OVERVIEW

Post-Disaster Needs Assessment (PDNA)

PDNA Defined

A Post-Disaster Needs Assessment (PDNA) is an exercise thatfacilitates effective and timely transition from relief to development. Itis a government-led process, with integrated support from the UN, European Commission (EC), World Bank and other national and international actors. The PDNA is the agreed inter-agency tool for assessment and planning after disasters under the World Bank-UN-EC Partnership Framework (2008). The PDNA gathers information to form a complete picture to determine early and long-term recovery needs and priorities. As such it bridges humanitarian response with early and longer-term recovery.

The PDNA produces a single, consolidated report comprising an assessment and a Recovery Framework. A PDNA encompasses two assessment perspectives: (i) the valuation of physical damages and economic losses and (ii) the identification of impacts on affected people and their recovery needs. For the former, the PDNA uses The Damage and Loss Assessment (DaLA) methodology developed by the United Nations Economic Commission for Latin America and the Caribbean (ECLAC).

The PDNA also conducts an assessment of Human Impacts and Recovery Priorities. Each UN agency participating in a PDNA has its own well-developed methodology. Agency assessments are used both in PDNA assessments as well as other post-disaster in-depth sectoral assessment exercises. These perspectives are integrated into a single assessment process.

Recovery Framework

The assessment process supports the identification and selection of early to long-term recovery interventions, which constitute the Recovery Framework.The Recovery Framework establishes the broad overarching vision for recovery, providing a basis for the prioritization, design and implementation of recovery programmes. There are now, at a minimum, three formal iterations of the Recovery Framework during the PDNA: (i) during the PDNA Planning Mission; ii) toward the Revision of Flash Appeal; iii) after formalized consultations with donors, private investors, and an assessment of government resources.

PDNA Process

Launch

A PDNAformally does not take place unless all partners—including the government--agree to launch a planning mission. Assessments by individual partners do not amount to a PDNA because PDNA requires engagement by all four principle PDNA partners: the government, UN, EC and World Bank. A PDNA is ideally timed to inform a revised flash appealandensure that the Recovery Framework clearly links to longer term development issues.

PDNA Coordination and UNICEF Role

In the immediate aftermath of a crisis, UNDP coordinates the PDNAexercise at the global and country levels. A PDNA is initiated by a formal government request to the World Bank, EC, or UN, though planning missions and other consultations by these partners may take place before a formal launch. At country level, the UN Resident Coordinator represents the UNCT in the PDNA. UNICEF participation and contribution is governed by the PDNA standard operating procedures (referenced below) and other context-specific mechanisms established locally. At the global level, UNICEF contributes through global inter-agency mechanisms such as the Cluster Working Group on Early Recovery (CWGER) and the UN Development Group-ECHA Working Group on Transition.

In order for UNICEF to influence decision-making on the initiation of a PDNA planning mission, several activities could be undertaken:

UNICEF activities to influence decisions on PDNA
Identify country and global focal points that feed in and analyze baseline information
Take stock of initial quick assessments and provide information on humanitarian action
Assess and provide information on capacities of national counterparts and partners--both human and technical data (software, hardware)
Share information on the upcoming PDNA exercise with all actors as appropriate and analyse its implications
Provide information on security, logistics and operational burden that this exercise might bring to the CO
Conduct/ provide analysis of past (early) recovery interventions from all clusters/sectors and programmes in the affected areas (ideally to be shared with global, regional and national actors)
Agree on coordination channels between national, regional and global actors if applicable
Identify additional capacities to support the PDNA process if required (advisory or/ and technical)

The following sections offer an overview of PDNA stages, including indicative lists of activities and descriptions of the overall coordination arrangements. These do not represent UNICEF’s responsibilities but reflect the overall process.

Stage 1 (week 1 or 2): Decision to Conduct a PDNA Planning Mission

At the country level, the UNCT offers the forum to discuss the PDNA. At HQ, the PDNA focal point of the Recovery and Risk Reduction Section, EMOPS, represents UNICEF at all global discussions, for instance in the Cluster Working Group on Early Recovery. Close cooperation between the PDNA country and global focal points, including Regional Emergency Advisers, should be established to maximize information sharing and effective positioning of UNICEF’s mandate in the process. Information sharing is also key to addressing whether the CO requires additional resources to support the PDNA process. The key steps to Stage 1 include:

  1. The RC engages in regular dialogue with the World Bank, EC delegation and the relevant government institution regarding the need for a PDNA. Any of these four institutions may initiate the dialogue; there is no need to wait for government to formally request a PDNA to begin the conversation. A parallel discussion will be undertaken between UNDP (as lead of the CWGER), the World Bank and EC at the HQ.
  2. If the Government requests a PDNA to any partner, this should be treated as a request to all partners.
  3. Organize a PDNA planning mission.

Stage 2 (Week 2 to 3): PDNA Planning Mission

A PDNA planning mission commences in-country, typically within 5-7 days of a decision by all partners (World Bank, EC, UN and government) to collaborate on a PDNA. The UNCT and clusters/sectors must engage the mission throughout the process. The following steps of the PDNA planning mission are the overall responsibility of the PDNA coordinator:

  1. Establishment of a PDNA management structure that includes:
  2. high level management team (e.g., RC, World Bank Country Director, EC Representative, government representative) to oversee the process, provide strategic guidance, take key decisions and ensure the availability of resources;
  3. co-ordination team to work under government leadership to manage day-to-day planning and management of assessment, and development of recovery framework;
  4. sector teams of line ministry experts and UN, World Bank, EC or other sectoral specialists to collect and integrate data on damage, losses, human impacts and needs; and
  5. technical support cell, including information and communication technology, information, mapping, logistics, translation, etc.
  6. report secretariat to oversee and support the production of sector assessment reports and recovery framework(s).
  7. Agreement on PDNA scope and objectives through the development of an agreed ToRwith the key partners, including agreements on sectors that will be the focus of recovery assessments.
  8. Initiation of assessment methods to be elaborated later by sectoral experts, including on-going assessments;
  9. Development of an information management strategy and initiate baseline data collection;
  10. Identification of human, logistical and financial requirements for the PDNA.

Stage 2: Activities of UNICEF PDNA country focal point
Work with the relevant CO colleagues on the PDNA
Share planning mission TORs with CO, RO and HQ
Coordinate with the HC, RC, and Early Recovery Cluster/Network
Coordinate with the global PDNA focal point as well as internally with UNICEF’s structures (global, regional and national) as appropriate
Participate in the PDNA Planning Mission where possible
Provide ongoing communication and coordination with UNICEF led clusters/sectors, government counterparts and partners
Identify and plan jointly with UNICEF led cluster/sector colleagues on dedicated staff capacities for the PDNA (CO and RO), and on required financial resources (some co-financing possible under the CWGER)
Liaise with PD and global clusters for technical advice on needs assessment tools, methodologies, information management as needed for the next stage.

Depending on the crisis context and capacities on the ground, the UNICEF PDNA focal point should assessthe technical and financial implications for the Country Office, as well as UNICEF led clusters/sectors, and relevant government counterparts.

UNICEF does not need to participate formally in the PDNAPlanning Mission. One avenue that UNICEF,can contribute to and influence mission outcomes is through active participation in the global CWGER and the in-country Early Recovery Cluster/Network. PDNA country focal points liaise with clusters/sectors under UNICEF’s leadership and co-leadership, and ensure quality inputs to the process. UNICEF also provides inputs to the first draft of the Recovery Framework, focusing on mid- to longer term recovery programming with risk reduction lenses.

Stage 3 (Week 3 to 8): Conducting a PDNA

The PDNA timeline shouldtake into account the need to link humanitarian assessments with PDNA’s potential contributions to the revision of the humanitarian Flash Appeal. The timeline also needs to consider longer term planning processes that influence how the PDNA’s Recovery Framework connects to development planning in the affected area.

Depending on the crisis context and capacities on the ground, UNICEF’s PDNA focal point should work with cluster/sector colleagues to ensure (early) recovery framework addresses children’s and women’s issues. The key outcome of this stage is a second draft of the Recovery Framework, which importantly informs the revision of the Flash Appeal.

The following is a brief description of key milestones and indicative activities during PDNA Stage 3:

  1. Formation of the PDNA Team
  1. The PDNA Planning Mission should identify the competencies among partners and counterparts that are already present in the country and how many will need to be recruited (local and/ or international). This process may take up to two weeks.
  2. The PDNA Team should be ready to start working by Week 5. The TORs and composition of all management structures follows much the same timeline.
  1. Training
  1. Training will be coordinated by the PDNA Coordination Team and individual sessions will be designed and conducted by the Sector Assessment Teams.
  2. Training may be a one-time event for all participants or it may be a series of sectoral seminars.
  3. The expected results are: (i) ensure understanding of the overall approach to the PDNA and coordination and management process; (ii) training of assessors. The training may also include a briefing on the PDNA information management strategy, practical training on information and data management software and tools.
  1. Assessment
  1. All sector assessments and programme formulation or plans of action will be coordinated across agencies and sectors by the PDNA Coordination Team established during the PDNA Planning Mission.
  2. During the conduct of the PDNA, individual sector teams will coordinate their own plan of work. Field visits will need to be carefully coordinated with the support of the PDNA Coordination Team in order to avoid repeat visits of assessment teams in the same locations and ‘assessment fatigue’ among key informants and affected communities.
  3. The respective TORs of each of the sector teams and TORs of each of the management structures (refer to stage 2) describe in detail the roles and responsibilities, timeframe, expected deliverables, methodologies, reporting and communication lines etc. For more detail please refer to the PDNA SOPs.
  1. Priority Response Options and Revision of the Recovery Framework
  1. Individual sector assessment teams will generate their desired response options as part of their sectoral report. They should not constrain their vision by resource capacity and must advocate for their vision.
  2. The PDNA Coordination Team is responsible reconciling, negotiating and achieving, where possible, synergies.
  3. The priority response options selected from the sector teams ought to span the entire recovery phase, but the most important period to attend to is the first 18 months where fundamental early recovery programmes must be agreed and included before the revision of the Flash Appeal is completed. The exact timing will vary from situation to situation.
  4. Ultimately, the agreement of the PDNA is the responsibility of the High Level Team who will need to approve the RF and ensure that its early recovery component is adequately reflected in the revised Flash Appeal. This must to be approved by the Government.

Stage 3: Activities of UNICEF PDNA country focal point
Ensure that UNICEF cluster/ sector colleagues and counterparts are members of the sectors teams and participate in the sector assessments
Provide input in the cluster/ sector team TOR and work plan
Assist with the recruitment of additional capacities if required
Work with the cluster/ sector teams in the analyzing the data as appropriate
Ensure mid to longer term recovery interventions include risk reduction approaches
Work with the cluster/ sector colleagues in developing the Recovery Framework
Support with the development of the long term vision
Contribute to the revision of Flash Appeal
Coordinate with the global PDNA focal point as well as internally with UNICEF’s structures (global, regional and national) as appropriate
Continue communication and coordination with UNICEF led sectors/ clusters, government counterparts and partners
Liaise with PD/ Clusters for technical advice on needs assessment tools, methodologies, information management as needed for the next stage.

Resource Mobilization

The PDNA fulfils its role as a building block to longer-term development through its contributions to a donor conference. The PDNA and Recovery Framework, as well as other planning frameworks such as a Poverty Reduction Strategy, provide a basis for mobilizing resources for the recovery and longer-term development of affected areas. The inclusion of major donors as PDNA partners, namely the World Bank and EC, is key to facilitating this process.

For further information, contact:

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James Rogan

Chief

Recovery and Risk Reduction Section

EMOPS NY

Isabel Candela

Sr. Recovery Advisor

Recovery and Risk Reduction Section

EMOPS NY

Erin Tettensor

Recovery Specialist

Recovery and Risk Reduction Section

EMOPS NY

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