While the ravages of the disastrous floods of 2010 were still apparent, the 2011 monsoon season, which started with a normal rain pattern, intensified from 10 August onwards and triggered severe flooding in various regions of the country, most significantly in Sindh and Balochistan provinces. In the worst-hit areas, including some of those also affected by the floods in 2010, more rain fell in one month than in an average monsoon season. Government data indicates a total of 9.2 million people were initially affected by the floods with a multi-sector needs assessment conducted in October 2011 finding 5.2 million to be in need. The assessment estimated that more than two months after the beginning of the floods, a third of the initially affected areas were still flooded.

1.2 Humanitarian Funding response against Pakistan Rapid Repose Plan September 18, 2011

Floods started to affect the south-eastern areas of Sindh on 10 August 2011. Heavy rain quickly spread to the northern regions of the province, as well as in some parts of Balochistan. From 14 September 2011, another sustained heavy downpour affected areas across Sindh.

Source: ERF Workplan, Pakistan Floods (January 2012)

Since the launch of the 2011 Pakistan Floods Rapid Response Plan on 18 September 2011, over US$ 162 million have been pledged to the humanitarian community – 48% of the US$ 357 million requested in the Rapid Response Plan for 2011 floods.

In the worst-affected areas, including areas affected in 2010, more rain fell in one month than in an average monsoon season. Continued rains caused major breaches in the agricultural and saline water canals, exacerbating the flood impact in various districts, notably Badin, Mirpurkhas, and Tharparkar. In addition, the outflow of floodwater drainage was compromised by vulnerable infrastructures and the lack of maintenance of drainage routes.

Although the Government responded quickly to the disaster, the number of people affected continued to increase. On 7 September 2011, the Government of Pakistan requested assistance from the international community. The Government in partnership with the humanitarian community undertook a rapid joint needs assessment in the 16 reportedly most-affected districts in Sindh on 11 and 12 September 2011.

Information from the joint rapid needs assessment formed the basis of the 2011 Pakistan Floods Rapid Response Plan which was launched on 18 September 2011 requesting US$ 357 million to meet the assessed needs.

A total of 23 districts are currently notified by the Government, which reveals the geographical scope of the flooding and the widespread coverage of the Early Recovery Framework. The Government of Pakistan also commissioned the World Bank and the Asian development Bank to conduct a Damage

Needs Assessment, the results of which can form the basis of a reconstruction and development programme.

TABLE-1: Comparative analysis of humanitarian funding during emergency and ERF caseload.

S#	Cluster	Targeted Families	Funds Requested(US $)	# of Projects ERF	Gap during Emergency	Remarks
1	Food Security	352,000	69,474,817	27	47%	43187 (FHhs)
2	Health(Families)	2,279,564	52,201,341	53	55%	9,275,568 (Population)
3	Shelter	306,827	154,769,136	21	52%	1,993 million persons (305,827 in Sindh)
4	Wash (Individuals)	2,500,000	61,108,455	28	80%	2240000 (In Sindh)
5	Community Restoration (Individuals)	1,220,242	1,020,000	25	0%	1056000 (Sindh)
6	Education (Individuals)	388,509	21,581,765	24		4810 Schools in Sindh
7	Nutrition	432,768	24.73 Million	12		75344 Pregnant & Lactating
8	Protection (Individuals)	1,459,000	10,926,052	17		133,000 persons special

Source: Financial tracking (UNOCHA), January response 2012.

Government of Pakistan decided to cease the emergency response on 31^st December 2011 with the intention to incorporate the emergency funds in early recovery framework to be initiated from 1^st of the January 2012. The end of the emergency response stopped the further funding for emergency response plan for 2011 floods.

Every sector suffered the gap of the funding as food security 43%, Wash 80%, Shelter/NFIs 52%, and Health 55%. Due to the lack of the humanitarian funding response to relief services could not minimize the suffering of the victims of the rain affected peoples.

2. Call for Humanitarian Funding and Caseload of Early Recovery Projects

Early Recovery Framework seeks a further US$ 439,813,059 million for 215 projects to fund a continuation of the response until September 2012, and enable the humanitarian community to support the Government of Pakistan in addressing the early recovery needs. With receding floodwaters having enabled over 1.2 million initially affected people to return to their villages or areas of origin, support for early recovery is critical in assisting people to rebuild their communities and restore their lives. The main impact of the flooding in terms of early recovery is on housing and agricultural crops with 34% of affected families having lost their homes, and 33% of houses partially damaged. The assessment revealed almost 797,000 houses had been damaged, 328,555 of which have been destroyed.

Based on farmers estimates of losses gathered during the assessment survey, cotton has been the most affected crop (with 92% of production lost in some areas), with 81% of sugarcane production also lost in the flooded areas. Additionally, 57.4% of affected families reported losses of livestock either through death of animals or having to sell on animals for cash to support themselves during the crisis. Furthermore, 40% of households reported that their main economic activity has been discontinued, whilst 48% reported economic activities disrupted. Health conditions remain of significant concern with the outbreak of water and vector-borne diseases in flood-affected areas. Large-scale destruction of school facilities has pushed 410,697 children out of school. Meanwhile, 729,540 children have indicated that they have no learning materials.

As the region is likely to be regularly affected by flooding in the future, it is essential that the response supports affected communities with the necessary early recovery assistance. It is also important that activities include a strong Disaster Risk Reduction (DRR) component, to mitigate the risks of future disaster, particularly given the nature of the flood affected areas.

There are eight clusters activated namely Food Security, Health, Shelter/NFIs, Wash, Community Restoration, Education, Nutrition and Protection for the intervention in early recovery framework for the targeted population. The underlying caseload would be addressed in Sindh and Balochistan provinces before the expected monsoon in July2012 whereas the revised appeal has the deadline till September 2012.

3. Humanitarian funding required for meeting caseload in Sindh and Balochistan.

As per early recovery framework plan funding US$ 439,813,059 for 215 projects are required for Sindh and Balochistan. Sindh has suffered huge damages and losses in every sector and 90%intervention required for Sindh Province as per ERF document.

4. Objectives of Early Recovery Framework

1. Linking early recovery to development to provide comprehensive support through an early recovery response, which includes a strong DRR component, through the restoration of livelihoods (agriculture & non-agricultural), support for food security, the restoration of basic social services (health, education, protection, WASH, nutrition, etc) shelter, and community infrastructure, through participatory community based approaches.

2. Work in accordance to the Early Recovery Framework strategy and timeline, coordinating with the Government of Pakistan, and strengthening the capacity of Government authorities at national, provincial and district level, also supporting NGOs and civil society, to deliver effective assistance through the appropriate coordination structures.

5. Need of Integrated response

Clusters have articulated their strategies and developed specific strategic objectives in line with the objectives outlined above and in order to guarantee an integrated response, focusing on the most vulnerable communities as well as recognizing the different impact and need of individuals. The response will be monitored through the Inter Cluster Coordination Mechanism (ICCM) using the 4Ws monitoring process. The Government of Pakistan leads the response to the floods, while the National Disaster Management Authority (NDMA) assumes responsibility for all coordination at the federal level. At the provincial level, the Provincial Disaster Management Authorities (PDMAs) coordinate the disaster response.

The Early Recovery Framework provides the foundation and structure for the early recovery response supporting the flood-affected people of Sindh and Balochistan following the floods of 2011.The early recovery response is guided by development principles including national ownership, self sustainability, and strengthening resilience to disasters. It also aims to stimulate transformational changes through a multi-dimensional process that begins in a humanitarian setting, critically linking relief to recovery through a gender sensitive approach. Crosscutting issues such as gender, environment, governance, and DRR will continue to be mainstreamed throughout the cluster activities. In achieving these aims the Early Recovery Framework will support the early recovery process to:

Ø augment ongoing floods response operations by building on humanitarian programmes;

Ø support community and Government recovery initiatives including shelter restoration, livelihoods regeneration, the restoration of community basic infrastructures and public services, and the restoration of local level capacities to recover from the floods;

Ø support Disaster Risk Management, including Disaster Risk Reduction actions, building local capacities and helping communities to be safer, more resilient, and better prepared in the event of a disaster;

Ø Establish foundations for longer-term recovery.

All implementing organizations of projects within the Early Recovery Framework commit to regularly report on project activities and expenditures using the following tools:

I) Monthly financial expenditure tracking: financial expenditures will be tracked against projects, clusters, provincial and national levels;

ii) "4W's" (Who, What, Where and When): Beneficiaries and key activities by cluster and district will be reported on as required.

6. Government of Pakistan response

During the floods and in their immediate aftermath, the Government of Pakistan response, through both the NDMA and PDMA, focused on life-saving activities, providing shelter, food and non-food items (NFIs) and addressing hygiene and sanitation constraints for the affected communities.

As of 12 December 2011, the NDMA has provided an estimated 125,000 emergency shelters (tents and shelter kits), over 2.42 million food rations, more than 9.5 million water purification tabs and 1million hygiene and sanitation tablets. Other items distributed include blankets, mosquito nets, water purification units and plastic sheets. The NDMA also established 33 health camps and 22 fields’ mobile health units that treated more than 1.53 million patients. Mosquito fumigation was also carried out in affected areas.

The PDMA in Sindh has provided approximately 155,000 emergency shelters (tents and shelter kits), over one million families ration packs and around 316,000 mosquito nets. In addition, the PDMA has distributed assorted food items, including rice, flour, lentils and cooking oil along with non-food items (NFIs). The PDMA in Balochistan provided more than 1,300 tents, 2,000 blankets, and 600 kitchen sets. Other items distributed included bottled mineral water, jerry cans and cooking oil.

Other governmental actors, such as the Relief Department, Baitul Mal, and the Emergency Relief Cell (ERC) have also provided relief goods, including 20,000 tents, NFIs and over 82,000 food rations. The arms forces actively participated in search rescue, relief operations and assisted the overall governmental response.

The Government, at district, provincial and national levels, has continued to work in close cooperation with the humanitarian community in responding to the needs of the affected population to avoid duplication of efforts. The Government has also made resources available to channel through United Nations organizations.

Coordination meetings at all levels take place on a regular basis to share information on the situation, ongoing operations and outstanding challenges to define a joint response.

7. Humanitarian community response

On 8 September, the Government of Pakistan requested the United Nations for international assistance to respond to the emergency caused by floods in Sindh and Balochistan. In response to the request, the humanitarian community developed a Rapid Response Plan based on the joint rapid needs assessment undertaken on 11 and 12 September. The plan complemented the Government’s provision of relief to affected populations and was launched on 18 September 2011.

Through the Cluster approach, UN organizations and NGOs have been providing life-saving emergency assistance to flood-affected communities. Accordingly, the following clusters were activated: Food Security, Health, Shelter/NFI, WASH, and Logistics. Other sectors, Education, Protection, Nutrition and Early Recovery were integrated as part of life-saving interventions into the existing clusters.

As of 9 December 2011, more than three million people have received food assistance, and nearly 21,000 families have benefitted from agricultural support. Around 379,000 medical consultations have been conducted, and essential medicines have been provided to 950,000 people. Over 480,000 households were reached with emergency shelters in the form of tents and tarpaulins, and provided with blankets (488,000), mats (122,000), tool kits (16,500), and kitchen sets (99,000). To support children’s education, 1959 temporary learning centers have been set up supporting over 92,000 children. Additionally, 1.2 million people have been assisted with emergency water, while an estimated 480,000 people were provided with sanitation facilities, and over 1.5 million people with hygiene sessions. The first durable shelters have been built but many organizations require immediate funding to continue to support the flood-affected communities.

8. Critical Analysis

Humanitarian Coordination mechanism dealt at front by Government and UN OCHA at the federal, provincial and district level during the emergency relief phase from September 2011 to date has suffered the mutual understanding in developing comprehensive planning to respond the disaster situation effectively.

United Nations office for Coordination of humanitarian affairs deals with National Disaster Management Authority at federal level and Provincial Disaster Management Authority and District Disaster Management authority at Provincial and District Level. Government declined to appeal for the emergency relief services during the initial month of the August and consequently generated Flash appeal on 18^th of the September 2011 for the emergency relief services for the rain affected peoples. Due to the delayed funding appeal Government could attain funding for the emergency response plan 2011 at 48%, with USD$ 170 million funded of the requested US$356.7 million caused lees intervention and unmet needs in education, temporary shelter, food security and health.

The difference of the Government and UN OCHA data for the 17 notified calamity hit districts of Sindh according to which 9.2 million people were affected whereas UN OCHA reported that 5.2 million people were affected as per report of a multi- sector needs assessment conducted in October 2011. Currently UC ranking process is being conducted by UNOCHA in all the 17 notified districts for early recovery phase. Humanitarian funding would suffer gap due to the difference of data with government and UNOCHA. In this regard for further funding in form of loan or grant World and Asian Development Banks have to conduct a Damage Needs Assessment for reconstruction and development program keeping in view the differences between Government and UNOCH.

Neither Government has yet declared the allocation of funds for the recovery projects nor has humanitarian funding been mobilized or outsourced against the revised appeal for early recovery framework. Besides it Government stopped relief services in the month of the December 2011for the start of the early recovery framework from January to the month of September 2012 for nine months whereas revised appeal was endorsed by the Economic affairs Division at 21^st February 2012 the last quarter of the February 2012 after delay of two months. Now government is planning to complete all projects of early recovery framework preferably by July 2012 before the start of the next monsoon season. Currently till mid of the March after launching of the revised appeal of $440 million dollars and 215 projects, zero funding has been mobilized foreseeing impossibility to respond the case load of shelter, wash, health, education and food security and livelihood assistance.

With regard to recovery and rehabilitation of the losses and damages the early recovery framework has targeted the intervention against the caseload as followed. As per report 352,000 families are food insecure particularly children under five and pregnant/lactating women are targeted to be addressed whereas 43,187 are the food insecure female headed households. Individuals amounting 9,275,568 populations and 2,279,564 families are to be addressed in health situation. With regard to the shelter 306,827 families would be addressed with shelters whereas in Sindh 305,827 partially and fully damaged houses have been targeted to rebuild and repair. With regard to the Wash interventions total 2,500,000 persons and in Sindh 2,240,000 persons would be given wash facilities. Community restoration cluster has targeted 1,020,242 persons and in Sindh 1,056,000 persons will be addressed with Safe and resilient recovery of livelihoods of the affected population through restoration of community basic infrastructure. In education sector 388,509 children would be benefited with the rehabilitation of the 4810 partially and fully damaged schools in Sindh. With regard to address the mall nourishment situation 423,768 children and 75,344 pregnant and lactating women would be addressed to avoid the malnourishment situation. Finally 1,459,000 children and women are in need of the protection with 133,000 disable persons that would be addressed during early recovery projects.

Above mentioned Critical needs of the rain affected peoples targeted by the concerned clusters in Sindh and Balochistan require humanitarian funding of $440 million dollars for 215 projects to support the flood affected communities for recovery and rehabilitation. Civil society situation report is critical to believe that huge case load of 9.2 million peoples can be addressed till July 2012 and it is also most probable that that humanitarian coordination can meet the early recovery caseload of multiple needs of flood affected peoples in food security, health, wash, community restoration and education sectors.

Currently no project has been funded as planned in early recovery framework document and therefore it seems beyond the logic that government can meet the targets timely till September 2012.

With regard to the delay in Flash and Revised appeals for the Emergency and Early recovery phases and minimum duration for the completion of 215 projects the civil society members have the grave concern over the unmet relief needs and inaccessibility to the distant populations. Civil society has also the grave concern over the 2,533 families yet in informal camps due to the inundation situation.

As per report of Provincial disaster management authority during the rain flood 2011 total 2,281(millions) funds have been spent in distributing of dry ration, drinking water, tents, plastic sheets, mosquito net, transportation, dewatering and on miscellaneous. Civil society suggests ensuring accountability process by unfolding the designed funds allocation and the expenditures.

Emergency demands special efforts and it becomes indispensable to divert the funds allocated from non-development expenditures and annul development plans to the most prioritized needs flood affected peoples. National Disaster Management authority demands funds for the disaster preparedness from federal government but yet no allocation has been announced in this regard.

Currently participation trend in the clusters at District level are minimized due to the 80% phase out of the NGOs serving for the emergency relief services for rain affected peoples of the Sindh. It also surprised to know the UNOCHA is now conducting vulnerability assessment of the UCs which should have been prepared before launching of the revised appeal in the month of the February 2011.

9. Recommendations

v Government should generate its own internal funds for interventions against the caseload of the early recovery framework.

v Comprehensive data particularly vulnerability data should be generated to focus the most vulnerable.

v Kharif season is ahead and government should plan to allocate funds for the agriculture support.

v Government should expedite efforts for generation of humanitarian funding for rain affected peoples.

For More details visit our website www.pacf-pakistan.org

Peoples Accountability Commission on Floods (PACF)

17th CSFSR

Data Sources

Primary Data

Secondary Data

1. Over view of the Situation

1.1 Damages assessment situation