key: cord- -zpn h mt authors: chaffee, mary w.; oster, neill s. title: the role of hospitals in disaster date: - - journal: disaster medicine doi: . /b - - - - . - sha: doc_id: cord_uid: zpn h mt nan when the first rain began to fall in houston,texas, in june , did hospital staff know they would soon be providing care for hundreds of patients without electrical power or running water in flooded hospital buildings? on april , , did the emergency department staff arriving for the day shift at oklahoma city hospitals know that a former soldier was driving a rented van filled with pounds of ammonium nitrate toward the murrah federal building and that they would soon be faced with bombing victims? in , did restaurant patrons in wasco county, ore., have any idea, as they selected food from salad bars, that they would soon be evaluated in hospitals for profuse, watery diarrhea from intentional food contamination by a religious cult? in march , did the toronto healthcare workers who were caring for patients with respiratory symptoms know they would soon become infected with severe acute respiratory syndrome (sars) ? we can be quite certain that none of them knew. the capricious nature of disaster implies victims and responders are generally caught unaware. but we do know some things. we know there will be hurricanes, typhoons, tornadoes, earthquakes, mudslides, fires, and blizzards this year. we know people will pick up firearms, make bombs, and inflict pain and suffering on others. we know there will be casualties from train accidents, cars crumpled in chain reactions, building collapses, and explosions.we know infectious diseases will do what they do best: spread, sicken, and kill. we know terrorists have not given up their violent assaults. we know there will be mental health symptoms in accident survivors and the caregivers who respond to their needs. it is the hospital, at the heart of the health system, that will receive the injured, infected, bleeding, broken, and terrified from these events. we know the victims will seek life-saving care, comfort, and relief at hospitals, but many u.s. hospitals continue to prepare for disaster as though it will not happen to them. there are more than hospitals in the united states that form a diverse patchwork of healthcare services. u.s. hospitals vary greatly by geographic location (urban, suburban, and rural); financial and management structure (for profit, not-for-profit, private, public); type of care (general medical services or specialty care, such as psychiatric or pediatric); and government affiliation (department of defense,veterans health administration, or public health service). any of these hospitals may be called on to respond to the next disaster or may be the victim of a disaster. many experts believe that these hospitals are not adequately prepared to respond effectively ( the hospital was of little significance in american healthcare before the civil war. only hospitals existed in when the first survey was conducted-a time when no proper gentleman or lady would venture into a hospital by choice. the murky medical practices of the s offered little that couldn't be found in homes, and physicians had little in their armamentarium to change the course of disease and injury. however, discovery and scientific advance changed that. effective anesthesia, surgical antisepsis, antibiotics, the x-ray, and other advances turned the hospital into a place of comfort, hope, and healing. the th-century hospital became a sophisticated financial institution, the core of medical education, and the site of dazzling technological display. medical advances offered aid not only to the chronically ill but offered hope to those who suffered acute trauma or medical or psychiatric emergency. past events illuminate the variety and complexity of demands placed on a hospital in a disaster: the potential impact of disaster is staggering. the release of tons of methyl isocyanate from the union carbide factory in bhopal, india, in december exposed more than , to the deadly gas and killed about in the first week after the release. in september , workers scavenging a dismantled cancer clinic in goiania, brazil, took home a source containing cesium- . they sold it to a junkman who showed the glowing item to friends and neighbors. once radiation exposure victims presented to hospitals, and the release became well known, hospitals were overwhelmed. although were actually exposed and showed signs of radiation sickness, , people were evaluated. when the aum shinri kyo cult placed sarin on five trains in the tokyo subway system on march , , people made their own way to hospitals, were transported by authorities, and hospital staff and rescue personnel were contaminated due to poor or nonexistent decontamination procedures. on sept. , , when u.s. hospitals and healthcare professionals were confronted with the worst attack on american soil, and again during the anthrax attacks along the eastern seaboard, individuals and organizations responded heroically. a powerful change in thinking, also called a paradigm shift, occurred after the terror attacks: the health system came to be viewed as a foundation of national security. another perspective has changed as well. in the event of a disaster, emergency medical services (ems), police, and fire have long been recognized as first responders. however, just recently, hospitals also have been designated as first responders-and first receivers. the value of the hospital in national security has been increased, and hospitals are recognized as safe havens in communities, the public expects hospitals to be prepared to care for their needs, and the hospital is now recognized as a first responder in emergencies. however, hospitals remain significantly underprepared to respond as effectively as the public expects. most importantly, preparedness is at direct odds with productivity. daily operating requirements stretch most hospitals' resources. allocating funds to improve emergency response capabilities that may never be used could be viewed as foolhardy. community integration is now seen as necessary, but hospitals (other than those in networks or that are government facilities) have had few reasons to build healthy relationships with other hospitals in their communities. to meet the needs of communities in a disaster, business competitors must work as partners. hospitals play a vital role in the health,social structure,and economic life of a community. patients expect hospitals, and health system workers, to be available to provide care for them in all circumstances. a level of preparedness that was viewed as adequate in the past is no longer seen as acceptable. to be more highly prepared and to be able to respond effectively, hospitals must make substantial investment in equipment, training, facilities improvements, and supplies. hospitals depend on public trust; poor performance during a disaster could be financially crippling to a facility. rubin writes that hospitals are expected to handle whatever they receive and do it right the first time. hospitals are vulnerable to the stresses of disaster responses due to a number of inherent characteristics: • complexity of services: hospitals are facilities that provide healthcare but must also function as laundromats, hotels, office buildings, laboratories, restaurants, and warehouses. • dependence on lifelines: hospitals are completely dependent on basic public services: water, sewer, power, medical gases, communications, fuel, and waste collection. • hazardous materials: the hospital environment contains toxic agents and poisonous liquids and gases. • dangerous objects: heavy medical equipment, storage shelves, and supplies can fall or shift during an event such as an earthquake. multiple forces have placed hospitals in a precarious preparedness posture. the capacity of the health system has been scaled down to a bare minimum to cut operating costs. emergency departments are crowded with the uninsured and the underinsured who have no other access to care. the nursing workforce has withered, and physicians have left practice due to uncontrolled liability insurance costs. many hospitals determine their surge capacity by the number of patients they could comfortably care for using standard spaces, quality care standards, and additional teams of personnel to help. in reality, a disaster is not going to comply with the limits of hospital capacity. if bombing victims arrive at a -bed community hospital, spaces will need to be converted and used that planners may have never imagined, such as chapels, hallways, and offices. nurses accustomed to a certain nurseto-patient ratio may find the ratio in a disaster much higher and have to adapt practice accordingly. surge capacity must not be viewed only as the number of beds or spaces that can be allotted to care for patients, but it must include all supporting hospital services that are involved in patient care. if hospital services fail during a disaster, the hospital fails the population depending on it. the population includes not just the victims of the disaster, but the others presenting for needed care-women preparing to give birth, patients with chronic disease exacerbation, and children with lacerations that need sutures. a vital hospital emergency management program acts as an insurance policy that increases the chances of continued operations under difficult circumstances. an effective hospital emergency management program guides the development and execution of activities that mitigate, prepare for, respond to, and recover from incidents that disrupt the normal provision of care. the program should include the following components: • emergency manager: the emergency manager is the primary point of leadership in the development, improvement, exercise, and execution of the hospital's emergency management plan. • emergency management plan: the plan identifies the hospital's response to internal and external emergencies. deliberate (advance) planning permits the development of strategies while the organization is not under pressure to react. • executive leadership: hospital executive leadership charts the course for an organization. a hospital that lacks executive leadership committed to emergency preparedness will be significantly hampered in its efforts. • strategic planning: the hospital's strategic plan is the blueprint that guides all efforts to achieve its mission. it is critical that emergency management and preparedness efforts are woven into strategic planning. • emergency management committee: extremely broad membership is desired to ensure all hospital operations that will be stressed in a disaster are integrated and well prepared. • hazard vulnerability analysis (hva): the hva is a tool used to assess the risks in a specific environment. the emergency management plan can be tailored to address the hazards most likely to affect hospital operations. • vulnerability analysis: every aspect of hospital operations that will be depended on in a disaster should be assessed to determine whether there are weaknesses present that fail when stressed. hospitals in the u.s. navy medical department and a number of civilian hospitals in new york have had their level of preparedness assessed using the hospital emergency analysis tool (heat). the heat examines more than factors that contribute to effective emergency preparedness and response. after the systematic analysis by a team of experts, the hospital receives an after-action report that documents strengths and weaknesses and permits the development of a strategic plan to improve preparedness. • staff training, exercise, and continuous improvement: the joint commission on accreditation of healthcare organizations requires hospital staff members involved in the execution of the emergency management plan to receive orientation and education relative to their role in an emergency. exercise of the emergency plan is also required. lessons learned should be integrated into plans to continuously revise them. a commitment to the following philosophies will enhance hospital emergency preparedness: • imagine the unimaginable: when flood waters rise in a community, when a tornado touches down and demolishes an elementary school, when a disgruntled hospital employee opens fire with an automatic weapon in the emergency department, when a passing train derails and spills toxic chemicals, or when a wildfire closes in, it is too late to update an old plan, train staff to respond effectively, check phone numbers, and stock disaster supplies. disaster complacencybelieving a problem won't happen to you or your hospital-is a significant threat to effective planning and response. • protect the staff: only a true obsession with self-protection will ensure that staff members are not injured or become ill during disaster response. adequate stockpiles of gloves, masks, and other equipment must be available, along with training and leadership commitment to self-protection policies. • build in redundancy: expect the primary plan to fail and build in alternatives to every emergency measure. • rely on standard procedures whenever possible: people perform best in unusual situations when they perform activities that closely mirror what they do under normal conditions. • maintain records: patient care records are critical to obtaining reimbursement for disaster care provided. • plan to degrade services: normal levels of services cannot be maintained during disaster response. identify services, such as elective surgery, that can be temporarily curtailed or minimized so that personnel and resources can be reassigned. the federal government has implemented programs to augment local and state capabilities when they are overwhelmed. the united states has a well-established emergency medical safety net: the national disaster medical system (ndms). the ndms has two primary capabilities designed to enhance disaster medical response. the first is specialized disaster response teams who augment the medical emergency response at the site of disaster. the second ndms capability is a plan to share the inpatient bed capacity of the civilian and federal health systems in the event either system is overwhelmed with patients requiring inpatient care. ndms federal coordinating centers (fccs) play a regional role in maintaining a supply of ndms hospital members and providing training and exercises. when the ndms is activated, fccs coordinate patient reception and distribution of patients being evacuated. hospitals enter into a voluntary agreement to participate in the ndms. they must be accredited and generally have more than beds. the agreement commits a hospital to provide a certain number of acute care beds to ndms patients; however, it is recognized that hospitals may or may not be able to provide the agreedupon number of beds. hospitals that receive ndms patients are reimbursed for care by the federal government. the strategic national stockpile the strategic national stockpile (sns) was established in as the national pharmaceutical stockpile. it is now managed by the u.s. department of homeland security and serves as a national repository of antibiotics, chemical antidotes, antitoxins, intravenous therapy, airway management equipment, and medical/surgical items. the stockpile is designed to supplement local agencies that are overwhelmed by a health emergency. the noble training center in anniston,ala., (on the site of the former fort mcclellan army base) is the only hospital facility in the united states that trains healthcare professionals in disaster preparedness and response. the department of homeland security operates the noble training center, which offers a variety of training programs, including one for hospital leadership. more information is available online at: http://training.fema. gov/emiweb/ntc/. even though the federal government has many emergency response assets that can help in the response to an emergency, experience has shown that hospitals must be prepared to be self-sufficient for to hours after an event. a comprehensive hospital emergency management program must address a number of critical elements to adequately protect patients and staff and permit the facility to continue to operate. these are discussed in the following. just as one team leader is necessary for a controlled response to a cardiac arrest, an organized approach is essential to a successful hospital-wide emergency response. the hospital emergency incident command system (heics) is designed to provide that coordination. developed and tested in orange county, calif., in , it provides structure to response. heics uses: • a reproducible, predictable chain of command • a flexible organizational design that can be scaled to the scope of the problem • checklists for each position to simplify response and carefully define each task • a common language that permits communication with outside agencies the eoc will serve as the command post for operations during an emergency response. it should be fully operational and integrated into local and county emergency operations (box - ). hospital disaster drills have often been treated as annoyances and are planned in ways to render them futile. exercises are generally announced (unlike actual events), planned during regular business hours, and rarely include all hospital operations that will be affected by an actual event. hospitals are encouraged to drill individual units-frequently and during nights and weekends-and then build up to full, functional exercises involving management of moulaged "casualties." community participation is critical to identify elements that work or that need fine-tuning. only through exercise will the plan be adequately stressed so that failure points are identified. the facility's structural integrity and essential services are an often overlooked part of preparedness. box - recommended equipment and supplies for a hospital eoc (hvac) system so that it can be shut down and, ideally, so that specific zones can be manipulated to control airflow in the building in case of contamination • maintain a fuel source for full-load demand for to days' duration • develop a plan for the management and disposal of increased volumes of contaminated waste maintaining the physical security of the structure is important on a daily basis but becomes more of a challenge during a disaster. to ensure that the environment remains safe, egress must be controlled. additional elements of the physical security plan should include the following: • a security force with full-time security responsibilities; the force should have undergone criminal background checks and professional law enforcement training. • all entrances and exits should be controlled, monitored, and capable of being locked. • the hospital should be able to perform perimeter security protection ("lockdown") within minutes of notification. • hospital staff should be trained and drilled on the performance of lockdown. • hospital leadership should know what triggers the execution of a lockdown procedure. • a plan should exist for supplementing security staff in a disaster. it is critical that a hospital be able to rapidly assess the impact of a disaster on its operations and communicate the status to leadership in a situation report (often referred to as a "sitrep"), or a rapid needs assessment (ran). the assessment should, at a minimum, include the following: • the extent and magnitude of the disaster and the scope and nature of casualties • the status of operations and any disrupted critical services • the impact of disruptions on operations and the ability to sustain operations hospital staff must be able to receive timely and accurate notifications in a disaster, including when and where to report and for how long and other essential information. contact information for all staff members must be continuously updated and tested. additionally, the facility must be able to receive warnings and notifications from external agencies and be able to send warnings. triage is performed daily in emergency departments, where the most critical are treated first. but during a dis-aster, triage procedures must adapt to become like what is used on the battlefield, where the greatest good is offered to the greatest number. multiple disaster triage systems exist, including start (simple triage and rapid treatment), id-me (immediate, delayed, minimal, expectant), and mass (move, assess, sort, and send). it is important that a hospital use a system that is consistent with what is being used by services delivering patients to the facility. whatever system is selected, there must be predisaster training and exercises. when casualties present to an emergency department in numbers that overwhelm the facility, an alternative area must be available to manage overflow. the alternative triage area should be lit so that it can be used at night, weatherproofed, and temperature-controlled. a plan for working with the media will be needed. it is not recommended that media personnel be permitted access to a hospital during a disaster, but rather be provided regular, factual updates on activities and the status of the facility at a predetermined meeting place. risk communications involve using credible experts to deliver carefully worded messages to communicate most effectively in a high-stress, low-trust environment, such as a disaster. preparing hospital leaders in risk communications principles will ensure that they are able to communicate effectively to the public via the media. there is conflicting evidence about the value of certain types of mental health services in the wake of disaster, but it is clear that every disaster creates emotional trauma victims. primary victims are those who have been directly affected by the disaster. secondary victims are rescue workers in whom symptoms develop, and tertiary victims are relatives, friends, and others who have been affected. the critical incident disrupts a victim's sense of control as daily life is abruptly changed. hospitals must plan for providing mental health services to disaster victims but must also consider the needs-acute and long-term-of the hospital staff who attempt to respond to an overwhelming event. it is recommended that hospitals have trained crisis intervention teams that are well integrated into the emergency management plan. in the event of an intentional act that results in mass casualties, not only must a hospital care for the victims, but it has a critical role in bringing perpetrators to justice. hospital staff members require training in proper management of potential evidence-in both collection and preservation. evidence collection containers, including -gallon drums for patient decontamination run-off, should be available as well as bags to preserve other types of evidence. law enforcement agencies and forensic departments can provide training and guidance. staff members should be familiar with and follow procedures for maintaining chain of custody for evidence that is collected during patient care activities. a disaster will place significant demands on the food service system of a hospital. the adequacy of food supplies for patients and staff should be evaluated. because a hospital may need to be self-sufficient for several days in a disaster, a -to -day supply of food products is advisable. food service personnel should be included in disaster exercises. volunteers may or may not be of assistance, depending on their relationship with the hospital and their background. a volunteer pool that consists of individuals who serve regularly at the facility, are familiar with standard procedures, and participate in exercises can add valuable manpower to a disaster response effort. on the other hand,disasters will draw volunteers who wish to assist,a phenomenon known as "convergent volunteerism," in which unexpected and uninvited healthcare workers arrive and wish to render assistance at a large-scale incident. these "freelancers" may cause problems or may even be impostors. despite "just-in-time" supply schedules and empty warehouses, hospitals should maintain dedicated disaster supplies and arrangements for rapid resupply in the event of a disaster. disaster response will rapidly deplete critical supplies-administrative as well as clinical. conducting realistic exercises will help with the determination of the adequacy of stock and can be done without opening actual supplies so they can be restocked. disaster supplies can be rotated into the daily-use stream to ensure stock does not expire. experience with disasters has demonstrated a number of predictable pitfalls that occur in hospital disaster response. because immediate on-scene control of a disaster is chaotic and communication is often problematic, patients will present to the closest hospital available. this often leaves other nearby facilities with capacity and personnel that go unused. hospital personnel must be experts in protecting themselves, or they will become part of the problem and fur-ther stress the facility. some controversy exists over the level of protection needed in certain environments, but it is clear that masks (n ) and gloves (latex or nonlatex) will prevent transmission of biological agents. communications failure has often been identified as a predictable failure in disaster response. hospitals need to examine both internal communications systems (with staff and patients) and with external agencies. multiple layers of redundancy are essential to deal with expected failures and include the use of -mhz radios, dedicated trunk lines in the emergency operations center, two-way communications for hospital units and essential personnel, communications-on-wheels (cows), and access to amateur radio (ham) operators. the last resort is using runners who carry messages. hospitals must be able to identify and decontaminate patients who have been exposed to radiation or a compound that poses a threat to the patient's health and the safety of the facility. if the hospital depends on an external agency or has decontamination equipment that requires time to set up, an immediate alternative must be in place, such as a hose and hose bib outside of the emergency department. consideration should be given to patient privacy, managing patient valuables and clothes, and handling weapons brought into the hospital. a trained, exercised, and well-equipped team will be the foundation of successful efforts. hospitals will benefit from having a plan to care for children and other dependents of staff. in a disaster, staff will be called on to work extended hours, and usual family care arrangements may be unavailable. the creation of emergency patient admission packs that are maintained with disaster equipment will facilitate the admission of a large number of patients. if an automated patient tracking system is used, a back-up manual system should be available. all systems should be able to manage unidentified (john and jane doe) patients. many hospitals have wholly inadequate or nonexistent plans to manage mass fatalities. morgue space is generally limited in most facilities, so additional surge capacity must be identified in advance. arrangements for refrigerated storage trucks, refrigerator space, and other alternatives, including ice rinks, should be addressed with socially sensitive plans. complex cultural and religious issues may come into play in the event that there are contaminated remains and should be examined in advance. emergency drugs must be available at the point of care. often they are secured in pharmacy departments or warehouses, resulting in precious minutes of life-saving time being lost as personnel try to locate and obtain critical medications. in addition to drugs needed to respond quickly to nerve agents and other emergency situations, stockpiles of antibiotics should be maintained to provide prophylaxis to patients and staff. in a disaster, patients converge on the place they know they can obtain care-the hospital-and they arrive using any means possible. furthermore, with the victims of disaster, come their families, loved ones, and the media-all who have very important needs that must be addressed. hospitals can no longer approach disaster planning with a minimalist attitude that relies heavily on luck and belief that it will be someplace else that gets hit by the disaster. the hospital that received the most patients from the rhode island nightclub fire got lucky-the victims began arriving during a change of shift so there were two shifts of nursing staff available. however, the hospital also attributes its effective response to having drilled critical departments and procedures. emergency planning is the backbone of preparedness, but events will occur in each disaster that demand creative responses under pressure. this ability to respond flexibly is known as planned innovation. good plans will use general "all hazards" templates for disaster management but will permit independent initiative and a tailored response to a specific situation. the u.s. health system appears to be emerging from the dark ages of emergency planning. a minimalist attitude of preparedness was acceptable in the past despite the regular occurrence of natural disasters. the threat of terrorism and the resulting health system impact have stimulated investment in research, a resurgence of disaster training in nursing and medical schools, and visionary projects such as er one. er one is a national prototype for a next-generation emergency department. located in washington, d.c., it is developing new approaches to the medical consequences of terrorist attacks, natural disasters, and emerging illnesses. more information is available online at: http://er .org. the next phase of hospital emergency management will be a renaissance if creative planning prevails over naysayers, if resources are applied to priority preparedness activities, and if healthcare leaders are committed to ensuring that all who depend on hospitals will receive the care they need in a disaster (box - ). the care of strangers-the rise of america's hospital system combined external and internal hospital disaster: impact and response in a houston trauma center intensive care unit implications of hospital evacuation after the northridge, california, earthquake lessons learned from the activation of a disaster plan: / two new york city hospitals' surgical response to the a test of preparedness and spirit emergency department impact of the oklahoma city terrorist bombing tragedy and response-the rhode island nightclub fire the station nightclub fire and disaster preparedness in rhode island mass decontamination: why re-invent the wheel? meeting new challenges and fulfilling the public trust: resources needed for hospital emergency preparedness recurring pitfalls in hospital preparedness and response pan american health organization. principles of disaster mitigation in health facilities health care at the crossroads-strategies for creating and • auf der heide e. principles of hospital disaster planning department of health and human services. (includes recommendations on prehospital and hospital care preparing for the psychological consequences of terrorism-a public health strategy. this publication of the national academies of science includes an examination of current infrastructure and response strategies guide to emergency management planning in health care regional care model for bioterrorist events • the hospital emergency incident command system • the international critical incident stress foundation box - hospital preparedness and response resources sustaining community-wide emergency preparedness systems dvatex: navy medicine's pioneering approach to improving hospital emergency preparedness advanced disaster medical response-manual for providers. boston: harvard medical international trauma and disaster institute critical incident stress making room for outside the box thinking in emergency management and preparedness key: cord- - lclcf x authors: tibary, a.; rodriguez, j.; sandoval, s. title: reproductive emergencies in camelids date: - - journal: theriogenology doi: . /j.theriogenology. . . sha: doc_id: cord_uid: lclcf x emergencies in theriogenology practice go beyond just saving the life of the patient, but also preserving its reproductive abilities. camelid emergency medicine is a relatively new field. this paper discusses the most common reproductive emergencies, their diagnosis, treatment, and prognosis in male and female camelids. the conclusions drawn are based primarily on clinical observations by the authors over the last years. special consideration is given to peculiarities of the species, particularly in the choice of obstetrical manipulations and therapies. in theriogenology practice, emergencies are defined not only in terms of concerns for the welfare of the patient, but also for its future reproductive life. the challenge often faced with reproductive emergencies is how to preserve the life of the patient and maximize the chance to maintain reproductive ability. in camelids, this is even more important, as assisted reproductive technologies have either not yet been perfected (semen preservation, in vitro embryo production, nuclear transfer) or are not allowed (embryo transfer) by some breed registries. in the case of pregnant females, which constitute the majority of reproductive emergencies, the life and welfare of the neonate must also be considered. the objective of the present paper is to review the most common reproductive emergencies in male, female, and neonatal camelids. this review draws primarily on the clinical experience of the authors, as there are very limited controlled studies regarding clinical reproduction and emergency care in camelids. although many disease processes that present as emergencies may have some severe repercussions on the reproductive process in the male, our review will be limited to diseases and accidents with sudden onset that are directly linked to the urogenital system. reproductive emergencies in the male camelid are primarily due to sudden onset of visible abnormalities in the external genitalia. these abnormalities can be summarized as acute scrotal or preputial swelling, preputial prolapse or paraphymosis, and post-surgical emergencies [ ] [ ] [ ] . in camels, preputial swelling is also a primary clinical sign of acute trypanosomiasis, a disease with high morbidity and mortality in many countries where camel breeding is important [ ] . www.theriojournal.com . . general approach to examination of the male for reproductive emergency as with any other emergency, accurate body weight, body condition score, physical examination, degree of dehydration, baseline complete blood count (cbc), blood biochemistry, and urinalysis should be part of the initial evaluation. immediate placement of an intravenous catheter is indicated in severely compromised or recumbent animals. ultrasonography of the urogenital organs should also be conducted. testicular thermoregulation is very important for normal spermatogenesis in camelids. therefore, compromised testicular thermoregulation in these animals should considered serious, as the effect on spermatogenesis can be long lasting or permanent. acute scrotal swelling is generally due to heat stress, trauma, or a local or systemic infectious process. testicular torsion and scrotal hernia are commonly considered as differential diagnoses in other large animal species, but have never been encountered in camelids in our practice [ ] . scrotal and preputial edema and development of severe hydrocele are features of heat stress in the male llama and alpaca [ ] . this syndrome is relatively common in the usa. factors predisposing to heat stress include prolonged high ambient temperature and humidity, inadequate shade, long fleece, dark coat color, and obesity. the risk for heat stress is exacerbated by stresses such as transportation, exercise, fighting, and breeding [ , ] . hyperthermia results from impaired evaporative cooling, particularly under hot and humid conditions [ ] . scrotal edema may be the first clinical sign in the male. the exact pathophysiology of the scrotal and ventral abdominal edema is not well understood. contributing factors may include inability of the pampiniform plexus and testicular artery to cope with the fluid turnover, or vascular thermal injury resulting in impaired wall permeability and extravasation of intravascular proteins, electrolytes, and fluid into the interstitium. many cases may resolve spontaneously, but leave the male infertile for various intervals, usually lasting from months to years [ ] . spermatogenesis (sperm production and semen quality) was severely impaired in llamas housed at an ambient temperature of c for weeks [ ] . these temperatures, relatively common in summer months in many countries outside the native range of south american camelids, can result in infertility due to decreased sperm numbers, decreased motility, and increased abnormalities. the heat index (ambient temperature  humidity) would cause even more severe changes in hot and humid summers [ ] . in advanced cases, other clinical signs appear and include hyperthermia, increased salivation, anorexia, depression, ataxia, muscular weakness, dehydration, ketosis/hepatic lipidosis, and dyspnea/hyperpnea [ , ] . these animals generally display an inflammatory or stress leukogram. anemia may be secondary to hemolysis. serum biochemical abnormalities may include hypophosphatemia, hypocalcaemia, hypomagnesaemia, hyponatremia, hypochloridemia, hypo-or hyperkalemia, hyperglycemia, and elevated serum ast and cpk concentrations. serum glucose concentration > mg/dl has been associated with a poor prognosis. severe electrolyte imbalances and damage to the thermoregulatory center in the hypothalamus will be the end point of the disease progress in nontreated animals, leading to multi-organ damage or failure and increased mortality [ , ] . stabilization of the heat-stressed animal should include urgent cooling of the core body temperature to the normal range (shearing, spraying the ventral abdomen with cold water, fan), and fluid therapy to rehydrate the animal and correct metabolic abnormalities. intravenous isotonic sodium bicarbonate solution may be required to treat metabolic acidosis. maintenance fluid rates are - and - ml/kg/day in adults and crias, respectively. pulmonary edema is a serious risk if fluids are administered too fast (> ml/ kg/h). palliative therapies against other complications should include nasal oxygen insufflation in hypoxemic patients, nonsteroidal anti-inflammatory drugs (nsaids; e.g. flunixin meglumine), antioxidants (vitamin e and selenium), and broad-spectrum antibiotics. steroids such as dexamethasone may be indicated in advanced cases, but should not be used in females in the second half of pregnancy. therapeutic diuresis with furosemide is indicated in animals with respiratory distress due to pulmonary edema. heat stress is best prevented by timely shearing, adequate hydration (clean, cool water) and providing shade and cooling mechanisms such as sprinklers, a pond, or wading pool. prevention of obesity and reduction of stresses of long transportation, handling and breeding during the hottest part of the day also reduce the risk for heat stress. the primary indicator of heat stress risk is not only the ambient temperature, but also the humidity. the heat stress index (hsi), expressed as the ambient temperature ( f) + humidity (%), is considered too high when it reaches or surpasses (e.g. combination of f and % humidity). traumatic injuries to the scrotal area are relatively common in the male camelid and are usually inflicted by other males; they occur when new, mature males are added to a paddock, particularly when competing for breeding. severe traumatic fighting injuries are more common in camels during the rutting season [ , ] . scrotal traumatic injuries are relatively rare in wild camelids, probably because of their strict social organization. traumatic injuries are often due to bites and can range from a superficial scrotal laceration to severe testicular rupture and hemorrhage. testicular hemorrhage may occur without external lacerations, but requires ultrasonographic evaluation of scrotal contents [ ] . treatment protocols should focus on reducing local swelling, preventing infectious complications, and providing a tetanus toxoid booster. unilateral castration is the treatment method of choice for severe unilateral testicular trauma involving the tunica vaginalis and testis [ ] . testicular and epididymal inflammation may present as an emergency in the male camelid. the most common complaint is a sudden onset of lameness or reluctance to breed and visible swelling of the scrotum. various infectious agents have been reported in cases of orchitis that are spread by hematogenous routes, such as brucella abortus, brucella meletensis and streptococcus equi zooepidemicus, or the agent may ascend from scrotal wounds [ , ] . treatment with systemic antimicrobials is often unrewarding. therefore, for unilateral orchitis, unilateral orchidectomy is the best option for the welfare of the male and salvage of reproductive ability [ , ] . . . acute penile/preputial swelling acute penile or preputial swelling may be due to complications from urolithiasis or traumatic injuries. the etiology of urinary calculi in the camelid is not well understood, but is suggested to be similar to that in other domestic ruminants [ ] [ ] [ ] [ ] [ ] [ ] [ ] . early clinical signs of urethral obstruction often go undetected. some males may show increased straining to defecate, odontoprisis, inappetence and ileus, followed by anorexia, frequent unsuccessful attempts at micturition or dribbling blood tinged urine, and signs of abdominal discomfort [ ] [ ] [ ] [ ] . complications of urethral obstruction include urethral or urinary bladder rupture. this may happen within days of the first clinical signs. in emergency cases, the animal presents with anorexia, inability to pass urine, and signs of depression. physical examination often reveals tachycardia, tachypnea, and elevated rectal temperature. complete blood count may reveal an elevated white cell count and neutrophilia with a left shift, increases in fibrinogen, increased creatinine kinase and aspartate aminotransferase activity, hyperglycemia, hypercreatininemia and increased urea nitrogen. serum electrolyte abnormalities included hyponatraemia, hypochloraemia, and hyperkalaemia. fluid obtained by abdominocentesis or from the preputial swelling has increased creatinine concentration [ ] [ ] [ ] [ ] [ ] . increased serum urea nitrogen and creatinine concentrations suggest uroperitoneum [ ] . transcutaneous ultrasonography of the ventral abdomen may enable visualization of subcutaneous free fluid and tissue edema in the case of urethral rupture and a large volume of free fluid in the abdominal cavity in the case of urinary bladder rupture. with the latter, it may not be possible to visualize the urinary bladder. transrectal ultrasonography may reveal dilation of the pelvic urethra if the bladder is intact. the prognosis is grave if there is hydroureter and hydronephrosis [ ] . uroliths are often located in the distal penile urethra, approximately - cm from the penile orifice, but are occasionally immediately proximal to the sigmoid flexure. camelids, like domestic ruminants, have a urethral recess at the ischial arch, making catheterization of the urinary bladder exceedingly difficult. management techniques for obstructive urolithiais is similar to those reported in ruminants and include repair of the ruptured urinary bladder and relief of the obstruction via retrograde flushing and urethrotomy. however, these techniques do not salvage the reproductive career of the animal. flushing, followed by tube cystotomy, may be the only option to try to salvage the reproductive life of the animal [ ] . postsurgical management should include multiple therapies, including antimicrobial (procaine penicillin, , iu/kg im, twice daily; and gentamicin sulphate, . mg/kg iv, once daily), anti-inflammatory (flunixin meglumine, mg/kg iv, twice daily) and intravenous fluids. prognosis for life is fair, but prognosis for return to breeding is usually guarded [ ] . preputial lacerations are relatively common in breeding males. they are usually a consequence of masturbation (breeding the ground or objects) or complications from foreign objects within the prepuce. hair-ring lacerations of the penis are common in llamas and suri alpacas. males may present because the owner has observed an abnormal protrusion of the prepuce, or discomfort during urination or mating. however, bloody or purulent discharge may be the only clinical sign. preputial and penile lacerations can quickly become complicated and jeopardize the reproductive life of the male due to development of severe inflammation and adhesions. injured males may continue to attempt breeding, further exacerbating the lesions [ ] . evaluation of penile and preputial injuries is best performed under heavy sedation or general anesthesia. the penis should be completely exteriorized and inspected for lesions. early management of preputial and penile injuries should center on providing adequate protection of the traumatized tissue and prevention of infection and complication with urine scalding. the initial treatment is to replace viable prolapsed preputial mucosa and maintain it in place with a purse string suture. daily cleaning of the sheath with saline, and application of local anti-inflammatory and antimicrobial ointment (petercillin) for - days will reduce the chance of further complications. sutures may be removed after - days. excessive preputial prolapse with slight necrosis requires circumferential resection and anastomosis of the prepuce. prognosis for return to normal breeding activity is poor if adhesions or abscesses develop at the base of the prepuce [ , ] . the most common post-surgical complication in the male camelid is post-castration hemorrhage, often secondary to inadequate time to insure hemostasis of the testicular cord. management of these conditions is not different from other species and includes placing the male in a calm environment and packing the bursa for - h. several commercial hemostatic agents are available and may be helpful [ ] . exteriorization of the soft palate (dulla) is a characteristic rutting behavior in the dromedary camel [ ] . furthermore, permanent exteriorization of the soft palate during the rut season is a common in the dromedary. this usually starts with an impaction of the diverticulum with food or a foreign body [ , ] . part of the impacted soft palate becomes trapped under the molars and is traumatized during mastication. traumatic lesions of the soft palate range in severity from superficial cuts and bruises to severe lacerations accompanied by hemorrhage; these lesions are rapidly complicated by infection and development of severe inflammation and edema. formation of large abscesses is not uncommon. in most cases, the inflamed organ is permanently hanging from the side of the mouth and becomes progressively necrotic [ ] [ ] [ ] . in a few cases, the soft palate is swollen, but not exteriorized, and blocks air exchange, which may lead to asphyxiation. if the condition is not treated, the animals become emaciated due to dysphagia and impairment of mastication and deglutition. management of these cases requires surgical ablation of the soft palate [ ] . surgical excision of the soft palate can be performed under heavy sedation and a local block. large vessels are ligated with resorbable suture material. laser ablation is the best approach. postsurgical management includes administration of nsaids, antimicrobials, and tetanus prophylaxis. animals should be on soft feed for at least - days after surgery. urethral rupture and subcutaneous infiltration of urine is relatively common in draught camels and is due to a tight strap. advanced stages are managed surgically by complete urethrostomy. animals present with varying degrees of ventral swelling and prolapse of mucocutaneous junction of the penis and prepuce. tissue necrosis is common, and may include the penis due to pressure ischemia. surgical debridement [ ] , phalectomy, or both, may be required [ ] . reproductive emergencies in female camelidae can be divided into emergencies occurring in the nonpregnant female, severe pregnancy complications, obstetrical emergencies, and postpartum emergencies. emergencies requiring intervention during parturition and the immediate postpartum phase must concurrently take into account emergencies pertaining to the neonate. the most common reproductive emergencies in nonpregnant females are traumatic injuries during breeding or iatrogenic injuries during reproductive examinations. although rare, breeding trauma may occur during an unsupervised paddock mating. in camels, traumatic injuries are not always restricted to the reproductive tract, and include bite wounds and fractures of the pelvis and/or dislocations. these traumatic injuries are seen in multiple-sire breeding systems. in south american camelids, breeding trauma may occur by heavy llama males trying to breed alpacas. discussion of these types of traumatic injuries are beyond the scope of this paper, but should be considered in downer syndrome in females with a history of recent (< h) mating. iatrogenic traumatic injuries are by far the most common emergency in camelid practice; they include perforation of the rectum, colon, vagina, or uterus. anal sphincter bleeding due to excessive stretching and rectal prolapse can occur secondary to transrectal palpation, particularly when there is already a predisposing factor for excessive straining (e.g. pelvic mass, urinary bladder disease). however, these are not life threatening and can be managed successfully with sedation, a caudal epidural, and protection of the prolapsed tissue. rectal and colonic injuries have been reported in llamas and alpacas, and are a common reason for malpractice suits. rectal or colonic injuries may happen during breeding, but they more commonly are due to excessive manipulation during transrectal palpation or ultrasonography [ , ] . the examiner will usually recognize that an injury has occurred when palpating llamas and camels. however, in alpacas, when the ultrasound transducer is mounted on an extension for reproductive examination, the practitioner may not detect evidence of perforation until it is too late. the amount of blood retrieved with the palpating hand is variable; it is the sensation of rupture or tear that is most indicative of the seriousness of the injury. since the distance between the anus and the peritoneal reflection is very short ( - cm in alpacas, cm in llamas, and - cm in camel), complete rectal tears in camelids are rapidly complicated by peritonitis. often the only clinical sign is reluctance to stand, lethargy and progressive dehydration a few hours after a reproductive examination. severe toxic shock and death follows within - h if no medical action is taken. all suspected rectal or colonic injuries should be immediately referred to a surgical facility. the animal should be sedated and started on intravenous antimicrobial and anti-inflammatory therapy for transport. further evaluation at the referral facility includes cbc, blood chemistry, transabdominal ultrasonography, and abdominocentesis. animals with evidence of peritonitis should be immediately prepared for surgical correction by celiotomy or celiotomy and pubic symphysiotomy to allow peritoneal lavage. stable patients without alarming changes in their blood and peritoneal fluid characteristics may be further evaluated under epidural anesthesia to decide if a transanal repair is possible. evaluation of the injury can be performed under general anesthesia. the anal sphincter is dilated using stay sutures on the mucocutaneous junction. gentle evacuation of the rectal cavity may be attempted by low-power vacuum aspiration until the lesions can be visualized. use of a flexible videoendoscope can facilitate this evaluation. in llamas and camels, lacerations due to transrectal palpation are usually located in the ventral aspect of the rectum, - cm anterior to the anus. however, in alpacas, particularly when the perforation has occurred with a transducer mounted on an extension, the lesion can be dorsal. also, in these cases, the presence of more than one perforation is possible, perhaps due to faulty alignment between the extremity of the transducer and the extension rod. transanal repair is successful if the laceration is not deep [ ] . celiotomy with pubic symphysiotomy is the only option for caudal injuries and in particular for alpacas. successful repair of rectal and colonic injuries by celiotomy or celiotomy/pubic symphysiotomy has been reported in a few llamas [ ] . preventive measures for colonic rectal injuries include use of caution when choosing the candidate for transrectal palpation, ample lubrication, and cautious use of an extension rod, particularly in maiden or agitated females. sedation of the female or relaxation of the rectum and rectal sphincter may be obtained by epidural anesthesia or instillation of % lidocaine into the rectal cavity before examination. most cases of uterine perforations seen in our practice are iatrogenic, due to aggressive placement of foley catheters, infusion pipettes, and biopsy forceps. these are more common in alpacas than in llamas and camels. they become an emergency if a major blood vessel is damaged, or if an irritating substance (e.g. iodine) is infused into the abdominal cavity. females with these injuries may present with colicky signs consistent with peritonitis or hemoperitoneum. anemia is a feature if there is sufficient blood loss; for example, one animal had a pcv of % following an endometrial biopsy. suspicion is based on a history of recent gynecological examination and the feel of a ''pop'' during manipulation. the patient should be worked up as for any case of colic of abdominal origin [ ] . supportive therapy includes nsaid's and antimicrobials. blood transfusion and surgical intervention may be indicated if the pcv is < %. vaginal perforation with severe bleeding may be controlled by vaginal compression packs. any clinical syndrome occurring during pregnancy may have a serious effect on the fetus. therefore, monitoring fetal well-being should be part of any protocol for medical management of the pregnant female and particularly in the case of emergencies. camelids rely exclusively on the cl for progesterone secretion and maintenance of pregnancy. therefore, severe illness associated with an inflammatory or extreme stress response may rapidly lead to luteolysis and abortion (with all its complications). pregnant females may present with a variety of emergency clinical syndromes, ranging from severe colic, downer (lateral or sternal continuous recumbency), anorexia, diarrhea, depression, neurologic conditions, excessive straining, vaginal discharge, premature lactation, vulvar dilation, or vaginal prolapse. some of these presentations may have a genital origin. the cardinal rules in handling emergencies in the pregnant females are a thorough physical evaluation of the dam, evaluation of the fetus, and ruling in or out the genital origin of the presenting complaint after stabilization of the dam. the main emergencies of genital origin in the pregnant female are uterine torsion, vaginal prolapse, impending abortion, and uterine rupture. the main complication of any emergency in late pregnant females is hepatic lipidosis. pregnancy can also exacerbate clinical diseases. for example, in a recent outbreak of respiratory diseases in alpacas and llamas in north america, morbidity and mortality was highest in females in their last trimester of pregnancy. an important principle in our practice is that any suspicion by an owner that ''something is wrong'' with a pregnant female is taken seriously. behavioral assessment may be conducted while taking history, unless the female is obviously depressed or painful. a detailed history should be obtained and include breeding dates, time and methods used for pregnancy diagnosis, history of previous illness of reproductive disorders, onset and duration of the clinical problem, and recent treatments. if the female is obviously in severe distress, blood samples should be taken immediately and the female stabilized before further examination. oxygen therapy may be indicated for severely compromised females. a jugular catheter should be placed immediately to allow fluid therapy and emergency anesthesia if needed. sedation may be needed for some females in order to complete evaluation. choices of drugs and dosage for sedation should take into account their effect on the fetus. butorphanol tartrate ( . - . mg/kg) provides good sedation and has minimal effect on the cardiovascular system. however, there is a mild decrease in systemic vascular resistance that can be relevant if uterine blood flow is already compromised [ ] . transabdominal ultrasonography should be used to determine fetal well-being, and the integrity of the uterus and placenta. in addition to the reproductive organs, abdominal viscera and the peritoneal cavity should be assessed [ ] . in advanced pregnancy, imaging of abdominal viscera becomes very difficult in the absence of severe displacement. for complete imaging of abdominal contents, the lower abdomen should be clipped and cleaned with alcohol from the xyphoid region to the base of the mammary gland. the area to be examined may need to be extended dorsally to the flank in order to visualize the dorsal aspect of the abdomen and the kidneys. cranially, the projection area of the liver may also need to be prepared for examination. for transabdominal ultrasonography, a mhz linear-array transducer may be sufficient for mid-pregnancy and in small patients, whereas in the last trimester, the use of a . - . mhz sector transducer provides better penetration and imaging of the abdomen. transabdomimal ultrasonography may also be used to locate distinct pockets of free peritoneal fluid and to perform abdominocentesis. other imaging techniques such as radiography, mri or ct scanning may be indicated in the case of downer females, but they are not routine procedures and are only a possibility in referral centers. following transabdominal ultrasonography, transrectal palpation and ultrasonography should be performed, albeit, cautiously, as this may cause additional stress. administration of an epidural and infusion of a mixture of lidocaine and lubricant in the rectal cavity may reduce straining, provide some relaxation, and facilitate the examination in llamas and alpacas. the primary objective of transrectal palpation is to determine the location and direction of the broad ligaments and evaluate the caudal abdomen for any masses or abnormalities of the pelvic area, kidneys, and urinary bladder. transrectal palpation in the female sitting in a sternal position may offer some challenges for the inexperienced practitioner. the quantity and quality of fecal material in the rectal cavity should be evaluated. severely stressed camelids often have profuse diarrhea, whereas an absence of fecal material and/or the presence of scant mucoid feces may be due to intestinal transit disorders or tenesmus. vaginal examination should be performed with a speculum after thoroughly cleaning the perineal area. the speculum should be advanced slowly, while concurrently examining the vagina for any abnormalities. the cervix is evaluated for the degree of relaxation and opening. the cervix of the llama and alpaca is often difficult to visualize during late pregnancy, but it should be obvious if it is patent. manual examination of the vagina and cervix may be indicated in some cases, but this procedure is often limited by the size of the examiner's hands. assessment of fetal well-being is an important component in the evaluation of medical crises. unfortunately, there is a paucity of information regarding fetal biophysical characteristics in camelids. however, based on clinical experience in the authors' laboratory, the two main indicators for fetal distress are fetal heart rate and rhythm. normal fetal heart rate in mid-to late-pregnancy range from . to . times that of the dam. in that regard, fetal heart rate is usually - bpm in the last trimester of pregnancy, but decreases to bpm a few days before parturition. fetal heart rates that are consistently > or < bpm suggest fetal distress. the fetal heart rhythm should be regular and respond to phase of activity by a - % increase in rate. fetal activity is maximal in the first half of pregnancy, but substantially reduced in the last months. the entire fetus should be examined to determine fetal position and number. normal fetal positioning for parturition appears to occur a few hours before parturition. it is not uncommon to image the fetus low in the abdomen with the dorsum against the diaphragm and all limbs pointing to the pelvic area. transverse position of the fetus in the abdomen does not mean a transverse position inside the horn, but rather reflects the position of the entire pregnant horn. that the fetus is entirely in the left horn and the special arrangement of the pregnant horn vis-à-vis the abdominal viscera may contribute to signs of discomfort in some females in late pregnancy. late in pregnancy, the presence of twins is best confirmed by abdominal radiography [ ] . fetal biometrics may provide data regarding fetal growth and stage of pregnancy, but in our experience, most measurements are not very accurate and cannot be used for physical bioprofiling [ , ] . fetal fluids are difficult to assess, due to the low volume of amniotic and allantoic fluid in camelids. uteroplacental thickness should be evaluated in the horn containing the fetus (left horn) only, as the placenta may appear thicker in the nonpregnant horn. the combined uteroplacental thickness should be < mm in the last trimester. excessive edema of the uterine horn or premature placental detachment are relatively easy to detect and require immediate intervention if the female is at term. a minimum baseline evaluation of a severely depressed or colicky pregnant female should include complete blood count (cbc), blood chemistry, and fibrinogen. evaluation of peritoneal fluid (abdominocentesis), fecal evaluation, and urinalysis should be considered in select cases. although a stress leukogram is often present in many females, neutrophil count, immature neutrophil count, neutrophil morphology, packed cell volume, and fibrinogen concentration are very valuable in evaluating inflammatory and toxic states. anemia may be due to blood loss, or the onset of other problems such as mycoplasma hemolamae. blood chemistry will determine electrolyte imbalances and risk for hepatic lipidosis, a major concern in anorectic, stressed pregnant females. hypoprotenemia is often present in old pregnant females and may predispose to metabolic complications. in some cases, the serum may be grossly hyperlipemic (white). however, lipemia and ketonemia are not always present in hepatic lipidosis. elevated concentrations of nonesterified fatty acid (nefa; > mmol/l) and b-hydroxybutyrate (bhb) are important indicators of stress and liver compromise. liver compromise is also indicated by elevated bile acids, gamma-glutamyl transferase, aspartate transaminase, and sorbitol dehydrogenase [ , ] . furthermore, arginal calcium and magnesium concentrations or hypocalcemia may be present in late-pregnant females and require correction and monitoring. progesterone is the major hormone evaluated routinely during pregnancy [ , ] . determining baseline progesterone concentration is a good practice if an assay is readily available. the cl is the primary source of progesterone throughout pregnancy in camelids; pregnancy cannot be maintained if blood progesterone concentrations are < ng/ml [ ] . progesterone concentrations may be substantially altered by level of hydration and weight and body condition score of the female. progesterone supplementation is still a subject of debate. estrone sulfate concentrations in plasma increase after days of pregnancy, reaching a peak immediately before parturition. determination of relaxin concentration may be helpful in the evaluation of placental function, but this assay is not widely used [ ] . there are no studies on the effect of a compromised liver (typically due to hepatic lipidosis) on steroid metabolism and blood steroid concentrations. supportive therapy in pregnant females depends on the symptoms and degree of compromise. it may include oxygen therapy, fluid therapy, antimicrobials, and nsaid's. compromised pregnant females should be placed immediately on broad spectrum systemic antimicrobials. our primary choices of antimicrobials have been ceftiofur in alpacas and llamas and longacting tetracycline in camels. uterine torsion remains the main genital cause of colic or depression in pregnant new world camelids. there are no detailed studies regarding the epidemiology of this disorder. it is noteworthy that uterine torsion is not common in camels (a. tibary, unpublished observations), nor is it common in llamas and alpacas in south america (j. sumar, personal communication). perhaps this apparent difference is due to nutrition or body size. in our experience, there are two common stages of pregnancy at presentation: - months and at parturition. clinical signs of uterine torsion are quite variable, ranging from mild discomfort to severe colic, diarrhea, and anorexia. we have had cases present simply as ''quieter than usual'' and ''decreased appetite'' or ''just a little off her normal routine'' [ ] . the female may display signs of pain, circling, kicking at the belly, lateral recumbency, and excessive vocalization. tachypnea and tachycardia are very common. the cbc and blood chemistry are consistent with a stress leukogram, with various metabolic changes (hepatic lipidosis) depending on the duration and severity of the problem [ ] . diagnosis is based on transrectal palpation of the broad ligaments, as described in other large animal species [ , ] . clockwise torsion is indicated if the left broad ligament is stretched across midline to the right and over the uterus, whereas the right ligament is shorter and pulled ventrally and medially under the uterus. palpation of the broad ligament may elicit a severe painful reaction. difficulties encountered in transrectal evaluation for uterine torsion include physical limitations, particularly in alpacas (tight anal sphincter, narrow pelvis and size of the examiner's hand and arm), as well as a lack of experience palpating late-pregnant camelids in a sternal position. although diagnosis by vaginal palpation has been reported by practitioners, in our experience, it is not reliable unless the torsion includes the cervix. with a severe colic, a definitive diagnosis may not be possible until exploratory laparotomy. alternatively, the female could be palpated under general anesthesia, which provides greater relaxation of the anal sphincter and perineal area [ ] . transrectal ultrasonography may sometimes reveal increased dilation of the blood vessels. although it was reported that the majority (> %) of camelid uterine torsions are clockwise [ ] , this has not been our experience; therefore, direction of the torsion needs to be ascertained before attempting nonsurgical correction. correction of uterine torsion can be accomplished nonsurgically by rolling or surgically after coeliotomy. both techniques are very efficient. rolling should be considered only if the uterus and its vasculature are not compromised. rolling may be performed done under general anesthesia, sedation, or without sedation. the female is placed on lateral recumbency on the side of the direction of the torsion and rolled while the fetus is maintained in position with a small plank or with the fists [ , ] . the pain usually disappears immediately after correction of the torsion and females may return to normal activity immediately. however, if they have been anorexic, correction of metabolic disorders should included in post-surgical management. surgical correction may be performed following flank or midline laparotomy. midline laparotomy is the preferred method in late pregnancy [ ] [ ] [ ] [ ] . the success rate of both rolling and surgical correction is very high, as is survival of the fetus. no special management is needed if the torsion has been diagnosed and corrected early. however, anorexia and pain may cause hepatic lipidosis, in which case the patient should be placed on broad spectrum antimicrobial therapy [ ] . monitoring blood progesterone is useful, particularly if an assay is readily available. the need for progesterone supplementation after correction of a torsion remains controversial. complications of uterine torsion include abortion, uterine rupture/hemorrhage, endotoxemia, and death of the dam [ , ] . splenic torsion concurrent with uterine torsion has been described in one case, with persistent pain following correction of the uterine torsion [ ] . uterine rupture is often secondary to severe or inadequate clinical management of a uterine torsion. females usually present in an advanced stage of shock, in lateral recumbency. abdominocentesis may reveal large amount of serosanguinous or bloody fluid. severe pain with presence of serosanguinous peritoneal fluid may also be due to splenic torsion [ ] . the only option is surgical intervention to remove the fetus and salvage the uterus. complete hysterectomy should be considered if the uterus is severely compromised. vaginal prolapse has been described during the first half of pregnancy, but the condition is more common during the last months of pregnancy [ , [ ] [ ] [ ] . it is likely due to softening of tissues due to increased estrogen concentration during the last part of pregnancy. predisposing factors include age (older females), parity, and body condition (obese and very thin females) [ , ] . the prolapse tissue may be limited to - cm, and visible only in the recumbent female. however, with increased inflammation and edema of the tissues, the degree of prolapse increases and becomes permanently exteriorized. prolapse of the entire vagina and exteriorisation of the cervix is rare, but possible. prolonged periods of prolapse increase inflammation and can cause severe necrosis of the vaginal mucosa, potentially resulting in ascending infectious placentitis. increased tenesmus with risk of abortion and/or rectal prolapse occurs in chronic cases. furthermore, rectal and vaginal prolapse may be the only indications of dystocia or abortion [ ] . the prognosis for the life of the fetus and dam is relatively good if the condition is treated early. in camels, the vaginal tissue is maintained in place with a bühner suture around the vulva. in the alpaca and llama, a shoelace suture pattern is sufficient. more advanced cases of prolapsed vagina with increased tenesmus may require epidural anesthesia [ ] . the animal should be monitored regularly and the suture removed if signs of impending parturition are observed [ ] . other complications of pregnancy in camelids include ventral abdomen herniation, prepartum downer syndrome, metabolic diseases, and premature lactation/ placentitis. hydrops of fetal fluid is extremely rare in camelids. ventral herniation during pregnancy is often a complication of previous abdominal surgeries, including cesarean section. in addition to determining the primary cause of these disorders and assessing the chances for survival of the female, determination of fetal well-being and the possibility of induction of abortion or parturition should be contemplated. abortion can be induced with the prostaglandin f a analogue, cloprostenol ( mg in llamas and alpacas, and mg in camels). the same dose is sufficient for induction of parturition, with good neonatal survival at > days of pregnancy and sufficient mammary gland development and colostrum production. abortion or parturition occurs approximately - h after prostaglandin treatment. in a few situations, a second treatment with a prostaglandin f a analogue is necessary [ ] [ ] [ ] . giving llamas or alpacas > mg of pgf a (dinoprost thrometamine) has been associated with severe respiratory distress. most neonatal deaths occur during birth or shortly thereafter. adequate obstetrical management and monitoring for early signs of distress are closely linked with the chances of survival of the cria and the reproductive future of the dam. proper procedures, immediate neonatal care, and close of observation of the newborn, are the best means of reducing neonatal losses. normal parturition and proper obstetrical techniques have been reviewed in detail elsewhere and are not very different from the approach used in other large animal species (especially horses) [ ] . it is estimated that approximately % of all camelid births will require some assistance and $ % will require advanced obstetrical expertise. obstetrical problems are an emergency in camelids, due to the relatively explosive and short duration of stages of parturition (similar to the mare). all normal births are in an anterior longitudinal presentation. dystocia of maternal origin include uterine inertia, uterine rupture, and failure of appropriate dilation of the cervix or vestibulum [ , , ] . uterine torsion and failure of cervical dilation require delivery by cesarean section. however, it is important to confirm that the dam is at term and to first rule-out uterine torsion [ , ] . dystocia of fetal origin occur most commonly as a result of malpositioning or malposture, and to a lesser degree, presence of malformations, twins, and large fetuses. the most common fetal causes of dystocia are carpal or shoulder flexure or head deviations (lateral and ventral). breech and transverse presentations are possible and are common reasons for cesarean section [ , ] . fetal abnormalities causing dystocia include schistosoma reflexus, contracted tendons, and ankylosis of the hind limbs or neck [ ] . other anomalies that may complicate delivery include fetal anasarca and an emphysematous fetus resulting from fetal death and gas production during decomposition [ ] . although twining is rare in camelids, a few twin births have been reported. delivery of twins may be complicated by both fetuses in the birth canal at the same time. in our experience, all dystocias due to twins required a cesarean section to preserve the integrity of the female reproductive tract [ ] . regarding obstetrical procedures, there are three major differences between camelids and ruminants: ( ) the pelvic inlet is narrower; ( ) the cervix and vaginal are more prone to laceration and severe inflammation (often leading to adhesions); ( ) risks for neonatal hypoxia and death are increased by the forceful uterine and abdominal contractions and the rapid detachment of the microcotyledonary placenta. consequently, ( ) early recognition of dystocia is paramount, ( ) obstetrical decisions and manipulations should be rapid, and ( ) supportive care should be provided to the dam and fetus (if alive) before and during manipulation. dystocia is recognized by prolongation of the first or second stage of labor. assessment of the health of the female and viability of the fetus is the first step in managing obstetrical cases. providing analgesia (epidural and administration of butorphanol) may facilitate examination of the parturient alpaca. prolongation of the first stage of parturition is primarily due to failure of cervical relaxation and uterine torsion [ ] . examination of the parturient female is continued by vaginal palpation to judge cervical dilation, determine the presentation, posture and position of the fetus and its viability, and to formulate a course of action based on the findings. abdominal radiography may be helpful in determining position, posture and number of fetuses in alpacas [ , ] . fetal manipulations are similar to other species, but need to be restricted to a maximum of - min. a different approach should be attempted if fetal position, presentation, and posture suggest that manipulation is not possible, or if manipulations are not fruitful after min. we consider that fetotomy is not an option in alpacas and most llamas and camels. surgical relief of dystocia (cesarean section) remains the best approach if controlled vaginal delivery cannot be achieved in < min. techniques for cesarean delivery in camelids are well described [ , ] . we recommend a flank approach in camels and any severely compromised dam. this technique does not require deep general anesthesia and can be performed under sedation and a regional block, which is a good choice under field conditions. a midline celiotomy approach is ideal if the uterus is compromised or needs to be completely exteriorized [ , ] . regardless of the type of obstetrical intervention, adequate oxygen delivery to the uterus is essential for a healthy neonate. reducing uterine blood flow or oxygen-carrying capacity of the blood is liable to harm the fetus and may increase fetal or neonatal mortality. in most species, uterine blood flow is reduced when the dam is exposed to pain or stressful conditions. sedatives, analgesics, and anesthetics may all supress cardiac output and therefore decrease blood flow to the fetus. in addition, certain drugs or drug combinations may further decrease uteroplacental perfusion, due to their tonic effect on the myometrium. unfortunately, there are no studies on the effects of anesthetics on the uterus and fetus in camelid. xylazine, a drug of choice for sedation of camelids in the field, markedly reduced blood flow (by as much as %) and availability of oxygen to the uterus. furthermore, min after xylazine treatment, uterine artery resistance increased by %. xylazine has also been associated with increased myometrial contraction in ruminants and could cause increase fetal morbidity and mortality, at least in these species [ , ] . this effect was not significant in mares. there are no studies on the effect of xylazine on uterine perfusion in camelids. in sheep, the fetus responds to hypoxia, hypotension and hypovolumia with increased concentrations of acth, vasopressin and cortisol, via activation of the hypothalamic-pituitary axis, mediated by changes in afferent neural activity of arterial baroreceptors and chemoreceptors; it has been suggested that the fetal response is primarily mediated through chemoreceptors [ ] . ketamine, a dissociative anesthetic and known noncompetitive inhibitor of glutamatergic n-methyl-daspartate (nmda) receptors, blocks the fetal reflex bradycardic response to maternal ventilatory hypoxia and may not be a good choice for anesthesia. this corroborates our observations in camelids where use of ketamine as a preanesthesic has been associated with severely depressed neonates. propofol ( , -di-isopylphenol compound) is a small molecule that is rapidly metabolized; its advantages are rapid onset and offset of action and redistribution from the central nervous system. even with continuous propofol anesthesia, maternal and fetal heart rate and blood pressure were not affected in pregnant ewes [ ] . this makes the drug ideal for induction of anesthesia for cesarean section or for surgical management of uterine torsion. propofol decreased myometrial activity in the gravid ovine uterus in vivo [ ] and in uterine muscle from gravid humans in vitro [ ] . in vivo, there is no effect on placental perfusion. it can induce a transient tachycardia and decrease in po and ph in the dam, but these effects have minimal repercussions on fetal heart rate and blood pressure. because propofol is primarily metabolized by the liver, it should be used with caution in females with hepatic lipidosis. maintenance of general anesthesia with isoflurane or sevoflurane are ideal, because these inhalation anesthetics are rapidly eliminated [ ] . the combination propofol/isoflurane has been used successfully by our group in emergency cesarean section in camelids; a similar combination was also very good for cesarean section in the bitch [ , ] . it is noteworthy that the effects of these anesthetics may be exacerbated by pre-existing conditions in the fetus (e.g. hypoxia) [ , , ] . postpartum emergencies are often due to complications of obstetrical situations. however, females may present for emergency critical care with a history of what appears to have been an uncomplicated parturition. in addition to the primary genital problems that may alarm the owner (i.e. traumatic injuries, bleeding, uterine prolapse, and retained placenta) some of these cases present with ataxia, prolonged recumbency, and varying degrees of anorexia or depression as primary complaint. evaluation of the postpartum female should include a complete history and a detailed account of the obstetrical situation, including delivery of the placenta. the female should be assessed by complete physical examination, cbc, blood chemistry, transabdominal and transrectal ultrasonography, and vaginal examination. excessive fluid in the abdomen would warrant abdominocentesis. due to their small perineal body and powerful expulsive efforts, rectal-vaginal tear is common following overt obstetrical manipulations in camelids. a common cause of these tears is rapid vaginal delivery of the fetus without sufficient preparation of the vulva and vestibular area. episiotomy should be considered in females with insufficient dilation of the vulva, particularly maidens. cases seen in our practice are often a complication of fetotomy. rectal-vaginal tears may be repaired immediately, or a few weeks later, after second-intention healing [ ] . postpartum uterine tears are not as dramatic as in the mare, unless there is involvement of a large vessel or severe contamination of the uterus and peritonitis. uterine bruising is often seen following excessive obstetrical manipulation (particularly fetotomy). uterine involution is very rapid in the camelid and small, dorsal uterine tears may heal spontaneously; the only sequela may be infertility due to peri-uterine adhesions. complications from uterine tears are often due to severe contamination, either during obstetrical manipulation or following partial or total retention of the placenta [ ] . these females may initially appear comfortable, then slowly develop a fulminating peritonitis. clinical signs of toxemia may appear within the first h, but it may take as long as - days for the clinical picture to become recognizable. it is important that these cases be stabilized, with antimicrobial and anti-inflammatory therapy initiated at the first sign of compromise. uterine lavage should be considered only after verification of the integrity of the uterine wall and should be monitored by transabdominal ultrasonography to visualize remnants of the placenta. a case of complete passage of the placenta into the abdominal cavity was described in a llama with progressive deterioration of health, which eventually succumbed to peritonitis days after dystocia [ ] . it is not clear how uterine tears occur in camelids; although most are associated with obstetrical manipulation, we have seen cases following spontaneous and apparently uneventful parturition. therefore, every female should be monitored to ensure delivery of the placenta, followed by inspection of the placenta to ensure that it is complete. the camelid placenta is epitheliochorial, mircocotytledonary and is rarely retained more than h, even after dystocia. if a uterine tear is detected in the early postpartum period by direct vaginal palpation, an attempt could be made to induce uterine prolapse after treatment with epinephrine and epidural anesthesia. alternately, the uterine tear can be repaired after celiotomy. if the placenta is still present, it should be pealed from the endometrium around the tear before suturing. in cases of unexplained fever, abdominal pain or anorexia in the postpartum female, exploratory celiotomy or laparoscopy should be considered. adjunctive therapy for peritonitis is indicated and should include abdominal lavage and systemic broad-spectrum antimicrobial and anti-inflammatory therapy, along with intravenous fluid therapy for cardiovascular support. postpartum hemorrhage from the uterine arteries is less common in camelids than mares. most of the postpartum hemorrhage cases diagnosed by our group consist of rupture or laceration of the vaginal uterine artery. this artery is easily recognized by palpation per vaginum during obstetrical manipulation and is peculiarly large in camelids. excessive manipulation, and in particular fetotomy, may cause erosion of the mucosa and laceration of the artery. unfortunately, many of these hemorrhages are missed, as no outward signs are apparent until it is too late. typically, blood accumulates within the uterus for a few hours, followed by cardiovascular collapse. in one case, the female was found dead in her stall h after delivery. ruptured vaginal arteries may be sutured and blood transfusion should be considered in females with a pcv < %. packing of the vaginal with compresses, i.e. a device similar to the ''umbrella pack'' used in humans, may be helpful. partial or total uterine prolapse occur secondary to dystocia, manual removal of a retained placenta, and excessive use of oxytocin (dose and frequency). uterine prolapse is far more common in camels than in llamas and alpacas, and is often associated with hypocalcemia, selenium deficiencies, and retained placenta [ , ] . dairy camels seem to be more prone to uterine prolapse [ ] [ ] [ ] [ ] [ ] [ ] [ ] . uterine prolapse occurs generally immediately (first min) after parturition or abortion [ ] . techniques for replacement are similar to those reported in cattle and small ruminants, and are usually done under sedation and epidural analgesia. the placenta is often easily peeled off and should be removed if possible before replacement of the uterus. the female is positioned in sternal recumbency, with the hind quarters slightly elevated. the uterus should be inspected for any lacerations or hemorrhage. the area of major risk for hemorrhage is located near the cervix where the uterine artery may be exposed. the uterus is cleaned with warm dilute povidone iodine solution before replacement. a bühner suture is used in camels and a shoelace pattern can be used around the vulvar lips in alpacas and llamas. uterine prolapse tends to reoccur if the uterine horns are not fully extended. hysterectomy should be considered if the uterine tissue has sustained severe damage [ , , ] . rectal prolapse has been reported in llamas and camels. pregnant females with tenesmus and diarrhea are predisposed. rectal prolapse can be intermittent. in a case of a dromedary female near term, rectal prolapse was noticed intermittently, without vaginal prolapse. treatment of the underlying cause and surgical repair have been successful [ , ] . emergency postpartum complications in camelids include a vast array of conditions which often manifest themselves as lethargy, depression and progress towards a downer female syndrome. the approach to diagnosis of the causes of downer syndrome is similar to that used in cattle [ ] . predisposing factors include septic metritis, necrotic vaginitis, retained placenta, hypocalcemia, dystocia, pelvic injuries, hemorrhage, and presence of compressive lesions. a milk fever syndrome (hypocalcemia), similar to the condition in dairy cattle, is also observed in dairy camels. toxic mastitis has been described in dairy camels, but not in south american camelids [ ] . in addition to physical evaluation, cbc and blood biochemistry, the evaluation of the downer postpartum camelid should include transrectal and transabdominal ultrasonography and potentially collection and evaluation of cerebrospinal fluid. more advanced imaging techniques may be required in some cases in order to detect neoplastic masses. although, retained placenta is not usually an emergency in camelids, failure of delivery of the placenta following a cesarean section may lead to severe complications. severe swelling of the vulva and vagina are painful conditions associated with overt obstetrical manipulation. females experiencing these complications may have persistent straining and abandon their neonate. untreated vaginal and cervical inflammation may lead to adhesions and development of pyometra. females with severe inflammation of the birth canal should be treated with systemic and local anti-inflammatory drugs. daily application of cold compresses and treatment with ointments with anti-inflammatory and antimicrobial properties may reduce inflammation and adhesions. in an epidemiological study in the united kingdom, - % of deaths amongst llamas and - % of deaths in alpacas occur during the first months of life. a high proportion of these deaths occur within the first week of life [ , ] . in camels, neonatal mortality can reach % of the calf crop in the first days of life [ ] . newborn morbidity and mortality is very high in the immediate neonatal (< week old) period following obstetrical manipulations, cesarean section, prematurity, or dysmaturity [ ] . these losses are often due to complications from hypoxia, failure of passive transfer, and intrapartum infection. the clinical signs are often nonspecific and vague, resulting in an individual that is slow to adapt to extrauterine life, or that dies suddenly within the first few days of life. infections may be acquired in utero or intrapartum, and should be suspected if the newborn has elevated plasma fibrinogen concentrations in the first - h of life, the placenta appears abnormal, or the dam exhibited uterine discharge peripartum [ ] . therefore, immediate identification and care of the newborn camelid at high risk for sepsis is an important part of reproductive emergencies. the newborn should be evaluated within the first hours of life to detect any abnormalities of development or maladjustment to extra-uterine life. physical and behavioral parameters of the normal newborn are shown ( table ). assessment of the newborn cria should include evaluation of the epidermal membrane and placenta, respiration, cardiac function, and the presence of obvious congenital abnormalities. the epidermal membrane, which is normally translucent, may become yellow or brownish due to meconium staining in case of fetal stress due to dystocia. many congenital abnormalities have been described in camelids, some of which can be lethal. amongst the most important are: cleft palate, choanal atresia, atresia ani, and heart defects. the initial examination of the cria should establish if any of these abnormalities are present (table ) , so they can be corrected early or a decision made to humanely euthanize the cria. neonatal cases are presented with a wide variety of nonspecific complaints based on deviations from the normal appearance and behavior presented above. the minimum database used to evaluate the cria include: evaluation of maternal transfer of immunogobulins, cbc (including differential count and determination of plasma fibrinogen concentration), arterial blood gas analysis, serum chemistry, and aerobic and anaerobic blood cultures. contrast radiographs of the nasopharyngeal area may be indicated if choanal atresia is suspected as a cause of dyspnea [ ] . any cria delivered before day of pregnancy should be considered premature. premature birth may be a consequence of a stressful illness during pregnancy or due to a decision to induce parturition because of severe compromise to the dam. recently, the authors have seen a high rate of premature births following an outbreak of respiratory diseases. premature birth may also be secondary to uterine pathology (i.e. placentitis or placental insufficiency) [ ] . premature crias display specific phenotypic characteristics, including a birth weight significantly (> %) lower that that the average for the farm, and a thick epidermal membrane firmly attached to the foot pads and the mucocutaenous junctions. a ''floppy'' syndrome, often seen in premature camelids, includes inability to rise, to hold the head up, or to maintain sternal recumbency and floppy ears (new world camelids), due to immaturity of the cartilage. the coat appears silky and the limbs are overextended at the carpus and fetlock, due to laxity of the tendon and poor muscle tone. the incisors are not erupted and the suckling reflex is absent or weak. premature neonates adapt to extrauterine life very slowly. due to the normal elevated fetal cortisol concentrations, they may appear healthy initially, but become comprised a few hours later due to developing metabolic problems. these problems are often due to hypoxemia, acidosis, hypoglycemia, and limited body reserves or poor thermogenic ability. premature neonates are exposed to a wide range of respiratory and intestinal compromise due to immaturity of these systems. respiratory distress may be notice by labored or even open-mouth breathing. this syndrome is likely due to lack of surfactants required for normal air sac expansions and inefficient oxygen absorption. mortality rate is very high is these crias if they do not receive immediate attention [ , ] . intestinal immaturity in premature crias predisposes them to failure of passive transfer, even if colostrum is ingested orally in the first hours of life (failure of absorption). they also tend to be more at risk for bloating and meconium retention due to poor gut motility. dysmature or hypoxic neonates are often the result of induction of parturition, severe illness during pregnancy, or prolonged gestation. they usually present with similar biophysical characteristics as the premature neonates, except that they may have normal body development. mature compromised crias are usually the result of lengthy obstetrical manipulation or delivery via cesarean section. the degree of compromise depends on several factors. there is a complete lack of evidence-based medicine in emergency critical care of newborn camelids; most of the available information is anecdotal and based on clinical experience with other species. premature or stressed neonates require intensive care in the first few hours of life. they should be placed immediately in a warm environment. baseline cbc and blood biochemistry are indicated to determination status of hydration and electrolytes, blood glucose concentration, total protein and igg at - h. at-risk patients should receive an intravenous plasma transfusion. if the suckling reflex is absent, tube feeding is necessary and should be restricted to small volumes every - h, to reach - % of body weight by h of life. oxygen supplementation may be required if respiratory distress is pronounced. lung function should be monitored by blood gas analysis. aminophylline, an adenosine a ( a)-receptor antagonist like caffeine, has been given for days to stimulate the central nervous system and regulate breathing and to stimulate the type ii pneumocytes to produce components for the surfactant production [ , ] . intraoperational administration of aminophylline to the dam may be advantageous if a cesarean section is planned [ , ] . doxapram is routinely used to stimulate the central nervous system and relieve neonatal apnea following dystocia or cesarean section [ , ] . we general administer a small dose sublingual ( mg in llama and alpaca crias and mg in camels) initially after a cesarean section or dystocia. in neonates with severely depressed respiration, this dose, or up to twice this dose, should be given iv or iv. the neonate should be monitored closely for convulsions or hyperventilation. sepsis is a major concern in all compromised neonates. in one study, the median age at presentation of [ , , ] . both gram + and gram À organisms have been isolated from neonates with septicemia. based on common isolates, the antibiotics of choice for camelids at high risk of sepsis include the following combinations (enrofloxacin and ppg, enrofloxacin and ceftiofur, ceftiofur and gentamicin) [ , , ] . gentamicin should be used with care, as it can be extremely nephrotoxic to severely dehydrated newborn camelids, or if there is already evidence of renal dysfunction. blood cultures may be submitted, but broad-spectrum antimicrobial treatment should be started without delay. supportive treatment should include nsaids (ketoprofen mg/kg sid) to control pain and toxemia and antiulcer medication (omeprazol, given orally, mg/kg daily) to offset the effect of stress and nsaid. intravenous fluid therapy is indicated in all dehydrated, hypoglycemic newborns, however caution should be exercised regarding the rate of fluid replacement, as camelids are prone to pulmonary edema. severely dehydrated crias require fluid therapy. the type of fluid should be determined based on glucose, electrolyte and blood gas evaluation. generally, a balanced isotonic solution with % dextrose and bicarbonate to correct metabolic acidosis are sufficient. dextrose concentration may be increased to % in hypoglycemic crias. rate of administration should aim to correct half of the deficit over the first hour, and the other half over the next h. total or partial parenteral nutrition should be considered in severely depressed crias that are unable to nurse [ ] . prognosis for life and normal growth depends primarily on the interval between birth and providing emergency care. diseases in the first h of life are usually associated with congenital abnormalities, digestive (meconium retention), urinary problems (urine retention), exposure or malnutrition. the most common lethal congenital abnormalities that affect the camelid neonate are: choanal atresia, atresia ani or coli, and heart defects. most commonly, affected animals will suffer from severe respiratory, circulatory or metabolic complications. heart defects can be very severe and lead to death of the cria within a few hours, but most will survive for a few days to months, with the only abnormality being failure to thrive. syncope or fainting were observed in crias with severe heart defects. choanal atresia is the lack of opening of the nasal air passages, resulting from the presence at the level of the choanae of a membranous or osseous separation between the nasal and pharyngeal cavities [ , ] . diagnosis can be confirmed by mouth to nose artificial breathing or by contrast radiographs of the head after injection of a radio-opaque substance in the nasal cavity. maxillofacial agenesis or dysgenesis ''wry face'' is a head deformity characterized by varying degrees of deviation of the maxilla. this abnormality may be associated with choanal atresia. there is no treatment for this condition and the cria should be euthanized. respiratory distress associated with congenital goiter has been described in camels [ ] . atresia ani and atresia coli are, respectively, the lack of opening of the anal sphincter and lack of connection between the colon and the rectal cavity. these abnormalities results in the blockage of the intestinal transit and accumulation of fluid in the gastrointestinal tract. the cria becomes progressively bloated and depressed. ultrasonographic and radiologic examination of the abdominal cavity allows confirmation of the diagnosis. atresia coli may be mistaken for meconium retention. in the female cria, these abnormalities may involve the genital tract. surgical correction of the atresia ani has described [ ] . congenital blindness associated with different ocular defects has also been reported and will impact neonate behavior and wellness [ ] [ ] [ ] . it is important that the practitioner established the diagnosis of congenital abnormalities with certainty, because some of these may be hereditary [ , ] . meconium is the amniotic fluid ingested by the fetus during pregnancy. meconium is usually passed within - h after birth as dark pasty or stringy feces. clinical signs of meconium retention include straining, squatting, tail wagging, anorexia, and signs of abdominal discomfort. initial treatment consists of one or two warm soapy water enemas ( - ml). if after two enemas, the meconium has not passed, intravenous fluids may be indicated, as multiple soapy water enemas may irritate the rectal mucosa, resulting in severe straining and rectal prolapse [ ] . crias that have retained meconium may have other abnormalities and should be examined closely. routine administration of enemas to every newborn cria should be discouraged. urine retention may be associated with congenital abnormalities of the urinary and genital tracts [ ] . in males, urethral blockage (aplasia) results in bladder rupture. in females, vulvar agenesis or atresia vulvi present with an obvious bulging of the perineum and often symptoms of pain, due to the large quantity of urine in the uterus and abdominal distension [ , ] . accidents to the umbilical stump are not uncommon. the simplest form is persistent bleeding, which can be treated with hemostasis provided by a hemostat or sutures. persistent urachus is not as common as in other species. umblical hernia and rupture of the abdominal wall with eventration has been seen by the author following dystocia due to uterine torsion and may be due to wrapping of the cord around the fetus. these are easily replaced surgically. failure of passive transfer is a major cause of neonatal mortality in camelids [ ] . assessment of igg concentrations can be performed h after birth [ ] [ ] [ ] . serum total protein concentrations < mg/ dl are also very indicative of failure of passive transfer. in these cases, hyperimmune plasma should be given iv or ip ( - ml/kg). commercial products are now available (triple j farm, kent laboratories, jorgensen place, bellingham, wa , usa). this product is collected from llamas regularly immunized with clostridium perfringens type c, escherichia coli bacterin-toxoid, clostridium chauvoeisepticum, clostridium haemolyticum, clostridium novyi, clostridium tetani and clostridium perfringens types c and d bacterin-toxoid, killed equine herpes virus- , bovine rota-coronavirus modified live virus, j- e. coli bacterin, imrad killed rabies vaccine, and inactivated cultures of leptospira canicola, leptospira grippotyphosa, leptospira hardjo, leptospira ichterohaemorrhagiae and leptospira pomona. reproductive emergencies involve not only saving the health but also the reproductive future of the patient. emergencies in the pregnant female present an additional challenge, in that the fetus has to be considered regarding response to treatment and viability. at times, it is important to make a decision as to which of the two (dam or fetus) has more economic or sentimental value, or chances to survive. one of the main challenges in emergency care in camelids is the lack of evidence-based scientific data on treatment and outcome assessment. although extrapolation from other species has been possible, it is important to remember species peculiarities, especially with regard to fluid therapy. handling of obstetrical situations is particularly important, as many female camelids loose their ability to reproduce due to iatrogenic vaginal adhesions and cervical trauma from prolonged manipulation. in the male, hyperthermia (environmental or pathologic) is the leading cause of reproductive loss and client education regarding its prevention and early recognition is paramount for successful preservation of fertility. veterinarians involved in camelid practice, of which reproductive services (including reproductive emergencies and neonatology) represents over % of the complaints, should have a very good understanding regarding anatomical, physiological and medical peculiarities of camelids, and utilize their experience in other species. this makes an excellent point for the importance of comparative approach to training theriogenologists and large animal veterinarians. emergency drugs and protocols (table ) should be in place to ensure timely delivery of critical care and improved outcomes. uro-genital defects, renal agenesis, atresia vulvi preputial prolapse in an alpaca reproductive physiology and infertility in male south american camelids: a review and clinical observations pathology and surgery of the reproductive tract and associated organs in the male camelidae heat stress in a llama (lama glama): a case report and review of the syndrome hyperthermia in llamas and alpacas changes in testicular histology and sperm quality in llamas (lama glama), following exposure to high ambient temperature theriogenology in camelidae: anatomy, physiology, bse, pathology and artificial breeding. actes ed., institut agronomique et veterinaire hassan ii reproductive disorders in the male camelid infectious causes of reproductive loss in camelids septic orchitis in an alpaca common surgical procedures in camelids gastrointestinal causes of colic in new world camelids surgical management of a ruptured bladder secondary to a urethral obstruction in an alpaca silica urolithiasis in the dromedary camel in a subtropical climate urinary retention in two male dromedaries due to silica uroliths silica urolithiasis in a male llama nutritional diseases of south american camelids the complete alpaca book active and mechanical hemostatic agents ablation of the soft palate in a male dromedary impaction of the distensible part of the soft palate (dulaa) in the arabian camel soft palate gangrene in camels (camelus dromedarius) impactation of the dulaa, palatine diverticulum in the dromedary facial paralysis, glossoplegia and injured soft palate in a camel urethral and subcutaneous infiltration of urine in camels (camelus dromedarius) surgical disorders of the male urogenital system in the dromedary camel perforation of the rectum in a llama mare caused by rectal palpation (vet expert opinion) rectal and colonic injury in the llama: anatomic considerations and surgical-management in llamas effects of intravenous butorphanol on cardiopulmonary function in isoflurane-anesthetized alpacas transabdominal ultrasonographic appearance of the gastrointestinal viscera of healthy llamas and alpacas obstetrics and neonatology prediction of gestational age by ultrasonic fetometry in llamas (lama glama) and alpacas (lama pacos) real-time ultrasonic biparietal diameter measurement for the prediction of gestational-age in llamas hepatic lipidosis in llamas and alpacas hormonal indicators of pregnancy in llamas and alpacas plasma concentrations of -ketodihydro-pgf( alpha), progesterone, oestrone sulphate, oestradiol- beta and cortisol during late gestation, parturition and the early postpartum period in llamas and alpacas reproduction in female south american camelids: a review and clinical observations surgical and nonsurgical correction of uterine torsion in new world camelids: cases ( - ) splenic torsion in an alpaca surgical treatment of uterine torsion in a llama (lama glama) surgery of the reproductive tract in camelids surgical correction of an acquired vaginal stricture in a llama, using a carbon-dioxide laser vaginal prolapse in a camel simple management of vaginal prolapse in the camel (camelus dromedarius) institut agronomique et veterinaire hassan ii use of cloprostenol as an abortifacient in the llama (lama glama) induction of parturition in alpacas and subsequent survival of neonates obstetrics, neonatal care, and congenital conditions ventral midline caesarean section for dystocia secondary to failure to dilate the cervix in three alpacas recent advances in camelid reproduction. ithaca: international vet information service recent advances in camelid reproduction. ithaca: international vet information service cardiopulmonary effects of xylazine and acepromazine in pregnant cows in late gestation the effects of xylazine on intrauterine pressure, uterine blood flow, maternal and fetal cardiovascular and pulmonary function in pregnant goats ketamine inhibits fetal acth responses to cerebral hypoperfusion a comparison of the haemodynamic effects of propofol and isofluronae in pregnant ewes effects of propofol-sevoflurane anesthesia on the maternal and fetal hemodynamics blood gases, and uterine activity in pregnant goats the effect of propofol on isolated human pregnant uterine muscle maternal and fetal effects of propofol anaesthesia in the pregnant ewe transplacental transfer of propofol in pregnant ewes use of propofol-isoflurane as an anesthetic regimen for cesarean section in dogs periparturient and neonatal anesthesia peritonitis associated with passage of the placenta into the adbominal cavity in a llama diseases and causes of mortality in a camel (camelus dromedarius) dairy farm in saudi arabia an outbreak of nutritional muscular dystrophy in dromedary camels uterine prolapse in a camel (camelus dromedarius) rectal prolapse caused by a fibroma in a she camel-a case report uterine prolapse in a camel uterine prolapse in the dromedary camel uterine prolapse in a camel (camelus dromedarius) reproductive disorders of the female camelidae rectal prolapse, surgery and radiology of the dromedary camel al ahsa. saudi arabia: ramadan, r.o. king faisal university a review of the causes, prevention, and welfare of nonambulatory cattle lactation and udder diseases south american camelids in the united kingdom: population statistics, mortality rates and causes of death gram-negative bacterial-infection in neonatal new-world camelids- cases ( - ) neonatal care of camelids: a review and case reports body condition and blood metabolite characterization of alpaca (lama pacos) three months prepartum and offspring three months postpartum adenosine a( a)-receptor blockade abolishes the roll-off respiratory response to hypoxia in awake lambs the combined maternal administration of magnesium sulfate and aminophylline reduces intraventricular hemorrhage in very preterm neonates surfactant administration to the human fetus in utero: a new approach to prevention of neonatal respiratory distress syndrome (rds) a new look at the respiratory stimulant doxapram oral pharmacokinetics of doxapram in preterm infants culturepositive sepsis in neonatal camelids: cases practical fluid therapy in llamas and alpacas complete choanal atresia in a llama what is your diagnosis? [complete bilateral choanal atresia in a llama surgical correction of anorectal atresia and rectovaginal fistula in an alpaca cria congenital glaucoma in a llama (lama glama) congenital cataracts and persistent hyaloid vasculature in a llama (lama glama) congenital coloboma in a llama congenital abnormalties an overview of camelid congenital/genetic conditions perinatal and neonatal care of south-american camelids urinary obstruction in a hermaphroditic llama failure of passive immunoglobulin transfer: a major determinant of mortality in newborn alpacas (lama pacos) a note on colostral immunoglobulin g concentrations versus subsequent serum concentrations in naturally suckled llama (lama glama) and alpaca (lama pacos) crias evaluation of assays for determination of passive transfer status in neonatal llamas and alpacas passive transfer of colostral immunoglobulin g in neonatal llamas and alpacas congenital defects in the llama medicine and surgery of south american camelids: llama, alpaca, vicuna, guanaco renal agenesis in an alpaca cria anderson kl. bilateral renal agenesis in an alpaca cria atresia vulvi in camels (case reports) a case of atresia ani with rectovestibular fistulae in an alpaca (l. pacos) surgical repair of a cleft soft palate in an alpaca surgical repair of a bilateral choanal atresia in a llama surgical treatment of a congenital flexural deformity of the tarsal joint in a llama management of bilateral flexural deformity of the metacarpophalangeal joints in three alpaca crias surgical correction of carpal valgus deformity in three alpacas multiple non-lethal congenital anomalies in a llama diaphragmatic hernia in a llama key: cord- -pj iv wp authors: nan title: national preparedness month — september date: - - journal: mmwr morb mortal wkly rep doi: . /mmwr.mm a sha: doc_id: cord_uid: pj iv wp nan every september, cdc, private and public health institutions, and approximately , government organizations support preparedness efforts and encourage americans to take action before, during, and after an emergency. every community in the united states should be ready to respond to an infectious disease outbreak, chemical or radiological release, or natural disaster ( ) . public health systems should have the capacity to scale up and respond to the varying demands of public health emergencies ( ) . many emergencies happen without warning; it is important for all persons to take steps ahead of time to keep themselves and their loved ones safe and healthy. research shows that only % of persons think a natural disaster is likely to occur in their community ( ) . it is vital to take immediate and appropriate actions in the event of an emergency. this year, cdc's office of public health preparedness and response focuses on empowering individuals to better prepare for public health emergencies. the theme "the power of preparedness" highlights the importance of building and updating an emergency kit, having and reviewing an emergency plan, inspiring others to prepare, and taking immediate action to save lives. this issue of mmwr includes a report describing a series of unannounced mystery patient drills that were conducted in new york city emergency departments to assess response to potential infectious disease threats. individual and community preparedness resources are available at https://www.cdc.gov/phpr/preparedness_month.htm. in an emergency you can't respond effectively if you are not ready cdc's evolving approach to emergency response mary m.k. foote, md ; timothy s. styles, md , ; celia l. quinn, md , recent outbreaks of infectious diseases have revealed significant health care system vulnerabilities and highlighted the importance of rapid recognition and isolation of patients with potentially severe infectious diseases. during december -may , a series of unannounced "mystery patient drills" was carried out to assess new york city emergency departments' (eds) abilities to identify and respond to patients with communicable diseases of public health concern. drill scenarios presented a patient reporting signs or symptoms and travel history consistent with possible measles or middle east respiratory syndrome (mers). evaluators captured key infection control performance measures, including time to patient masking and isolation. ninety-five drills ( measles and mers) were conducted in eds with key: cord- -g gjvh authors: carney, kevin p.; crespin, ann; woerly, gray; brethouwer, nicholas; baucum, jeff; distefano, michael c. title: a front-end redesign with implementation of a novel “intake” system to improve patient flow in a pediatric emergency department date: - - journal: pediatr qual saf doi: . /pq . sha: doc_id: cord_uid: g gjvh introduction: children’s hospital colorado is an academic, tertiary-care level trauma center with an emergency department (ed) that treats > , patients/year. patient volumes continue to increase, leading to worsening wait times and left-without-being-seen (lwbs) rates. in , the ed’s median door-to-provider time was minutes [interquartile range (iqr) = – ], with a . % lwbs rate. ed leadership, staff, and providers aimed to improve patient flow with specific goals to ( ) decrease door-to-provider times to a median of < minutes and ( ) decrease annual lwbs rate to < %. methods: an inter-professional team utilized quality improvement and lean methodology to study, redesign, and implement significant changes to ed front-end processes. key process elements included ( ) new flow nurse/emt roles, ( ) elimination of traditional registration and triage processes, ( ) immediate “quick registration” and nurse assessment upon walk-in, ( ) direct-bedding of patients, and ( ) a novel “intake” system staffed by a pediatric emergency medicine physician. results: in the months following full implementation of the new front-end system, the median door-to-provider time decreased % to minutes (iqr = – ), and the lwbs rate decreased from . % to . % (a % relative decrease). additionally, the percentage of patients seen within minutes of arrival increased, overall ed length-of-stay decreased, patient satisfaction improved, and no worsening of the unexpected -hour return rate occurred. conclusions: using quality improvement and lean methodology, an inter-professional team decreased door-to-provider times and lwbs rates in a large pediatric ed by redesigning its front-end processes and implementing a novel pediatric emergency medicine-led intake system. patient crowding is a problem facing emergency departments (ed) worldwide. [ ] [ ] [ ] causes of crowding include increased use of eds, patient boarding in the ed, increased patient complexity, and inefficient ed operations. crowding leads to longer wait times to see providers, patient safety concerns, worse outcomes in certain clinical scenarios, and decreased patient satisfaction. , , there is an increased national focus on this important health topic, with the center for medicare and medicaid services identifying multiple operational metrics as key to evaluating the quality of care provided in an ed. the american academy of pediatrics also recognizes this as a particular problem affecting the care of pediatric patients in the ed and in published a report outlining best practices for patient flow and care for these patients. a key driver of ed patient flow is its "front-end system," consisting of all the operational steps that occur before a provider sees the patient. strategies employed to improve the front-end processes include the abolishment of traditional nurse-led triage, "split-flow" models that create separate patient streams depending on each individual's particular care needs, direct-bedding of patients, and placing providers in triage. [ ] [ ] [ ] [ ] a physician in triage and other models utilizing non-physician providers can decrease door-to-provider times and decrease left-without-being-seen (lwbs) rates. [ ] [ ] [ ] [ ] [ ] [ ] [ ] most reports of patient flow improvements come from general eds, where the majority of patients are adults; thus, there are few reports of how similar strategies may impact pediatric-focused eds. , children's hospital colorado has seen increased patient volumes and lwbs rates since moving into a new hospital in (fig. ). in , the ed leaders, staff, and providers wanted to improve patient flow via a large-scale front-end system redesign. the purpose of this report is to share the change process, specific operational changes implemented, and the resulting impact on patient flow in this tertiary-care pediatric ed. the specific smart aims were to redesign the frontend system by january with a goal to ( ) decrease median door-to-provider times from minutes to < minutes and ( ) decrease annual lwbs rate from . % to < % by the following year. this study was approved by the institution's organizational research risk and quality improvement panel (orrqirp). the orrqirp was established by agreement between the academic institution's human subject research review board and the study institution in . orrqirp is sanctioned by the institutional review board to review quality improvement (qi) project proposals to determine if they do not meet the criteria for human subjects research. this project took place in the ed of a -bed tertiary care, academic freestanding children's hospital. the hospital is a level trauma center with a -bed ed that sees over , patients/year and has a % admission rate. ed medical providers include pediatric emergency medicine (pem) physicians, general pediatricians, advance practice providers (apps), pem fellows, residents (pediatric, emergency medicine, and family medicine), and medical students. the ed leadership team met in early to discuss improving operational flow. with the support of hospital executive leadership, the ed hired a process improvement specialist to help with these efforts. the ed medical director and assistant clinical nurse manager formed an ed operations committee in june to help lead the initial pdsa cycles and educate staff. starting in june , an expanded inter-professional team including > members of ed leadership, physicians, apps, nurses, emts, and registration staff members began meeting to plan further large-scale improvement efforts. the team employed qi and lean methods to study the current system, including process-mapping of the front-end system and subsequent development of a value-stream map. the team determined that of the average -minutes patients spent waiting to see a provider, only minutes was spent in-process, of which < minutes was considered value-added to the patient (fig. ) . with a goal of operational changes in place by january , the team decided to hold a -day kaizen event to expedite system implementation. the team met in november for the kaizen and spent the first days using lean methodology to remove redundant and non-value-added steps from the front-end system. steps removed included questions previously placed in the triage process by other qi efforts but not considered critical to the front-end process. important questions such as patient/family safety questions and learning preferences were moved to later portions of the visit. the team developed new front-end processes (described below) and piloted the new system for hours on kaizen day . the team observed the process during this initial trial and made changes both in real-time and at the day session. concurrent with the clinical process development, the team engaged with information technology, compliance, facilities, and other hospital services to change crucial components of the electronic health record (ehr) and waiting room physical layout to accommodate the new process. after the -day kaizen, the team wanted to test the new front-end system once more before official implementation. the team chose the following monday (historically the highest volume day of the week) to test the system for hours. the team arrived early and provided "just-intime" training for the staff and providers. despite seeing over patients that day (making it of the highest-volume days of ), the team observed no significant safety or operational issues. the following day, the team resolved some small outstanding issues, and the new front-end system "went live" the next day on november , - days after the start of the kaizen. volunteer "system super users" from the kaizen team and ed clinical leaders provided weeks of hours/day on-theground support. project leaders sent staff weekly updates with key metrics for months after implementation. to prepare staff for the anticipated operational changes, the operations committee began educational efforts in the summer of . didactics, open forums, and staff "town halls" allowed for staff to learn the basic theories of ed operations, patient flow, and the importance of front-end processes. in the summer of , the operations committee also worked to develop "flow nurse" and "flow emt" roles. these departmental roles have no direct patient assignments, but rather are responsible for overall department flow. tasks include rooming patients from the waiting room, greeting ambulance arrivals, and facilitating room turnover. these roles are staffed every day from am to am to coincide with maximum patient volumes and were implemented in december . to expedite registration and clinical assessment of walk-in patients, the kaizen team discontinued the original linear steps of patient registration and nurse-led triage processes. instead, the team developed a parallel process that occurs immediately after patient arrival consisting of "quick registration" and initial nurse evaluation (fig. ) . the process: • walk-in patients are greeted immediately upon arrival by a patient access team member and "sorter nurse" • patient access team member performs "quick registration" while the nurse assesses the patient • "quick registration" consists of: • documenting the patient's name, date-of-birth, gender • obtaining a patient digital photo for the ehr • documenting who brought the patient to the ed (eg, parent, grandparent, etc.) • caregiver signs "consent-to-treat" form • placing identification wristband on the patient • "sorter nurse" assesses the patient and: • identifies critical illness requiring immediate rooming • documents chief complaint; any other key details • assesses patient using pediatric assessment triangle • assigns emergency services index (esi) acuity level • records weight • records medication allergies • "sorts" patient to either "emergent bed," "direct bed" or "intake" status the previous front-end system required multiple linear steps before placing the patient in an ed room (fig. ) . "direct bedding" means patients are immediately roomed after registration and a brief nursing assessment. in the new system, this process occurs hours/day when beds are available. after rooming, the bedside nurse completes and documents a "secondary assessment," consisting of: the kaizen team developed, piloted, and implemented a new "intake" system, which is open daily from am to pm. intake operates in the previously used triage rooms. the intake team includes a pem physician, scribe, nurse, and emt who work to assess patients rapidly, determine a disposition, and initiate orders (when appropriate). the process: • sorter nurse determines if the patient is appropriate for intake (see above criteria) • emt rooms patient and obtains vital signs • pem physician evaluates patient while a scribe documents in the ehr • pem physician places orders for medications, labs, or radiology studies (if needed) • pem physician determines patient disposition: • discharge from ed • roomed in ed ▪ "supertrack"-a patient expected to discharge home within hour of intake evaluation. these patients usually require a simple clinical reevaluation or laboratory/radiology test. ▪ "main ed"-a patient expected to require > hour of further history-taking, work-up, consultations, or treatment. • if a patient is discharged from intake, the intake rn discharges the patient and escorts them to the registration check-out desk • if roomed, the ed "flow rn" monitors ehr for notification of "supertrack" or "main ed" disposition and escorts the patient from intake to room. primary outcome measures consisted of door-to-provider times and lwbs rates. "provider" is defined as a resident, fellow, pediatrician, pem attending, or app. secondary outcome measures included the percentage of patients seen < minutes after arrival, overall lengthof-stay (los), and patient satisfaction as measured by standardized hospital-wide post-visit surveys (prc, omaha, neb.). the unanticipated patient returns to the ed within hours (% of total visits) were tracked as a balancing measure. the team extracted operational data from the hospital's ehr, epic systems corporation (verona, wisc.), and summarized the continuous outcomes of door-to-provider times and los with medians and interquartile ranges (iqr). groups were compared using wilcoxon rank-sum tests. χ tests were utilized to compare lwbs percentage, percent of patients seen < minutes, and -hour return rates. the team created statistical process control charts using minitab statistical software (minitab llc, state college, pa.). we compared the -month post-implementation operational metrics to baseline operational data from (table ). in , the ed had , patient visits compared with , visits in the -month post-implementation period (a % increase). for the primary outcome measures, the post-implementation median door-to-provider time improved to minutes (iqr - ), a nearly % decrease compared with the baseline of minutes (iqr - ). in addition, the lwbs rate decreased from . % in to . % in the months post-implementation. an annotated laney p' chart demonstrates lwbs rates and shows an overall decrease in weekly variation in the system compared with the baseline (fig. ) . all secondary outcome measures improved in the months post-implementation. the percentage of patients seen < minutes rose to %, a % relative increase compared with the baseline. figure shows the increasing monthly percentage of patients seen in < minutes year-over-year between and . the median los decreased from to minutes ( % decrease), including improvement for both admitted patients ( . % decrease) and discharged patients ( % decrease). overall, patient satisfaction increased from % who reported the visit as "excellent" in to % in . finally, the -hour return rates did not worsen following the implementation of the new system (table ). much of the literature on ed operations has focused on general eds, where adults make up the majority of patients; thus, it is not fully known how previously described front-end principles apply to pediatric eds. to the authors' knowledge, this project is the first to describe the implementation of a front-end system in a pediatric ed utilizing a split-flow model, including direct-bedding and a pem-staffed intake system. this project shows that by utilizing lean methodology, qi principles, and knowledge of ed operational principles, a large pediatric ed can realize similar patient flow improvements to those seen in adult systems. as hoped, the new front-end system drove patient flow by decreasing door-to-provider times, thereby improving los for all patients, and improved functional ed capacity allowing for a decreased lwbs rate. of note, patient flow metrics improved despite a % increase in volume compared with the baseline period. one could argue the observed operational improvements are a result of increased staffing rather than process redesign. the original front-end system was inefficient as it included many non-value-added processes leading to frequent patient flow bottlenecks due to queueing theory. merely adding staff to this inefficient system would not have made a meaningful improvement in patient flow. by decreasing the number of front-end steps (namely the discontinuation of nurse-led triage and the implementing direct-bedding), the new system allows for a decreased door-to-provider time by removing non-value-added steps rather than increased staff. the newly developed pem-led intake system is an adjunct to this more efficient system and allows for earlier initiation of care and saves critical ed bed space by facilitating rapid discharge of patients who need no further care. direct-bedding is a strategy frequently found in other front-end redesigns to help reduce door-to-provider times. , it is a critical component in the success of our new front-end system but has challenges when the ed is full, and direct-bedding is no longer an option. at these times, we must enact backup processes to bring a nurse or emt from the main ed to the waiting room to obtain vital signs and initiate standing orders. also, in certain situations, patients previously assigned to a direct bed status may be seen in intake by the pem physician when there is no ed capacity. these backup processes ensure patient care continues despite the lack of room availability. patients and families report wait times as a key driver of satisfaction with pediatric ed visits. as expected, with our nearly % decrease in door-to-provider times, parent visit satisfaction increased from % to %. while a notable improvement, opportunities exist for further an improved experience as the ed continues to experience large swings in patient volumes over the day and throughout the year. despite improvement efforts, we continue to experience periods when wait times become excessive, and patients decide to leave-without-being-seen. of note, outliers on the lwbs statistical process control chart (fig. ) largely coincide with weeks of high patient volume and resulting increased door-to-provider times. expectantly, patient visit satisfaction decreases during these periods. previous studies attempted to calculate the financial impact of crowding and the return-on-investment of various front-end redesigns. [ ] [ ] [ ] [ ] due to the hiring of a process improvement specialist, and modest increases in staffing, the estimated incremental cost of our new system is $ , /year. while a formal financial analysis is yet-to-be performed, the operational improvements are expected to yield positive financial gains. in nearly , patients left without a provider evaluation compared with approximately , in the months following the front-end redesign. the difference of , is the number of patients who would have been expected to walk out in the previous system but now are seen and incur visit charges. if the ed maintains improved patient flow performance, we expect to realize a positive financial return while also providing a better patient care experience for patients and families. this project has several limitations to consider. first, as a project performed at a single pediatric ed, results may not be translatable to other institutions that have different local barriers to patient throughput. second, we obtained financial support from hospital executive leadership to hire a process improvement specialist as well as make modest staff increases, investments other institutions may not be in a position to make. finally, given our large number of ed providers and staff, we were able to utilize volunteers to have a "system superuser" in the department hours each day for weeks after implementation of the new system. this type of support may not be possible in smaller eds with more limited staff. the next steps include future pdsa cycles to improve backup plans for when the ed is full and direct bedding is not possible. this intervention includes an analysis of the sorting process to ensure safe and accurate assessments to minimize the risk of patients clinically decompensating while in the waiting room. criteria for which patients are appropriate for the intake system will be evaluated and adjusted as necessary to maintain adequate patient flow in the intake system. further analysis of the sub-processes in each patient stream (direct-bedding and intake) will help identify opportunities to improve efficiency and decrease system variation. finally, a formal financial analysis is planned to determine the impact of the system. using qi and lean methodology, an inter-professional team in a large, tertiary-care pediatric ed designed and implemented a novel front-end system and significantly improved patient flow by decreasing door-to-provider times % and lwbs rates by over %. key concepts included decreasing non-value-added steps in the front-end and implementing a split-flow system utilizing direct-bedding and a pem-led intake system to drive patient flow. the system has led to a meaningful improvement of overall ed los for all patients and improvement of patient satisfaction scores. future work will focus on maintaining these improvements during high-volume times of the day and throughout the year. the authors have no financial interest to declare in relation to the content of this article. the authors would like to thank the staff and providers of the children's hospital colorado emergency department for their unwavering commitment to improving the care they provide their patients and the chco executive leaders for support of the project. international perspectives on emergency department crowding overcrowding crisis in our nation's emergency departments: is our safety net unraveling? effect of inpatient admissions versus emergency department practice intensity improving patient flow and reducing emergency department overcrowding: a guide for hospitals pediatric emergency department overcrowding and impact on patient flow outcomes subcommittee on emergency department overcrowding and children, section of pediatric emergency medicine, american college of emergency physicians. emergency department overcrowding and children associations of emergency department length of stay with publicly reported quality-of-care measures american college of emergency physicians pediatric emergency medicine committee; emergency nurses association pediatric committee. best practices for improving flow and care of pediatric patients in the emergency department optimizing emergency department front-end operations implementation of a front-end split-flow model to promote performance in an urban academic emergency department established and novel initiatives to reduce crowding in emergency departments health care provider in triage to improve outcomes are split flow and provider in triage models in the emergency department effective in reducing discharge length of stay? a long-term analysis of physician triage screening in the emergency department impact of physician screening in the emergency department on patient flow the effectiveness of a provider in triage in the emergency department: a quality improvement initiative to improve patient flow physician in triage improves emergency department patient throughput impact of a triage liaison physician on emergency department overcrowding and throughput: a randomized controlled trial creating a leaner pediatric emergency department: how rapid design and testing of a front-end model led to decreased wait time improving low-acuity patient flow in a pediatric emergency department: a system redesign short-term action in pursuit of long-term improvements: introducing kaizen events application of lean thinking to health care: issues and observations the pediatric assessment triangle: accuracy of its application by nurses in the triage of children immediate bedding and patient satisfaction in a pediatric emergency department a comprehensive view of parental satisfaction with pediatric emergency department visits operational and financial impact of physician screening in the ed emergency department throughput, crowding, and financial outcomes for hospitals cost analysis and provider satisfaction with pediatrician in triage does an ed flow coordinator improve patient throughput? key: cord- -h ld authors: wood, d. brian; jordan, jaime; cooney, rob; goldfam, katja; bright, leah; gottlieb, michael title: conference didactic planning and structure: an evidence-based guide to best practices from the council of emergency medicine residency directors date: - - journal: west j emerg med doi: . /westjem. . . sha: doc_id: cord_uid: h ld emergency medicine residency programs around the country develop didactic conferences to prepare residents for board exams and independent practice. to our knowledge, there is not currently an evidence-based set of guidelines for programs to follow to ensure maximal benefit of didactics for learners. this paper offers expert guidelines for didactic instruction from members of the council of emergency medicine residency directors best practices subcommittee, based on best available evidence. programs can use these recommendations to further optimize their resident conference structure and content. recommendations in this manuscript include best practices in formatting didactics, selection of facilitators and instructors, and duration of individual sessions. authors also recommend following the model of clinical practice of emergency medicine when developing content, while incorporating sessions dedicated to morbidity and mortality, research methodology, journal article review, administration, wellness, and professionalism. supporting data, the authors based recommendations on their experience and consensus opinion. the entire cord best practices subcommittee reviewed the manuscript after which time it was posted on the cord website for review by the entire cord community. many factors may influence programmatic decisions regarding timing, frequency, and duration of didactic curricula in addition to the desire to optimize education. these may include regulatory requirements, clinical work schedules, locations of faculty and trainees, personnel (teachers and learners), and space availability. the concentrated blocked weekly didactic format (i.e., a single, dedicated conference half day per week) is highly prevalent in other specialties such as family medicine and neurology, in addition to em. , residents appreciate having protected educational time and, compared to shorter daily formats, the blocked weekly didactic structure has demonstrated higher learner satisfaction, improved attendance, and fewer interruptions. [ ] [ ] [ ] [ ] while learners perceive improved learning with this format, studies have failed to demonstrate differences in objective outcomes such as scores on standardized tests or board examinations. [ ] [ ] [ ] [ ] [ ] however, given the perceived and logistical benefits, including improved attendance, which is essential to maintaining accreditation, combined with the nature of em clinical schedules, the authors recommend the blocked weekly format. the acgme places certain requirements on programs regarding faculty participation in didactics. these include that each core faculty member must attend at least % of planned didactic experiences and that em faculty members must present at least % of resident conferences. while there is limited data evaluating faculty conference attendance and objective learning outcomes, one study found that higher faculty conference attendance was associated with higher pass rates on em oral boards for trainees. additionally, residents perceive that faculty presence at conference facilitates learning. , one approach to increase faculty presence at conference would be to offer incentives for attending conference. providing continuing medical education credit for didactic conferences can also increase faculty attendance. conference didactics are most often presented by faculty or residents. , , , , some have advocated for residents to give didactic lectures to ease the burden on faculty time and sharpen resident public speaking skills. while residents perceive that faculty lectures greatly contribute to their educational experience, ,l limited data has demonstrated that residents can learn from resident-given lectures, and that no difference in learning outcomes (e.g., test scores, board passage rates) were found between resident-given lectures vs faculty-given lectures. , , additionally, it may be appropriate to incorporate other professionals (e.g., nurses, pharmacists) as lecturers depending on the topic. smith et al found no difference between lecture evaluation scores for nurse-given lectures compared to conference didactic planning and structure faculty-and resident-given lectures. given that the specialty of em interfaces with many other disciplines, it may also be beneficial to incorporate multidisciplinary conferences with other medical professionals into the didactic curriculum to enable collaborative learning, coordinated patient care, and a better understanding of the roles of other professions. [ ] [ ] [ ] the acgme recommends the inclusion of multidisciplinary conferences as part of the resident didactic experience. limited research suggests that trainees value this type of experience , ; however, robust objective data on learning outcomes are lacking. instruction should be tailored to the level of the learner. , however, this may be especially challenging in program-wide didactic conferences in which the learners differ significantly in terms of stages of training and faculty are at varying career stages and experience. in recent years, we have seen the development of a national em curriculum specific to the training level and the nearly universal presence of a dedicated intern orientation in residency programs. , to date, there are no objective data evaluating training level-specific didactics on learning outcomes; however, faculty and residents have been shown to view this targeted instruction positively. , resident didactic instruction has traditionally been delivered via lectures despite calls for alternatives. , common criticisms of lectures include lack of engagement due to an emphasis on passive learning, overwhelming students' ability to learn by providing too much information, and waning attention due to the duration of the session. despite calls to minimize the use of lectures, data support their continued effectiveness as a teaching modality. [ ] [ ] [ ] the common criticisms can be overcome through intentional learner-centered instructional design. cognitive load theory states that there are three main components involved in the creation of long-term memories: intrinsic load; extraneous load; and germane load. while intrinsic load and germane load are generally fixed, extraneous load is highly modifiable and heavily influenced by the manner in which material is presented to learners. since the amount of working memory is generally fixed for a given person at a set time, increases in extraneous load (i.e., presenting information in an overly complex manner) will detract from learning and retention. therefore, instructors should focus on ensuring that talks are focused on delivery of information, while limiting unnecessary information or overly complex presentations of the information. multimedia learning theory informs principles of slide design and is one effective method that can be used to increase the long-term retention of taught material (table ) . with regard to the duration of lectures given at conference, the notion that shorter may be better is based on data of learner attention spans. in a classic study of medical students, stuart and rutherford found that the attention span peaked at - minutes and fell steadily thereafter, with the authors recommending that lectures not exceed - minutes. in more recent years, we have seen the implementation of shorter lectures in em both at the local and national level. , limited studies have compared shorter ( -to -minute) segments compared to the more traditional -to -minute lecture and found the learners typically prefer the shorter format [ ] [ ] [ ] ; however, few have looked at objective learning outcomes. one study by bryner did evaluate knowledge acquisition and retention between -minute and -minute lectures and found no significant difference. more research is needed to determine the optimal length of didactic sessions with an emphasis on outcome-based evaluations. when it is not possible to reduce the duration of a lecture, incorporating pauses, interactive questioning, and intermittent summarization can re-engage learners and improve attention to the content. handouts are an additional method to increase the effectiveness of lectures. while many lecturers will distribute copies of their presentations, a more effective technique is the . coherence principle: avoid extraneous words, pictures, and sounds. they can detract from learning. . signaling principle: add cues to highlight the essential materials. on-screen text can detract from learning. people learn better from graphics and narration alone as opposed to graphics, narration, and on-screen text. . spatial contiguity principle: corresponding words and pictures should be presented near each other rather than far from each other on the screen. corresponding words and pictures should be presented simultaneously rather than successively. . segmenting principle: multimedia lessons should be presented in learner-controlled segments rather than as a continuous unit. . pre-training principle: when students already know the names and behaviors of system components, they will learn more from the session. . modality principle: learning is more effective when words are presented as narration rather than on-screen text. . multimedia principle: learning is more effective when words are combined with pictures as opposed to include words alone. . personalization principle: information delivery is more effective when words are presented in a conversational style rather than formal style. . voice principle: learning is more effective when narration is spoken in a friendly human voice rather than a machine voice. . image principle: learning is not necessarily more effective when the speaker's image is added to the screen table . mayer's principles of multimedia learning. , concept of guided notes. guided notes are a hierarchical outline of the presentation with key information intentionally left blank. learners will "fill in the blanks" as the lecture progresses, thus increasing attention and discovering the relationships in the presented material. additionally, the fact that the notes are mostly complete allows for effective note-taking and allows attention to be directed at the presenter instead of the notebook. while lectures can still be effective, active learning has been shown to positively impact objective learning outcomes, by incorporating other instructional techniques. [ ] [ ] [ ] [ ] [ ] [ ] [ ] [ ] [ ] [ ] active learning is "any instructional method that engages students in the learning process" and can include techniques such as games, flipped classroom, audience response systems, casebased problems, and team-based activities. real-time electronic broadcasts of lectures and video conferencing can be another good use of technology to support resident education. this has been demonstrated to be an effective educational model that is positively viewed by trainees and can improve access and attendance at didactic offerings for both residents and faculty. [ ] [ ] [ ] for training programs with multiple sites or that have struggled with maintaining the required attendance percentage for accreditation, this may be a valuable option to consider. our understanding of how learning occurs has evolved as cognitive scientists continue to refine effective methods for teaching and learning. unfortunately, effective methods are often not incorporated into medical curricula. educators should avoid using or encouraging the use of learner-initiated summarization, highlighting and underlining, mnemonics, imagery, and rereading as these techniques have not been shown to enhance learning. effective techniques with a strong effect size include practice testing and distributed practice. additionally, there is likely some benefit from the use of elaborative interrogation, self-explanation, and interleaving. practice testing is the use of no-or low-stakes tests that can be completed independently by the learners. these can include recall via flashcards, practice problems, or traditional types of test questions. teachers may choose to implement this technique using shared card decks or applications (apps), or web-based asynchronous question banks. anonymous audience-response systems are popular and have also been shown to improve student learning in medical education. , distributed practice (also known as spaced repetition) refers to the spreading out of learning over time as opposed to massed practice or "cramming." implementation of this technique can be accomplished by content mapping that allows for repeated exposure to the concepts from prior didactics, the use of handouts or summarization materials between didactic sessions, or by using email to re-expose learners to the material. elaborative interrogation involves the use of selfquestioning to enhance learning. this would involve the learner seeking out the underlying rationale or etiology using questions such as "why does this occur?" similarly, self-explanation involves directing learners to explain their logic during task completion. educators can easily incorporate this technique through simple questioning exercises during their lectures. interleaving is an education organizational technique in which multiple topics and themes are mixed and covered over time instead of having discrete blocks dedicated to single topics. the flipped classroom, also known as the reverse classroom, is an instructional design method in which independent learning, often via previously-viewed video lectures or pre-reading, is combined with face-to-face classroom activities. when studied, the flipped classroom appears to be effective [ ] [ ] [ ] ; however, caution should be exercised as recent systematic reviews have found high methodological diversity, inconsistent results, and risk of bias. , [ ] [ ] [ ] gamification is another active learning technique, which involves the utilization of games and competition to support learning. as a technique, gamification may support learning of skills, emergency department (ed) throughput, decision-making, and medical knowledge. [ ] [ ] [ ] [ ] team-based learning (tbl) is an instructional method used with increased frequency in both undergraduate medical education and graduate medical education, which is often combined with the flipped classroom model. [ ] [ ] [ ] [ ] prior to tbl, learners are expected to prepare and complete a pre-session test individually ahead of time. during the tbl sessions, learners then work in teams to solve a series of realistic, complex problems. faculty serve as facilitators encouraging peer-learning, cooperation, and ensuring the discussion stays on track. this approach requires upfront training of faculty in discussion facilitation and learner buy-in to prepare for sessions. , best practice recommendations: . didactic lectures should be administered as blocked, weekly sessions (level b; grade b). . encourage faculty attendance and participation in conference (level b; grade b). . lecture can still be an effective method to present didactic content. when this technique is used, the lecturer should ensure that their presentation complies with cognitive load theory, multimedia learning theory, and active learning principles (level a; grade b). . real-time video conferencing can be considered to improve access and attendance (level b; grade c). . educators should incorporate the use of spaced repetition and no-or low-stakes testing into didactic instruction to increase long-term retention of content (level a; grade a). . utilization of recorded lectures, flipped classroom, and gamification can supplement or replace the traditional lecture (level a; grade b). after a thorough review of the literature, we found no prospective studies evaluating which specific topics should be included in the conference didactic curriculum. for this reason, conference didactic planning and structure the core content as described by the model of the clinical practice of emergency medicine, or the "em model," is most commonly used as the de facto foundation of the conference curriculum in most residencies. while this was designed using expert consensus data, it is heavily informed by those areas most relevant to the emergency physician. in fact, during the creation of the em model, hospital data from over million ed visits were compared to its content and found to have % overlap, validating the content of the em model. the em model is further refined every three years to identify new areas to cover. as it is used to inform board certification examinations, it is important for residents to be familiar with all of the topics covered and is a critical initial reference for most conference planners. while there is no strong data to help prioritize specific subject matter during conference time, intraining examination coverage of various areas may help guide emphasis on high-yield topics. while the em model may be used as a guide for resident education, conference didactics should be viewed only as one component of resident education with its unique strengths and weaknesses. as such, rather than focusing solely on "covering" all topics in the em model, the priority of conference didactic design should be on maximizing the learning potential of this modality. additionally, some topics can best be taught through other components of resident education including clinical experience, outside reading, simulation and use of free open access medical education (foam). the acgme program requirements for graduate medical education (gme) in em mandate specific conference content to be taught as part of didactics. these include five main components listed in table . additionally, the acgme requires a number of other specific themes to be included in residency training. we suggest incorporating the following into your conference topics to assure completion of these requirements. residents should be educated in a culture of safety, including understanding safety goals, diagnostic error, response to adverse events, continuous quality improvement, and ultimate accountability of the physician for the care of the patient. this can also be combined with m&m conference sessions. professionalism residents must be aware of their professional responsibilities toward their patients and peers, as well as their relationship with the health system on a local and national level. residents should also appreciate the necessity of their own need for ongoing education after residency and how to obtain and maintain board certification. in recognition of the prevalence of depression, burnout, substance abuse, and suicidality among residents and medical students, the acgme now mandates teaching on the identification and mitigation of these concerning issues. while there is no set curriculum provided or recommended by the acgme itself, materials are available, such as the educational toolkit provided by the resident wellness consensus summit. this incorporates modules on second victim syndrome, mindfulness and mediation, and positive psychology. all residents must be able to recognize limitations in their ability to care for patients due to sleep deprivation and fatigue; they should be made aware of options for fatigue management and transition of care to another provider, should the need arise. given the limited evidence-based data on curricular content of didactics further dedicated research on possible curricular content and the weighting of topics taught may be beneficial. . curriculum presentations . quality improvement/morbidity and mortality . research seminars (including education on how to conduct and understand research in a clinical context) . journal review and evidence-based medicine concepts . administrative seminars (to include operations and administrative practices in emergency medicine) table . main components of conference didactics. . core content topics for conference should be derived from the conditions and skills described in the em model (level , grade d). . curriculum presentations, morbidity and mortality sessions, research seminars, journal review, and administrative seminars should be included as part of the conference design (level , grade d). there are several limitations to consider for this review. first, it is possible that some articles were not identified using our search strategy; however, an experienced medical librarian conducted the search with a broad search strategy using multiple databases. additionally, we searched bibliographies of all included articles, contacted topic experts, and underwent pre-submission peer review by the entire cord community. given the breadth of this topic, we were unable to address all aspects of conference planning and some components (e.g., simulation, journal club) were therefore not included in the current review. however, journal club was previously covered available at: https:// www.acgme.org/what-we-do/accreditation/common-program-requirements acgme program requirements for graduate medical education in emergency medicine pfassets/programrequirements/ _emergencymedicine_ . pdf? journal club in residency education: an evidence-based guide to best practices from the council of emergency medicine residency directors individualized interactive instruction: a guide to best practices from the council of emergency medicine residency directors wellness in resident education: an evidence-based guide to best practices from the council of emergency medicine residency directors clinical teaching: an evidencebased guide to best practices from the council of emergency medicine residency directors oxford centre for evidence-based medicine -levels of evidence family medicine didactics revisited the academic half-day in canadian neurology residency programs megaconference: a radical approach to radiology resident education with full-day weekly conferences implementation of an academic half day in a vascular surgery residency program improves trainee and faculty satisfaction with surgical indications conference positive impact of transition from noon conference to academic half day in a pediatric residency program expanding resident conferences while tailoring them to level of training: a longitudinal study characteristics of emergency medicine residency curricula that affect board performance increasing faculty attendance at emergency medicine resident conferences: does cme credit make a difference? the pedagogic characteristics of a clinical conference for senior residents and faculty an academic relative value unit system: do transparency, consensus, and accountability work? increasing faculty participation in resident education and providing cost-effective self-assessment module credit to faculty through resident-generated didactics the effectiveness of grand rounds lectures in a community-based teaching hospital residents as educators: a modern model resident learning and knowledge retention from resident-prepared chest radiology conferences nursing lectures during conference time are well received by both residents and faculty mental health education for medicine trainees through a primary care interprofessional case conference: promoting collaborative learning and addressing challenges cler look at morbidity and mortality conferences. th annual meeting -society of general internal medicine presented at the: celebrating generalism: leading innovation and change development of a multidisciplinary curriculum for education af trauma teams during weekly emergency medicine residency conference cross-specialty integrated resident conferences: an educational approach to bridging the gap ten cate o. cognitive load theory: implications for medical education: amee guide no the adult learner: a neglected species emergency medicine resident orientation: how training programs get their residents started a needs assessment for a longitudinal emergency medicine intern curriculum pgy-specific conference in emergency medicine alternatives to the conference status quo: addressing the learning needs of emergency medicine residents lecture halls without lectures: a proposal for medical education a controlled trial of active versus passive learning strategies in a large group setting effects of lecture information density on medical student achievement lectures for adult learners: breaking old habits in graduate medical education effectiveness of an adult-learning, selfdirected model compared with traditional lecture-based teaching methods in out-of-hospital training adult learning models for large-group continuing medical education activities comparison of the effect of lecture and blended teaching methods on students' learning and satisfaction teaching for understanding in medical classrooms using multimedia design principles cognitive constraints on multimedia learning: when presenting more material results in less understanding e-learning and the science of instruction: proven guidelines for consumers and designers of multimedia learning medical student concentration during lectures trends in national emergency medicine conference didactic lectures over a -year period bstmode (bite-sized teaching mode): an innovative approach to maximizing residents' educational efficiency through a faculty-coached peer teaching exercise. presented at the: society of general internal medicine annual meeting rapid fire" emergency medicine resident conference: a pilot the minute minimum: implementation of a shorter resident lecture format in a large emergency medicine residency program learning as a function of lecture length alternatives to the conference status quo: summary recommendations from the cord academic assembly conference alternatives workgroup the educational value and effectiveness of lectures anatomy of learning: instructional design principles for the anatomical sciences active learning increases student performance in science, engineering, and mathematics a -day intensive curriculum for interns utilizing simulation and active-learning techniques: addressing domains important across internal medicine practice active learning on the ward: outcomes from a comparative trial with traditional methods learning through debate during problembased learning: an active learning strategy problem-based learning in comparison with lecture-based learning among medical students a novel teaching tool combined with active-learning to teach antimicrobial spectrum activity comparison of chiropractic student scores before and after utilizing active learning techniques in a classroom setting student knowledge and confidence in an elective clinical toxicology course using active-learning techniques comparison of lecture and team-based learning in medical ethics education learning outcomes of "the oncology patient" study among nursing students: a comparison of teaching strategies does active learning work? a review of the research tracking active learning in the medical school curriculum: a learning-centered approach rethinking residency conferences in the era of covid- residency building from your home office: effectiveness of videoconference based tele-education for emergency medicine residents and providers in vietnam e-conferencing for delivery of residency didactics videoconferencing of a national program for residents on evidence-based practice: early performance evaluation improving students' learning with effective learning techniques: promising directions from cognitive and educational psychology do questions help? the impact of audience response systems on medical student learning: a randomised controlled trial effect of an audience response system on resident learning and retention of lecture material spaced learning using emails to integrate psychiatry into general medical curriculum: keep psychiatry in mind teaching the science of learning the reverse classroom: lectures on your own and homework with faculty academic outcomes of flipped classroom learning: a meta-analysis improved learning outcomes after flipping a therapeutics module: results of a controlled trial the flipped classroom: a course redesign to foster learning and engagement in a health professions school flipping the classroom to improve student performance and satisfaction does the flipped classroom improve learning in graduate medical education? a systematic review of the effectiveness of flipped classrooms in medical education flipping the classroom in graduate medical education: a systematic review creating gridlocked: a serious game for teaching about multipatient environments serious games and blended learning; effects on performance and motivation in medical education the use of "war games" to enhance highrisk clinical decision-making in students and residents using game format to teach psychopharmacology to medical students survivor torches "who wants to be a physician? educational games in an obstetrics and gynecology core curriculum learning clinical neurophysiology: gaming is better than lectures free open access medical education (foam) resources in a team-based learning educational series a pilot study of team-based learning in one-hour pediatrics residency conferences use of learning teams to improve the educational environment of general surgery residency use of team-based learning pedagogy for internal medicine ambulatory resident teaching a narrative review and novel framework for application of team-based learning in graduate medical education the model of the clinical practice of emergency medicine creating the model of a clinical practice: the case of emergency medicine the model of the clinical practice of emergency medicine the model of the clinical practice of emergency medicine understanding by design stop the blame game: restructuring morbidity and mortality conferences to teach patient safety and quality improvement to residents educator toolkits on second victim syndrome, mindfulness and meditation, and positive psychology: the resident wellness consensus summit key: cord- - w r p authors: burstein, jonathan l. title: you shall not stand by date: - - journal: ann emerg med doi: . /j.annemergmed. . . sha: doc_id: cord_uid: w r p nan the threat of pandemic influenza or other very-large-scale natural, accidental, or terrorist-caused disasters has challenged society to develop methods to provide large-scale, long-term health care surge capacity. the needs of such an effort would include a large number of health care staff, in addition to training, equipment, medications, and, perhaps most notably, organization. issues to be settled include how to recruit, train, protect, and provide liability and workers compensation protection for health care workers who may be thrust into unusual situations, providing care at the limits of their training, in unaccustomed venues. the american college of emergency physicians, among others, strongly supports making such volunteer efforts possible while recognizing the difficulties. in this issue of annals, schultz and stratton describe a method for tackling the difficult issue of staffing: where will the caregivers be found? theirs is hardly the first or only method proposed for recruiting and credentialing staff to provide disaster care. as the authors note, for example, the federal government has established the emergency system for advance registration of volunteer health professionals. all states and several large cities in the united states are required to implement components of this system. so why do we need to even discuss the method described by this proposal? simply because it answers problems that emergency system for advance registration of volunteer health professionals may be unable to address, and in a nimble, rapid, and unencumbered fashion. as they point out, emergency system for advance registration of volunteer health professionals depends on pre-event volunteers who are willing to submit information and remain involved for years, perhaps without ever being called to help. in addition, as a bureaucratically driven system, it is only slowly being implemented; the current and tentative federal expectation is that this program, started in , may not be fully functional until (c. mclaughlin, written communication, november ; available from the author on request). under the emergency system for advance registration of volunteer health professionals, those not enrolled pre-event have no way to offer their services once a disaster strikes. in contrast, by enrolling all hospitalcredentialed staff, a database can provide a large list of potential volunteers who may not even know themselves whether they want to help until an event occurs. the systems are complementary, not competitive, and both may be needed in the event of a society-wide disaster. and we have seen, after twa flight , the september attacks, and hurricanes katrina and rita, that thousands of health care workers have spontaneously volunteered. we can reasonably expect that if an earthquake, or numerous simultaneous bombings, or even a flu pandemic, or the next severe acute respiratory syndrome epidemic strikes, physicians, nurses, emergency medical services (ems) personnel, and many others will step forward, freely, spontaneously, and willingly. we can expect people to help; it's a basic human desire. the systems we design now should allow for and expect that to happen. for example, in a true pandemic, it is hard to imagine that a willing and knowledgeable person would be turned away, but that may occur if he or she did not sign up for the emergency system for advance registration of volunteer health professionals program, perhaps "years ago." we need to accept, plan for, and support the universal impulse of health care personnel to help. perhaps our society should consider paying completely for nursing, ems, and physician education, in return for expecting help in a disaster; it is reasonable to expect that many would help anyway, and the more who are trained, even if nonpracticing, the more resilient we will be as a society. perhaps we should require that all high school graduates throughout the nation have completed training as a basic emergency medical technician, or basic patient-care and first-aid skills, or even just cardiopulmonary resuscitation training! now is the time to expend money and effort for the benefit of all, in return for greatly increasing our capacity and strength as a society. to judge by recent events, planners can rely on spontaneous volunteerism and can expect it to occur. it seems we do indeed live by the principle of lo ta'mod; perhaps that is what makes us truly human. murder or mercy? hurricane katrina and the need for disaster training american college of emergency physicians. acep policy statement on disaster response improving hospital surge capacity: a new concept for the emergency credentialing of volunteers supervising editor: michael l. callaham, md funding and support: the author reports this study did not receive any outside funding or support.reprints not available from the author. key: cord- - q jbcl authors: coppola, damon p. title: participants – multilateral organizations and international financial institutions date: - - journal: introduction to international disaster management doi: . /b - - - - . - sha: doc_id: cord_uid: q jbcl multilateral organizations are composed of sovereign governments. they may be regional, organized around a common issue or function, or global. international financial institutions (ifis) are international banks composed of sovereign member states that use public money from the member states to provide technical and financial support for developing countries. the united nations is the organization most involved in the mitigation of, preparedness for, response to, and recovery from disasters around the world. it is considered the best equipped to do so because of its strong relationships with most countries, especially the developing countries where assistance is most needed. when disasters strike, the un is one of the first organizations to mobilize, and it remains in the affected countries during the recovery period for many years after. the consolidated appeal process is one way the un garners international support for relief and reconstruction. in many regions, governments have formed smaller international organizations, many of which address risk, as well. the ifis provide nations with low capital reserves funding in the aftermath of disasters recovery reconstruction. the world bank is regarded as one of the largest sources of development assistance. a multilateral organization is an organization composed of the central governments of sovereign nations. multilateral organizations are also called intergovernmental organizations and international organizations. member states come together under a charter of rules and responsibilities they have drawn up and agreed on. multilateral organizations may be regionally based (e.g., the european union [eu] , the association of south east asian nations [asean]), organized around a common issue or function (e.g., the north atlantic treaty organization [nato] , the organization of the petroleum exporting countries [opec]), or globally based (e.g., the united nations [un] ). like sovereign states, they are recognized as having an established legal status under international law. the un is the most well-known and largest of all of the multilateral organizations because its membership draws from nearly every nation, and because it covers a wide range of issues. the first international organization to address the topic of disaster management was the international relief union (iru), which was founded in italy in and later integrated into the league of single vote, with key issues decided by two-thirds majority. (less significant matters are decided by simple majority.) as mentioned earlier, the general assembly cannot force its decisions on a sovereign state, although they generally receive wide support. the assembly holds regular sessions from september to december, and special/emergency sessions may be called at any time. when not in session, the assembly's work is carried out by its six main committees, other subsidiary bodies, and the secretariat. the un security council's primary responsibility is maintaining international peace and security in accordance with the un charter. this council, which convenes at will, consists of members, five of which are permanent members (china, france, the russian federation, the united kingdom, and the united states). all un member states are obligated to carry out the council's decisions. decisions require nine affirmative votes, including all five votes of the permanent members. when the council source: un, a. considers threats to international peace, it first explores peaceful settlement options. if fighting is under way, the council attempts to secure a cease-fire, and it may send a peacekeeping mission to help the parties maintain the truce and keep opposing forces apart. the council can take measures to enforce its decisions, such as imposing economic sanctions or arms embargoes. on rare occasions, the council has authorized member states to use "all necessary means," including collective military action, to see that its decisions are carried out. these are referred to as "peacemaking operations." the economic and social council is the central mechanism by which international economic and social issues are addressed and by which policy recommendations are created. it also consults with non-governmental organizations (ngos) to create and maintain working partnerships between the un and civil society. the council has members, elected by the general assembly for three-year terms. it meets throughout the year, but its main session is held in july, during which major economic, social, and humanitarian issues are discussed. the council has several subsidiary bodies that regularly meet to address issues such as human rights, social development, the status of women, crime prevention, narcotic drugs, and environmental protection. the trusteeship council originally provided international supervision for trust territories administered by seven member states and ensured that adequate steps were taken to prepare the territories for self-government or independence. by , all trust territories had attained self-government or independence. its work completed, the trusteeship council now consists of the five permanent members of the security council. it has amended its rules of procedure to allow it to meet as and when the occasion may require. the international court of justice, also known as the world court, is the un's main judicial organ. the world court consists of judges elected jointly by the general assembly and the security council. it serves to settle disputes between countries. participation is voluntary, but when a state agrees to participate, it must comply with the court's decision. the court also provides advisory opinions to the general assembly and the security council on request. the secretariat carries out the day-to-day work of the un as directed by the general assembly, the security council, and the other organs. at its head is the secretary general, who provides overall administrative guidance. the secretariat is made up of various departments and offices and maintains a total staff of about , people throughout the world. duty stations include the un headquarters in new york and offices in geneva, vienna, and nairobi, as well as other locations. the secretariat's functions are diverse, ranging from "administering peacekeeping operations to mediating international disputes, from surveying economic and social trends and problems to preparing studies on human rights and sustainable development" . the secretariat staffs also work to publicize the un's work through the world media and to organize conferences on issues of global concern. secretariat staffs are considered international civil servants and answer only to the un for their activities. disaster-response-oriented projects to disaster mitigation, the un adopted the international strategy for disaster reduction to promote disaster reduction and risk mitigation as part of its central mission. this initiative continues to evolve in its pursuit of disaster risk reduction, promoting global resilience to the effects of natural hazards, and reducing human, economic, and social losses by: • increasing public awareness of the hazard risks faced and the options to address them • obtaining commitment from public authorities to mainstream risk reduction into their work • stimulating interdisciplinary and intersectoral partnership and expanding risk-reduction networking at all levels • enhancing scientific research on the causes of natural disasters and the effects of natural hazards and related technological and environmental disasters on societies these strategies are integrated into the work carried out by each un country office and promoted to the national and local governments in each member country where the un works. hazard mitigation and disaster preparedness strategies are communicated to members of all levels of society via public awareness campaigns, and promoted by obtaining commitment from public authorities, facilitating cooperation and communication between various government and non-governmental sectors, and enabling the provision or transfer of technical knowledge. because the un is such a complex organization, it can be difficult to illustrate the myriad ways in which it addresses disaster management other than to describe the role of each organization and agency in this area. the un general assembly does not partake in any operational disaster management activities. however, as the main deliberative organ of the un, it is responsible for launching many influential and effective disaster management programs that are ultimately carried out by the various un offices and by the un member state governments. examples include the endorsement of the undp capacity for disaster reduction initiative (cadri) and the launching of the international decade for natural disaster reduction and its subsequent international strategy for disaster reduction. the general assembly is also responsible for organizing and reorganizing the un system to maximize its disaster management capabilities, as in under the un program for reform ( ) , which created the office for the coordination of humanitarian affairs (ocha) and the un office for disaster risk reduction (unisdr). the un secretariat is the international working staff of un employees located at duty stations throughout the world. the un secretariat employees carry out the diverse day-to-day work of the various un offices. it services the principal un organs and administers the programs and policies laid down by them. at its head is the secretary-general, who is appointed by the general assembly on the recommendation of the security council for five-year renewable terms. the secretariat has approximately , employees. as international civil servants, staff members and the secretary-general answer only to the un and take an oath not to seek or receive instructions from any government or outside authority. under the charter, each member state agrees to respect the appointed valerie amos of guyana to replace mr. john holmes of the united kingdom as under-secretary-general for humanitarian affairs/un emergency relief coordinator. ocha regional offices monitor the onset of natural and technological disasters. staff are trained in disaster assessment and post-disaster evaluation methods before disasters strike. once an impending or actual disaster event is identified, ocha initiates response and generates a situation report to provide the international response community with detailed information, including damage assessment, actions taken, needs assessment, and current assistance provided. if necessary, ocha may then deploy a un disaster assessment and coordination (undac) team to assist relief activity coordination and assess damages and needs. if a disaster appears inevitable or is already unfolding, the erc in consultation with iasc may designate a humanitarian coordinator (hc), who becomes the most senior un humanitarian official on the ground for the emergency. the hc is directly accountable to the erc, increasing the likelihood that the humanitarian assistance provided is quick, effective, and well-coordinated. the hc appointment generally signals that the event merits a long-term humanitarian presence. the criteria used by the erc to determine whether to appoint an hc center on the need for intensive and extensive political ocha organizational chart source: ocha, a. management, mediation, and coordination to enable the delivery of humanitarian response, including negotiated access to affected populations; massive humanitarian assistance requiring action by a range of participants beyond a single national authority; and a high degree of external political support, often from the un security council. an on-site operations coordination center (osocc) may be set up in the field to assist local firstresponse teams to coordinate the often overwhelming number of responding agencies. the osocc has three primary objectives: ( ) to be a link between international responders and the government of the affected country; ( ) to provide a system for coordinating and facilitating the activities of international relief efforts at a disaster site; and ( ) to provide a platform for cooperation, coordination, and information management among international humanitarian agencies. finally, ocha can set up communications capabilities if they have been damaged or do not exist at an adequate level, as required by the un responding agencies. ocha generally concludes its responsibilities when the operation moves from response to recovery. overall, ocha coordination is performed to maximize the response and recovery capabilities that converge on the disaster scene, and to minimize duplications and inefficiencies. the structures and policies that have been established to support this function include (adapted from ocha ): • developing common strategies. humanitarian assistance is most effective when common priorities and goals exist among stakeholders and responders agree on tactics and jointly monitor progress. ocha works with its partners to develop a common humanitarian action plan and to establish clear divisions of responsibility. • assessing situations and needs. ocha staff assume responsible for assessing damages and identifying needs, developing a plan of action to meeting those needs, and monitoring progress. responses are adjusted, if necessary, using ongoing analysis of political, social, economic, and military environments and by assessing humanitarian needs to help the responding agencies better understand the situation. • convening coordination forums. in its role as coordinator, ocha holds a wide range of meetings to bring together the various disaster management players for planning and information exchange. these meetings help the participants to more accurately analyze the overall status of humanitarian relief efforts as well as network and share lessons learned and best practices. • mobilizing resources. through the cap, ocha leads the drive to get governments to commit funding and resources necessary to address the identified needs. allocation of funds has been found to be more efficient within this centralized system. • addressing common problems. every crisis is unique, and both new and old problems arise. as coordinator, ocha analyzes and addresses problems common to humanitarian actors, such as negotiating with warring parties to gain access to civilians in need, or working with un security officials to support preparedness and response measures in changing security situations. • administering coordination mechanisms and tools. ocha, and the un in general, have several tools with which they can better address the humanitarian needs of disaster victims. these include the iasc; rapid-response tools, such as the un disaster assessment and coordination teams and the international search and rescue advisory group; and smaller forums such as the geographic information support team. ocha also assists with civil-military cooperation, ensuring a more efficient use of military and civil defense assets in humanitarian operations. the field coordination support unit in geneva manages ocha's human, technical, and logistical resources. these resources are primarily provided by the danish and norwegian refugee councils, the danish emergency management agency, the swedish rescue services agency, and the emergency logistics management team of the united kingdom overseas development administration. the under-secretary-general for humanitarian affairs/emergency relief coordinator advises the un secretary-general on disaster-related issues, chairs the executive committee on humanitarian affairs (echa), and leads the iasc. the coordinator is assisted by a deputy, who holds the position of deputy emergency relief coordinator (derc) and is responsible for key coordination, policy, and management issues. the inter-agency standing committee (iasc) was established in under un resolution / . it serves as a platform within which the broad range of un and non-un humanitarian partners (including un humanitarian agencies, the international organization for migration, three consortia of major international ngos, and the red cross movement) may come together to address the humanitarian needs resulting from a disaster. the iasc's primary role is to formulate humanitarian policy that ensures a coordinated and effective response to all kinds of disaster and emergency situations. the primary objectives of the iasc are to: • develop and agree on system-wide humanitarian policies • allocate responsibilities among agencies in humanitarian programs • develop and agree on a common ethical framework for all humanitarian activities • advocate common humanitarian principles to parties outside the iasc • identify areas where gaps in mandates or lack of operational capacity exist • resolve disputes or disagreement about and between humanitarian agencies on system-wide humanitarian issues (ocha ) iasc members (both full members and standing invitees) include: • the ocha donor relations section (drs), separated from the cap in , is the focal point for all relations with donors, particularly for funding-related issues. drs advises the senior management team on policy issues related to interaction with donors and resource mobilization. in addition, it plays a key role in facilitating the interaction of all ocha entities with donors, both at headquarters and in the field level. the coordination and response division (crd) was created in by joining the former new yorkbased humanitarian emergency branch and the geneva-based response coordination branch. crd is responsible for providing disaster-related direction, guidance, and support to the erc, the un resident/humanitarian coordinators, and ocha's field offices (including the deployment of extra personnel as necessary, or providing emergency cash grants). based in geneva, the ocha emergency services board (esb) was created to expedite the provision of international humanitarian assistance. esb develops, mobilizes, and coordinates the deployment of ocha's international rapid response "toolkit"-the expertise, systems, and services that aim to improve humanitarian assistance in support of disaster-afflicted countries. esb's humanitarian response activities include the coordination of disaster response and assessment (undac; see in the following section), the setting of international urban search and rescue standards (insarag; see in the following section), and the establishment of osoccs. esb supports ocha field offices through the following: • surge capacity and standby partnerships • military and civil liaison and mobilization of military and civil defense assets • dispatch of relief supplies and specialized assistance in environmental emergencies • dissemination of disaster-related information by means of reliefweb, the central register of disaster management capacities, and the virtual onsite operations coordination center. within the esb are seven separate sections, established to manage particular aspects of disaster response: . civil-military coordination section . emergency preparedness section . environmental emergencies unit . emergency relief coordination centre . field coordination support section . logistics support unit . surge capacity section established by the iasc in , the civil military coordination section (cmcs), previously named military and civil defense unit (mcdu), is the focal point for the efficient mobilization of military and civil defense assets for use in humanitarian emergencies and for liaison with governments, international organizations, regional organizations, and military-civil defense establishments deploying these assets. it also coordinates un agency participation and participates in major military exercises comprising significant humanitarian scenarios. this section is responsible for the overall management of the ocha central register of disaster management capacities, with specific maintenance of the mcda directory of military and civil defense assets and expertise. cmcs acts as a facilitator and secretariat to the development of documents involving the broad international humanitarian community and is custodian of the "oslo" and "mcda" guidelines detailing the use of mcda in support of un humanitarian operations in natural, technological, and environmental disasters and complex emergencies, respectively. the emergency preparedness section (eps) helps to maintain ocha's operational readiness and to reinforce disaster preparedness work. eps works with stakeholders at the national government level in un member countries in order to help build disaster response and recovery capacity in advance of disasters. much of the work performed by this unit is guided by the hyogo framework for action, which recommends the strengthening of disaster preparedness for effective response at all levels. the environmental emergencies unit, or the joint un environmental programme (unep)/ocha environment unit, serves as the integrated un emergency response mechanism that provides international assistance to countries experiencing environmental disasters and emergencies. this joint unit can rapidly mobilize and coordinate emergency assistance and response resources to countries facing environmental emergencies and natural disasters with significant environmental impacts. the unit performs several key functions geared toward facilitating rapid and coordinated disaster response: • monitoring. the unit performs continuous monitoring and ongoing communication with an international network of contacts and permanent monitoring of news services and websites for early notification of environmental occurrences. • notification. when disasters strike, the unit alerts the international community and issues "information and situation" reports to a comprehensive list of worldwide contacts. • brokerage. the unit is able to quickly establish contact between the affected country and donor governments ready and willing to assist and provide needed response resources. • information clearinghouse. the unit serves as an effective focal point to ensure information on chemicals, maps, and satellite images from donor sources and institutions are channeled to relevant authorities in the affected country. • mobilization of assistance. the unit mobilizes assistance from the international donor community when requested by affected countries. • assessment. the unit can dispatch international experts to assess an emergency's impacts and to make impartial and independent recommendations about response, cleanup, remediation, and rehabilitation. • financial assistance. in certain circumstances, the unit can release ocha emergency cash grants of up to $ , to meet immediate emergency response needs. the emergency relief coordination center (ercc) is the physical facility where ocha centralized coordination activities are focused. the facility enables closer collaboration between internal and external humanitarian stakeholders and has the capacity to serve as an ocha situation centre, providing updates on humanitarian relief activities worldwide. the centre consists of a main task force room, a small conference room that can also be used for a second task force, and a technical room to control all facility capabilities. the ercc allows ocha to coordinate two response teams simultaneously. the field coordination support section (fcss) was established within esb in to support national governments and the un resident coordinators in developing, preparing, and maintaining "standby capacity" for rapid deployment to sudden-onset emergencies to conduct rapid needs assessments and coordination. fcss manages several programs and offices to improve international disaster coordination and cooperation, including: • the united nations disaster assessment and coordination (undac) team. the undac team is made up of disaster management specialists selected and funded by the governments of un member states, ocha, undp, and operational humanitarian un agencies (such as wfp, unicef, and who). it provides rapid needs assessments and supports national authorities and the un resident coordinator in organizing international relief. undac teams are on permanent standby status so that they can deploy within hours. • the international search and rescue advisory group (insarag) . insarag is an intergovernmental network within the un that manages urban search and rescue (usar) and related disasterresponse issues. it promotes information exchange, defines international usar standards, and develops methodologies for international cooperation and coordination in earthquake response. • the virtual on-site operations coordination centre (virtual osocc). the internet has made it possible for humanitarian relief agencies to share and exchange disaster information continuously and simultaneously, and between any locations where internet access can be obtained. the virtual osocc is a central repository of information maintained by ocha that facilitates this exchange of information with ngos and responding governments. the information is stored on an interactive web-based database, where users can comment on existing information and discuss issues of concern with other stakeholders. the logistics support unit (lsu) manages stocks of basic relief items that can be dispatched immediately to disaster-or emergency-stricken areas. the stockpile, which is located at the un humanitarian response depot in brindisi, italy, includes nonfood, nonmedical relief items (such as shelter, water purification and distribution systems, and household items) donated by un member governments. the lsu is also involved in other logistical challenges, such as designing contingency plans for the rapid deployment of emergency relief flights and providing interface on logistical matters with other humanitarian agencies (such as wfp, who, unhcr, ifrc, and icrc). the lsu participates in the operation of a un joint logistics center (see exhibit . ) and has co-sponsored an effort to adopt a un-wide system for tracking the un joint logistics center (unjlc) is an interagency facility reporting to the humanitarian coordinator [within a che], and overall to the iasc. its mandate is to coordinate and optimize the logistics capabilities of humanitarian organizations in large-scale emergencies. unjlc operates under the direction of the world food programme (wfp), who is responsible for the administrative and financial management of the centre. the unjlc is funded from voluntary contributions channeled through wfp. the requirement to establish [the unjlc] was born out of the humanitarian response to the eastern zaire crisis, which demanded intensified coordination and pooling of logistics assets among unhcr, wfp, and unicef. the interagency logistics coordination model was applied on subsequent unjlc interventions in somalia, kosovo, east timor, mozambique, india, and afghanistan. in march , unjlc concept was institutionalized as a un humanitarian response mechanism, under the aegis of wfp, by the inter-agency standing committee working group (iasc-wg). the unjlc core unit was subsequently established in rome. in case of major disaster with substantial humanitarian multi-sector involvement during the immediate relief phase, the un agencies involved may consider that the establishment of a joint logistics centre would contribute to the rapid response, better coordination, and improved efficiency of the humanitarian operation at hand. . . . a standby capacity will be developed for facilitating, if required, the timely activation and deployment in the field of a united nations joint logistics centre-unjlc. the unjlc will support the united nations agencies and possibly other humanitarian organisations that operate in the same crisis area. the capacity includes the option to establish satellite joint logistic centres (jlc) dispersed at critical locations in the [affected area] and offering logistics support on a reduced scale. . . . upon [unjlc] activation, agencies will establish a deployment requirements assessment (dra) team to carry out a quick evaluation of the logistics situation and determine the requirements to deploy the unjlc in the crisis area. this dra team will work in close coordination with the humanitarian authorities and, if deployed, with the united nations disaster assessment and coordination (undac) team. it will take all necessary measures for installing the unjlc and draft ad hoc terms of reference (tor) for endorsement by the relevant humanitarian authorities. in case of peacekeeping operations or in a complex environment, the unjlc activation will be coordinated with the department of peacekeeping operations (dpko) or the relevant military entities. • the role of the unjlc will be to optimise and complement the logistics capabilities of cooperating agencies within a well-defined crisis area for the benefit of the ongoing humanitarian operation. • the unjlc will provide logistics support at operational planning, coordination, and monitoring levels. unless specified otherwise, the un agencies and other humanitarian bodies, which are established in the area, will continue (continued) relief supplies and common procedures for air operations. finally, the lsu contributes information related to stockpiles and customs facilitation agreements (which helps speed up the delivery of relief items). the surge capacity section (scs) works to ensure ocha always has the means and resources to rapidly mobilize and deploy staff and materials to address the needs of countries affected by suddenonset emergencies. scs operates using a number of distinct surge capacity resources, which include: • the emergency response roster (err). err, which became active in june , aims to rapidly deploy ocha staff to sudden-onset emergencies to conduct assessments and establish initial coordination mechanisms. the staff included in the err are deployable within hours of a request for their services through a deployment methodology based on the undac model. staff serve on the roster for about six months. • the stand-by partnerships programme (sbpp). sbpp is structured on legal agreements with partner organizations that provide short-term staffing to field operations free of charge when gaps arise. partners maintain their own rosters of trained and experienced humanitarian professionals, many of whom have ocha or other un humanitarian experience. sbpp staff can usually be deployed within four weeks of the formal request, and an average deployment lasts five to six months. • associates surge pool (asp). asp, which was created in late , helps to bridge the gap between the immediate response surge and the arrival of regular staff. asp comprises external disaster management staff who can be deployed for up to six months upon the issuance of a temporary appointment. contracting and deployment preparations take an average of three to four to exercise their normal responsibilities. as a result, the unjlc will not be involved in policy and establishment of humanitarian needs and priorities. • responsibilities will be defined as per the requirements on a case-by-case basis but will, in principle, be limited to logistic activities between the points of entry and distribution in the crisis area. detailed responsibilities . . . would be: • collecting, analysing, and disseminating logistics information relevant to the ongoing humanitarian operation; • scheduling the movement of humanitarian cargo and relief workers within the crisis area, using commonly available transport assets; • managing the import, receipt, dispatch, and tracking of non-assigned food and nonfood relief commodities; • upon specific request, making detailed assessments of roads, bridges, airports, ports, and other logistics infrastructure and recommending actions for repair and reconstruction. • the scope of the unjlc activities may vary with the type of emergency, the scale of involvement of the cooperating partners, and the humanitarian needs. the reso and roso positions were created following a need to have senior surge staff available to deploy to new and escalating emergencies for up to three months to provide leadership and stability to ocha operations. they spend percent of their time in the field and percent at headquarters. when not in the field, resos and rosos work with the surge staff development team to develop and deliver trainings and support lesson learning and other exercises to improve ocha emergency response during non-deployment periods. although ocha's efforts primarily focus on coordinating the response to major disasters, the agency also performs various tasks related to disaster risk reduction. for instance, ocha representatives work with disaster management agencies to develop common policies aimed at improving how the wider stakeholder community of responders prepare for and respond to disasters. it also works to promote preparedness and mitigation efforts in member states to decrease vulnerability. crd and esb work closely with the un development programme, other un programs as necessary, and outside organizations on various projects and activities to increase working relationships with national governments and apply lessons learned from completed disaster responses. ocha's geneva offices are continually monitoring geologic and meteorological conditions, as well as major news services, for early recognition or notification of emerging disasters. working with un resident coordinators, country teams, and regional disaster response advisers, ocha maintains close contact with disaster-prone countries in advance of and during disaster events. ocha's regional disaster response advisers work with national governments to provide technical, strategic, and training assistance. they also provide this assistance to other un agencies and regional organizations to improve international disaster management capacity. • it facilitates the negotiations of member states in many intergovernmental bodies on joint courses of action to address ongoing or emerging global challenges. • it advises national governments on translating un-developed policy frameworks into countrylevel programs and, through technical assistance, helps build national capacities. this final area is where desa addresses disaster management activities within its division for sustainable development. as part of this effort, desa launched a plan of action during the world summit on sustainable development in johannesburg, south africa, that included commitments to disaster and vulnerability reduction. see exhibit . for more information on this plan of action. the un center for regional development (uncrd) is another component of desa that addresses disaster management issues. through its headquarters in nagoya, japan, and its regional offices in nairobi, kenya, and bogotá, colombia, uncrd supports training and research on regional an integrated, multi-hazard, inclusive approach to address vulnerability, risk assessment, and disaster management, including prevention, mitigation, preparedness, response, and recovery, is an essential element of a safer world in the twenty-first century. actions are required at all levels to: . strengthen the role of the international strategy for disaster reduction and encourage the international community to provide the necessary financial resources to its trust fund; . support the establishment of effective regional, subregional, and national strategies and scientific and technical institutional support for disaster management; . strengthen the institutional capacities of countries and promote international joint observation and research, through improved surface-based monitoring and increased use of satellite data, dissemination of technical and scientific knowledge, and the provision of assistance to vulnerable countries; . reduce the risks of flooding and drought in vulnerable countries by, [among other things], promoting wetland and watershed protection and restoration, improved land-use planning, improving and applying more widely techniques and methodologies for assessing the potential adverse effects of climate change on wetlands and, as appropriate, assisting countries that are particularly vulnerable to those effects; . improve techniques and methodologies for assessing the effects of climate change, and encourage the continuing assessment of those adverse effects by the intergovernmental panel on climate change; . encourage the dissemination and use of traditional and indigenous knowledge to mitigate the impact of disasters and promote community-based disaster management planning by local authorities, including through training activities and raising public awareness; . support the ongoing voluntary contribution of, as appropriate, ngos, the scientific community, and other partners in the management of natural disasters according to agreed, relevant guidelines; . develop and strengthen early warning systems and information networks in disaster management, consistent with the international strategy for disaster reduction; . develop and strengthen capacity at all levels to collect and disseminate scientific and technical information, including the improvement of early warning systems for predicting extreme weather events, especially el niño/la niña, through the provision of assistance to institutions devoted to addressing such events, including the international center for the study of the el niño phenomenon; . promote cooperation for the prevention and mitigation of, preparedness for, response to, and recovery from major technological and other disasters with an adverse impact on the environment in order to enhance the capabilities of affected countries to cope with such situations. development issues and facilitates information dissemination and exchange. uncrd maintains a disaster management planning office in hyogo, japan, that researches and develops communitybased, sustainable projects for disaster management planning and capacity-building in developing countries. the hyogo office also runs the global earthquake safety initiative, designed to improve risk recognition and reduction in cities around the world. five regional economic commissions are within the economic and social council. the secretariats of these regional commissions are part of the un secretariat and perform many of the same functions (including the disaster management functions listed earlier). the five commissions promote greater economic cooperation in the world and augment economic and social development. as part of their mission, they initiate and manage projects that focus on disaster management. while their projects primarily deal with disaster preparedness and mitigation, they also work in regions that have been affected by a disaster to ensure that economic and social recovery involves adequate consideration of risk reduction measures. the five regional commissions are: • in response periods of disasters, the united nations development programme (undp) sees that development does not cease during emergencies. if relief efforts are to contribute to lasting solutions, sustainable human development must continue to be vigorously supported, complementing emergency action with new curative initiatives that can help prevent a lapse into crisis. (un, ) the undp was established in during the un decade of development to conduct investigations into private investment in developing countries, to explore the natural resources of those countries, and to train the local population in development activities such as mining and manufacturing. as the concept and practice of development expanded, the undp assumed much greater responsibilities in host countries and in the un as a whole. the undp was not originally considered an agency on the forefront of international disaster management and humanitarian emergencies because, while it addressed national capacities, it did not focus specifically on the emergency response systems (previously considered to be the focal point of disaster management). however, as mitigation and preparedness received their due merit, undp gained increased recognition for its vital risk reduction role. capacity building has always been central to the undp's mission in terms of empowering host countries to be better able to address issues of national importance, eventually without foreign assistance. international disaster management gained greater attention as more disasters affected larger populations and caused greater financial impacts. developing nations, where the undp worked, faced the greatest inability to prepare for and/or respond to these disasters, largely as a result of the development trends described in chapter . undp's projects have shifted toward activities that indirectly fulfill mitigation and preparedness roles. for instance, projects seeking to strengthen government institutions also improve those institutions' capacities to respond with appropriate and effective policy, power, and leadership in the wake of a disaster. undp fully recognizes that disaster management must be viewed as integral to their mission in the developing world as well as to civil conflict and che scenarios. there are implicit similarities between undp ideals and those of agencies whose goals specifically aim to mitigate and manage humanitarian emergencies. undp work links disaster vulnerability to a lack of or a weak infrastructure, poor environmental policy, land misuse, and growing populations in disaster-prone areas. when disasters occur, a country's national development, which the undp serves to promote, can be set back years, if not decades. even small-to medium-size disasters in the least developed countries can "have a cumulative impact on already fragile household economies and can be as significant in total losses as the major and internationally recognized disasters" (undp ) . it is the undp's objective to "achieve a sustainable reduction in disaster risks and the protection of development gains, reduce the loss of life and livelihoods due to disasters, and ensure that disaster recovery serves to consolidate sustainable human development" (un ) . in , as part of the un's changing approach to humanitarian relief, the emergency response division (erd) was created within the undp, augmenting the organization's role in disaster response. additionally, percent of undp budgeted resources were allocated for quick response actions in special development situations by erd teams, thus drastically reducing bureaucratic delays. the erd was designed to create a collaborative framework among the national government, un agencies, donors, and ngos that immediately respond to disasters, provide communication and travel to disaster management staff, and distribute relief supplies and equipment. it also deploys to disaster-affected countries for days to create a detailed response plan on which the undp response is based. in , under the un programme for reform, the mitigation and preparedness responsibilities of the ocha emergency relief coordinator were formally transferred to the undp. in response, the undp created the disaster reduction and recovery programme (drrp) within the erd. soon after, the undp again reorganized, creating the bureau of crisis prevention and recovery (bcpr) with an overarching mission of addressing a range of non-response-related issues: • disaster risk reduction and climate change management • conflict prevention • rule of law, justice, and security in countries affected by crises • women in conflict prevention, peacebuilding, and recovery • immediate crisis response • livelihoods and economic recovery • crisis governance bcpr helps undp country offices prepare to activate and provide faster and more effective disaster response and recovery. it also works to ensure that undp plays an active role in the transition between relief and development. undp's disaster management activities focus primarily on the development-related aspects of risk and vulnerability and on capacity-building technical assistance in all four phases of emergency management. it emphasizes: • incorporating long-term risk reduction and preparedness measures in normal development planning and programs, including support for specific mitigation measures where required; • assisting in the planning and implementation of post-disaster rehabilitation and reconstruction, including defining new development strategies that incorporate risk-reduction measures relevant to the affected area; • reviewing the impact of large settlements of refugees or displaced persons on development, and seeking ways to incorporate the refugees and displaced persons in development strategies; • providing technical assistance to the authorities managing major emergency assistance operations of extended duration (especially in relation to displaced persons and the possibilities for achieving durable solutions in such cases). undp spends between $ and $ million each year on disaster risk reduction projects. the focus of these projects has included the establishment or strengthening of early warning systems, the conduct of risk assessments and drafting of hazard maps, and the establishment of national disaster management agencies. through their projects, undp staff help to strengthen national and regional capacities by ensuring that new development projects consider known hazard risks, that disaster impacts are mitigated and development gains are protected, and that risk reduction is factored into disaster recovery. following conflict, crises, and disasters, countries must transition from response to recovery. many countries are unable to manage the difficult and widespread needs of recovery on their own, as they may have experienced widespread loss of infrastructure and services. displaced persons and refugees may have little to return to, and economies may be damaged or destroyed. bcpr operates during the period when the response or relief phase of the disaster has ended but recovery has not fully commenced (sometimes referred to as the "early recovery period"). sustainable risk reduction is central to the undp recovery mission. the bureau recognizes that local expertise in risk management and reduction may not be available, and that the technical assistance they provide may be the only option these communities have to increase their resilience to future disasters. this program has proved effective in many countries' recovery operations, including cambodia after three decades of civil war, afghanistan after the conflict, and gujarat, india, after the earthquake. the top recipients of undp crisis prevention and recovery funding include: to meet these recovery priorities, five support services have been developed to assist the undp country offices and other undp/un agencies to identify areas where bcpr can provide assistance. these support services include: • early assessment of recovery needs and the design of integrated recovery frameworks. this includes assessing development losses caused by conflict or natural disaster, the need for socioeconomic and institutional recovery, identification of local partners, and the need for capacity building and technical assistance. • planning and assistance in area-based development and local governance programs. area-based development and local governance programs play key roles in recovery from conflict because they tailor emergency, recovery, and development issues across a country area by area, based on differing needs and opportunities. area-based development helps bring together different actors at the operational level, promoting enhanced coordination, coherence, and impact at field level. areabased development is often seen as the core mechanism that most benefits reintegration. • developing comprehensive reintegration programs for idps, returning refugees, and ex-combatants. internal displacement, returning refugees, and demobilized former combatants create a huge need for in-country capacity building on different levels. protection and security become serious issues, and efforts to sustainably reintegrate these populations into their host communities are critical. bcpr provides expertise on reintegration of idps, returnees, and ex-combatants, including capacity building benefiting both the returnees and the formerly displaced, as well as their host communities, through activities such as income generation, vocational training, and other revitalization activities. • supporting economic recovery and revitalization. one main characteristic of disasters and conflict is their devastating impact on the local and national economies. livelihoods are destroyed through insecurity, unpredictability, market collapse, loss of assets, and rampant inflation. for recovery to be successful, these issues need to be well understood from the outset and addressed accordingly. • supporting capacity building, coordination, resource mobilization, and partnerships. protracted conflict and extreme disasters tend to create political stressors that temporarily exceed the capacities of un country offices and other ngo partners. however, many recovery needs must be addressed right away to ensure that recovery sets out on a sustainable course. bcpr offers several services to accommodate the needs of this intense phase through the provision of surge capacity and short-to medium-term staff, assistance in resource mobilization within specific fundraising and coordination frameworks (such as the cap), and partnership building. when required to assist in recovery operations, bcpr may deploy a special transition recovery team (trt) to supplement undp operations in the affected country. the focus for these teams varies according to specific needs. for instance, when neighboring countries have interlinked problems (such as cross-border reintegration of ex-combatants and displaced persons), the trt may support a subregional approach to recovery. it is important to note that the undp has no primary role in the middle of a che peacekeeping response, only a supportive one in helping to harmonize development with relief. during recovery and reconstruction, together with others, they take the lead. in addition to the previously mentioned roles and responsibilities, the undp leads several interagency working groups. one such group (which consists of representatives from the wfp, who, the food and agriculture organization [fao] , the un populations fund, and unicef) develops principles and guidelines to incorporate disaster risk into the common country assessment and the un development assistance framework. the international strategy for disaster reduction working group on risk, vulnerability, and disaster impact assessment sets guidelines for social impact assessments. undp also coordinates a disaster management training programme in central america, runs the conference "the use of microfinance and micro-credit for the poor in recovery and disaster reduction," and has created a program to elaborate financial instruments to enable the poor to manage disaster risks. the undp has several reasons for its success in fulfilling its roles in the mitigation, preparedness, and recovery for natural and man-made disasters. first, as a permanent in-country office with close ties to most government agencies, activities related to coordination and planning, monitoring, and training are simply an extension of ongoing relationships. the undp works in the country before, during, and long after the crisis. it is able to harness vast first-hand knowledge about the situations leading up to a crisis and the capacity of the government and civil institutions to handle a crisis, and can analyze what weaknesses must be addressed by the responding aid agencies. in addition, its neutrality dispels fears of political bias. second, the undp functions as a coordinating body of the un agencies concerned with development, so when crisis situations appear, there is an established, stable platform from which it may lead. from this leadership vantage, it can (theoretically) assist in stabilizing incoming relief programs of other responding un bodies, such as the wfp, unicef, the department of humanitarian affairs, and the unhcr. once the emergency phase of the disaster has ended and ocha prepares to leave, undp is in a prime position to facilitate the transition from response efforts to long-term recovery. and third, the undp has experience dealing with donors from foreign governments and development banks, and can therefore handle the outpouring of aid that usually results during the relief and recovery period of a disaster. this contributes greatly to reducing levels of corruption and increasing the cost-effectiveness of generated funds. in several recent events, the undp has established formalized funds to handle large donor contributions, which have been used for long-term post-disaster reconstruction efforts. (see exhibits . and . ). when a major disaster operation requires extended efforts, the undp may accept and administer special extra-budgetary contributions to provide the national government with both technical and material assistance, in coordination with ocha and other agencies involved in the un disaster management team (dmt). an example of such assistance includes the establishment and administration of a un dmt emergency information and coordination (eic) support unit. special grants of up to $ . million also may be provided, allocated from the special programme resources funds for technical assistance to post-disaster recovery efforts following natural disasters. see exhibit . for information about the undp capacity for disaster reduction initiative (cadri). like most major un agencies, unicef (formerly known as the united nations international children's emergency fund) was established in the aftermath of world war ii. its original mandate was to aid children suffering in postwar europe, but this mission has been expanded to address the needs of women and children throughout the world. unicef is mandated by the general assembly to advocate for children's rights, to ensure that each child receives at least the minimum requirements for survival, and to increase children's opportunities for a successful future. under the convention on the rights of on may , , the government of sri lanka declared military victory over the rebel liberation tigers of tamil eelam, formally ending a decades-long armed conflict. in the wake of the war, undp demonstrated that developing and building on strong partnerships is key to ensuring a fast and well-targeted response. an estimated , idps gathered in camps during the first half of . many of them lacked basic documentation, making it difficult to access basic services and prove claims to land and assets. undp assisted the registrar general to establish a temporary office inside one of the largest camps with capacity to process birth and marriage certificates per day, complemented by additional staffing capacity in colombo to handle the increased number of document requests. between july and december the camp office processed close to , requests, prioritizing those from children who needed identification to sit for national school exams. undp also supported mine action coordination and management. survey and clearance activities advanced rapidly, and by the end of a total of square kilometers of land had been released for resettlement. this allowed the pace of returns and resettlements to increase exponentially in the fourth quarter of , with over , idps returning or resettling. in the eastern province, fao, ilo, wfp, unhcr, and undp continued to champion the "delivering as one" approach to support community-based recovery and contribute to the stability of returnees in selected divisions of the east. as the funding conduit, undp was in charge of the overall coordination of project implementation while also directly implementing small-scale infrastructure construction such as roads, wells, and community centers (which provided a space for cooperatives and trading groups to come together). the selection of target communities was informed through village profile maps and data generated by unhcr, while wfp provided six months' worth of food supply rations, until the foundations for agricultural self-reliance and food security for resettled families were laid. undp also launched a new initiative in to foster partnerships between sri lanka's manufacturers and resettled communities. undp, with its presence in the field, played a catalytic role, identifying the resettled communities, facilitating meetings with the large consumer companies, securing fair and long-term contracts, and supporting training as well as supply of equipment to improve production. through this project, farming and fishing families in the north and the east have secured income for the next two to three years. on may , , cyclone aila hit southern bangladesh, resulting in widespread tidal flooding and the destruction of large parts of the region's protective embankment network. economic losses were estimated at $ million and more than , families were affected in satkhira, the district that had also suffered the most from cyclone sidr in . many of the affected were still recovering from the impact of the earlier disaster. the government of bangladesh provided emergency relief and planned for the reconstruction of the damaged embankment network, but many of the most vulnerable families have been unable to return to their homes, which remain submerged. with funding from the undp bureau of crisis prevention and recovery (bcpr), an early recovery program focused on livelihoods was developed, covering all villages in the worst-affected part of satkhira. the program included a cash-forwork component that built on self-recovery efforts of affected families. this resulted in the creation of an estimated , work days devoted to road repair and ground elevation. the program also included support for the restoration of essential community infrastructure; support to local small enterprises through working capital grants for carpentry tools, sewing machines, and tea stall equipment; and assistance for home-based income-generating activities, such as vegetable cultivation, crab fattening, handicrafts, poultry rearing, and fish drying. this effort benefited more than , families. the child (crc), a treaty adopted by countries, the unhcr holds broad-reaching legal authority to carry out its mission. as of late , unicef maintains country offices in more than different nations. this is probably its greatest asset in terms of the agency's disaster management capacity. preparedness and mitigation for disasters among its target groups is a priority, with programs able to address both local-level action and national-level capacity building. in keeping with the recommendations laid out by the yokohama strategy and plan of action for a safer world, unicef incorporates disaster reduction into its national development plans. it also considers natural hazard vulnerability and capacity assessments when determining overall development needs to be addressed by un country teams. through public education campaigns, unicef works to increase public hazard awareness and knowledge and participation in disaster management activities. unicef country offices include activities that address these pre-disaster needs in their regular projects. for example, they develop education materials required for both children and adults, and then design websites so educators and program directors can access or download these materials for use in their communities. in situations of disaster or armed conflict, unicef is well poised to serve as an immediate aid provider to its specific target groups. its rapid-response capacity is important because vulnerable groups are often the most marginalized in terms of aid received. unicef works to ensure that children have access to education, health care, safety, and protected child rights. in the response and recovery periods of humanitarian emergencies, these roles expand according to victims' needs. (in countries where uni-cef has not yet established a permanent presence, the form of aid is virtually the same; however, the timing and delivery are affected, and reconstruction is not nearly as comprehensive.) the unicef office of emergency programmes (emops), which has offices in new york and geneva, maintains overall responsibility for coordinating unicef's emergency management activities. cadri was created in as a joint program of the undp bureau for crisis prevention and recovery (undp/bcpr), the united nations office for the coordination of humanitarian affairs (ocha), and the secretariat of the international strategy for disaster reduction (isdr). recognizing that capacity development is a cross-cutting activity for disaster risk reduction as stipulated in the hyogo framework (hf), cadri's creation is designed to support all five priorities of the hf. cadri was formally launched by the three organizations at the global platform for disaster risk reduction meeting, june , geneva. cadri succeeds the un disaster management training programme (dmtp), a global learning initiative, which trained united nations, government, and civil society professionals between and . dmtp is widely known for its pioneering work in developing high-quality resource materials on a wide range of disaster management and training topics. more than trainers' guides and modules were developed and translated. cadri's design builds on the success and lessons learned from the dmtp and reflects the significant evolution in the training and learning field since the start of the dmtp, particularly regarding advances in technology for networking and learning purposes. cadri's design also reflects the critical role that the un system plays at the national level in supporting governments' efforts to advance disaster risk reduction. in the context of the un's increasingly important role, cadri provides capacity enhancement services to the un system at the country level as well as to governments. these include learning and training services and capacity development services to support governments to establish the foundation for advancing risk reduction. emops works closely with the unicef programme division, managing the unicef emergency programme fund (epf; see the following section) and ensuring close interagency coordination with other participating humanitarian organizations. in this role, unicef is also in the position to act as coordinator in specific areas in which it is viewed as the sector leader. for instance, unicef was tasked with leading the international humanitarian response in the areas of water and sanitation, child protection, and education for the asia tsunami and earthquake response. (in aceh province alone, more than agencies addressed water and sanitation issues.) unicef maintains that humanitarian assistance should include programs aimed specifically at child victims. its relief projects generally provide immunizations, water and sanitation, nutrition, education, and health resources. women are recipients of this aid as well, because unicef considers women to be vital in the care of children. (see exhibit . .) to facilitate an immediate response to an emergency situation, unicef is authorized to divert either $ , or $ , from country program resources (depending on whether the country program's annual budget is above or below $ million, respectively) to address immediate needs. if the disaster is so great it affects existing unicef programs operating in the country, the unicef representative can shift these programs' resources once permission is received from the national government and unicef headquarters. unicef also maintains a $ million global epf, which provides funding for initial emergency response activities. by the end of the three weeks of fighting in early in gaza, children had been killed and , injured, and much of gaza's infrastructure, including schools, health facilities, and vital infrastructure for water and sanitation, had been damaged. unicef was on hand to provide humanitarian support. it led the collective efforts of un agencies on the ground to restore education, provide emergency water supplies and sanitation, maintain nutritional standards, and protect children from further harm. from the early days, unicef made sure that first aid and emergency medical kits, essential drugs, and water purification tablets flowed into gaza. emergency education supplies such as classroom tents and school-in-a-box kits maintained some sense of continuity and normalcy for children. unicef and its partners were able to reach more than , school-age children. unicef raised global awareness of the harm being done to children through extensive media coverage and advocacy. attention was also raised by the visits of the special representative of the secretary-general for children and armed conflict, radhika coomaraswamy-who called for the protection of children-and unicef executive director ann m. veneman, as well as goodwill ambassadors mia farrow and mahmoud kabil. unicef also extended psychosocial services, including in-depth counselling and structured recreational activities, across gaza. training reinforced the capacities of psychosocial workers to protect children and help them heal. radio programmes and , leaflets designed for children warned of the risks of mines and unexploded ordnance left behind. unicef water tankers ensured a steady supply of clean drinking water to schools with , students, while desalination units were installed to rid water of dangerous concentrations of chlorides and nitrates. to thwart the risk of acute malnutrition, unicef worked through health clinics for mothers and children to offer supplements of micronutrients and fortified food. the quality and supply of teaching materials were improved through unicef's provision of math and science teaching kits. programmes for vulnerable adolescents concentrated on supporting remedial learning, relieving stress, and providing life skills-based education and opportunities to engage in civic activities. through unicef's systematic advocacy with partner organizations, almost half the attendees were girls. the world food programme (wfp) is the un agency tasked with addressing hunger-related emergencies. it was created in by a resolution adopted by the un general assembly and the un fao. today, the program operates in countries and maintains eight regional offices. in the year alone, the wfp provided . million metric tons of food aid to . million people in countries through its relief programs. over the course of its existence, the wfp has provided more than million metric tons of food to countries worldwide. wfp was an early member of the former inter-agency task force for disaster reduction (see below) and maintains disaster risk reduction as one of its priority areas, focusing on reducing the impact of natural hazards on food security, especially for the vulnerable. the wfp policy on disaster risk reduction and management, approved in , highlights this role as being central to the organization's work. wfp drr programs seek to build resilience and reduce risk through such activities as soil and water conservation, rehabilitating infrastructure, and training community members in disaster risk management and livelihood protection. the meret project in ethiopia is one example. this program targets food-insecure communities in degraded fragile ecosystems prone to drought-related food crises. other programs maintained by wfp include: • r resilience initiative: the rural resilience initiative (r ) is a partnership between wfp and oxfam america, with support from global reinsurance company swiss re, to test a new, comprehensive disaster risk reduction and climate change adaptation approach. the program allows cash-poor farmers and rural households to pay for index insurance with their own labor, so they can both manage and take risks to build resilient livelihoods. • livelihoods early assessment and protection (leap): wfp has been assisting the government of ethiopia to develop an integrated risk management system through the livelihoods early assessment and protection (leap) project. leap provides early warning data on food security that allows a rapid scale-up of the "national productive safety net programme" by activating contingency plans. when a serious drought or flood is detected, resources from a us$ million contingency fund are made immediately available to ensure early and more effective emergency response, thereby protecting livelihoods and saving lives. • the joint wfp/ifad weather risk management facility (wrmf): wrmf supports the development of innovative weather and climate risk management tools, such as weather index insurance (wii). the goal of these programs is to improve quality-of-life issues and to reduce the incidence of food shortages. this program was launched in through funding from the bill and melinda gates foundation. it has been piloted in china and ethiopia. wfp has established a steering committee for disaster mitigation to help its offices integrate these activities into regular development programs. examples of mitigation projects that focus on food security include water harvesting in sudan (to address drought), the creation of grain stores and access roads in tanzania, and the creation of early warning and vulnerability mapping worldwide. because food is a necessity for human survival and is considered a vital component of development, a lack of food is, in and of itself, an emergency situation. the wfp works throughout the world to assist the poor who do not have sufficient food so they can survive "to break the cycle of hunger and poverty." hunger crises are rampant-more than billion people across the globe receive less than the minimum standard requirement of food for healthy survival. hunger may exist on its own, or it may be a secondary effect of other hazards such as drought, famine, and displacement. the wfp constantly monitors the world's food security situation through its international food aid information system (fais). using this system, wfp tracks the flow of food aid around the world (including emergency food aid) and provides the humanitarian community with an accurate inventory and assessment of emergency food-stock quantities and locations. this database also includes relevant information that would be needed in times of emergency, such as anticipated delivery schedules and the condition and capabilities of international ports. in rapid-onset events such as natural disasters, the wfp is a major player in the response to the immediate nutritional needs of the victims. food is transported to the affected location and delivered to storage and distribution centers. (see figure . .) the distribution is carried out according to preestablished needs assessments performed by ocha and the undp. the wfp distributes food through contracted ngos that have the vast experience and technical skills to plan and implement transportation, storage, and distribution. the principal partners in planning and implementation are the host rice donated by japan is loaded by the world food programme onto wfp trucks to feed survivors of the asia tsunami and earthquake events sources: skullard, ; wfp, . governments, who must request the wfp aid, unless the situation is a che without an established government, in which case the un secretary-general makes the request. the wfp works closely with all responding un agencies to coordinate an effective and broad-reaching response, because food requirements are so closely linked to every other vital need of disaster victims. during the reconstruction phase of a disaster, the wfp often must continue food distribution. rehabilitation projects are implemented to foster increased local development, including the provision of food aid to families, who, as a result, will have extra money to use in rebuilding their lives; and food-for-work programs, which break the chains of reliance on aid as well as provide an incentive to rebuild communities. wfp administers the international emergency food reserve (iefr), which was originally designed to store a minimum of , tons of cereals. this program has not enjoyed the full support of donors as agreed in its creation, however, and as such, annual funding levels have fluctuated significantly. if supported, iefr would manage separate resources provided by donors to address long-term operations such as ches, and would dedicate $ million from its general resources for emergency assistance in addition to $ million for long-term emergency assistance. the program's immediate response account is a cash account maintained for rapid purchase and delivery of food in emergency situations. resources would be purchased from local markets (whenever possible), thereby ensuring food arrives sooner than other aid, which must move through regular channels. wfp response begins at the request of the affected country's government. . in the early days of an emergency, while the first food supplies are being delivered, emergency assessment teams are sent in to quantify exactly how much food assistance is needed for how many beneficiaries and for how long. they must also work out how food can best be delivered to the hungry. . equipped with the answers, wfp draws up an emergency operation (emop), including a plan of action and a budget. [the emop] lists who will receive food assistance, what rations are required, the type of transport wfp will use, and which humanitarian corridors lead to the crisis zone. . next, wfp launches an appeal to the international community for funds and food aid. the agency relies entirely on voluntary contributions to finance its operations, with donations made in cash, food, or services. governments are the biggest single source of funding. [more than governments support wfp's worldwide operations.] . as funds and food start to flow, wfp's logistics team works to bridge the gap between the donors and the hungry. [in , the agency delivered . million metric tons of food aid by air, land, and sea.] (wfp ) ships carry the largest wfp cargo, their holds filled to the brim with , tons or more of grain, cans of cooking oil, and canned food; the agency has ships on the high seas every day, frequently rerouting vessels to get food quickly to crisis zones. in extreme environments, wfp also uses the skies to reach the hungry, airlifting or airdropping food directly into disaster zones. before the aid can reach its country of destination, logistics experts often need to upgrade ports and secure warehouses. trucks usually make the final link in wfp's food chain, transporting food aid along the rough roads that lead to the hungry. where roads are impassable or nonexistent, wfp relies on less conventional forms of transport: donkeys in the andes, speedboats in the mozambique floods, camels in sudan, and elephants in nepal. at this stage, local community leaders work closely with wfp to ensure rations reach the people who need it most: pregnant mothers, children, and the elderly. the world health organization (who) was proposed during the original meetings to establish the un system in san francisco in . in , at the united health conference in new york, the who constitution was approved, and it was signed on april , (world health day). who proved its value by responding to a cholera epidemic in egypt months before the epidemic was officially recognized. who serves as the central authority on sanitation and health issues throughout the world. it works with national governments to develop medical and health care capabilities and assist in the suppression of epidemics. who supports research on disease eradication and provides expertise when requested. it provides training and technical support and develops standards for medical care. who was an early member of the former interagency task force for disaster reduction (see below), and continues to assist local and national governments as well as regional government associations with health-related disaster mitigation and preparedness issues. it does this primarily by providing education and technical assistance to government public health officials about early detection, containment, and treatment of disease and the creation of public health contingency plans. who activities address primary hazards, such as epidemics (e.g., avian influenza, malaria, dengue fever, sars, swine flu, and mers/cov), and the secondary health hazards that accompany most major disasters. through their website and collaboration with various academic institutions, who has also worked to advance public health disaster mitigation and preparedness research and information exchange. the who director-general is a member of the iasc and the iasc working group. in those capacities, the who recommends policy options to resolve the more technical and strategic challenges of day-to-day emergency operations in the field. to incorporate public health considerations in un interagency contingency planning and preparedness activities, the who also participates in the iasc task force on preparedness and contingency planning. the who emergency risk management and humanitarian response department was created to enable who to work closely with member states, international partners, and local institutions in order to help communities prepare for, respond to, and recover from emergencies, disasters, and crises. the emergency response framework (erf) was developed in to clarify the who role and their responsibilities in emergency situations (who ). in the event of a disaster, who responds in several ways to address victims' health and safety. most important, it provides ongoing monitoring of diseases traditionally observed within the unsanitary conditions of disaster aftermath. who also provides technical assistance to responding agencies and host governments establishing disaster medical capabilities and serves as a source of expertise. it assesses the needs of public health supplies and expertise and appeals for this assistance from its partners and donor governments. per the erf, who is obligated to respond to emergencies under several conventions and agreements, including the international health regulations and the interagency steering committee. the key functions of hac in times of crises are: • measure health-related problems and promptly assess health needs of populations affected by crises, identifying priority causes of disease and death; • support member states in coordinating action for health; • ensure that critical gaps in health response are rapidly identified and filled; and • revitalize and build capacity of health systems for preparedness and response. when other government agencies, private medical facilities, or ngos cannot meet the public health needs of the affected population, who's country-level emergency response team and international emergency support teams bring together expertise in epidemics, logistics, security coordination, and management, collaborating with un agencies participating in response and recovery. who has several bilateral agreements with other un agencies and ngos (including the red cross and red crescent movement) and coordinates the interagency medical/health task force (imtf), an informal forum that provides guidance on technical and operational health challenges in humanitarian crises. the who global emergency management team (gemt) was created in to lead the planning, management, implementation, monitoring, and evaluation of who's emergency work (including national preparedness, institutional readiness, and emergency response for disasters that exhibit public health consequences.) the gemt is made up of staff from both who headquarters and regional office directors responsible for disaster risk management issues (e.g., preparedness, surveillance, alert, and response). as needed, other relevant staff are invited to join gemt efforts. gemt focuses on all-hazards emergency risk management, notably that of leadership on the health cluster. when technical expertise beyond that held by the team's members is needed, the global emergency network (gen), comprising directors (or delegates) of departments and programs that have various emergency management functions, is consulted. the gemt continuously tracks global health events and the organization-wide use of internal and external resources in all emergencies, and reports on all major emergencies. during an actual emergency or disaster, a subset of the gemt, known as the gemt-response (gemt-r), is mobilized to grade and manage the response to a specific emergency. for larger-scale emergencies, the gemt-r is responsible for making recommendations to executive management on the best use of who resources given the event's scale, scope, duration, and complexity (given other existing requirements in ongoing events). since its inception, six regional offices have been established. these offices focus on the health issues in each region: • regional office for africa • pan american health organization • regional office for south-east asia • regional office for europe • regional office for eastern mediterranean • regional office for the western pacific the food and agriculture organization (fao) was established as a un agency in in quebec city, canada. the organization's mandate is to "raise levels of nutrition, improve agricultural productivity, better the lives of rural populations and contribute to the growth of the world economy" (fao ) . it provides capacity-building assistance to communities that need to increase food production. in , fao pledged to help current and future generations achieve food security by . in spite of their work, more than million people worldwide continue to suffer the effects of food shortages, including more than million children under five years of age who show signs of malnutrition-based growth stunting. fao is headquartered in rome, italy. the organization also maintains five regional, five subregional, and country offices, each of which works with un member countries and other partners to coordinate various activities, including disaster management. it has member nations, two associate member nations, and one member organization (the european union). fao was an early member of the interagency task force on disaster reduction prior to its becoming the global platform for disaster risk reduction. the world food summit mandated fao to assist un member countries in developing national food security, vulnerability information, and specialized mapping systems to cut worldwide malnutrition. a key component of this strategy is strengthening the capacity of communities and local institutions to prepare for natural hazards and respond to food emergencies during disasters and crises. this objective focuses on: • strengthening disaster preparedness and mitigation against the impact of emergencies that affect food security and the productive capacities of rural populations; • forecasting and providing early warning of adverse conditions in the food and agricultural sectors and of impending food emergencies; • strengthening programs for agricultural relief and rehabilitation and facilitating the transition from emergency relief to reconstruction and development in food and agriculture; and • strengthening local capacities and coping mechanisms by guiding the choice of agricultural practices, technologies, and support services to reduce vulnerability and enhance resilience. in , fao released strategic objective i, which guided the organization in conducting "preparedness for, and effective response to, food and agricultural threats and emergencies." this strategy laid out three specific results that were sought, including: . countries' vulnerabilities to crises, threats, and emergencies is reduced through better preparedness and integration of risk prevention and mitigation into policies, programs, and interventions; . countries and partners respond more effectively to crises and emergencies with food-and agriculture-related interventions; and . countries and partners have improved transition and linkages between emergency, rehabilitation, and development. within fao, the emergency coordination group is the organizational mechanism for the overall coordination of emergency and disaster reduction issues. this group strengthens fao's capacity to perform food-based disaster management activities in support of member countries and partners in a more integrated way. ecg is chaired by the director of the office for coordination of normative, operational and decentralized activities and has a secretariat provided by the office of the special advisers to the director-general. key units of this group include: the investment centre division prepares investment programs and projects for funding by major multilateral development banks during the rehabilitation and reconstruction and the recovery phases. fao field offices are in developing countries. regional and subregional offices are also maintained. at any time, fao is involved in some , agricultural projects in the developing world. experts working on these projects in affected countries are frequently called upon to help with emergency needs assessments and field operations. in a disaster, fao representatives in developing countries respond by coordinating with the government and other partners. in countries with ches, fao coordinates actions that address emergency agricultural needs and assists in the development and implementation of strategies for creating conditions conducive to recovery and sustained development. fao's approach is to set up coordination units that: • provide technical assistance to help the impacted government and its citizens to manage agricultural relief; • monitor the ongoing crisis relative to food; • advise ngos and other organizations involved in food and agriculture; • help build the necessary national capacity to transition from response to recovery; and • establish information collection and database management systems. examples of countries where fao emergency coordination units have been set up include bosnia, tajikistan, rwanda, burundi, liberia, sierra leone, somalia, iraq, and angola. fao also maintains a website of disaster reduction information through its world agricultural information center (waicent). this online portal provides access to the global information and early warning system, information on crop prospects, and other relevant documents and data. fao also works to help countries adopt sustainable agricultural and other land-use practices. its land and water division has helped to reverse land loss, thus increasing disaster resilience, by promoting the development of disaster-resistant agro-ecosystems and the sound use of land and water resources. in times of disaster, the emergency operations and rehabilitation division helps communities recover. while other agencies, such as wfp, address immediate food needs by providing the actual food aid to victims, fao provides assistance to restore local food production and reduce dependency on food aid. the fao's first action following disasters, in partnership with wfp, is to send missions to the affected areas to assess crops and food supply status. the emergency operations service of the emergency operations and rehabilitation division leads these missions, sending fao experts to consult with farmers, herders, fisheries, and local authorities to gather disaster and recovery data. using their assessment, fao designs an emergency agricultural relief and rehabilitation program and mobilizes the funds necessary for its implementation. the emergency operations and rehabilitation division distributes material assets such as seeds, fertilizer, fishing equipment, livestock, and farm tools. in a che, fao helps affected communities bolster overall resources and restore and strengthen agricultural assets to make them less vulnerable to future shocks. for example, fao has been working in regions outside government authority in the sudan to conduct community-based training of animal health workers aimed at keeping their livestock-a vital part of local livelihoods-from dying. when a disaster occurs, the emergency operations and rehabilitation division of fao establishes an emergency agriculture coordination unit consisting of a team of technical experts from a wide range of fields (including crop and livestock specialists). this field-level team provides information and advice to other humanitarian organizations and government agencies involved in emergency agricultural assistance in the affected area. fao coordination units also facilitate operational information exchange, reducing duplications of and eliminating gaps in assistance. fao's primary beneficiaries include: • subsistence farmers • pastoralists and livestock producers • artisan "fisherfolk" • refugees and internally displaced people • ex-combatants • households headed by women or children and/or afflicted by hiv/aids the special emergency programmes service (tces), also within the emergency operations and rehabilitation division, is responsible for the effective implementation of specially designed emergency programs. these programs require particular attention because of the political and security context surrounding their interventions and the complexity of the institutional setup. tces was responsible for fao's intervention in the framework of the oil for food program in iraq and fao's emergency and early rehabilitation activities in the west bank and gaza strip. the rehabilitation and humanitarian policies unit (tcer) is the final component of the emergency operations and rehabilitation division. tcer is responsible for making recommendations regarding disaster preparedness, post-emergency, and rehabilitation initiatives. the unit coordinates fao's position on humanitarian policies and ensures that fao addresses the gap between emergency assistance and development. tcer also liaises with other un entities dealing with humanitarian matters. the fao's disaster-and emergency-related projects are funded by contributions from governmental agencies, ngos, other un agencies, and by the fao technical cooperation programme (tcp). each year, approximately percent of fao emergency funds are raised through the cap. fao expenditure on emergency efforts has grown significantly during the past few years, indicative of the greater role the organization has assumed in disaster management. current emergency-related projects include: • improved food security for hiv/aids-affected households in africa's great lakes region • rehabilitation of destroyed greenhouses in the west bank and gaza strip • land-tenure management in angola • emergency agricultural assistance to food-insecure female-headed households in tajikistan • consolidation of peace through the restoration of productive capacities of returnee and host communities in conflict-affected areas in sudan • rehabilitation of irrigation systems in afghanistan • rehabilitation of farm-to-market roads in the democratic republic of the congo the position of united nations commissioner for refugees (unhcr) was created by the general assembly in to provide protection and assistance to refugees. the agency was given a three-year mandate to resettle . million european world war ii refugees. today, unhcr is one of the world's principal humanitarian agencies, operating through the efforts of more than , personnel and addressing the needs of . million people in more than countries. unhcr promotes international refugee agreements and monitors government compliance with international refugee law. unhcr programs begin primarily in response to an actual or impending humanitarian emergency. in complex humanitarian disasters and in natural and other disasters that occur in areas of conflict, there is a great likelihood that refugees and idps will ultimately result. the organization's staffs work in the field to provide protection to refugees and displaced persons and minimize the threat of violence many refugees are subject to, even in countries of asylum. the organization seeks sustainable solutions to refugee and idp issues by helping victims repatriate to their homeland (if conditions warrant), integrate in countries of asylum, or resettle in third countries. unhcr also assists people who have been granted protection on a group basis or on purely humanitarian grounds, but who have not been formally recognized as refugees. unhcr works to avert crises by anticipating and preventing huge population movements from recognized global areas of concern ("trouble spots"). one method is to establish an international monitoring presence to confront problems before conflict breaks out. for example, unhcr mobilized a "preventive deployment" to five former soviet republics in central asia experiencing serious internal tensions following independence. unhcr also promotes regional initiatives and provides general technical assistance to governments and ngos addressing refugee issues. in times of emergency, unhcr offers victims legal protection and material help. the organization ensures that basic needs are met, such as food, water, shelter, sanitation, and medical care. it coordinates the provision and delivery of items to refugee and idp populations, designating specific projects for women, children, and the elderly, who comprise percent of a "normal" refugee population. the blue plastic sheeting unhcr uses to construct tents and roofing has become a common and recognizable sight in international news. unhcr maintains an emergency preparedness and response section (eprs), which has five emergency preparedness and response officers (epro) who remain on call to lead emergency response teams into affected areas. the epros may be supported by a range of other unhcr human resources, including: • emergency administrative officers and emergency administrative assistants, for quickly establishing field offices • the members of the emergency roster, which includes staff with diverse expertise and experience, are posted throughout the world and are available for rapid emergency deployment • staff (by existing arrangement) from the danish refugee council, the norwegian refugee council, and un volunteers, to provide specialized officials on short notice as needed (more than people are available at any given time) • individuals registered on a roster of "external consultant technicians," who are specialized in various fields often required during refugee and idp emergencies (including health, water, sanitation, logistics, and shelter) • select ngos that have been identified as capable of rapid deployment to implement assistance in sectors of need (e.g., health, sanitation, logistics, and social services) unhcr has the capacity to respond to a new emergency impacting up to , people. the agency can also mobilize more than trained personnel within hours. these experts come from its emergency response team (ert) roster. unhcr has also developed mechanisms for the immediate mobilization of financial resources to help meet the response to an emergency without delay. unhcr staff may be supported under an agreement with the swedish rescue services agency, which is prepared to establish a base camp and office in affected areas within hours' notice. other supplies and resources, such as vehicles, communications equipment, computers, personal field kits, and prepackaged office kits are maintained for rapid deployment to support field staff. unhcr maintains stockpiles of relief aid, including prefabricated warehouses, blankets, kitchen sets, water storage and purification equipment, and plastic sheeting. these are stored in regional warehouses or may be obtained on short notice from established vendors that guarantee rapid delivery. unhcr also maintains agreements with stockpiles outside the un system from which they may access items, such as the swedish rescue board and various ngos. unhcr developed a quick impact project (qip) initiative. qips are designed to bridge the gap between emergency assistance provided to refugees and people returning home and longer-term development aid undertaken by other agencies. these small-scale programs are geared toward rebuilding schools and clinics, repairing roads, and constructing bridges and wells. unhcr is funded almost entirely by voluntary contributions from governments, intergovernmental organizations, the private sector, and individuals. it receives a limited subsidy of less than percent of the un budget for administrative costs and accepts "in-kind" contributions, including tents, medicines, trucks, and air transportation. as the number of people protected or of concern by unhcr has reached record highs, its annual budget has likewise jumped several fold in just a few years. in , the unhcr budget was a record $ . billion, yet by that number rose to over $ . billion-a rate that has been maintained ever since. (see figure . .) in , unhcr established a new global emergency stockpile in dubai, united arab emirates. the new stockpile is the largest of several unhcr global stockpiles. it is used to store relief items such as tents, blankets, plastic sheeting, mosquito nets, kitchen sets, and jerry cans, among other items, for up to , people. prefabricated warehouses and other safety and security equipment for staff and office support are also available. in , items from the stockpile were sent to countries, including syria, jordan, lebanon, turkey, and others in africa and asia. the items shipped included , , blankets, , buckets, , jerry cans, , kitchen sets, , sleeping mats, , mosquito nets, , plastic tarpaulins, and , family tents (unhcr ). although unhcr does not often become involved in natural disaster response, rather focusing on areas of conflict, its expertise and assistance were required in the aftermath of the october earthquake that severely impacted south asia. during the response phase of this disaster, unhcr provided flights loaded with supplies from its global and regional stockpiles and contributed , family tents, , blankets, , plastic sheets, and thousands of jerry cans, kitchen sets, stoves, and lanterns. the aid items were drawn from its existing warehouses in pakistan and afghanistan, as well as other locations throughout the world. because of the earthquake, roads used to access , afghan refugees affected by the earthquake were severely damaged, but unhcr was able to quickly assess damages and needs and meet those needs through their existing networks (unhcr ) . in the event of a large-scale disaster, the un may form a disaster management team (dmt) in the affected country. if the disaster clearly falls within the competence and mandate of a specific un agency, that organization will normally take the lead, with the un dmt serving as the forum for discussing how other agencies will work to support that lead agency. the un dmt is convened and chaired by the un resident coordinator and comprises country-level representatives of fao, undp, ocha, unicef, wfp, who, and, where present, unhcr. specific disaster conditions may merit participation by other un agencies. the leader of the undac team, assigned by ocha, automatically becomes a member of the un dmt. a undp official called the disaster focal point officer often serves as the un dmt secretary, but the team is free to choose another person, if necessary. undp is also responsible for providing a venue for the team and any basic administrative support needs. the un dmt's primary purpose is to ensure that in the event of a disaster, the un is able to mobilize and carry out a prompt, effective, and concerted response at the country level. the team is tasked with coordinating all disaster-related activities, technical advice, and material assistance provided by un agencies, as well as taking steps to avoid wasteful duplication or competition for resources by un agencies. the un dmt interfaces with the receiving government's national emergency management team, from which a representative may, where practical, be included in the un dmt. the central emergency response fund (cerf) was created in through un general assembly resolution / to allow for faster operational action by un agencies. the fund, which was originally called the central emergency revolving fund but renamed in under resolution / , is administered on behalf of the un secretary-general by the emergency relief coordinator. during times of disaster, cerf provides agencies involved in the humanitarian response with a constant source of funding to cover their activities. its purpose is to shorten the amount of time between the recognition of needs and the disbursement of funding. agencies that have received pledges from donors but have not yet received actual funds, or agencies that expect to receive funds from other sources in the near future, can borrow equivalent amounts of cash, interest free, through cerf. voluntary contributions from donor nations and private-sector donors have raised billions since the inception of cerf, of which more than $ billion has been allocated in the form of grants to almost countries. the program's goal is to have $ million replenished annually. (see table . for a full list of donors.) at the outset, cerf was designed only for ches, but in the general assembly voted . the lending agency submits a request for an advance to the erc, which includes a descriptive justification on the project or activities to be funded. if a future pledge for funding has been promised by a donor or if the agency has other means for repaying the loan, this information is included in the request. . an ocha officer reviews the request. if it is accepted (statistics show that the majority are accepted), the erc informs the agency and sets out the loan use and repayment terms. . disbursement usually occurs within hours. payment is made through an internal un "voucher." . loans must be repaid within six months. this entire process is conducted at ocha's new york office. figure . illustrates patterns of use by the various un agencies. the consolidated appeals process (cap), which began in , allows humanitarian aid organizations to plan, implement, and monitor their activities. these organizations can work together to produce a common humanitarian action plan (chap; see the following section) and an appeal for a specific disaster or crisis, which they present to the international community and donors. the cap fosters closer cooperation between governments, donors, aid agencies, and many other types of humanitarian organizations. it allows agencies to demand greater protection and better access to vulnerable populations, and to work more effectively with governments and other actors. the cap is initiated in three types of situations: . when there is an acute humanitarian need caused by a conflict or a natural disaster . when the government is either unable or unwilling to address the humanitarian need . when a single agency cannot cover all the needs on november , , typhoon haiyan (yolanda) hit the philippines. the humanitarian situation in the areas devastated by the typhoon was catastrophic. an estimated million people were affected, including million children. close to million people were displaced and in dire need of humanitarian assistance. in response, the united nations emergency relief coordinator, valerie amos, released us$ million to seven united nations agencies and the international organization for migration (iom) on november. • the united nations children's fund (unicef) received $ , , to ensure water, sanitation, and hygiene facilities. unicef also provided child protection, including protective learning environments, and reduced the risk of outbreaks of vaccine-preventable diseases among children aged to months. finally, unicef provided nutrition interventions to children aged to months as well as to pregnant and lactating women. • with an allocation of $ , , the food and agriculture organization (fao) provided emergency food assistance. • the united nations population fund (fpa) received $ , to ensure access to reproductive health services and to prevent gender-based violence. • to support the internally displaced persons (idps), the united nations high commissioner for refugees (unhcr) provided emergency shelter assistance through an allocation of $ , , . • the world food programme (wfp) received $ , , to provide emergency food assistance. wfp also coordinated the humanitarian operations in the areas affected. • the world health organization (who) provided health services through an allocation of $ , , . • the united nations development programme (undp) received $ , , to manage time-critical debris disposal. • through an allocation of $ , , , iom supported evacuation centers and idp sites by procuring and distributing emergency shelter kits and essential non-food items. the cerf allocations were expected to ultimately benefit more than . million people. the cap is led by the hc, who triggers the interagency appeal and collaborates with the iasc country team at the local level and the erc at headquarters. participants in the process include: • iasc. although all team members are encouraged to participate in chap development, some members may make appeals for funding outside of the un and its cap (as is often the case with the red cross). • donors. donors participate in chap development by committing to "good humanitarian donorship principles." • host government(s). the cap is best prepared in consultation with the host government, particularly the ministries the un operational agencies are working with on a day-to-day basis. • affected population(s). whenever possible, it is always advantageous to include the affected populations' perspective into relief and recovery planning. a consolidated appeal (ca) is a fundraising document prepared by several agencies working to outline annual financing requirements for implementing a chap. although governments cannot request funding through the ca, ngos can make a request as long as their proposed project goals are in line with chap priorities. the ca is usually prepared by the hcs in september or october, and then launched globally by the un secretary-general at the donor's conference held each november. the ca lasts as long as is necessary for funding purposes, usually a year or more. the sectors that may be considered by the ca include: • agriculture • coordination and support services the process for filing a ca is as follows: . at the onset of the emergency, a situation report is issued (can cover from day to week ). . in the meantime, a flash appeal may be prepared and launched (covers week to month ). . finally, a ca may be issued. if the situation and needs in the field change, a revision to any part of an appeal can be issued at any time. additionally, projects can be added, removed, or modified within the appeal at any time. approximately percent of cap and flash appeal funding comes from a small group of wealthy nations, including canada, the european community humanitarian office (echo) and the european commission, germany, japan, the netherlands, norway, sweden, the united kingdom, and the united states. in high-profile events, private donors may constitute a large percentage of donations, such as occurred in the case of the tsunami disaster in asia. the chap is a strategic plan developed by agencies working together at the field level that assesses needs in an emergency and coordinates response. it acts as the foundation for a ca, and includes the following information: . common analysis of the context for humanitarian assistance . needs assessment . best, worst, and most likely scenarios . identification of roles and responsibilities (who does what and where) . clear statement of long-term objectives and goals . framework for monitoring strategy and revising as necessary a flash appeal is a special kind of ca, designed for structuring a coordinated humanitarian response for the first three to six months of an emergency. whenever a crisis or natural disaster occurs, the un hc may issue a flash appeal in consultation with all stakeholders involved in the humanitarian response (including the affected government). it is normally issued between the second and fourth weeks of the response and provides a concise overview of urgent lifesaving needs. it may also include early recovery projects if they can be implemented within the appeal's time frame. in , as a part of the inter-agency standing committee (iasc) transformative agenda, the united nations changed the way that the cap was issued. the appeal, which addresses the emergencies, was the largest appeal to date, calling for $ . billion (more than $ . billion greater than the appeal) to support million people in countries. the increase was primarily due to a $ . billion request for the complex humanitarian emergency in syria, as well as another che in the central african republic and typhoon haiyan in the philippines. the changes begin with the document's name, which is now called the "overview of global humanitarian response" rather than the former "overview of consolidated appeals process." the overall goal of the change is to ensure that the cap process is needs-based and funds are adequately monitored. the change is explained in the appeals document as follows: "now, instead of one overweight cap document trying to present all elements of the program cycle, for the key elements appear in a series of documents produced in sequence: humanitarian needs overview; strategic response plan (comprising the country strategy plus cluster plans); and periodic monitoring bulletins reporting on basic delivery and outputs compared to targets. discussions are ongoing about the possible production of end-of-year reports on achievements versus objectives" (un b). (see exhibit . ). since , more than consolidated and flash appeals have been launched, collectively raising more than $ billion for ngos, the international organization for migration (iom), and un agencies. in addition to the un agencies discussed previously, which tend to be the primary agencies involved in all forms of disaster management, a handful of organizations provide more focused assistance as deemed necessary in most disasters that require international participation. as illustrated in figure . , which details un assistance to the various countries affected by the december asian tsunami and earthquake events, a different mix of un assistance is needed in each country, even within the same international disaster scenario. several of these organizations are detailed in the following list. • international labour organization (ilo). the ilo works with the affected population to address issues related to employment, including job creation, skills training, employment services, small business assistance, and other functions. (see exhibit . .) • international organization for migration (iom) . the iom provides rapid humanitarian aid to displaced populations by supplying emergency shelter, transporting relief materials, and assisting in medical evacuations. the organization stabilizes populations through the provision of short-term community and microenterprise development programs. iom also actively supports governments in the reconstruction and rehabilitation of affected communities by being the lead service provider of : haiti cannot afford to become a forgotten crisis. important progress has been made in recent years, but the country is still one of the most exposed to risk from disaster and climate change. multiple disasters combined with high unemployment, increased inequality, and poor access to basic social services have prolonged the vulnerability of an estimated three million haitians to displacement, food insecurity, and fragile living conditions. haiti suffers the world's largest cholera epidemic, which has affected over , people and killed , . although the humanitarian situation in south sudan has stabilized on several fronts, needs remain high-driven primarily by violence and displacement, persistent food insecurity, and chronic poverty. national capacity to deliver basic services is low, with aid agencies the main providers of health care, clean water, livelihoods support, and other services in many parts of the country. while needs are expected to remain high in - , in some areas such as food insecurity, there are opportunities for innovative and more targeted approaches to break recurring cycles of hardship. the strategy for - has three objectives: responding to immediate needs, enhancing communities' resilience against shocks and stresses, and building national capacity to deliver basic services. alongside core programmes to save lives and ease suffering, partners are increasingly integrating actions to reduce the risk of natural disasters, strengthen and diversify livelihoods, and address the long-term needs of vulnerable groups, including refugees and children. the strategy also emphasizes the importance of delivering aid in partnership with line ministries and national ngos to ensure humanitarian relief has a long-term positive impact. the strategy spans three years, to better address deep-rooted challenges and measure the impact of relief actions. requirements: $ . billion funding received against requirements: % people in need: . million people to receive help: . million in yemen, more than half the population needs some form of humanitarian aid. the collapse of basic services in - , endemic food insecurity, destroyed or damaged livelihoods and under-development, along with displacement resulting from conflict, have combined to plunge the country into a humanitarian emergency which may persist into . inflows of refugees and migrants from the horn of africa and returning yemeni migrants count among the vulnerable. ten and a half million people are food-insecure or severely food-insecure, and , , children under five suffer from acute or severe malnutrition. about half the population has no access to adequate water sources or sanitation facilities, and a further . million have insufficient access to health services. an estimated , returnees need assistance to rebuild their lives, while , refugees, mostly from somalia, and tens of thousands of mainly ethiopian migrants are stranded in the country. it is expected that the number of returning yemeni migrants, estimated to be , people, will double in . the weakness of rule-of-law institutions has been identified as a serious protection risk. according to the latest ilo estimates, . million out of the . million workers who have either temporarily or permanently lost their livelihoods were working in the service sector. over one third, or . million, were in agriculture and around per cent in the industry sector. "service sector includes people working in shops, public markets, restaurants, vendors, tricycle and jeepney drivers, mechanics, clerks, teachers, . . . who, like farmers and fisherfolks, have seen their source of income wiped away," said ilo philippine office director lawrence jeff johnson. "at least . million affected workers were already in a vulnerable situation before the typhoon struck, often living at or near the poverty line, doing whatever work they could find to survive and provide for their families. these people have lost the little they had to begin with. they have no home, no income, no savings and no one to turn to for help," said director johnson. "as the reconstruction efforts gather pace, the number one priority is to ensure that these workers have access to decent jobs, which include at least minimum wage, social protection, and safe working conditions," johnson said. the department of labor and employment (dole) and the department of social welfare and development (dswd) are rolling out emergency employment programmes to respond to the enormous reconstruction and livelihoods needs. the ilo is working closely with them as well as with local governments, business' and workers' organizations, and international partners. "these programmes comply with philippine regulation and international labour standards, ensuring that people are not exploited while they help to rebuild their communities and local economies," johnson explains. workers under the emergency employment programmes receive the minimum wage prevailing in the area and are employed for a minimum of days. they also have access to social protection benefits. "this is a very first step to jump start the economy and quickly put the affected communities back in the driver's seat in rebuilding their lives. ensuring minimum wage and social protection will help stimulate economic growth and speed the recovery process." johnson said. source: ilo, . unaids works with victims to protect them from the kinds of violence and activity that spreads hiv. in , the un general assembly held a special session on hiv/aids and declared that through unaids: [the un would] develop and begin to implement national strategies that incorporate hiv/aids awareness, prevention, care, and treatment elements into programs or actions that respond to emergency situations, recognizing that populations destabilized by armed conflict, humanitarian emergencies, and natural disasters, including refugees, internally displaced persons, and in particular, women and children, are at increased risk of exposure to hiv infection; and, where appropriate, factor hiv/ aids components into international assistance programs. (un ) • united nations population fund (unfpa). unfpa works to promote basic human rights throughout the world, and to increase the possibilities of women and young people to lead healthy and productive lives. their work focuses specifically on reproductive health and safe pregnancies and deliveries. during humanitarian crises, there is often a demand for reproductive health services even though distribution and health care systems have broken down. unfpa works closely with its humanitarian relief partners to support early and effective action to meet the reproductive health needs of refugees, idps, and others caught in crisis situations. supply shortages compound health risks in already dangerous situations and are a major obstacle to reproductive health in emergencies. existing supplies may fall far short of demand when large numbers of people move into a safer location. supplies, equipment, and medicine are organized and stored by unfpa for immediate distribution when an earthquake, flood, violent conflict, or other crisis arises. a rapid-response fund enables unfpa to mount a quick response to emergencies, especially in the initial stages. supplies are packaged in different emergency reproductive health kits, including a "clean birthing kit." once an emergency situation stabilizes, the procurement of reproductive health materials becomes a regular part of a more comprehensive healthcare program. • united nations human settlement programme (un-habitat) . un-habitat is mandated by the un general assembly to "promote socially and environmentally sustainable towns and cities with the goal of providing adequate shelter for all" (un ). un-habitat is mandated through the habitat agenda (a global settlement plan adopted in june by the international community) to take the lead in mitigation, response, and post-disaster rehabilitation capabilities in human settlements. the habitat agenda clearly outlines the link between human settlement development and vulnerability to disasters. in addition, it emphasizes the need for coordination and close partnerships with national and local governments, as well as civil society. finally, the habitat agenda recognizes the strong impact disasters have on women, and affirms the need for women's active involvement in disaster management. these steering principles underpin all normative and operational activities of the un-habitat disaster management programme (dmp). dmp operates under the disaster, post-conflict and safety section (dpcss), urban development branch. it was created to marshal the resources of un-habitat and other international agencies to provide local government, civil society, and the private sector with practical strategies for mitigating and recovering from conflicts and natural disasters in the context of human settlements. specific areas of attention include: • protecting and rehabilitating housing, infrastructure, and public facilities • providing technical and policy support to humanitarian agencies before and after crisis in the context of human settlements • building partnerships and providing complementary expertise in resettlement of displaced persons and refugees • restoring local social structures through settlement development • rehabilitating local government structures and empowering civil society • land and settlements planning and management for disaster prevention un-habitat launched the city resilience profiling programme (crpp) to support local government efforts to build capacity to reduce disaster risk. through their guidance, governments are assisted in the development of comprehensive and integrated urban planning and implementation of a resilient management approach. the city resilience profile is a baseline assessment of a city-system's ability to withstand and recover from potential hazards. examples of cities that have participated in the program include balangoda, sri lanka; barcelona, spain; beirut, lebanon; dagupan, philippines; dar es salaam, tanzania; lokoja, nigeria; portmore, jamaica; talcahuano/concepcion, chile; tehran, iran; and wellington, new zealand. un-habitat plays an important role in disaster recovery, given the impact on housing so many disasters have. the organization has lead agency status within the united nations system for coordinating activities related to human settlement. it is mandated in this role through the habitat agenda. the organization's responsibilities in this regard are to support national governments, local authorities, and civil society in ensuring that risk is not retained in the reconstruction housing that follows the event. housing reconstruction often begins soon after the disaster has occurred, and un-habitat seeks to deploy quickly to ensure that resilient building practices are incorporated into the recovery planning process. • united nations environmental program (unep). unep is the un agency focused on the protection of the environment and wise use of natural spaces. unep has several divisions that address global emergency and disaster management needs. • unep's disasters and conflicts sub-program was created to assess and address the environmental impacts of disasters and conflicts, especially as they relate to human health, livelihoods, and security. since , this program has responded to crises in more than countries. their assistance is provided to other un agencies responding as well as directly to the host country government. the disasters and conflicts sub-program has four overarching objectives: • perform post-crisis environmental assessments; • support post-crisis environmental recovery; • foster environmental cooperation for peacebuilding; and • promote disaster risk reduction. as the focal point for environment within the un crisis response system, unep also works to integrate environmental considerations within humanitarian and peacekeeping operations. coordinated by unep's post-conflict and disaster management branch, the disasters and conflicts sub-program is delivered through several key actors and partners, including the joint unep/ocha environment unit, the environment and security (envsec) initiative, and the apell (awareness and preparedness from emergencies on a local level) programme. apell, which is based out of the unep industry and environment office in paris, supports disaster risk reduction and disaster preparedness. it seeks to minimize the occurrence and harmful effects of technological accidents and emergencies resulting from human activity or as the consequence of natural disasters, particularly in developing countries. understandably, unep plays a major role in climate change activities, including climate change adaptation. the organization supports developing countries in their efforts to identify and address risk specifically related to changing temperature and precipitation that are associated with global climate change patterns, including sea level rise. one of the primary functions of this office is to help governments to integrate climate change adaptation policy throughout all sectors of government, such that it becomes a major policy goal rather than a distinct, stove-piped component of government. finally, unep promotes sustainable land-use management and helps countries identify opportunities to reduce carbon emissions, which are often blamed for the bulk of climate variability. • united nations educational, scientific, and cultural organization (unesco). unesco's goal is to contribute to the peace and security of the world through education, science, and culture. unesco has been involved in disaster management for decades. this organization advocates for the need for a shift in emphasis from relief and emergency response to prevention and increased preparedness and education of potentially affected populations. it strongly supports the design and dissemination of mitigation measures, as well as public education and awareness. unesco works to increase the role of academic and research sectors in creating risk and vulnerability reduction measures, and supports existing and new institutions through financial and material support. unesco proclaims that their function regarding disaster management is: to promote a better understanding of the distribution in time and space of natural hazards and of their intensity, to set up reliable early warning systems, to devise rational land-use plans, to secure the adoption of suitable building design, to protect educational buildings and cultural monuments, to strengthen environmental protection for the prevention of natural disasters, to enhance preparedness and public awareness through education and training communication and information, to foster post-disaster investigation, recovery and rehabilitation, to promote studies on the social perception of risks. (unesco ) • in , the un general assembly created un women, which merged four existing un organizations that focused exclusively on gender equality and women's issues. these included the united nations development fund for women (unifem), the international research and training institute for the advancement of women (instraw), the office of the special adviser on gender issues and advancement of women (osagi), and the division for the advancement of women (daw). un women works to ensure that the needs of women are considered in disaster planning and preparedness efforts, as well as in the aftermath of disasters and in the recovery from them, when women face extraordinary vulnerabilities. un women provides financial and technical assistance to innovative programs and strategies to foster women's empowerment and gender equality. (see exhibit . .) • united nations institute for training and research (unitar). unitar was created to provide training and research within the un system with the goal of increasing the effectiveness of all un programs. in recent years, more of these efforts have focused on the four phases of disaster management, addressing many related topics such as climate change, hazardous materials and pollution, land use, and biodiversity. the global platform for disaster reduction was established in as a forum for information exchange. the platform meets every two years and allows participants to discuss innovations and developments in drr as well as to share existing knowledge and build partnerships among the various stakeholders. the goal in creating the program was to improve drr implementation by fostering better communication and coordination among stakeholders, to serve as a way for un members to voice their concerns and needs, and to share their best practices and lessons learned. the global platform replaces the former interagency task force for disaster reduction (iatf/ dr), which was led by the un under-secretary-general for humanitarian affairs and composed of representatives from un agencies, international organizations, ngos, and other civil society for millions of people in rural viet nam, the impacts of climate change are mounting and sometimes deadly. as weather patterns change, many of viet nam's women in particular are paying a high price. "the weather becomes more extreme and erratic. storms, heavy rains, and floods destroy fields and houses, kill animals and people every year," said ranh nguyen, , a farmer and the head of the women's union group in an dung commune, in binh dinh province, central viet nam. there, ranh and her neighbours have joined the viet nam women's union and are working with un women to strengthen the role of women in disaster risk-reduction and disaster-reduction management. some kilometers from the city of binh dinh, an dung commune is always at high risk of flooding, as it only has one road connecting it to other communes,and landslides often occur during the storm season. almost every year, the commune suffers at least one severe flood that damages crops and houses heavily. and women are often the most affected. however, things are starting to change. "thanks to good preparation and detailed mapping that we developed in the meetings before each storm, nobody in the village was killed or injured severely in the last year storm season. crops, fowl, and cattle were saved," explains ranh, now an official member of the committee for flood and storm control in her commune. prior to the project, there were few women on the committees for flood and storm control (cfsc) in the village. through the training of women in disaster management, as well as national lobbying-supported by un women, undp and other stakeholders-the contribution of women has been recognized. a government decree issued in september now provides an official space for the women's union in decision-making boards of the cfsc at all levels. "after being involved in the project, i am more aware of the situation of climate change and its impacts on us. last year, we participated in the training and exchanged experiences with other women. we prepared better for our families and our village before the storm came," ranh said. she said that she talked to the other members of the communal committee for flood and storm control. as a result, before the flooding began, they had plans ready to evacuate people living in lowland areas and near the river. "the mapping we did together in the training was really helpful. we discussed how to encourage people to harvest earlier, before the storm season started." in the end, she said, no lives were lost. last year, a four-year-old boy was saved from drowning because his mother performed cpr on him. she and another women and girls learned this technique from the rescue and first aid training provided by the project. "i could not swim before and used to be frightened by the flooded river. but now i am no longer afraid of water thanks to the swimming classes. i will teach my children how to swim and tell other people to learn how to swim too," ranh said. this project continues to be implemented in four new provinces including thua thien hue, quang binh, ca mau and dong thap, all of which face a high risk of flooding. this project is financed through core funding to un women and from the government of luxemburg. stakeholders. the global platform is organized by the un office for disaster risk reduction (unisdr; see below). the global platform for disaster risk reduction is considered the most significant gathering of disaster risk reduction and disaster management stakeholders worldwide. every ten years, the world conference on disaster reduction is held. the first was held in . the second world conference, held in in kobe, japan, led to the launching of the hyogo framework for action (hfa). the world conference is to be held in sendai, japan, which was significantly impacted by the great east japan earthquake and tsunami in . the focus of the conference is on the follow-up to the hyogo framework for action, termed the post- framework for disaster risk reduction in the lead-up to the conference. the united nations office for disaster risk reduction (unisdr) is the secretariat of the international strategy of disaster reduction and the global hub of the disaster risk reduction community, which includes national governments, ngos, intergovernmental organizations, financial institutions, technical bodies, and others. unisdr serves as the focal point for the implementation of the hyogo framework for action (hfa), the ten-year plan to address global disaster risk that commenced in and is set to expire in . unisdr was created in , at the end of the international decade for natural disaster reduction. the organization functions as a clearinghouse for disaster reduction information; campaigns to raise hazard awareness; and produces articles, journals, and other publications and promotional materials related to disaster reduction. unisdr maintains an organizational vision that is guided by the three strategic goals of the hfa for which it is tasked to oversee. these include: integrating disaster risk reduction into sustainable development policies and planning; . developing and strengthening institutions, mechanisms and capacities to build resilience to hazards; and . incorporating risk reduction approaches into emergency preparedness, response, and recovery programs. the organization describes the four key functions that guide its efforts as follows: • we coordinate international efforts in disaster risk reduction and guide, monitor as well as report regularly on progress of the implementation of the hyogo framework for action. we organize a biennial global platform on disaster risk reduction with leaders and decision makers to advance risk reduction policies and support the establishment of regional, national and thematic platforms. • we campaign and advocate to create global awareness of disaster risk reduction benefits and empower people to reduce their vulnerability to hazards. our current campaigns focus on safer schools and hospitals as well as resilient cities. • we encourage for greater investments in risk reduction actions to protect people's lives and assets including climate change adaptation, more education on drr, and increased participation of men and women in the decision making process. • we inform and connect people by providing practical services and tools such as the risk reduction website preventionweb, publications on good practices, country profiles and the global assessment report on disaster risk reduction, which is an authoritative analysis of global disaster risks and trends. (unisdr ) unisdr is led by the un special representative of the secretary-general for disaster risk reduction. margareta wahlstrom currently holds this post. the position was created in to lead and oversee all drr activities mandated by the un general assembly (ga), the economic and social council (ecosoc), and the hyogo framework for action (hfa), as well as policy directions by the secretary-general. other responsibilities include the ongoing and arduous process of facilitating the development of the post- framework for drr that will follow the hfa, overseeing the management of the trust fund for the international strategy for disaster reduction, and carrying out highlevel advocacy and resource mobilization activities for risk reduction and implementation of the hfa. one of the most significant functions of unisdr is monitoring the progress achieved by nations and global regions per the hyogo framework for action. monitoring is an almost ongoing process, with reports on progress produced every two years (as well as interim reports on off years, in some instances). the hfa monitor is an online reporting system that nations and regional organizations use to assess their capabilities and progress according to the indicators outlined in the hfa. the hfa monitor template, found on the hfa monitor website, defines the areas of assessment. the result of this process is a national or regional hfa progress report. not all countries produce the reports, and for those that do, reports are not necessarily submitted for each reporting period. critics note that it is a self-reporting and ranking system, but in the absence of any other system on the scale of the hfa monitor, the information it provides is highly informative and very useful in estimating capacity. the information is also used to produce papers and reports on various thematic issues, such as gender in disaster management, integration of drr and climate change adaptation, early warning, and others. the world bank and unisdr work closely together on a number of key disaster risk reduction issues, notably those related to development and disaster reconstruction, through a unisdr/world bank global facility for disaster reduction and recovery (wb/gfdrr) partnership. other similar drr-and disaster risk management-focused partnerships have been formed with various regional international organizations, including the association of southeast asian nations (asean), organization of the islamic conference (oic), pan american health organization (paho), applied geoscience and technology division of the secretariat of the pacific community (sopac), economic community of west african states (ecowas), and african union (au). unisdr is headquartered in geneva and has representation at the un headquarters in new york city. the organization also has regional offices in africa (nairobi), the americas (panama and brazil), asia/pacific (bangkok, japan, and korea), the pacific (sub-regional office in suva), the arab states (cairo), europe (brussels and bonn), and central asia (sub-regional office in almaty). (see figure . .) unisdr also works with and advises a number of key thematic platforms on disaster risk reduction issues, including: response (un-spider) the un is the only global international organization of its kind. it is not, however, the only governing organization made up of several national governments. many of the world's regions have pooled their collective resources and services to create large, influential organizations. like the un, these organizations address issues of regional and global importance, many of which focus on or peripherally address disaster management. in times of disaster, both within and outside of their regions of concern, they bring much of the same financial, technical, and equipment resources discussed throughout this book. this section identifies and briefly describes the largest of these organizations. the north atlantic treaty organization (nato) is an alliance of countries from north america and europe formed by a treaty signed on april , . its fundamental goal is safeguarding its members' freedom and security using political and military means. over the years, nato has taken on an increasing role in international disaster management and peacekeeping missions. nato maintains a military force made up of member countries' troops. although they work in concert, troops always remain under the control of their home nation's government. nato has helped to end violent conflicts in bosnia, kosovo, and the former yugoslav republic of macedonia. nato's disaster and crisis management activities, which extend beyond its typical military operations, are geared toward protecting populations. as part of the worldwide civil protection drive described in chapter , nato began developing measures to protect member nation citizens from nuclear attack as early as the s. as elsewhere, nato member countries soon realized that these capabilities could be used effectively during disasters induced by floods, earthquakes, and technological incidents and during humanitarian disasters. nato's first involvement in disaster operations came in , following devastating floods in northern europe. in , it established detailed procedures for the coordination of assistance between nato member countries in case of disasters. these procedures remained in place and provided the basis for nato's civil emergency planning in subsequent years. in , nato established the euro-atlantic disaster response coordination center to coordinate aid provided by member and partner countries to a disaster-stricken area in a member or partner country. it also established a euro-atlantic disaster response unit, which is a non-standing, multinational mix of national civil and military elements volunteered by member or partner countries for deployment to disaster areas. civil emergency planning has become a key facet of nato involvement in crisis management. in recent years, nato has assisted flood-devastated albania, czech republic, hungary, romania, and ukraine, supported the unhcr in kosovo, sent aid to earthquake-stricken turkey, helped to fight fires in the former yugoslav republic of macedonia and in portugal, supported flood response in pakistan, and supported ukraine and moldova after extreme weather conditions destroyed power transmission capabilities. nato has taken an active role in the response to the south asia earthquake, as described in exhibit . . nato also regularly conducts civil emergency planning exercises. the european union (eu) originated in may of , when six european countries (belgium, germany, france, italy, luxembourg, and the netherlands) joined together to address common issues related to the coal and steel industries. since that time, the scope of their work has expanded significantly, as has their membership. the eu is now a major regional international organization representing member states and is in the process of admitting several other eastern and southern european countries in a push toward greater inclusion. the eu considers itself a "family of european countries, committed to working together for peace and prosperity" (bbc ). like the un, it is not a government, nor does it have any authority over its members; it is an organization established for increased regional cooperation. regional international organizations the devastating october earthquake in pakistan is estimated to have killed , people and left up to three million without food or shelter just before the onset of the harsh himalayan winter. on october , , in response to a request from pakistan, nato launched an operation to assist in the urgent relief effort. nato airlifted supplies donated by nato member and partner countries as well as the unhcr via two air bridges from germany and turkey; flights delivered almost , tons of relief supplies. the supplies provided included thousands of tents, stoves, and blankets necessary to protect the survivors from the cold. in addition, nato deployed engineers and medical units from the nato response force to assist in the relief effort. the first teams arrived on october , . in just three months of operations, nato achieved the following: • nato's air bridges flew almost tons of aid to pakistan with flights. these flights carried in nearly , tents, , blankets, nearly , stoves/heaters, more than , mattresses, , sleeping bags, tons of medical supplies, and more. • nato's field hospital treated approximately , patients and conducted major surgeries. mobile medical units treated approximately , patients in the remote mountain villages; they also contributed significantly to the who immunization program that has helped to prevent the outbreak of disease. • in the cities of arja and bagh, nato engineers repaired nearly kilometers of roads and removed over , cubic meters of debris, enabling the flow of aid, commerce, and humanitarian assistance to the inhabitants of the valley. nine school and health structures were completed and tent schools erected. the engineers distributed cubic meters of drinking water and upgraded a permanent spring water distribution and storage system to serve up to , persons per day. • nato engineers also supported the pakistani army in operation winter race, by constructing multipurpose shelters for the population living in the mountains. • nato helicopters transported more than , tons of relief goods to remote mountain villages and evacuated over , disaster victims. • nato set up an aviation fuel farm in abbottabad, which carried out some , refueling missions for civilian and military helicopters. during the mission some , engineers and supporting staff, as well as medical personnel, worked in pakistan. nato was part of a very large effort aimed at providing disaster relief in pakistan. the pakistani army provided the bulk of the response, with the support of nato, the un, and other international organizations and several individual countries. on october , nato received from pakistan a request for assistance in dealing with the aftermath of the october earthquake. the next day, the north atlantic council approved a major air operation to bring supplies from nato and partner countries to pakistan. the airlift began on october and the first tons of supplies arrived in pakistan on october. on october, nato opened a second air bridge from incirlik, turkey, to deliver large quantities of tents, blankets, and stoves donated by the unhcr. on october, in response to a further request from pakistan, nato agreed to deploy engineers and medical personnel from the nato response force to pakistan to further assist in the relief effort. a nato headquarters was deployed to pakistan on october to liaise with pakistani authorities and pave the way for the incoming troops. the first troops, the advance elements of the medical team, began arriving on october, and immediately began treating hundreds of people a day. engineering teams followed and began working in the area around bagh in support of pakistani efforts to repair roads and build shelters and medical facilities. nato engineers also supported the pakistani army in operation winter race, by constructing multipurpose shelters for the population living in the mountains. on november, nato opened a sophisticated -bed field hospital, which provided a wide range of care including complex surgical procedures. on the same day, heavy-lift transport helicopters assigned to nato for the operation began flying and delivering supplies to remote mountain villages and evacuating victims. nato also set up an aviation fuel farm in abbottabad, which carried out refueling for civilian and military helicopters, which were essential to the relief effort. on october, additional foreign secretary of pakistan tariq osman hyder addressed a meeting of the euro-atlantic partnership council at nato headquarters in brussels, asking for further assistance. he said that nato could provide continued airlift, funds, logistic and airspace management, mobile fuel tanks, spare parts for helicopters and tactical aircraft, command and control, and winterized tents and sleeping bags. that same day, nato's euro-atlantic disaster response coordination center (eadrcc) received an urgent request from the unhcr for the transport of additional shelter and relief items stored in turkey to pakistan before the winter sets in. nato's relief mission came to an end, on schedule, on february . nato's short-term relief mission was based on the following five elements: . coordination of donations from nato and partner countries through the eadrcc in brussels; . the air bridge from turkey and germany for the transport of relief goods to pakistan; . five helicopters operating in the earthquake-affected area for the transport of supplies to remote mountain villages and evacuation of victims; . medical support with a field hospital and mobile medical teams in the area of bagh; . engineer support operating in the area around bagh in support of pakistani efforts for the repair of roads and building of shelters, schools, and medical facilities. humanitarian assistance has been a part of the eu mission since , and since that time the organization's work in that area has grown such that today it is the world's most significant humanitarian aid donor. taken together, its members represent a sizeable piece of the global economy, thus enabling them the ability to provide more than percent of all humanitarian aid worldwide. the eu has also structured itself to be an active stakeholder in international disaster management. their work in this regard is not limited to europe and in fact has a global presence. since taking on disaster management responsibilities, the eu has responded through one or more of its various departments to disasters in more than countries. in , the eu restructured its global hazard risk and disaster management capacities. these changes resulted in the merging of two former divisions: one that handled humanitarian assistance and another that centered on civil protection. together these units formed the combined directorate general for humanitarian aid and civil protection (echo). the acronym is a carryover from a former component of the eu's response mechanism called the european community humanitarian office. the move effectively integrated these two functions, which, over time, saw duplicative missions. exhibit . is drawn from an eu factsheet describing how the eu responded to typhoon haiyan in the philippines in using this combined function. through its humanitarian aid and civil protection department (echo), the european commission made available us$ . million to help the survivors of the typhoon with food assistance, shelter, water and sanitation, health and nutrition, short-term livelihood support, reconstruction of schools, emergency logistics, and coordination of relief efforts. within hours after the disaster struck, the european commission's experts had been deployed to identify priority needs. the commission implemented its assistance primarily through the following partner organizations: assistance supported by echo reached approximately . victims in the areas affected by the typhoon. the eu civil protection mechanism was activated to ensure coordination of european relief efforts. participating member states supplied personnel and material to support the operation. the eu civil protection mechanism, coordinated by the commission's emergency response and coordination centre (ercc), also supported the transport of civil protection assets to the region with around us$ . million. in addition to humanitarian funds, the european commission has released $ . million from the eu's development funds to help rebuild people's lives by assisting in recovery and rehabilitation. examples of eu-funded humanitarian projects are described in the following section. • to address food insecurity among the affected population who had little to eat and little to no access to markets, the eu funded the efforts of the world food programme (wfp). wfp provided general distribution of food, including highenergy biscuits during the emergency phase, and then provided supplementary feeding for children and pregnant and lactating women. "food-for-work" and "cash-for-work" initiatives were established. • the eu provided funds to the international committee of the red cross (icrc) and national red cross societies to provide thousands of families with shelter repair kits and to support the livelihoods recovery and wash clusters. the national red cross societies projects supported the delivery of non-food items, including blankets and water storage containers. many families were provided with unconditional cash grants, and communities were given assistance in improving sanitation facilities, restoring primary healthcare services (including medicines), disease prevention, and hygiene awareness. • the eu supported a consortium that includes plan international and oxfam. funding helped to provide relief for the most significantly affected households by enabling livelihoods recovery, distribution of cash-for-work vouchers, and rehabilitation of public service infrastructure, including child-friendly spaces, classrooms, day care centers, and health stations. • to help the approximately million people left homeless by the typhoon, the eu funded the international organization for migration (iom) efforts to improve the well-being and living conditions of those who were displaced, who have returned, or who are planning to go back to their places of origin. special attention was given to persons with disabilities and other special needs. the project provided shelter repair kits to the affected populations and ensured quality management of displacement sites and timely information on communities' return and relocation processes. finally, vulnerable groups targeted by the initiative received health services, psychosocial support, and non-food items such as blankets. based on: ec, . echo enables the eu to respond to most major crises regardless of where they are in the world. at the time of this publication, the eu was involved in the response to ches in syria, south sudan, and the central african republic and was working in several other countries that were no longer entrenched in conflict but nonetheless faced humanitarian needs (e.g., côte d'ivoire). in recent years, the eu annual budget allocation for humanitarian operations has remained at around us$ . billion, or about us$ per person from the combined population of the eu member countries. through this funding, the organization has reached on average about million people each year. echo maintains a staff of more than at its brussels headquarters and more than dispersed throughout field offices in countries worldwide. when a disaster strikes, and presumably upon request, echo staff deploy in order to conduct a needs assessment. if it is determined that assistance is warranted, staff will remain and monitor the situation as it progresses and oversee the implementation of the humanitarian aid projects that echo supports. echo has established relationships with more than other disaster management stakeholders, including un agencies and ngos. echo humanitarian assistance can come in several forms, including food aid; clothing; healthcare supplies; and materials for shelter, water, and sanitation. echo also supports relief work, such as infrastructure repair, removal of mines, psychological support, and education, among many others. echo has a special program, called the "forgotten crisis assessment," that focuses on less salient events. through this program, echo tries to raise the profile of serious incidents it finds are receiving too little attention among the humanitarian community, for the purpose of increasing the funds available to impacted victims. in , echo distributed humanitarian aid worth us$ . billion (which amounts to less than percent of the eu budget, yet is, in gross terms, a significant amount in total funding when compared to most other donors). this funding assisted million people in more than countries outside the european union. echo also oversees the eu civil protection mechanism, which comprised states ( eu member states, plus former yugoslav republic of macedonia, iceland, liechtenstein, and norway). this mechanism enables these nations to coordinate and cooperate in the event of a disaster in one or more eu countries or elsewhere in the world. civil protection agencies from member countries provide inkind assistance, equipment, and teams, or experts that perform damage and needs assessments. echo civil protection relies on the resources of member governments and, if assistance is required in non-eu countries, it typically works in parallel with the humanitarian aid component of echo. for european countries, the coordination and cooperation provided under echo is, in essence, a highly formalized mutual assistance compact that increases the capacity of all nations involved. nations pool their resources and maximize their collective efforts. the key instrument for european civil protection is the civil protection mechanism (cpm), which was established in . the operational heart of cpm is the european commission's monitoring and information centre (mic), which will soon become the european emergency response centre (erc). any country inside or outside eu affected by a disaster and overwhelmed by its magnitude can make an appeal for assistance through the mic/erc. to provide formalized mitigation and preparedness assistance, echo launched its disaster preparedness program, disaster preparedness echo (dipecho), in . dipecho attempts to reduce population vulnerability in disaster-prone regions. between and , dipecho provided more than $ million for hundreds of projects worldwide. dipecho-funded projects are implemented by aid agencies working in the region of concern, and support training, capacity building, awareness raising, and early warning projects, as well the organization of relief services. echo disaster preparedness efforts, however, extend beyond dipecho. many of echo's major humanitarian financing decisions, for example, include disaster preparedness or prevention as an objective. even post-disaster emergency responses can seek to reduce future risk. examples of echo risk-reduction activities include livestock shelters built after extreme cold snaps to protect against further herd depletion (peru), training and equipping of community-based fire brigades in forest fire risk zones (indonesia), cholera preparedness and health information (malawi), and antirust measures to prevent water pollution and protect pipes from the effects of volcanic ash (ecuador). the organization of american states (oas) was established in by nations located in north, central, and south america and the caribbean that wished to strengthen cooperation and advance their common interests in the western hemisphere. through the oas charter these nations committed to a set of common goals. respect for each other's sovereignty has always played a central role in oas affairs. today, all independent nations in the region have ratified the oas charter and serve as members of the organization (though the cuban government was excluded from participation in oas from to , and has yet to rejoin since the lifting of its ban). the oas is heavily involved in disaster risk reduction and preparedness efforts in the region. the vast majority of such projects are facilitated by the oas office for sustainable development and environment (osde), which supports activities in both individual countries and those that involve multiple countries. the more prominent of these activities focus on the following goals: • supporting the management of trans-boundary water resources • improving information for decision making in biological diversity • establishing land-tenure reform and property rights • supporting the exchange of best practices and technical information in environmental law and enforcement, renewable energy, water management, and biodiversity • improving management systems to reduce the impacts of natural disasters • understanding climate-related vulnerabilities affecting small island states the following is a list of projects that illustrates the range of disaster risk reduction and preparedness activities carried out by oas: mitigation capacity building program. the three-year program assisted countries in the caribbean region to develop comprehensive, national hazard vulnerability reduction policies and associated implementation programs, and develop and implement safer-building training and certificate programs. improvement program with assistance from oas to offer hurricane-resistant home improvement options to low-income families. this program trains local builders in safer construction, offers small loans to families wishing to upgrade their homes, and provides the services of a trained building inspector who approves materials to be purchased and checks minimum standards. in addition to the osde, oas supports disaster risk reduction through its inter-american committee for natural disaster reduction (iacndr). iacndr is the organization's main forum for integrating disaster risk reduction into sustainable development practices. the oas general assembly established the iacndr to strengthen its role in natural disaster reduction and emergency preparedness. the southern african development community (sadc) began in , when a loose alliance of nine southern african states formed (then known as the southern african development coordination conference, or sadcc). the organization's aim was to coordinate development projects to decrease economic dependence on south africa. in , it shifted from a "coordination conference" to a development community known as the sadc. sadc member states are angola, botswana, the democratic republic of congo, lesotho, madagascar, malawi, mauritius, mozambique, namibia, seychelles, south africa, swaziland, united republic of tanzania, zambia, and zimbabwe. sadc's primary mission is to help define regional priorities, facilitate integration, assist in mobilizing resources, and maximize regional development. it approaches problems and national priorities through regional cooperation and action. several sadc programs address the region's safety and security, primarily through risk-reduction mechanisms that include disaster preparedness and mitigation. the following are some examples of sadc disaster-related programs: • food, agriculture, and natural resources directorate • regional early warning unit • regional remote sensing unit the coordination center for natural disaster prevention in central america (cepredenac) was established in as a coordination center to strengthen the central american region's ability to reduce their population's vulnerability to natural disasters. in may , cepredenac became an official organization to foster regional cooperation among the governments of costa rica, el salvador, guatemala, honduras, nicaragua, and panama. the organization's headquarters are in guatemala city, guatemala. since its founding, the organization has been instrumental in securing region-wide commitment to disaster risk reduction through the passing of several resolutions and the creation of several plans and strategies signed by participating countries. the organization's agenda parallels and coordinates with other specialized regional entities in areas including hydrological resources, agriculture, nutrition, and food security. the cepredenac regional disaster reduction plan (prrd) was created to foster disaster reduction as an integral part of the sustainability of central american societies. its strategic objectives are: • promoting the incorporation of disaster risk reduction in legislation, policies • enhancing and developing greater resilience of the population to disaster risk • promoting the incorporation of disaster risk analysis in the design and implementation of prevention, mitigation, response, recovery, and reconstruction in the countries of the region a participating state may request disaster response assistance once its capabilities have been overwhelmed. cdema solicits and coordinates the assistance offered by other governments, organizations, and individuals, both within and outside the region. this is cdema's primary function. other functions include: • securing, collating, and channeling disaster information to interested governmental organizations and ngos as needed • mitigating disaster consequences affecting participating states • establishing and maintaining sustainable disaster response capabilities among participating states • mobilizing and coordinating disaster relief from governmental organizations and ngos for affected participating states the cdema participating states are structured into four subregions, each of which is headed by an operation unit known as a sub-regional focal point. the functions of each focal point relevant to the recovery effort are to: • acquire and maintain comprehensive emergency management capacity information • test and maintain communications with the coordinating unit and with national disaster management agencies • ensure subregion continuity of operations membership in cdema requires the participating state to establish or maintain a national disaster organization (ndo) or a national relief organization capable of responding swiftly, effectively, and in a coordinated manner to disasters in participating states (typically the government body tasked with domestic emergency management). ndos are headed by the national disaster coordinator (ndc), who is a government official responsible for the day-to-day management of the organization; ndos are the national focal points for cdera's activities in the participating state. the participating states are, in addition, required to: • establish planning groups and define national policies and priorities to address disasters • provide national relief organizations with adequate support, including named emergency coordinators, liaison officers with key ministries, emergency services, utilities, etc. • define the disaster role and functions of government agencies • establish and equip a suitable emergency operations center (eoc) • develop and maintain an appropriate emergency telecommunications system • perform disaster operations planning and associated drills and exercises • review and rationalize disaster-related statutory authorities • develop an emergency shelter policy program involving local participation • develop and implement a comprehensive disaster public awareness program • develop and implement appropriate training programs for disaster management staff in , twenty-four countries in eastern and southern africa established a drought monitoring centre, with its headquarters in nairobi (the dmcn) and a sub-center in harare (dmch), in response to a series of devastating weather-related disasters. in october , the heads of state and governments of the intergovernmental authority on development (igad) held their th summit in kampala, uganda, where dmcn was adopted as a specialized igad institution. the name of the institution was changed to igad climate prediction and applications centre (icpac) in order to better reflect its expanded mandates, mission, and objectives within the igad system. a protocol was signed in april , integrating the institution fully into igad. icpac is responsible for seven member countries (djibouti, eritrea, ethiopia, kenya, somalia, sudan, and uganda) and three other countries (burundi, rwanda, and tanzania). the centre's vision is "to become a viable regional centre of excellence in climate prediction and applications for climate risk management, environmental management, and sustainable development," while its mission is "provision of timely climate early warning information and support specific sector applications to enable the region to cope with various risks associated with extreme climate variability and change for poverty alleviation, environment management and sustainable development of the member countries" the objectives of the centre are: . to provide timely climate early warning information and support specific sector applications for the mitigation of the impacts of climate variability and change for poverty alleviation, management of environment, and sustainable development; . to improve the technical capacity of producers and users of climatic information, in order to enhance the use of climate monitoring and forecasting products in climate risk management and environment management; . to develop an improved, proactive, timely, broad-based system of information/product dissemination and feedback, at both sub-regional and national scales through national partners; . to expand climate knowledge base and applications within the sub-region in order to facilitate informed decision making on climate risk related issues; and . to maintain quality controlled databases and information systems required for risk/vulnerability assessment, mapping and general support to the national/ regional climate risk reduction strategies. (icpac n.d.) the centre has several functions relative to these objectives, which are: • acquisition of climate and remotely sensed data; • develop and archive national and regional climate databanks including calibration of remote sensing records; • process data and develop basic climatological statistics required for baseline risk scenarios and other applications; • monitor, predict, and provide early warning information of the space-time evolutions of weather and climate extremes over the sub-region; • hazards and climate risk mapping of the extreme climate events thresholds; • networking with wmo, the national meteorological and hydrological institutions as well as regional and international centers for data and information exchange; • capacity building in the generation and applications of climate information and products; • applications of climate tools for specific climate sensitive sector risk reduction, environment management , and sustainable development, including integration of indigenous knowledge; • monitor, assess, detect and attribute climate change and associated impacts, vulnerability, adaptation and mitigation options; • develop relevant tools required to address the regional climate challenges through research and applications in all climate sensitive socio-economic sectors including addressing linkages with other natural and man-made disasters; and • networking and exchange of information regarding disasters in the sub-region. (icpac n.d.) the centre offers a number of informational products, including periodic climate and weather bulletins, updates on climate and el niño, and annual climate summaries. to date, the centre has been instrumental in increasing drr in the sub-region through the provision of capacity enhancement, informational products, networking assistance, and more. the league of arab states (las) is a regional igo based in cairo, egypt and encompassing north africa and southwest asia. las was formed in following the adoption of the alexandria protocol, with a stated goal to "draw closer the relations between member states and co-ordinate collaboration between them, to safeguard their independence and sovereignty, and to consider in a general way the affairs and interests of the arab countries." member states include algeria, bahrain, comoros, djibouti, egypt, iraq, jordan, kuwait, lebanon, libya, mauritania, morocco, oman, state of palestine, qatar, saudi arabia, somalia, sudan, syria, tunisia, united arab emirates, and yemen. in response, and as a follow-up to the first arab summit on socio-economic development, the council of arab ministers responsible for the environment adopted specific actions relating to disaster risk reduction through a decision in may of to develop an arab strategy for disaster risk reduction. this strategy, entitled the arab strategy for disaster risk reduction , adopted in december of , has a two-fold purpose: . to outline a vision, strategic priorities, and core areas of implementation for disaster risk reduction in the arab region, and . to enhance institutional and coordination mechanisms and monitoring arrangements to support the implementation of the strategy at the regional, national, and local level through preparation of a programme of action. the arab strategy for disaster risk reduction is designed to complement existing and ongoing efforts in disaster risk reduction by national institutions and regional technical organizations in the las region. implementing partners of the strategy are to focus on multi-sectorial approaches with the purpose of reducing emerging risks across the arab region by , in line with the global priorities outlined by the hyogo framework for action (hfa) and the millennium development goals. the five priorities of the las strategy directly mirror those of the hfa, including the desire to increase nations' capacity to incorporate drr into disaster recovery. specific commitments detailed under these priorities, which pertain to recovery planning actions in the region, include: • ensuring that disaster risk reduction measures are integrated into post-disaster recovery and rehabilitation processes • establishing disaster preparedness plans, contingency plans, and recovery and reconstruction plans at all administrative levels with the participation of women, the aged, children, idps, and people with special needs • ensuring that national/ local financial reserves and contingency mechanisms are in place and well understood by all stakeholders to ensure effective response and recovery when required • addressing national trans-boundary cooperation on disaster response, preparedness and recovery among arab states in the arab region, funding remains the main challenge faced by national and local authorities, civil society organizations, and humanitarian workers implementing disaster risk reduction measures targeting communities at risk. las encourages its members to dedicate at least percent of national development funding and development assistance toward disaster risk reduction measures. specifically, it was recommended that member states assess the possibility of utilizing existing regional funds and mechanisms (including, among other mechanisms, socio-economic development funds and national disaster relief and response budgets) by allocating a dedicated budget for disaster risk reduction and recovery activities at the subregional, national, or local level. the las regional centre for disaster risk reduction (rcdrr) was established in by a partnership between the kingdom of saudi arabia, the united nations international strategy for disaster reduction (unisdr), and the arab academy for science, technology and maritime transport (aas-tmt), as an intergovernmental organization of the league of arab states targeting the achievement of sustainable development in the arab region. the centre seeks to address risk through knowledge, research, and training of scientific and technical cadres in various disciplines on drr. the main objectives of rcdrr, as per the rcdrr statutes, are: • integration of drr into regional and national sustainable development policies, strategies, and plans • enhancing regional and national capacities in the field of drr research, education, and training • contributing to the development and harmonization of regional drr methodologies and tools, including database and guidelines • promoting partnership building with a multi-stakeholder approach to accelerate the implementation of the hyogo framework of action the south asian association of regional cooperation (saarc) was officially established in . the objectives of the organization are to: • promote the welfare of the people of south asia and to improve their quality of life • accelerate economic growth, social progress, and cultural development in the region and to provide all individuals the opportunity to live in dignity and to realize their full potential • promote and strengthen selective self-reliance among the countries of south asia • contribute to mutual trust, understanding, and appreciation of one another's problems • promote active collaboration and mutual assistance in the economic, social, cultural, technical, and scientific fields • strengthen cooperation with other developing countries • strengthen cooperation among themselves in international forums on matters of common interest • cooperate with international and regional organizations with similar aims and purposes. the saarc member countries include afghanistan, bangladesh, bhutan, india, maldives, nepal, pakistan, and sri lanka. after • establish and strengthen the regional disaster management system to reduce risks and to improve response and recovery management at all levels • identify and elaborate country and regional priorities for action • share best practices and lessons learnt from disaster risk reduction efforts at national levels • establish a regional system to develop and implement regional programs and projects for early warning • establish a regional system of exchanging information on prevention, preparedness, and management of natural disasters • create a regional response mechanism dedicated to disaster preparedness, emergency relief, and rehabilitation to ensure immediate response • create a regional mechanism to facilitate monitoring and evaluation of achievements toward goals and strategies. the saarc disaster management centre (sdmc) was established in october of at the facilities of the national institute of disaster management in new delhi to serve as a center of excellence for knowledge, research, and capacity building in disaster management. the centre has the mandate to serve the saarc member countries by providing policy advice and facilitating capacity building services, including strategic learning, research, training, system development, and exchange of information for effective disaster risk reduction and management in south asia. sdmc conducts studies and research, organizes workshops and training programs, publishes its reports and documents, and provides various policy advisory services to the member countries. the secretariat of the pacific community (spc) was founded in australia in under the canberra agreement to restore order in the region following world war ii. in , the spc applied geoscience and technology division (sopac) was created as a undp regional project, and in it became an independent igo. in , sopac became a new division under spc, dedicated to promoting sustainable development in its member countries, and its work is carried out through its secretariat based in suva, fiji. sopac members include australia, cook islands, fiji islands, guam, federated states of micronesia, kiribati, marshall islands, new zealand, papua new guinea, samoa, solomon islands, tonga, tuvalu and vanuatu, niue, nauru, and palau. associate members (local administrations of nonself-governing territories) include american samoa, french polynesia, new caledonia, and tokelau. the purpose of sopac is to ensure the earth sciences (inclusive of geology, geophysics, oceanography, and hydrology) are utilized fully in the fulfillment of the spc mission. to fulfill this purpose, the division has three technical work programs: • ocean and islands • water and sanitation • disaster reduction these three programs share common technical support services: the sopac disaster reduction programme (drp) provides technical and policy advice and support to strengthen disaster risk management practices in pacific island countries and territories. the program carries out this responsibility in coordination and collaboration with other technical program areas within sopac and also with a range of regional and international development partners and donors. the overarching policy guidance for drp is the hfa-linked pacific disaster risk reduction and disaster management framework for action - (pacific drr and dm framework for action), which supports and advocates for the building of safer and more resilient communities. the other significant regional policy instruments that help to guide the efforts of the drp are the pacific plan and the pacific islands framework for action on climate change - . the sopac disaster risk management policy and planning team (ppt) is responsible for the drm mainstreaming initiative, which sopac spearheads on behalf of the pacific disaster risk management partnership network. in fulfilling this responsibility, the ppt provides the following services to pacific island countries and territories (picts): • leads and coordinates high level advocacy at cabinet/political level to garner support for drm mainstreaming in national, sectorial, local, and community planning and budgetary processes • leads and coordinates the development and implementation of drm national action plans with the support of other members of the pacific drm partnership network • supports the integration of drm and climate change adaptation initiatives at the national level within picts • analyzes budgeted drm investment in annual appropriations of picts • analyzes the economic impact of disaster events • analyzes the cost-benefit of drm measures a major focus of the ppt is to build member country resilience by facilitating the creation of disaster risk management national action plans (naps). the partnership network continued to provide strong support in terms of the realization of drm initiatives linked to nap exercises and also for other risk reduction and disaster management-related activities. in the past several years, this support has shifted to development of joint national action plans (jnaps) that integrate policy on disaster risk reduction and climate change adaptation. several of the countries in the region have established jnaps at the national level. the region is also moving toward a regional-level integrated joint strategy for disaster risk reduction and climate change. at present, regional-level disaster risk reduction and climate change adaptation policies remain separate. sopac led the development of the pacific disaster risk reduction and disaster management framework for action (rfa), signed in , and the secretariat of the pacific community environmental programme (sprep) led the development of the pacific islands framework for action on climate change (pifacc), also signed in . however, these organizations initiated an effort in to establish a more integrated solution to coincide with the year expiration of both frameworks. an ongoing process named "the roadmap" is marked by wide stakeholder involvement via a steering committee and broad technical support provided by a technical working group (which includes spc/sopac, sprep, and unisdr). the roadmap process has to date resulted in a draft-integrated strategy entitled the strategy for disaster and climate resilient development in the pacific (srdp). the draft strategy is designed to promote action that is harmonized with existing member state institutional arrangements for climate change adaptation and disaster risk reduction "[to] ensure that efforts are nested within the context of countries' national development strategies and reflected in their budgets, encourage the participation of multiple stakeholder groups, strengthen countries' capacities for risk governance and support the development of well-coordinated innovative funding mechanisms" (spc ). drp supports the strengthening of disaster management governance, which has included the development of institutional, policy, and decision-making processes such as disaster management legislative and planning frameworks, and national focal points (ndmos) and guidelines or models of good practice for national application. the emergency management preparedness, response, and coordination capabilities within countries will be critically assessed to determine the level of resources and capacity that is available to protect vulnerable communities. a priority will be to ensure that effective emergency response, communication, and coordination processes are established, and that existing resources are utilized in the most effective way. the drp disaster management team provides the following services to picts: • technical advice and support to review and update national drm governance arrangements and legislation, operational plans and procedures • support for the design and conduct of operational and table-top exercises to test emergency response plans and procedures • support for the conduct of disaster risk management training in collaboration with the pacific drm program of the asia foundation/office of us foreign disaster assistance • design and development of professional training courses in collaboration with taf/ofda and the fiji national university in , sopac established the pacific disaster risk management partnership network to provide a collaborative and cooperative mechanism to support disaster risk management capacity building in the region and help pacific island countries and territories adapt and implement the pacific drr and dm framework for action. the partnership is an "open-ended, voluntary" membership of international, regional, and national government and non-government organizations, with comparative advantages and interests in supporting pacific countries toward mainstreaming drm through addressing their disaster risk reduction and disaster management priorities. the members of the partnership network agree that: • disaster risk reduction and disaster management are sustainable development issues within the broader context of economic growth and good governance; • national governments have a critical role in developing disaster risk reduction and disaster management national programs and plans that reflect the needs of all stakeholders in a whole-ofcountry approach; • a regional effort must be responsive to and support and complement national programs and plans to strengthen resilience to disasters; • as regional partners, we commit to coordinating our activities and to work cooperatively and collaboratively under the guidance of the pacific plan and regional framework for action - ; and • we can build safer and more resilient nations and communities to disasters if we work in unison and accept this disaster risk management charter as a basis for future action. international financial institutions (ifis) provide loans for development and financial cooperation throughout the world. they exist to ensure financial and market stability and to increase political balance. these institutions are made up of member states arranged on a global or regional basis that work together to provide financial services to national governments through direct loans or projects. in a disaster's aftermath, nations with low capital reserves often request increased or additional emergency loans to fund the expensive task of reconstruction and rehabilitation. without ifis, most developing nations would not have the means to recover. several of the largest ifis are detailed in the following section, including the world bank; one of its subsidiaries, the international monetary fund (imf); the asian development bank; and the inter-american development bank. the world bank was created in to rebuild europe after world war ii. in , france received the first world bank loan of $ million for post-war reconstruction. financial reconstruction assistance has been provided regularly since that time in response to countless natural disasters and humanitarian emergencies. today, the world bank is one of the largest sources of development assistance. in the fiscal year, it provided more than $ . billion in loans, breaking all previous lending records for the organization. in fiscal year , the amount of loans had fallen to $ . billion, but the bank remains one of the largest development lenders. the world bank is owned collectively by countries and is based in washington, dc. it comprises several institutions referred to as the world bank group (wbg): • international bank for reconstruction and development • international development association the world bank's overall goal is to reduce poverty, specifically to "individually help each developing country onto a path of stable, sustainable, and equitable growth, [focusing on] helping the poorest people and the poorest countries" (wagstaff ) . as disasters and ches take a greater and greater toll on the economic stability of many financially struggling countries, the world bank is taking on a more central role in mitigation and reconstruction. developing nations, which are more likely to have weak disaster mitigation or preparedness capacity and therefore little or no affordable access to disaster insurance, often sustain a total financial loss. in the period of rehabilitation that follows the disaster, loans are essential to the success of programs and vital to any level of sustainability or increased disaster resistance. the world bank lends assistance at several points along this cycle. for regular financial assistance, the world bank ensures that borrowed funds are applied to projects that give mitigation a central role during the planning phase. it utilizes its privilege as financial advisor to guide planners, who otherwise might forego mitigation measures in an effort to stretch the loaned capital as far as possible. ensuring that mitigation is addressed increases systems of prediction and risk analysis in projects funded by the world bank. once a disaster occurs, the world bank may be called on for help. because it is not a relief agency, it will not take on any role in the initial response; however, it works to restore damaged and destroyed infrastructure and restart production capabilities. (see exhibit . .) a world bank team may assist with initial impact assessments that estimate financial losses resulting from the disaster and estimated costs of reconstruction, including raised mitigation standards. the world bank also could restructure the country's existing loan portfolio to allow for expanded recovery projects. in addition, world bank projects that have not yet been approved but are in the application process can be redesigned to account for changes caused by the disaster. finally, an emergency recovery loan (erl) can be granted to specifically address recovery and reconstruction issues. erls restore affected economic and social institutions and reconstruct physical assets such as essential infrastructure. it is important to note that erls are not designed for relief activities. they are most appropriate for disasters that adversely impact an economy, are infrequent (recurrent disasters are accommodated by regular lending programs), and create urgent needs. erls are expected to eventually produce economic benefits to the borrowing government; they are usually implemented within three years and are flexible to accommodate the specific needs of each unique scenario. construction performed with erls must use disaster-resistant standards and include appropriate mitigation measures, thus providing overall preparedness for the country affected. once an erl has been granted, the world bank coordinates with the imf, the undp, ngos, and several other international and local agencies to create a strategy that best utilizes these funds within the overall reconstruction effort. the two lending arms of the world bank are the international bank for reconstruction and development and the international development association. international bank for reconstruction and development (ibrd) . established in , the ibrd reduces poverty in middle-income and creditworthy poorer countries. the ibrd attempts to promote sustainable development activities through its loans. it also provides guarantees and other analytical and advisory services. following disasters, countries with strong enough credit can borrow or refinance their existing loans from the ibrd to pay the often staggering costs of reconstruction. international development association (ida). the ida lends to the world's poorest countries, classified as those with a income of less than $ , per person. sixty-four countries currently are eligible to borrow from the ida. it provides interest-free loans and grants for programs aimed at boosting economic growth and improving living conditions. this need is almost always present in the aftermath of disasters, including those caused by violent conflict. in , the global facility for disaster risk reduction, or gfdrr, was created, with the world bank designated as facility manager on behalf of the countries and eight international organizations that make up its membership. gfdrr has a secretariat, based in the washington dc world bank headquarters, which carries out its day-to-day operations. the purpose of gfdrr is to help developing countries address disaster vulnerability and vulnerability to the effects of climate change. its work is primarily driven by the hyogo framework for action, and its programs focus on mainstreaming exhibit . world bank disaster assistance to bosnia and herzegovina washington, june , - the world bank group's board of executive directors today approved a us$ million credit for the floods emergency recovery project for bosnia and herzegovina (bih), to meet critical needs and restore the functionality of infrastructure essential for public services and economic recovery in affected areas in the aftermath of the worst flooding to hit the country in documented history. the project was prepared in record time in view of the dire situation in the country and will be financed from the international development association's (ida) crisis response window resources. this project will target areas that were hit hardest by the devastating floods. preliminary evidence shows that the largest impact from this disaster was on livelihoods, housing, transport, agriculture, and energy. given the magnitude of the damage caused by flooding and subsequent landslides, the project is designed to support efforts by local and entity governments to quickly re-establish public services to pre-flood levels. the project will also support the government's on-going economic recovery initiatives, in particular in the agriculture sector. in addition to this project, the world bank is working on several other fronts to ensure the provision of a comprehensive package of support for bih as it recovers and rebuilds from the physical and economic devastation. notably, the bank is participating in a systematic recovery needs assessment, led by the bosnia and herzegovina (bih) authorities and supported also by the european union and the united nations. the assessment will provide a basis for developing effective rehabilitation measures for infrastructure and services in the affected areas. the world bank is also considering the restructuring of existing projects in its bih portfolio to meet reconstruction needs. while immediate recovery needs are the top priority of this project, the world bank also stands ready to work with the bih authorities to scale-up flood protection and implement early warning systems. the recently approved drina flood protection project is a good example of the type of work that could be scaled-up, as it addresses the need to prevent future flooding. as emphasized by laura tuck, world bank vice president for europe and central asia, "the floods emergency recovery project will finance critical goods, such as fuel and electricity imports, as well as the reconstruction of local infrastructure. this immediate response, combined with the drina river flood protection project, will support economic recovery in the affected areas, and will help restore bosnia and herzegovina to a growth path following the floods." the world bank portfolio of active projects in bih now includes operations totaling approximately us$ . million. areas of support include agriculture, environment, energy efficiency, health, social safety and employment, local infrastructure, and private sector development. release, . disaster risk reduction and climate change adaptation throughout all government sectors in member countries. gfdrr organizes its efforts according to three "business lines," which include: • track i: global and regional partnerships -track i supports unisdr in helping countries to leverage resources to perform pre-disaster investments and activities related to prevention, disaster risk reduction, and disaster preparedness. the key objectives of track i are to: ) enhance global and regional advocacy, strategic partnerships, and knowledge management for mainstreaming disaster risk reduction; and ) promote the standardization and harmonization of hazard risk management tools, methodologies, and practices. • track ii: mainstreaming disaster risk reduction in development -track ii provides pre-disaster assistance to developing countries to mainstream and expand disaster risk reduction and climate change adaptation activities. work in this track is performed in conjunction with world bank regional teams, un agencies, and national governments, and is aimed at integrating disaster risk reduction into poverty reduction and development efforts. there are also several sub-programs that include risk assessment, risk reduction, risk financing, and climate change adaptation. • track iii: sustainable recovery -track iii is aimed at early post-disaster recovery in low-income countries through its standby recovery financing facility (srff). track iii is less programmatic than track i and track ii because it is deployed for post-disaster situations, but it does work to build national capacity and facilitate knowledge management with the long term in mind. srff support includes two financing windows: ) the technical assistance (ta) fund, which supports damage, loss, and needs assessments and develops national capacity for recovery planning and implementation; and ) the callable fund for accelerated recovery, which provides speedy access to financial resources for disaster recovery and reconstruction. the international monetary fund (imf) was established in to "promote international monetary cooperation, exchange stability and orderly exchange arrangements; to foster economic growth and high levels of employment; and to provide temporary financial assistance to countries to help ease balance of payments adjustment." it carries out these functions through loans, monitoring, and technical assistance. since , the imf has provided emergency assistance to its member countries after they were struck by natural disasters, and, in a great many cases, when affected by complex emergencies. the assistance provided by the imf is designed to meet the country's immediate foreign-exchange financing needs, which often arise because earnings from exports fall while the need for imports increases (among other causes). imf assistance also helps the affected countries avoid serious depletion of their external reserves. in , the imf began to provide this type of emergency assistance to countries facing post-conflict scenarios in order to enable them to reestablish macroeconomic stability and to provide a foundation for recovery, namely in the form of long-term sustainable growth. this type of assistance is particularly important when a country must cover costs associated with an "urgent balance of payments need, but is unable to develop and implement a comprehensive economic program because its capacity has been damaged by a conflict, but where sufficient capacity for planning and policy implementation nevertheless exists" (imf ) . the imf maintains that their support must be part of a comprehensive international effort to address the aftermath of a conflict in order to be effective. its emergency financing is provided to assist the affected country and to gather support from other sources. it is not uncommon for a country to severely exhaust its monetary reserves in response to an emergency situation. in the event of a natural disaster, funding is directed toward local recovery efforts and any needed economic adjustments. the imf lends assistance only if a stable governing body is in place that has the capacity for planning and policy implementation and can ensure the safety of imf resources. after stability has been sufficiently restored, increased financial assistance is offered, which is used to develop the country in its post-emergency status. when a country requests emergency assistance, it must submit a detailed plan for economic reconstruction that will not create trade restrictions or "intensify exchange." if the country is already working under an imf loan, assistance may be in the form of a reorganization of the existing arrangement. it can also request emergency assistance under the rapid financing instrument (rfi). the rapid financing instrument (rfi) is the vehicle that the imf uses to meet disaster-impacted countries' financing needs. the rfi provides funding quickly and with few requirements in instances where it is determined that a disaster or emergency situation has resulted in urgent balance-of-payments needs. emergencies need not be related to a natural or technological hazard-they can also be the result of rapid increases in the price of certain commodities or because of an economic crisis. unlike other imf assistance, there does not need to be a full-fledged financing program in place. prior to the creation of the rfi, the imf used a number of separate programs to address emergency needs, including the emergency natural disaster assistance (enda) program and the emergency post-conflict assistance (epca) program. the creation of the rfi program combines all emergency needs. rfi financial assistance is provided in the form of outright purchases without the need for a full-fledged program or reviews. however, when a country does request assistance under rfi, they must cooperate with the imf to make every effort to solve their balance-of-payment problems, and must explain the economic policies it proposes to follow to do so. the imf makes the rfi program available to all of its members, though oftentimes very poor countries are more likely to seek assistance under a different program called the rapid credit facility (rcf), which provides similar assistance but has economic-based requirements that many wealthier countries cannot meet. funds access under the rfi program is limited to percent of a nation's quota per year and percent of quota on a cumulative basis. under the rcf program, the access limits are percent of a nation's quota per year and percent of quota on a cumulative basis. the level of access in each case depends on the country's balance-of-payments need. financial assistance provided under the rfi is subject to many of the same financing terms that nations would see in other imf programs, and the funds borrowed are ideally paid back within to months (imf ). in certain cases, as decided by the imf and according to specific criteria, recipients of emergency funding may benefit from the imf poverty reduction and growth facility (prgf). the prgf is the imf's low-interest lending facility for low-income countries. prgf-supported programs are underpinned by comprehensive country-owned poverty reduction strategies. under this program, the interest rate on loans is subsidized to . percent per year, with the interest subsidies financed by grant contributions from bilateral donors. this program has been available for post-conflict emergencies since , but in january , following the south asia tsunami events, the imf executive board agreed to provide a similar subsidization of emergency assistance for natural disasters upon request. the government of a country devastated by disaster often requires technical assistance or policy advice because it has no experience or expertise in this situation. this is especially common in post-conflict situations, where a newly elected or appointed government has been established and officials are rebuilding from the ground up. the imf offers technical assistance in these cases to aid these countries in building their capacity to implement macroeconomic policy. this can include tax and government expenditure capacity; the reorganization of fiscal, monetary, and exchange institutions; and guidance in the use of aid resources. the asian development bank (adb) is a multilateral development financial institution whose primary mission is reducing poverty in asia and the pacific. adb was established in by countries from both within and outside the region, and has grown to include members as of . forty-eight are from the region and are from other regions. its clients are the member governments, who are also the adb's shareholders. the adb provides emergency rehabilitation loans to its member countries following disasters. adb determined that its assistance in this critical phase of recovery would allow an affected developing country to maintain its development momentum. bank analysts found that, without such assistance, the affected country may reallocate its scarce budgetary resources away from development issues to cover disaster-related expenses, sidetracking development progress. additionally, they found that the production of goods and services would quickly suffer or fail completely if the country could not perform adequate rehabilitation following a disaster. adb assistance in emergencies began in , but was initially extended only to smaller developing countries (e.g., the maldives, papua new guinea, and the smaller pacific island states). loans were limited to $ , (increased to $ million in ), with funded projects to be completed within months of disbursement. the funding was designed to address only simple repair and rehabilitation activities as needed in the immediate aftermath of a disaster, with more comprehensive repair being covered by regular bank lending programs. lending was designed to be provided within six weeks of being requested. in , emergency lending was extended to all developing member countries regardless of their size. this change included a fundamental shift in what the emergency loans would cover, from simple repairs to more comprehensive, informed rehabilitation activities. most important, adb wanted to ensure that projects funded by its loans reduced overall risk to the affected nation and its population. other major changes in adb emergency lending policy are included in the following list: • introducing a typology of the causes and effects of disasters • more clearly defining the adb's response during various phases of post-disaster situations • identifying the nature, focus, and coverage of rehabilitation projects • introducing detailed, yet simplified, guidelines for processing rehabilitation projects • targeting rehabilitation loans toward restoring infrastructure and production activities, including capacity building and modernization • mandating that risk analysis and disaster prevention measures be included in all adb projects in disaster-prone developing member countries • closely coordinating disaster responses at all levels (local, national, and international) with those of other external funding agencies, ngos, and community groups • specifying that disaster prevention and mitigation activities were to be promoted along with regional cooperation • including non-natural disasters, for example, wars, civil strife, and environmental degradation (adb ) between and , adb provided $ . billion to disaster-affected countries in the form of loans at a rate of approximately one loan per month. the vast majority of the adb emergency loan services during this period were provided in response to natural disaster events, with the remaining dedicated to post-conflict situations. these loans rarely averaged more than percent of the total annual lending by adb and were concentrated primarily in south asia. the project comprises two components: (i) reconstruction and upgrading of damaged roads and bridges in sichuan and shaanxi provinces, and (ii) reconstruction and improvements of damaged schools in shaanxi province. the project will rehabilitate and reconstruct high-priority earthquake-damaged roads in the worst affected counties of sichuan province and subprojects in the four worst affected counties of shaanxi province. the project will rehabilitate and reconstruct highpriority earthquake-damaged education facilities in the three worst affected counties in shaanxi province. these components are designed to be mutually supporting in achieving the overall objective of restoring the affected communities' access to infrastructure to pre-earthquake levels, and ensuring restored infrastructure is in strict compliance with the latest seismic code. based on the government's damage and needs assessment and the request of the prc government, the project identifies specific sectors that require emergency assistance in two of the worst earthquake-affected provinces (i.e., sichuan and shaanxi). the project seeks to (i) build on the immediate relief provided by the government in the earthquake-affected provinces; (ii) contribute to coordinated rehabilitation and reconstruction by different development partners and the government; and (iii) specifically address sustainable recovery priorities by providing indirect livelihood support through public infrastructure rehabilitation and reconstruction, which generates public employment and underpins the restoration of livelihood activities by rehabilitating roads, bridges, and schools. the project design draws on the adb experience in delivering emergency assistance acquired in different developing member countries over the past two decades, and complements relief and other rehabilitation and reconstruction assistance provided by the government, united nations agencies, ngos, bilateral development partners, and the world bank. by meeting the earthquake reconstruction needs of the next three years, the project is consistent with adb's disaster and emergency assistance policy ( ) . the project supports the state overall plan for post-wenchuan earthquake restoration and reconstruction approved by the government on september . the impact of the project is accelerated restoration of education and transport infrastructure in earthquake-affected areas of sichuan and shaanxi provinces. the project will support the government's efforts to (i) restore the livelihoods and economic activities of the affected population; (ii) accelerate poverty alleviation in the earthquake-affected counties, many of which have a high incidence of poverty; and (iii) rehabilitate and reconstruct public and community-based infrastructure that is vulnerable to natural disasters. the outcome of the project is restoration of people's access to transport and education infrastructure to preearthquake levels in counties of sichuan and four counties of shaanxi provinces. the total project cost is estimated at $ . million equivalent. a loan of $ million from adb's ordinary capital resources will be provided under adb's london interbank offered rate (libor)-based lending facility. the loan will have a grace period of years with a maturity period of years, an interest rate determined in accordance with adb's libor-based lending facility, a commitment charge of . % per annum, and such other terms and conditions set forth in the draft loan and project agreements. until june , . adb also provides mitigation-related project loans and regional technical assistance (reta) aimed at reducing member countries' overall disaster vulnerability. between august and december , adb approved $ . billion for more than disaster risk management-related projects (in addition to the $ . billion provided in disaster-related financing). mitigation and preparedness projects are not considered "emergency" in nature and are therefore funded through the bank's regular lending activities. because mitigation and preparedness activities are most often included as components within larger development projects, adb does not maintain records of its total financial risk reduction-based lending. projects may include resilience-increasing activities such as reforestation, watershed management, coastal protection, agricultural diversification, slope stabilization, and land-use planning, although the project's overall goal is more development oriented. reta and single-country technical assistance activities have included hazard management and disaster preparedness software programs and infrastructure protection assistance. adb has december , . as the project is for emergency assistance, implementation will start immediately after approval and be completed within months. sichuan provincial communications department in sichuan province; and hanzhong city government and baoji city government in shaanxi province implementing agencies sichuan highway administration bureau in sichuan province; and county-level highway administration bureaus for roads and bridges, and county-level education bureaus for schools in shaanxi province. the project will bring benefits to the project area by (i) reconstructing and improving road conditions and accessibility in townships and in villages in the sichuan and shaanxi provinces, (ii) reconstructing and improving schools in shaanxi province, and (iii) creating local employment opportunities from project construction and related activities. the project will provide equal benefits to females and males. the economic benefits of the rural roads and bridges include (i) savings in vehicle operating costs as a result of improved traffic and road conditions, (ii) time-savings for rural road users, (iii) savings in road accident costs as a result of fewer accidents, and (iv) economic benefits from generated traffic. the reconstruction and upgrading of rural roads in sichuan and shaanxi provinces will benefit about . million people, three-quarters of whom are rural and one-third of whom are poor. as reliable transport to markets becomes more readily available, cash crop farming in remote or isolated areas will be stimulated and access to off-farm employment opportunities will be broadened. the project will focus on reconstruction of and improvements to model schools to appropriate design standards, including six junior secondary and six primary schools. this will bring immediate benefits to the schools' , students (including more than female students), and long-term benefits to future students drawn from the , residents of the areas serviced by the schools, about % of whom are from rural areas of remote counties. the project will contribute to the government's efforts to rebuild the economy, rehabilitate public infrastructure and utilities, reinstate seismic code compliance, and generate employment. the rehabilitation and reconstruction of damaged schools will enable education services to be restored and will offer long-term benefits for affected persons by supporting opportunities for employment and participation in economic activities. finally, adb assists countries in restarting rehabilitation and overall development in the aftermath of armed conflict. in the past, adb post-conflict intervention focused almost exclusively on infrastructure rehabilitation, an area in which the adb has extensive experience. its focus in this area began to shift in the s to preventing conflicts and helping post-conflict countries move along a solid path of economic and social development. adb is now committed to assisting affected member countries develop mechanisms to effectively manage conflict, including addressing the problems of poor governance and corruption. in , adb established the asia pacific disaster response fund (apdrf) to provide quick funding in the aftermath of a disaster to help governments meet urgent life-saving disaster-response needs. between and , grants were approved under the fund. apdrf assistance is provided as a grant that may be no larger than us$ million per event. the size of the grant is determined by: . the geographical extent of the disaster's damage; . initial estimates of fatalities, injuries, and displaced persons; . the country's disaster response capacity; and . the date and magnitude of the last disaster to have impacted the country (thereby taking into account the cumulative effect of disasters on the country's ability to respond) (adb ). in , adb approved a pilot asian development fund disaster response facility for countries eligible for low-interest loans in the event of a disaster. the pilot program, which runs from to , is being conducted to strengthen adb's ability to respond to disaster-impacted member countries in a manner that is less ad hoc. the drf will require countries that are eligible to borrow from the asian development fund (adf countries) to contribute a small fraction of their allocations for the benefit of accessing the drf in case of a disaster. the drf will be available to these countries in the case of natural disasters, and will support relief, response, recovery, and reconstruction needs. per the pilot program, the size of the drf will be percent of the total performance-based allocation (pba) received. in case of a disaster, an adf country can get up to percent of its annual pba, or us$ million per disaster, whichever is higher, from the drf. a blend country, which is a country eligible for both the adf and adb ordinary capital resources, can receive up to percent of its annual pba from the drf if affected by a disaster. established in december , the inter-american development bank (iadb) is the oldest and largest regional multilateral development institution. it was first created to help accelerate economic and social development in latin america and the caribbean. the iadb has been a pioneer in supporting social programs; developing economic, social, educational, and health institutions; promoting regional integration; and providing direct support to the private sector, including microenterprises. the iadb addresses disaster and risk management through its sustainable development department. through the efforts and actions of this department and its disaster risk management policy, the iadb addresses the root causes of the region's high vulnerability to disasters. building on its mandate to promote sustainable development in latin america and the caribbean, the iadb works with countries to integrate risk reduction into their development practice, planning, and investment, and to increase their capacity to manage risk reduction. it also provides funding that directly or indirectly supports disaster mitigation and preparedness. in their "plan of action: facing the challenge of natural disasters in latin america and the caribbean," the iadb outline their six strategic areas of assistance: . national systems for disaster prevention and response: building national legal and regulatory frameworks and programs that bring together the planning agencies, local governments, and civil society organizations; developing national strategies for risk reduction; and assessing intersectoral priorities, backed by separate budgets. . a culture of prevention: developing and disseminating risk information and empowering citizens and other stakeholders to take risk-reduction measures. . reducing the vulnerability of the poor: supporting poor households and communities in reducing their vulnerability to natural hazards and recovering from disasters through reconstruction assistance. . involving the private sector: creating conditions for the development of insurance markets, encouraging the use of other risk-spreading financial instruments where appropriate, and designing economic and regulatory incentives for risk reduction behavior. . risk information for decision-making: evaluating existing risk assessment methodologies; developing indicators of vulnerability, and stimulating the production and wide dissemination of risk information. . fostering leadership and cooperation in the region: stimulate coordinated actions and to mobilize regional resources for investments in risk mitigation. (iadb ) the iadb created two mechanisms to allow for rapid loan disbursement in times of disaster: the disaster prevention sector facility and the facility for the immediate response to natural and unexpected disasters (formerly the immediate response facility). in the iadb established the natural disaster network, represented by each of its borrowing member countries. network members meet annually to discuss topics related to disaster management, such as "national systems for risk management" ( ) the iadb revised its disaster risk management policy in . the new policy is designed to improve the iadb's ability to assist member countries in reaching their development goals by supporting their disaster risk management efforts. (see appendix . for the full text of the iadb disaster risk management policy guidelines.) . iadb supports disaster risk reduction through the disaster prevention sector facility, which provides up to $ million to assist countries in taking an integrated approach to reducing and managing their risk. the iadb also provides loans to help countries cope with financial or economic crises and natural or other disasters through its emergency lending program. in the case of a financial or economic crisis, the iadb requires that the emergency loan fits within an imf-approved and monitored macroeconomic stabilization program. emergency loan disbursement periods are much shorter than other non-disaster loans, ranging up to months in duration. they may be used to support national, provincial, state, and municipal governments and autonomous public institutions. they have a five-year term and a three-year grace period. in the case of natural or other disasters, the emergency lending program is known as the emergency projects, in order to improve project viability. whenever significant risks due to natural hazards are identified in project preparation, appropriate measures will be taken to secure the viability of the project, including the protection of populations and investments affected by bank-financed activities. the bank has nonreimbursable resources that may be used to cover the transaction costs incurred with the implementation of these guidelines. . . these guidelines will also recommend ways to evaluate the benefits and opportunity costs of loan reformulations and give guidance on how to ensure adequate transparency and effective monitoring, auditing, and reporting on the use of redirected funds. in addition, the guidelines describe precautions to be taken to avoid rebuilding or increasing vulnerability during rehabilitation and reconstruction. . . the guidelines are designed to be flexible in their application to the various situations that borrowing member countries and the bank may experience, in the face of natural hazards and disasters affecting their development prospects and performance. . . the present guidelines apply to all natural hazards, including the hydrometeorological hazards-windstorms, floods, and droughts-that are associated with both the existing climate variability and the expected change in long-term climate conditions. of note for risk assessments, climate change is expected to change some countries' disaster risk (their probable losses) by changing the characteristics of the hydrometeorological hazards. . although uncertainty persists, recent advances in downsizing climate models are allowing disaster managers to better calibrate their risk assessments to understand potential impacts due to climate change at the subnational level. tools for identifying such climate risk at the country and project levels, and measures for mitigating these increased risks to bank investments (climate change adaptation) will be developed under pillar of the bank's sustainable energy and climate change initiative (secci) action plan. purpose and scope . . the purpose of this section is to provide guidance to bank teams on the implementation of directive a- of the disaster risk management policy, particularly for countries classified as having high disaster risk, as well as for those sectors that are associated with a high vulnerability to natural disasters and in which the bank has identified opportunities for financing. in accordance with this policy, the bank will encourage countries to include proactive drm in programming activities in those countries, as indicated in directive a- of the policy: . . a- . programming dialog with borrowing member countries. the bank will seek to include the discussion on proactive disaster risk management in the dialog agenda with borrowing member countries. the bank will give due consideration to vulnerability associated with natural hazards and risk management in relation to the priority areas of intervention discussed and agreed with the borrowers for the development of country and regional strategies, and operational programs. the bank will identify countries according to their level of exposure to natural hazards based on existing indicators and bank experience. for countries that are highly exposed to natural hazards, the bank will identify their potential vulnerability as a major development challenge and propose a country level disaster risk assessment. when the assessments identify that potentially important disruptions in the country's social and economic development could be caused by disasters resulting from natural hazards, the bank will encourage the inclusion of disaster risk management activities in the country strategy and operational program agreed with the borrower. these may include policy reforms, specific institutional strengthening and land-use planning activities, measures of financial protection such as through risk transfer, and investment projects conducive to reducing vulnerability at the national, regional, and municipal levels. where the natural hazards may affect more than one country, the bank will encourage a regional approach within the existing programming framework. the bank will promote the use of the disaster prevention sector facility and the disaster prevention fund, described in section v of this policy, and other means it offers to finance the recommended actions resulting from the assessment process. to meet the requirement of the drm policy to identify countries according to their level of risk exposure, a provisional country classification has been developed. the provisional classification will be subject to change, based on expert knowledge, and eventually on the complete data set of risk information derived from the implementation of the bank's indicators for disaster risk and risk management program in its borrowing member countries. the indicators program has been completed in countries to date. as indicated in directive a- , countries that have been identified as being highly exposed to natural hazards will be encouraged by the bank to include drm as a priority area for bank assistance. in those cases, the bank will propose that a country disaster risk assessment be carried out. the assessment would give an overview of the risks facing a country; identify the sectors and geographical areas that should receive priority attention; and provide initial policy orientation, reviews of relevant institutional capacities, and assistance needs. these assessments may already exist, or may be put together from country and secondary sources. . . the evaluation of the macroeconomic impacts as part of the country disaster risk assessment may allow for the identification of risk reduction needs and the quantification of possible resource gaps between available resources and funding needed for disaster response and recovery. recommendations will be prepared concerning opportunities for the bank to contribute to financial protection against disasters, as appropriate, such as direct funding for risk identification and support for risk transfer in financial markets in order to improve the effectiveness of the country's development efforts in the areas and sectors of bank involvement. . . identification of opportunities for bank financing. in line with the new country development risk framework, a more detailed disaster risk assessment will be recommended when disaster risks faced by certain areas/sectors of bank involvement could significantly jeopardize the achievement of a country's development objectives. these sector-specific or areaspecific assessments would analyze how these risks could affect specific areas/sectors and make recommendations on how best to address the risks identified. for this purpose, loans, technical cooperations, and nonfinancial bank products for proactive drm may be proposed within the country programming activities. . implementation of the country strategy: programming dialogue and portfolio management . . when deemed necessary by the bank and if the borrower agrees, drm activities will be included as in the implementation of the country strategy. the bank will give due consideration to the following: in the programming and portfolio reviews, the bank and the borrower may seek to implement risk reduction investments in the priority sectors and geographical areas through disaster prevention and mitigation measures. these investments may be financed with free-standing loans or as part of larger investment programs, policy based loans (pbl), or private sector operations. technical assistance may be considered for carrying out area-or sector-specific risk evaluations, strengthening risk management through policy reforms, organizational design, land-use planning activities, the preparation of new prevention loan programs, and supporting the implementation of financial protection schemes such as through insurance to cover disaster losses. loan portfolio modifications will likely be necessary due to the occurrence of major disasters during the regular programming cycle. borrowers may request new emergency or reconstruction financing and will have access to either new resources, for instance, through the immediate response facility for emergencies caused by disasters (gn- - and gn- - ), or "existing" resources, through loan reformulations (see directive b- ). . . the results of the drm implementation in-country programming will be evaluated using the monitoring system defined in the country strategy document. the bank may recommend activities of a regional nature whenever it is known that a particular disaster could affect several borrowing member countries simultaneously. examples of this situation are the enso (el niño southern oscillation) phenomenon, and the hurricanes and tropical storms in the caribbean and central america. . . the regional activities that possibly involve bank financing will be agreed beforehand with the affected borrowing member countries and may involve coordination with other international entities. the resulting operations to be included in the regional portfolio of the regional strategy document could be funded through bank instruments, such as technical cooperation of the regional public goods program or disaster prevention fund, or loans prepared in parallel, in close cooperation with the countries interested in a regional program. . . the purpose of this section is to provide guidance to project teams on the implementation of the bank's disaster risk management policy directive a- : risk and project viability. this directive is designed to promote the incorporation of drm in a systematic manner during project preparation and execution. the objective is to reduce risk to levels that are acceptable to the bank and the borrower, as indicated in directive a- of the policy: . . identification and reduction of project risk. bank-financed public and private sector projects will include the necessary measures to reduce disaster risk to acceptable levels as determined by the bank on the basis of generally accepted standards and practices. the bank will not finance projects that, according to its analysis, would increase the threat of loss of human life, significant human injuries, severe economic disruption, or significant property damage related to natural hazards. during the project preparation process project teams will identify if the projects have high exposure to natural hazards or show high potential to exacerbate risk. the findings will be reported to the bank through the social and environmental project screening and classification process. project teams should consider the risk of exposure to natural hazards by taking into account the projected distribution in frequency, duration, and intensity of hazard events in the geographic area affecting the project. project teams will carry out a natural hazard risk assessment for projects that are found to be highly exposed to natural hazards or to have a high potential to exacerbate risk. special care should be taken to assess risk for projects that are located in areas that are highly prone to disasters as well as sectors such as housing, energy, water and sanitation, infrastructure, industrial and agricultural development, and critical health and education installations, as applicable. in the analysis of risk and project viability, consideration should be given to both structural and nonstructural mitigation measures. this includes specific attention to the capacity of the relevant national institutions to enforce proper design and construction standards and of the financial provisions for proper maintenance of physical assets commensurate with the foreseen risk. when significant risks due to natural hazard are identified at any time throughout the project preparation process, appropriate measures should be taken to establish the viability of the project, including the protection of populations and investments affected by bank-financed activities. alternative prevention and mitigation measures that decrease vulnerability must be analyzed and included in project design and implementation as applicable. these measures should include safety and contingency planning to protect human health and economic assets. expert opinion and adherence to international standards should be sought, where reasonably necessary. in the case of physical assets, the bank will require that, at the time of project preparation, the borrower establish protocols to carry out periodic safety evaluations (during construction as well as during the operating life of the project) and appropriate maintenance of the project equipment and works, in accordance with generally accepted industry norms under the circumstances. the bank's social and environmental project screening and classification process will evaluate the steps taken by project teams to identify and reduce natural hazard risk. . . under the bank's new risk management development effectiveness framework, a common approach to the management of project risks is proposed. disaster risk is one of several project risks. these guidelines are an input to the bank's approach on project risk management. they apply to bank-financed investment loans and technical cooperation projects in the public and private sector as well as to operations supported by the multilateral investment fund. . . during the assessment, management, and monitoring of disaster risk at the project level, the disaster risk is reviewed at various stages of project preparation and implementation. on this basis, appropriate actions are taken to protect project benefits and outcomes. . . directive a- requires that the bank's social and environmental project screening and classification process provide for project teams to identify and reduce disaster risk. the recommended drm steps are as follows: project screening and classification outcome: identifies those projects where the drm policy is applicable and classifies as high, moderate or low risk. document: report of the social and environmental safeguards policy filter (spf) and social and environmental safeguards screening form. document: disaster risk profile in the environment and social strategy. disaster risk assessment (dra), including disaster risk management plan outcome: provides a detailed evaluation of the impacts of the significant natural hazards identified during project classification on project components; and outlines appropriate risk management and mitigation measures. document: dra report, prepared by the borrower (this may be a stand-alone report or it may be incorporated into the environmental impact assessment report). disaster risk management summary outcome: provides information on the specific disaster risks associated with the project and the risk management measures proposed by the borrower. document: drm summary, for inclusion in the environmental and social management report (esmr), prepared by project teams. project implementation, monitoring and evaluation outcome: identifies the approaches which the executing agency applies during project implementation; and which project teams apply during project monitoring and evaluation. . . the bank's social and environmental screening and classification system of projects will be used to filter and classify those projects for which disaster risk is likely to be an issue for project viability and effectiveness. . . there are two possible types of disaster risk scenarios: type : the project is likely to be exposed to natural hazards due to its geographic location. type : the project itself has a potential to exacerbate hazard risk to human life, property, the environment or the project itself. . . the purpose of this step is to establish, early in the project preparation process, whether natural hazards are likely to pose a threat to the project area during the execution (construction) period and/or the operational life of the project, due to type and type risk scenarios. project classification . . type risk scenario: the level of disaster risk associated with a given project is dependent on the characteristics of the natural hazards as well as on the vulnerability of the sector and project area. the project is classified on the basis of an estimate of the impacts/losses due to the significant hazards associated with type risk scenario. project teams classify their projects in terms of high, moderate, or low disaster risk on the basis of the (i) projected frequency of occurrence and magnitude or intensity of the hazard and (ii) estimated severity of the impacts associated with the hazard, i.e., the magnitude and extent of the likely social, economic, and environmental consequences of the hazard on the various project components and on the general zone of influence of the project. the classification process also provides project teams with a preliminary indication of the hazards likely to be of greatest significance, as well as their likely impacts on project components. and reported as part of the disaster risk profile presented in the environment and social strategy document. the project team will report its findings to the bank unit responsible for social and environmental screening and classification of projects, as part of the bankwide safeguards and risk management procedure. high-risk projects . . the project will typically be classified as high-risk if one or more of the significant natural hazards may occur several times during the execution (construction) period and/ or the operational life of the project and/or the likely severity of social, economic, and/or environmental impacts in the short to medium term are major or extreme. these impacts are of sufficient magnitude to affect project viability and may affect an area broader than the project site. as such hazards may affect project viability, a more detailed investigation of disaster risk, in the form of a dra, is required. moderate-risk projects . . the project will typically be classified as moderate risk if one or more of the prevalent natural hazards are likely to occur at least once during the execution (construction) period and/or the operational life of the project and/or the likely severity of impact in the short to medium term is average. these impacts are typically confined to the project site and can be mitigated at reasonable costs. projects associated with a moderate disaster risk do not typically require a dra. however, a more limited dra may be required, depending on the complexity of the project and where the anticipated vulnerability of a specific project component may compromise the achievement of project outcomes. low-risk projects . . the project will typically be classified as low risk if natural hazards are not likely to occur during construction and/or the operational life of the project and/or associated with a low severity of impact in the short to medium term. those impacts that occur do not lead to a disruption in the normal functioning of the operation and can be corrected as part of project maintenance. the occurrence of the hazard event does not impact on the achievement of project outcomes. a dra is not required. . . type risk scenario: the impacts associated with type risk scenario are addressed under directive b- of the bank's environment and safeguards compliance policy (op- ). such impacts are thus considered and included in the categorization of environmental impacts. . . the unit responsible for environmental and social risk mitigation reviews the classification of all operations and may recommend a new classification based on the review of the disaster risk profile presented in the environment and social strategy. the unit and line divisions will need to agree on the final classification of the operations, the level of disaster risk assessment required, and a proposed strategy to address and manage the anticipated impacts. for projects that are identified as high-risk, a dra is required and is prepared by the borrower. the objective of the assessment is to evaluate in greater detail the impacts of the significant natural hazards identified during project classification on project components. the results of the risk assessment will guide the selection of appropriate risk management and mitigation measures. evaluates the frequency, intensity, and severity of previous hazard events that have affected the project area, as well as those predicted to affect the site over the project's operational life. identifies the vulnerability and probable losses of project components, i.e., the nature and magnitude of the probable social, economic, and environmental impacts due to each hazard; this includes both direct and indirect impacts. provides a disaster risk management plan, including proposals for the design of disaster prevention and mitigation measures, including safety and contingency plans to protect human health and economic assets, and their estimated costs; an implementation plan; a monitoring program and indicators for progress; and an evaluation plan. the implementation plan includes protocols to undertake periodic safety evaluations from project implementation up to project completion and maintenance of project equipment and works. project teams include a summary of the dra report in the environmental and social management report, which is reviewed by both the bank unit responsible for environmental and social risk mitigation screening and the sector divisions chiefs will sign off on the esmr and safeguard compliance plan, including the drm activities. the drm summary provides information on the specific disaster risks associated with the project and the risk management measures proposed by the borrower. . . the project's proposed management and mitigation measures should comply with international standards of good practice and relevant national laws and regulations, such as national planning policies, laws and regulations, as well as national building codes and standards. . . project teams will analyze the impact of the disaster risk prevention and mitigation elements in their assessment of project viability, verifying that identified hazard impacts on project components are reduced to acceptable levels. . . the executing agency is responsible for ensuring that all drm activities ( including prevention and mitigation measures) associated with the project are implemented in accordance with the provisions of the loan agreement. this includes periodic safety evaluations and appropriate maintenance during project implementation and through project completion. project teams will monitor implementation to verify that the drm actions in the project risk management plan are carried out effectively; they shall use standard monitoring (project performance monitoring report; ppmr) procedures. purpose and scope . . the loan reformulation addressed by these guidelines provides financing for postdisaster response to the impacts of natural hazard events and physical damage (such as structural collapse and explosions) caused by technological accidents or other types of disasters resulting from human activity. loan reformulation includes the diversion of existing loan resources to specific analysis needs to determine performance indicators, based on the possible revisions and reformulations being considered. analysis of loans used as a source of funding . . the impact of redirecting loan resources from existing loans will be estimated taking into account the intended uses and project objectives of the loan or loans to be used as a source relative to the new proposed use of the funds, thereby creating the conditions for more informed decisions. resource transfers could be done between cost categories within a project (in which case more streamlined approval procedures will apply), or between separate loans as stipulated by bank procedures. . . for choosing existing projects as origin of resources, following factors (in order of priority) would be considered: a. public sector projects. only public sector loans would be considered. loans to the private sector should not be included in the package of loans for possible reformulation as a result of disasters. b. development impact in the reformulated operations. the loans that are having a relatively low economic/financial impact in the country should be considered first as a source for redirecting resources from existing loans toward emergency funding. redirecting resources that are within a loan generally have a smaller effect than those involving several operations. the original development objectives may not be achieved due to the new social or economic situation created by the disaster or it could be considered too expensive to reorient the resources within the old operation. recommendations regarding the redirection of resources will be based on project performance indicators used by the bank. c. level of execution. operations with a low level of physical execution or disbursements and commitments could be chosen for redirection, except for those loans with a very high development impact. the selection should not only be based on a low disbursement rate of the existing loans alone, but also on an analysis of the underlying causes of the poor performance and any remaining opportunities for attaining project goals. d. loans in affected sectors. resource transfers within an affected sector will be preferred due to the greater similarity of their respective objectives compared with those of loans in different sectors. e. loans in affected region(s). in general, existing projects in the disaster area will not be used to provide resources to be transferred to other programs in the same area. however, when damage is so severe that the attainment of the original development objectives is in jeopardy, or the continuation of a certain component of the project as a whole is unjustifiable on account of excessive costs, parts or all of the undisbursed balances may be re-channeled toward emergency or rehabilitation and reconstruction projects in the same area. factors to be considered in projects receiving funding . . the following are the recommended actions to be considered by project teams, while preparing the funding analysis: . i. technical analysis. for emergencies, the technical analysis will be aimed at re-establishing basic services and critical infrastructure in a time efficient manner. the attainment of fully functioning facilities and productive capacity through rehabilitation and reconstruction will be measured through a detailed technical analysis with the objective of reaching disaster resistance, and fulfilling technical standards across the board and performance criteria required by the bank. . ii. socioeconomic analysis. for emergency response, the socioeconomic analysis will be limited to the evaluation of the cost-effectiveness of restoring the basic services and critical infrastructure. if information is scarce, the analysis may be done based on comparable data from similar operations elsewhere. any delays in the analysis and processing of the emergency financing may limit the bank to have a meaningful contribution to resolve critical needs that are affecting the population, urgent re-establishment of basic services and critical activities. the analysis for rehabilitation and reconstruction investments will follow standard bank practices. if future project benefits cannot be estimated, cost-effectiveness analysis will be carried out. . iii. evaluation of institutional capacity and coordination. in order to gain sustainability, existing agencies are preferred to the establishment of new, ad hoc entities. a rapid analysis will be carried out of the institutional capacity, procurement management capability, and financial track record of the existing agencies. based on its results, it will be determined if the resources will be disbursed on an ex post or on a concurrent basis. the administrative and technical responsibilities of all the participating institutions in different sectors and means of coordination need to be clearly defined to facilitate successful execution in a limited time frame. planned strategies and activities need to be coordinated with other international agencies participating in the post-disaster financing. . i. procurement procedures. the applicable bank policy and rules will be followed for the procurement of goods and services. as an exception, for emergency situations, specific procurement procedures are available, in view of the special nature of these operations and the urgency involved. . ii. transparency in financing. the financial management and evaluation of procurements, expenses, and the utilization of goods and services to be funded with bank resources for emergency situations will be audited on a concurrent basis, following current bank practices. for rehabilitation and reconstruction investments the review may be on a concurrent or ex post basis depending on risk of lack of transparency estimated by the project teams. loan resources can be used to contract the services of independent public accountants to audit the operation's financial statements as required by the bank. . iii. monitoring and evaluation. bank resources will be subject to review on a concurrent basis for emergency investments. for rehabilitation and reconstruction, an audit will be required on a concurrent or ex post basis, depending on the risk of lack of transparency as estimated by the project team. data collection will be planned for monitoring and evaluation. only direct project impacts will need to be evaluated. . . vulnerability should not be replicated when designing disaster response financing. in the preparation of reformulations for rehabilitation and reconstruction, a proportion of the resources of the operation should be allocated to prevention and mitigation activities. the percentage of the total cost that will be dedicated to prevention and mitigation should be defined and the viability of these investments assessed by the project team. the project team should also justify any potential deviations from international practices in these allocations for disaster prevention and mitigation. purpose and scope . . the purpose of this section is to provide assistance to project teams on the implementation of directive b- : reconstruction. specifically guidance is provided on the precautions that country programming process and project teams should take to promote revitalization of development efforts in the aftermath of disasters, while ensuring that rehabilitation and reconstruction projects do not lead to a rebuilding of or an increase in vulnerability. as indicated in directive b- of the policy: . . avoiding rebuilding vulnerability. operations that finance rehabilitation and reconstruction after a disaster require special precautions to avoid rebuilding or increasing vulnerability. these include the precautions mentioned in a- , as well as correcting deficiencies in risk management policies and institutional capacity as reflected in a- . a significant share of the new investment will be earmarked to reduce vulnerability to future disasters and improve the country's capacity for comprehensive disaster risk management. particular attention must be given to lessons learned from recent hazard events. the bank will not assume that pre-disaster conditions persist in whole or in part in the affected area. disaster risk assessment of the reconstruction project should be carried out taking into account the specifics of the area, the sector, and the infrastructure concerned, as well as the current environmental, social, and economic situation and any changes in the affected area as a result of the disaster. . . reconstruction may follow as a response to the impacts of natural hazard events, and physical damage (such as structural collapse and explosions) resulting from technological accidents or other types of disasters resulting from human activity. . . the guidelines for directive a- : risk and project viability, as described in section of these guidelines, also apply to rehabilitation and reconstruction projects. for projects identified as high risk, the disaster risk assessment, and design and implementation of risk reduction measures, will incorporate the lessons learned from the disaster event, including the performance of the physical works, the relevant sectors, institutions, and other project components. risk reduction measures will include enhancements in national, regional, and sectoral risk management policies and strengthening of institutional capacity. . . in order to avoid the rebuilding of or an increase in vulnerability, a proportion of the resources of the operation will be allocated to prevention, mitigation, and risk transfer. the percentage of the total cost is at the discretion of the project team, but will be guided by international practices. used with permission from iadb, . reconstruction facility or immediate response facility for emergencies caused by natural and unexpected disasters. the emergency reconstruction facility can use up to $ million of the iadb's ordinary capital or up to $ million of the fund for special operations to assist an impacted country the ifis described in this chapter bstdb) • caribbean development bank (cdb) • council of europe development bank (coeb) • development bank of southern africa (dbsa) • european bank for reconstruction and development (ebrd) • islamic development bank (idb) • north american development bank (nadb) proposed loan: peoples republic of china emergency assistance for wenchuan earthquake reconstruction project european commission fao's mandate. fao website facing the challenge of natural disasters in latin america and the caribbean service sector severely affected by typhoon haiyan nato (north atlantic treaty organization), . pakistan earthquake relief operation ocha- fm c/$file/ocha_ar _hi% res.pdf?openelement japan diverts rice to tsunami survivors. world food programme (wfp) roadmap towards a strategy for disaster and climate resilient development in the pacific (srdp) by : executive summary un-habitat. secretary-general's envoy for youth overview of global humanitarian response johannesburg plan of implementation. united nations website disaster profiles: third un conference on least developed countries united nations educational, scientific, and cultural organization) unhcr in dubai: first line responder in emergencies. unhcr supply office, dubai. unicef (united nations children's fund) about the unjlc. unjlc website connect and convince to reduce disaster impacts lives saved in viet nam by involving women in disaster planning. press release economics, health, and development: some ethical dilemmas facing the world bank and the international community fast food: wfp's emergency response food aid information system: quantity reporting emergency response framework world bank group to support flood recovery in bosnia and herzegovina through their efforts to mitigate, prepare for, respond to, and recover from natural disasters, multilateral organizations have a major role in international disaster management. all nations are at risk from disasters and, likewise, all nations face the prospect of one day finding themselves requiring help from one or more of these organizations. multilateral organizations direct the collective experience and tools of their member states to benefit all nations in need of assistance-even the wealthiest ones. the progress witnessed by the international disaster management community in recent years can be traced directly to the work of these multilateral organizations, especially focused initiatives such as the international strategy for disaster reduction. provide effective and efficient support to borrowing members in reducing disaster risks and (ii) to facilitate rapid and appropriate assistance by the bank to its borrowers after a disaster. the guidelines are part of the bank's framework for the management of development risk at the country and project levels. there are four possible strategies to manage risks: (i) acceptance, when risks remain below levels deemed tolerable by the parties involved; (ii) prevention and mitigation; (iii) sharing, when risks can be effectively transferred to a third party, for example through insurance; and (iv) rejection ("avoidance"), when the level of risk exceeds the risk level deemed acceptable but cannot be lowered at a reasonable cost. . . the policy directives outline the actions that are to be used both by the iadb staff and by teams of the borrowers, who are responsible for a. country programming-policy directive a- b. preparation and execution of new projects-directive a- c. loan reformulations for financing disaster response-directive b- d. preparation and execution of reconstruction projects-directive b- . . the guidelines will contribute to the mainstreaming of disaster risk management (drm) into the bank's programming exercises with the borrowers, particularly in high-risk countries.to determine which of the idb's borrowing member countries will require a country risk assessment, a provisional classification of all countries has been prepared. . . the guidelines will be used for the design and implementation of lending programs, technical cooperations, small projects, cofinancing, and preinvestment activities consistent with the identified risk level. they will address ways to manage risk in public and private sector activities within the same project or to another existing project, in order to finance unplanned disaster response. reformulations may thus involve just a single loan or several operations. . . loan reformulation allows for the reallocation of resources from existing loans to other projects under certain circumstances, in the aftermath of disasters, as stipulated in directive b- of the policy: . . the bank may approve the reformulation of existing loans in execution in response to disasters if: (i) a state of emergency or disaster has been officially declared by the government; (ii) the impact of the loan reformulation has been estimated taking into account the intended uses and project objectives of the loan or loans to be reformulated relative to the new proposed use of the funds, thereby creating the conditions for more informed decisions on the part of the approving authorities; (iii) adequate transparency and sufficient mechanisms for monitoring, auditing, and reporting the use of the redirected funds are in place, while taking into account the need of a timely response given the nature of the situation; and (iv) a significant share of the redirected funds will be earmarked to reduce the borrower's vulnerability to future disasters and improve the country's capacity for comprehensive disaster risk management. in order to be considered for loan reformulation funding in response to a disaster, the government must have declared a state of emergency or its equivalent, for a region or the country as a whole, according to the laws and regulations of the country. . . the country office should prepare an originating document after the formal declaration of state of emergency by the government, recommending the decisions that should be taken in relation to the projects/programs potentially affected by the disaster. . . the bank may offer technical support to the government in preparing an official request for financing through loan reformulation, on the basis of the originating report. . . once a financing request is received, a project team is appointed, and the approval process of the reformulation operation(s) will follow the established bank procedures on delegation of authority, according to regular bank procedures. once the bank has received an official request from the borrowing country for financing disaster response, the possibility of using fresh idb resources, such as through the immediate response facility (gn- - and gn- - ), is analyzed. if their use is not considered feasible, the impact of the loan reformulation will be estimated by vpc, with support from vps, taking into account the intended uses and project objectives of the loan(s) to be reformulated either: (i) as a provider of funding or (ii) as a recipient of resources. the analysis for operations receiving funding in response to a natural hazard or physical damage from technological activities or other types of disasters resulting from human activity will reflect the nature of the projects, available information, and use of the reallocated resources for an emergency, rehabilitation, and reconstruction. . . the revision of the portfolio in emergency situations should be done jointly with the borrower. those projects whose development objective is unlikely to be achieved should be considered first as candidates for reformulation. the team responsible for the portfolio key: cord- -ny lj authors: vese, donato title: managing the pandemic: the italian strategy for fighting covid- and the challenge of sharing administrative powers date: - - journal: nan doi: . /err. . sha: doc_id: cord_uid: ny lj this article analyses the administrative measures and, more specifically, the administrative strategy implemented in the immediacy of the emergency by the italian government in order to determine whether it was effective in managing the covid- pandemic throughout the country. in analysing the administrative strategy, the article emphasises the role that the current system of constitutional separation of powers plays in emergency management and how this system can impact health risk assessment. an explanation of the risk management system in italian and european union (eu) law is provided and the following key legal issues are addressed: ( ) the notion and features of emergency risk regulation from a pandemic perspective, distinguishing between risk and emergency; ( ) the potential and limits of the precautionary principle in eu law; and ( ) the italian constitutional scenario with respect to the main provisions regulating central government, regional and local powers. specifically, this article argues that the administrative strategy for effectively implementing emergency risk regulation based on an adequate and correct risk assessment requires “power sharing” across the different levels of government with the participation of all of the institutional actors involved in the decision-making process: government, regions and local authorities. “and the flames of the tripods expired. and darkness and decay and the red death held illimitable dominion over all”. edgar allan poe, the mask of the red death, complete tales and poems (new york, vintage books ) p international concern" (pheic). in the light of its later levels of spread and severity worldwide, the who then assessed covid- as a "pandemic". the pandemic has spread rapidly in several european union (eu) member states. italy, however, is a special case: here, the covid- outbreak spiralled upwards earlier and more severely than elsewhere in europe, reaching a high mortality rate and creating the conditions for the public healthcare system's collapse. in this scenario, the italian government (from now on the government) declared a nationwide state of emergency, followed by increasingly restrictive measures aimed at slowing and containing the spread of the virus and mitigating the pandemic's effects under the by now well-known "flatten the curve" imperative. the last of these measures established the national lockdown, extending the emergency rules to the entire country for six months and, more generally, providing what has been called the "italian model to fight covid- ", namely "diminish viral contagions through quarantine; increase the capacity of medical facilities; and adopt social and financial recovery packages to address the pandemic-induced economic crisis". in this article, starting from the main regulatory acts and considering recent scientific knowledge and epidemiological data on covid- , we will examine the administrative measures the government has taken and the strategy it has implemented to deal with the pandemic in the immediacy of the emergency. after this initial analysis, we might legitimately wonder whether those measures and that strategy have proven effective in containing the pandemic. more generally, by analysing the administrative strategy, the article emphasises the role that the current system of constitutional separation of powers plays in emergency management and how this system can impact health risk assessment. an explanation of the risk-management system in italian and eu law will be provided and the following key legal issues will be analysed: ( ) the notion and features of emergency risk regulation from a pandemic perspective, distinguishing between risk and emergency; ( ) the potential and limits of the precautionary principle in eu law; who, "statement on the second meeting of the international health regulations ( ) emergency committee regarding the outbreak of novel coronavirus ( -ncov)", geneva, switzerland, january . pheic has been defined in the international health regulations (ihr) of as an extraordinary event which can: ( ) constitute a public health risk to other states through the international spread of disease; and ( ) potentially require a coordinated international response. furthermore, this definition implies a situation that is: ( ) serious, unusual or unexpected; ( ) carries implications for public health beyond the affected state's national borders; and ( ) and may require immediate international action. who, "director-general's opening remarks at the media briefing on covid- ", march . resolution of the council of ministers of january , adopted pursuant to legislative decree / (civil protection code) . on the declaration of emergency rule, see european commission for democracy through law (venice commission) . dpcm of march . for the general framework of all measures adopted by the italian state during the covid- emergency, see . fg nicola, "exporting the italian model to fight covid- " (the regulatory review, april ) . and ( ) the italian constitutional scenario with respect to the main provisions regulating central government, regional and local powers. specifically, the article argues that the administrative strategy for effectively implementing emergency risk regulation based on an adequate and correct risk assessment requires "power sharing" across the different levels of government with the participation of all of the institutional actors involved in the decision-making process: government, regions and local authorities. following the declaration of the state of emergency, the government approved decree-law no. of february vesting the president of the council of ministers with wide ordinance powers to handle the emergency by issuing his own administrative decrees. in particular, decree-law / gave the prime minister the power to issue typical emergency administrative measures in order to ensure social distancing, impose lockdown areas, close offices and public services and suspend economic activities. in addition, it allowed him to adopt atypical administrative powers whereby "further containment and emergency management measures" could be established. in a matter of days, the government approved three important regulatory acts based on the implementation of decree-law / : first with the decree of the president of the council of ministers (dpcm) of march , second with the dpcm of march and third with the dpcm of march, the government established stringent emergency administrative measures to curb the pandemic's spread throughout the country. in the first instance, these measures were gradual and concerned specific municipalities, provinces or regionsespecially in northern italythat were hardest hit by the virus and therefore classified as "red zones" subject to government-imposed local lockdowns. later on, the government established the national lockdown, and emergency measures were extended to the entire country for six months. in particular, pursuant to article ( ) of the dpcm of march , the government imposed a lockdown in lombardy and another fourteen provinces of northern italy. in doing so, the government introduced several legal prohibitions, such as the ban on people travelling to and from places in the red zones. with the subsequent national lockdown, the government imposed a travel ban in the entire country according to article ( ), dpcm of march , and prevented all forms of social gathering in public places or places open to the public across the country, according to article ( ), dpcm of march . furthermore, pursuant to articles ( ), ( ) and ( ), dpcm of march , retail businesses and personal services were suspended. as a consequence of the national lockdown, the ministry of health's order of march provided several stringent measures that prohibited many activities, such as the ban on accessing all public places, on exercising in public places and on going to holiday homes. in addition, with its order of march , the ministry of health, in agreement with the ministry of transport, established that people entering italy by plane, boat, rail or road must declare their reason for travel, the address where they plan to self-isolate, how they intend to travel there and their phone number so that authorities can contact them throughout an obligatory fourteen-day quarantine. moreover, several administrative sanctions were gradually established in the various regulatory acts. the last of these acts introduced rigorous sanctions for people who leave home without valid reasons and for undertakings that do not comply with the order to close. in the meantime, the regions and local authorities also adopted several ordinances establishing emergency administrative measures for the pandemic in their area. lastly, the government issued decree-law no. of march , with the aim of rationalising and coordinating emergency powers among the different levels of government. *** in the following pages, emphasising the role that the current structure of constitutional separation of powers plays in risk assessment, i will argue that the main problems of the italian administrative strategy for the covid- pandemic are due to the lack of effective "sharing of powers", and more specifically to the failure to share administrative in particular, art ( ) of decree-law / did not affect the effects produced and acts adopted on the basis of decrees and ordinances issued pursuant to decree-law / or art of law / , and established that the measures previously adopted by the dpcms of march , march , march and march as still in force on the date of entry into force of the said decree-law shall continue to apply within the original terms. regulatory powers among the different levels of government with the participation and cooperation of all institutional actors involved in the emergency decision-making process: the government, regions and local authorities. from this point of view, as i will attempt to explain, the failure to share administrative regulatory powers can have a decisive impact on risk assessment at the national level in terms of the effectiveness/ineffectiveness of the strategies adopted by the various institutional actors called upon to manage the emergency in their own areas. here, by "sharing powers", i mean the idea that the institutional actors involved in the decision-making process cooperate in the exercise of their powers by adopting consistent measures in the public interest; that is to say, with the aim of maximising the rights of individuals as required by the italian constitution. power sharing does not mean homologation. indeed, adopting different administrative strategies at different levels of government might increase the effectiveness of the response to a pandemic, but these measures must be shared among all of the actors involved in emergency management. sharing powers, measures and local strategies will be useful for an effective policy for containing the virus's nationwide spread based on an overall risk assessment. hence, the idea of shared powers emphasises the role of cooperation in specific institutional contexts, such as italy's, where competences are allocated across the different levels of government. the sense, more generally, is that sharing powers in multi-level systems enables states to perform better in terms of democracy, as powers are balanced between state and local levels. as we will see, however, the absence of effective power sharing at all levels of government in a pandemic can produce serious problems in correctly assessing risk and consequently in the emergency management strategy. in particular, i will discuss the problem of the lack of effective power sharing in italian policies from two key points of view: the government's administrative strategy in addressing the virus's spread by means of an "incremental approach" (section iv. .a); and the government's administrative strategy in implementing a national pandemic health plan (section iv. .b). before doing so, i will outline some key legal issues for the topics examined in this article. in particular, to put the administrative strategy devised by the government in the covid- emergency into context, i will analyse: ( ) the notion and features of emergency risk regulation from a pandemic perspective, distinguishing between risk and emergency; ( ) the potential and limits of the precautionary principle in eu law; and ( ) the italian constitutional scenario with respect to the main provisions governing government's, regions' and local authorities' powers. this preliminary analysis of key legal issues is useful for understanding why the administrative strategy has proven ineffective in managing the pandemic (sections iv. .a and iv. .b). placing the notion and its main features in the context of a pandemic, we could define emergency risk regulation as the action undertaken in the immediacy of a pandemic in order to mitigate its impact. from this perspective, we should bear in mind the distinction between risk and emergency. generally speaking, the traditional approach of administrative law refers to the notion of emergency and not also to the notion of risk, which legal doctrine touches on only marginally. with regards to the emergency, as a safeguard clause to deal flexibly with pandemic risks, governments and other public authorities may invoke the use of extraordinary powers to restore the normal course of legal relations. what is more, regulators have used emergency tools to act in the expectation of a risk for many years, although there is no denying that a risk is a potential danger, whereas an emergency is an actual danger. indeed, it should be sufficiently clear that emergency power is ineffective when applied in a situation that is only potentially dangerous. in this connection, it has been argued that the methods of exercising administrative powers can be better regulated by putting the administrative regulation in the category of risk rather than that of emergency. we might observe that if the notion of "risk" characterises a peculiar, intermediate state between security and destruction, in "emergency risk" the balance between these two clearly tilts towards the latter. in fact, as it is triggered by a pandemic, emergency risk regulation presupposes the existence, or the mere threat, of a pandemic. the pandemic, as a alemanno (ed.), governing disasters: the challenges of emergency risk regulation (cheltenham, edward elgar ) p xix. however, the notion of risk in italian administrative law is analysed by m simoncini, la regolazione del rischio e il sistema degli standard. elementi per una teoria dell'azione amministrativa attraverso i casi del terrorismo e dell'ambiente [risk regulation and the standards system. elements for a theory of administrative action through the cases of terrorism and the environment] (napoli, editoriale scientifica ) chs and , where the author postulating the notion of risk argues and suggests, in an innovative approach, the transition from the "emergency" perspective to the "risk regulation" perspective. . beck is responsible for analysing the sociopolitical dimension of risk management and in particular the problem of the relationship between science and society through the criticism of the monopoly that scientific rationality currently holds. alemanno, supra, note , xxii. a possible cause of disaster for humans, is an event of substantial extent causing significant physical damage or destruction, loss of life or drastic change to the natural environment. typically, one speaks of a pandemic when a threat to people's health is perceived that calls for urgent remedial action under conditions of uncertainty. fundamentally, emergency risk regulation in a pandemic event, as in other disasters, finds its natural regulatory space in two stages: mitigation and emergency response. in principle, mitigation efforts attempt to reduce the potential impact of a pandemic before it strikes, while a pandemic response tends to do so after the event. however, the distinction between emergency mitigation and emergency response is not always very sharp. when called upon to act under the menace of a pandemic, governments must both mitigate and respond to the threat in a situation characterised by suddenness (emergency) and significance. in a pandemic, emergency risk regulation is clearly called on to operate in the initial phase of the disease's spread, when the mere threat overshadows the regulatory context by virtue of its status as an emergency. accordingly, the most cost-effective strategies for increasing pandemic preparedness with administrative regulation, especially in resource-constrained settings, may consist of: ( ) investing to reinforce the main public health infrastructure; ( ) increasing situational awareness; and ( ) quickly containing further outbreaks that could extend the pandemic. in addition, especially once the pandemic has begun, a coordinated response should be implemented where the public regulator focuses on: ( ) maintaining situational awareness; ( ) public health messaging; ( ) reducing disease transmission; and ( ) care and treatment of the ill. successful contingency planning and an administrative strategy using the emergency risk regulation approach call for surge capacity, or in other words the ability to scale up the delivery of health interventions in proportion to the severity of the event, the pathogen and the population at risk. the pandemic may produce significant impact on the regulatory context by justifying the partial or total suspension of the ordinary decision-making process. departures from the rule of law, or simply from established procedures, are generally perceived as necessary if the event has met the significance threshold. however, the use of emergency administrative measures, such as temporary and exceptional measures, should be considered legitimate only for the period in which the pandemic ibid, xxii-xxiii. see also dd caron, "addressing catastrophes: conflicting images of solidarity and self interest" in dd caron and ch leben (eds), lasts. by contrast, prolonging exceptional order beyond the time of the pandemic means that any powers and measures designed to be temporary will be made permanent, intensifying the controlling authority's capacity, even though this might limit the enjoyment of individual rights. in addition, if the general need to prevent a pandemic cannot be ignored, it should be well thought out as an opportunity for risk regulation to prevent not only the sudden impact of a pandemic situation, but also any distorting effects or mishandling of the necessary recourse to emergency powers. consequently, it might now be inferred that emergency risk regulation in the context of a pandemic is a relevant regulatory methodology that combines the risk approach with the possibility of resorting to extraordinary measures in case a pandemic occurs. this methodology is essential for an effective administrative strategy for dealing with a pandemic because it permits constant monitoring and management of risks that can have serious consequences for society. by assessing the risks and taking proportionate measures, the negative effects of the emergency can be reduced and the use of emergency powers can be limited. indeed, it should be pointed out that the principle of reasonableness, which is generally invoked in the exercise of emergency powers against immediate danger, does not operate in emergency risk regulation. instead, as i will claim later, it will be the precautionary principle that matters (section iii. ). furthermore, it must be said that emergency risk regulation entails an accurate assessment of the factual situation based on scientific evidence. to apply this methodology correctly, a variety of factors must be consideredincluding the real level of the threat as well as how people perceive itin a step-by-step analysis based on the available scientific knowledge. in particular, as i will claim in analysing the italian policies (sections iv. .a and iv. .b), the administrative strategy for effectively implementing emergency risk regulation in a pandemic requires power sharing across the different levels of government with the participation of all of the institutional actors involved in the decision-making process in order to adopt consistent measures based on the constant monitoring and updating of the nationwide epidemiological risk assessment. hence, effective sharing of administrative powersand more specifically the administrative regulatory powers for emergenciesbetween the government, regions and local authorities would optimise the adoption of proportionate measures for controlling and containing the virus throughout the country, avoiding or at least delaying the application of stringent measures such as the lockdown of municipalities, provinces, regions or entire states. g martinico and m simoncini, "emergency and risk in comparative public law" (verfassungsblog, may ) . according the authors, it is the facts and not the law that indicate the conclusion of an emergency. thus, the risks posed by the use of extraordinary administrative measures should be considered, especially at the end of the emergency when the government's powers should be subject to legal control in order to avoid departures from original objectives. in the same sense, see also simoncini, supra, note , . on the state of exception, see c schmitt, die diktatur: von den anfängen des modernen souveränitätsgedankens bis zum proletarischen klassenkampf (berlin, duncker & humblot ). schmitt's jurisprudential thinking placed the state of exception at the very centre of analysis, beginning with his work on the roman dictatorship. martinico and simoncini, supra, note . in managing the pandemic, the government's administrative strategy should take the emergency risk regulation methodology we have just outlined into account. in the eu legal system, the precautionary principle is described in article ( ) tfeu on environmental policy. the jurisprudence of the european court of justice (ecj) played a prominent role in elevating the precautionary principle to the status of a general principle of eu law. some ecj judgments in health matters are seminal in this regard. according to the ecj's jurisprudence, the precautionary principle requires that competent authorities adopt appropriate administrative measures to prevent specific potential health risks. the ecj's approach maintains that an appropriate application of the precautionary principle presupposes the identification of hypothetically harmful effects for health flowing from the contested administrative measure, combined with comprehensive assessment of the risks to health based on the most reliable scientific data available. in like manner, the european commission (ec) has contributed significantly to outlining the features of the precautionary principle in the eu legal system. in the communication of , the ec sought to establish a common understanding of the factors leading to recourse to the precautionary principle and its place in decisionmaking. according to the ec communication, the principle covers those circumstances where scientific evidence is insufficient, inconclusive or uncertain, but where preliminary scientific evaluation provides reasonable grounds for concern that the potentially dangerous effects on human health might be inconsistent with the chosen level of protection. various factors can trigger the adoption of precautionary measures. these factors inform the decision on whether to act or not, this being an eminently political decision, a function of the risk level that is "acceptable" to the society on which the risk is imposed. the ec has also established guidelines for those situations where action based on the precautionary principle is deemed necessary in order to manage risk. in these situations, a cost-benefit analysis to compare the likely positive and negative effects of the envisaged action and of inaction is recommended, and it should also include non-economic considerations. however, risk management in accordance with the precautionary principle should be proportionate, meaning that administrative measures should be proportional to the desired level of protection. in some cases, an administrative response that imposes a total ban may not be proportional to a potential risk; in others, it may be the only possible response. in any case, such measures should be reassessed in the light of recent scientific data and changed if necessary. in eu law, therefore, the precautionary principle has been widely recognised as a defining principle of risk regulation alongside the regulatory aim of a high level of protection. nevertheless, this principle might prove ineffective or even harmful if applied in a "strong" form. the strong form of the principle has been authoritatively criticised on the grounds that it suggests that regulation is required whenever there is a potential risk to health, even if the supporting evidence is conjectural and the economic costs of administrative regulation are high. in particular, if governments adopt the strong form of the principle, it would always require regulating activitiesconsequently imposing a burden of proof each timeeven if it cannot be demonstrated that those activities are likely to cause harms. in addition, as the need for selectivity of precautions is not simply an empirical fact but is a conceptual inevitability, no society can be highly precautionary with respect to all risks. hence, in this strong form, the precautionary principle proves ineffective and even harmful by requiring stringent administrative measures that can be paralysing, in that they prohibit regulation and all courses of action, including inaction. thus conceived, this principle may not lead in any direction or provide precise guidance for governments and regulators. recently, the limits of the precautionary principle have been analysed in the field of administrative and constitutional law. an interesting recent work proposes that precautionary and optimising constitutionalism are a dichotomy. in summary, the theory advances two distinct propositions. the first is that constitutions should be viewed as devices for regulating political risks. those political risks are referred to as "second-order risks", as opposed to "first-order risks" such as wars, diseases and other social ills. many of these risks are described as "fat-tail risks" that are exceedingly unlikely to materialise, but more likely than in a normal distribution, and are exceedingly damaging if they do materialise, as in the case of a pandemic. under "maximin constitutional" approaches, it is suggested that precautionary rules can overcompensate for these low-likelihood risks and even cause the very dangers that they seek to prevent. hence, precautionary constitutionalism is myopic in focusing on certain risks, and the notion of unappreciated or unaccommodated risks is central. on the basis of this hypothesis, the best way to regulate risk is thus to avoid obsessive views on risk avoidance or precautions and instead to allow greater flexibility in addressing the full array of risks inherent in government. what vermeule calls "optimising constitutionalism" is an answer to those who frame their understanding of the constitution along more rigid precautionary principles. vermeule's approach has been criticised. following these criticisms, i believe that this approach also reveals some critical points about the notion of risk. unless one adopts a more fungible notion of risk, i do not believe that "precautionary constitutionalism" is suboptimal for risk. it depends on how one weighs the risks involved in governing, even if one accepts risk analysis as the best measure for the success of a constitutional system. i claim, more generally, that correctly applying the precautionary principle, although it works better in a context of risk rather than one of emergency, is nonetheless important in managing a pandemic because it makes it possible to delay the implementation of stringent emergency measures. we have emphasised that administrative precautionary measures, unlike emergency ones, do not suspend the rule of law, since they activate soft government regulation that does not jeopardise fundamental rights concurrent with those threatened by imminent danger. hence, in my opinion, precautionary measures, where they are effectively shared across the different levels of government through appropriate risk assessment, would serve to avoid or at least delay governments' activation of a state of emergency. activating a state of emergency, consequently, would trigger hard government regulation through emergency measures that suspend the rule of law and therefore jeopardise fundamental rights. in a particular context such as the covid- pandemic, the precautionary principle could also be invokedand the implementation of precautionary administrative measures would be usefulin the presence of an emergency declaration issued by governments. in this sense, i argue that the declaration of a state of emergency for a pandemic is based on a technical risk assessment (ie technical discretion ) by the administration (eg government). in a pandemic, then, the emergency relates essentially to the capacity of administrations (eg governments, health authorities) to manage cases requiring healthcare (eg intensive care for respiratory support, hospitalisations for advanced pharmacological treatments and so on). thus, the subject of the technical assessment of the fact (the pandemic) is be provided by the evaluation relating to the administration's capacity to fulfil the tasks established by the legal system to protect the right to health enshrined in article of the italian constitution (section iv. ). furthermore, to be effective in emergencies such as a pandemic, the notion of the principle to which i refer should not entail the activation of precautionary measures typical of its strong version (which is exemplified in the well-known phrase "better safe than sorry"). in its strong version, in fact, the precautionary principle would be both paralysing and uneconomical, since it requires that any and all risks be prevented, even those that are least likely to occur or have been created artificially for italian legal doctrine distinguishes between "administrative discretion" and "technical discretion" under the influence of ms giannini, il potere discrezionale della pubblica amministrazione political reasons (i am thinking here of george w. bush's preventative war doctrine) in order to justify stringent administrative measures issued by governments for purposes not necessarily related to the alleged risk. by contrast, balancing costs against benefits might provide the basis of a principled approach for making decisions in complex contexts, such as the italian legal system, where the current constitutional separation of powers can lead to an inadequate and incorrect assessment of risks and therefore to ineffective emergency management by the different levels of government. in any case, scientific evidence is an essential prerequisite for better regulation by acting on the precautionary principle. to be cost effective, governments should take precautionary administrative measures based on scientific knowledge and thus carefully assess the risks they intend to manage. taking the potential and limits of the precautionary principle from the perspective we have outlined above into account might have an impact on governments' ability to deal effectively with pandemic emergencies. this matters in the case of italy, where the current structure of the constitutional separation of powers between the government, regions and autonomous local authorities plays a crucial role in effectively managing the pandemic emergency. analysing the italian constitutional scenario can provide substantial guidance for understanding the legal structure of powers and competences of government, regions and local authorities and explain why assessing pandemic risk can be impacted by a given separation of powers. such an analysis can shed light on the administrative strategy implemented by the government in the pandemic and enable us to evaluate its effectiveness in managing covid- across the country. first of all, we should bear in mind that the italian constitution (from now on the constitution) does not explicitly refer to emergency power, except for a state of war (article ). however, this power has traditionally been included in the typical powers that the constitution assigns to the government. in the constitutional system, the main rules governing the government's powers are established by articles and . indeed, parliament does not have a monopoly on legislative power, and the government may also issue laws by two legal instruments that should be understood as extraordinary: legislative decree and decree-law. in particular, article allows parliament to delegate its legislative power to the government, which in turn is given the power to issue legislative decrees. hence, the legislative decree is a form of delegated law-making power, where parliament may pass an enabling act entrusting the government to adopt one or more acts that have legal force. generally, the legislative decree is a legislative tool that is often deployed in all matters where a strong technical content is present. the second extraordinary instrument, the decree-law, is provided for by article . this is a form of law-making through emergency powers that the government may exercise in "exceptional cases of necessity and urgency" and under "its own responsibility". the government can thus issuewithout an enabling act from parliament as required by the provisions of article administrative measures that have the force of ordinary laws. however, such administrative measures will lose their effects as of the date of issue if parliament does not transpose them into an ordinary law within sixty days of their publication. with the major reform on "administrative federalism" enacted by law no. of october , which amended title v of the constitution, italy rapidly devolved legislative and regulatory powers to the regions. fundamentally, the constitutional amendment provided a new framework for the distribution of powers and competences between the national and local levels. it established a new institutional structure by dividing legislative and administrative competences and powers across the different levels of government. the amended articles of the constitution are the basis for the fundamental reform of administrative federalism. article recognises local authorities (municipalities, provinces, metropolitan cities) and regions as autonomous entities of the state with their own statutes, powers and functions in accordance with the principles laid down in the constitution. article establishes the role and legislative powers of the state and regions, indicating those matters for which the state has exclusive legislative power and those for which concurrent legislation of both the state and the regions is possible. the regions have exclusive power in all matters not expressly covered by state law. municipalities, provinces and metropolitan cities also have regulatory powers for the organisation and implementation of the functions attributed to them. specifically, article ( ) establishes that the state and regions have concurrent power, and the regions have regulatory powers, in matters of public health. in this connection, at the national level, parliament and government are called upon to: ( ) adopt fundamental health principles by means of framework laws and guidelines; and ( ) establish essential levels of healthcare. at the regional level, the regions implement: ( ) general legislative and administrative activity; ( ) the organisation of health facilities and services; and ( ) the provision of healthcare based on specific local needs. article provides for the subsidiarity principle, according to which all functions are exerted by municipalities, while the possibility remains to confer them to higher levels of government in order to guarantee the uniform implementation of spending functions across the country. article guarantees national unity and the unitary nature of the constitutional system by providing for the government's substitution power. according to article ( ), the government can act for the regions and other local authorities if: ( ) the latter fail to comply with international rules and treaties or eu legislation; ( ) in the case of grave danger for public safety and security; or ( ) whenever such action is necessary to preserve legal or economic unity and in particular to guarantee the basic level of benefits relating to civil and social entitlements, regardless of the geographical borders of local authorities. to this end, the law shall lay down the procedures to ensure that ( ) subsidiary powers (ie the government's substitution power) are exercised in compliance with the principles of "subsidiarity" and "loyal cooperation". lastly, with regards to powers and competences in emergencies, it should be noted that in the italian legal system several authorities can introduce specific regulatory acts establishing administrative measures needed to deal with emergencies in accordance with the constitution. the power of ordinance has a particular role in managing emergencies, as it can be exercised in situations of necessity and urgency. in particular, the legal system provides for: ( ) as we will see, the structure of power just described highlights the problem of risk assessment among the institutional actors involved in the administrative decisionmaking process. though the current system of allocation of powers and competences to the regions and other local authorities might be an advantage in terms of correctly assessing and managing risk in their areas, at the national level, this system requires an effective sharing of powers and strategies between the centre and the periphery, where the measures of the regions and local authorities must be adopted in accordance with the measures advanced by the government, and vice versa. since correct risk assessment by an authority must take the characteristics of its area into accountdata on the epidemiological situation, for example, or on the average age of the legal nature of the "state's substitution power" in italian legal doctrine has been extensively discussed. in particular, some scholars argue that art provides a form of "administrative" substitution of the state over the regions, and that art ( ) concerns "legislative" substitution. other scholars agree on the idea that art provides the genus of substitution powers, whereas art ( ) refers to one species of the genus, being a mere specification of art . however, the constitution seems clear on this point. as we have seen, the provisions of art speak of the "government", while the provisions of art ( ) speak of the "state". the population, and the capacity of the health system with regards especially to the availability of intensive care bedsit might be assumed that in the italian legal system's effective risk assessment could be facilitated by the specific competences established by the constitution for the regions and other local authorities in health matters. however, as i will argue, this is a theoretical advantage that works only if power is effectively shared between the different levels of government. in fact, in order to provide an adequate and correct risk assessment at the national level and take effective measures to contain and manage the pandemic, the current system needs powers and strategies to be shared between local authorities, regions and the government. sharing administrative powers at all levels of government is an important part of the task of states. indeed, enhancing multi-level regulatory governance has become a priority in many eu states. for this reason, the eu supports sharing of administrative regulatory powers by encouraging better regulation at all levels of government, calling on the member states to improve coordination and avoid overlapping responsibilities among regulatory authorities. in italy, until the adoption of constitutional law / , regulatory reform had been promoted, designed and implemented mainly at the national level. with the reform, as we have seen (section iii. ), such a centralised approach lost legal and political ground. at the same time, responsibilities for developing and implementing administrative regulation policies have not been explicitly allocated to either the state, the regions or the local authorities. hence, the responsibility for administrative regulation and regulatory reform lies with each of the levels of government in the matters where they exert legislative powers. in like manner, there is no overall competence at the central level to monitor and control regulatory reform programmes at the local level. accordingly, the new constitutional structure calls for effective sharing of administrative powers across the different levels of government. on the basis of the analysis carried out so far, i will now argue that the main problems of the italian administrative strategy for the covid- pandemic are due to the lack of effective sharing of administrative powers and, more specifically, to the failure to share regulatory powers across the different levels of government with the participation and cooperation of all institutional actors involved in the emergency decision-making process: the government, regions and local authorities. in particular, this problem oecd, "the territorial impact of covid- : managing the crisis across levels of government" (last updated june ) . the european committee of the regions (cor), "division of powers between the european union, the member states and regional and local authorities" (december ) . see also, oecd-puma, "managing across levels of government" ( ) . has impacted the risk assessment of the various authorities called upon to manage the health emergency. as a result, the problem has impacted nationwide risk assessment and, consequently, the management of the emergency at the national level, leading to the adoption of inconsistent measures by the various institutional actors involved in the administrative decision-making process. in particular, i discuss this problem in italian policies from two key points of view: the government's administrative strategy for managing the virus's spread by means of the "incremental approach" (section iv. .a) and the government's administrative strategy for implementing the nationwide pandemic health plan (section iv. .b). in doing so, i shall take into account the considerations presented above concerning emergency risk regulation (section iii. ), the precautionary principle (section iii. ) and the rules governing powers in the constitutional scenario (section iii. ). one of italy's main problems in relation to the ineffective sharing of administrative powers for managing the pandemic is clearly displayed in what i will call the "incremental approach". this approach is essentially based on the "progressive" application of emergency measures by the government in order to manage the "exponential" spread of the virus. the italian administrative strategy for the pandemic is fundamentally founded on such an approach. in fact, as we have seen (section ii), the government addressed the pandemic by enacting several decrees (dpcms) that "progressively increased" restrictions in lockdown areas (red zones), which were then extended from time to time until they finally applied to the entire country in the national lockdown. in my opinion, although the incremental approach may be a correct application of the principle of proportionality, given the government's proportionate use of emergency powers in dealing with the pandemic, it is the result of an ineffective sharing of administrative regulatory powers between the government, regions and local authorities. indeed, the progressive enforcement of lockdown areas, which from time to time increased the extent and severity of the emergency measures, demonstrates the difficulty of governing the spread of the virus in the red zones rather than the effective implementation of a proportionate administrative strategy. and this is mainly due to the lack of effective cooperation between the government and the regions in exercising their respective emergency powers. from a general point of view, the incremental approach reveals the limited effectiveness of the national and local measures and strategies for managing and containing the pandemic when those measures and strategies are not shared. i argue that even the stringent national lockdown is essentially the result of the ineffective sharing and planning of administrative measures and strategies for managing the pandemic across the different levels of government and especially, in on this approach, see g pisano, r sadum and m zanini, "lessons from italy's response to coronavirus" (harvard business law review, march ) . dpcm of march . this case, between the government and the regions. one can legitimately wonder whether the government can adopt an effective administrative strategy for managing the emergency without sharing and planning their measures with those of the regions. from this perspective, we can say that the government's incremental approach has proven ineffective in coping with the pandemic. i will now explain why in the following points. ( ) regarding risk assessment for pandemics, the science shows that the spread of covid- is rapid and exponential. consequently, the incremental approach does not work if it is not properly implemented with the effective participation of all institutional actors involved in managing the pandemic. scientific data and statistics on the spread of the virus were not predictive of what the situation would have been in the short and medium term. hence, a correct risk assessment of the virus's nationwide spread would have suggested that the administrative measures and, more generally, the strategies should have been shared among all players involved in the main strategy. very often, however, the government's strategy has not been in line with those of the regions, revealing an inadequate assessment of the risk that the virus would spread throughout the country, and thus the ineffective sharing of emergency powers. in fact, some important emergency measures implemented by the regions clearly contradict the government's main strategy. to take a few examples, marche region ordinance no. of february , issued pursuant to decree-law no. of , established measures that were more stringent than the government's, disregarding the latter's strategy. for this reason, the government contested the order before the court. although a judgment in favour of the government was handed down and the challenged ordinance was suspended, the marche region legitimately adopted a new ordinance establishing emergency measures based on the same decree-law no. / , once again disregarding the government's strategy. another paradigmatic case is provided by a series of ordinances by the campania region aimed at imposing a more stringent lockdown at the local level than the lockdown established by the government at the national level. unlike the marche case, the ordinances of the campania region, although contested before the administrative judge, were not suspended, thus making the government's strategy ineffective. consequently, in the absence of effective sharing and planning of the main strategy with the regions, the government had to 'increase' the emergency measures from time to time until finally imposing the stringent national lockdown. ( ) in the absence of power sharing and strategies based on correct risk assessment at the national level, the government's incremental approach seems to have played a considerable role in people's behaviour, inducing them to make "bad choices". as the data show, the government's incremental lockdown of municipalities, provinces and regions in northern italy induced masses of people to move towards the southern regions, spreading the virus to parts of italy that had not yet been affected. an emblematic case of this kind took place immediately after the dpcm of march (see section ii) locked down lombardy and another fourteen provinces in northern italy, spurring thousands of people to flee to the south. such potential negative externalities, as well as other negative spill-overs or distortions, should have suggested that the government share its regulatory acts with those of the "target" regions (ie the northern regions), as well as with the other regions that could be indirectly jeopardised by the lockdown measures (ie the southern regions). alternatively, the government should have undertaken to coordinate the strategies of the regions and local authorities in order to enhance the adoption of effective control measures for people exiting the red zones and entering less affected regions. more generally, in applying lockdown measures, the government should have shared and planned its strategy with the regions on the basis of a common risk assessment that took into account not only the regional territories, but the entire country. accordingly, the government should have established effective countermeasures together with all of the regions potentially involved in lockdown decisions to prevent the virus from spreading from high-risk to low-risk areas. an effective emergency response must be coordinated as a consistent system of actions taken simultaneously by the different actors involved in the decision-making process. ( ) the government's incremental approach also revealed the problem of effectively sharing and planning precautionary measures (see section iii. ) across the different levels of government. the critical situation that arose because of the epidemic's severity called for effective testing of symptomatic and asymptomatic cases, as well as proactive tracing of potential positives across the country. on this point, these precautionary measures were supported by scientific data on the transmission of covid- by asymptomatic people. the absence of a shared strategy for the adoption and implementation of precautionary measures proved particularly harmful in regions where the epidemic risk is higher. indeed, it is no coincidence that the outbreak spread so quickly in northern italy and especially in lombardy. in this region, the efficient public rail transport network connecting urban areas, large numbers of commuters and high levels of air pollution are thought to have increased the incidence of infection. from this point of view, it is clear that risk assessment has been inadequate, and strategies have thus been ineffectively shared between lombardy and the government. the government should have promoted an effective precautionary strategy for health checks by sharing it with the strategies of the regions and ensuring efficient nationwide implementation on the basis of a global risk assessment. conversely, data on infections and deaths reveal that strategies were not shared effectively with the hardest-hit regions. ( ) the incremental approach shows that most of the problems of administrative strategy are also motivated by political issues between parties governing regions and belonging to the coalition now governing the country. from the time when the virus began to spread, the multi-level management of the emergency has triggered competition and institutional division between the government and regions due to policymakers' political differences. the management of the pandemic, in fact, has thrown light on the deep political division between the government, led by the coalition of left-wing parties such as the democratic party and the five star movement, and the hardest-hit regions -lombardy and venetoled by traditionally right-wing populist parties such as the league and brothers of italy. in particular, many of the administrative measures taken by the regions were in contrast with the government's strategy, largely for political reasons. from this standpoint, it can be seen that there has been an "institutional clash" between the regional governments and the national government on the political and administrative actions to be taken to effectively manage the emergency. it is no coincidence that the government's minister of health is a member of one of the opposition parties in lombardy and veneto, and that the governors of lombardy and veneto belong to the coalition opposing the government. to give a few specific examples, a bitter dispute has occurred between prime minister giuseppe conte and attilio fontana, governor of lombardy and member of the rightwing populist party league, with regards to the ineffective management of the emergency in the region most affected by the virus. similarly, as we have seen, luca ceriscioli, governor of the marche region and member of the centre-left party in the majority coalition, opposed the government's decision to declare a state of emergency only in the northern regions. in essence, these strong political divisions have impacted effective power sharing among the different levels of government, causing problems for the government's incremental administrative strategy. ( ) the incremental approach also shows the important role that scientific competence plays in emergency management. in this regard, one of the main goals of scientific expertise is to inform and legitimise governments' decisions, especially in high-uncertainty situations relating to public health. during the covid- outbreak, scientific and technical experts have assisted central and regional governments by contributing to the content of decisions and, more generally, of administrative emergency management strategies. as scientific evidence is the basis for sound political choices, scientific and technical experts have become part of the rationale of governments' decisions and have been useful in reassuring the public with concrete solutions. indeed, in the immediacy of a pandemic, as is logical to assume, the demand for scientific expertise increases as governments search for certainty in understanding problems and choosing effective measures for managing the emergency. especially in the most delicate phases of an emergency, scientific expertise is useful in informing, legitimising and justifying government evaluations and responses to problems, even as political and administrative considerations continue to govern such choices. the result is an increased reliance on scientific expertise and politicisation of scientific and technical information. by invoking scientific expertise, policymakers create the need for what is perceived as evidence-based policymaking, which suggests to the public that political and administrative decisions are based on reasoned and informed judgments aimed at ensuring the public interest and guaranteeing individual rights. however, a major problem is that scientific expertise might obscure the accountability of decisions. as scientific and technical experts serve to inform and legitimise political and administrative decisions, they may also obscure responsibility for policy responses and outcomes. scientific expertise helps to establish the severity of a pandemic in a population, to understand the epidemiological trend over time and to evaluate the effects of political and administrative measures, from mitigation to suppression. nonetheless, undertaking policy actions is the responsibility of government leaders. as scientific expertise becomes more prominent in the policy process, who is accountable for policymaking becomes more obscure. to work better in emergencies, scientific expertise also requires effective sharing of administrative powers based on accurate risk assessment, as i will now explain. in italy, since the beginning of the virus's spread, the various institutional actors, especially the government and the regions, have established their own scientific task forces to support administrative measures and strategies in managing the pandemic. the main problem is that, by doing so, risk assessment at the national level is fragmented. conflicts can also arise between institutional actors involved in the decision-making process. in this scenario, indeed, the government and the regions have adopted administrative decisions and strategies based on the risk assessments provided by their own central and regional task forces. it should be noted that this situation, like others discussed here, derives from the current constitutional architecture of separation of powers where the decision-making process is assigned to the different levels of government. however, managing a pandemic requires a comprehensive risk assessment. italian policies matter, as they show how, at the beginning of the pandemic, some regions' task forces underestimated covid- , while other regions gave it a certain importance. this behaviour on the part of policymakers was not led by the government, which, on the contrary, criticised the regional governments' solutions. the outcome, as i claimed for the incremental approach, is that the government's measures and strategies are not shared with those of the regions and vice versa, and policymakers' accountability is obscured by invoking scientific expertise for pandemic management decisions. b. implementing the national pandemic health plan there is no doubt that a pandemic affects the whole of society. no single organisation can effectively prepare for a pandemic in isolation, and uncoordinated preparedness of interdependent public organizations will reduce the ability of the health sector to respond. a comprehensive, shared, coordinated, whole-of-government approach to pandemic preparedness is required. the government's strategy, as we have seen in the incremental approach to dealing with the emergency, proved particularly ineffective due to the failure to share administrative powers with the other institutional actors involved in the pandemic decision-making process, particularly the regions. but this, as we shall see now, was not the only weak point. i will argue here that another of the major problems was the lack of effective implementation of the national pandemic health plan. in particular, we will see how and why the ineffective implementation of the plan by the government, regions and local authorities posed serious problems for containing the spread of the virus and, more specifically, for avoiding the collapse of the public healthcare system. on this point, one of the main problems for public health posed by the novel coronavirus is its ability to spread with exceptional ease and speed, threatening to overwhelm the healthcare system. in particular, what should be especially clear from the data is the critical situation of the intensive care system in italy, which has been severely weakened by the pandemic. intensive care system at the national level, cooperating with the regions and local authorities to ensure that critical care bed availability is efficiently managed. in this case, effective actions shared among all institutional actors and based on an adequate and accurate risk assessment at the national level would avoid saturating the intensive care system in the medium and long term, while the government should be able to increase capacity in the short term. yet, the data on the intensive care system show that the situation was inefficiently managed in the regions hardest hit by covid- , especially in lombardy, which paid a high price at the local level for the ineffective implementation of the pandemic health plan at the national level. more generally, it should be emphasised that this point also demonstrates the importance of sharing administrative powers between government, regions and local authorities to implement the pandemic management plan effectively throughout the country. in this connection, many elements based on scientific and epidemiological data demonstrate that the covid- pandemic called for effective cooperation and coordination across all levels of government. in addition, it must be borne in mind that fighting a pandemic hinges on many factors, most of which are time consuming or in any case cannot be accomplished quickly. preparing a candidate vaccine, for example, takes a long time in terms of both preclinical and clinical development. likewise, developing and testing an effective drug involves complex multi-stage clinical trials. such considerations might be sufficient on their own to justify taking effective actions to mitigate the pandemic emergency's impact on the public healthcare system. in this phase, as we have seen, emergency risk regulation requires that regulatory action be taken in the immediacy of an emergency in order to mitigate its impact (section iii. ). to avoid the collapse of the public health system, the government should thus have contained the spread of the virus by effectively implementing the nationwide pandemic management plan with the participation of all institutional actors. the who has recognised the importance of sharing administrative powers through the participation and cooperation of the various institutional actors involved in the strategy against pandemics. in this regard, the who has drawn up specific guidelines for implementing a pandemic influenza preparedness plan that states should apply in order to manage the spread of the virus throughout their territories. in particular, the who's guidelines encourage states to develop efficient plans, based on national risk assessments, with the effective participation of institutional actors at all levels of government. in italy, the most serious problem is that the government, although it had already developed its own national plan, foster its effective adoption by the regions and local authorities, disregarding a crucial point of the who's guidelines. consequently, the failure to implement the national pandemic plan, as we have seen, created the conditions for the collapse of the public health system, with the overcrowding of intensive care units and the consequent loss of life. *** in conclusion, the italian policies regarding the covid- outbreak can demonstrate the importance of: ( ) rethinking the incremental approach; and ( ) implementing a national health plan for pandemics by sharing powers, and more specifically administrative regulatory powers for emergencies based on an adequate and accurate risk assessment at the national level, among the different levels of government with the participation, cooperation and coordination of all institutional actors involved in the pandemic decision-making process. as we have seen, sharing administrative powers at the different levels of government plays a particularly important role in managing emergencies in the constitutional scenario, where competences are distributed between government, regions and local authorities, and several institutional actors are allowed to adopt regulatory acts (see section iii. ). the major changes that the constitutional amendments have brought to policymaking in the italian legal system require that constant support be provided to the regions and local authorities, especially in emergencies. despite significant decentralisation, the government still has a fundamental role to play in sharing and coordinating administrative powers at the different levels of government and in ensuring loyal cooperation among all of the institutional actors involved in emergency decisionmaking processes. indeed, the government is tasked with promoting and coordinating "action with the regions" (article of law / ), as well as with advancing cooperation "between the state, regions and local authorities" (article of legislative decree / ). similarly, the government must promote "the necessary actions for the development of relations between the state, regions and local authorities" and ensure the "consistent and coordinated exercise of the powers and remedies provided for cases of inaction and negligence" (article of legislative decree / ). looking at the constitutional perspective, some possible solutions might be proposed. ( ) in the italian constitutional scenario, although concurrent power to legislate on matters of public health is vested in the state (ie the government) and the regions pursuant to article ( ), the state (ie the government and the regions together), on the basis of the principle established by article ( ), "safeguards health as a fundamental right of the individual and as a collective interest". i argue, more specifically, that safeguarding health is a task of the state based on the fundamental principle of the constitution referred to in article ( ) , where the duty of the state is to "remove those obstacles of an economic or social nature" that, by constraining legislative decree / . the "freedom and equality of citizens", impede the "full development of the human person and the effective participation of all workers in the political, economic, and social organisation of the country". thus, i believe that under the joint interpretation of article ( ) and article of the constitution, as well as the principle of loyal cooperation, the government and the regions must act by sharing administrative powers (and strategies) among them in order to protect the fundamental right to health. in so doing, the government can play an essential role in promoting institutional balance and cooperation between the national and local levels, maximising loyal cooperation and implementing vertical and horizontal subsidiarity. ( ) sharing administrative powers for emergencies can also be encouraged and enhanced through the effective implementation of constitutional tools, such as the system of conferences based on the principle of loyal cooperation. (a) the conference on the relationships between government, the regions and the self-governing provinces is the key legal tool for multi-level political negotiation and collaboration. it serves in an advisory, normative and planning capacity and acts as a platform facilitating power sharing. (b) the conference on the relationships between government and the municipalities coordinates relations between the government and local authorities through studies, information and discussion of issues affecting local authorities. (c) the permanent conference on the relationships between government, the regions and the municipalities deals with areas of shared competence. ( ) in order to "safeguard health as a fundamental right of the individual and as a collective interest", article ( ) of the constitution could be applied whenever it is necessary to guarantee "the national unity and the unitary nature of the constitutional system". i claim that this provision, which establishes the government's administrative substitution power, provides for the centralisation of administrative powers in specific cases contemplated by the constitution. in this sense, article ( ) lays down that the government can act for the regions and/or local authorities in cases of "grave danger for public safety and security". in the light of this definition, the government's substitution for the regions and/or local authorities might be invoked as a result of the "grave danger for public safety", as well as in order to preserve "economic unity" and guarantee the "basic level of benefits relating to civil and social entitlements". in my view, however, the government should exercise its power of substitution as an extrema ratio whenever effective sharing among all of the institutional actors has not been implemented. article ( ) is clear in this regard, requiring that the substitution power be exercised in compliance with the principles of "subsidiarity" and "loyal cooperation". italy's national pandemic plan was adopted through the permanent conference on the relationships between central government, the regions, municipalities and other local authorities . administrative powers"and more specifically the administrative regulatory powers for emergenciesbased on an adequate and accurate risk assessment, across the different levels of government with the participation, cooperation and coordination of all institutional actors involved in the emergency decision-making process: the government, regions and local authorities. fundamentally, i emphasised that the italian case reveals the importance of sharing administrative powers from two main points of view. first, i argued that the "incremental approach" to dealing with the emergency, although based on the proportionate use of powers, is largely ineffective or even harmful in the absence of cooperation among all actorsthe regions and local authoritiesinvolved in the main strategy implemented by the government (section iv. .a) . second, i discussed the importance of cooperation between the government, regions and local authorities for the effective and efficient implementation of a nationwide pandemic health plan (section iv. .b). i suggested that these points be viewed from a constitutional perspective in order to propose some possible solutions. from this perspective, the problems of effective sharing of administrative powers across the different levels of government could be resolved by systematically interpreting the constitution and implementing specific constitutional tools provided by the legal system (section iv. ). in conclusion, more generally, i argue thatand this is the main thrust of the articleadministrative powers should be shared across the different levels of government based on an adequate and accurate risk assessment with the participation and cooperation of all of the institutional actors involved in the emergency decision-making process in order to safeguard the fundamental rights enshrined in the constitution as well as in eu and international law. in pandemics, this aim must be achieved not only to guarantee the right to health, but also to safeguard all of the rights that might be jeopardised by the exercise of administrative powers and, more specifically, the exercise of emergency powers in dealing with the pandemic. the strong measure of "lockdown", for example, should be the extrema ratio of administrative powers because it suspends the rule of law and jeopardises rights. indeed, as i have claimed in analysing the italian policies, sharing powers with effective cooperation between government, regions and local authorities in managing the pandemic would optimise the adoption of nationwide virus containment measures, avoiding or at least delaying the application of stringent emergency measures such as the lockdown of municipalities, provinces, regions or even the entire country. taking into consideration the correct application of emergency risk regulation (section iii. ) and the precautionary principle (section iii. ), although lockdowns aim to contain specific areas that are most affected by the virus, they must be proportional to the risk that they intend to curtail. when such measures are adopted to protect the right to health, as is the case in a pandemic, this right must be balanced with other rights. yet, if administrative powers are not shared effectively across the different levels of government, the balancing principle might be disregarded by jeopardising one or more rights without legitimate justification (eg the right to freedom of movement enshrined in article of the constitution). this is the problem that the italian policies bring to light: a problem that i believe that the government must take into account in the near future as it strives to manage covid- and other similar pandemics. perspectives on the precautionary principle les avatars du principe de precaution en droit public le principe de précaution en droit communautaire: stratégie de gestion des risques ou risque d'atteinte au marché intérieur? the legal origins of the precautionary principle are to be found in the vorsorgeprinzip established by german environmental legislation in the mid- s; see there is a close relationship between the two principles that has led some to argue that they may be used "interchangeably". however, other authors contend that the prevention principle applies in situations where the relevant risk is "quantifiable" or "known" and there is a certainty that damage will occur. in this sense, see, respectively, wt douma principio di prevenzione e novità normative in materia di rifiuti dal pericolo al rischio: l'anticipazione dell'intervento pubblico" [from danger to risk: the anticipation of public intervention] ( ) diritto amministravio . ecj case t- / pfizer animal health sa v council in the same sense, see also case c- / national farmers' union case c- / united kingdom v. commission [ ], ecr i- case c- / monsanto agricoltura italia art of the italian constitution