PDNA FRAMEWORK

ALBERT G. ROMERO

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 Post-Disaster Needs Assessment (PDNA)
encompasses two perspectives:

-the valuation of physical damages and economic

losses;
the identification of human recovery needs based on
information obtained from the affected population.
These perspectives are integrated into a single
assessment process to support the identification and
selection of response options covering recovery
interventions from early- to long-term recovery in a
Recovery Framework (RF).

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 Damage and Loss Assessment (DALA)

-developed by the Economic

Commission for Latin America and the
Caribbean (ECLAC) in the 1970s
-has evolved as a globally recognized and
applied tool to quantify the impacts of
disasters, and to determine the necessary
financial resources to achieve full
reconstruction and recovery.
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 -It also reinforces resilience by promoting
the “Build Back Better” principles in
reconstruction and recovery efforts.

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 Damage and Loss Assessment (DaLA)
methodology

-uses objective, quantitative information

on the value of destroyed assets and
temporary production losses to estimate,
first, government interventions for the
short term and, second, post-disaster
financing needs.

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 -It avoids use of qualitative, subjective
interpretations.
-uses the country’s system of national
accounts, it can be (and has been) applied
with ease in nearly all countries of the world,
regardless of their level of socioeconomic
development.
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 -Its application produces results for as
small geographical area as the affected
country’s national accounts permit;
usually from the national level, to
provincial and, in some cases, district
level.

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 -ensures that the affected government, the United
Nations and other international and domestic agencies
jointly develop properly estimated and prioritized
financial requirements and an accompanying formula that
identifies all possible financial sources and modalities.
-the estimation of the needs can be used as a basis to
monitor post-disaster recovery
and reconstruction progress.

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 Annex C. Sample Terms of Reference
for Conducting Damage, Loss and
Needs Assessments

Damage, Loss and Needs Assessment for <event and date>

Background
<Description of country, event and emergency information on
impact>
<If possible, provide a table with people affected, fatalities,
wounded, and other available
information>
On <date>, the Government of <name country> requested
assistance to conduct a Damage,
Loss and Needs Assessment <attach letter>

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 Objectives
• Estimate the overall impact of the disaster on the socio-
economic development of
the country and the affected areas (Damages, Losses, Macro-
Economic Impact and
Livelihoods).
• Define a financial plan for Recovery and Reconstruction of
the affected areas based
on the needs in all key sectors of the economy.

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 Include cost specific Risk Management
activities associated with the recovery and
reconstruction efforts proposed.
• Train a country team of government and
international agencies to carry out the damage,
loss, and needs assessment.

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 Methodology

The assessment is based on the comprehensive

damage and loss assessment methodological tool
presently used by the World Bank for the estimation
of overall disaster impact, complemented by sector-
wise assessment methodologies developed by
specialized agencies of the UN. The process ensures
information that can be used as input for the overall
analysis of socio-economic disaster impact.

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 Activities and Work Plan
The following activities will be carried out as part of the comprehensive
assessment:
1. Assessment preparations. <describe>.
2. Training of assessment team members in the damage and loss assessment
methodology.<describe>
3. Assessment of overall damage and losses caused by the disaster in the entire
affected areas. Affected sectors of the economy will be analyzed to ascertain
disaster effects and results of ongoing surveys will be used as inputs. All affected
sectors of the economy are to be covered. The pre-existing social and poverty
conditions in the area will be given due consideration in the analysis. Existing inter-
linkages between sectors will be taken into consideration to ensure that overall
losses to the economy are analyzed. <attach detailed list of sectors covered>.

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 4. Estimation of overall impact of the disaster on development in the affected area and
the country. On the basis of the overall damage and losses, an analysis will be made to
ascertain the impact of the disaster on the economy and society. At the macro-economic
level, the analysis will determine the impact on overall economic growth, on the fiscal
sector and on the external sector of the economy. Estimated at the micro level is the
impact on personal or family income, expenditures and livelihood in the informal sector.
This analysis should also include an estimation of the Government’s capacity to meet the
financial needs of medium and long-term recovery and reconstruction, and a
corresponding estimation of international assistance, if required.
5. Estimation of medium and long term financial needs for recovery and reconstruction.
Financial needs for recovery and reconstruction after the disaster will be estimated,
with detailed breakdowns considering the distribution and priority of geopolitical
divisions, sectors of the economy, and different population groupings in the affected
area. A calendar of investments will be formulated with identified channels for funding
distribution.

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 6. Compilation and Report Writing. With the inputs mentioned under points
3 to 5, the coordinating support team will compile all sector information
into the final report. It will be complemented with information on the
nature of the disaster, geographical and population characteristics of the
affected areas and disaster risk management analysis. All stakeholders will
discuss the final report before it is published.
7. Presentation of the assessment result. The results of the DaLA will be
presented and discussed at a high-level forum to <identify>

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 Composition of the Assessment Team

The Government of <name country> will lead the

assessment, with substantive support from the World Bank,
UN and other international institutions. The composition of
the assessment team will reflect all affected sectors of the
economy and therefore be multi-disciplinary in nature with
different institutions and agencies involved.
This multi-agency approach will not only assure that
all relevant sectors are covered, it will also establish a
more coordinated approach to recovery and reconstruction
assistance following the assessment. This will in turn
enhance the targeting and quality of the investments.

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 A Coordination Support Team will consist of Government and
representation of the assisting donor institution (i) to coordinate
the entire assessment process, including safeguarding timelines,
methodology, etc; (ii) to compile the sector analysis for the final
report, and (iii) to consult with all stakeholders on the results of
the assessment.
Sector Teams will consist of technical staff from the relevant
line ministries, supported by experts of participating
organizations.
<Attach a detailed list of the assessment team composition>.

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 Expected Outputs

The DaLA will result in a joint comprehensive

report that will include an estimate of the effects of
the disaster; the impact on the economy, livelihoods
and income of families and individuals; and a needs
assessment that defines recovery and reconstruction
requirements including comprehensive disaster risk
management measures.

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 The Report will include:

1. Replacement cost estimation of destroyed assets for each sector of the economy (for
physical assets that may have been totally or partially destroyed).
2. Estimation of changes in the flows of the economy (losses) in each sector of the economy.
3. Estimated Government expenditures for humanitarian assistance during the emergency
stage after the floods.
4. Estimation of GDP, balance of payment and trade, and fiscal budget performance for
the entire country without the occurrence of disaster, as well as projections for future
years in both current and constant prices.
5. Estimation of financial needs for reconstruction and recovery for each sector.

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 This comprehensive analysis will provide a solid basis
to estimate medium and long term financial needs and
implementation strategies for recovery and reconstruction
that will strengthen coping mechanisms of the affected
population and resilience against future disasters.
This report will provide guidance for the Government,
private sector and the donor community to plan recovery
and reconstruction investments that are well coordinated,
targeted and of good standards.

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 Budget

The cost of the entire exercise will be

supported by <identify sources>, which
includes a grant from the Global Facility
for Disaster Reduction and recovery
<attach budget reflecting total costs and
breakdown per contributor>.

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 Overview of Human Recovery
Needs (HRNA)

The Human Recovery Needs Assessment

(HRNA) process is founded on the need to
assess the perceptions of people and
communities in order to better inform the
recovery and reconstruction process.

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 is founded on a qualitative primary
field assessment of the perceptions of
people and communities about HOW to do
what must be done based on community
perceptions of the implications of the
damages, losses and related needs.

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 HRNA are assessments that determine the
requirements for the full resilient recovery of
human development for affected populations,
including the restoration of governance
systems Resilient recovery means that
disaster risks are reduced (Sometimes called
holistic recovery or sustainable recovery)

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 Recovery of Human Development

Measures to restore peoples abilities to

recover their full potential to lead
productive, creative lives in accordance
with their needs and interests. In
reference to Human Development

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 Development experts have learned importance of multi-
disciplinary approaches to twin pillars of economic
development and human development. Neither approach
replaces the other; two complimentary streams of analysis
(DaLA and HRNA)
HRNA reflects concerns/priorities of individuals and
stakeholders viz DaLAs orientation to national accounts
Relationship between DaLA and actual recovery needs not
straightforward; governments requesting more analysis to
ensure recovery of human development

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 The Recovery Framework serves as a
tool for planning, coordinating, and managing the
recovery process. It will be sketchy at first and
provide primarily an initial vision of the recovery
- the future quality of life and life processes - as
decision-makers project what the stricken area
will look like when it is has recovered and is back
on the road of development.

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  The Recovery Framework is a strategic plan for
guiding and reflecting all the decisions that need to
be made to coordinate the recovery of a
geographical area after a disaster. Once
formulated, the Recovery Framework is a dynamic
vision represented by a document that changes in
response to an evolving understanding of the
context and the impact of planned and unplanned
recovery interventions.

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 • Detailed sequencing, prioritization, institutional arrangements, financing and implementation
of recovery. Such
prioritization and sequencing will take place both within and across sectors – based on budget
allocations, donor
and IFI financing estimates – using regular government processes along with international good
practice criteria
for prioritization;
• Rigorous analysis of recovery capacities and skills and institutional options for recovery – and
identification of
corresponding capacity building needs for efficient and effective recovery;
• Bringing together and synchronizing public sector recovery with civil society and private sector
programs through
wider engagement beyond the PDNA stage;
• Facilitating the setting of guiding principles, national and sub-national standards for recovery;
and developing
monitoring and evaluation (results) frameworks for measuring recovery performance;
• Developing detailed risk analysis and mitigation strategies to better protect implementation
performance from
such risks;

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 The horizontal axis of the Recovery Framework matrix represents the sectors
important to the recovery response. The sectors must be determined by the
Government in consultation with other recovery actors in the context of a specific
disaster event (figure 2 names sectors for the purposes of illustration). The
indicative sectors are derived from a variety of sources - e.g. the humanitarian
reform cluster coordination model and the UNECLAC Damage and Loss Assessment
(DaLA) methodology.

The vertical axis of the matrix is headed by the unique outcomes and priorities
for each sector. The outcomes are refined from the analysis of needs and response
options generated in reaction to the needs assessments. These assessments occur
over time from the humanitarian phase through early recovery to more in-depth
assessment of long term recovery needs for the return to development.

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 The focus of HRNAs

Effects of disaster on social/community/

household functions & processes Priorities for
recovery interventions, sequencing and focus
areas Needs for resources for interventions in
monetary terms Capacities required to meet
recovery objectives (& measures to address gaps)
Risk reduction measures to ensure resilient
recovery
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 HRNA are done by

Government led; Government sectoral

specialists;
Line ministries/departments/offices PDNA
sector teams Supported by specialized UN
agencies as per mandates,
global conventions, etc. Informed by and builds
on humanitarian institutions and processes
And, disaster-affected key stakeholders…
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   For example, it is not enough that a hospital and clinics are rebuilt
but rather that persons get quality medical care, i.e., that the health
care system is functioning in both preventive and reactive modes; or, it
is not sufficient that a school is rebuilt but rather that children attend,
teachers teach and learning transpires and, furthermore, that these
institutions continue to function when the hazard re-manifests itself.
This orientation acknowledges, also, that the recovery vision takes
account of the pre-disaster level of development while holding out a
promise to build back better.

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 THANK YOU

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