

Including Policies and Programs
In place and effective
Not in place or not effective
Items of Environmental and

Cultural Significance
Robust, protected
Frail, exposed
Local Economic Production and

Employment Opportunities
Robust, protected
Frail, exposed
Medical and Emergency Services
Robust, resilient
Frail, not resilient
Response and Recovery

Capability
Tested and adequate
Untested or inadequate
Stakeholders and Communities

Planning Process Including
Mitigation Measures
Stakeholders and
communities participate in
planning process, effective
mitigation strategies
Stakeholders and communities

not involved in planning
process, no or ineffective
1 5
1.2.3. VULNERABILITIES AND THE PEOPLE AT RISK

The high population density, widespread poverty, lack of awareness and education,
enormous pressure on rural land, and agriculture based economic system cause and
accelerate the vulnerabilities of the general population of Bangladesh. The impacts of any
disasters are not equally distributed over the population, since some groups of people are
more vulnerable than others. Hence the most vulnerable people suffer the most from the
disaster damages and have least capacities to resist and recover from the losses
sustained from a hazard or other threat.
Women and children, Persons with disabilities (PWDs) as well as the socially excluded
people are most vulnerable people in these hazards due to their high degrees of base
vulnerabilities. When determining vulnerability by establishing the capability of these
groups and their encompassing environment to anticipate, cope with, and recover from
emergencies, it is important to consider the level of volatility and the potential rates of
change that may exist. Studies of vulnerability involve both quantitative and qualitative
methods. A variety of models exist to identify or describe the cumulative impact of risks
and the causal relationship between them. Understanding vulnerability means
understanding the relationships of these risks and how they could combine to trigger or
escalate an event. To gain a thorough understanding of the interactions between risks it
may be necessary to identify and implement appropriate indicators or performance
measures.
1.3. MOST VULNERABLE PEOPLE IN DISASTER: ISSUES AND CONCERNS

1.3.1. THE MOST VULNERABLE GROUPS
The enduring experience of living with disasters in Bangladesh suggests that the women,
children, PWDs and socially excluded groups constitute the most vulnerable segments of
the society and are disproportionately affected by the negative impacts of any disaster.
They have some additional vulnerability against different hazards and often remain
invisible in disaster reduction or emergency response programmes. Additionally, different
marginal groups and people in very low earning households are rather prone to be in
disaster as they are usually poorest amongst the poor; and more vulnerable amongst the
vulnerable. Some of these most vulnerable groups in Bangladesh are:
n
n
n
n
n
n
n
n
n
n
n
n
1 6
Children and Adolescents

Women (Including Female Headed Households, Victims of Domestic Violence)
People with Disabilities (PWDs)
Religious Minorities Groups
Trafficked Persons
HIV Positive Individuals
Males who have Sex with Males (MSM)
Older Persons/ Elderly Citizens
Indigenous Minorities
Occupational Minority Groups
Very Poor/Homeless
Refugees (Rohingga, Bihari etc.)
1.3.2. SOCIAL EXCLUSION AND VULNERABILITIES

This guidebook recognizes that all these aforesaid groups entail certain degrees of
alienation in the disaster reduction or emergency response programmes. This distancing
is also an outcome of the wider social processes within which these groups usually
receive inadequate attention and are systematically disadvantaged owing to different
reasons. This guidebook defines the situation of these groups as a form of social
exclusion on the following grounds:
n
These groups are, in various ways, kept away from full participation in the wider
economic, political, cultural, and social life;
The enduring discrimination and historical social features entrapped these groups in
a situation below the minimum threshold of well-being while hindering their full
participating in the society.
These groups are lacking in power and access to decision-making that could
influence policies or create opportunities for improving their standard of living.
Social exclusion describes a process by which certain groups are systematically

disadvantaged because they are discriminated against on the basis of their ethnicity, race,
religion, sexual orientation, caste, descent, gender, age, disability, HIV status, migrant
status or where they live. Discrimination occurs in public institutions, such as the legal
system or education and health services, as well as social institutions like the household,
and in the community (DFID 2005). However, the degree of discrimination varies from one
society to another, as do the forms that social exclusion takes. There are three different
processes whereby social exclusion operates on the ground and accelerate the
vulnerabilities of these groups:
TABLE 1.2
DIFFERENT PROCESSES WHEREBY SOCIAL EXCLUSION OPERATES
INTERACTIONAL/
ASSOCIATIVE EXCLUSION
n
Corporate or group
interests
Stigmatization
Weak leadership
among them
Restrained Interactions
Mistrust by others
Identity exclusion
Lack of mutually
exchangeable
resources or skills
INSTITUTIONAL/
ORGANIZATIONAL EXCLUSION
n
Discriminatory
institutional mission or
objectives
Low status
entitlements
Lack of competitive
skills of the excluded
people
MARKET EXCLUSION
Few resources/assts
to exchange
Little mobility
Distorted markets
arrangements
High transaction
costs of capital and
others
Labour and financial

market segmentation
and discrimination
1 7
1.3.3. THE EXCLUSION OF WOMEN AND CHILDREN

Disasters in Bangladesh, according to recent histories, have always impacted the women
and children more adversely because of built-in societal norms. Different studies on 1988
and 1998 flood reveals that the women became more severely affected than men
because of their responsibilities and everyday activities including food processing and
cooking, cleaning, collecting water and fuel, looking after the livestock and belongings1.
Women and children are rather confined to homes and are less mobile than the males,
which increase their vulnerabilities and sufferings during such flood incidences (ibid). In a
similar epidemiological assessment2 study on 1991 cyclone, carried out on 45 housing
clusters comprising 1123 persons in Chakaria and Kutubdia, exhibits that the children
under 10 years and women over 40 years sustained the highest mortality of 26% and
31% respectively. The cultural practice of wearing sharee and long hair of the women
have turned out to increase vulnerability for them during storm surge and wind blow of
cyclone SIDR 2007 (Shafie 2008).
Women are often vulnerable to sexual harassment in pre and post disaster situation. In
some areas, it was reported that the hooligans and looters took the opportunity of the
peoples distressed situation for robbery and sexual violence after the 1991 cyclone (Kafi
1992). They also abducted the young women and girls to the nearby abandoned houses
or bushes for sexual abuse. As a result, young women and adolescent girls are not
preferred to go to the cyclone shelters in order to avoid staying with males (strangers) and
in anticipation of sexual violence. Moreover, as cultural sanctions, they have restricted
access to resources, services and decision-making. Therefore, the vulnerability of women
and children is extremely high and thus they are most at risk among the community.
1.3.4. PEOPLE WITH DISABILITIES IN DISASTER

Persons with disabilities (PWDs), as being one of the most vulnerable groups, suffer most
during the natural hazards exposure. Similarly, cultural beliefs or community attitudes
toward the persons with disabilities contribute to either the vulnerability or the capacity of
this category depending on the extent to which they reduce or increase the risk of
disaster. Almost 6% of Bangladeshs 147 million inhabitants have some form of disabilities
and are largely absent from national development initiatives (Handicap International 2005)
and disaster reduction programmes. Persons with disabilities face many obstacles in their
normal life which increases during disaster episodes. The people with disabilities are
highly vulnerable to natural disasters because of the following reasons:
Their perpetual dependence on the community support services. People who live on very
low incomes cannot prepare for disasters and may not have adequate support systems
pre or post disaster.
n
1
2
1 8
They are deprived of equitable access to resources and services.
Source: Ahsan. R. M. (ed.) 2004, Disaster and the Silent Gender, Bangladesh Geographical Society, Dhak
Source: http://www.ncbi.nlm.nih.gov/pubmed/8440041
They are lacking in the ownership of productive resources, money, education, jobs,
confidence, skills, and ability to access service systems.
They have fewer coping mechanisms with which to recover from disaster.
Excluded and placed in low social rank.
They do not have adequate access to early warning dissemination mechanisms.
1.3.5. INCLUSION OF INDIGENOUS AND MINORITY COMMUNITIES

Indigenous communities, particularly those living in remote areas, face injury, loss and
damage from the effects of natural disasters each year. The existing CRA guidelines are
not readily inclusive of remote and vulnerable Indigenous communities, as this guideline
does not adequately cater for the special needs of such communities. Consequently, the
capacity of these communities to prepare for, deal with and mitigate the effects of any
future disasters is severely limited. Most Indigenous communities have little or no financial
capacity for mitigation and face considerable disadvantage in the key areas of health,
education, employment and housing. Communities have tended to accord much lower
priority to disaster risk management activities in the presence of more pressing
community concerns.
The indigenous communities, particularly those in Chittagong Hill Tracts, are located in
remote and risk prone areas and are often vulnerable to dislocation and damage on a
regular basis. There are higher cost structures and additional demands associated with
the delivery of relief and recovery assistance to remote communities. The entrenched
level of socioeconomic disadvantage experienced by these communities also means they
require more assistance than other less remote communities in achieving similar disaster
recovery outcomes. In addressing the risks faced by these communities, it is important to
recognize that there are a number of characteristics shared by vulnerable and remote
Indigenous communities that pose added challenges for the achievement of disaster risk
management objectives. These typically include:
n
Geographic isolation and limited accessibility during different seasons of the year
Community infrastructure and services that are well below national standards, and
high repair and maintenance cost for infrastructure due to remoteness
Low economic base and absence of capacity to raise funds
Unique cultural and communication issues, and
Deprived of equitable access to education, health and other facilities
Improved risk reduction for remote Indigenous communities cannot be attained without
the will and involvement of the communities and strategies that take into account the
needs and diversity of these communities. This requires long-term commitment to the
inclusion of Indigenous communities in mainstream planning and service delivery from all
levels of government and agencies. This should include a cross functional approach that
builds partnership arrangements with Indigenous communities.
1 9
1.4. PROFILING THIS GUIDEBOOK

1.4.1. PROBLEM STATEMENT
Social groups experience disasters differently, have differential access to resources,
endowed with discrepancies in capacities to face disaster and have differences in
resilience to combat respective susceptibilities caused by hazards. The most vulnerable
groups are highly prone to disasters in relation to the members of the wider communities.
Therefore, the greatest challenge of building disaster resilient communities in Bangladesh
is to reduce the risk and increase the capacities of such most vulnerable groups.
Moreover, disaster management policies in Bangladesh is committed to bring about equity
in gender relations, while securing the needs of disable people, occupational, indigenous
and other excluded groups in all the risk reduction initiatives. An inclusive disaster
management policy needs to address all issues related to differential access to decisionmaking, social networks and influence, transportation, information, skills including literacy,
control over land and other economic resources, personal mobility, secure housing,
employment, freedom from violence and all other factors contributing to increase
vulnerabilities of some social segments.
The present risk assessment and management programmes of the Government are
guided by the processes of Community Risk Assessment (hereafter CRA) a
participatory process for assessing hazards, vulnerabilities, risks, ability to cope,
preparing coping strategies and finally preparing a risk reduction options implementation
plan by the local community. The CRA drives a cyclical preparedness and mitigation
planning process including emergency planning, which are then validated through
community exercises and becomes a community continuity plans. The CRA process
recognizes the special needs of the most vulnerable groups but hardly these groups
aspiration and voices are included in the risk management action plans. Their needs,
problems and suggestions are not mainstreamed in the final planning and implementation
stages.
Given this backdrop, however, our present concern is to establish the basis for inclusive
disaster management in Bangladesh across differential vulnerable groups. The most
vulnerable groups do not have adequate stake in the national disaster reduction or
emergency response programmes. Among others, the significant reason is that the
disaster professionals and personnel, who are responsible for the formulation and
implementation of these programmes, are lacking in adequate understanding the special
needs of the women, children, PWDs, and other social exclusion issues. Capturing,
cultivating and augmenting the unheard voices of the aforementioned excluded social
groups through focusing on the processes of social exclusion may perhaps be the
effective solutions for an inclusive disaster management policy in Bangladesh.
1.4.2. PURPOSE AND OBJECTIVES

The purpose of this guideline is to exclusive tools for the active participation and capturing
the voices of the women, children, disable people, occupational, indigenous and other
excluded groups in all the processes of risk assessment and management initiatives. The
goal of this guidebook is to support the disaster professionals to identify hazards and risk,
2 0
together with the most appropriate range of risk reduction options that can be introduced
to either eliminate or reduce risk to more manageable levels from the context of the most
vulnerable excluded groups.
The specific objectives are to
n
Enhance and strengthen the capacity of the disaster management personnel to

assess risk and vulnerabilities related to gender sensitivity, ethnicity and social
exclusion, and special needs of the PWDs through capturing information directly from
these groups;
Assist the disaster management personnel for incorporating a gender and social
exclusion analysis into the assessment and management of risk situations.
Mediate the priorities of socially excluded groups in the selection of risk management
programmes during the selection and implementation process.
Increase participation and raise the voices of the women and other socially excluded
people at local level decision making through promoting them as actors and
protagonists (rather than a vulnerable group);
1.4.3. USER OF THIS GUIDEBOOK

In the hazardous situation the women, children, PWDs and other socially excluded people
are highly vulnerable. Recently both non-government and government sector emphasize
the participation of gender and social exclusion persons in planning and implementation
processes through consensus with the community. Gender and social exclusion analysis
in CRA will be an appropriate method for all these organizations. This guidebook can be
used by organizations involved in risk assessment and management activities particularly
CDMP and its partners. It is also relevant to organizations involved in social inclusion
community based planning and management at local, regional or national levels. This
guidebook is designed to:
n
Be a assistive resource for the disaster managers and professionals engaged in

DRR and emergency response;
Provide an outline for disaster professionals in analyzing and managing the risk
situations concerning the most vulnerable groups in Bangladesh;
Build capacities and increase awareness among the disaster professionals and
service providers in addressing the inclusion needs of the women and excluded
groups; and
Provide inclusive implementation guidance for disaster professionals for carrying out
community based risk assessment, management and emergency response
programmes through including the excluded and the most vulnerable categories.
1.4.4. THE OUTLINE OF THE GUIDEBOOK

This guidebook has been prepared for the disaster management personnel who will
implement gender and social exclusion analysis in community bases risk management.
The Guide attempts to highlight the practical aspects of different activities to conduct
2 1
gender and social exclusion analysis at the field level. The Guidebook contains 05
thematically distributed parts or chapters. A sequential description of each segments or
parts of this guidebook is illustrated below:
Chapter 1 The first chapter contains general description of context, disaster and social
exclusion scenarios in Bangladesh, and identifying the user of the guidebook. This gives a
preliminary concept of disaster, forms of social exclusion, risk management model and
justification of the guidebook.
Chapter 2 Chapter two encloses the framework of elements of Comprehensive Disaster
Management with an analysis framework for gender and social inclusion dimensions. It
also discusses about the gender sensitivity indicators.
Chapter 3 Chapter three provides general methodological guidelines for activities in the
field. It describes the tasks and selection of risk assessment team and also about the
capacity of the facilitator or moderation.
Chapter 4 Chapter four contains the detail activities guidelines for conducting CRA. It
provides activities for social exclusion analysis with vulnerable group and stakeholder
identification. Transect walk, KII and secondary information collection as general
information collection method are also described in this Chapter This chapter also
contains the tasks for conducting a scenario workshop for developing criteria and hazard
identification, capacity and vulnerability analysis. It also includes step by step use and
application of different tools/ techniques of risk analysis, evaluation, managing risk
environment, monitoring, review and participatory evaluation for gender and social
exclusion analysis.
2 2
chapter two
RISK MANAGEMENT MODEL

AND FRAMEWORKS
2.1. RISK MANAGEMENT MODEL
The risk management model shows some
steps to process the risk management plan.
Understanding and acceptance of the scope
of work must clearly be stated before any
plan of risk management project.
Establishing the context is a process to
identify and define different parameters in
which the process will be conducted. The
development of risk evaluation criteria will
help in making judgments about which risks
need to be treated. Risk identification
involves identifying and description of
hazards, vulnerability, capacity, and
environment of the community. The purpose
of identifying risks is to develop risk
statements for later analysis and evaluation.
In order to analyse the risk is to consider the
likelihood and consequences of natural
hazards. To estimate the likelihood of a
natural hazard some aspects can be
considered: how often the hazard is
occurred, the duration of time and the history
of the hazard. On the other hand, to estimate
consequences, the severity of a potential
effect that could result from a hazard can be
considered. Risk levels confirmation and risk
acceptability are the two issues which are
the results of the risk analysis, addressed in
risk evaluation. In this process different risks
are prioritized for referral to other agencies
and needed treatment by the Emergency
Management Personnel.
FIGURE 2.1 n THE RISK MANAGEMENT PROCESS
In the risk management process, at first whether the Risk is acceptable to community or not
is determined through different stakeholders and community people consultation. If a risk is
accepted, this fact needs to be reviewed periodically and subject to further analysis and
evaluation. Where a risk is not acceptable, then it needs to be treated. Treating risks is to
reduce their likelihood and harmful consequences to the community and environment
through a process of selecting and implementing risk treatment options that modify the
characteristics of the hazards, the community or the environment.
Monitoring and review are essential for the Risk Management as this is a continuous
process. It is necessary to monitor and review the complete process at all stages and
respond to changes as they arise. The purpose of monitoring and review is to ensure the
emergency risk management process remains current, relevant and within the context of the
project. The entire Risk Management process is based on good Communication
Consultation with different stakeholders, community people and Risk Management
personnel.
2.2. THE CDMP FRAMEWORK

ELEMENTS
OF CDM
POSSIBLE GENDER AND SOCIAL INCLUSION DIMENSION
D E F I N I N G
2 4
R I S K
E N V I R O N M E N T
Develop Criteria
When a risk evaluation criterion is developed, is particular gender and

social need and their specialty is considered? Women and girls have
certain differences of risks; as well as person with disability and person
with non-disability have certain differences of risks; womens vulnerability
to hazards might be different from those of male, ethnically minority
groups vulnerability to hazards might different from those of ethnically
majority groups; therefore by single criteria, risk environment should not
be defined.
Identify Hazards
It is important to differentiate the perception of hazards (ranking, severity)

and also definition of hazards from the viewpoint of male and female, able
and less able persons, ethnic minority and majority people, rich and
landless people; even in particular cases, girls perceive the hazards
different from that of boys, as well as poor people different from rich people.
Assess
Vulnerabilities
It is important that vulnerabilities are more dependent on the nature of

gender relationship of the particular socio-cultural, economic and political
construction. One of the vulnerability aspect of a person is his/her particular
entitlement status, in that terms a big question,is female/poor/person with
disability can avail same entitlement than of male/rich/person with ability?
and more progressively is women and males vulnerability to flood is same?
Is there any a cultural aspect or element makes a woman and ethnic
minority people more vulnerable to flood than of a man and ethnic majority
people? or is there any social customs which makes person with disability
less vulnerable than of able person? Such type of negative and positive
aspects certainly important to assess vulnerabilities.
ELEMENTS
OF CDM
Analyze Risks
Is risk analyzed by gender and social class/caste segregation? Risk

Matrix usually differs by sex and social class/caste identity.
Evaluate
Risks
This is a very important aspect of risk reduction. Most of the time risk
evaluation criteria are developed by gender and social biasness.
Which seems to male/rich/able body important, always come as
dominant evaluation criteria. Is criteria developed in light of the
practical and strategic needs of women and socially excluded and
vulnerable people?
Risk
Prioritization
In many cases, during prioritization, existing power structure ignores

the risks of less powerful people. May high risks of the women and
person with disability therefore become ignored and get less priority
during decision-making. Women and socially excluded peoples stake
into the decision making process is very important during risk
prioritization.
M A N A G I N G
Participation
Risk Reduction
Options
Prioritization
Of Options
R I S K
E N V I R O N M E N T
Participation of women and men, landlord and landless, ethnic minority

and majority, person with disability and non-disability, higher
caste/class and lower caste/class is very crucial to manage risk
environment. Can women, poor, person with disability, lower caste
people participate equally as of men, rich, person with non-disability,
higher caste? Is participation of female, poor, person with disability,
landless, lower caste people were encouraged or ensured?
In most cases risk reduction measures are determined by the dominant
representation and by the needs of the male, rich, non-disable and
higher caste people. Also in many cases, determined risk reduction
options disempowering the women, person with disability, lower caste
and poor people and increase inequality between advantaged and
disadvantaged people. This also depends on the quality of participation
of two ends of gender and social hierarchy.
Hierarchy of risk reduction measures also dominated by existing
gender and social based power structure. Like prioritizing risk,
prioritizing risk reduction options under managing risk environment is
also male, rich, non-disable, higher caste biased and need to be more
sensitive to the needs of the women, poor, person with disability and
lower caste.
2 5
ELEMENTS
OF CDM
R E S P O N D I N G
2 6
T O
T H E
E M E R G E N C Y
Implementation
and Monitoring
Is women and socially excluded people have stake in

implementation process? Can women and socially excluded
people have stake also into the monitoring and evaluation process
of management of risk environment? Does the risk reduction
programme consider the gender and social equity based
monitoring? Are the monitoring tools women and vulnerable
people friendly and participatory? Can change in programme be
made by the gender and social equity based monitoring?
Warning
Dissemination
Most of the women, person with disability, lower caste and poor
people have less education and despite of this fact, are warning
system friendly to women and socially excluded people? Are the
messages of warning understandable to female and socially
excluded people? Are there community based warning
dissemination system, which can easily, effectively and sensitively
warns women and socially excluded people?
Evacuation and
Shelter
Is evacuation route is prepared based on the need of women and

socially excluded people as well as men and socially advantaged
people? Can women and socially untouchable group get shelter in
centres? Are they safe in the centres? Are their reproductive
health and other specialty needs are considered during designing
of the shelter centre?
Search and
Rescue
Are volunteers and rescuers representing adequate female

members in the team? Are they sensitively handling the specific
gender needs during search and rescue?
Need
Assessment
It is many times observed that during a disaster situation,

humanitarian assistance agencies come with very generic relief
goods. Most of the time such relief goods fail to address the need
of lactating mother, breast-feeding children, reproductive and
hygienic needs of women. Even when need assessment is
conducted, in most cases, do not conceptualize these needs.
Post Hazard
Shelter
In many cases, women are not quite willing to share same shelter
centre along with male. There is a need of privacy of women in
shelter centre. This is a special need of women during evacuation
and post hazard shelter.
2.3. THE SOCIAL EXCLUSION ANALYSIS FRAMEWORK

The analysis under this framework requires describing the key issues to consider for four
areas of enquiry: roles and responsibilities, assets and livelihoods, power and decisionmaking and needs analysis.
Roles and
u
Responsibilities
u
u
u
u
u
u
Livelihood
Assets
u
u
u
u
u
u
u
What do the excluded people do in relation to those who excludes

them?
Where (location/ patterns of mobility)?
When (daily and seasonal patterns)?
Productive roles (paid work, self-employment, and subsistence
production)
Reproductive roles (domestic work, child care and care of the sick
and elderly)
Community participation/self-help (voluntary work for the benefit
of the community as a whole)
Community politics (decision-making/ representation on behalf of
the encompassing community as a whole)
What livelihood assets/opportunities do the excluded and their
complementary groups have access to and control over?
What constraints do the excluded people face?
Human assets (e.g. health services, education)
Natural assets (e.g. land, natural resources)
Social assets (e.g. social networks)
Physical assets (e.g. infrastructure)
Economic assets (e.g. capital/income, credit)
u
Power And
Decision-Making u
u
u
u
What decision-making do the excluded people participate in?

What decision-making do they usually control?
What constraints do they face?
Intra-household level (e.g. expenditure decisions, use of savings)
Community level (e.g. decisions on the management of
community water supplies)
u
u
What are the excluded peoples needs and priorities?

What perspectives do they have on appropriate and sustainable
ways of addressing their needs?
Internal/ Operational/ Practical needs (e.g. in the context of the
existing roles and resources)
External/ Strategic needs (i.e. requiring changes to existing roles,
relations and resources to create greater equality, access to
opportunity and distribution of benefit)
Needs And
Priorities
u
u
2 7
2.4. GENDER ANALYSIS IN DEVELOPMENT PARADIGMS

The analysis of gender and social exclusion can be explored in the context of the linkages
of different development and disaster paradigms. Currently the international approach to
gender issues in enabling environment programmes is in terms of the economic growth,
poverty alleviation/reduction and disaster reduction paradigms. In general, enabling
environment programmes pay little direct attention to empowerment of women: this is
expected to occur naturally as an offshoot of economic growth. To be effective, however,
mainstreaming of gender policies in the context of economic reform has to draw on all
these paradigms, with gender analysis taking place at all stages of the programme cycle,
from appraisal and design through to monitoring and long-term assessment of impact. It is
also necessary to accommodate social, economic and cultural diversity within that
analysis, and to recognise that in some situations poor women may have more in
common with their male compatriots than they do with rich women in their particular
sector of economic activity, whilst in other contexts womens special needs have to be
addressed directly. Detailed gender and social exclusion analysis should also be
undertaken at all stages, in particular at appraisal and design, in order to avoid the type of
unforeseen and unintended impacts as well as unequal disaster impacts.
DISASTER RISK
REDUCTION
Drawing on Hyogo
Framework for Action
ECONOMIC GROWTH
Drawing on Macro-based
Approaches
PRO-POOR, GENDER
EQUALIZING,
DISASTER RESILIENT
GROWTH
POVERTY ALLEVIATION
Drawing on Welfare &
Sustainable Livelihood
Frameworks
WOMENS
EMPOWERMENT
Drawing on Human Rights
& Social Exclusion
Analyses
FIGURE 2.2 n THE FOCUS OF GENDER ANALYSIS IN DEVELOPMENT PARADIGMS
2.5. GENDER MAINSTREAMING: BASIC CONCEPTS AND PRINCIPLES

There is a general consensus that gender equality refers to both the recognition that
women and men have different needs and priorities, and the fact that women and men
should experience equal conditions for realising their full human rights, and have the
opportunity to contribute to and benefit from national, political, economic, social and
2 8
cultural development (CIDA, 1997). Most definitions of gender mainstreaming adhere

closely to those set out by the UN Economic and Social Council (1997: 28) as follows:
Mainstreaming a gender perspective is the process of assessing the implications for
women and men of any planned action, including legislation, policies or programmes, in
all areas and at all levels. It is a strategy for making womens as well as mens concerns
and experiences an integral dimension of the design, implementation, monitoring and
evaluation of policies and programmes in all political, economic and societal spheres so
that women and men benefit equally and inequality is not perpetuated.
The ultimate goal is to achieve gender equality.
Understanding of gender relations engages an interrelated set of three concepts:

empowerment, equality of opportunity and equity of outcomes. This type of
conceptualization proceeds with broader concerns of balancing the rights of all individuals
in society in accordance with justice and fairness. The aim is therefore not the
empowerment of particular groups at the expense of others, but empowering those who
are most vulnerable to challenge existing inequalities and injustice in a process of social
transformation. There is also a clear role for development agencies and those currently
with power in supporting the empowerment process through providing an enabling
environment of equality and equity. In what follows these three interlinked principles of
empowerment, equality and equity underlie the understanding of empowerment in relation
to all dimensions of inequality and discrimination.
EMPOWERMENT: Individuals acquiring the power to think and act freely, exercise
choice, and to fulfill their potential as full and equal members of society. The following
factors may be included:
n
n
n
n
Acquiring knowledge and understanding of gender relations and the ways in which
these relations may be changed
Developing a sense of self-worth, a belief in one's ability to secure desired changes
and the right to control one's life
Gaining the ability to generate choices and exercise bargaining power
Developing the ability to organise and influence the direction of social change to
create a more just social and economic order, nationally and internationally.
EQUALITY OF OPPORTUNITY: Women should have equal rights and entitlements to

human, social, economic, and cultural development, and equal voice in civil and political life.
EQUITY OF OUTCOMES: The exercise of equal rights and entitlements leads to
outcomes which are fair and just, and which enable both women and men to have the
same power to define the objectives of development.
2.6. GENDER SENSITIVE INDICATORS3

Gender sensitive indicators used in risk and vulnerability studies have the function of
identifying genderrelated differences and inequalities within a given population. These
indicators compare the situation of males to that of females, and depict the relative
advantage/disadvantage of one gender in comparison to the other. Gender sensitive
indicators measured over time can also demonstrate variable changes in outcomes for each
gender, as well as changes in gender relations and progress in reducing gender inequalities.
An illustrative list of generic, quantitative indicators that can be used to incorporate gender
analysis into risk management and vulnerability studies is provided in Table below. Examples
3
See also CIDA: Guide to Gender-Sensitive Indicators. Quebec 1997, 9-13.
2 9
TABLE 2.1
Indicator
Female share
of a total
GENDER SENSITIVE INDICATORS
Formula
No. of females X100

No. of (females + males)
Ratio between
females
and males
Interpretation
l
l
l
No. of females
No. of males
l
l
Female
mean female
characteristic
as percentage of characteristic X 100
male
mean male characteristic
characteristic
Gender gap
(% difference
between # of
# of (females - males) X 100
females & males
versus the total # No. of males
of males in the
community)
l
l
Example
50% indicates gender equality.

< 50%, females are
underrepresented,
> 50% males are underrepresented
Share of women participating in

political meetings at the
community level
1 indicates gender equality

The closer to 0 the more females
are underrepresented,
Values > 1 indicate that males are
underrepresented.
The ratio between girls and

boys school enrolment
rates (x girls per 1 boy)
100% indicates gender equality

The closer to 0% the more females
are disadvantaged compared to
males,
Values > 100% indicate that males
are disadvantaged.
Average earnings of
women as percentage of
average earnings of men
0% indicates gender equality

The closer to 100% the more
females are disadvantaged,
Values below 0% indicate that
females are advantaged
Differences in school enrolment

between boys and
girls. Differences in access
to (or control over) productive
assets between men
and women
of their application in developing specific indicators are also provided (right hand column).
These indicators provide a useful tool for ensuring that sex-disaggregated quantitative data
are generated during primary data collection exercises and allow for gender analysis to be
incorporated into the overall risk management and vulnerability analysis.
2.7. GUIDELINES FOR GENDER SENSITIVE DISASTER RISK REDUCTION MEASURES

Some of the central concerns for promoting gender sensitive disaster risk reduction measures are:
Ensure gender sensitive economic decision-making, land ownership and use, natural
resource management, and human and social development in order to increase the
capacity of women and men to live more safely in hazard prone environments.
Increase access of women to economic resources, transportation and housing. Increase
womens access to employment, technology, financial resources and time.
Ensure that the voices of women survivors and responders are heard when decisions are
made, relationships forged and agendas set.
Engage women as equal partners in disaster risk management and include womens
organizations in broad-based community disaster coalitions.
Utilize womens resources, including their leadership skills, informal and formal community
networks, family, community and environmental knowledge and professional and technical
expertise.
Develop context specific guidelines for disaster response for key groups of women such as:
pregnant and lactating women, unaccompanied girl minors and abused women.
3 0
chapter three
GENERAL METHODOLOGICAL
GUIDELINES
Applying, however, exclusion and gender perspective to risk management and

vulnerability studies demands that an exclusion and gender sensitive approach be taken
during research design, data collection, data analysis, and, ultimately, program planning.
This requires an explicit sensitivity to the varying needs of excluded groups, including
making an effort to include the excluded people in all stages of the research and
sensitizing facilitators and other research team members to exclusion issues relevant to
the context in which a study is being conducted.
3.1. SELECTION OF RESEARCH TEAMS

When interviewing candidates for the
overall coordination of a risk assessment
study, questions should be asked that help
identify the candidates attitude concerning
gender equality, PWD, minority and
indigenous issues. Preference should be
given to candidates who not only possess
specific skills and experience relevant to the
study, but also show a positive attitude
towards the advancement of greater equity
in society. Although members of field teams
do not need to have a technical background
in social exclusion analysis per se, it is
crucial
that
data
collectors/field
investigators are sensitized to the
importance and rationale behind collecting
exclusion-disaggregated data and phrasing
questions in a way that allows for an
analysis of the relationship between social
exclusion and vulnerability. This is even
more important for facilitators applying
qualitative tools such as focus group
discussions (FGDs) and participatory rural
appraisal techniques (PRA).
TIPS FOR GENERATING

DISCUSSION ISSUES
For gathering information through interviews,
Ringland (2002) provides some questions that can
be used to trigger peoples strategic thinking:
Critical issues: Would you identify what you see
as the critical issues for the future? Suppose I had
full foreknowledge of the outcome as a clairvoyant,
what else would you wish to know?
A favourable outcome: If things went well, being
optimistic but realistic, talk about what you would
see as a desirable outcome.
An unfavourable outcome: As the converse, if
things went wrong, what factors would you worry
about?
Where culture will need to change: Looking at
internal systems, how might these need to be
changed to help bring about the desired outcome?
Lessons from past successes and failures:
Looking back, what would you identify as the
significant events that have produced the current
situation?
Decisions that have to be faced: Looking
forward, what would you see as the priority actions
that should be carried out soon?
If you were responsible: If all constraints were
removed and you could direct what is done, what
more would you wish to include?
3.1.1. TRAINING AND CAPACITY

A basic understanding of exclusion, gender and PWD issues should be incorporated into
data collectors/field investigators training prior to the data collection phase. Where general
awareness of the research team is low, rigorous training prior to data collection is a
precondition. Prior to data collection their knowledge on operational and methodological
aspects of applying exclusion and gender sensitive perspective should be assessed.
3.1.2. COMPOSITION OF RESEARCH TEAM

Having both men and women as data collectors/ field investigators/enumerators/ facilitators
can improve data quality, particularly where community discussions (FGDs, PRAs, key
informants) are being used and/or exclusion and gender related topics will be discussed. In
many settings, male and female respondents also react and respond differently to same
sex and different sex enumerators. This suggests that for FGDs, PRAs, key informants and
household surveys, a balanced mixture of male and female enumerators will minimize the
extent to which bias is introduced due to enumerators gender identity. Where group
discussions are to be held separately for men and women, same sex discussion facilitators
are likely to contribute to a relaxed and open discussion. Finally, having representations of
the cross-cutting categories in the research team, including management positions, sends
a clear message to the communities and partners about the research teams commitment
of sensitivity towards excluded minority/gender/ PWD issues.
3.2. THE FACILITATOR/MODERATOR

The role of the moderator is essential in all participatory methods. Some of his/her tasks
vary from method to method, but in general it is the responsibility of moderators to
maintain the flow of the proceedings and to keep everyone on time and on track. This
requires a firm but diplomatic presence. The moderator should be flexible, unbiased,
empathetic, a good listener and enthusiastic. He/She should develop rapport with the
participants, be respectful and communicate in a clear, friendly demeanour. The
moderator needs to keep the group on the subject at hand and encourage/ provide space
for less vocal members to express their ideas.
3.2.1. NECESSARY QUALIFICATIONS OF FACILITATORS/ MODERATORS
A moderator should have:
High sensitivity towards women, minority & social exclusion issues.
Considerable skill and experience in moderating or facilitating meetings.
n
A reputation for non-partisanship, both politically and in terms of the specific issue
being addressed.
n
The moderator should not be a known advocate for one side of an issue or for a
political party favouring one side.
n
Trained and oriented with direct knowledge of the topic or the time to acquire that
knowledge before the events. A good knowledge of the topic is important in this respect.
n
The ability to be empathetic with different types of people and to be able to draw out
their concerns and questions. The participants are required to be given the feeling that
the moderator cares about them and is acting on their behalf.
n
Knowledge of different types of group processes to make sure that all participants feel
that they have had the opportunity to be heard.
n
3 2
3.3. PARTICIPATORY RURAL APPRAISAL (PRA) TECHNIQUES

These techniques allow community members to actively participate along with the
researchers to explore the causes of their own insecurity, risk and vulnerability, rather than
merely responding to a set of questions posed to them. Not only do these techniques
allow community members a more substantial role in assessing the issues they face, their
active involvement in problem identification often provides unique insights into issues
related to risk, vulnerability, and social exclusion that an external researchers, simply do
not see because of their own preconceptions and biases.
As with other methods recommended in these guidelines, an exclusion sensitivity
perspective must be explicitly incorporated into participatory techniques to ensure the
inclusion of cross-cutting issues. This can be accomplished by using PRA techniques in
groups separated by gender or by using techniques that ensure that excluded peoples
perspectives are taken into account.
The most common PRA tools/techniques used during risk management research are
social mapping, activity calendars, and proportional piling and ranking exercises. The
Table below provides an overview of these and other PRA tools that may also be
applicable during this risk management research. A discussion of how each can be
modified to incorporate exclusion sensitive perspective will be provided in the proceeding
discussions. The CRA guidelines developed by CDMP provide more information on each
technique/ tool and a comprehensive description of the range of application of these tools.
TABLE 3.1
OVERVIEW OF PRA TECHNIQUES/TOOLS RELEVANT TO RISK ANALYSIS
TOOL
OBJECTIVE
Village Transact
Identify differential access to various community assets/ resources and

services.
Social Mapping
Indicate spatial distribution of roads, forests, water resources, institutions,

can be used to identify differential access to various community assets/
resources and services
Hazard Mapping
Indicate all existing hazards in the area map.
Activity calendars
Assess division of labour or workload of women and men in a specified

period (day/ month/year/ season)
Mobility mapping
Understand differences in terms of contact of excluded people with the

outside world and plotting the frequency, distance, and purposes of mobility
Access and control

over resources
Indicate access to and control over private, community and public resources
by sex and by exclusion status.
Venn Diagram
Hazard based presentation on their consequences, likelihood and the

vulnerable people.
Social Exclusion
mapping
Indicate different social excluded peoples territory, land use and other social
features related to exclusion.
Disability Mapping
Persons with disability are in a community are presented here to understand

their mobility, location etc.
Ranking exercises
Identify and prioritizing constraints as experienced by excluded people
3 3
TABLE 3.2
COMPARATIVE CHART FOR PARTICIPATORY METHODS
Method
Topic*
Objectives
Participants
Knowledge Maturity Complexity Controversial
Focus
Group
Expose different groups opinions

on an issue and why these are
held (reasoning). Generating and
sharing ideas
Scenario
Development
Workshop
Planning and preparedness for

uncertain future. Vision building;
Consensus and a decision on a
controversial & complex issues;
Generate consensus and form an
action plan.
+/-
+/
+/
Time/
Event
2
Different
Stakeholders hours/
day
2-5
Different
Stakeholders days
Legend: Explanation of chart symbols

*Topic
+ (plus)
m = medium
- (minus)
Knowledge
A lot of common knowledge exists.
There is little common knowledge.
Maturity
Most people have already formed

opinions on the subject.
The subject is new; people are still

forming their opinions.
Complexity
Highly complex or technical
Not very complex or technical
Controversial
Highly controversial
Not very controversial
Note: +/- means that the method can address subjects with either + or .
3.3.1. FOCUS GROUP DISCUSSION (FGD)

Definition
Application
Context and
Objectives
3 4
A focus group is a planned discussion among a small group (6-12 persons) of

stakeholders facilitated by a skilled moderator. It is designed to obtain
information about (various) peoples preferences and values pertaining to a
defined topic and why these are held by observing the structured discussion of
an interactive group in a permissive, non-threatening environment. Thus, a focus
group can be seen as a combination between a focused interview and a
discussion group. Focus groups, in contrast to individual interviews, allow for the
participating individuals to develop and express their opinions in a more natural
social context, which some claim is more akin to the ways in which people
generate their opinions in everyday contexts.
Focus groups are useful to:
Gauge the nature and intensity of stakeholders concerns and values about
the issues;
Obtain a snapshot of public opinion;
Obtain input from individuals as well as interest groups;
Obtain detailed reaction and input from a stakeholder or group to preliminary
proposals or options;
Collect information on the needs of stakeholders surrounding a particular
issue or concept;
Determine what additional information or modification may be needed to
develop consultation issues or proposals further.
Tips for
Generating
Discussion
The question list and order should be prepared but should be flexible and adapted
to the groups natural conversation process. Tips to be followed:
Create a set of questions in a loose-running order, with specific prompts to
facilitate participant understanding and to encourage replies.
An opening question should be used to acquaint and identify common
characteristics among the group members.
An introductory question can be used to introduce the topic and foster
conversation.
Use 2 5 key questions or topics to drive the focus group discussion.
The questions should be clear, relatively short and use simple wording.
Accompany the questions with sufficient background to minimize assumptions
and place them in the appropriate context.
The questions should be open-ended rather than dichotomous. But avoid
broad why questions and instead break them down into specific sub-issues.
To build consensus, the facilitator can ask, Given this background, what would
you recommend Alternatively, or in addition, the moderator can first briefly
summarize the discussion. Then, ask the group if the summary is adequate
and end with, Have we missed anything important?
Materials
and Supplies
Notebook, pen/pencil; Large sheets of paper to post ideas; Tape or tacks; board
markers and etc.
Potential
Participants
and Tips for
Selection
Some practitioners recommend recruiting members of the same socio-economic

status for each of the focus groups. In any case, avoid putting people in a situation
where they are unlikely to participate due to intimidation. Participants are generally
chosen to represent a cross-section of the public affected by the issue and may be
chosen to represent specific interests. Tips to select the group members:
Try to make the group representative of your target.
Do not use regulars (focus-group addicts).
The moderator should not know members.
It is preferable that members should not know each other.
Choose people who can communicate effectively
Do not choose people involved in marketing.
Important
Consideration
The multiple voices of the participants may results in limited facilitators control
over the discussion process. Sometimes group expression can interfere with
individual expression.
A focus group needs to build synergy and secure cooperation from the
members. Thus, it is crucial that communication be open & trust is built quickly
to help encourage new ideas.
It is necessary to choose the right focus group members, as well as facilitator,
in order to make the information flow positively. Some additional guidelines for
effectiveness include:
l
Secure skilled personnel to identify and moderate the focus groups.
l
Record the sessions.
l
Ensure the atmosphere in the group is informal.
l
Use a checklist, guide or facilitator do not use a questionnaire.
3 5
3.3.2. SCENARIO DEVELOPMENT WORKSHOP

Definition
Scenarios are narrative descriptions of potential futures that focus

attention on relationships between potential risks and decision points.
Scenario development is particularly useful in situations where the past
or present is unlikely to be a guide for the future, in particular where:
Application
Context
Objectives
Main
Information
Required
Materials
and Supplies
Potential
Participants
and Tips for
Selection
The risk situation is complex
There is a high probability of significant change
Dominant hazard trends needs to be analyzed
The time-horizon is relatively long.
Motivate change for risks management
Generate alternative trajectories for future risks management
Improve preparedness for emergencies and contingencies
Guide key choices for risk management
Build future-oriented knowledge and action plans
Generate a vision and action-plan for realization.
u Critical trends, especially very long-term trends that are expected to

continue
u
Factors of change or future-shaping events that could alter even the

seemingly most established trends
The roles of the various categories of stakeholders
Events that can alter the environment in the future.
Notebook, pen/pencil; Large sheets of paper to post ideas; Tape or tacks;

board markers and etc.
Different stakeholders but all members of the team should have open
minds and be able to work well together as a team. Participants are
generally chosen to represent a cross-section of the public affected by
the issue and may be chosen to represent specific interests. Tips to
select the group members:
u
Do not use regulars (focus-group addicts).
The moderator should not know members.
It is preferable that members should not know each other.
Choose people who can communicate effectively.
Do not choose people involved in marketing.
The facilitator needs to be aware of some problems during this

workshop:
Important
Considerations
3 6
Problem of Dominant Voice: The multiple voices of the participants may

results in limited facilitators control over the discussion process.
Sometimes group expression can interfere with individual expression.
Important
Considerations
Zeitgeist Problem: As a social process, the group dynamics can affect

the outcome of the deliberative process such that different exercises
have similar results. This happens when different groups focus on the
same small range of currently dominant or prevalent hazard themes.
Opacity of Context Problem: This is common when participants become
too focused on particular aspects of a certain sector or elements at risks,
such as technology, but omit to fully consider, assess and/ or evaluate
the environmental, social, economic and political implications of the
associated sector.
Event Evaluation Problem: People tend to overestimate the likelihood of
low-probability hazards and underestimate the probability of likely
hazards. There is an equal tendency to distort the representativeness of
hazard events, essentially by focusing on striking but basically irrelevant
details, which is liable to undermine the viability and usefulness of future
directions.
3.4. THE PROGRAMME SETTING

3.4.1. APPOINTMENTS MAKING
Appropriate timing is crucial for ensuring that women and men are able to participate as
respondents in all types of data collection exercises. Although communities are busy
throughout the year, there may be periods when their workload is slightly less
burdensome. Similarly, the availability of community and household members is
influenced by the daily pattern of agricultural work, income generating and household
activities of men and women. For example, women may not be able to attend meetings
during evening hours due to domestic responsibilities. Also special events such as market
days, public holidays, social festivals and election campaigns should be taking into
account when scheduling fieldwork.
When establishing the dates for an interaction/ event:
n Consider community activities. Try to avoid conflicts with major school, sport, mosque
and other community activities.

n
Avoid holidays. Weekdays are generally better than weekend sessions.
3.4. 2. VENUE SELECTION

When choosing the location for an event, consider the following:
n The place should be large enough to accommodate all participants.
n A flexible space with extra rooms available is an advantage.
n The facility should be centrally located and easily accessible.
n The facility should have the required furniture (table, chairs etc.); appropriate electric
outlets for lights, etc.
n The facility should be politically neutral and religiously neutral.
n The facility should provide a comfortable atmosphere, in which the participants can
come to feel at ease.
n Bathroom facilities are an advantage.
3 7
3.4.3. MATERIALS AND SUPPLIES

Materials that are commonly required or useful at participatory events include:
3 8
Brown paper and large tables for recording ideas (Note: it is better to use paper rather
than chalk or white boards. The individual sheets can easily be archived and are
easier to transport.);
Flipcharts on easels/ stands
Space to hang the flipchart sheets
Tape or tacks to attach paper to walls
Several broad tipped, bold colour markers
Pens, pencils, paper, coloured pens and/or pencils
Rolls of tracing paper for quick sketches, overlays, etc.
Audio recorder and tapes for audio recorder
Camera that produces instant photos (digital or film)
Small note-papers that are sticky on one side (in multiple colours)
chapter four
ACTIVITIES IN THE FIELD
STEP ONE
DAY 01 & 02
DEFINING THE TASK AND CONTEXT
4.1 ESTABLISHING THE CONTEXT

4.1.1. UNDERSTANDING GOAL AND PRODUCTS
Risk assessment consists of hazard analysis and vulnerability analysis, together with the
analysis of self-protection capabilities from the context of women and socially excluded
groups. This also takes resort to the knowledge of prior emergency scenarios (see Figure
4.1.). Risk analysis is not a static one-time process, but rather a dynamic process which is
constantly adjusting to changing vulnerabilities, hazards and risks. However, the goal of
this risk assessment is to:
AWARENESS RAISING
ANALYSIS OF
VULNERABILITY &
CAPABILITIES
ANALYSIS OF
PRIOR EMERGENCY
SCENARIOS
CONCRETE RISK
THEATMENT MEASURES
RISK ANALYSIS
Prevention, preparation
Early warning systems
Environmental management
Land use & spatial planning
Cooperation, alliances
Financing instruments
Poverty reduction, IGA etc
CAPACITY BUILDING
HAZARD
ANALYSIS AND
MONITORING
FIGURE 4.1 n 'INPUTS' AND 'OUTPUTS' IN RISK ANALYSIS
Policy Development
Legislation
Community Development
Human Development, etc
Identify possible hazards and vulnerabilities of the women and socially excluded
groups to natural events, to analyse these and to estimate and assess both the
probability of occurrence and the possible potential damage of such natural events; to
identify and study possible weaknesses and gaps in existing protective and
coping/adaptive strategies.
Formulate realistic action plans to overcome weaknesses and reduce the identified
and assessed disaster risks, and to agree these with those affected. It is particularly
important here to identify and improve existing capacities as well as protective
strategies, while to make possible social agreements on such strategies and
measures to reduce disaster risks.
The assessment of risk of the women and excluded groups is expected to contribute in
different development planning, specifically spatial, settlement and land use planning and
helps formulating the zoning plans of the respective communities which contributes to
reducing disaster risks. This also facilitates to develop measures during emergency situations,
by making it possible to create the conditions for sustainable reconstruction work and
development measures. This risk assessment also aims to contribute in mainstreaming risk
management into the various areas of development as well as improve coordination and
linkages between the various components of different development interventions.
4.1.2. THE PURPOSE

In this step the preliminary information about the locality, environment and people can be
gathered. Establishing the context involves an understanding and appraisal of the
communitys external relationships, its own internal and organizational environment and
the risk management environment in which
the stages of the risk management process
TIPS FOR ESTABLISHING
are followed. This also assists in establishing
THE TASK AND CONTEXT
the assessment criteria for risk analysis as to
n Define the objectives of the activity, task
whether the risks are acceptable or not.
As with all processes in society, risk
management and emergency response
occurs within the scope and limitations of
established
policies,
practices
and
relationships. In establishing the context
participants develop a shared understanding
of the basic parameters within which risks
must be managed, and define the scope of
the rest of the risk management process. The
CDMP policy framework for the inclusion of
women, PWDs and socially excluded
categories is the starting point for this activity.
The shared understanding of the context
should be re-examined regularly to check the
direction of the process and progress, if
necessary, to make changes.
or function
Identify resources
requirements;
Identify any legislation, regulations,

policies, standards and operating
procedures that need to be complied with
Decide what the output of the process will

be, e.g. a risk assessment. The output will
determine the most appropriate structure
and type of documentation.
Identify the roles and responsibilities of

the various parts of the personnel
participating in the risk management
process.
and
planning
4.1.3. DEFINE THE TASK

Task definition defines the boundaries within which the inclusion framework can be
established. It involves identifying which range of risks should be covered in the risk
management projects. It is not appropriate to identify possible solutions at this stage.
4 0
4.1.3.1. DEFINING THE INTERNAL / OPERATIONAL CONTEXT

Before undertaking a risk assessment, the internal and operational context should be
established which includes an understanding of the CDMPs goals and objectives,
management and organizational structures, systems, processes, resources, key
performance indicators, and other drivers.
4.1.3.2. DEFINING THE EXTERNAL / STRATEGIC CONTEXT
Prior to undertaking a risk assessment, it is important to understand the external
environment in which the community operates, for example, from a strategic perspective,
there is a need to consider social, political, economic, financial, competitive, regulatory,
legislative and cultural factors. Community scanning should be carried out to identify
factors in the political, economic, social and cultural environment which have the potential
to impact the inclusion of most vulnerable categories in the risk management projects.
This is done by considering:
n
Who are the stakeholders?
What legislation and policy is

applicable?
TIPS FOR ESTABLISHING INTERNAL

AND EXTERNAL CONTEXTS
What management arrangements are

applicable?
Define the operating environment
Identify internal and external stakeholders

and determine their involvement in the risk
management process.
What aspects of the political,

economic, social and cultural
environment are relevant?
4.1.4. ACTIVITIES ON THE GROUND

Transect walk and KII are some tools used for data collection at this step. Any specific
issues identified in the above exercises can be shared with the stakeholder groups during
CRA workshops. Transact walk can better be done with the same individuals in mapping
tasks, if possible.
4.1.4.1. IDENTIFICATION OF VULNERABLE POPULATION
WOMEN AND CHILDREN: Women and children are generally within the majority groups in
terms of number. But for the socially unacceptance of decision making and unempowerment they need special attention. Women and children of other socially excluded
groups (PWDs, Indigenous, religious and occupational minorities) should be more
prioritized in selection process.
PWDS: Five different categories of PWDs (visual impairment, physical disabilities, hearing
impairment, speech impairment and multiple disabilities) should be consider as

participant in this CRA process.
SOCIAL EXCLUDED COMMUNITY: Indigenous, religious minorities and minor occupational
communities are needed to be address in this group. In Bangladesh context, religious
minorities are mainly other than the Muslim Sunni religious group. These are Hindu,
Christian, Buddhist, Shikh and etc. There are some groups in Muslim like Shia, Ahmedia
which are also in minor community. In rural Bangladesh, occupational minorities are
mainly Bedes, Fishermen, Tati, Kamar, Kumar, Methor, Muchi etc. who are included in the
socially excluded occupational community.
4 1
4.1.4.2. STAKEHOLDERS IDENTIFICATION

Participation of primary secondary and tertiary stakeholders of the locality is considered
important and essential in this special CRA activity. Primary stakeholders are those who
socially disadvantaged from the society and are directly impacted by any hazards (e.g.
women, children, PWDs, minor community). Secondary stakeholders are the major
community of the locality (e.g. farmer, fisherman, businessmen, landless). The tertiary
stakeholders may not be directly impacted but are involved in providing support to them,
and they may have some influence (e.g. administrative, legal) or be affected (either
positively or negatively) by decisions made by primary stakeholders. Participation of
tertiary stakeholders in CRA is therefore very important. Types of participants might vary
depending on the locality, occupational groups, majority in the community etc. The table
below shows examples of primary, secondary and tertiary stakeholders in the context of
Bangladesh.
PRIMARY
STAKEHOLDERS
SECONDARY
STAKEHOLDERS
TERTIARY
STAKEHOLDERS
Impacted
Stakeholders
Women, children,
PWDs, indigenous/
Ethnic/
Religious/Occupational
Minority Communities
Fish farmers; Farmers

(Land Owner and Share
Croppers), Landless,
Businessmen
Up chair & members; Local

administration; Public and private
service providers; Local influential
(Having influence on power
Structure); Member of parliament,
and Local institutional network
Supportive
Stakeholders
Union Parishad; Union Disaster Management Committee (UDMC); Upazila DMC; Involved NGO
staff; Local forest officer; Upazila cooperative officer; Money lenders, local elites; Involved NGO
staffs; Local physicians; Local CBOS and networking Bodies etc; Scientific organizations
including; Bangladesh meteorological; Department, Institute of Water Modelling (IWM), Centre
for Geographic Information Services (CEGIS); Climate Change Cell of Department of
Environment, BUET, Dhaka University, and Others.
STAKEHOLDERS
Participating stakeholders types and numbers will depend on its goal and objectives and
the social and physical boundary of the locality, extent of command area and other related
factors.
4.1.4.3. TRANSECT WALK
4 2
Objective
The objective is to gain clear understanding of the locality and its natural resources,
land use, local problems, prospects etc.
Duration
3 4 hours
Materials
Union map with common physical features, notebook, pen /pencil
Participants
6 8 persons (Local Administration, knowledgeable persons having idea about

Mouza map, local professionals e.g. school teacher and representatives of primary
stakeholders)
Output
Cross sectional information on the locality and its natural resources, land use, plant
and wildlife biodiversity etc.
4.1.4.3.1. PREPARATION FOR THE PROCESS

1. Try not to walk through the common communication routes because you will not
get most of the features (e.g. ponds, crop fields, homesteads, bushes) along the
walkway.
2. Walk slowly to know each of the issues/features clearly e.g. benefits of biodiversity,
use and benefits of medicinal plants etc.
3. Try to be familiar with the local terms e.g. salun (curry), pokkhi (birds), kawua
(crow), foshol (field crop including fish), hamildar (pregnant women) etc.
4.1.4.3.2. PROCESS
1. The Facilitator will build rapport with the community through frequent field visit and
informal discussion prior to the task.
2. Ask them about walking through which way you can get clear idea about the
locality and its natural resources, land use, plant and wildlife biodiversity etc.
3. To know each of the specific issues mentioned above take advantage of 6 question
i.e. what is it? When occurs? Where takes place? Who does? Why do they do?
Through which process?
4. Start walking With 6 8 local knowledgeable persons from one side of the area
and ask information on the locality and its natural resources to the accompanying
local people
5. Walking with 6 8 local knowledgeable persons from one side of the area and try
to focus on every related issue during the walk and take notes.
6. Talk with everybody you met during the walk.
7. Once the walk comes to an end, display the notes/information to the
accompanying persons so that they can provide further input for necessary
addition, modification, alteration or deduction.
4.1.4.4. KEY INFORMANTS INTERVIEW (KII)
Objective
Gain information about the locality, people, their livelihoods, past and potential future
hazard impacts.
Duration
1 hour
Materials
KII checklist (Annex XX), notepad, pen.
Potential
Informants
Key informants interviews should be with individuals who have involvement with a
particular issue of interest, (Key informant for women related issue may be a
woman, a NGO personal who can explain about some woman right related case
studies) UP chairman, Upazila level officers (e.g. Agriculture, Fishery, LGED etc.
depending on the subject of interest) and local knowledgeable.
Output
Information on the locality, people, their livelihoods and institutional arrangements.
4 3
4.1.4.4.1. PREPARATION FOR THE PROCESS

1. Inform the respondent well in advance.
2. Go through the KII checklist carefully.
3. Take all the required materials to the interview and be on time.
4.1.4.4.2. THE PROCESS
1. The Facilitator/interviewer will introduce himself/herself and explain precisely what
he/she is going to do and why.
2. The interviewer will ask the respondent if he/she has anything to ask.
3. The interviewer will ask questions based on the checklist to gather responses from
the respondent.
4. The facilitator will review the checklist to see if there is anything left or if any area
needs further clarification.
5. The facilitator will conclude the interview by thanking the respondent for his/ her
time and useful inputs.
4.1.4.5. SECONDARY INFORMATION COLLECTION
Objective
The main objective of the task is to collect the general information about the locality
and social exclusion.
Duration
Two Days
Materials
Notebook, pan/pencil
Potential
Organizations
Union Parisad, Upazila Office, Social Welfare, social exclusion NGOs, Different GO
office (e.g. Agriculture, Fishery, LGED etc. depending on the subject of interest)
Output
l
l
4 4
Request letter to corresponding organizations head for adequate support.

Proper communication and appointment should be made before the meetings.
STEP TWO
DAY 03
RISK EVALUATION CRITERIA AND RISK IDENTIFICATION
4.2. SCENARIO DEVELOPMENT WORKSHOP

4.2.1. GENERAL OVERVIEW
Objectives
DEVELOPING RISK CRITERIA : The purpose of Develop Criteria for
Evaluating Risk is determined the probable consequences associated

with one set of criteria over another.
RISK IDENTIFICATION AND HAZARD ANALYSIS: Identify different hazards
along with severity and mapping from the perspectives of the women
and children, PWDs and other excluded groups because they
experience hazards differently than that of others.
Major
Activities
Setting Criteria
Setting Likelihood Criteria
Setting Consequence Criteria
Sources of Risks
Hazard Identification
Social Mapping
Social Exclusion Mapping
Disability Mapping
Venn Diagram
Hazard Mapping
Activities and Seasonal Calendar
Duration
Three Hours
Potential
Participants
Cross-section people among the primary stakeholders
4.2.2. GUIDELINES FOR USERS

n
It is vital that the risk evaluation criteria are those that are put forward by the
community. If the community people do not own the criteria against which a solution is
found to be good, then they will not own the solution either.
In this phase of establishing context, interaction and consultation with stakeholders is

the best way to gather available information on the risk environment as well as finding
out about the groups expectations and perceptions.
In order to save time and/or other resources, interaction and consultation processes
can help by ensuring that all stakeholder group representatives have a shared
understanding of the scope of the work and the political, economic, social and cultural
factors which might impact it.
The risk evaluation criteria and levels of acceptable risk should account the potential
for severe adverse effects on the physical, social, economic or environmental well
being or safety of the community.
4 5
n Interaction and consultation are also critical in determining risk evaluation criteria
which reflect the values of a broad consensus of people in the community.

n In relation to critical infrastructure, evaluation criteria and levels of acceptable risk may
be prescribed through technical standard, operating license or other legislative

instrument. Participatory Tools can be used to help develop risk evaluation criteria and
levels of acceptable risk if they are not prescribed. Such groups may also be used to
review the prescribed criteria or levels of acceptable risk.
n There should be adequate interaction and consultation with the UDMC. The UDMC
can be used as the core of any proposed RM project committee.
4.2.3. DEVELOPING RISK CRITERIA

4.2.3.1. SETTING CRITERIA
In actual practice for disaster risk assessment, this step is usually missed out. Before any
disaster risk management planning is made, community members and other stakeholders
must decide the acceptable level of risk they are prepared to take. The development of
risk evaluation criteria will help in making judgments about which risks need to be treated.
Based on operational, technical, financial, legal, social, environmental or humanitarian
considerations, criteria should reflect community viewpoints and values.
Risk evaluation criteria should be developed in the context definition stage so that they
are not unduly influenced or skewed by outcomes from later stages. But further
development and refinement may take place when particular risks are identified and as
risk analysis techniques are chosen. Risk evaluation criteria should be monitored and
reviewed regularly to make sure that they continue to be relevant. The criteria will depend
on the most serious disaster risks identified by the community.
4.2.3.2. TIPS FOR DEVELOPING RISK CRITERIA
n
Decide or define the acceptable level of risk for each activity
Determine what is unacceptable
Clearly identify who is responsible for accepting risk and at what level.
4.2.3.3. SETTING LIKELIHOOD CRITERIA

4.2.3.3.1. KEY QUESTIONS
The facilitator should discuss some key questions for each area of impact.
n
What defines a 'high' likelihood of occurrence?
What defines a 'medium' likelihood of occurrence?
What defines a 'low' likelihood of occurrence?
4.2.3.3.2. IMPORTANT NOTES FOR THE FACILITATORS
4 6
Consider range of likelihoods for typical risks you face
Set a quantitative scale to suit your range
4.2.3.3.3. EXAMPLE OF LIKELIHOOD CRITERIA

EXAMPLES OF LIKELIHOOD CRITERIA DESCRIPTION
LEVEL DESCRIPTOR
Example- 1
Example- 2
More Examples
Is expected to occur in most circumstances;
and/or high level of recorded incidents;
and/or strong anecdotal evidence; and/or a
strong likelihood the event will recur; and/or
great opportunity, reason, or means to
occur; may occur once every year or more
Almost
Certain
Is expected to
occur in most
circumstances
Several
times per
year
Likely
Will probably
occur in most
circumstances
1 year
event
Will probably occur in most circumstances;

and/or regular recorded incidents and
strong anecdotal evidence; and/or
considerable opportunity, reason or means
to occur; may occur once every five years
Might occur at some time; and/or few,
infrequent, random recorded incidents or
little anecdotal evidence; and/or very few
incidents in associated or comparable
communities, facilities or communities;
and/or some opportunity, reason or means
to occur; may occur once every 20 years
Possible
Might occur at
some time
05 year
event
Unlikely
Could occur at
some time
25 year
event
Is not expected to occur; and/or no

recorded incidents or anecdotal evidence;
and/or no recent incidents in associated
communities, facilities or communities;
and/or little opportunity, reason or means to
occur; may occur once every 100 years
Rare
May occur only

in exceptional
conditions
50 year
event
May occur only in exceptional

circumstances; may occur once every 500
or more years
4.2.3.4. SETTING CONSEQUENCE CRITERIA

The facilitator should discuss some key questions for each area of impact to consequence
criteria.
n What defines a 'high' impact on the community?
n What defines a 'medium' impact on the community?
n What defines a 'low' impact on the community?
4.2.3.4.2. IMPORTANT NOTES FOR THE FACILITATORS

n Determine which level to focus risk
n Decide between broad single definitions versus multiple specific criteria.
4 7
4.2.3.4.3. EXAMPLES OF CONSEQUENCES PARAMETERS

A full consideration of risk would include a complete range of effects and of several
qualitatively different types. The range of undesirable consequences of natural hazards
what we might consider as loss parameters are listed in following tables:
CONSEQUENCES
MEASURES
Deaths
Number of People
Injuries
Number and Injury Severity
Physical Damage
Inventory of Damaged Elements by number and damaged level
Emergency Operations
Volume of manpower, Man days employed, equipment and resources,
Disruption to economy
Number of working days lost, volume of production lost
Social Disruptions
Number of displaced persons, homeless
Environmental Impact
Scale and severity (cleanup cost, repair cost consequences of poorer

environment, health risk, risk of future disaster).
4.2.3.4.4 . EXAMPLE OF CONSEQUENCE CRITERIA

EXAMPLE OF MULTI-SPECIFIC CONSEQUENCES CRITERIA
LEVEL DESCRIPTOR
4 8
DESCRIPTION
Insignificant
No injuries or fatalities. No displacement of people or displacement of only a

small number of people for short duration. Little or no personal support required
(support not monetary or material). Inconsequential or no damage. Little or no
disruption to community. No measurable impact on environment. Little or no
financial loss.
Minor
Small number of injuries but no fatalities. First aid treatment required. Some
displacement of people (less than 24 hours). Some personal support required.
Some damage. Some disruption (less than 24 hours). Small impact on
environment with no lasting effects.Some financial loss.
Moderate
Medical treatment required but no fatalities. Some hospitalization. Localized

displacement of people who return within 24 hours. Personal support satisfied
through local arrangements. Localized damage that is rectified by routine
arrangements. Normal community functioning with some inconvenience. Some
impact on environment with no long-term effect or small impact on environment
with long-term effect. Significant financial loss.
Major
Extensive injuries, significant hospitalization, large number displaced (more

than 24 hours duration). Fatalities. External resources required for personal
support. Significant damage that requires external resources. Community only
partially functioning, some services unavailable. Some impact on environment
with long-term effects. Significant financial loss - some financial assistance
required.
Catastrophic
Large number of severe injuries. Extended and large numbers requiring

hospitalization. General and widespread displacement for extended duration.
Significant fatalities. Extensive personal support. Extensive damage. Community
unable to function without significant support. Significant impact on environment
and/or permanent damage.
LEVEL
EXAMPLE OF SINGLE DEFINITION CONSEQUENCES CRITERIA

DESCRIPTION
DESCRIPTOR
Human Consequences
Financial Consequences
Consequence of Activities/
Service Interruption
Catastrophic
Multiple Deaths
Financial impact unlikely

to recover from
Cessation of major service for

some months
Major
Single Death, Multiple

Injuries
Major budget impact/loss
Cessation of major service for

one month
Moderate
Injury involving hospitalization

and rehabilitation
Significant budget impact
Major service delivery targets

not met for several weeks
Minor
Injury requiring medical

treatment and some lost time
Unbudgeted expense
Local service delivery

problems for less than a month
Insignificant
Injury requiring First Aid but

no lost time
Small financial expense
Local issue resolved with

negligible impact to service
LEVEL
EXAMPLE OF SINGLE DEFINITION CONSEQUENCES CRITERIA (Contunued)

DESCRIPTION
DESCRIPTOR
Environment Consequences
Operational/Reputation Consequences
Catastrophic
Long term environmental harm
Severe difficulties for the Government leading to

Public Inquiry and concerted Media Coverage
Major
Significant environmental harm

with long term recovery
Embarrassment for the Government, extended

media coverage and internal inquiry
Moderate
Significant harm with midterm

recovery
Minister required to be involved to resolve local

community concern, heavy local media coverage
Minor
Transient environmental harm
Question in Parliament; issue raised in the

press; Senior Management attention required to
resolve issue
Insignificant
Brief pollution with effective

remediation
Issue resolved in day to day management

process
4.2.4. RISKS IDENTIFICATION

4.2.4.1. GUIDELINES FOR USERS
n The process should therefore identify and describe sources of risk in terms of spatial
(geographic) distribution, temporal distribution (speed of onset, duration, etc.),

intensity, and manageability.
n The stakeholders and communities may be geographic groupings, shared experience
groupings, sector based groupings, occupational or function based groupings.

Individuals may belong to several groupings.
n The process of identifying and describing stakeholders and communities examines
information including population size, spatial distribution, remoteness, prior experience
4 9
or perception, degree of exposure, capacity, access to resources, and susceptibility or

resilience.
n
The environment is a set of conditions or influences that surround or interact with the
stakeholders and communities and the sources of risk. These have complex intra/
interactions. The process of identifying and describing the environment examines
information including the degree of mitigation or protection afforded to the
stakeholders and communities as well as their susceptibility or resilience.
Without detailed knowledge about the stakeholders, communities and environment, it

is impossible to determine the elements at risk and to describe their vulnerability, and
thus develop appropriate risk treatments. The following characteristics may be used as
prompts:
DEMOGRAPHY
CULTURE
ECONOMY
INFRASTRUCTURE
ENVIRONMENT
Population
Traditions
Trade
Communication
Land Forms
Age Distribution
Ethnicity
Agriculture
Transportation
Geology
Mobility
Social Values
Livestock
Networks
Waterways
Skills
Politics
Investments
Services
Climate
Health Status
Religion
Industries
Assets
Flora
Education
Attitudes
Wealth
Government
Fauna
4.2.4.2. TIPS FOR EFFECTIVE RISK IDENTIFICATION

n
n
Select a risk identification methodology appropriate to the type of risk and the nature
of the activity
Involve the right people in risk identification activities
Take a life cycle approach to risk identification and determine how risks change and
evolve throughout this cycle.
Identified hazards or sources of risk are described using characteristics gathered from
data from a range of sources, for example:
l Scientific data and research
l Records and accounts of past events.
4.2.5. HAZARD ANALYSIS

4.2.5.1. DESCRIBING HAZARDS OR SOURCES OF RISK
Identifying risk requires a detailed investigation of the characteristics and interaction of the
sources of risk, the stakeholders and communities, and the environment. A source of risk
presents the potential for loss or harm to the stakeholders, communities and/or
environment. Sources of risk may come from natural, technological, biological or civil/
political origins. The following list of sources of risk may be useful to initiate discussion
with local communities.
5 0
DIRECT/PRIMARY/
IMMEDIATE SOURCES OF RISK
INDIRECT/SECONDARY/
LONG TERM SOURCES OF RISK
Biological; Chemical; Civil disturbance/riot; Explosion/

incendiary/ fire (residential, bush, etc.); Hazardous
materials; Human acts (terrorism/ vandalism/ damage/
retribution/ sabotage); Infrastructure failure (power, water,
gas, etc.); Market failure; Manipulation (deliberate or
forced misuse of controls); Pollution (chemical, oil, waste,
etc.); Seismic (earthquake, tsunami, volcano); Landslide,
rock fall, mudflow; Storm surge; Structure failure/ collapse
(bridge, building, dam etc.); Transport accident (rail, road,
river route); Warfare; Weather (electrical storm, cyclone,
tornado, torrential rain, flood, hail, blizzard, heat-wave,
etc.); and so on.
Desertification; Drought;
Economic recession/depression;
Epidemic (human, animal,
plant); Erosion (soil, coastal);
Fog/extreme cold management;
Pathogens/ carcinogens/
mutagens; Plague (animal,
human, insect, plant); Resource
shortage/ depletion; Salinity
Intrusion; Sea level rise; Land
subsidence; Supply chain
failure; and so on.
4.2.5.2. EXAMPLE SOURCE OF RISK DESCRIPTION

A source of risk may be described in terms of:
n Intensity (how big, fast, powerful)
n Likelihood of occurrence (frequency of the event, not the impact)
n Extent (the area that a source of risk may impact)
n Timeframe (warning time, duration, time of day/week/year)
n Manageability (what can be done about it).
4.2.5.3. GUIDELINES FOR ANALYSING HAZARDS

The most important tasks and steps in hazard analysis are:
n
The first stage in hazard analysis is to identify the types of hazards. There are many
ways to classify hazard types, e.g. natural events occurring suddenly or gradually, of
an atmospheric, seismic, geological, volcanic, biological and hydrological nature, while
others summarize mass movements under the heading of "geomorphological
hazards". In these guidelines, we use the classification shown in the table below
(Section 4.2.5.4).
Depending on the types of hazard identified, the process may need to be continued on
a separate basis for each type of hazard or group of hazard types. Earthquakes, for
example, require different instruments and specializations for analysis than e.g.
landslides or floods. The analytical methodology must be adapted for the hazard types
and data available.
Identification and characterization of hazard prone locations.
Identification and determination of the probabilities of occurrence on an ordinal scale.
Estimate or calculate the scale (strength, magnitude) of the hazardous event, also on
an ordinal scale.
Identify the factors influencing the hazards, e.g. climatic change, environmental
destruction and resource degradation, major infrastructural facilities such as dams etc.
5 1
4.2.5.4. EXAMPLES OF MAIN HAZARD TYPES

METEOROLOGICAL CAUSES AND ORIGINS
GEOLOGICAL CAUSES AND OTHERS
1. Floods caused by torrential rain and tropical

storms
1. Earthquakes and the secondary

consequences such as tsunamis,
tidal waves and mass movements
2. Storms and torrential rain > damage caused by

storms, e.g. damage caused by tropical storms,
tornados and cyclones, hurricanes and tidal bores
3. Droughts have a particularly high damage
potential if they cause extensive crop destruction
and famine or forest/bush fires
4. Hail and frost, if they lead to extensive crop
destruction; lightning
5. Mass movements (e.g. landslides as a result of
heavy and intensive rainfall) caused among other
things by (1) flooding in mountainous regions
(2) heavy and intensive rain (3) rivers changing
courses
2. Volcanoes and the secondary

consequences such as lava and
mudflows
3. Mass movements caused by
largescale tectonic movements,
slow mountain building and
shifting.
4. The resultant changes to the
angles of slopes can cause mass
movements
5. Others: Epidemics, animal and
plant diseases and pests
6. Erosion, soil degradation caused by water and

wind
4.2.5.5. IDENTIFICATION OF RISK RELATIONSHIPS

Sources of information (historical and scientific) used as a basis for describing sources of
risk can also be used to describe the elements at risk.
n A risk relationship identification matrix, as shown in the table below, can be used to
determine whether there is a relationship between a source of risk and an element at

risk.
n This activity is similar to brainstorming and may be used to encourage all participants
to contribute to identifying risk.

4.2.5.6. EXAMPLE: RISK RELATIONSHIP IDENTIFICATION MATRIX
SOURCE OF RISK
(DESCRIPTION OF
HAZARDS)
5 2
ELEMENTS AT RISK
COMMUNITY
FACILITIES
LIFE
ASSETS
SECONDARY
ENVIRONMENT OTHER
INDUSTRY
4.2.5.7. EXAMPLES OF HAZARD ANALYSIS OUTPUT MATRIX

Output Matrix of Identify the Different Hazards with Risk
NAME OF
HAZARDS
NATURE & EXTENT OF

OBSTACLES/RISK
SEVERITY OF RISK (RANK: HIGH,

MEDIUM & LOW)
4.2.6. GENERATE RISK STATEMENTS

For each credible relationship that is established between a source of risk and an element
at risk, a risk statement should be generated. This will be used as basis for analysis and
evaluation. Each risk statement should outline:
n The source of risk
n The element at risk
n The consequences of the interaction.
Output Matrix of Identify the Different Hazards with Risk
NAME OF
HAZARDS
ELEMENT AT RISK
STATEMENT OF RISKS
4.2.7. SUGGESTED TOOLS, TECHNIQUES AND ACTIVITIES

4.2.7.1. SOCIAL MAPPING
Objective
To collect information on the topographical, villages/settlement, physical

infrastructure, institutions, commonplaces, land use, disaster prone and
impacted areas and natural drainage of the area.
Duration
2-3 Hour
Materials
Large size Union map with general physical features (e.g. river, canal, major
road, culvert/ sluice gate, location of Union Parishad etc.), colour pencil,
marker. Brown paper, multi-coloured pens, adhesive labels, scissors, pencil.
Potential
Informants
Output
A social Map showing all features, land use, disaster prone and impacted
areas and natural drainage of the area.
5 3

n
At the orientation session, the facilitator will explain the objectives of the activity.
Participants should be encouraged to clarify any doubts regarding the purpose of the
task and role of the participants in the exercise.
Participants will be with the drawn perimeter and common physical features of the
union and they will record topographical, settlement, physical infrastructure,
institutions, commonplace, land use, disaster prone and impacted areas and natural
drainage of the area.
In circumstances where there emerged contrasting or diverse perceptions, information

would be recorded only when participants reach consensus.
The Facilitator refrains from taking part in the discussions; their role would be limited
to facilitat ing and coordinating the sessions only (light facilitation).
In some cases, first hand information from community will be checked with concerned
departments viz. Upazila Government Offices, District level government offices, if
required.
4.2.7.2. SOCIAL EXCLUSION AND DISABILITY MAPPING

Objective
To collect information about the socially excluded people and their location/
villages/settlement, physical infrastructure, land use of the area.
Duration
2-3 Hour
Materials
road, culvert/ sluice gate, location of Union Parishad etc.), colour pencil,
marker. Brown paper, multi-coloured pens, adhesive labels, scissors, pencil.
Potential
Informants
Output
A social exclusion Map showing all features and land use of the excluded
communities.
5 4
The facilitator will explain the objectives of the activity. Participants should be
encouraged to clarify any doubts regarding the purpose of the task and role of the
participants in the exercise.
Participants will be with the drawn perimeter and common physical features of the
union and they will record topographical, settlement, physical infrastructure,
institutions, commonplace, land use, disaster prone and impacted areas and natural
drainage of the area.
In circumstances where there emerged contrasting or diverse perceptions, information

would be recorded only when participants reach consensus.
4.2.7.3. HAZARD MAPPING

Objective
To locate the affected areas by specific hazards within the union.
Duration
One Hour
Materials
road, culvert/sluice gate, location of Union Parishad etc.), colour pencil,
marker.
Potential
Informants
Output
A consensual hazard map for the union.

n
The facilitator will present the list of common local hazards which was collected before
and will describe the process of identifying locations affected by specific hazards in
the locality.
The facilitator will discuss about the Union boundary map along with common physical
features so that the participants can easily identify locations in the map.
The facilitator will request participants to draw hazard maps (one for each hazard)
within union boundary.
Throughout the session allow participants to discuss and come to a consensus,

carefully note down the points.
The participants will do this exercise for each of the hazards they listed.
4.2.7.4. A GENDER-DISAGGREGATED ACTIVITY CALENDAR

Objective
To gain insights into the type of activities (productive, reproductive

and communal) implemented by various household members during
a specific seasonal period within the union. Seasonal activity
calendars can be used to assess gender division of labour and the
workloads of women and men, girls and boys by seasonality.
Duration
Half an Hour
Materials
Brown Paper, Marker, Scale
Potential
Informants
Output
The gender-disaggregated activity calendar will be visualized
5 5
4.2.7.2.1 THE PROCESS

n
A gender-disaggregated activity calendar is a visualization of the gender (and age)

division of labour during a day, month, season or year.
In constructing calendars, women, men and adolescents either separated into

different groups or in mixed groups can discuss who is responsible for which activity
using symbols representing different groups (Figure below).
Participants should start by drawing a chart divided by month, season or local events.
TABLE 4.1
SEASONAL ACTIVITY CALENDAR DIFFERENTIATED BY AGE AND SEX
ACTIVITY
JAN
FEB
MAR
APR
MAY
JUN
JUL
AUG
SEP
OCT
NOV
Planting of
Crops
Irrigation of
Crops
Harvesting of
Crops
Other Farm
Labour
Small Livestock
Large Livestock
Migrating for
Work
Domestic Work
Care Taking
Collecting Water
Collecting
Firewood
Community
Work
Legends to be Used
Adult Men
Adult Women
5 6
Boys (<14)
Elderly Men (60+)

o
Elderly Women (60+)
Girls (<14)
Everybody
DEC
4.2.7.5. HAZARD VENN

Objective
To identify and analyse the common hazards in the locality, their

magnitude and likelihood.
Duration
One Hour
Materials
Brown paper, art paper pieces of different size and colour, marker,
adhesive, colour pen.
Potential
Informants
Output
A consensual hazard map for the union.

n The facilitator will request the participants to prepare a list of common hazards that
takes place in the locality.

n One of the participants will read out the list. The facilitator will ask if there are
omissions.
n The participants will be requested to select round shaped art paper pieces (prepared
earlier by the facilitator) for each of the hazards, size will depending on the intensity
and damage caused by the hazard, bigger size paper for the most intensive and most
damaging hazard. they will write down the hazard on the selected piece.
n Now the participants will be requested to put a piece of art paper in the middle of the
big brown paper writing the name of their locality/word and mark the upper side of the
brown paper as north, then they will put the hazards on the brown paper around their
locality depending on the direction they come into the locality .
n At this time they will consider the frequency of occurrence of each of the listed
hazards, most frequent one should be placed closest to their locality and so on. Now
they will discuss among themselves and agree about the position of each of the
hazards. The participants will do this exercise for each of the hazards they listed.
n The facilitator will ask some questions like: why do they think in this way? Why they
are putting one close and another faraway place?

n During the discussion, if they want to change place for any hazard, they can do it. After
agreement they will plot them on the places they agreed.

n Throughout the session allow participants to discuss and come to consensus,
carefully note down the points.
4.2.8. PROGRESS INDICATORS

n A Risk Management policy framework has been established.
n A Risk Management Committee has been identified and established.
n Stakeholders and communities have been identified, prioritized and engaged.
n Communication and consultation protocols have been developed and implemented
with the participation of stakeholders and communities.
5 7
Stakeholders and communities expectation and perceptions have been recognized.
Knowledge of what is unacceptable to stakeholders and communities is captured.
Risk evaluation criteria are available.
The sources of risk have been identified and described.
The most vulnerable communities have been identified and described.
The environments have been identified and described.
Explanation of how the sources of risk have been analyzed/ classified.
Risk statements have been generated.
The stakeholders and communities have been involved in the identification of risks.
4.2.9. PROCESS DOCUMENTS
5 8
A listing of internal and external stakeholders, if not already documented
Any scoping criteria reflecting which risks are to be treated
A brief description of the basic parameters defining the risk environment within which
risks are to be managed
The national and local policy or arrangements of GOs and NGOs relating to
emergency risk management
Documentation indicating that demographic or other data has been considered and
interviews and surveys are done. Review of legislation, operating licenses, statutory
instruments etc.
Documentation indicating consideration of what is acceptable to the stakeholders and

communities in terms of loss of life, health, economic loss, environmental harm,
infrastructure damage, and heritage loss.
An outline of the risk acceptability criteria, the decision making process, the
acceptable and unacceptable risks. A list of risk evaluation criteria that will guide future
decisions on the risks to be treated
Key decisions/outcomes of discussions at meetings.
Documentation indicating that internal monitoring and review has taken place.
Documentation or databases such as source of risk etc.
Documentation of environmental factors, impact statements etc.
Documentation indicating review of sources of risk to critical infrastructure including

qualitative description and the rationale behind declaring a risk.
Minutes of meetings, action sheets, project documentation etc.
The presence of, and documentation for, consultative groups, public meetings,
correspondence etc.
STEP THREE
DAY 04
CVA ANALYSIS AND RISK STATEMENTS

Objectives
CAPACITY AND VULNERABILITY ASSESSMENT: Collate and Analyze

according to capacities and vulnerabilities framework (CVA).
ACCESS TO AND CONTROL OVER RESOURCES AND SERVICES:
Identify the different assets or resources that women and men have access
to and control over within a community.
Major
Activities
DEVELOPING RISK STATEMENTS:

l Identification of Vulnerabilities
l Identification of Capacities
l Assessing Access to and Control over Resources and Services
l Develop Consensual based Risk Statements
Duration
Three Hours
Potential
Participants
4.3.2. CAPACITY AND VULNERABILITY ASSESSMENT

Data should be collated and analyzed according to capacities and vulnerabilities
framework (CVA). CVA is a framework for analysis developed by Mary Anderson and
Peter Woodrow. Capacities and Vulnerabilities can be categorised into material/physical,
social /organisational and attitudinal/ motivational.

Definitions
VULNERABILITIES: describe the long-term factors that weaken the ability of

people to cope with sudden onset or drawn-out emergencies. What makes
people more susceptible to disasters?
CAPACITIES: Describe the existing strengths in individual and social
groups. What are peoples materials and physical resources, their social
resources and their beliefs and attitudes? What is the ability of people to
cope with crises and recover from it?
Objectives
Identify the key sectors within the community (e.g. agriculture, housing,
livestock, lifelines, industry), key elements (e.g. people, Lifelines/Essential
services, infrastructure, livelihoods, houses and personal property,
community buildings).
Duration
2 hours
Materials
Union map with common physical features, notebook, pen /pencil
Potential
Informants
Output
Vulnerability and capacity of the locality, people, their livelihoods and

institutional arrangements.
5 9
4.3.2.1. PHYSICAL / MATERIAL DIMENSION OF CVA

KEY QUESTIONS
The following questions should be answered through this section of the CVA
n
What physical/material resources exist in the community?
What are the access and control patterns for these resources?
How do these patterns change in crisis?
TABLE 4.2
CVA MATRIX (PHYSICAL / MATERIAL)

VULNERABILITIES
PHYSICAL/MATERIA
FEMALES &
CHILDREN*
PWDS
CAPACITIES
EXCLUDED
GROUPS
FEMALES &
CHILDREN*
PWDS
EXCLUDED
GROUPS
Health and disability

Livelihoods/ Vocational skills
Livestock
Access to markets
Transport
Staple crops
Housing
Technologies
Water supply
Food supply
Access to capital or other assets
Relative poverty and wealth
Features of land, climate, environment
All of the listed categories will be different for women, PWDs and excluded groups. While
these groups suffer material deprivation during crisis, they always have some resources
left. These resources serve as capacities on which agencies can build.
4.3.2.2. SOCIAL / ORGANIZATIONAL DIMENSION OF CVA
6 0
What social/organizational institutions and relationships exist in the community?
How does crisis impact these structures?
How do these structures transform during crisis?
What are the opportunities and challenges to peoples capacities provided by this
transformation?
TABLE 4.3
CVA MATRIX (SOCIAL / ORGANIZATIONAL)

VULNERABILITIES
SOCIAL/ORGANIZATIONAL
FEMALES &
CHILDREN*
PWDS
CAPACITIES
EXCLUDED
GROUPS*
FEMALES &
CHILDREN*
PWDS
EXCLUDED
GROUPS*
Family structures
Kinship groups, clans
Formal social
organizations
and
political
Informal social gatherings

Divisions of gender, race, ethnicity,
class, caste, religion & etc
Social capital (systems of support
and power)
Education
Systems for distributing goods and
services
Ethnic relations and gender analysis is crucial, to understand the actors different roles in
decision-making, as well as access to resources and social systems of exchange.
Divisions on the basis of gender, race, ethnicity, class, caste or religion can weaken the
social fabric, increasing a groups vulnerability. Social organisations usually are disrupted
in crisis.
4.3.2.3. MOTIVATIONAL / ATTITUDINAL DIMENSION OF CVA
n
How does the community perceive the crisis?
What are the capacities for coping strategies in the community?
TABLE 4.4
CVA MATRIX (MOTIVATIONAL ATTITUDINAL)

VULNERABILITIES
MOTIVATIONAL ATTITUDINAL
FEMALES &
CHILDREN*
PWDS
CAPACITIES
EXCLUDED
GROUPS*
FEMALES &
CHILDREN*
PWDS
EXCLUDED
GROUPS*
Psycho social profile

History of crisis
Expectation of emergency Relief
Existing coping strategy
Cultural
Factors
and
psychological
Change in power structures and

relations
6 1
This category includes cultural and psychological factors based on traditional views, the
peoples history of crisis, their expectation of emergency relief assistance, and their
coping strategies. When people feel victimized and dependent; they may become fatalistic
and passive, and suffer a decrease in their coping strategies. Their vulnerabilities can also
be increased by inappropriate relief that does not build on their capacities.
4.3.2.4. NOTES FOR FACILITATORS
n
In the matrix, the columns on females and children, as well as excluded groups can be
further broken down into different categories (age, identity, occupation etc.) based on
the field situation.
Specific protection concerns need to be identified during this session, for instance
abuse and/or exploitation, which influences capacity and vulnerability factors (e.g.
gender, age, disability, ethnicity, discrimination, refugee or other legal status, or
situation of displacement and/or return- if population of concern has been defined
other than in these terms, etc.).
Understanding vulnerability means understanding the relationships of these risks and

how they could combine to trigger or escalate an event. To gain a thorough
understanding of the interactions between risks it may be necessary to identify and
implement appropriate indicators or performance measures. The facilitator may need
to consider:
VULNERABILITY INDICATORS FOR STAKEHOLDERS AND COMMUNITIES
LESS VULNERABLE
MORE VULNERABLE
Special Needs/Health
Healthy stakeholders and

communities
Frail, infirm, dependent on

medical support/systems
Critical Infrastructure
Robust, protected
Frail, exposed
Employment
Little unemployment
Substantial unemployment
Ethnicity
Groups with sufficient

knowledge of Bangla
language, socially cohesive
members of supporting
groups
Groups with no or insufficient

Bangla Language, socially
not cohesive, nonmembers
of supporting groups
Local Economic Production and

Employment Opportunities
Robust, protected
Frail, exposed
Medical and Emergency

Services
Robust, resilient
Frail, not resilient
Tested and adequate
Untested or inadequate
Stakeholders and
communities participate in
planning process, effective
Stakeholders and communities

not involved in planning
process, no or ineffective
Response & Recovery

Capability
Stakeholders and Communities
Planning Process Including
Mitigation Measures
6 2
4.3.3. ACCESS TO AND CONTROL OVER RESOURCES AND SERVICES

Objective
Identify the different assets or resources that women and men have access
to and control over within a community.
Duration
Half an Hour
Materials
Potential
Informants
Cross-section people among the primary stakeholders. The exercise can be

used in a mix group as well as in separate groups (e.g. male/female).
Output
The gender-disaggregated activity calendar will be visualized
4.3.3.1 THE PROCESS

n
Access means that a person can use and benefit from a resource, while control
means that the person owns the assets with full control over how it can be used and
who can access it (see Figure below).
Analyse understand power relationships between women and men in a given

community.
Separate groups allow for an assessment of how men and women differ in their views
on who has access and control over which asset.
Similar exercise is required concerning services (e.g. who has access and who has no
access to various institutions and services).
TABLE 4.5
ACCESS TO AND CONTROL OF RESOURCES MATRIX DIFFERENTIATED BY SEX

ACCESS TO ASSETS/ RESOURCES AND
SERVICES (WHO USES THEM?)
CONTROL OVER ASSETS/RESOURCES OVER

SERVICES (WHO DECIDES ON THEIR USE?)
MEN
MEN
WOMEN
Land
MEN & WOMEN
Forest
Crop
Livestock
Money
Work (off-farm)
MEN & WOMEN
Water
Work (on-farm)
WOMEN
x
x
Food
6 3
TABLE 4.5.1 g ACCESS TO SERVICES MATRIX DIFFERENTIATED BY SEX AND AGE
Access to services
Men
Women
Men & Women
Boys
Girls Boys & Girls
Health centre
Traditional healer
x
x
Primary school
Secondary school
Markets
Credit/loans
x
x
Training
Extension
Development projects
4.3.4. GENDER ROLES ANALYSIS FRAMEWORK

BEFORE THE DISASTER
DURING THE DISASTER
AFTER THE DISASTER
GENDER ROLES
WOMEN
Ensuring food availability

Care for children
Collect water
Collect fuel
Go to market
Clean house and wash clothes
Take care of sick
Give health education
Repair house
Attend community meeting
Draw evacuation plans
Receive warning
Evacuate families and others
Guard house
Get capital for small business
6 4
MEN
WOMEN
MEN
WOMEN
MEN
4.3.4.1. MOSER FRAMEWORK FOR GENDER ROLES ANALYSIS

BEFORE
DURING
AFTER
ACTIVITIES
WOMEN
MEN
WOMEN
MEN
WOMEN
MEN
PRODUCTIVE WORK
Production of goods and services for
consumption and trade (farming,
fishing, etc.)
Earn cash
Take care of animals
Get relief supplies like food assistance
Prepare rice and rice seed in the stock
house.
Get rehab assistance like seeds and
livestock assistance
REPRODUCTIVE WORK
Care & maintenance of household &
members
Care for children
Prepare food
Collect water
Collect fuel
Go to market
Clean house & clothes
Take care of sick
Give first aid
Give health education
Repair house
COMMUNITY WORK
Collective organization of social events
Attend in community meetings for
community programs (health,
production, etc.)
Make evacuation plans
Receive warning
Disseminate warning
SECURITY AND PROTECTION
Evacuate family & others
Guard the house
Guard the animals & other property
6 5
4.3.5. GENDER ANALYSIS MATRIX IN DISASTER MANAGEMENT

The Gender Analysis Matrix (GAM) developed by Rani Parker makes clearer the impact of
any program or project on women, men, household and community. This can be used
during the planning to plot potential impact of the project on four key areas: labour, time,
resources, and culture. It also allows for a disaggregated response between men and
women, between household and community.
The following matrix shows detailed guidelines for action by major areas of action and
phases of disaster in order to build the capacity of women as disaster managers at
community level. The guidelines are interdependent.
Some strategies identified could also be carried out during more than one phase; such as
information management. The guidelines reflect the perspectives of women, and seek to
encourage maximum use of this human resource and ensure their contribution at all
stages of the disaster risk management process.
4.3.5.1. MATRIX OF WOMEN'S ROLE IN DISASTER MANAGEMENT
IMPLEMENTATION
COMMUNITY LEVEL ACTION STRATEGIES

POLICY
MAKING
IN
DISASTER
PREPAREDNESS RESPONSE RECOVERY
MANAGEMENT
Integrate women into the political and policymaking process and use their
capacities and expertise to influence decisions in emergency management
Involve all groups in recovery operations to ensure non-discriminatory
allocation of benefits
DEVELOPMENT
OF
HUMAN
RESOURCES
Develop training programs to increase women's knowledge, skills in disaster

management. This could include leadership training, training on search and
rescue, first aid, data collection and hazard and vulnerability analysis
I N F O R M AT I O N
MANAGEMENT
Involve women in collecting data to assess risk and identify resources

within their communities
Involve women in identifying and using formal & informal communication
systems to expedite dissemination of information in a disaster situation
Involve women in collecting and using information for immediate-damage/
needs assessment
M O B I L I Z AT I O N
OF WOMEN
Organize women's groups to involve women in emergency response

activities and general education within households, workplaces, and the
community
Encourage maximum input from women's organizations and their members
by recognizing them and assisting them in addressing women's special
emergency related concerns
Form male and female micro-credit groups for long-term disaster risk
reduction
6 6
uu
uu
IMPLEMENTATION
COMMUNITY LEVEL ACTION STRATEGIES
PREPAREDNESS RESPONSE RECOVERY
LOCAL EMERGENCY MANAGEMENT COMMITTEES

Institutionalize women's contribution via local emergency management
committee
Help outside agencies recognize and work with local capabilities and
coping mechanisms
Facilitate cooperation between outside relief agencies and local
organizations
R E P R E S E N TAT I O N / PA R T I C I PAT I O N
IN
DECISION MAKING
Ensure full representation of women on technical and managerial

decision-making bodies that impact on emergency management
P R I O R I T I E S F O R W O M E N I N T H E O R G A N I Z AT I O N O F R E C O V E R Y P R O G R A M
Involve women in re-establishment of community services
Involve women in restoration of food production, and improved housing
construction
Organize/implement programs for post disaster psychological needs of
affected communities
Introduce co-ownership of houses by husband and wife in the
reconstruction work, it may not be always possible, but it might be an
effective way to promote gender equality
WA R N I N G
SYSTEMS
AND
RESPONSE
MECHANISMS
Use appropriate media to ensure you are reaching all sections of the
population, especially women
Ensure that all the warning mechanisms you plan to put in place are
sensitive to women's needs and abilities
Tap women's talents as informal educators
Consider women's heavy domestic workloads when designing training and
crisis rehearsals
I N V O LV E M E N T
IN
RESPONSE
AND WOMEN'S
RELIEF
O P E R AT I O N S
Promote collaboration and coordination with emergency management and

development agencies to address concerns of women
Orient and involve professionals and volunteer women in all aspects of
response and relief operations
Encourage women survivors in the disaster relief process? Relief plans
should not over burden women as caregivers
6 7

n
The most vulnerable communities have been identified and described.
The environments have been identified and described.
The vulnerability of the identified communities has been scoped.
The vulnerability of the identified environments has been scoped.
The stakeholders and communities have been involved in the identification of

vulnerabilities and capacities.
6 8
Documentations on Gender Analysis Matrix in Disaster Management
Documentation on Women's Role in Disaster Management
Documentations on Gender Role analysis
Documentation indicating appropriate research and analysis of vulnerability in terms of

the ability to cope with and recover from a catastrophic event.
correspondence etc.
STEP FOUR
DAY 05
RISK ANALYSIS AND EVALUATION

Objectives
Major
Activities
Analyzing and evaluating the risk statements to have an accurate picture of

each risk and their respective potential consequences. This will allow us to
evaluate them according to the impact they may have on the various
sectors/elements, which make up a community.
l
Risk Assessment
Risk Profiling
Risk Quantification
Risk Consolidation
Evaluate Risk
Duration
Three Hours
Potential
Participants
4.4.2. RISK ANALYSIS

The purpose of analysing risks is to provide information to assist in the evaluation and
treatment of risks. With respect to catastrophic events significant analysis is required in
relation to:
n
Infrastructure interdependencies within and external to the community;
Physical resources availability, prioritisation and substitutability; and,
Enabling resource availability, prioritisation and substitutability.

PHYSICAL
HAZARD
CAUSE OF
HAZARD
Increased Water
Runoff in Valleys
Mountain Areas
Increased Water
Volume in Rivers
Heavy Rainfall
Saturated Soil
Flooding of
Fields
Erosion and
Landslides
on River Banks
BASIS OF LIFE
IMPACT ON
Destruction of
Roads and Bridges
a) No marketing
b) Prices rise
Loss of Usable
Soils
Harvest Losses
Loss of soil
Ferility
Sediment
Deposition in Fields
Improved Soil
Fertility
Erosion
Loss of Arable
Soils
Landslides
Flooding
Destruction of
Infrastructure
INCOME
Less income
More poverty
Harvest Losses
Loss of soil
Fertility
FIGURE 4.2 n IMPACT CHAIN FOR AGRICULTURE AND INCOME OF TORRENTIAL RAIN
6 9
Analysis will require considered and experienced judgments and assumptions. These will
involve uncertainty and be based on incomplete information. Where possible the
confidence of the risk analysis should be included. This may be determined by such
parameters as; the quality of information used the type of studies conducted, and the
depth to which scenarios have been explored.
The Likelihood or occurrence needs to be explored and defined to ascertain the frequency
of the risks. This should be done through the use of both Technical (Scientific) and Social
(Participatory) data. Both data sets are equally important and ensure that not only we do
have accurate and factual information (which can be validated); we also have the
perceptions and local knowledge of the community members on how these events have
impacted on them at a local level.
4.4.2.1. TIPS FOR EFFECTIVE RISK ANALYSIS
n Risk analysis is usually done in the context of existing controls take the time to
identify them.
n The risk analysis methodology selected should, where possible, be comparable to the
significance and complexity of the risk being analyzed, i.e. the higher the potential
consequence the more rigorous the methodology.
n Risk analysis tools are designed to help rank or prioritize risks. To do this they must be
designed for the specific context and the risk dimension under analysis.
4.4.2.2. DETERMINING LIKELIHOOD AND CONSEQUENCE
Predicted likelihood and expected consequences relate to the sources of risk associated
with catastrophic events, however, our experience of catastrophic events is usually limited.
To overcome this, risk managers and facilitators need to source a variety of information
and apply a variety of techniques. To avoid biases the best available information and
techniques should be applied. These may include the use of:
n Past records;
n Experience and judgement;
n Appropriate journals and literature;
n Scenarios and experiments; and
n Peer reviews and audit.
4.4.2.3. TIPS FOR DETERMINING LIKELIHOOD AND CONSEQUENCE
Scenarios can be developed in the workshops by participants exercises. Sources of
risk can be described to enable the evaluation of the likely merit of risk treatments
explored by the scenario.
n
The development of scenarios allows for either qualitative or quantitative risk
assessment, predictive analysis and modelling based on the description of sources of
risks, and the degree of vulnerability of the stakeholders, communities and
environment.
n
Predictive analysis and modeling may be used to accommodate uncertainty and to
investigate the impact of various selected assumptions. Outputs may provide valuable
information for the determination of effective treatments.
n
7 0
Moderate Signficant
(4)
(3)
InsigniftCant (1)
Monor
(2)
CONSEQUENCES
CatastroPhic (5)
4.4.2.4. RISK RATING MATRIX
Negiligible
(1)
Rare
(2)
Unlikely
(3)
Possible
(4)
Probable
(5)
LIKELIHOOD
Extreme Risk Immediate Action is Needed Without any Delay

High Risk Immediate Action Needed With Proper Consultation
Medium Risk Frequent Observation and Measures Needed
Low Risk Annual Observation Needed,, Measures Could be Taken
4.4.2.4.1. CONSEQUENCES DESCRIPTORS

LEVEL DESCRIPTOR
CATEGORIES
OF IMPACT
DESCRIPTION OF IMPACT
Insignificant Health
Insignificant number of injuries or impact on health
Social
Insignificant numbers of persons are displaced and

insignificant personal support required.
Insignificant disruption to community services, including
transport services and infrastructure.
Economic
Environment
Insignificant impact on local economy.

Insignificant impact on environment
uu
7 1
uu
LEVEL DESCRIPTOR
Minor
CATEGORIES
OF IMPACT
Health
Small number of people affected no fatalities, and small

number of minor injuries with first aid treatment.
Social
Minor damage to properties.

Minor displacement of a small number of people for < 24
hours and minor personal support required.
Minor localized disruption to community services or
infrastructure <24hours
Moderate
Economic
Negligible impact on local economy and cost easily

absorbed.
Environment
Minor impact on environment with no lasting effects.
Health
Sufficient number of fatalities with some casualties

requiring hospitalization and medical treatment and
activation of major incident procedures in one or more
hospitals.
Social
Damage that is confined to a specific location, or a

number of locations, but requires additional resources.
Localized displacement of >100 people for 1-3 days.
Localized disruption to infrastructure and community
services.
Economic
Limited impact on local economy with some short-term

loss of production, with possible additional clean-up costs.
Environment
Limited impact on environment with short-term or longterm effects.
Significantr Health
Significant number of people in affected area impacted

with multiple fatalities, multiple serious or extensive
injuries, significant hospitalization and activation of major
incident procedures across a number of hospitals.
Social
Significant damage that requires support for local

responders with external resources.
100 to 5000 people in danger and displaced for longer
than one week.Local responders require external
resources to deliver personal support.
Significant impact on and possible breakdown of delivery
of some community services.
Economic
Environment
5
7 2
Catastrophic Health
Significant impact on local economy with medium-term

loss of production.
Significant extra clean-up and recovery costs.
Significant impact on environment with medium-to longterm effects
Very large numbers of people in affected area(s) impacted

with significant numbers of fatalities, large numbers of
people requiring hospitalization with serious injuries with
longer-term effects.
uu
uu LEVEL DESCRIPTOR
CATEGORIES
OF IMPACT
Catastrophic Social
Economic
Environment
Extensive damage to properties and built environment in

affected area requiring major demolition.
General and widespread displacement of more than 500
people for prolonged duration and extensive personal
support required.
Serious damage to infrastructure causing significant
disruption to, or loss of, key services for prolonged period.
Community unable to function without significant support.
Serious impact on local and regional economy with some
long-term, potentially permanent, loss of production with
some structural change.
Extensive clean-up and recovery costs.
Serious long-term impact on environment and/or
permanent damage.
4.4.2.4.2. EXPLANATION OF CATEGORIES OF IMPACT

CATEGORY
EXPLANATION
Health
Encompassing direct health impacts (numbers of people affected, fatalities,

injuries, human illness or injury, health damage) and indirect health impacts that
arise because of strain on the health service.
Social
Encompassing the social consequences of an event, including availability of

social welfare provision; disruption of facilities for transport; damage to property;
disruption of a supply of money, food, water, energy or fuel; disruption of an
electronic or other system of communication; homelessness, evacuation and
avoidance behaviour; and public disorder due to anger, fear and/or lack of trust in
the authorities.
Economic
Encompassing the net economic cost, including both direct (e.g. loss of goods,
buildings, infrastructure) and indirect (e.g. loss of business, increased demand
for public services) costs.
Environment
Encompassing contamination or pollution of land, water or air with harmful

biological/chemical/radioactive matter or oil, flooding, or disruption or destruction
of plant or animal life.
4.4.3. RISK EVALUATION

The purpose of evaluating risks is to make judgements about their relative seriousness.
These judgements will guide the facilitators for risk prioritisation. Given limited resources,
it is necessary to determine which risks will be treated. The primary output of a risk
evaluation is therefore a prioritised list of risks for further action. The prioritisation tools
must be logical, documented and based on likelihood and consequence.
Importantly, the level of confidence in the evaluation should be discussed. The level of
confidence will depend on the quality of analysis. For example, the information used and
7 3
the type of evaluation will greatly impact the overall quality of the evaluation and
prioritisation process. The participants should be educated about the implications of
prioritization and the level of confidence associated with them.
4.4.3.1. RISK EVALUATION AND ACCEPTABILITY
Risk evaluation involves comparing the level of risk found during the analysis process with
previously established risk criteria, and deciding whether these risks require treatment.
The result of a risk evaluation is a prioritized list of risks that require further action. This
step is about deciding whether risks are acceptable or need treatment.
Low or tolerable risks may be accepted. Acceptable means the community chooses to
accept that the risk exists, either because the risk is at a low level and the cost of treating
the risk will outweigh the benefit, or there is no reasonable treatment that can be
implemented. This is also known as ALARP (as low as reasonably practicable). A risk may
be accepted for the following reasons:
n
The cost of treatment far exceeds the benefit, so that acceptance is the only option
(applies particularly to lower ranked risks);
The level of the risk is so low that specific treatment is not appropriate with available
resources;
The opportunities presented outweigh the threats to such a degree that the risk is
justified; and
The risk is such that there is no treatment available.
TABLE 4.6
OUTPUT MATRIX FOR EVALUATING RISK
HAZARDS & RISK CONSEQUENC
RISK CRITERIA
PRIORITIZATION
PROBABILITY
EXTENT/
INTENSITY
ACCEPTABILITY
4.4.3.2. TIPS FOR RISK EVALUATION

n
The facilitators should make judgements about their relative seriousness of risk.
Develop a prioritised list of risks for further action.
The prioritisation tools must be logical, documented and based on likelihood and
consequence.
7 4
Critical interdependencies have been identified and described.
Physical resource availability has been identified and described.
Supporting resources have been identified and described.
The level of risk has been assigned to the risk statements.
The views of stakeholders and communities have been included in the analysis and
the results discussed with them.
Likelihood and consequence have been used to undertake the evaluation.
Prioritization tools, such as ranking systems, have been developed and endorsed by
the UDMC.
Risks have been subjected to the prioritization tools and the results documented.
Risk acceptability criteria have been developed with stakeholders and communities. A
review process exists.
Risk statements with assigned consequences, reflecting vulnerability, likelihood, risk

levels, confidence limits, and priorities are in place with a monitoring and review
process established to ensure they remain current.
Explanation of how the sources of risk have been analyzed/ classified.
Risk evaluation criteria have been revisited.
The stakeholders and communities have been involved in the identification of risks.

n
Documentation indicating review of sources of risk to critical infrastructure including

qualitative description and the rationale behind declaring a risk.
Risk matrices or similar analysis tools such as databases etc.
correspondence etc.
7 5
STEP FIVE
DAY 06
MANAGING RISK ENVIRONMENT

Objectives
Identify the different risk treatment options and craterisation for

implementation.
Major
Activities
Risk Response Criteria

Risk Treatment Option Identification
Criteria for Assessing Risk Treatment Options
Monitoring and reviewing
Duration
Three Hours
Potential
Participants
4.5.2. RISK TREATMENT

Risk treatment is about considering options for treating risks that were not considered
acceptable or tolerable at the previous stage.
Risk treatment involves identifying options for treating or controlling risk, in order to either
reduce or eliminate negative consequences, or to reduce the likelihood of an adverse
occurrence. Risk treatment should also aim to enhance positive outcomes.
It is often either not possible or cost-effective to implement all treatment strategies. The
community should aim to choose, prioritize and implement the most appropriate
combination of risk treatments. The following figure overviews the risk treatment process,
including what needs to be considered in choosing a risk treatment.
Analse Risk
Using Context
Specific Risk Analysis
tools For Risk
Assessment
Evaluate Risk
Evaluate Risk Against
Esrlier Developed Risk
Criteria & Indentify
Non-Acceptable
Identify
Options
Develop/Design
Treatement
Option
Risks to be treated + Risk Treatment

Objectives
Risk Treatment Objectives are What You will
Aim to Achieve by Treating the Risk (E.G.
Reducing the Consequence
FIGURE 4.3 n RISK TREATMENT MODEL
7 6
Evaluate Option
Do They Satisfy
Treatment
Objectives? Are they
Cost Beneficial?
Develop &
Implement
Risk
Treatment
Plan
Residual Risks
From the Risk
Treatment Chosen,
What Residual Risk
Remains>
Monitor
Review
4.5.3. THE NEED FOR RISK TREATMENT

Evaluating a risk means making a decision about whether a risk is being satisfactorily
managed or if it requires further treatment. The decision about whether a risk needs to be
treated is based on:
n
The risk analysis
Risk evaluation criteria.
Even if treatment strategies are not justified, the risk should be listed, as well as
information about consequence, likelihood and risk level. Subsequently, it should be
monitored and reviewed to make sure that the decision not to treat this risk is still
appropriate.
4.5.4. RISK RESPONSE CRITERIA

There are a number of ways of thinking about risk response. These include:
1. prevention, preparedness, response and recovery (PPRR);
2. the hierarchy of control4; and,
3. Standard treatments such as avoidance, reduction, sharing and acceptance5.
Low
Accept or absorb
Risks are not significant. Keep under
view, but costs of dealing with risks
unlikely to be worth the benefits.
Transfer
Insure risk or implement contingency
plans. Reduction of severity of risk will
minimize insurance premiums.
High
Likelihood
Low
CONSEQUENCES
High
Reduce or manage
Take some action, e.g. self-insurance to
deal with frequency of losses.
Avoid or control
Take immediate action to reduce severity
and frequency of losses, e.g. insurance,
charging higher prices to customers or
ultimately abandoning activities.
4.5.5. RISK TREATMENT OPTION IDENTIFICATION

Risk treatment involves identifying range of options for treating risks, assessing these
options, and the preparation and implementation of treatment plans. When treatment
options are being identified, legal, social, political and economic considerations need to
be taken into account, especially when allocating resources for risk reduction. The risk
management treatment measures are:
n
Avoid the risk: decide not to proceed with the activity likely to generate risk
Reduce the likelihood of harmful consequences occurring: by modifying the

source of risk
4 Standards Australia (1997) AS/NZS 4804:1997 Occupational health and safety management systems-General guidelines on
principles, systems and supporting techniques, Homebush, Australia.
5 See Standards Australia (1999) AS/NZS 4360:1999 Risk Management.
7 7
Reduce the consequences occurring: by modifying susceptibility and/or increasing

resilience
Transfer the risk: cause another party to share or bear the risk
Retain the risk: accept the risk and plan to manage its consequence.
The effectiveness of existing arrangements needs to be considered, focusing on

prevention/ mitigation and preparedness. Some examples of the alternative options are
given below:
POSSIBLE PREVENTION/MITIGATION
STRATEGIES CAN INCLUDE
PREPAREDNESS STRATEGIES WHICH CAN BE

CONSIDERED INCLUDE
Land use Management
Building Codes
Building use Regulations
Relocation
Legislation.
n
n
RESPONSE STRATEGIES WHICH CAN BE

CONSIDERED INCLUDE
RECOVERY STRATEGIES MAY INCLUDE
Plan Implementation
Search and Rescue
Mobilization of Resources
Activate Coordination Centres
Warning Messages.
Providing Public Information.
Community Education and Awareness

Emergency Plans
Training
Emergency Plan Exercising
Mutual Aid Agreements
Warning Systems.
n
n
n
n
Restoring Essential Services

Financial Support and Assistance
Temporary Housing
Managing Public Appeals
Counselling Programme
Reconstruction of Damaged Public
Infrastructure
4.5.5.1. RISK TREATMENTS OPTIONS

A range of risk treatments may be available. These may address resilience or robustness
and include:
ADDRESSING
EXAMPLE RISK TREATMENTS
7 8
RESILIENCE
ROBUSTNESS
Awareness and vigilance
Primary
Secondary
Communication and consultation
Primary
Secondary
Engineering options
Secondary
Primary
Monitoring and review
Primary
Secondary
Resource management
Primary
Secondary
Security and surveillance
Secondary
Primary
These may then be further categorized as illustrated in the table below.

PREVENTION/
MITIGATION
PREPAREDNESS
RESPONSE
RECOVERY
Awareness and
Vigilance
General staff
training include RM
issues.
Management
controls.
Specific RM
training. Leadership
training.
Develop
relationships.
Debriefing and
review.
Communication
and Consultation
Community and
stakeholder
Awareness raising
and briefing. Media
liaison.
Engage
stakeholders and
communities in risk
assessments, drills
and scenario
testing. Brief media
and prepare media
plans around
possible scenarios.
Communicate
effectively with
stakeholders,
communities and
media. Implement
media strategy,
such as providing
media access to
command centre.
Debrief
stakeholders and
communities.
Extract lessons
learned. Report on
incident to
stakeholders and
communities.
Engineering
Options
Design features to
minimize risk.
Review design
standards.
Modification or
addition of
infrastructure to
reduce risk.
Emergency repairs
and coping
mechanisms,
including substitute
services.
Restoring
infrastructure and,
where necessary,
redesigning.
Monitoring and
Review RM process
and risk treatments.
Monitor and review

state of
preparedness
Monitor and review Monitor and review

progress of emer
progress of
gency response.
recovery and
organizational
performance.
Resource
Management
Assign necessary
resources to deal
with RM
Drills and scenario

exercises involving
stakeholders,
communities, staff,
contractors and
consultants.
Implement
emergency
command
structure.
Deployment of
resources and
implementation of
plans.
Mobilization of
resources.
Supplementary
crews for relief.
Security and
Surveillance
Physical security,
surveillance and
monitoring system.
Identification of
staff, contractors
etc.
Testing security and

surveillance
systems. Drills and
tests.
Deployment of
supporting
surveillance and
physical security.
Performance
review of security
and surveillance
systems.
Review
Risk treatment plans should document how the chosen treatments will be implemented.
They should identify agreed responsibilities, schedules, the expected outcome of
treatments, budgeting, performance measures, and the monitoring and review process.
6 Adapted from Foster, H. D. (1980) Disaster planning, Springer-Veriag New York Inc.
7 9
4.5.6. ASSESSING RISK TREATMENT OPTIONS

In considering assessment criteria for risk treatment options, it may be necessary to refer
to disaster management policy as well as necessary to consider community values and
expectations. The criteria to be used are then selected and modified to suit the risk
management context.
TABLE 4.7
SOME CRITERIA FOR ASSESSING RISK TREATMENT OPTIONS
CRITERIA
QUESTIONS
Administrative efficiency
Is it easily administered or will its application be neglected

because of difficulty of administration or lack of expertise?
Compatibility
How compatible is this option with others that may be

adopted?
Continuity of effects
Will the effects of this option be continuous or short term?
Cost / Efficiency
Is it cost-effective, could results be had by cheaper means?
Effects on stakeholders and

communities
Are there likely to be adverse reactions to this option?
Effects on the economy
What will be the economic impacts of this option?
Effects on the environment
What will be the environmental impacts of this option?
Equity
Do those responsible for creating the risk pay for its

reduction? When not man-made, is the cost fairly distributed?
Individual freedom
Does this option deny basic rights?
Jurisdictional authority
Does this level of Government have the authority to apply this

option? If not, can higher levels be encouraged to do so?
Leverage
Will the option lead to further risk-reducing actions by others?
Political acceptability
Is it likely to be endorsed by the relevant governments?
Residual and Latent Risks
What are the residual and latent risks and how can they be
managed?
Risk creation
Will this option itself introduce new risks?
Risk reduction potential
What proportion of the losses will this option prevent?

Will the beneficial effects of this option be quickly realized?
4.5.7. IMPLEMENTING RISK TREATMENT PROJECTS
8 0
Objectives
To build consensus among the participants on proposed treatment options and

implementation strategy.
Duration
3-4 Hour
Materials
Marker, note pad, pen, prepared posters, brown paper, display board, fluid pen,
flip char t, Social Map developed previously.
Potential
Informants
Output
A social exclusion Map showing all features and land use of the excluded communities.
Adapted from Foster, H.D. (1980) Disaster planning, Springer-Veriag New York INc.
4.2.7.1.1. TIPS FOR THE FACILITATORS

Write the compiled findings from all groups on posters so that they can be displayed.
Prepare the posters using large fonts with coloured marker pens so that everybody can
read them easily.
n
Check whether posters are displayed in specific locations before the session starts.
Check whether all necessary materials are taken to the venue in time.
Prior to starting the session, ensure that at least 2 co ]facilitators are available to
document the processes, discussions and comments or suggestions that arise during
the discussions.

n
At the out set, the facilitator will explain the activities to be carried out in this session to
the participants.
Facilitator explains the findings of all the sessions conducted over the last few days
and all the preparatory works to the participants (primary and secondary
stakeholders) so that they can understand what activities have been done so far and
what activities to be carried out.
The facilitator then helps dividing the participants both secondary and primary into
three different groups. Identify one participant from each group to read out all the
posters displayed. The facilitator should be careful to ensure that the participants
concentrate on displayed posters and clearly understand the contents.
The participants in group work will locate proposed interventions on map and will
present their work in poster paper. When the group presentations are completed, the
facilitator then ask the participants about any differences in opinion on any proposed
options/ or interventions and implementation strategy.
If there are any, then the facilitator will ask them to explain the reasons and will build
consensus among them.
TABLE 4.8
OPTIONS
OUTPUT MATRIX FOR IMPLEMENTING RISK TREATMENT PROJECT

WHO WILL
PARTICIPATE
HOW
WHEN
WHERE
ESTIMATED
COST
RESULT SHOULD
BE SHARED WITH
4.5.7.1. TIPS FOR IMPLEMENTING RISK TREATMENTS

n
The key to managing risk is in implementing effective treatment options.
When implementing the risk treatment plan, ensure that adequate resources are
available, and define a timeframe, responsibilities and a method for monitoring
progress against the plan.
Physically, check that the treatment implemented reduces the residual risk level.
In order of priority, undertake remedial measures to reduce the risk.
8 1
4.5.8. MONITORING AND REVIEWING

Monitoring and review is an integral part of the risk management system, it also supports
continuous improvement. Few risks remain static. Changing circumstances can affect the
need for treatment of risks, alter priorities, or mean that selected treatment methods are
no longer effective. This means that there needs to be monitoring of risks, treatment plans
and strategies, and the management systems set up to control implementation.
So that progress can be easily monitored, key steps, or milestones, should be identified
when an ERM project plan is developed. Performance indicators in measurable units
should also be established to clearly demonstrate whether the project is meeting its aims
and objectives and how efficiently it is achieving outcomes.
To ensure that the management system remains relevant, it should be reviewed
constantly. Factors affecting the likelihood and consequences of an outcome may change,
as may the factors that affect the suitability or cost of the various treatment options.
Clear arrangements for monitoring and review should be made and documented
throughout the CRA process. Appropriate systems should be devised and introduced at
an early stage, especially where dealing with large numbers of risks and risk treatments.
4.5.8.1. THE PURPOSE
The purpose of monitoring and reviewing the risk management process is to ensure it
remains relevant. It also helps to recognise and exploit opportunities to improve risk
treatments. Review of risk management may be based on monitoring changes to:
n Context
n Sources of risk
n Stakeholders
n Communities
n Environment and
n Events
Importantly, risks and the effectiveness of the risk treatments need to be monitored to
ensure changing circumstances do not alter priorities. Ongoing review, such as
environmental scanning may be used. Any event involving the same or similar elements or
issues should be evaluated to determine whether there are lessons to be learned.
Documentation should be managed as part of a document control system and include
assumptions, methods, data sources, and results.
Documentation should include:
n Assurance that the process has been conducted;
n Evidence of a systematic approach;
n A record of risks;
n A means of retaining the communities knowledge;
n Planning tools;
n Accountability mechanisms and tools;
n Opportunities for incremental improvement;
n Training of personnel;
n An audit track; and,
n A means to share and communicate information.
8 2
4.5.9. GUIDELINES FOR PARTICIPATORY EVALUATION

"Participatory monitoring and evaluation is not just a matter of using participatory techniques within a
conventional monitoring and evaluation setting. It is about radically rethinking who initiates and
undertakes the process, and who learns or benefits from the findings."
Institute of Development Studies, 1998
Participatory evaluation is a partnership approach to evaluation in which stakeholders

actively engage in developing the evaluation and all phases of its implementation. The
process seeks to honour the perspectives, voices, preferences and decisions of the least
powerful and most affected stakeholders and program beneficiaries7. Ideally, through this
process, participants determine the evaluations focus, design and outcomes within their
own socioeconomic, cultural and political environments.Those who have the most at stake
in the program partners, program beneficiaries, funders and key decision makers
play active roles. Participation occurs throughout the evaluation process including8:
n
Identifying relevant questions;
Planning the evaluation design;
Selecting appropriate measures and data collection methods;
Gathering and analyzing data;
Reaching consensus about findings, conclusions and recommendations;
Disseminating results and preparing an action plan to improve program performance.
4.5.9.1. GUIDING PRINCIPLES OF PARTICIPATORY EVALUATION IN CRA

n
Participant focus and ownership Structures and processes are created to include
those most frequently powerless or voiceless in program design and implementation.
The participatory process honours human contributions and cultural knowledge.
Negotiation Participants commit to work together to decide on the evaluation focus,

how it should be conducted, how findings will be used and what action will result.
Often the process requires addressing differences in point of view and conflicts.
n
n
Learning Participants learn together to take corrective actions and improve

programs.
Flexibility Uses creative methodologies to match the resources, needs and skills of
participants.
Rossman, G. Participatory Monitoring and Evaluation. The Center for International Education; 2000. Web source:
http://www.umass.edu/cie/Themes/participatory_evaluation.htm [last accessed on 14 Dec 2008]
8 Institute of Development Studies (IDS). Participatory Monitoring and Evaluation. IDS Policy Briefing, Issue 12, Nov. 1998.
8 3
4.5.10. RESOURCE MOBILIZATION MATRIX

Objectives
Identify the different assets or resources that are required for

implementing risk treatment options.
Duration
Half an Hour
Materials
Potential
Informants
Cross-section people among the primary stakeholders. The exercise

can be used in a mix group as well as in separate groups (e.g.
male/female in the case of excluded communities).
Output
The resource mobilization mapping will be visualized
4.5.10.1. THE PROCESS

n
The facilitator will introduce himself/herself and explain precisely what he/she is going
to do and why.
The facilitator will ask the participants if they have anything to ask.
The facilitator will ask questions based on the checklist to gather responses from the
participants.
The facilitator will review the checklist to see if there is anything left or if any area
needs further clarification.
The facilitator will conclude the discussion by thanking the participants for their time
and useful inputs.
SOURCES
RESOURCES REQUIRED
INPUTS
INSIDERS
HUMAN PHYSICAL NATURAL FINANCIAL COMMUNITY
TECHNICAL
What Kinds of Technical Skills will
be Required?
How Much/ Many will be
Required?
When will it be Required?
Where will it be Required?
How Long/ Duration will it be
Required?
M AT E R I A L
What Kinds of Material Inputs will
be Required?
How Much/ Many will be
Required?
When will it be Required?
Where will it be Required?
8 4
OUTSIDERS
NGO
GOVT

n
A range of risk treatments have been generated.
Risk treatments have been reviewed against the assessment criteria.
Risk treatments have undergone a prioritization process.
Risk treatments implementation schedules developed and endorsed by UDMC.
Risk treatment plans have been developed.
Roles and responsibilities have been assigned to the risk treatments.
Resource profiles have been developed for the risk treatments.
Agreed performance measures have been established to assess the risk treatments.
Relevant stakeholders and communities have been consulted and provided details of
the risk treatment plans.

n
A listing of the risk treatment options considered
The basis for assessing and selecting the preferred option or mix of options
The assigned priorities for implementing the risk treatment options
The rationale for priorities assigned
Risk treatment implementation plans
Key decisions/outcomes from discussions at meetings.
8 5
IDENTIFICATION OF VULNERABLE POPULATION

DEFINITION AND CLASSIFICATION OF PWDS
This research made use of the definitions and classification developed by the Ministry of Social
Welfare in the draft legislation on disability related issues in 1996. This legislation was formally
enacted in April 2001 and is known as The Disability Welfare Act of 2001. Under the legislation,
definitions for persons with disabilities are outalined below, while the distinctions between persons
with intellectual and mental disabilities are defined in terms of the criterion developed and
operationalized by ADD during the emergency response programme and hence being followed in
this study accordingly, to identify the predefined beneficiaries of ADD who constitutes the primary
stakeholder for this research.
l Physically disabled either congenitally or as a result of disease or being
Persons with
Disabilities
a victim of accident, or due to improper or maltreatment or for any other

reasons became physically incapacitated or mentally imbalanced
l Such disabled-ness or mental impaired-ness
u
has become incapacitated, either partially or fully
u
is unable to lead a normal life
l No vision in any single eye
Persons with
Visual Impairment
l No vision in both eyes

l Visual acuity not exceeding 6/60 or 20/200 (Snellen) in the better eye
even with correcting lenses

l Limitation of the field of vision subtending an angle of 20 (degrees) or
worse
Persons with
Physical
Disabilities
l
l
l
l
l
l
Lost either one or both the hands

Lost sensation, partly or wholly, of either hand
Lost either one or both the feet
Lost sensation, partly or wholly, of either or both the feet,
Physical deformity and abnormality
Permanently lost physical equilibrium owing to neuro-disequilibrium
Persons with
Hearing
Impairment
l Loss of hearing capacity in the better ear in the conversation range of
Persons with
Speech Impairment
l Loss of one's capacity to utter/pronounce meaningful vocabulary
Persons with
Intellectual9
Disability
Persons with
Multiple Disabilities
l Intellectual disability is characterized by significant limitations both in
frequencies at 40 decibels (hearing unit) or more, or damaged or

ineffective hearing abilities
sounds, or damaged, partly or wholly or dysfunctional
intellectual functioning and in adaptive behaviour as expressed in
conceptual, social, and practical adaptive skills.
l People who suffer from more than one type of impairment stated above
According to Different Criteria, the Intellectual Disability refers to:

1994 (DSMIV): The essential feature of mental retardation is significantly sub-average general intellectual functioning (Criterion
A) that is accompanied by significant limitations in adaptive functioning in at least two of the following skill areas: communication,
self-care, home living, social/interpersonal skills, use of community resources, self-direction, functional academic skills, work,
leisure, health, and safety (Criterion B). The onset must occur before age 18 years (Criterion C). Mental retardation has many
different etiologies and may be seen as a final common pathway of various pathological processes that affect the functioning of
the central nervous system (p 39).
2002 (Luckasson et al.): Performance that is at least two SDs below the mean of either (a) one of the following three types of
adaptive behavior: conceptual, social, or practical, or (b) an overall score on a standardized measure of conceptual, social, and
practical skills (p 76).
8 6
ANNEX OF STEP ONE
TRANSECT WALK
KEY INFORMANTS INTERVIEW (KII)

Respondent name (s) .................................................. village ....................... date .............
Interviewer (s) .......................................................................................................................
1. What are the difference did you experience regarding social exclusion that have taken
place in the locality in the last few years? When did they take place (approximately
what year)? What are the causes? What have been the effects on the community?
2. Have you noticed any changed behaviour towards (i) women, (ii) children, (iii) PWDs,
(iv) socially excluded communities?
3. If yes, ask for each of the changesn
How is it (are they) different from original situation?
n
How measured (indicator)?
n
When did you first notice the change (year, if possible) and where?
n
What do you think are the main causes or reasons for the change?
n
What are the effects of the change that you have seen so far?
n
What areas of life will be vulnerable to this change?
8 7
What will be the likely effects in the medium to long term? How would you rate
the consequence of this change (not bad, bad, very bad, and plenty bad)?
What do you think is/are the best way(s) to cope with such change?
4. What should government/ union council do? What should community groups do
(specify)?
5. What should family/individuals do? How have people coped with such change(s) in the
past?
Secondary Information Collection

Annex 1: Information Required (Socio-economic)
8 8
Information
Probable Sources
Location, Type and Area
Union Parishad, LGED
Population
Union Parishad, Upazila Statistics Office
Education (rate-primary, Secondary)
Union Parishad, Upazila Primary Education Office
Health and Family Planning
Union Health Complex, Upazila Health and Family

Planning Office
Communication (roads, bridge, culverts,

sluice gates etc)
Union Parishad, LGED
River, Canal, Wetland (beels) etc
Union Parishad, Bangladesh Water Development

Board (office at district Level)
Economic Activities (livelihood options)
Union Parishad, Local NGOs and Knowledgeable
Social-Religious Groups
Union Parishad
Institutions : educational, religious,

government offices, UP, NGOs, local
clubs, cultural institutions, flood/cyclone
shelters
Union Parishad, Upazila social Welfare Office,

Upazila Education Office
Common Places hat-bazaar, playground
Union Parishad
Land use (commercial/business,

settlement, infrastructure, forest,
wetland, fish culture, cultivable/noncultivable, single cropped, double
cropped, triple cropped etc)
Union Parishad, Upazaila Land Office, Sub Assistant

Land Officer, Upazila Agriculture Office, Sub
Assistant Agriculture Officer, Upazila Fisheries
Officer, NGOs, Upazila Sub Registrar Office
Soil Type
Union Parishad, Upazila Agriculture Office
Food and Agriculture
Upazila Agriculture Office, Upazila Food Office
Forestation
Union Parishad, Upazila Forest Offce
Biodiversity
Union Parishad, NGOs, Forest Department
Water and Sanitation
Union Parishad, Tube well Supervisor, NGOs,

Upazila DPHE Office, Sanitary Inspector
Poultry-Livestock
Union Parishad, Upazila Livestock Office
Fisheries
Union Parishad, Upazila Fisheries Office
Electricity
Union Parishad, Polli Biddut Shomity
Union Map
Union Parishad, DMIC, Disaster Management Bureau
ANNEX OF STEP TWO
SETTING RISK EVALUATION CRITERIA

n
Any reasonably preventable activity or incident that will seriously disrupt women
health services is unacceptable.
Any reasonably preventable activity or incident that will seriously hassle PWDs or
Indigenous communities communication services is unacceptable.
Any reasonably preventable accident/incident resulting in serious injury/ sickness

(e.g. number of children with diarrhoea) is unacceptable.
Any reasonably preventable accident/incident resulting in loss of life is unacceptable.
Any reasonably preventable matter that will affect the health and wellbeing of a
community is unacceptable.
Any reasonably preventable activity or incident that will have a medium- to long-term
or permanent effect on the environment is unacceptable.
Any reasonably preventable activity or incident that will have a long-term or

permanent effect on the cultural assets and values of a community is unacceptable.
Any reasonably preventable activity or incident that will seriously disrupt normal
everyday activity is unacceptable.
Any reasonably preventable activity or incident that will seriously disrupt community
services is unacceptable.
Any reasonably preventable accident/incident resulting in loss of life of farm animals

(or number of acceptable loss of life) is unacceptable.
Likelihood Criteria
Levle
Descriptor
Almost Certain
Likely
Possible
Unlikely
Rare
Examples of Likelihood Criteria Description

Example-1
Example-2
More Examples
Example of Consequence Criteria

Example of Multi-Specific Consequences Criteria
Levle
Descriptor
Insignificant
Minor
Moderate
Major
Catastrophic
Description
8 9
Example of Single Definition Consequences Criteria

Description
Levle
Descriptor
Catastorphic
Major
Moderate
Minor
Insignificant
Human
Consequences
Financial
Consequences
Consequences of
Activities/Service Interruption
Example : Risk Relationship Indentification Matrix

Source of Risk
(Description of
Hazards)
Elements at Risk
Community
Facilities
Life
Assets
Secondary
Industry
Environment
Other
Examples of Hazard Analysis Output Matrix

Name of Hazards
9 0
Nature & Extent

of Obstacles/Risk
Severity of Risk
(Rank: High, Medium & Low)
Seasonal activity Calendar differentiated by age and sex

Activity
Jan
Feb
Mar
Apr
May
Jun
Jul
Aug Sep
Oct
Nov
Dec
Planting
of crops
Irrigation
of crops
Harvesting
of crops
Other farm
labour
Small livestock
Large livestock
Migrating for
work
Domestic work
Care taking
Collecting
water
Collecting
firewood
Community
work
Legends to be used
Adult Men
Boys (<14)
Everybody
Elderly Women
Adult Women
Girls (<14)
Elderly Men (60+)
Access to and control of resources and services

ACCESS TO ASSETS/ RESOURCES AND
SERVICES (WHO USES THEM?)
MEN
WOMEN
MEN & WOMEN
CONTROL OVER ASSETS/ RESOURCES OVER

SERVICES (WHO DECIDES ON THEIR USE?)
MEN
WOMEN
MEN & WOMEN
Land
Forest
Water
Crop
Livestock
Money
Work (on-farm)
Work (off-farm)
Food
9 1
Access to services
Men
Women
Men & Women
Boys
Girls Boys & Girls
Health centre
Traditional healer
Primary school
Secondary school
Markets
Credit/loans
Training
Extension
Development projects
Risk Statement
Name of Hazards
Element at Risk of Obstacles/Risk
Statement of Risksa
CVA Matrix (Physical/Materal)

VULNERABILITIES
PHYSICAL/MATERIA
Health and disability

Livelihoods/ Vocational skills
Livestock
Access to markets
Transport
Staple crops
Housing
Technologies
Water supply
Food supply
Access to capital or other assets
Relative poverty and wealth
Features of land, climate, environment
9 2
FEMALES &
CHILDREN*
PWDS
CAPACITIES
EXCLUDED
GROUPS
FEMALES &
CHILDREN*
PWDS
EXCLUDED
GROUPS
CVA Matrix (Social/Organizational)

VULNERABILITIES
SOCIAL/ORGANIZATIONAL
FEMALES &
CHILDREN*
PWDS
CAPACITIES
EXCLUDED
GROUPS*
FEMALES &
CHILDREN*
PWDS
EXCLUDED
GROUPS*
Family structures
Kinship groups, clans
Formal social and political
organizations
Informal social gatherings
Divisions of: gender, race, ethnicity,
class, caste, religion & etc.
Social capital (systems of support
and power)
Education
Systems for distributing goods and
services
CVA Matrix (Motivational Attitudinal)

VULNERABILITIES
MOTIVATIONAL ATTITUDINAL
FEMALES &
CHILDREN*
PWDS
CAPACITIES
EXCLUDED
GROUPS*
FEMALES &
CHILDREN*
PWDS
EXCLUDED
GROUPS*
Psycho social profile

History of crisis
Expectation of emergency Relief
Existing coping strategy
Cultural and psychological
Factors
Change in power structures and
relations
Output Matrix of Analyze Risk

Hazards & Risk
Consequence
Probability
Extent/Intensity
Risk Critreia
Prioritization
9 3
Risk Evaluation
Hazards & Risk
Risk Criteria Prioritization
Acceptability
Suggested Risk Treatments

Risk Treatments
Prevention/Mitigation Preparedenss Response Recovery
Awareness and Vigilance

Communication and Consultation
Engineering Options
Monitoring and Review
Resource Management
Security and surveillance
Implementing Risk Treatment Projects - Action Plan

Options Who will Participate
9 4
How
When Where
Estimated Cost
Result Should
be Share with
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PRACTICING


Ministry of Food and Disaster Management
REFERENCE
Ahsan. R. M. (ed.), 2004, 'Disaster and the Silent Gender', Bangladesh Geographical Society, Dhaka, Bangladesh
BBS, 2007, Statistical Yearbook of Bangladesh-2006, Community Series, Bangladesh Bureau of Statistics (BBS),
Bangladesh, Dhaka
Bern C, Sniezek J, et al., 1993, Risk factors for mortality in the Bangladesh cyclone of 1991, Bull World Health Organ.
1993; 71(1):73-8, Respiratory and Enteric Virus Branch, Centers for Disease Control, Atlanta, GA 30333
http://www.ncbi.nlm.nih.gov/pubmed/8440041 [Last accessed on 14 December 2008]
CDMP, 2007, Risk Assessment and Risk Reduction Action Plan Guidebook, Comprehensive Disaster Management
Programme, Dhaka, Bangladesh
CIDA, 1999, 'CIDA's policy of gender equality', Hull, Quebec: CIDA.
CIDA, 1997, Guide to Gender-Sensitive Indicators, Quebec, 9-13.
DFID, 2005, Reducing Poverty by Tackling Social Exclusion: A DFID Policy Paper, Department for International
Development, UK
Foster, H. D. (1980), 1998, Disaster planning, Springer-Veriag, Institute of Development Studies, New York Inc.
Handicap International & NFOWD, 2005, Disability in Bangladesh: A study on prevalence, Handicap International and
National Forum of Organizations working with the Disabled (NFOWD), Dhaka, Bangladesh
Institute of Development Studies (IDS). 1998, Participatory Monitoring and Evaluation: IDS Policy Briefing, Issue 12
http://www.smallstock.info/reference/IDS/policy_brief_12.pdf [Last accessed on 12 December 2008]
MOEF, 2005, Final Report 'National Adaptation Programme of Action (NAPA)', Ministry of Environment and Forest,
Government of the People's Republic of Bangladesh, Dhaka, Bangladesh
Rossman, G., 2000, Participatory Monitoring and Evaluation
http://www.umass.edu/cie/Themes/participatory_evaluation.htm [Last accessed on 14 December 2008]
Shafie. H, 2008, "Voice from Afar: Inclusion of PWDs in Disaster Response from Commitments to Outcomes", Action on
Disability and development (ADD), Dhaka, Bangladesh
Standards Australia, 1997, AS/NZS 4804:1997 Occupational health and safety management systems-General
guidelines on principles, systems and supporting techniques, Homebush, Australia.
Standards Australia, 1999, AS/NZS 4360:1999 Risk Management, systems and supporting techniques, Homebush,
Australia.
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PRACTICING


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Practicing Gender & Social Inclusion in Disaster Risk Reduction Practicing Gender & Social Inclusion in Disaster Risk

GENDER & SOCIAL INCLUSION in

GENDER & SOCIAL INCLUSION in

GOVERNMENT OF THE PEOPLE'S REPUBLIC OF BANGLADESH

Practicing Gender & Social Inclusion in Disaster Risk

GENDER & SOCIAL INCLUSION in

June 2009, Dhaka

Comprehensive Disaster Management Program (CDMP)

Ian Stanford Rector

Directorate of Relief and Rehabilitation

United Nations Development Programmme (UNDP)

Social Development Foundation (SDF)

Md. Fazlul Haque

Chapter One: IntroductIon

1.1. Situation and Contexts

1.3. Most Vulnerable People in Disaster: Issues and Concerns

1.4. Profiling this Guidebook

Chapter Two: Risk Management Model and Frameworks

2.1. Risk Management Model

2.2. The CDMP Framework

2.3. Social Exclusion Analysis Framework

2.4. Gender Analysis in Development Paradigms

2.5. Gender Mainstreaming: Basic Concepts and Principles

2.6. Gender Sensitive Indicators

2.7. Guidelines for Gender Sensitive Disaster Risk Reduction Measures

Chapter Three: General Methodological Guidelines

3.1. Selection of Research Teams

3.2. The Facilitator/Moderator

3.2.1 Necessary Qualifications of Facilitators/Moderators

3.3. Participatory Rural Appraisal (PRA) Techniques

3.4. The Programme Setting

Chapter Four: Activities in the Field

4.2.5.6. Example: Risk Relationship Identification Matrix

4.5.4. Risk Response Criteria

Vulnerability Indicators for Stakeholders and Groups

Gender Sensitive Indicators

Overview of PRA Techniques/ Tools Relevant to Risk Analysis

3.2. Comparative Chart for Participatory Methods

Seasonal Activity Calendar Differentiated by Age and Sex

4.2. CVA Matrix (Physical/ Material)

4.3. CVA Matrix (Social/ Organizational)

4.4. CVA Matrix (Motivational/ Attitudinal)

Access to and Control of Resources Matrix Differentiated by Sex

4.6. Output Matrix for Evaluating Risk

4.7. Some Criteria for Assessing Risk Treatment Options

4.8. Output Matrix for Implementing Risk Treatment Projects

Figures & Charts

Understanding Hazard, Risk And Vulnerability

The Risk Management Process

The Focus of Gender Analysis in Different Development Paradigms

Inputs and Outputs in Risk Analysis

Impact Chain for Agriculture and income of Torrential Rain

Risk Treatment Model

A demonstrable capacity to respond to and recover from a particular threat or

Capacity is the existing strengths in individual and social groups. It includes

CVA is a framework for analysis developed by Mary Anderson and Peter

Impact resulting from the occurrence of a particular hazard or threat, measured

Physical destruction, corruption of information, or loss of beneficial social

Gender analysis matrix

A single plan designed to cope with a wide range of emergencies.

An accidental or naturally occurring event or situation with the potential to cause

A component of the risk assessment process in which identified hazards are

A process by which potential hazards are identified.