The 2004 Hurricane The 2004 Hurricane Season in the Season in the

Caribbean Caribbean

A Review of Disaster Preparedness and A Review of Disaster Preparedness and Response ArrangementsResponse Arrangements

Cletus SpringerCletus SpringerImpact Consultancy Services Impact Consultancy Services Incorporated Incorporated

Purpose of Review Purpose of Review

To document and share the To document and share the findings, best practice, lessons findings, best practice, lessons learned, conclusions and learned, conclusions and recommendations contained in recommendations contained in select studies of disaster select studies of disaster preparedness arrangements at preparedness arrangements at the national, regional and the national, regional and international levels. international levels.

Structure of Review Structure of Review

Summary Review of 2004 SeasonSummary Review of 2004 Season Early Warning Systems Early Warning Systems Emergency Response CoordinationEmergency Response Coordination Disaster Relief Operations Disaster Relief Operations Damage Assessment Damage Assessment Recovery and Reconstruction Recovery and Reconstruction Summary of Conclusions and Summary of Conclusions and

Recommendations Recommendations

Summary of Social and Summary of Social and Economic Impacts Economic Impacts

2004 Season one of most active on 2004 Season one of most active on recordrecord

14 weather systems (2 depressions, 14 weather systems (2 depressions, 5 storms, and 7 hurricanes5 storms, and 7 hurricanes

49 lives lost49 lives lost US$2 billion damageUS$2 billion damage US$3.4 billion total economic impactUS$3.4 billion total economic impact

Impact on Bahamas Impact on Bahamas

Visits by Hurricanes Frances and Visits by Hurricanes Frances and JeanneJeanne

2 lives lost2 lives lost 3800 homes damaged mainly in Grand 3800 homes damaged mainly in Grand

BahamaBahama Total damage and losses put at Total damage and losses put at

US$381.5 million mainly in productive US$381.5 million mainly in productive sectors, infrastructure and social sectors, infrastructure and social sector sector

Impact on Cayman Impact on Cayman Islands by IvanIslands by Ivan

2 persons killed; 402 injured2 persons killed; 402 injured 6000 (17% of population) displaced6000 (17% of population) displaced Near total loss of utilities Near total loss of utilities Total impact put at CI$2.8 billionTotal impact put at CI$2.8 billion 83% of damage mainly to 83% of damage mainly to

economic and social infrastructureeconomic and social infrastructure

Impact on Grenada Impact on Grenada

Comprehensive!!Comprehensive!! 89% of housing stock damaged; 38% 89% of housing stock damaged; 38%

badly damagedbadly damaged Damage to schools (EC$196M -$215M)Damage to schools (EC$196M -$215M) Damage to health facilities (EC$11M)Damage to health facilities (EC$11M) Direct and indirect damage to Direct and indirect damage to

agriculture sector (EC$55M & EC$46M)agriculture sector (EC$55M & EC$46M) Losses to tourism (EC$167M)Losses to tourism (EC$167M)

Impact on Grenada (2)Impact on Grenada (2)

4.75 GDP growth in 2004 before Ivan4.75 GDP growth in 2004 before Ivan -1.4% growth (overall 6%) after Ivan-1.4% growth (overall 6%) after Ivan 31,000 workers in agriculture 31,000 workers in agriculture

displaceddisplaced Change in central government Change in central government

revenues from surplus ($17M) to revenues from surplus ($17M) to deficit ($54M) deficit ($54M)

Impact on Jamaica Impact on Jamaica

Total impact – US$595M; 63% Total impact – US$595M; 63% (US$354) to physical assets; 37% (US$354) to physical assets; 37% (US$241M) indirect losses(US$241M) indirect losses

Productive sectors most affected Productive sectors most affected Housing single most affected sectorHousing single most affected sector Also agriculture and livestockAlso agriculture and livestock GDP growth of 2.6% before Ivan; GDP growth of 2.6% before Ivan; GDP growth of 1.9% after Ivan GDP growth of 1.9% after Ivan

Early Warning Systems Early Warning Systems

Met services main source of early warning informationMet services main source of early warning information Protocols in place for relaying met information to Protocols in place for relaying met information to

usersusers SOPs in place SOPs in place relay ranging from swift (Bahamas) to slow (Grenada)relay ranging from swift (Bahamas) to slow (Grenada) Public not able to gain clear appreciation of impending Public not able to gain clear appreciation of impending

threatthreat Gaps in data due to lack of equipmentGaps in data due to lack of equipment More measurements of temperature, precipitation, More measurements of temperature, precipitation,

oceanic conditions needed to give good understanding oceanic conditions needed to give good understanding of present and new conditionsof present and new conditions

Early Warning Systems Early Warning Systems

Lessons LearnedLessons Learned EWS’ most effective when married to EWS’ most effective when married to

timely mitigation timely mitigation Stronger cooperation needed between Stronger cooperation needed between

public and disaster management public and disaster management agenciesagencies

More emphasis on monitoring hazards More emphasis on monitoring hazards and downscaling and downscaling

EWS’ needed at community level EWS’ needed at community level EWS’ should be routinely tested EWS’ should be routinely tested

Early Warning Systems Early Warning Systems

Recommendations Recommendations Greater involvement of business Greater involvement of business

community in disaster management community in disaster management Call to action to the public should be Call to action to the public should be

supported by access to damage control supported by access to damage control materials materials

Legislation to support forcible evacuationLegislation to support forcible evacuation Strengthen EWS’ to give better Strengthen EWS’ to give better

information regarding risks and risk information regarding risks and risk reduction measuresreduction measures

Clear lines of supervision between Clear lines of supervision between central and community/parish authoritiescentral and community/parish authorities

Emergency Response Emergency Response CoordinationCoordination

National Level National Level Generally satisfactory – apart from Generally satisfactory – apart from

Grenada Grenada Swift in Bahamas; early activation of lawsSwift in Bahamas; early activation of laws Cayman Islands well prepared; shelters Cayman Islands well prepared; shelters

and supplies in placeand supplies in place Jamaica OK; aerial surveys and field Jamaica OK; aerial surveys and field

reports provided reports provided Overall community level coordination Overall community level coordination

lacking lacking

Response Coordination Response Coordination Lessons Learned Lessons Learned

(national)(national) Coping capacity of DM organizations Coping capacity of DM organizations

should be reexamined in light of should be reexamined in light of Grenada ExperienceGrenada Experience

EOC’s not housed in safe and secure EOC’s not housed in safe and secure buildingsbuildings

National Emergency National Emergency Telecommunications Plans lacking Telecommunications Plans lacking

Growth and development of HF Growth and development of HF Communicators/groups is critical Communicators/groups is critical

Formal role for regional mass media Formal role for regional mass media neededneeded

Response Coordination Response Coordination

Regional Level Regional Level Able execution by CDERA mainly in Able execution by CDERA mainly in

Grenada – Level 3 response requiredGrenada – Level 3 response required RRM activated RRM activated CDRU deployed but some problems CDRU deployed but some problems

experiencedexperienced Effective coordination by CARILEC Effective coordination by CARILEC

under CHAPunder CHAP Early activation of Eastern Caribbean Early activation of Eastern Caribbean

Donor Group; Flash Appeal launchedDonor Group; Flash Appeal launched UNDAC Assessment Teams deployed UNDAC Assessment Teams deployed

Response Coordination Response Coordination

Lessons Learned Lessons Learned Core staffing of CDEA CU inadequate Core staffing of CDEA CU inadequate

for Level 3 Operations for Level 3 Operations National disaster response capabilities National disaster response capabilities

not adequate to deal with worse case not adequate to deal with worse case scenarios scenarios

Scope for better coordination among Scope for better coordination among regional and international regional and international development partners on damage development partners on damage assessments assessments

Response Coordination Response Coordination

Recommendations Recommendations Strengthen capacity of DM agencies Strengthen capacity of DM agencies

especially at community level especially at community level Ensure DM agencies are located in safe and Ensure DM agencies are located in safe and

secure facilities with category 5 resistancesecure facilities with category 5 resistance Assess adequacy of CDERA core staffing Assess adequacy of CDERA core staffing Develop emergency telecommunications Develop emergency telecommunications

plan as part of comprehensive crisis plan as part of comprehensive crisis communications strategies communications strategies

Agree protocols/MOU for conduct of damage Agree protocols/MOU for conduct of damage assessments assessments

Speed up disaster management interventions Speed up disaster management interventions in context of CDM in context of CDM

Disaster Relief Disaster Relief Operations Operations Relief operations not always in tune with Relief operations not always in tune with

disaster management plansdisaster management plans Relief quickly enforced in Bahamas; SUMA Relief quickly enforced in Bahamas; SUMA

quickly in place; distribution of supplies well quickly in place; distribution of supplies well handledhandled

Relief in Cayman good; solid private sector Relief in Cayman good; solid private sector participation; assistance from Royal Navy participation; assistance from Royal Navy

Relief in Grenada affected by weaknesses in Relief in Grenada affected by weaknesses in victim registration; needs identification; lapses victim registration; needs identification; lapses in security and breakdown in law and orderin security and breakdown in law and order

Relief in Jamaica generally satisfactory but on-Relief in Jamaica generally satisfactory but on-the-ground distribution slowed by lapses in the-ground distribution slowed by lapses in communication communication

Disaster Relief Disaster Relief Common Failings in Common Failings in

Grenada and Jamaica Grenada and Jamaica Ineffective inter-agency Ineffective inter-agency

coordination coordination Absence of strong leadership at Absence of strong leadership at

community level community level Ineffective public information and Ineffective public information and

media responsemedia response Poor pre-positioning of resources, Poor pre-positioning of resources,

personnel and foodpersonnel and food

Disaster Relief Disaster Relief Lessons Learned Lessons Learned

Operations at community level Operations at community level weak weak

Continuity in Government Continuity in Government operations should be ensuredoperations should be ensured

Critical facilities should be built to Critical facilities should be built to withstand category 5 hurricanes withstand category 5 hurricanes

Disaster Relief Disaster Relief Recommendations Recommendations Stronger appreciation and stronger focus on potential Stronger appreciation and stronger focus on potential

hazards neededhazards needed Strengthen central disaster management emergency Strengthen central disaster management emergency

operations operations Clearer lines of command to facilitate prompter Clearer lines of command to facilitate prompter

response and minimize sufferingresponse and minimize suffering Enshrine in law responsibilities of DM agenciesEnshrine in law responsibilities of DM agencies Require all Ministries to DM plans with damage Require all Ministries to DM plans with damage

assessment and recovery componentsassessment and recovery components Execute regular simulation exercises in an integrated Execute regular simulation exercises in an integrated

mannermanner Revamp data collection and management systems Revamp data collection and management systems Strengthen emergency planning processesStrengthen emergency planning processes Strengthen CDRU Strengthen CDRU Implement PEA to support DM at community level Implement PEA to support DM at community level

Damage Assessments Damage Assessments

Micro-level assessments affected by:Micro-level assessments affected by:– Lack of effective coordination, Lack of effective coordination,

communication and collaborationcommunication and collaboration– Lack of consistency and standardization Lack of consistency and standardization

in assessment methodologies and in assessment methodologies and proceduresprocedures

– Lack of trained and competent assessorsLack of trained and competent assessors– Lack of baseline dataLack of baseline data– Inadequate information dissemination Inadequate information dissemination

Damage Assessments Damage Assessments Macro-level Macro-level

Quick, fairly comprehensive and useful Quick, fairly comprehensive and useful UNECLAC methodology usedUNECLAC methodology used Sector by sector analysis of direct and Sector by sector analysis of direct and

indirect impactindirect impact Overall computation: Overall computation:

– Detailed assessment of situation before, Detailed assessment of situation before, – Project macro-economic withoutProject macro-economic without– Estimated economic performance due to Estimated economic performance due to

direct and indirect costs of disastersdirect and indirect costs of disasters

Limitations of Reports Limitations of Reports

Methodology does not allow Methodology does not allow comprehensive/all encompassing analysis comprehensive/all encompassing analysis

Does not allow detailed socio-economic Does not allow detailed socio-economic assessments of safety nets that will be assessments of safety nets that will be needed needed

Vulnerability of productive sectors limited to Vulnerability of productive sectors limited to their own capital stocktheir own capital stock

Absence of quantitative analysis on the Absence of quantitative analysis on the informal sector and damage to environmental informal sector and damage to environmental assets due to lack of benchmark dataassets due to lack of benchmark data

Stronger emphasis on cross-cutting theme of Stronger emphasis on cross-cutting theme of disaster and risk management disaster and risk management

Damage Assessments Damage Assessments Lessons Learned Lessons Learned

Investments in disaster preparedness pays dividends Investments in disaster preparedness pays dividends Political/corporate will is critical to vulnerability Political/corporate will is critical to vulnerability

reduction and resilience building reduction and resilience building Economic, social and environmental systems are Economic, social and environmental systems are

naturally integratednaturally integrated Patterns of physical and spatial developments must be Patterns of physical and spatial developments must be

carefully consideredcarefully considered Inadequate insurance and reinsurance weakens Inadequate insurance and reinsurance weakens

resilience to disastersresilience to disasters Enforcement roles of DM agencies not captured in Enforcement roles of DM agencies not captured in

lawslaws Stronger focus on long term DM efforts required Stronger focus on long term DM efforts required Improved building standards and codes neededImproved building standards and codes needed Sound environmental planning and management Sound environmental planning and management

reduces vulnerability reduces vulnerability

Damage Assessments Damage Assessments Recommendations Recommendations

Extensive training of DM personnel at Extensive training of DM personnel at community level in conducting damage community level in conducting damage assessmentsassessments

Review/strengthen macro level damage Review/strengthen macro level damage assessment methodologyassessment methodology

Increase support for land use and urban Increase support for land use and urban planning planning

Support project identification process Support project identification process Require utilities to develop robust DM plans Require utilities to develop robust DM plans

and restoration policiesand restoration policies Review recommendations of CARICOM Working Review recommendations of CARICOM Working

Party on Insurance and Reinsurance Party on Insurance and Reinsurance

Rehabilitation and Rehabilitation and Reconstruction Reconstruction

RehabilitationRehabilitation– Focus on normalizing living Focus on normalizing living

conditionsconditions– Providing food, water and medical Providing food, water and medical

attentionattention– Restoring utilities Restoring utilities – Assisting with housing repairAssisting with housing repair– Disproportionate burden carried by Disproportionate burden carried by

women and children women and children

Rehabilitation Rehabilitation Lessons LearnedLessons Learned

Development assistance should Development assistance should aim to reduce vulnerability of aim to reduce vulnerability of social and economic social and economic infrastructure infrastructure

Reconstruction Reconstruction

Aim to reduce direct and indirect losses Aim to reduce direct and indirect losses while reducing vulnerability to future while reducing vulnerability to future eventsevents

Rebuilding livelihoodsRebuilding livelihoods Retrofitting critical facilities Retrofitting critical facilities Rebuilding homes Rebuilding homes Need for longer term developmental Need for longer term developmental

approach to reconstruction after disasters approach to reconstruction after disasters Need to build resilience and reduce Need to build resilience and reduce

vulnerability to future disasters vulnerability to future disasters

Rehabilitation and Rehabilitation and Reconstruction Reconstruction

Consciously consider vulnerability Consciously consider vulnerability of social and economic sectors of social and economic sectors

Look for:Look for:– Hazards that threaten sectors and Hazards that threaten sectors and

servicesservices– Weak linksWeak links– Damage that can be done Damage that can be done – Investments in mitigation Investments in mitigation

Rehabilitation and Rehabilitation and Reconstruction Reconstruction

Recommendations Recommendations Introduce innovate instruments for risk Introduce innovate instruments for risk

transfer and reduction to lower cost of transfer and reduction to lower cost of insuranceinsurance

Consider pooled insurance mechanismsConsider pooled insurance mechanisms Design and implement development Design and implement development

policies and programmes that make the policies and programmes that make the best use of hurricane free years to build best use of hurricane free years to build economic resilience and social cohesion economic resilience and social cohesion

Conclusion Conclusion

Hurricane –related damage can Hurricane –related damage can be significantly reduced be significantly reduced

Significant investments already Significant investments already mademade

Greater consistency and resolve Greater consistency and resolve required required

Conclusion Conclusion

““Experience is not what happens to Experience is not what happens to you, but what you do with what you, but what you do with what happens to you”happens to you”

““A crisis is a terrible thing to waste”A crisis is a terrible thing to waste”

THANK YOU!!! THANK YOU!!!