NATIONAL INSTITUTE OF

MANAGEMENT, KARACHI

40th Mid-Carrier Management Course (MCMC)

(From Monday, 29th April to Friday, 05th July 2024)

CASE STUDY RESEARCH-I

CASE STUDY OF FLOOD OF 2022 & 2024

GROUP-B

S. No. Participant’s Name Service Group Role

1 Mr. Muhammad Adnan Khan Pakistan Customs Service Chairperson
2 Mr. Azhar Hussain Tanwari Election Commission of Secretary
Pakistan
3 Ms. Aamina Shah Inland Revenue Service Member
4 Mr. M. Afzal Shar Baloch Office Management Group Member
5 Mr. Muhammad Aamir Qayyum Airport Security Force Member
6 Mr. M. Azhar Khan Mughal Police Service of Pakistan Member
7 Mr. Muhammad Saeed Laghari Pakistan Administrative Service Member
8 Ms. Naila Gul Shaikh Inland Revenue Service Member
9 Mr. Shoaib Farhan M/o Housing & Works Member

Dated: 25th May 2024

Faculty Advisor: Ms. Samina Intizar, Chief Instructor
 ACKNOWLEDGEMENT
I would like to acknowledge and give my warmest thanks to Mr. Syed Salman Shah, DG
PDMA, Sindh, Syed Murtaza Shah, Ex DC Dadu, Mr. Ghazanfar Qadri Ex DC Thatta, Mr.
Samiullah Pathan Ex ADC-1 Jamshoroo for giving us time and providing their valuable input
and data enabling us to complete this paper. Their guidance on the matter provided firsthand
knowledge about the floods of 2022 help our team in understanding the overall issue and enabled
us to chalk out the policy measures to prevent and mitigate this calamity in future.

I would also like to give special thanks to Madam Samina Intizar, Chief Instructor for
continuous guidance and support as an instructor and mentor.
 TABLE OF CONTENT
ACKNOWLEDGEMENT.............................................................................................................I
LOSS OF HUMAN LIVES, DAMAGE TO INFRASTRUCTURE, REHABILITATION
OF AFFECTED PEOPLE AND FINANCIAL STRAIN RESULTING FROM THE
FLOODS OF 2022 & 2024............................................................................................................1
Introduction..................................................................................................................................1
ESTIMATES OF DAMAGE AND LOSS DUE TO FLOOD 2022:..........................................2
Displacement, fatalities and injuries............................................................................................3
House and infrastructure damage.................................................................................................3
Livestock and agricultural impacts..............................................................................................3
Life and Livelihood......................................................................................................................4
Availability of services................................................................................................................4
Summary of Damages Province Wise:........................................................................................5
Damage , Loss and Needs by Sectors:.........................................................................................6
REHABILITATION......................................................................................................................7
Housing support...........................................................................................................................7
Reviving agriculture.....................................................................................................................7
Social protection..........................................................................................................................7
Health infrastructure....................................................................................................................7
FLASH FLOODS 2024..................................................................................................................8
Situation in KP.............................................................................................................................8
Situation in Balochistan...............................................................................................................8
Situation in Punjab:-.....................................................................................................................8
MEASURES TAKEN BY THE AUTHORITIES TO PREVENT AND MITIGATE THE
EXTENT OF DISASTERS IN THE WAKE OF THE FLOODS.............................................9
Details of Flood Mitigation Measures.........................................................................................9
Measures taken by Authorities to Mitigate the Crisis..................................................................9
Post-Disaster Needs Assessment (PNDA)................................................................................9
Establishment of Relief Camps................................................................................................9
Operation of the Relief Camps...............................................................................................10
Medical Camps..........................................................................................................................10
 Community Driven Approach................................................................................................11
Contingency Monsoon Action Plan PDMA (Sindh)...............................................................12
Adequacy of Preventive Measures.............................................................................................13
Predictions of meteorological departments...........................................................................13
Existing infrastructure...........................................................................................................13
Irrigation system....................................................................................................................13
Availability of Resources.......................................................................................................13
Coordination mechanism.......................................................................................................13
Budgetary provisions.............................................................................................................14
FEEDBACK FROM LOCAL AND INTERNATIONAL MEDIA REGARDING
PREPARATION AND DAMAGED..........................................................................................16
Response of the Local Media.....................................................................................................16
Response of the International Media.........................................................................................17
ROLE OF LOCAL & INTERNATIONAL NGOS IN RELIEF & REHABILITATION
PROCESS AFTER FLOODS 2022............................................................................................18
Local NGOs...............................................................................................................................18
International NGOs....................................................................................................................19
Collected Efforts........................................................................................................................20
Limitations of NGOs..................................................................................................................21
Funding Constraints...................................................................................................................21
Logistical and Coordination Issues............................................................................................21
Regulation of NGOs (Meeting with DG, PDMA).....................................................................22
POLICY MEASURES FOR EFFECTIVE HANDLING OF SUCH DISASTERS IN
FUTURE.......................................................................................................................................23
Comparison between level of Disaster preparedness: Pakistan & India....................................23
Long Term Solutions.................................................................................................................24
Short Term Solutions.................................................................................................................26
Conclusion.................................................................................................................................28
REFRENCES...............................................................................................................................29
 LOSS OF HUMAN LIVES, DAMAGE TO INFRASTRUCTURE,
REHABILITATION OF AFFECTED PEOPLE AND FINANCIAL
STRAIN RESULTING FROM THE FLOODS OF 2022 & 2024.
Introduction
Heavy rains and a combination of river, urban and flash floods have caused an
unprecedented climate-induced disaster in Pakistan since June 2022, causing widespread
casualties, killing livestock and damaging and destroying public and private infrastructure
across the country. Landslides and floods caused by the rains also damaged farmland and
forests, affecting local ecosystems. The scale of the disaster is unprecedented in Pakistan and
exceeds the damage caused by the 2010 floods. (Economic Survey 2022-23)

The Government of Pakistan has declared a state of emergency in 84 districts

nationwide, mainly in Balochistan (32 districts), Sindh (23 districts) and Khyber
Pakhtunkhwa (17 districts). The economic impact was most visible in Sindh, which bore 70
percent of the country's total loss and damage. The provinces of Punjab, Balochistan and
Khyber Pakhtunkhwa (KP) were affected to a lesser, yet significant, extent. According to the
National Disaster Management Authority (NDMA), the floods destroyed more than 2.3
million homes and damaged more than 1.7 million hectares (4.4 million acres) of crops,
losing more than 800,000 livestock and more than 8 million people are pushed to poverty. In
addition, more than 30,000 schools and 2,000 health centers were damaged and had to be
repaired or completely rebuilt. Lack of essential services such as safe latrines, clean drinking
water and health services was a critical risk factor for the displaced population. (UN-OCHA)
ESTIMATES OF DAMAGE AND LOSS DUE TO FLOOD 2022:
Damages are estimated at $14.9 billion, with losses of $15.2 billion in gross domestic
product and total recovery needs of $16.3 billion. The sectors that underwent the most
damage are housing, $5.6 billion; agriculture, food, livestock and fisheries $3.7 billion; and
transportation and communication $3.3 billion. The greatest reconstruction and rehabilitation
needs are in the transport and communications sector ($5.0 billion), followed by agriculture,
food, livestock and fisheries at $4.0 billion and housing at $2.8 billion respectively. The
provinces of Sindh and Balochistan accounted for approximately 50 percent and 15 percent
of rehabilitation needs, respectively.

“Damage is defined as the direct costs of destroyed or damaged physical assets. Loss is
defined as changes in economic flows resulting from the disaster and valued in monetary
terms. Needs costing draws on the monetary value of damage and loss but is not equal to the
sum of those estimates as described in Economic Survey 2022-2023 and PDNA-2022.”
Displacement, fatalities and injuries

About 33 million people were affected by the heavy rains and floods, of which at least 7.9
million were displaced, with about 598,000 living in relief camps. According to the National
Disaster Management Authority (NDMA), between June 14 and September 28, heavy rains
and floods killed more than 1,600 people and injured more than 12,800 people, including 333
women and 615 children killed, and 3,452 women and 4006 children were injured in floods.
Whereas nearly half of all deaths and 66 per cent of all injuries were recorded in Sindh,
Balochistan and Khyber Pakhtunkhwa each reported around 19 percent of all recorded
deaths, while Punjab reported 30 per cent of all injuries.

House and infrastructure damage

More than 2 million houses were affected, out of which more than 767,000 were destroyed
and almost 1.3 million were damaged. In Sindh, 64 percent of more than 13,000 kilometers of
roads and 40 percent of the country's 410 bridges were damaged or destroyed. Damage to
public infrastructure is second highest in Balochistan and Khyber Pakhtunkhwa, with
Balochistan accounting for 17 percent of all known damages and Khyber Pakhtunkhwa for 12
percent of road damages and 26 percent of damaged and broken bridges. This impact on
critical transport infrastructure prevented the movement of people to safer areas and
hampered access to markets and services to the needy ones.

Livestock and agricultural impacts

More than 1.1 million cattle were reported killed, including about 500,000 in Balochistan,
more than 428,000 in Sindh, and more than 205,100 in Punjab. According to FAO estimates,
about 9.4 million hectares of agricultural land in Pakistan was potentially under water in
August, of which 4.8 million hectares were in Sindh, 2.7 million hectares in Punjab, 1.2
million hectares in Balochistan and 714,000 acres in Khyber Pakhtunkhwa. The loss of
livestock and extensive crop cause significant economic and food security impacts overall.
Life and Livelihood

About 9-12 million Pakistanis have become impoverished and 2 million have lost their jobs.
According to the World Bank, more than 8 million displaced people faced a health crisis. Of
these, 5.1 million children required vaccination and nutritional support; 940,000 were seniors
with special needs; and 610,000 were pregnant women requiring labor, delivery and postnatal
care.

Availability of services

Almost 27,000 schools were destroyed and the road network and bridges were severely
damaged, disrupting the education of about 3.5 million children. Infrastructure damage also
affected energy availability in flood hit areas.
Summary of Damages Province Wise:
Table: 2

Province Sindh Punjab KPK Balochistan

Deaths 1092 223 309 336
Injuries 8422 3858 187
Houses
1.7M 60,161 91,932 192,605
Damaged
Roads(km) 8463 877 1058 2887
Bridges 165 15 63 58
Livestock 436,435 205,146 94,120 434,424
Crops (acres) 3.8M 706,797 92,120 475,721
Health
1087 82 157 587
Facilities
Education
12,706 317 1301 2750
Facilities
9 Shrines, 20
1 mosque, 1
mosques, 25 56 mosques, 1
historic
Culture& archeological 1 archeological museum, 3
graveyard, 11
Heritage sites, 5 historic site, 6 shrines archeological
archeological
graveyards, 4 sites
sites
forts.
Wash (water,
sanitation &
5318 86 1079 456
hygiene)
system
Affected
12.4M 673,970 674,318 360,000
Population
Displaced
7.4M
Population

Source: NDMA & PDNA 2022, UNDP.org

Damage , Loss and Needs by Sectors:

Damage Loss Needs

(Billion (Million (Billion (Million (Billion (Million
Sectors
PKR) US$) PKR) US$) PKR) US$)
Social Sectors 1,345 6,261 193 896 832 3,872
Housing 1,200 5,586 137 636 592 2,757
Health 23 109 7 34 40 188
Education 120 559 47 219 197 918
Culture and Heritage 1 6 1 7 2 9
Infrastructure Sectors 843 3,927 85 396 1,168 5,437
Transport and
701 3,264 60 281 1,073 4,994
Communications
Energy 19 88 1 3 25 117
WASH, Municipal
Services, and Community 123 575 24 112 70 327
Infrastructure
Productive Sectors 996 4,635 2,853 13,281 1,022 4,760
Agriculture, Food,
800 3,725 1,986 9,244 854 3,976
Livestock, and Fisheries
Water Resources and
153 711 - - 168 782
Irrigation
Commerce and
40 186 758 3,527 - -
Industries
Finance and Markets 1 3 90 417 - -
Tourism 2 10 20 93 0.4 2
Cross-Cutting Sectors 18 83 142 660 471 2,192
Governance 13 60 5 23 19 88
Social Sustainability,
0.004 0.02 - - 21 96
Inclusion and Gender
Social Protection,
- - 130 607 361 1,683
Livelihoods, and Jobs
Environment and
4 18 6 30 35 164
Climate Change
Disaster Risk Reduction
1 5 - - 35 161
and Resilience
Grand Total 3,202 14,906 3,272 15,233 3,493 16,261
 REHABILITATION
The World Bank has approved $1.692 billion in financing in different projects to
support people living in flood-prone areas of Sindh. Pakistan is being devastated by
unprecedented summer monsoon rains that have submerged a third of the country, damaged
two million homes and killed more than 1,700 people. The World Bank’s main focus is to
rehabilitate vulnerable communities, rebuild housing and restore crops.

Housing support

The Sindh Flood Emergency Housing Reconstruction Project supports managed,

multi-hazard reconstruction of basic housing. Moreover it will provide subsidy for for
reconstruction and restoration of 350,000 housing units.

Reviving agriculture

The Sindh Water and Agriculture Transformation Project will increase agricultural
water productivity, improve integrated water resources management and restore crops for
flood-affected farmers. It predicted that 885,000 households will benefit from the project. As
an immediate response to the floods, the project provides cash transfers to 800,000 flood-
affected agricultural households to restore crop production by purchasing seeds, fertilizers
and other essential inputs. In the medium term, approximately 70,000 households will benefit
from improved irrigation services and agricultural support, which will help increase farm
incomes. About 14,000 households will directly benefit financially from smart pilot support
systems for small and medium-sized enterprises for farmers.

Social protection

In addition, the Sindh Social Protection System Strengthening Project will strengthen
the province's social protection system and improve access to and utilization of maternal and
child health services.

Health infrastructure

The Sindh Integrated Health and Population Project will help improve maternal and
child health and nutrition services. It will also help in the rehabilitation and reconstruction of
health infrastructure damaged in the floods.
 FLASH FLOODS 2024
The heavy rainfall from 12th April in Pakistan had affected Khyber Pakhtunkhwa
(KP), and Balochistan. It was divided in to two heavy spells, first, from 12 th-24th April, 2024
and second heavy spell from 28th-29Th April, 2024.

About 9,000 km² of land appeared to be affected by flood water as per UN satellite
imagery. At least 1.5 million people have been affected. 124 people died out of which 42
were males, 31 were females and 51 were children and 153 people were injured including 64
males, 27 females, 62 children. The heavy rainfall has also damaged over 6000 houses across
Pakistan.

Situation in KP

Khyber Pakhtunkhwa (KP) province was affected the most with 82 mortalities (24
males, 20 females, 38 children), 118 sustaining injuries (47 males, 22 females, 49 children),
over 3,700 houses damaged, and over 500 livestock terminated.

Situation in Balochistan

Heavy rainfall in Balochistan province caused 21 fatalities (8 males, 6 females, and 7

children) and 25 injuries (10 males, 4 females, and 11 children), damaging over 2,200 houses.
The rainfall also caused losses to the poor infrastructure by destroying 4 bridges, 18 roads, 66
acres of crop areas, and over 140 livestock, according to PDMA Balochistan.

Situation in Punjab:-

The Punjab PDMA reported 21 deaths (10 males, 5 females, 6 children) and 5 injuries
(1 male, 2 females, 2 children) with no loss to infrastructure.

In addition to the aforesaid damages, the flash floods also caused widespread
destruction to massive area of crops, particularly the wheat crop, which was ready for
harvest. Resultantly causing significant economic losses for local farmers and communities,
and thus compounding the losses from the earlier flood and rain.
 MEASURES TAKEN BY THE AUTHORITIES TO PREVENT
AND MITIGATE THE EXTENT OF DISASTERS IN THE
WAKE OF THE FLOODS
Details of Flood Mitigation Measures

As reported by the UN. 1/3 of the country was under water and hence to mitigate the impact
of flood measures were taken by respective authorities in 2022 and 2024. The measures and
their efficacy are discussed below.

Measures taken by Authorities to Mitigate the Crisis

Flood mitigation approach fall into two categories: structural and nonstructural.
Structural forms of mitigation mitigate harm by reconstructing temporary landscapes i.e
floodwalls, floodgates, embankments, evacuation routes, and relief camps. Nonstructural
measures reduce damage by removing people and property from risk areas. They include
elevated structures, property buyouts, permanent relocation, zoning, subdivision, and building
codes and procedures. NDMA, PDMA and DDMA and respective DDMAs throughout the
province took certain measures to mitigate the extent of the disaster in the wake of floods:

Post-Disaster Needs Assessment (PNDA)

The Government of Pakistan did PDNA with the assistance of several international
organizations i.e. the European Union, United Nations Agencies, the Asian Development
Bank, and the World Bank. Damages and losses incurred due to the floods were assessed
which were exceeding the floods of 2010. Agriculture forms the economic backbone of the
area which suffered an estimated loss exceeding PKR 800 billion seconded by the transport
and communications network which suffered an estimated loss of PKR 701 billion.

Establishment of Relief Camps

The Relief Camp Sites were identified on the basic of following pre requisites:

o Located at safer places where the basis, amenities of life can be provided
easily.
o Clean and have provision of basic necessities of life.
o Preferably near main locations (elevated points) and transport routs of District.
 Mostly established in Schools.
 DEO / Assistant Commissioners as Supervising Officers
  Manned with officials from Revenue Department and Education
Department.
 XEN SEPCO to ensure the availability of Electricity at notified camps.
 District Food Controller along with other line departments to ensure
availability of sufficient quantity of dry food stock like Atta, Gur and
other essential commodities at relief camps.
 Municipal Administration /Town Committees and Union
Administrations to ensure the availability of Clean Drinking Water,
cleanliness, and sanitation facilities at Camps.

Operation of the Relief Camps

 Provision of cooked food.

 Clean drinking water.
 Power supply.
 Health Cover.
 Security

Medical Camps

Medical Camps were established for the flood victims immediately because lots of
people were injured due to excessive rainfalls, flood water destruction and post-flood
diseases i.e. Malaria, Fever, Diarrhea, ENT issues etc. Hence, medical camps were
established throughout the province which included: Camps at Vulnerable Points, Mobile
Ambulance Service and Camps at Schools.

These medical camps were established

 To provide medical treatment

 Vaccination of children
 Creating awareness among the masses about basic hygiene to prevent outbreak of diseases
 Arranging and handling static and mobile medical camps for preventive and curative medical
cover
 Maintaining statistics of hospitalized, dead, injured and missing persons.
 Ensuring adequate fumigation campaigns.
 Community Driven Approach

While engaging international organizations as key stakeholders in the floods of

2022 & 2024, the government also engaged the community for multidimensional
mitigation of the effects of flood. The community was involved in identifying the
needs and taking decisions regarding what to do first and which road to rehabilitate
first. However, community engagement was weak as a measure as institutional
architecture does not provide a roadmap for better management at community level
engagement. The emergency plan that dealt with the floods is prepared at the national
level by NDMA. It does not tailor to the communities in both senses of engagement
and mitigation as per the needs of specific communities. Community-based crisis
management in the flood situation is only possible if the plan is prepared at the
national level as input from all the major communities of Pakistan. However, some
philanthropists and specialists have voluntarily helped the government ensure
community engagement in disaster mitigation. Among such notables is Yasmeen Lari
who championed sustainable, green homes.

1. Strict watch on Hoarders

2. Live Stock Management Camps

Livestock is the bread and butter of people hailing from rural areas. To mitigate the
loss of livestock Livestock Management Camps were established. This helped in the necessary
medication of animals to prevent outbreak of any disease, treatment of animals suffering from
diseases, maintenance of overall hygienic environment and immediate burial/disposal of perished
animals

3. Effective Coordination Mechanism with NGOs, INGOs, NDMA, PDMA,

ARMY and other Departments
All of them to operate in a district after the NOC of DG PDMA.
4. District Security Committee
 Preparation and Implementation of the security plan for the district during flood
season
 Ensuring necessary security arrangements of IDP Camps.
 Ensuring safe and smooth transportation and distribution of ration and relief items
 Providing foolproof security to all pre, during and post-flood relief activities
 Arranging adequate monitoring and patrolling of Bunds
Contingency Monsoon Action Plan PDMA (Sindh)
Adequacy of Preventive Measures

Disaster management / contingency plan to prepare for the disasters was prepared
keeping in view the history of disasters and future predictions by various departments was
also taken into consideration. The available resources and shortfall / requirements were
also worked out by DDMAs and PDMAs across the country. Adequacy of measure
adopted during the floods of 2022 and 2024 can however be gauged by following
parameters.

Predictions of meteorological departments.

As compared to 2021, Pakistan Metrological department had forecasted 20-30%

increase in rains in monsoon season 2022 in different areas of the country. However the
actual rainfall saw an increase of 100-300%* (Interview DG PDMA Sindh / data
provided by PDMA).

Existing infrastructure

The existing infrastructure has been designed to withstand routine rainfall / floods
however the monsoon 2022 saw a prolonged spell of persistent rains for 3 months (July to
September) in the country

Irrigation system

The existing irrigation system throughout the country was too fragile to withstand
the might of floods in 2022. Therefore, all efforts for removal of silt from rivers and
canals proved insufficient.

Availability of Resources

DDMAs / PDMAs had stocks available to mitigate routine disasters, however, the
quantum of floods in 2022 was way beyond the predicted scale. These included Tents,
mosquito nets, paraphernalia to establish relief camps etc.

Coordination mechanism.

DDMAs were established under Section 18 of National Disaster Management

Authority act 2010. At the time of promulgation of the said act, PLGO 2001 was in force
and all line departments including irrigation, Agriculture, health, livestock, Local
Government etc reported to DCO and hence planning and execution of disaster
management was efficient being under single umbrella. Though DDMAs still continue to
function but the line departments do not come under the direct ambit of chairman DDMA
i-e field formations of these departments directly report to respective Provincial secretary.

Budgetary provisions.

No special budget was allocated to DDMAs for preparation of floods. However,

the office of the deputy commissioner, in regular budget, was given 2.5 to 3 million to
meet unforeseen requirements. This created issues for DDMA specially for establishing
flood relief camps and its management. Even though DDMAs had planned and
undertaken adequate measures to prevent the disasters however, the floods of 2022 were
unprecedented and proved to be a force majeure.
 In view of the above facts it may be concluded that the measures taken by the
government were according to the average annual rainfall. However, the quantum of calamity
was huge rendering the measures inadequate and the same has been pointed out in
temperatures and precipitation report of PDMA Sindh. “The decadal average of temperature
shows increase in annual temperatures of the province. Significant increase is observed after
1990 and onwards. The significant changes in temperature rise are observed in Central and
Upper Sindh. Significant change in total provincial precipitation is observed over the period
starting from 1981”
 FEEDBACK FROM LOCAL AND INTERNATIONAL MEDIA
REGARDING PREPARATION AND DAMAGED
Response of the Local Media

Overall, the response of the national media was quite positive. It was generally
accepted that calamity was so huge that rendered efforts insufficient. The efforts were
appreciated by all major media houses. However, incidents of mismanagement, delayed
rehabilitation, insufficient relief resources etc. invited timely criticism highlighting following
aspects;

 Criticism of Preparedness and Response

 Delayed response from Government machinery
 Insufficient Rehabilitation activities
 Mismanagement

“Minister for Information and Broadcasting Marriyum Aurangzeb said Prime Minister
Shehbaz Sharif has announced Rs15 billion for Sindh, Rs10 billion for Khyber Pakhtunkhwa,
and Rs10 billion rupees for Balochistan, armed forces and civil administration are carrying
out rescue and relief operations in flood-affected areas”

In another news article it highlighted insufficient relief and rehabilitation activities

“We all know that no one was prepared for such a horrendous natural disaster or, let’s
admit, for the extent to which it affected the province of Sindh. In a disaster, a government’s
role is to provide immediate assistance to those affected. This means having a plan in place to
provide shelter, food and water to those who are in danger, as well as a plan to help evacuate
people who need to leave their homes.”
“While receding water has allowed millions of people to return home, they continue to face
shortages of essential items such as food and medicine coupled with other challenges brought
about by the winter season. Flood-hit regions are now tackling health-related challenges,” it
added.”

Response of the International Media

Mainstream international media including BBC, CNN, Reuters, DW, Sky News etc.
did proper coverage of the natural calamity of 2022 floods. During the coverage a mixed
feedback was observed as given below;

“One-third of Pakistan has been completely submerged by historic flooding, its climate
minister says. Devastating flash floods have washed away roads, homes and crops - leaving a trail
of deadly havoc across Pakistan. "It's all one big ocean, there's no dry land to pump the water out,"
Sherry Rehman said, calling it a "crisis of unimaginable proportions”

In another news article appeared in DW News, inaction had been highlighted;

“Sources told DW that people are so furious about what they described as their
government's inaction, that they surrounded a visiting provincial minister in south Punjab,
forcing him to flee after residents protested against the indifference of the ruling elite over the
plight of those hit by floods”
 ROLE OF LOCAL & INTERNATIONAL NGOS IN RELIEF &
REHABILITATION PROCESS AFTER FLOODS 2022.
The floods of 2022 in Pakistan stand as one of the most catastrophic natural disasters
in the country’s recent history, causing unprecedented destruction and suffering and in the
wake of this calamity, local and international non-governmental organizations (NGOs)
mobilized rapidly to provide critical relief and rehabilitation services. Their efforts were vital
in addressing the immediate needs of the affected people, providing essential supplies of
necessities, medical care, and psychological support. These organizations also played a key
role in the long-term recovery process, helping to rebuild homes, restore livelihoods, and
strengthen community resilience against future disasters. By analyzing their performance, it is
intended to acquire insights that can inform better disaster management strategies and policies
in the future, ensuring that Pakistan is better prepared for such events.

Local NGOs

Nationally, faith-based charities were particularly active to help the affected people.
Local NGOs like Bunyad Foundation, Kainat Development Association, Ghazi Social
Welfare Association, Alkhidmat, Akhuwat, Edhi and Agahi Pakistan, which were active
participants in rehabilitation services in the flood-ridden areas of the country during the flood
of 2022. Aga Khan Development Network had an established program of support to
community-based disaster risk management. It worked with 172 community emergency
response teams (CERTs) across Pakistan and trained over 36,000 community volunteers as
first responders, over 50% of whom were women. These teams had been provided with
stockpiles of relief supplies such as tents, blankets, search tools, and first aid supplies, which
strengthened local response capacities. Minority religious groups such as churches similarly
organized collections for distributions nationally and locally across dioceses. Sindh have
formed the Indus Democratic Network, which includes 30 registered social organizations, all
active in flood-affected areas. The network has been coordinating with OCHA, the
International Organization for Migration (IOM) and the International Rescue Committee
(IRC). Major relief provided by the Pak Army, then local NGOs.

Hundreds of other local NGOs were instrumental in providing immediate relief and
supporting early recovery efforts. They mobilized resources quickly to deliver essential
supplies such as food, clean water, medical aid, and temporary shelter to affected
communities. Local NGOs were pivotal in providing immediate relief and support to affected
communities. (CSSP, 2023) They facilitated evacuations, provided temporary shelters,
distributed cooked food and dry rations, and offered essential non-food items such as hygiene
kits and blankets. Local organizations, coordinated through networks like the National
Humanitarian Network (NHN), were essential in reaching remote and underserved areas
quickly due to their ground-level presence and understanding of local needs.

Several other NGOs like Akhuwat Islamic Microfinance; Alternative Law Collective;
Area Development Organization (ADO); Association for Integrated Development (AID)
Balochistan; Doaba Foundation; Gender and Empowerment Organization; Hashoo
Foundation; HOPE’87 Pakistan; HUJRA Village Support Organization; Khari Shareef
Welfare Society (KSWS); MEHER Balochistan; Pakistan Fisherfolk Forum (PFF);
Publishing Extension Network (PEN); Rupani Foundation; Saibaan Development
Organization; Social Action Bureau for Assistance in Welfare & Organizational Networking
(SABAWON); Veer Development Organization (VDO); Water, Environment and Sanitation
Society (WESS); Women Welfare Organization; Youth Organization Balochistan took part in
rehabilitation of flood affected people.

International NGOs

International NGOs like Red Cross and Red Crescent Movement alongside United
Nations agencies like UNICEF and World Health Organization (WHO) provided significant
support in the form of funds, expertise, and resources. International NGOs collaborated with
local entities and government agencies to enhance the scale and impact of the relief efforts.
Medical Emergency Relief Foundation worked in collaboration with IRC in Balochistan.
Organizations such as the International Federation of Red Cross and Red Crescent Societies
(IFRC) and various UN agencies worked closely with the Government of Pakistan to deliver
emergency assistance, including health services, safe drinking water, emergency shelters, and
livelihood support in Sindh and Balochistan. International Union for Conservation of Nature
(IUCN); Islamic Relief; Muslim Aid UK; Muslim Hands; World Wildlife Fund (WWF) were
also active in relief provision to the affected people. Concern Worldwide was also running a
community-based disaster preparedness and resilience program, worked with over 100 small
local organisations, which enabled it to respond quickly to save livestock, grain, and assets.
The IFRC, launched an emergency appeal to assist over 324,000 people. (CDP, 2023)

There were several other Interaction organizations like Food and Agriculture
Organization (FAO); International Federation of Red Cross and Red Crescent Societies
(IFRC); International Labor Organization (ILO); International Organization for Migration
(IOM); Italian Agency for Development Cooperation (AICS); Japan International
Cooperation Agency (JICA); United Nations Environment Program (UNEP); United Nations
Educational, Scientific and Cultural Organization (UNESCO); United Nations Children’s
Fund (UNICEF); United Nations Industrial Development Organization (UNIDO); United
Nations Office for Project Services (UNOPS); United Nations Entity for Gender Equality and
the Empowerment of Women (UN Women); World Health Organization (WHO), World
Food Program (WFP), United Nations Human Settlement Program (UNHABITAT),
International Labor Organization (ILO), United Nations Population Fund (UNFPA), United
Nations High Commission for Refugees, (UNHCR), United Nations Program on HIV/SIDA
(UNAIDS) were also very active in relief provision campaign to the affected communities in
different ways.

Collected Efforts

A comprehensive framework known as the Resilient Recovery, Rehabilitation, and

Reconstruction Framework (4RF) was developed by the government with the support of
international bodies like the UNDP, World Bank, ADB, and the EU. The collaborative
response included the establishment of the 2022 Pakistan Floods Response Plan (FRP),
jointly launched by the Government of Pakistan and the United Nations. This plan aimed to
address immediate humanitarian needs and support long-term recovery and resilience efforts.
The plan emphasized a coordinated approach involving government bodies, local NGOs,
international NGOs, and other stakeholders to ensure effective implementation and
monitoring of relief efforts. (JICA, 2023)

The NGOs collectively provided medical care, vaccines, and nutritional support to
prevent disease outbreaks. They ensured that displaced populations had access to temporary
shelters and essential items. The executed projects to provide clean drinking water and
sanitation facilities. Provided support to the affected populations to rebuild their livelihoods
through vocational training and financial assistance. Prioritizing homes, agriculture, and
livelihoods, these NGOs made sure that there was a swift recovery and long-term resilience.
(UNICEF, 2023)

Gathered financial resources from both domestic and foreign sources to support
restoration initiatives, emphasizing accountability and transparency. Also ensured recovery
efforts are inclusive and equitable, particularly focusing on the poorest households, women,
and marginalized communities. (Ashfaq, 2023) One notable project by the Asian
Development Bank (ADB) aimed at long-term recovery involved the rehabilitation of critical
infrastructure such as roads, bridges, and irrigation systems in the provinces of Balochistan,
Khyber Pakhtunkhwa, and Sindh. This project also aimed to restore agricultural productivity
and livelihoods, which were severely impacted by the floods. (IOM, 2023)

Some of the functions performed are given below;

 Provision of Basic Necessities

 Medical Assistance and Health Services

 Psychological Support and Counseling

 Long-Term Rehabilitation and Reconstruction

 Housing and Infrastructure Rehabilitation

 Livelihood Support and Economic Recovery

 Education and Community Development

Limitations of NGOs
Despite their crucial contributions, NGOs faced numerous challenges during their relief and
rehabilitation efforts.

Funding Constraints
The sheer scale of the disaster meant that resources were stretched thin. Many NGOs
struggled to secure sufficient funding to meet the needs of all affected individuals. This was
particularly challenging for smaller local organizations that relied heavily on donations and grants.

Logistical and Coordination Issues

Logistical hurdles posed significant challenges, especially in reaching remote and
inaccessible areas. Floodwaters had damaged roads and bridges, complicating the transportation of
relief supplies. Coordination between different NGOs and government agencies was also an issue,
sometimes leading to overlaps in service delivery or gaps in aid distribution.
Regulation of NGOs (Meeting with DG, PDMA)

During the meeting with DG, PDMA, it was learnt that role of NGOs had been
undoubtedly remarkable. However, steps taken by NGOs were not sufficient related to
quantum of damage by unprecedented calamity. Moreover, it came to knowledge that all
NGOs operate under their own mandate driven by their policies and it was during this
calamity of flood of 2022 that it was made compulsory by the PDMA for each NGO to
operate in any district after issuance of NOC from PDMA. Lastly, as per DG, PDMA around
50 NGOs operated during the flood and it was first time when a comprehensive detailed
mapping of all NGO has been carried out by PDMA and the same is available for initiation of
any response in future.
 POLICY MEASURES FOR EFFECTIVE HANDLING OF
SUCH DISASTERS IN FUTURE
Pakistan is vulnerable in varying degrees to a large number of natural as well as man-
made disasters like earth quakes, river and rain floods, heat waves, droughts, landslides,
torrential rains and storms etc. These vulnerabilities are exacerbated by our insane population
growth rate (1.96 %). Pakistan generates less than one percent of the world's carbon footprint,
but suffers the greatest impacts of climate change. According to the Global Climate Risk
Index, Pakistan is currently the most climate vulnerable country in the world, having lost
nearly ten thousand people between 1999 and 2018 and suffered $3.8 billion in economic
losses due to climate change. By all measures, Pakistan does poorly compared to other South
Asian countries. To this end, the ratio of the average income of the poorest 10 percent of the
population to the richest 10 percent is 6.5. In other words, the average income of the richest is
more than 16 times higher than the average income of the poorest. In Bangladesh, the ratio is
7.5%, in India 8.6% and in Sri Lanka 11.1%.Then rapid rural-urban migration (37.73%),
development within high-risk zones, low literacy rate(58%.) , geographical dynamics
emerging from River Indus and the agricultural economy related to it. Natural disasters i.e
earthquake of 2005 claiming 100,000 lives with 2.6 % of its GDP as economic loss, floods
2010 loss, floods 2022 loss, have proven to be a constant threat for national security,
economy, food security and sustainable development of the country.

Comparison between level of Disaster preparedness: Pakistan & India

Pakistan and India share a lot of socio-geographical similarities. Hence, their disaster
management comparison was made to get a better idea of how Pakistan should go about its
challenges. The National Policy on Disaster Management NPDM was tuned in pursuance of
the Disaster Management Act 2005 with a vision to build a safe and disaster-resilient India by
developing a holistic, proactive, multi-disaster-oriented, and technology-driven strategy
through a culture of prevention, mitigation, preparedness and response. The policy
covers all aspects of disaster management, institutional, legal, and financial management,
disaster prevention, techno-legal regime, response, relief and rehabilitation, reconstruction
and recovery, capacity development, research, and development.

 Special care was given to the needs of differently-abled people, women, and children.
 The element of transparency and accountability was especially taken care of.
  Setting up of All Parties National Committee for Disaster Management after Gujrat
floods for catalyzing and implementing disaster management plan.

The question is whether we have a holistic, integrated, community-driven, inclusive, and

financially viable disaster management policy or is it individual driven based and only
operates in silos.

Policy Measures for effective handling

Long Term Solutions

1. Integration of disaster risk reduction in development planning

2. Gradual relocation of illegal settlements in river beds in Sindh, Punjab.
3. Clearing of silted Gudu Kotri stretch of Indus River
4. Restoring decade-old waterways
5. Adopting and implementing better land development practices
6. Designing/construction/rehabilitation of bridges based on Hydrological Model
studies. Adaptation of latest standards/codes for design and construction of flood
resilient structures. Raising height of embankments of tracks (PR) consideration
highest level of floods encountered in the past
7. At Policy level special care to be given to the needs of differently-abled people,
women, and children
8. Structural Flaws of LBOD & RBOD
The situation in Sindh province highlights the importance of rehabilitating natural
drainage ways rather than focusing on over-irrigation drainage systems such as LBOD
and RBOD projects. LBOD and RBOD are the links to channel the Indus River water
flow stretching around 3000 km from Himalayas till Arabian Sea. But these RBODs
and LBODs, are not designed as per international standards. LBOD, especially is not
designed properly and one of the segments known as Tidal Link has caused
unimaginable damage to the people and crops. Furthermore, these links may be
designed as per international standards in order not to defy the natural flow of water.
On the other hand, RBOD is not constructed completely and its damage in the recent
floods is much more than LBOD. Hence, there is an urgent need to complete the
construction of RBOD so that no such loss is witnessed on a large scale. (interview
with Qamar Hussain, Principal Engineer NESPAK).
9. Political consensus for constructing new Dams (Improvement and maintenance of
existing water infrastructure such as irrigation systems and canals.
10. Improve agricultural and livelihood support:
a. Develop and promote flood-resistant agricultural practices such as drought-tolerant
crops and efficient irrigation techniques.
b. Crop insurance must be implemented to protect farmers against natural disasters.
c. Diversify livelihood opportunities in flood-prone areas to reduce excessive
dependence on agriculture.
11. Strengthen the sustainability of housing and infrastructure
a. Develop and implement flood-resistant building codes and standards, adapting
the latest standards and regulations.
b. Preference will be given to the reconstruction and renovation of flood-resistant
housing and infrastructure.
c. Invest in the maintenance and improvement of transport networks, bridges and
communication systems.
d. Promotes the use of flood resistant materials and models in new construction
projects.
e. Increase the height of railway embankments (Pakistan Railways) based on the
highest floods observed earlier.
f. Develop a mechanism for sequential replacement of all old vulnerable bridges,
especially for Pakistan Railways, which has 80 percent obsolete bridges.
Short Term Solutions

1. Use of AI in zoning of areas as per vulnerabilities (Turkey & India Model)

2. Training of DDMAs, District Police, Medical Staff etc for better preparedness and
disaster handling
3. Establishing All Parties National Disaster Committee at the pattern of a India for
unified and politically backed disaster response
4. Strengthening of the office of DDMA by bringing line departments such as irrigation,
works & services, agriculture departments under DDMA so that long term planning
and execution can be carried out effectively
5. Better coordination with NGOs for immediate mobilization of their resources and
response because as DG PDMA highlighted that now we have done mapping of
NGOs and these are now in a better position to respond. More working on district
level is needed on this area so that more resources are available at district level
6. Commissioner office should develop regular mechanism with PDMA, NHA,
NH&MP, etc. so that while formulating policies and execution thereof.
7. Operational Plan
i. Pre-Monsoon (May-June)
1. Strict enforcement of scheduled Inspections to determine deficiencies
and rectification accordingly
2. Necessary repair of bridges/embankments/protection works
3. Clearing closed/chocked waterways
4. Staff/machinery to be kept ready to mobilize
5. Ensuring pitching stones reserves /temporary bridges/staging
arrangements intact
6. Coordination with NDMA and concerned PDMAs
ii. Monsoon Season (July-Sept)
1. Close liaison and coordination with flood warning deptts, NDMA and
concerned PDMAs
2. Pooling all human/non-human resources

iii. After Monsoon (Oct-April)

1. Determining damages and ensuring quality work of repairs
 2. Learning lessons from the damages occurred and preparing strategies to
mitigate affects in case of recurrence
8. Strengthening Disaster Risk Reduction (DRR) and Preparedness:
i. Invest in early warning systems/forecast and community-based disaster
management programs.
ii. Develop and implement comprehensive disaster plans at national, provincial,
and local levels.
iii. Carry out regular risk assessments and flood zone mapping using GIS
mapping techniques to identify vulnerable areas (e.g. in Turkey).
iv. Increase public awareness of disaster preparedness and assistance.
9. Improve emergency and emergency response: - s
i. Establish well-coordinated emergency response mechanisms at all levels of
government.
ii. Store essential supplies such as food, water and medical supplies in strategic
locations.
iii. Strengthens the capacity of rescue workers and paramedics through training
and tools.
iv. Develop effective evacuation plans and strategies to manage temporary
shelters.
10. Promotion of regional and international cooperation:
i. Strengthen provincial cooperation in sharing disaster management
information, knowledge and best practices.
ii. Request technical and financial support from international organizations and
development partners.
iii. Participate in global disaster risk reduction initiatives and frameworks such as
the Sendai Framework for Disaster Risk Reduction.
11. Flood control and improvement of water supply infrastructure:
i. Construction and maintenance of flood protection facilities such as and
drainage systems.
ii. Adopt sustainable water management practices, including watershed
management and afforestation.
iii. We promote nature-based solutions such as restoring wetlands and floodplains
to improve natural flood control.
Conclusion

Pakistan's devastating floods in 2022 and somewhat 2024 are not simply the outcome
of climate change, but also to the country's poorly designed water infrastructure, absence of
long term disaster management and mitigation policies. Although the response of the PDMA
and DDMA was quite commendable given the scale of catastrophe in the country, it also
underscores the fact that the policy level intervention by the NDMA supported by the
political consensus is the need of the hour. The natural disasters are now treated as a threat to
national security, economic stability and sustainable development of any country. Therefore,
unless Pakistan does not adopt international best practices of long term strategic policies of
disaster management, Mother Nature will continue to haunt us sporadically now and then.
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