BELIZE NATIONAL HAZARD MITIGATION PLAN

Belize National Hazard Mitigation Plan i BELIZE NATIONAL HAZARD MITIGATION PLAN The Caribbean Disaster Emergency Response Agency and The Caribbean ...
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Belize National Hazard Mitigation Plan

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BELIZE NATIONAL HAZARD MITIGATION PLAN

The Caribbean Disaster Emergency Response Agency and The Caribbean Development Bank

June 2006

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Foreword: This report sets out a series of strategic interventions and actions to enable Belize to mitigate against the devastating effects of disasters. It points to the need for the integration of hazard risk reduction into national development and sector policy planning, legislative strengthening and capacity building at the institutional and individual level, the establishment of hazard risk reduction information management systems, community empowerment and mobilization, public outreach and education, particularly as it relates to the symbiotic relationship between hazard mitigation, environmental protection and sustainable development, and hazard mitigation and climate change, and access to financial resources, all of which must be undertaken to overcome the challenges which confront Belize in managing disasters, and the constraints and barriers unearthed in the assessment, some of which are inherent at the individual, institutional and systemic levels, and others, contemporary and emerging. These measures address a broad spectrum of issues, and will require concerted dialogue and action on the part of all stakeholders engaged in disaster management, sustainable development, natural resource management and environmental protection. I am grateful to both the Caribbean Disaster Emergency Response Agency (CDERA), the National Emergency Management Organisation (NEMO) and the Caribbean Development Bank (CDB) for giving me the opportunity to assist with formulating the National Hazard Mitigation Plan for Belize. I hope it will play a constructive part in what I am sure is going to be an active area of Government of Belize (GOB) activities for disaster management over the coming years. I do not pretend that this document provides all the answers at a detailed level. Quite the contrary, I have sought to set out broad principles and courses of action which requires continued dialogue and discussions from all stakeholders and partners. In addition, I did not do this alone, as facts, ideas and opinions and other inputs came from a wide range of academics, professionals, policy makers and interested individuals. For this I am thankful, particularly to Colonel George Lovell, National Emergency Coordinator (NEC) and Elizabeth Riley of CDERA, for their patience, advice and encouraging spirit, the consultants who researched and prepared the various thematic reports, which made my work a lot easier, the staff of NEMO for their timely response in the supply of data requested, the Plan Development Committee (PDC), created to provide oversight to the Plan development process, and all those persons who found time to attend and participate in the workshops and discussion sessions. I am extremely grateful to you all.

C. Trench-Sandiford Country Plan Coordinator

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TABLE OF CONTENTS Foreword Acronyms and Abbreviations Glossary Acknowledgements List of Figures

ii iv vii ix x

EXECUTIVE SUMMARY

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PART I 1.0 2.0 3.0 4.0 5.0 6.0 7.0 8.0

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2 3 4 6 8 8 12 12

ASSESSMENT

INTRODUCTION HAZARD MAPPING AND VULNERABILITY ASSESSMENT LEGISLATIVE AND INSTITUTIONAL CAPABILITY ASSESSMENT SUMMARY

PART III 13.0 14.0 15.0 16.0

BACKGROUND

INTRODUCTION OVERVIEW OF HAZARD MITIGATION IN BELIZE THE RATIONALE THE CHALLENGES CONTEXT AND SCOPE APPROACH AND METHODOLOGY PLAN ADOPTION LIMITATIONS

PART II 9.0 10.0 11.0 12.0

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14 14 18 51

MITIGATION AND IMPLEMENTATION STRATEGY

INTRODUCTION GOALS, OBJECTIVES AND STRATEGIC DIRECTIONS IMPLEMENTATION MEASURES ACTION PLAN

BIBLIOGRAPHY ANNEXES

56 56 61 70

80 82

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ACRONYMS AND ABBREVIATIONS BBA

Belize Building Act

BNHMP

Belize National Hazard Mitigation Policy

CARICOM

Caribbean Community

CBO

Community Based Organization

CDB

Caribbean Development Bank

CDB/BMCs

CDB Borrowing Member Countries

CDERA

Caribbean Disaster Emergency Response Agency

CDERA/PS

CDERA Participating States

CDD

Common Digital Database

CDM

Comprehensive Disaster Management

CHAMP

Caribbean Hazard Mitigation Capacity Building Programme

CHPA

Central Housing and Planning Authority

CIDA

Canadian International Development Agency

CPACC

Caribbean Planning for Adaptation to Global Climate Change

CPC

Country Plan Coordinator

CRIS

Coastal Resources Information System

CZMAI

Coastal Zone Management Authority and Institute

DFC

Development Finance Corporation

DOE

Department of Environment

DMFC

Disaster Mitigation Facility for the Caribbean

DPRA

Disaster Preparedness and Response Act

EIA

Environmental Impact Assessment

EPA

Environmental Protection Act

FA

Forestry Act

FD

Forestry Department

FishAct

Fisheries Act

FishD

Fisheries Department

GDP

Gross Domestic Product

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GIS

Geographic Information Systems

GOB

Government of Belize

GPD

Geology and Petroleum Department

HPD

Housing and Planning Department

HMP

Hazard Mitigation Plan

HMVA

Hazard Mapping and Vulnerability Assessment

HRR

Hazard Risk Reduction

HTPA

Housing and Town Planning Act

IDB

International Development Bank

IR

Intermediate Result

LES

Land Evaluation Section

LIC

Land Information Center

LMP

Land Management Programme

LSD

Lands and Surveys Department

LUA

Land Utilization Authority

LUAct

Land Utilization Act

LVU

Land Valuation Unit

MACC

Mainstreaming Adaptation to Climate Change

MFA

Ministry of Foreign Affairs

MNRE

Ministry of Natural Resources and the Environment

MOA

Ministry of Agriculture

MOF

Ministry of Finance

NACDCA

Northern Ambergris Caye Development Corporation Act

NCSA

National Capacity Self Assessment

NEAC

National Environmental Appraisal Committee

NEC

National Emergency Coordinator

NEMO

National Emergency Management Organization

NGO

Non-Governmental Organisation

NMS

National Meteorology Service

NPSA

National Parks and Systems Act

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OAS

Organization of American States

OECS

Organisation of Eastern Caribbean States

PACT

Protected Areas Conservation Trust

PDC

Plan Development Committee

PPS

Physical Planning Section

PWCA

Private Works Construction Act

OECS-ESDU Organisation of Eastern Caribbean States - Environment and Sustainable Development Unit SAPP

Special Area Precautionary Plan

SDA

Special Development Area

SIDS

Small Island Developing States

TCG

Thematic Cooperating Group

UNCBD

United Nations Convention on Biological Diversity

UNCCD

United Nations Convention to Combat Desertification

UNFCCC

United Nations Framework Convention on Climate Change

UNISDR

United Nations International Strategy for Disaster Reduction

USAID

United States Agency for International Development

VA

Vulnerability Assessment

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GLOSSARY CAPABILITY ASSESSMENT – An assessment that determines a jurisdiction’s ability to deal with identified hazards and to identify shortfalls in capability. CHEMICAL SPILL - Accidental release occurring during the production, transportation or handling of hazardous chemical substances. CRITICAL FACILITY – Buildings or improvements important to public health and welfare, including facilities that serve emergency response functions, such as shelter, police and fire protection, or buildings that may be essential to continuity of government operations, or facilities that provide essential public services, such as water, wastewater treatment, transportation and electric power. CLIMATIC CHANGE - Change observed in the climate on a global, regional or sub-regional scale caused by natural processes and/or human activity. DISASTER - A natural or man made event which causes intense negative impacts on people, goods and services and/or environment, exceeding the affected community’s capability to respond. DISASTER MANAGEMENT – A collective term encompassing all aspects of planning for and responding to natural or human caused disasters including pre- and post-event activities. It refers to both the management of the risk and the consequences of an event. HAZARD – A potentially damaging physical event, phenomenon and or human activity, which may cause the loss of life or injury, property damage, social and economic disruption or environmental degradation. HAZARD MITIGATION – Structural and non-structural measures undertaken to limit the adverse impact of natural hazards, environmental degradation and technological hazards. In climate change terminology, hazard mitigation is synonymous with adaptation to some degree. Climate change adaptation is an adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities. HAZARD RISK MANAGEMENT - The systematic management of administrative decisions, organization, operational skills and responsibilities to apply policies, strategies and practices for hazard risk reduction. HAZARD RISK REDUCTION – The development and application of policies, procedures and capacities by the society and communities to lessen the negative impacts of possible natural hazards and related environmental and technological disasters. This includes structural and non-structural measures to avoid (prevention) or to limit (mitigation and preparedness) adverse impact of hazards, as well as the development of coping capabilities. MITIGATION – In the context of natural hazards risk reduction, mitigation refers to sustained actions taken to reduce or eliminate long-term risk to people and property from hazards and their effects. NATURAL HAZARD – Natural processes or phenomena occurring in the biosphere that may constitute a damaging event. NON-STRUCTURAL MITIGATION MEASURES – Non-physical preventative measures implemented to avoid or lessen the impact of natural hazards. Examples include physical planning, development review, zoning, coastal and riverine setbacks and preservation of environmentally sensitive areas

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PREPAREDNESS – Measures taken to reduce to the minimum level possible, the loss of human life and damage to property, through the organizing of effective measures which will ensure timely and appropriate responses to a given hazard. PREVENTION – Measures taken for the purpose of preventing natural or human-caused phenomena to cause property damages or other emergency situations. RECONSTRUCTION – The long-term process of rebuilding a community’s destroyed or damaged housing stock, commercial and industrial buildings, public facilities, and other structures. This process is sometimes referred to as long-term recovery. RECOVERY – In the aftermath of a disaster, recovery refers to the transition from emergency response functions to restoration of basic services and the initial repair of physical, social and economic damages. RESPONSE – Actions carried out immediately before, during and immediately following a disaster event which are aimed at saving lives, reducing economic losses and alleviating suffering. RISK – The probability of harmful consequences, or expected loss (of lives, people injured, property, livelihoods, economic activity disrupted or environment damaged) resulting from interactions between natural or human induced hazards and vulnerable/capable conditions. Conventionally, risk is expressed by the equation: Risk = Hazards x Vulnerability/Capacity STAKEHOLDERS - Person or entity holding grants, concessions, or any other type of value or interest that would be affected by a particular action or policy. STRUCTURAL MITIGATION MEASURES – Physical measures that modify the environment to lessen the impact of natural hazards. Examples include: flood control impoundments, channel modifications, storm sewers and drainage, groins and other coastal erosion structures. SUSTAINABLE DEVELOPMENT – Development that meets the needs of the present without compromising the ability of future generations to meet their own needs. It contains within it two key concepts: the concept of “needs”, in particular the essential needs of the world’s poor, to which overriding priority should be given; and the idea of limitations imposed by the state of technology and social organization on the environment’s ability to meet present and future needs. TECHNOLOGICAL HAZARDS (MAN-MADE HAZARDS) – Danger originating from technological or industrial accidents, dangerous procedures, infrastructure failures or certain human activities, which may cause the loss of life or injury, property damage, social and economic disruption or environmental degradation. VULNERABILITY – The extent to which a community, structure, service or geographic region is likely to be damaged or disrupted by the impact of a particular hazard.

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ACKNOWLEDGEMENTS The Caribbean Disaster Emergency Response Agency (CDERA), through its Caribbean Hazard Mitigation Capacity Building Programme (CHAMP), and the Caribbean Development Bank (CDB), through its Disaster Mitigation Facility for the Caribbean (DMFC), have collaborated to support the development of a National Hazard Mitigation Plan for Belize. CHAMP is a project funded by the Canadian International Development Agency (CIDA), executed by the Organization of American States (OAS) and implemented by CDERA, which seeks to enhance regional capacity to reduce vulnerability to the effects of natural hazards. CHAMP initiatives include the development of national hazard mitigation policies and programmes, the promotion of the wider use of hazard information in development decisions, and the strengthening of safe building practices, training and certification. The DMFC is financed by the United States Agency for International Development (USAID) and seeks to strengthen vulnerability reduction in CDB’s Borrowing Member Countries (BMCs). The DMFC provides technical assistance to BMC’s to implement disaster mitigation policies and practices, and strengthen CDB’s institutional capacity for natural hazard risk management through the integration of disaster mitigation into all its policies, programmes and projects. It is therefore only fitting that the above agencies and organizations be acknowledged for their contribution to this effort. It would be remiss also not to mention the numerous committees, subcommittees, individuals and private, non-governmental and public sector entities in Belize that provided data to inform this plan, as well as giving of their time and knowledge.

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LIST OF FIGURES Figure 1

Map of Belize

15A

Figure 2

Areas Prone to River Flooding and/or Rain Inundation and Storm Surge

15B

Figure 3

Areas Prone to Fire Hazards

15C

Figure 4

Areas Prone to Landslips

15D

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EXECUTIVE SUMMARY The Caribbean Disaster Emergency Response Agency (CDERA), through its Caribbean Hazard Mitigation Capacity Building Programme (CHAMP), and the Caribbean Development Bank (CDB), through its Disaster Mitigation Facility for the Caribbean (DMFC), have collaborated to support the development of a National Hazard Mitigation Plan (HMP) for Belize. This Plan is presented in three parts. Part I provides a background into formulating the HMP. It introduces the topic of hazards and the havoc they wreak on human life and property. It gives an overview of the history of hazard mitigation in Belize, the rational for preparing the plan, the challenges faced and the context and scope within which the plan was prepared, as well as the approach and methodology applied in developing the plan, how it will be adopted and the limitations experienced in developing the plan. Part II - Assessment presents the hazard mapping and vulnerability assessment and the legislative and institutional capability assessment for preparing a HMP. Both are critical to appreciating the challenges faced by Belize in developing measures to mitigate against the impacts of disasters, as hazard mitigation cannot be realized if the tools, such as maps and data, are not available to inform decision making, and if the means of implementing hazard risk reduction measures are not streamlined into policy, and legislation if lacking, or if the existing legislation is deficient and incapable of contributing to meeting the goals of the policy, and thereafter, if the institutions are not structured or have the capacity and capability to enforce the provisions of the legislation. Key findings of the assessment are: From the Hazard Mapping and Vulnerability Assessment:     

The priority hazards which the HMP should address are flooding and hurricanes; However, there are other natural and man induced hazards which must also be considered; There is a need to produce basemaps and build information baseline data to inform vulnerability assessment; While the Common Digital Database (CDD) defines data availability and gaps, it does not sufficiently respond to the needs required to engage in hazard mapping and vulnerability assessment for Belize; However, the CDD is a start in developing an information database to inform hazard mapping and hazard risk reduction; Seven priority areas for vulnerability assessment were identified. San Pedro, Ambergris Caye is one of those areas.

From the Legislative and Institutional Capability Assessment Policies, Plans and Strategies:  

There is an overarching hazard mitigation policy with clearly defined goals and objectives, but no comprehensive disaster management policy; There are two key elements to the policy – sustainable development (social and economic development and environmental management) and capacity building at the institutional and individual levels;

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The focus of the policy is on mitigation measures involving natural resource and environmental management in the case of natural hazards, and hazardous materials and solid waste management in the case of man-induced hazards; The focus of the policy is on preparedness, response, recovery and reconstruction but not prevention; There are several policies, either adopted or in draft stage, which have implications to hazard mitigation and which can contribute to meeting the goals of the policy; There is no overarching land use policy to guide sectoral policy formulation and implementation as it relates to the use of land, whether for protected areas, industry, agriculture or human settlement, or for defining human resource needs to manage natural resources. This has implications to hazard mitigation at the policy level; Several policies which can contribute to Hazard Risk Reduction (HRR) are non-existent – Land Use, Sustainable Development, Human Settlement and Transportation Policies; There is a sectoral and centralized approach to policy formulation and implementation which contributes to a disconnect between decision makers and resource users, and a disregard for the cumulative negative impact of development and long term sustainability of resources. This has implications to hazard mitigation at the local level; There is no mechanism to create linkages between policy formulation, parallel ongoing activities and hazard mitigation activities, such that the latter can be streamlined into the first and integrated into the second. This has implications to capitalizing on opportunities to contributing to the goals of the policy; There is minimal use of fiscal policies and economic instruments to encourage environmental stewardship and hazard mitigation;

Legislation, Institutions and Financial Mechanisms Primary Legislation:       

While the primary legislation is skewed towards preparedness and response, nonetheless, it does provide for mitigation, but albeit, restricted; The primary legislation is deficient is several key areas, and overlapping with other legislation in others, but does have strengths and opportunities for hazard mitigation; The law is very centralized; There is no requirement for human resource planning representation on the advisory committee; The National Emergency Coordinator (NEC), and not the National Emergency Management Organization (NEMO), is tasked with broad and diverse responsibilities under the Act; The NEC is responsible to both the Prime Minister and Minister of NEMO. However, constitutional and legislative authority is assigned by gazette to the Minister, and not the Prime Minister While not explicit, there are key provisions to address hazard mitigation horizontally and vertically in the act;

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Secondary Legislation: 

     

There is overlapping and duplication of several pieces of legislation which regulate development activities, and which can be effective mitigation tools. This contributes to ambiguity in roles and responsibilities of agencies and organizations which can contribute to hazard mitigation; There are inherent deficiencies in some legislation to address contemporary development concerns as a result of the initial purpose for promulgation and gaps between legislation; There is underutilization of key legislation which can contribute to sustainable land use practices and ultimately hazard mitigation; Several pieces of legislation have powers to prepare development plans, guidelines, Special Area Precautionary Plan (SAPP), but not the power to enforce; No legislation provides for the operations of the National Meteorology Service ( NMS); Legislations focus on fines and imprisonments for violation of legislation thus limiting the scope for more eclectic approaches, for example, voluntary performance indicators etc. The application to terrestrial and marine provinces are separate in some legislation and jointly in others;

Institutions, Financial Mechanisms and Parallel Activities:   

   



Agencies critical to implementing hazard mitigation activities are under resourced ; There are several committees and sub-committees supporting NEMO with broad but encompassing mandates with opportunities to be strengthened, where absent, to engage explicitly in HRR, but certain capacity deficiencies must be addressed; There is a sectoral and centralized approach to decision making, monitoring and enforcement which contributes to a disconnect with resource users, and which is manifest in contention between local and central governments, between ministries and departments and between GOB and Community Based Organisations (CBOs) and Non-Governmental Organisations (NGOs); There is limited community involvement in hazard mitigation activities; The requirements of hazard mitigation activities are not internalized into the operations of most institutions with legislative mandates which can contribute to hazard mitigation, resulting in insufficient knowledge of the concept of hazard mitigation, and subsequently its application; Availability and accessibility of information on environment, development and vulnerability to inform both private and public sector decision making is limited, and where it exists, is underutilized; There are parallel programmes and projects that are currently been executed to assess the legislative and institutional capacity of Belize to engage in effective land management, sustainable development and environmental protection practices. These are the same legislation and institutions which are critical to hazard mitigation, thus the recommendations of these assessments can be useful to realizing the goals and objectives of the hazard mitigation policy; Financial resources to engage in hazard mitigation activities are limited, but opportunities exist in areas with linkages to hazard mitigation – poverty alleviation, natural resource management, climate change, gender equity and sustainable development;

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Individual and institutional technical capacity for hazard mitigation is limited, and where it exists, is underutilized; Key agencies which can contribute to hazard mitigation have no legislative mandate or is not established; Many private sector, NGOs and CBOs are involved in hazard mitigation initiatives and can represent best practice in hazard mitigation;

Part III – The Mitigation and Implementation Strategy presents the goals and objectives as defined by the National Hazard Mitigation Policy, and the strategic interventions required to realize the goals, as influenced by the findings of the assessment. This shaped the mitigation actions recommended. The Belize National Hazard Mitigation Policy states as its vision “A society safer from natural and technological hazards supported by integrated, social, economic and natural resource development.” It articulates two main goals with specific objectives and justification as follows: Goal #1: To enhance sustainable social and economic development, and environmental management through the integration of hazard risk reduction into national development processes. Objectives:        

To maintain natural resources at viable production levels where they will continue to yield useful benefits to resource users; To recover and sustain the ecological integrity of degraded terrestrial areas and aquatic ecosystems; To ensure that the primary resources of the nation are fairly and effectively distributed to afford the citizenry an improved and acceptable quality of life; To pursue national development from a planned perspective; To discourage the practice of ‘squatting’ or informal settlement on public land; To promote agricultural and forest practices that are sustainable and consistent with the landform and soil characteristic of the particular area. To improve and expand the volume of information available to the public with regard to the proper handling, disposal and management of hazardous materials. To improve the national capacity to manage waste.

Goal #2: To build the capacity of national institutions to more effectively implement programmes and projects to reduce vulnerability of the nation and people to natural and technological hazards. Objectives:  To decrease the susceptibility of all sectors and particularly the Agriculture, Tourism, Fisheries, Forestry and Housing Sectors to severe weather events;  To raise national consciousness about geohazards and the threat they pose to people and/or their property;  To lend greater financial support to public sector institutions with a role in natural resource management and hazard risk reduction;  To develop the appropriate legislative and regulatory framework for enforcement in support of hazard risk reduction.

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To improve the information available to public sector agencies with a role in hazard risk management. To strengthen and enhance the capacity of NGOs, private sector and other Stakeholders with a role in hazard risk reduction. To focus the attention of communities on their vulnerabilities to natural and technological hazards with a view of enhancing their participation in decision-making processes related to hazard risk reduction. To improve coordination among Public Sector agencies with a role in hazard risk management. To raise national consciousness with regard to the connectivity between global warming and the frequency and intensity of severe weather events.

Strategic Interventions and Mitigation Plan Actions: Policy Formulation, Coordination and Implementation A division of responsibilities among agencies at different levels, a lack of coordination among sectors and a lack of communication among decision makers can hamper the development process. Integration throughout the disaster stages and effective prevention and mitigation efforts require a comprehensive and coordinated approach that pre-supposes both an overall national development strategy and individual strategy at sector and local level. Effective implementation will require sustained interagency coordination and collaboration. Although NEMO must be actively involved with hazard mitigation initiatives, it serves as a coordinating agency for disaster management activities and is not a national planning and implementation agency. It must take a leadership role to create awareness about HRR at various levels of government, the private sector, NGO and CBO, and the general public at large, and collaborate with them in their HRR efforts, but it must rely on them to implement plan proposals. To do this NEMO must: 



   

Participate in national development planning initiatives through formal membership of the National Human Development Advisory Committee (NHDAC) and the Economic Advisory Council (EAC) to enable the streamlining of HRR in the National Poverty Alleviation Strategy and the Medium Term Economic Strategy; Be able to influence and shape sectoral policy through engagement with sectoral partners during policy formulation, and later to monitor implementation. The law provides for the NEC to liase and facilitate with partners. For ministries to comply, the cabinet must give approval. Consequently, a cabinet paper should be prepared and submitted for this purpose; Review existing draft and proposed policy, starting with those identified in this report, with a view to making recommendations to streamline HRR measures into them; Recommend the formulation of sector policies which are critical to hazard mitigation to increase HRR at the policy level. This include Land Use, Human Settlement, Planning and Transportation; Recommend the formulation of Hazard Mitigation Plans for critical sectors, including Fire, Hazardous Materials, Health, Civil Unrest, Oil and Food Security; Review National Hazard Mitigation Policy to broaden the meaning of hazard mitigation to include prevention as a component of the disaster management cycle and fiscal and economic instruments as a tool for hazard mitigation;

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Strengthening Legislative and Regulatory Framework As the leadership agency in hazard mitigation, the legislation which governs NEMO’s operations must empower its functions in hazard mitigation. It must also be able to rely on other permitting and regulatory agencies. For this to happen, NEMO must: 

Undertake a review of the Disaster Preparedness and Response Act to strengthen it in its hazard mitigation functions to include:  Harmonization with the Housing and Town Planning Act or Draft National Planning Bill to give effect to the implementation and enforcement of the SAPP;  Give the Prime Minister or Minister responsible for NEMO the power of moratorium, which is a short term suspension of the right to develop after a disaster, until a SAPP or planning scheme can be prepared under either the HTPA or the DPRA;  Representation of the Minister responsible for NEMO on the Advisory Committee;  Clarification of the role of the Minister viz a viz the Prime Minister  Clarification of the role of NEC viz a viz NEMO;  Representation from the Ministries of the Public Service and Planning on the Advisory Committee;  A requirement to formulate a Comprehensive Disaster Management Policy;  A requirement of the Minister of NEMO to review and comment on the annual report and National Disaster Preparedness and Response Plan prior to submission to the Prime Minister;  As a requirement in the National Disaster Preparedness and Response Plan, a review and analysis on the mitigation activities and initiatives of the public sector and major private sector entities;

 

 

Request amendments to the Environmental Protection Act to include a representative of NEMO on the National Environmental Appraisal Committee (NEAC) and to include HRR as a component of scoping under the EIA process; Provide support to the Ministry of Natural Resources and the Environment (MNRE), through the use of a cabinet paper, for the enactment of the National Planning Bill, the National Sustainable Development and the Protected Areas Management Bill as supporting legislation for HRR which empowers local communities to be engaged in decision making about resource use at the community level. Provide support to the MNRE, through the use of a cabinet paper, for the amendments recommended in the Decentralized National Land Use Planning Framework to harmonize other laws with the proposed planning bill; Provide support to the MNRE, through the use of a cabinet paper, for the amendments recommended under the National Capacity Self Assessment NCSA project to improve natural resource and environmental management;

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Building Institutional and Individual Capacity to Manage Risk Collaboration with other agencies and organizations engaged in HRR compliments the leadership and coordinating role of NEMO, and enables NEMO to concentrate its efforts in that role. However, while NEMO itself must be equipped and positioned to perform this role, it must also collaborate with agencies and organizations whose activities compliments that of NEMO to build their capacity to perform their functions. To that end, NEMO must:   

 

  

 

Request that established posts at NEMO be filled as a matter of urgency; Review its current institutional and individual capacity in view of the report Sustainability of the NEMO mechanism by Dr. Barbara Carby and the legislative review conducted in 15.2.2 to enhance its hazard mitigation function; In view of the findings of the preceding, establish a mechanism to create and sustain linkages between national HRR needs, human resource planning and training institutions, through partnerships with the Office of Governance, University of Belize, and other local and international educational facilities and funding agencies or conduit to educational opportunities such as the Protected Areas Conservation Trust (PACT), the Ministry of Finance (MOF) and the Ministry of Foreign Affairs ( MFA); Review the Terms of Reference (TOR) of the committees to expand and broaden their role in hazard mitigation; Review the operations of key public sector agencies engaged in hazard mitigation to internalize hazard mitigation into their operational plans and to determine the extent of individual and institutional strengthening required to support NEMO, either through their direct operations or through committees which they may chair. These include those listed with and without legislative mandate and NEMO 12 operational committees; Review the operations of key private sector, NGOs and CBOs operations to collaborate internalizing hazard mitigation in operational activities; Aggressively pursue the appointment of the Central Building Authority and supporting staff to regulate the construction of buildings; Identify training in specific fields including data collection, analysis and interpretation of both scientific and para-scientific data to inform policy and decision making and to create awareness; and the design, planning, management, administration and so on for those with direct public and private sector responsibilities in the field of development and disaster mitigation; Provide knowledge building for public sector for better understanding of the concept of HRR; Create, share and make accessible data base of professionals a involved in HRR in the private and public sector nationally, regionally and internationally;

Establishing a HRR Information Management System In the generation of information, it is necessary to identify linkages and conflicts between hazards and development options. NEMO must be the repository of data and the linkage between agencies that generate, analyze and store data. To that end NEMO must: 

Engender and nurture a culture for information gathering, sharing and use;

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Create a data base on HRR and disaster management professionals, agencies and organizations engaged in HRR and disaster management; Create a data base of best practices in hazard mitigation at local, regional and national levels for public and private sector entities as well as CBOs and NGOs;; Create an Information System that is accessible and available, with the characteristics, components, data type and format required to analyze, exchange and manipulate data to inform decision making in the public and private sectors and NGO and CBO fraternity; Upgrade existing website to enhance availability and accessibility of data to inform decision making by the professional associations, lending institutions, central and local government agencies, NGOs and CBOs;

Integrating HRR into Environmental Management and Economic Development Recognizing the inter relationship between HRR and environmental management and economic development is crucial to sustainable development. To this end NEMO must:  

Work closely with agencies and organizations responsible for environmental stewardship to promote this inter relationship; Collaborate with agencies and organizations responsible for environmental stewardship to identify areas requiring ecological resuscitation and develop programmes to address this situation;

Public Education, Training and Outreach Public education, training and outreach encourage society to shoulder its responsibility and implement vulnerability reduction measures. Three essential and overlapping types of activities are recommended. As well, they should be underpinned by the connection between HRR and sustainable development. 



 

Design a public information data base of known hazards, HRR initiatives and measures, sources of information, individual and collective responsibilities, and a connection between HRR and daily life of the general public and operational activities of key private sector institutions, that is, the lending, insurance and building industry ; Design an awareness training programme to disseminate the public information data base and sources of information among public officials and selected private sector groups such as professional associations, developers, vulnerable sectors such Tourism and Agriculture, lending institutions and insurance companies, and those who build and renovate their own homes; Design a programme to include school training through the inclusion of hazard mitigation topics in curricula of primary and secondary schools and vocational technical schools, making the connection between HRR and daily life; Upgrade web site to include information

It is also recommended that NEMO develop these programmes in consultation with the media, the Belize Broadcasting Authority, in the case of the first and second, and the Ministry of Education and Belize National Teachers Union in the case of the third.

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Community Mobilization and Empowerment Providing knowledge empowers communities. Engaging then in decision making involving HRR activities encourages participation in HRR programmes. To empower and mobilize them involves:  

Enhancing their capacity and capability to engage in HRR activities through training and exchange of anecdotal experiences, culture and traditional approaches to HRR to develop best practices to be integrated into all aspects of the disaster cycle; Working with priority communities to engage in hazard mapping and vulnerability assessments to prepare local HMP;

Access to Financial Resources HRR is a component of sustainable development, and has implications to poverty alleviation, environmental management and climate change. Linking HRR to these issues can open opportunities for new sources of funding to compliment national budgets. To this end NEMO must:   

Devise a strategic approach for donor agency support for HRR; Strengthen capacity of institutions and individuals in pubic sector agencies at various levels and in the NGO and CBO communities to draft proposals to access financial support for programmes and projects incorporating HRR measures; Strengthen capacity of institutions and individuals in pubic sector agencies at various levels and in the NGO and CBO communities to manage project funding;

The preceding strategic interventions and mitigation plan actions were presented in log tables which detailed their expected outcomes, operational activities, time frame, agency responsible, resources required and assumptions made. This part also presented post disaster actions that can be undertaken to capitalize on the opportunities to introduce hazard mitigation measures into recovery and redevelopment programmes. A Hazard Mitigation Council is expected to coordinate the implementation of the plan, and to monitor, evaluate and update it over the ten years life span. A pilot HMP was prepared for San Pedro, Ambergris Caye, using the same methodology applied in the HMP. This is presented as ANNEX 1.

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INTRODUCTION Every year disasters, both natural and man induced, cause great losses in human lives, property and productive capacity in many countries. The losses are more dramatic in developing countries, whose economies are not sufficiently developed to absorb their consequences. As a result, real economic growth and development in many of these countries has been seriously set back, through their direct, indirect and cumulative effects. Damages from these disasters can also take less tangible forms, including social deprivation, unemployment, dependency, displacement of populations, migration and political instability. To mitigate and reduce the impact of these losses is a daunting task which confronts governments, policy makers, technocrats and communities. Unfortunately, this task is becoming even more difficult, as population increases, and human settlements, tourism and other economic activities concentrate and expand in coastal, flood prone and ecologically sensitive areas, many of which are quite vulnerable to hazards. Belize, similar to many other countries, finds itself challenged to find solutions. Furthermore, over the years, other threats have emerged, and many loom on the horizon. Marine traffic, particularly oil tankers and cruise ships, have increased a hundred fold. Undoubtedly, technological developments, the recent discovery of oil and the rise in mass demonstrations and confrontations between the security forces and the citizenry broaden the search for solutions. To complicate matters, recent health experts predict that it is inevitable that the bird flu will find its way to the Caribbean and Central America. Food safety and security is now a concern, and there is now a need to consider biological warfare, the new terrorism tactic. Belize is 8866 square miles in area, and has six (6) administrative districts. Its eastern border is with the Caribbean Sea, making it susceptible to natural hazards, premier among them hurricanes. Its is bordered in the north, west and south by three Central American countries, Mexico, Guatemala and Honduras, that themselves are prone to volcanic eruptions, earthquakes and mudslides. From the perspective of physical relief, the northern part of the country is relatively flat, and is drained by a number of well formed, slowly flowing rivers that are often prone to ponding and backwater effects. The three districts that are characterized by this terrain are Belize, Corozal and Orange Walk, of which the first two are coastal districts. The southern half of the country is characterized in its interior by the Maya Mountains, which rise to a maximum height of 1122 m above sea level. To the southeast of this mountain range, the land is drained by a number of rivers, which are relatively fast flowing and prone to flash flooding. Within this section of the country, the three districts are Cayo, Stann Creek and Toledo. Of these, Cayo is characterized by mountainous country side, while the other two are districts found on the coastal strip. [See Figure 1] Belize has an estimated population of 273700 persons, of which 49.5% or 135600 are living in urban centers, and the remaining 50.5% or 138100, in rural areas, many in villages situated in near proximity to rivers and streams. Approximately 35 % of the total population is living on the coast, with 60% of that 35% living in Belize City. Growth trends point to a reversal of the urban rural dichotomy of the 70’s and 80’s, when the urban population outnumbered its rural counterpart, and Cayo District continues to be the fastest growing district. Notwithstanding, while the rural-urban drift may not be a major problem nationally, the growth figures for Belize District, reveals 45% of

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all growth in the district occurring in Belize City, the largest urban center with 21% of the country’s total population, and points to urbanization and its attendant problems. Notwithstanding, this is a reduction from the 70’s and 80’s, when 70% of all growth in Belize District occurred in the city. The male outnumber the female slightly at 138300 to 135400 respectively. The population density is relatively low at 3.2 persons per square mile, with high densities in the urban areas, particularly Belize City, where building congestion is glaringly apparent.1 Belize has a small open economy. Its principal sectors are agriculture, agro-processing and services, the last, dominated by tourism. All are strongly linked to the natural resource base, which has been described as very rich and diverse in its marine and terrestrial realms. This includes 67.4% of forest cover in the latter, the Belize Barrier reef system in the former, and 49% of total territory under some form of protected status. The Central Statistical Office (CSO) estimates that real growth in GDP decelerated from 4.6% in 2004 to 3.1% in 2005 translating into GDP of $2.148 billion dollars. Of concern is that the publicly guaranteed debt is $2.1 billion dollars. In addition, the GOB 2002 Poverty Assessment Report states that 33.5% of the total population was below the poverty line, with 52 % of rural population being economically depressed. Data shows that the first major hurricane and flood recorded to affect Belize were in 1931 and 1979 respectively, with many others impacting since then, the most devastating being Hurricane Hattie in 1961, and the most recent being Hurricane Keith in 2002. Notwithstanding, in 1998, the threat of Hurricane Mitch caused unprecedented evacuation efforts from the coastal areas. Extreme drought was recorded in 1975, and extreme temperatures in 1990. While Belize has not been impacted directly by earthquakes or volcanic eruptions in a major way, it has experienced secondary impacts, particularly volcanic ash and earth tremors. There is no recorded major land slide, but villages in the Cayo and Stann Creek Districts have been identified as prone to this hazard. Fires have also plagued the country in both urban centers and forested areas, the latter dominant in Belize City, where congestion, and aged and wooden buildings, have together created conditions and environments susceptible to major fires, the first recorded in 1863. There is documentation of chemical fires from BSI in 1990, but no oil spill to date. 2.0

OVERVIEW OF HAZARD MITIGATION IN BELIZE History records that since early settlement, consecutive governments have responded to disasters in varying ways, mostly utilizing legislative tools and measures to reduce future impacts, but always after the harm is actualized, never before. Early initiatives included using legislative tools to invest in firefighting equipment (fires of the 19th century)2; prepare and enforce planning schemes for towns devastated by hurricanes, (Corozal and Dangriga Town in 1955 and 1964 respectively) and passing legislation to regulate building construction in Belize City, and Corozal and Dangriga Towns. Legislation was also utilized later to enact both the Disaster Preparedness

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Abstract of Statistics 2003 Magistrates, public meetings and governments, subsequent to the fires of 1802, 1806, 1839, 1909 and 1918, voted monies to purchase fire equipment and required families to provide themselves with tools to combat fires and discontinue to use of certain building materials.

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and Response Act (DPRA), to provide a coordinating framework for disaster management, and the Belize Building Act (BBA), to regulate the construction of buildings countrywide. The occurrence of disasters also led to major policy decisions of the GOB, particularly as it related to the siting of new communities, the construction and retrofitting of shelters for hurricanes and the enhancement of the institutional support for disaster management. In regard to the first, subsequent to Hurricane Hattie, the GOB proceeded to relocate the capital inland and Belmopan was built, a significant hazard mitigation initiative in its own right. As well, other inland settlements emerged, including Hattieville and Georgetown Villages in the Belize and Stann Creek Districts respectively. Similarly, subsequent to Hurricane Mitch, Mahogany Heights was conceived and later constructed, and housing construction was encouraged in the hinterland. As a result, communities such as Lord’s Bank and Ladyville prospered, and Los Lagos and other housing projects were implemented. However, these initiatives were all reactive and fragmented. They were responses to the consequences of disasters, as against any clear articulated and comprehensive approach to mitigate, reduce or eliminate the impacts of hazards. Furthermore, they were primarily focused on activities in the preparatory, response, recovery and reconstruction phases of emergency management as it relates to specific events, as against any preventative or sustained action to reduce long term vulnerability of human life and property to hazards. The Belize National Hazard Mitigation Plan presents a proactive, multi-sectoral and integrated planning framework to reduce the adverse impacts of hazards to human safety, welfare and property. It documents a collaborative planning effort by the GOB and regional disaster management organizations with contributions from a broad range of government agencies, professional associations, community organizations and key stakeholders from the private sector. It is guided by a National Hazard Mitigation Policy, which provides a clear national mandate for natural hazards risk reduction, as well as creating the foundation for the many implementation mechanisms presented in this Plan. 3.0

THE RATIONALE Natural hazards are part of the world around us and are inevitable. The occurrence of these natural phenomena can not be accurately predicted or controlled. The Caribbean region is especially prone to a wide range of natural hazards including hurricanes, volcanic eruptions, earthquakes and flooding. Over time, the natural environment has evolved to have considerable recuperative powers and has shown remarkable resiliency to natural hazards. However, when the activities of man alter or transform the natural environment, its resilience is eroded. This has serious implications, for when a natural hazard intersects with the natural or altered environment, the inevitable consequence is a disaster. Disasters also occur as a consequence of hazards induced by man, directly or indirectly, such as fires, chemical and oil spills among others, on both the natural and built environment, which can have results similar to those caused by natural hazards. Disasters in the Caribbean have greatly affected the productive sectors of the economy such as tourism and agriculture, not to mention the severe impacts on communities. This is often

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exacerbated by limited resources, land ownership and tenure patterns, which can drive the poor to settle in hazard prone and congested inner city communities characterized by structurally unsound buildings. Recovery from disaster events can be extremely difficult for the most vulnerable elements of the population – the poor, elderly and single female head of households. On average, at least one major hurricane and numerous tropical storms impact the Caribbean each year. Within the region, individual countries have incurred losses from a single hurricane event that has exceeded the annual GDP (CGCED, 2002). In the case of Belize, in 2001, Tropical Storm Chantel caused $31437617 in damages.3 Unfortunately, the magnitude of disaster damages caused by both natural and man induced hazards has been rising at an alarming rate. In the case of natural disasters, it is not necessarily because natural hazards have become more frequent, (although there is growing evidence that global warming is contributing to more frequent and intense events) but because of increased population pressures and individual decisions that place businesses and homes at greater risk. Too often, new development is occurring in high density and congested urban areas and areas subject to repeated coastal and inland flooding, with little or no attention to the need for sound building practices or land use policies. As a result, the magnitude of disaster damages caused by both natural and man induced hazards has grown exponentially. In the case of natural disasters, recent experience in countries such as Jamaica, Dominican Republic and the OECS countries confirms that economic recovery is an exceeding slow process (CGCED, 2002). Disasters directly impact on the foreign exchange earnings just at the time when extra resources are required to pay for the range of imports critical to the recovery of the agricultural, tourism and manufacturing sectors. Successive disasters can push countries into a downward spiral, where losses outweigh any economic development progress recently made. Understandably, the impacts of disasters are fundamentally an issue of development. Each disaster leaves in its wake an overwhelming volume of evidence of how planning and investment decisions contribute to vulnerability – and the consequent risk of further disasters (CGCED, 2002). Since reducing vulnerability is closely linked to the manner in which development occurs, and because reducing the vulnerability associated with future development is by far the most cost effective approach, it is essential that hazard considerations are incorporated more systematically in development planning, development review and physical planning functions. While we cannot prevent natural hazards, there are a range of tools, techniques, and strategic interventions that, when put into effect in a timely fashion, can minimize the economic, social and environmental impacts of future disaster events, whether caused by natural or man induced hazards. By managing the type, construction, intensity, density and location of future development, by better management of our natural resources, and by incorporating hazard mitigation measures in national, regional and local policy formulation and implementation, particularly as it relates to essential public facilities and infrastructure, and individual decision making, we can significantly reduce our vulnerability to both types of hazards. 3

Preliminary Report on Damages Sustained from Tropical Storm Chantel – NEMO 2001

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This Plan serves as a guide to decision makers, government agencies, developers and contractors, design professionals and citizens on the tools and techniques that can be employed to decrease our vulnerability to future hazards. It charts a path forward that will require substantial changes to our legislative and institutional frameworks and one that will require the sustained and collaborative effort of all facets of civil society to achieve a more sustainable future for our country. 4.0

THE CHALLENGES Hazard mitigation refers to a wide range of actions taken to reduce or eliminate long-term risk to people and property from hazards and their effects. It includes structural measures, such as the construction of flood control impoundments, retrofitting buildings to withstand high wind damages or constructing sea defense mechanism, as well as non-structural measures, such as land management and development controls, building code enforcement and public outreach programmes. It is a major element in comprehensive disaster management, yet it is the least understood, the most complex, and often the most controversial, pointing to many challenges in the formulation of a Hazard Mitigation Plan (HMP) for Belize. The first challenge is to ensure that it is incorporated into the other phases of the disaster management cycle, that is, preparedness, response, recovery and reconstruction. Their definitions and a brief discussion on how hazard mitigation can be addressed at each phase of the disaster cycle follows: Preparedness. Measures taken to reduce to the minimum level possible, the loss of human life and damage to property, through the organizing of effective measures which will ensure timely and appropriate responses to a given hazard. Preparedness traditionally refers to improving the capacity of governments to undertake emergency response functions immediately following a disaster event, but preparedness can also include pre-disaster planning for incorporating mitigation measures in long-term recovery and reconstruction as well in every day life. Response. Actions carried out immediately before, during and immediately following a disaster event which are aimed at saving lives, reducing economic losses and alleviating suffering. Retrofitting or “hardening” critical facilities is an example of applying hazard mitigation in an effort to improve response capabilities. Recovery. In the aftermath of a disaster, recovery refers to the transition from emergency response functions to restoration of basic services and the initial repair of physical, social and economic damages. Hazard mitigation considerations should come into play when evaluating options to restore, temporarily repair or permanently replace essential public buildings, bridges or infrastructure. Reconstruction. The long-term process of rebuilding a community’s destroyed or damaged housing stock, commercial and industrial buildings, public facilities, and other structures. The post-disaster environment provides a tremendous opportunity to ensure that hazard mitigation measures are incorporated in the design and construction of damaged or destroyed buildings

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and infrastructure. Mainstreaming disaster risk reduction in the reconstruction process poses many challenges as political and societal pressures to return to normalcy and to the prevailing pre-disaster conditions work against taking advantage of these opportunities. As can be noted, the disaster management cycle centers around the occurrence of an emergency or disaster. Its focus is primarily on natural hazards. There is a need to broaden and deepen the concept of hazard mitigation to not only incorporate actions outside the cycle, that is, to reduce or prevent the incidences and inevitability of a disaster or an emergency, but also for the concept to include man-induced hazards, for example, fires and chemical and oil spills, as well as nontraditional hazards, such as civil unrest and health epidemics. This represents the second challenge to formulating this plan. Thirdly, it must be cognizant that low-income populations and communities are disproportionately affected by hazards. Given the close link between environmental degradation and poverty, unsustainable natural resource use associated with poverty can exacerbate existing vulnerabilities. In addition, gender sensitivity requires the national government to pay particular attention in the assessment, planning and programming stages of recovery to the needs of poor, especially female single head of households. This sensitivity applies equally well when designing public outreach efforts and determining eligibility for safe housing programmes before disasters strike. Fourthly, there is growing awareness in the Caribbean of the challenge that must be faced in adapting to changes in the global climate. This is reflected in the National Climate Change Adaptation Policy. Given that much of our development in concentrated in coastal areas, global climate change has serious implications including: increased frequency and magnitude of tropical storms and hurricanes; sea level rise; and, potential for salt water intrusion into public water supplies. As well, it can affect food security, environmental integrity, the health of the nation through the increase in outbreaks of diseases and the reproductive cycles of the animal and marine life. Fifth is acknowledging that implementing an effective hazard mitigation programme is a complex undertaking that will involve fundamental changes in the development process, multi-sectoral collaboration between government agencies at the national, regional and local levels, and the involvement of all facets of civil society. There will be the need to build consensus that hazard mitigation is both vital and feasible, traditional attitudes will need to change, and new organizational measures will be needed for the way in which development is carried out. This is a major challenge which will require education, training and creative thinking in order to be successful. And finally, the national HMP must have a long range focus because these changes will take time to integrate into everyday activities, yet it should also propose ambitious yet achievable shortrange implementation steps. The Plan endeavors to balance these objectives by having a ten-year planning horizon for plan implementation, supplemented by annual action plans.

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SCOPE AND CONTEXT While hazard mitigation is considered the foundation of emergency management, it should be streamlined not only in all of its phases, but in all policies, plans, programmes and activities of GOB at the national, regional and local levels, which has the potential to mitigate, reduce or eliminate the impacts of natural and man induced hazards. While the focus of this HMP will be on natural hazards, it must be noted that it will have direct and indirect application to some man induced hazards.

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Introduction The approach and methodology applied in formulating this plan can be attributed to several phases which began in 2003.

6.2

Hazard Planning Mitigation Process An effective Hazard Mitigation Plan must be designed and implemented within the context of an integrated development planning framework. By its very nature, it must be a multi-sectoral effort, requiring strategic interventions in government, the private and non-governmental sectors, and with the involvement of the broader public. It must also be cross-cutting, in that effective implementation will require the active involvement of a number of line ministries, departments, and authorities. Hazards risk reduction initiatives require a strong commitment and coordination across sectors, many of which have not traditionally been involved directly in disaster management activities. This section describes the process that led to the development of this Plan. It was a collaborative effort involving CDERA and CDB, working in concert with the Government of Belize (GOB). The process was divided into two major phases: (1) development of the Belize National Hazard Mitigation Policy (BNHMP); and (2) development of the Belize National Hazard Mitigation Plan (HMP). It must be noted that in the case of the latter, it was decided that both a Belize National HMP and a pilot HMP be produced for the San Pedro, Ambergris Caye Region. This was because of limited resources. The selection of the pilot study area was based on the following criteria:   

6.2.1

The site has a high degree of vulnerability in the country; Resources of the project could provide for the research data for that area; and, The site possesses attributes and characteristics that can be used as a model for application in other parts of the country.

Belize National Hazard Mitigation Policy Development A policy is an overarching statement (or statements), that defines the general vision and intent of an organization. It normally sets the stage with a framework of clearly articulated objectives and

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goals, from which strategies can be formulated, and an action plan with specific tasks and activities be developed, such that the objectives and goals of the policy can be achieved. Thus, the development and adoption of a National Hazard Mitigation Policy at the onset of the planning process provides a critical framework and direction for the natural hazards risk reduction programme. CDERA, under the USAID/OAS Caribbean Disaster Mitigation Project (CHAMP), developed a Model Hazard Mitigation Policy for participating states in the Caribbean. This was developed in collaboration with the Thematic Cooperating Group (TCG) on Mitigation Policy and Planning, and then vetted by regional stakeholders through a regional consultation on the policy document, held in Belize in January 2003. The model policy was developed with the support of both the CHAMP and the Disaster Mitigation Facility for the Caribbean (DMFC) of the CDB. The adaptation of the model policy at the national level was facilitated using a multi-sectoral stakeholder review process. A series of workshops were held emphasizing integration with existing national policies, plans and programmes. At the Model National Hazard Mitigation Policy Adaptation Workshop held on April 28-30, 2003, the model policy was presented and issues identified that needed to be addressed in adapting the policy to country specific conditions. Key outputs of this workshop were the formulation of a vision statement, policy goals and objectives and guiding principles to inform the Belize National Hazard Mitigation Policy (BNHMP). As well, the strengths and weaknesses of the policy adaptation process were highlighted and recommendations made to enhance the process. Of significance was the establishment of the Policy Development Committee (PDC).

6.2.2

The function of the PDC was firstly to provide technical guidance to the development of the BNHMP, secondly, to prepare and write sections of the BNHMP, and thirdly, to develop a mechanism for informing national stakeholders of the progress of the project. At that meeting, it finalized its membership and developed a detailed work plan for the coordination and preparation of the policy. Once the policy was prepared, a draft was presented at eight (8) regional public consultation meetings which gave stakeholders an opportunity to contribute to it. Subsequently, a national public consultation meeting was held, where the draft policy was presented for comments and improvements. The policy was revised and submitted to cabinet, where it was adopted in November 2004. This policy set the stage for the development of the Belize National Hazard Mitigation Plan (HMP). . National Hazard Mitigation Plan Development The HMP is the implementation mechanism for the BNHMP. It is a written statement of the implementation measures necessary to realize the goals and objectives of the BNHMP to reduce Belize’s current and future vulnerability to hazards. To support the practice of mitigation planning in the Caribbean region, a hazard mitigation planning methodology was developed under the CHAMP programme. The mitigation planning approach described in the CHAMP document, Planning to Mitigate the Impacts of Natural Hazards in the Caribbean, provided an integrated planning framework for the development of the national plan (USAID/OAS, 1997). The following seven elements provide a brief overview to the planning process utilized in developing the Belize National HMP and the San Pedro, Ambergris Caye HMP.

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Introductory Hazard Mitigation Planning Workshop

The plan development process was initiated by a three-day Introduction to Hazard Mitigation Planning Workshop held on March 2-4, 2004. Twenty-six (26) persons representing the public, private and non-profit sector from a broad field of interests participated. The workshop was structured to provide a balance of lecture presentations and small group activities. In addition, plenary and working group discussions permitted extensive interactions between workshop participants. There were several outputs of the workshop: (i) (ii)

(iii) (iv) (v)

(vi) (vii)

(2)

Key opportunities and constraints to developing an effective HMP were identified and listed. Key stakeholders were considered for membership of the mitigation plan committee, and a core planning team to provide overall guidance to the larger broad based committee was identified. A list of potential champions to be encouraged to be advocates for hazard mitigation was identified. A mission statement for the HMP was formulated and agreed upon. Important linkages with key stakeholders were identified. Firstly, the coordination between public and private sectors; secondly, integration with other planning initiatives; thirdly, increasing opportunities for education, training and media involvement and fourthly, improving implementation at the community level and NGO involvement. Case studies for identifying and prioritizing mitigation actions were discussed A draft work programme with specific tasks and milestones to reach an adopted HMP was developed.

Hazard Mapping & Vulnerability Assessment Prioritization Workshop

A second workshop, Hazard Mapping and Vulnerability Assessment Prioritization Workshop, followed the introductory workshop. The purpose was intended to firstly, sensitize participants to the characteristics and impacts of the prevalent hazards, secondly, to provide stakeholders with a basic understanding of the mechanism and applications of hazard mapping and vulnerability assessments, and thirdly, to identify and prioritize hazards applicable to Belize. . (3) Common Digital Database Consultancy The accurate identification, evaluation, and mapping of natural hazards for the development of an HMP is dependent upon a consistent set of Geographic Information System (GIS) data. The CDERA/CDB Collaboration used consultants to develop a common digital database for undertaking the HMVA phase of the Plan development process. In support of this activity, a survey of the status of hazard maps, vulnerability assessments and digital maps was completed by CDERA, with support from the Japanese International Cooperation Agency supported Caribbean Disaster Management Project and CHAMP. This study produced a

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listing of the hazard and vulnerability assessments (maps and reports) and other relevant digital maps available in Belize. This was the starting point for conducting the CDD Consultancy. (4)

Hazard Mapping

Once the hazards that affect Belize were prioritized, the next step was to engage in an assessment to determine the frequency or the probability of occurrence of the priority hazards, the magnitude of those hazards, where effects are most likely to cause the greatest harm to people and property and the impacts of each of the natural hazards evaluated. From this information, hazard maps are produced for the priority hazards identified. (5)

Vulnerability Assessment

Vulnerability assessments (VA) are systematic evaluations of buildings, facilities, population groups or sectors of the economy that are susceptible to damages from the effects of natural hazards. Vulnerability to a natural hazard can be defined as the extent to which people will experience harm and property will be damaged from that hazard. Vulnerability is determined not only by a facility’s geographic location and susceptibility to prevalent natural hazards but also by the structure’s characteristics (design, materials, and quality of construction). Vulnerability can be estimated for individual structures, for specific sectors or for selected geographic areas, such as high hazard zones. The results of a vulnerability assessment are then used to prioritize mitigation actions and can help inform disaster recovery, mitigation, and response planning. An important component of VA is the assessment of critical facilities. These are those structures important to the general health and welfare of public, particularly following a natural disaster event. These facilities may serve important emergency response functions, such as shelter, fire, rescue, and medical services, they may be essential to the continuity of government operations, or be important in rapidly restoring key infrastructure and public services such as potable water, wastewater, and electric power following a disaster event. A vulnerability assessment can also address vulnerable sectors of the population. The methodology applied in this exercise has five steps. The first was to define the project study region and determine the scale and mapping and/or data aggregation. Secondly, was the collection of information on hazards and critical facilities. The third phase involved integrating hazard information and critical facilities into a common data base for analytical purposes. Fourthly, was the task to develop both hazard scores (location of the facility within a designated hazard risk zone), exposure scores (classifying facilities according to economic value and importance of function) to determine a combined vulnerability score. The last phase was to prepare the report. (6)

Legislative Review and Institutional Capability Assessment

An effective hazards risk reduction programme requires a solid understanding of the existing opportunities and constraints for reducing vulnerability across all sectors of the economy. A review of existing legislation and authorities for disaster and hazard mitigation related activities

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and a review of the institutional capabilities of key agencies and organizations were conducted by regional experts and the Country Plan Coordinator (CPC). The purpose of the capability assessment was to address not only traditional disaster management legislation and response functions, but also to evaluate the full range of institutional roles and authorities that can affect future land use decisions such as development review, physical planning, and environmental impact assessment, and to identify gaps in existing capabilities, in addition to identifying areas to build upon existing strengths. (7)

Mitigation Plan Development

The mitigation plan development is the culmination of the hazard mitigation planning process. This planning element builds upon the national mitigation policy framework and was guided by the findings of the vulnerability and capability assessment. It involved four tasks: (1) the development of mitigation goals and objectives; (2) the identification and prioritization of mitigation actions; (3) the preparation of an implementation strategy and action plan; and, (4) documenting the mitigation planning process. A model framework for the national hazard mitigation plan was developed by CDERA to facilitate mitigation plan development.4 The goals and objectives contained in the Belize National Hazard Mitigation Policy were the starting point for developing the Plan’s goals and objectives. Working sessions conducted during the Capability Assessment Workshop refined the policy goals and objectives for incorporation into the national HMP. In addition, a Hazard Mitigation Plan Actions Development Workshop was held on May 9-10, 2006 where some strategic actions to achieve Plan goals and objectives were identified and prioritized. This was followed by several meetings with the PDC to modify, add to and elaborate on the strategic interventions and to agree upon specific mitigative actions to be included in the Plan. Thereafter, the CPC conducted additional research to fill data gaps and concluded the report writing. 7.0

PLAN ADOPTION Once completed, the Belize National HMP will be submitted to Cabinet for approval.

8.0

LIMITATIONS Several limitations were experienced in carrying out this exercise. Firstly, the report writing was dependent on reports produced by individual consultants, and presented at workshops for validation, which was a drawn out process. Secondly, there were data gap deficiencies in a key report, which required additional research and analysis. And lastly, due to resource limitation, NEMO was constrained in providing certain support functions.

4

National Hazard Mitigation Plan Model Framework Guidance Document

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INTRODUCTION This part focuses on the application of the Hazard Planning Mitigation Process articulated in Part I. As stated previously, the entire process was not applied nationwide in the formulation of the Belize National HMP due to limited resources. As a result, while the process will be presented, only those phases which were done for the country will be noted in this section, and the pilot study area will be elaborated on in Annex I – San Pedro, Ambergris Caye Hazard Mitigation Plan (HMP). In addition, in this part, only phases 2-6 will be presented, as Phase1 is an introduction to the process, and phase 7 is the plan development itself.

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HAZARD MAPPING AND VULNERABILITY ASSESSMENT

10.1

Introduction This section presents the findings of the hazard mapping and vulnerability assessment that was conducted to inform the national hazard mitigation planning process. A detailed evaluation of hazard risk gives individuals, communities, businesses, and our government the power to choose, within our means, the level of hazard risk we are willing to accept. Not only was it is a prerequisite to the development of this Plan by helping to prioritize hazard risk management interventions, the body of hazard maps, digital databases, and assessment findings can be used by government officials and the private sector to make better decisions about designing and locating new developments, settlements, infrastructure and other investments. Hazard mapping can also inform preparedness and response functions by providing emergency management officials with accurate and high resolution data for communities that are located in hazard prone areas.

10.2

Hazard Identification, Description and Prioritization

10.2.1 General The Hazard Mapping and Vulnerability Assessment (HMVA) Prioritization Workshop was held in April 2004. The workshop included a discussion on the status of national hazard mapping and the plenary discussions focused on the identification of gaps or shortcomings in the existing hazard maps or analysis. Hazards applicable to the country were identified and prioritized at this workshop, and categorized according to natural and man induced hazards. 10.2.2 Natural Hazards Flood – Two types of flooding can be distinguished in Belize: inland flooding along streams and rivers; and coastal flooding caused by storm surges. Inland flooding is often exacerbated by increased storm water run-off from development located in the upper reaches of the watershed. Storm surges are an abnormal rise in sea water level associated with hurricanes and other storms at sea. Surges result from strong on-shore winds and/or intense low pressure cells and ocean storms.

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Damages associated with storm surges can be extensive owing to the immense forces associated with direct wave impact, hydrostatic forces on fixed structures, and the effects of water lifting and carrying objects landward. The combination of storm surges associated with hurricanes occurring during periods of high tide can be particularly destructive. Inland flooding is a natural phenomenon that occurs when excessive run-off from heavy rains exceeds the normal capacity of a river or stream channel to move water safely down gradient. Flooding can be exacerbated when land use changes occur in the watershed without providing adequate storm water management for new development. Inappropriate development of the floodplain and inattention to floodproofing are the major factors leading to flood-related damages. [See Figure 2] Hurricane – Starting out as tropical depressions, they become a hurricane when the maximum sustained surface wind speed exceeds 74 miles per hour (119 km/hr) and are characterized by winds directed inward in a spiraling pattern towards the hurricane’s eye. They are generated over warm ocean water at low latitudes and are particularly dangerous due to their destructive potential, large zone of influence and erratic movement. The hazard phenomena associated with hurricanes include: direct impacts from hurricane-strength winds and damages from wind-borne objects; coastal flooding from storm surge; inland flooding from intense rainfall that often precedes and follows their passage; and rain-fall induced landslides. Forest Fires – These are occurrences caused either by lightening strikes and weather conditions during the dry season and are most prevalent in the savannah areas along main highways and coastal plains, and the Mountain Pine Ridge and Caya Chiquebul Forest Reserve. [See Figure 3] Tsunami – A tsunami (pronounced “too-nah-mee”) is an ocean wave or series of waves caused by an abrupt disturbance of the ocean floor that displaces a large mass of water. The crests of these long-period waves can exceed heights of 25 meters upon reaching shallow waters. The characteristics of tsunamis (high velocity and small crests in deep waters) make their detection, monitoring, and warning difficult. Tsunamis can be caused by earthquakes, volcanic activity, or undersea landslides. Coastal flooding caused by tsunamis are similar to storm surges but can be much more severe and can extend further landward. Landslide -- The term includes landslides, rock falls, and mud or debris flows. The three major causes of landslides are: rainfall-induced, where soils are saturated by heavy rains and move down slope; earthquakes due to groundshaking effects; and mudflows associated with volcanic eruptions. Rainfall-induced landslides are the most common and often occur along road sections where the cut and fill slopes have not been adequately designed or stabilized. In most cases, landslides are a very localized hazard; however, a mudflow associated with a volcanic eruption can have a destructive impact over a large area. [See Figure 4] Earthquake – The sudden release of slowly accumulated energy along a fault in the earth’s crust causes earthquakes. They occur most commonly at the collision zone between tectonic plates. Earthquakes represent a particularly severe threat due to the irregular intervals between events, lack of adequate predictive models, and the hazards associated with these destructive events:

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Ground shaking is a direct hazard to any structure located near the earthquake’s center. The severity of an earthquake increases with the amount of energy released and decreases with the distance from its location. Structural failure can lead to extensive loss of life in densely populated areas; Vertical or horizontal fault movements along fractures in the earth’s crust; Landslides due to ground shaking in areas of steep topography and poor slope stability; Liquefaction is a phenomenon that amplifies ground shaking effects in areas of unconsolidated materials with high water tables. The soils lose their strength and act more like a viscous fluid when subjected to earthquake ground shaking. It is can be the most destructive hazard associated with earthquake activity. Subsidence and tsunamis are two other hazards that may be associated with earthquakes.

Volcanic Eruption – Volcanoes are openings in the earth’s crust through which molten rock and gasses escape to the surface. Volcanic hazards stem from two classes of eruptions: explosive eruptions which occur in the rapid dissolution and expansion of gas from the molten rock as it nears the earth’s surface; and effusive eruptions where material flow is the major hazard. Hazards associated with volcanic eruptions include lava flow, falling ash and projectiles, mudflows, and toxic gases. 10.2.3 Man-Induced Hazards Building or Industrial Fires are occurrences caused by combustion which manifests itself in light and heat. Chemical and Oil Spills are accidental releases occurring during the production, transportation or handling of hazardous chemical substances and petroleum products Health Epidemic is the breaking out suddenly and spreading rapidly in a particular area of a contagious disease. Civil Unrest involves turmoil among the citizens of a country in regard to public, economic, social or political conditions, which may suggest premonitions of revolt. Environmental Degradation is the destruction of ecosystems and habitats beyond their ability to regenerate. 10.3 Common Digital Data Base The generation of a Common Digital Database for use in Hazard Mapping and Vulnerability Assessment was undertaken by the Centre for GeoSpatial Studies, University of the West Indies (UWI). This exercise: (i)

Identified and evaluated the data required to support natural hazard and vulnerability assessment. This included data on:

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Physical features: coastline, contours, rivers, other water courses (dams/lakes/ponds/lagoons), rainfall, soils, geology; Anthropogenic features: roads, population centres, land use, critical facilities (hospitals, government buildings, schools, shelters, utilities including power generation plants, electrical distribution lines, water supply lines); and HMVA: hazard inventories, hazard susceptibility maps, vulnerability maps.

  (ii)

(iii) (iv) (v) (vi)

Collected data to support the development of a digital database for hazard mapping and vulnerability assessment and verified the quality and standardization of the digitization process; Designed a common digital database to support hazard and vulnerability assessment and develop database management plan; Designed a data automation/conversion strategy and convert and automate data; Developed digital elevation models that support hazard mapping and vulnerability assessment. This was done only for the San Pedro, Ambergris Caye pilot study area; Developed the capacity to create, use and maintain GIS database in support of hazard mapping and vulnerability assessment;

The consultancy also required the consultant team to compile the required data outlined above in a GIS format agreed to by CDERA in consultation with the respective national government. The requirements of the common digital database were: (i) (ii) (iii)

That it build upon GIS data currently available; Be compatible with and able to be easily integrated into the existing national GIS databases; Have the necessary accuracy to support hazard mapping and vulnerability assessment applications; and, be able to support HMVA evaluations across multiple sectors and localized mapping applications.

The CDD consultancy revealed that there are several base maps available which depicts physical and anthropogenic features, as well as natural hazards. This consultancy also indicated the absence of particular base maps required to inform hazard mapping and vulnerability assessment for the country. 10.4 Hazard Mapping Hazard assessments were undertaken by risk assessment experts who leveraged recent and ongoing hazard assessment studies in the region. Some of the sources of regional risk assessment data included:  

University of the West Indies, Seismic Research Unit, provided updated seismic hazard information; Hurricane hazard information developed under the USAID/OAS Coastal Infrastructure, Design, Construction and Maintenance Training Programme;

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CDERA flood hazard data provided under assistance from Japan; and, Coastal Resources Information System (CRIS) data, compiled for the regional climate change project (CPACC)

For reasons mentioned in 6.2 preceding, hazard mapping was undertaken for the pilot study area only, and not for the entire country. 10.5

Vulnerability Assessment For reasons mentioned in 6.2 preceding, vulnerability assessment of critical facilities was undertaken for the pilot study area only, and not nationwide. However, the Introduction to Hazard Mapping workshop identified and prioritized six (6) areas for which vulnerability assessment should be conducted. These were later amended to include Monkey River Town:       

Douglas Village, Orange Walk District – Flooding Monkey River – Soil Erosion Belize City, Belize District – Hurricane Medical Facilities and Infrastructure San Pedro, Ambergris Caye – Storm Surge and Hurricane Placencia Village, Stann Creek District – Storm Surge and Hurricane Belize River Valley, Belize District – Flooding in Small Communities San Ignacio, Cayo District – Flooding from dams

11.0

LEGISLATIVE AND INSTITUTIONAL CAPABILITY ASSESSMENT

11.1

Introduction The objectives of the institutional and legislative capability assessment were firstly, to evaluate the past performances, and present and future abilities of agencies to carry out the stated objectives of their policies, plans or programmes as they relate to hazard mitigation. Secondly, to consider the ability of the GOB to effectively coordinate implementation activities in a coordinated fashion between the many ministries, departments, units and authorities that have a role to play in natural hazard risk reduction, and finally, to analyze the capability of the GOB to work in a sustained collaborative effort with key stakeholders in the private and non-profit sectors. The legislative review and institutional capability assessment consultancy included the following tasks:   

a review or existing laws, regulations and subsidiary legislation that govern, either directly or indirectly, hazard mitigation activities; semi-structured interviews and questionnaires with agency personnel and key stakeholders were used to evaluate institutional capabilities to implement a natural hazards risk reduction programme; and, the preparation of final report on the capability assessment.

The report was provided to the members of the PDC prior to a one-day workshop where the findings of the capability assessment were presented and discussed through working group and plenary sessions. The Capability Assessment Workshop, held on November 21, 2005 permitted the

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PDC to reach a consensus on the challenges facing the national government in implementing hazard risk reduction activities. This was later supplemented by research and data analysis conducted by the CPC to address data gap deficiencies and omissions. This section highlights the major findings of this process. 11.2

Policies, Strategies and Plans

11.2.1 General The policies from which programmes and projects of any government are formulated are initially contained within the political party manifesto utilized in the campaign leading to general elections. It is the platform upon which a political party is elected to govern. The PUP Manifesto ‘Protect, Preserve and Prosper’ does not make direct mention of any hazard mitigation. However, it does articulate on several key areas which contribute to hazard mitigation. These include statements on enforcing building codes and developing and implementing policies and laws that protect the environment against deforestation, soil erosion and coastline erosion, the latter featuring prominently in the National Hazard Mitigation Policy adopted by the GOB in November 2004. This policy represents GOB overarching position on hazard mitigation, and from which the HMP should be shaped. 11.2.2 Belize National Hazard Mitigation Policy The Belize National Hazard Mitigation Policy states as its vision “A society safer from natural and technological hazards supported by integrated, social, economic and natural resource development.” There were five (5) guiding principles which influenced the policy. These are: (i)

(ii)

(iii)

(iv) (v)

The value of vulnerability assessment and reduction, which is based on the need to invest in preventative mechanisms that would reduce damages and lessen the need to divert scarce resources from other productive uses following disaster events. The importance of an integrated approach to hazard risk management and development planning, which reduces policy conflicts and becomes critical to sustainable development, especially when resources are limited. The requirement for community mobilization and public education which is one of the cornerstones of hazard mitigation, as the efficacy of any initiative towards hazard risk reduction is only as effective as the degree of community support. The need for protection of the environment as this is a pre-requisite to economic and social development and is one of the three prongs of sustainable development. The need for good governance which involves responsibility, transparency and accountability and stakeholders participation in decision making

It articulates two main goals with specific objectives and justification. They are as follows:

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Goal #1: To enhance sustainable social and economic development, and environmental management through the integration of hazard risk reduction into national development processes Objective #1: To maintain natural resources at viable production levels where they will continue to yield useful benefits to resource users; Justification: There is a direct relationship between the quality, distribution and abundance of natural resources and the potential benefits accruing to human populations. Thus, managing these resources in a responsible way should impact the quality of life of people concerned in a positive way that should include decreased exposure to technological and/or natural hazards. Objective #2: To recover and sustain the ecological integrity of degraded terrestrial areas and aquatic ecosystems. Justification: The economic benefits derived from biological systems in Belize is significant, a number of these systems such as the pine forest, and coral reefs are degraded and threatened by unsustainable anthropocentric impacts. It is important that these systems be rehabilitated and resuscitated such that they can continue to yield meaningful benefits that would improve the circumstances of the citizenry, especially the poor and dispossessed whom are more susceptible to natural and technological hazards. Objective #3: To ensure that the primary resources of the nation are fairly and effectively distributed to afford the citizenry an improved and acceptable quality of life. Justification: There is a direct linkage between poverty and the access of people to natural resources such as land. The poor and dispossessed are more susceptible to natural and technological hazards. Any action or activity that would rectify this situation such as the redistribution of land, would in effect contribute to mitigating technological and natural hazards. Objective #4: To pursue national development from a planned perspective. Justification: Development from a planned perspective has been proven to be effective, especially for Lesser Developed Countries (LDC’s) and ‘Developing Economies’. The increase in poverty in Belize, and the susceptibility of the poor and dispossessed to natural and technological hazards makes planned development an imperative for the nation. Objective #5: To discourage the practice of ‘squatting’ or informal settlement on public lands. Justification: The informal settlement of people on public land ‘squatting’ is a major problem in Belize. This is in relation to the heightened exposure of human populations to natural hazards such as floods and hurricanes, as well as in relation to settlement in areas that would impact the quality and productivity of natural systems such as milpa farming or shifting cultivation on steep hill slopes which results in soil loss that impacts the fertility of the immediate area as well as downstream impacts on the reef and other sensitive ecologies - ‘squatting’ in low-lying mangrove

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swamps is a major problem in Belize City, especially for the poor in the periphery of Belize City. As well, milpa farming on steep hill slopes is a major problem in the Cayo and Toledo Districts, which is occurring with increasing regularity in Forest Reserves. Objective #6: To promote agricultural and forest practices that are sustainable and consistent with the landform and soil characteristic of the particular area. Justification: Agriculture is a major contributor to the Belizean economy. The rural poor realize many of the benefits from this sector. However, much of the agriculture practices in Belize are not sustainable as they occur on soils that are marginal and unsuitable, as well as in ecologically sensitive area such as steep hill slopes. A comprehensive “Agriculture Suitability Survey” has been completed by King et al, of the British Overseas Development Administration (ODA) in the mid-1990’s. Several recommendations were made in this study that would prove useful in promoting sustainable agriculture and forest practices. Objective #7: To improve and expand the volume of information available to the public with regard to the proper handling, disposal and management of hazardous materials. Justification: The improper handling of waste and hazardous material goes largely undocumented in Belize even though it is recognized as potentially a significant problem. The value of information in motivating people to do the right thing cannot be overstated. Objective #8: To improve the national capacity to manage waste. Justification: The proper disposal and treatment of waste is an enduring challenge for Belize City and a number of other urban centres in the country. The impacts of exposure to hazardous chemicals and the potential for the outbreak of diseases from the ‘garbage disposal sites’ as well as the less visible ecological impacts and aesthetic impacts on the growing tourism industry makes this an issue that needs to be addressed with some urgency. Goal #2: To build the capacity of national institutions to more effectively implement programmes and projects to reduce vulnerability of the nation and people to natural and technological hazards. Objective #1: To decrease the susceptibility of all sectors and particularly the Agriculture, Tourism, Fisheries, Forestry and Housing Sectors to severe weather events. Justification: Agriculture, Tourism, Fisheries and Forestry are important pillars of the Belizean economy; these sectors have been impacted over the past five (5) years by four (4) major hurricanes. It is important that efforts are geared towards mitigating losses to these sectors given their importance in the generation of revenue. Mitigating actions would also improve the quality of life of Belizeans, including the poor who are most greatly affected by natural and technological hazards that would impact these sectors.

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Objective # 2: To raise national consciousness about geohazards and the threat they pose to people and/or their property. Justification: Geohazards are any geological or hydrological processes that either occurs rapidly, as with earthquakes, landslides and sink hole collapses or slowly as is evident with siltation, subsidence, expansive soils, salt intrusion, and reduction in biodiversity. There is a need to strengthen the capacities of public sector institutions to identify these hazards and well as to sensitize the public about them. Objective #3: To lend greater financial support to public sector institutions with a role in natural resource management and hazard risk reduction. Justification: Public institutions are the ‘development arms’ of the GOB. Decreased budgetary allocations to a number of these institutions in both per capita and absolute terms have compromised the effectiveness of these institutions. Efforts should be made towards reorganizing these institutions that would allow them to become more effective and efficient in the collection of revenues and the deployment of human and financial resources. Objective #4: To develop the appropriate legislative and regulatory framework for enforcement in support of hazard risk reduction. Justification: There are gaps and weaknesses in the laws of various public sector agencies with a role in hazard risk reduction. In instances where adequate legislative provisions are made there is the need to develop the institutional ‘will’ and resource capacity to redress these problems. Objective #5: To improve the information available to public sector agencies with a role in hazard risk management. Justification: The information available to public sector agencies with a potential role in hazard risk reduction is lacking. There is a need to empower these agencies with the capacity to address this aspect of their mandate Objective #6: To strengthen and enhance the capacity of NGOs, private sector and other Stakeholders with a role in hazard risk reduction. Justification: The national response to hazard risk mitigation needs to be based on a partnership between the GOB and NGOs, CBOs, the private sector and other stakeholders in the development process. There is a need to strengthen the capacities of these institutions to meet the challenge in this regard. Objective #7: To focus the attention of communities on their vulnerabilities to natural and technological hazards with a view of enhancing their participation in decision-making processes related to hazard risk reduction.

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Justification: The decentralization thrust of the GOB over the last few years has included the empowerment of Local or Municipal Governments such as Town Boards and Village Councils to assume a greater role in the decisions affecting the lives of the citizenry. As a corollary to this the general citizenry must be meaningfully engaged in the governance process to the extent that discussions and decision-making with regard to hazard mitigation is made a routine part of the process. Objective #8: To improve coordination among Public Sector agencies with a role in hazard risk management. Justification: The pursuit of development from a coordinated and holistic standpoint is a fairly novel concept in the Public Sector. As a consequence, there is a need to sensitize these agencies to their potential role in hazard risk mitigation, as well as to improve coordination among these agencies. Objective #9: To raise national consciousness with regard to the connectivity between global warming and the frequency and intensity of severe weather events. Justification: Global warming is a phenomena driving and exacerbating severe weather events that are significant natural hazard in Belize. In an effort to mobilize the general citizenry in regard to hazard risk reduction, there is a need to empower public sector institutions with a role to play in this regard as well as to generally sensitize the public.  Noteworthy, is that the policy does not address the use of fiscal or economic tools to address hazard mitigation. Its focus is on institutional strengthening and sustainable development. In addition, while it incorporates both types of hazards, natural and man induced, it is skewed toward mitigation measures involving natural resource and environmental management in the case of the former, and hazardous materials and solid waste management in the case of the latter. 11.2.3 Other Policies, Strategies and Plans There are a myriad of other policies, strategies and plans adopted and being implemented, or being formulated, either with or without conscious reference to the concept of hazard mitigation, and in furtherance of hazard mitigation principles and the goals and objectives articulated in the National Hazard Mitigation Policy, albeit uncoordinated, which have implications to addressing hazard risk reduction activities in Belize, and which invariably contributes to it. These are as follows. (1)

Belize Biodiversity Strategy and Action Plan: This strategy and action plan sought to address the threats to habitats and species. It recommends the establishment of a National Biodiversity Office as the overall coordinating body for biodiversity conservation in Belize; the formal adoption of the Protected Areas System Plan; the removal of legislative overlaps as a pre-requisite to effective coordination among agencies; the formulation of legislation specific to biodiversity; the development of enforcement mechanisms; the development of a management framework for marine

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protected areas; major education and public awareness campaigns; substantive investments in human and institutional capacity; and legislation to ensure compliance with Belize’s commitments under the UNCBD and other international agreements relevant to biodiversity. This strategy and action plan was never adopted. (2)

National Poverty Elimination Strategy and Action Plan (1998-2003): This strategy and action plan was produced to elaborate on GOB commitment to poverty reduction. It concentrates on supporting economic growth/income generation and sustainable livelihoods; promoting human capital through education and training; strengthening health service and health care delivery; addressing housing shelter and human settlement planning; catering for social vulnerability and safety nets; and ensuring protection and conservation of the environment. This strategy and action plan was adopted and is now being revised.

(3)

Medium Term Economic Strategy (2003-2005): This strategy is the center piece of GOB plan of action for economic development and speaks to disaster management. It notes that its aim is to strengthen Belize’s foreign reserves and consolidate its fiscal accounts; introduce new domestic monetary instruments; achieve sustained and balance growth of 5-6% per annum and place attention on strengthening capacity and performance in land use planning, environmental management and environmental protection, as these are cross cutting issues important to poverty reduction; health sector development; tourism-particularly eco-tourism and community based tourism; industrial and agricultural development and disaster mitigation and management. While the strategy is termed economic, it encompasses social, environmental and physical development issues. This strategy was adopted and is in operation.

(4)

Cayes Development Policy: This is an initiative of Coastal Zone Management Authority and Institute (CZMAI). Its basic objective is ensuring the sustainable use and long term protection of the natural resources of the coastal zone through motivating and encouraging both local and foreign investment in coastal resources; promoting development without compromising national identity and time honoured rights; balancing development with sound conservation management; strengthening and supporting GOB procedures for reviewing development proposals, and the resources available to carry out these procedures; and ensuring that the existing and customary users and occupants of the cayes have a right to security of their interests. This policy was never officially adopted.

(5)

National Food and Agricultural Policy (2002-2020): This policy defines the vision of the Agriculture, Fisheries and Cooperative Sectors as ‘A Fully Transformed and Modern Sector that is Fully Competitive, Diversified and Sustainable.’ It states that the policies of the Ministry of Agriculture, Fisheries and

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Cooperatives are to be guided by the major challenges and constraints facing the sector, that is: labour productivity, inadequate/inappropriate credit, opportunity for improving food security, inadequate infrastructure, maintaining plant/animal health status, increase agroprocessing and linkage to the tourist industry and greater diversity. It further states that its cross cutting policies are to focus on research and development, human resource development, agro-processing, sustainable resource management, watershed management and rural development. This policy was adopted and is in operation. (6)

National Climate Change Adaptation Policy: This is an initiative of the National Meteorological Service (NMS). It encourages all agencies in Belize to explore and access the opportunities being developed by the climate change negotiation process such as capacity building, new sources of funding, and technology transfer. It also requires all relevant government agencies to prepare adaptation policy options for their sectors. This policy was never adopted.

(7)

National Aquaculture Policy and Plan This was initiative of the Fisheries Department in collaboration with CZMAI and focuses on an industry located along the coast. Several policy objectives are articulated including improving food security and alleviating poverty; optimizing social and economic benefits to the wider community and country; the use of land and water that is suitable for shrimp farming and other aspects of aquaculture while at the same time conserving sensitive aquatic habitats and important ecosystem functions and improving environmental sustainability. This policy and plan has not been officially adopted.

(8)

Forest Department Strategic Plan The overall goal of this plan is “to have in place a regulated, efficiently facilitated, integrated and sustainable management program for the forest resources in such a manner that these resources are recognized for their ecological functions as well as their contributions to the local and national economy.”5This plan was adopted and is in operation.

(9)

Belize National Environmental Policy 2006 This policy was recently formulated. It provides an environmental vision for the people of Belize which is grounded in the need for collective responsibility in protecting and conserving the environment, being cognizant that the sustainable use of the environment is the only way to secure its availability to future generations and that the prudent use and proper management of the environment shall constitute an integral part of the development process. It states as its overarching policy “Environmental Management-Protection,

5

MNRE : Forest Department Strategic Plan 2005-2010 at viii

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Conservation, Stewardship of Patrimony and the Sustainable Use of the Natural and Built Environment of Belize.” (10)

PACT Strategic Plan This strategy positions the Protected Aeas Management Trust (PACT) to be an enabling agent to direct resources toward sustainability in specific areas namely, education and awareness; collaboration and coordination amongst stakeholders; capacity building; and research and information sharing. This plan was adopted and is in operation.

(11)

National Housing Policy This policy was drafted to guide the Ministry of Housing in carrying out its housing and urban development function. It recommends institutional changes as well as the need to incorporate disaster mitigation and human settlement principles in the design and implementation of housing policies and programmes. It also calls for the Shelter and Housing Committee to be more proactive in disaster mitigation and to expand its ambit from solely shelter and material supply and demand analysis to include an assessment of the vulnerability of the housing sector to disasters and their ability to recover. This policy was never adopted.

(12)

Dredging Policy This policy proposes the regularization of the dredging application process, which was been done in and adhoc manner and on a case by case basis, to mitigate its impact on the marine environment. It sets certain criteria to be complied with, including input from local organizations and the requirement of a performance bond to be posted for large scale dredging projects. This policy was never adopted

There are also other sectors for which no policies exist, but which can contribute significantly to HRR. These are first and foremost, a National Land Use Policy, secondly, a National Sustainable Development Policy, thirdly, A National Human Settlement Policy and lastly, a National Transportation Policy. 11.3

Legislation and Institutions

11.3.1 General There are many legislative provisions which can be utilized for addressing hazard mitigation. These have emerged for varied reasons, but largely in response to the problems posed as a result of the negative impact of industrial and agricultural activities and urbanization on the health of human beings and the exploitation, regeneration and protection of the forest. Thus the emergence of legislation addressing housing, public health, land use planning, forestry, wildlife and later environmental protection concerns were incremental, and were enacted over a period commencing in the 1900’s, and prior to any major hazard mitigation concerns. Only the enactment of the

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Disaster Preparedness and Response Act and the Belize Building Act can be said to be direct consequence of hazard mitigation concerns. As well, because much legislation was enacted prior to independence, they were often a reflection of the importance of some concern or colonial policy emanating from the United Kingdom. Notwithstanding, they exist, though utilized sparingly, and can be more effectively applied in meeting the goals and objectives of the National Hazard Mitigation Policy. This is because meeting the goals and objectives of the policy is intrinsically connected to the utilization and development of land by human beings. That is, the extent to which biological diversity is conserved, green house gasses stabilized, natural resources managed and land degradation prevented, are all dependent on anthropogenic activities. Thus any legislation which regulates how humans use land and how the environment is managed has consequences for realizing the goals and objectives of the policy. However, reliance cannot only be on legislation that regulates land use and from which conservation and environmental protection can be achieved. In certain respects, it must be supplemented by special regimes which are designed to protect or preserve trees and habitats and regulate the disposal of hazardous waste and substances. The following represents a listing of such legislation ad institutions. However while the focus will be on the primary legislation and administering institution for disaster management, the importance of the others to hazard mitigation and realizing the goals and objectives of the Belize National Hazard Mitigation Policy cannot be overlooked, particularly as the primary legislation is skewed towards preparedness and response. 11.3.2 Institutions with Legislative Mandate Primary Legislation Disaster Preparedness and Response Act The Disaster Preparedness and Response Act6 provides a coordinating framework for disaster management. It establishes the National Emergency Management Organization (NEMO), a department, the post of the National Emergency Coordinator (NEC) to direct it and a National Advisory Committee to be chaired by the Prime Minister, and which is comprised of representation of a cross section of mostly public sector ministries and departments. However, it does not include representation from the public service ministry, which can have implications to planning for human resource needs in disaster management. The NEC, not NEMO, has responsibilities for establishing committees and subcommittees, and for preparing a general and an annual report. The latter should present activities during that year, a requirement of which is to include a Disaster Preparedness and Response Policy Review related to the mitigation of, preparedness for, response and recovery from emergencies and disasters, and the former, a National Disaster Preparedness Response Plan, comprising the statement of the contingency arrangements under the coordination of the National Coordinator for responding to the threat or event and aftermath of a disaster in Belize, whether or not the threat or the disaster is such as to 6

Chapter 145 of the Laws of Belize RE 2000

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prompt the declaration of a disaster emergency. Both reports are to be submitted to the Prime Minister, and the NEC is to consult with the advisory committee, not the Minister, in the preparation of the plan. Noteworthy, is that there is no requirement to formulate the policy to be reviewed, and the NEC is responsible to both the Minister responsible for NEMO in certain aspects, and the Prime Minister as Chairman of the National Advisory Committee on others, which can be conflicting. Notwithstanding, a key strength of the Act is that it assigns responsibility to NEC, not NEMO, to review and appraise all other programmes and activities of GOB which have impact on the mitigation of, preparedness for, response and recovery from emergencies and disasters and to make recommendations to the Minister on the likely activities and programmes on disaster preparedness; to develop and recommend to the minister national policies to foster and promote disaster and emergency management; in collaboration with government or other agencies, gather information on the quality of the environment and engage in studies, research and investigation on the quality of the environment and document changes as they relate to the likelihood of disasters; prepare and review disaster risk assessment maps; to conduct public awareness and education programmes on disaster management; to liaise with national, regional and international organizations with a view to information exchange and harmonization of disaster and emergency policies and provide advice on draft regulations under any act relating to disaster management, all specifically including mitigation. While the act provides for the roles, responsibilities, procedures and functioning of various public and private sector individuals, organizations and bodies as it relates to the mitigation of, preparedness for, response to and recovery from emergencies and disasters in Belize, these are mostly applicable in the event of a threat or during a disaster or emergency. Permanent Secretaries and Heads of Departments have a statutory duty to ensure at all times there is a designated public officer within their ministry or department, and is further charged to provide information on an annual basis to the NEC. An interesting feature of the Act is that it provides for NEC to prepare, and the Prime Minister to approve, Special Area Precautionary Plans (SAPP), for the purposes of mitigation of, preparedness for, response to and recovery from disasters, by delimiting such areas. These plans may include strategies, policies and standards for the development and maintenance of structures in existing and proposed specially vulnerable areas; standards for Environmental Impact Assessment (EIA) for contemplated development and provisions designating specially vulnerable areas prohibiting navigation and the removal of vegetation and materials. It specifically states that a SAPP does not authorize development whereby permission is required under the Housing and Town Planning Legislation. Thus, only in the absence of a planning scheme, will the SAPP apply. It must be mentioned that the entire Belize was declared for the purpose of preparing a planning scheme in 1990. In addition, the law does not provide for the details of the SAPP, or how it will be enforced. Other weaknesses of the Act, is that while there is an expressed provision for disaster mitigation, it is narrowly construed, not elaborated upon, and confined to the disaster or emergency cycle. There are also conflicts and duplication with other legislation and institutions, lack of support of specialized technical and scientific expertise; no requirement to consult with agencies responsible for land use planning and coastal zone management; no legal requirement for the National Disaster

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Preparedness Response Plan to include procedures related to the private or business sector, no statutory obligation for the private sector to designate an officer to liaise with the NEC or to provide it with information. The responsibilities of the NEC are broad, demanding, highly technical and complex. While NEMO has fourteen staff members, none have specialized training in hazard mitigation. Notwithstanding, both the NEC and the Training Officer, and the nine district coordinators have some training in disaster or hazard mitigation, but narrowly confined to preparation and response. The other members of staff are administrative. In addition, the annual budgetary allocation for NEMO is $631958.007 of which $494820.00 or 78% is for personal emoluments. This leaves $137138.00 or 12% for operational expenses (fuel, etc.) and programme development and implementation. This is of concern, considering the responsibilities of NEC, both legislatively and traditionally, and was addressed in a report by Dr. Barbara Carby, entitled Sustainability of the NEMO Mechanism.8 There are also twelve (12) operational committees which provide support to NEC. A brief description of their Terms of Reference follows. (1)

Education, Information, Communication and Warning Committee         

(2)

To use all available media to educate the Public about hazards affecting Belize and means of protecting life and property. To inform the public about plans in place to mitigate the impact of hazards and prevent disasters. To disseminate accurate and updated information on threats to the public in an efficient manner. To assist the members of the Operational Committees with their communication needs for the proper execution of their functions. To establish internal and external Telecommunication Networks with Emergency Management Agencies. To ensure that the Emergency Warning System is operational and effective. To obtain and collate information about all disasters, whether actual or imminent, to ensure that such information is passed to the Chairperson of NEMO. To disseminate all decisions of NEMO to the Public. To organise, staff and manage Committee EOC.

Medical Care and Public Health Committee  

Ensure that an adequate supply of emergency medical supplies is available To have in place a plan for the effective distribution of medical supplies wherever needed.

7

2006-2007 Estimate of Revenue and Expenditure This report assessed the human and other resource requirements of NEMO to execute its legislative mandate and recommended changes where deficiencies were identified, particularly in the areas of capacity building, institutional strengthening and financial management.

8

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To make provision for the establishment of field hospital units at designated areas if required. To monitor post-disaster public and environmental health conditions and maintain public health standards including within shelters. To identify an effective method for dispatching medical teams to accident or disaster sites. To develop guidelines for the identification and disposal of the dead. To develop a program for prevention and management of epidemics. To develop plans for management of mass casualty situations and stress management in disasters. To organise, staff and manage Committee EOC.

Housing and Shelter Committee         

(4)

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To ensure that adequate building supplies are available for recovery phase. To ensure review and update of building codes and standards for housing through liaison with Mitigation and Environment Committee. To devise a plan for identifying buildings for shelters. To maintain an updated list of emergency shelters and shelter managers. To ensure that shelters are inspected and marked annually or as necessary. To ensure that in an emergency, shelters are opened, staffed and equipped. To liaise with management of schools and teachers on use of schools in an emergency. To ensure that public buildings are properly secured. To organise, staff and manage Committee EOC.

Search and Rescue and Evacuation Committee      

To devise contingency plans for Search, Rescue and Evacuation. To identify priorities and resources necessary for Search and Rescue and Evacuation. To advise NEMO on specialised equipment necessary for Search and Rescue Operations. To collect and collate all reports of missing persons and organise search and rescue operations as necessary. To organise specialised training in various types of search and rescue techniques in conjunction with NEMO Secretariat. To organise, staff and manage NSARE Committee EOC.

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Restoration of Utilities and Access Committee       

(6)

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To design a plan of action, which shall allow each utility to respond to the water, telecommunication and power needs as indicated by emergency conditions. To ensure that these utilities are restored within the shortest possible time after a disaster. To ensure that all Utility Companies have in place contingency plans and adequate critical spares for maintaining and restoring utilities. To develop and maintain a national Utilities Restoration Plan. To develop a plan for restoration of access after disasters including priorities. To identify areas for storage or disposal of debris. To organise, staff and manage Committee EOC.

Relief and Supplies Management Committee               

To devise an emergency plan for the efficient and timely distribution of relief supplies to disaster affected areas. To ensure that an adequate supply of food is stored in a safe place for immediate post-disaster use. To prepare a list of basic food and materials for immediate order from abroad if the need should arise. To be responsible for the receipt and storage of relief supplies entering the country by land, air or sea (Except Red Cross supplies). To put in place procedures for tracking and accounting for all relief supplies received during a disaster. To carry out needs and psychosocial assessments of victims. To coordinate support for physical and psychological needs of victims. To develop plans for care of special populations. To oversee, in liaison with District Emergency Committees, registration of special populations. To ensure supplies available for care of affected population both in and out of shelters. To ensure feeding of shelter populations. To coordinate psychological counseling and support of affected and displaced persons. To ensure needs of affected children are addressed. To liaise with Education, Information, Communications and Warning Committee on warnings for special populations such as those with impaired hearing and vision, aged and physically challenged. To organize, staff and manage Committee EOC.

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Damage and Assessment and Needs Analysis Committee       

(8)

To develop and maintain plans for post-disaster damage assessment. To develop and maintain data bases necessary for support of post-disaster damage assessment and recovery planning. To coordinate the resources needed to rapidly assess the damage caused by a disaster. To prepare an initial assessment of the damage within eight hours of a disaster, and a second report twenty-four to thirty-six hours later. To assess damages in all sectors in order to enable the NEMO to make short, medium and long term requests for assistance from local and foreign sources and to direct recovery planning. To spearhead efforts lading to eventual establishment of a national inventory of assets. To organise, staff and manage Committee EOC.

Foreign Assistance Committee       

(9)

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To update all Foreign Missions, International Organisations and Belizean missions on any disaster that may require external assistance. To make short, medium and long term requests for assistance from foreign governments, agencies and organizations. To answer queries from abroad on the whereabouts of Belizean relatives and foreigners. To assist NEOC Director with coordination of foreign personnel and donor agency personnel in Belize. To provide liaison for trans-border incidents. To coordinate translation and interpretation services for NEOC. To organise, staff and manage Committee EOC.

Transport Committee        

To develop a plan to meet transportation needs for the various committees of NEMO to assist them in the execution of their duties. To develop a plan for transportation of material and supplies required for disaster management. To develop a plan for ensuring equipment for post impact use. To ensure that fuel supplies are available for preparedness and response operations. To maintain updated inventory of Government drivers and vehicles, equipment and operators and their status. To ensure that operational plans and procedures are revised as necessary. To ensure that Memoranda of Understanding for access to private resources are in place and valid. To organise, staff and manage Committee EOC.

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Mitigation and Environment Committee         

(11)

To ensure mitigation measures are incorporated into national development planning as well as post-disaster planning and recovery. To develop strategies for protecting the environment before during and after disasters. To make recommendations for the rehabilitation of the ecosystems and habitats to their original states or as near as possible. To assess and evaluate the impact of all disasters on the environment. To monitor response and recovery operations and ensure they are environmentally friendly. To develop and maintain an Environmental Protection Plan for Belize. To organise, staff and manage Committee EOC. To advise emergency response personnel on environmental protection methods during hazardous materials incidents. To develop guidelines for construction of disposal sites for contaminated material.

Human Resource Management Committee        

(12)

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To ensure that all Hurricane Shelters are adequately staffed by public officers, teachers, BDF wardens, Red Cross and medical personnel and Local Quick Response teams. To manage the deployment of public officers to shelters and affected areas and organise for their welfare. To maintain an updated list of shelter wardens for deployment to emergency shelters. To ensure that the NEOC has support staff on rotation, for the entire response period. To maintain a skills data bank of public officers. To ensure ongoing training of public officers in all aspects of Emergency Management in collaboration with NEMO Secretariat. To organise psychological counselling and support for emergency workers. To organise for welfare of NEOC staff during operations.

Recovery Committee   

To develop and maintain the National Recovery Plan. To ensure mitigation and prevention are integrated into recovery planning. To manage and direct recovery operations following a disaster.

These committees are comprised of members of mostly the public service and selected NGO’s. However, while they represent a vast pool of knowledge, expertise and technical experience, in

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many cases, the same member or agency sits on several committees. To exacerbate the situation, the members have responsibilities and duties within their respective ministries, and that of their committee may not necessarily be a priority, particularly, if no disaster is eminent. In fact, their job descriptions rarely include their responsibilities on these committees, and this is often times seen as additional responsibility, This is evidenced by the fact that only about 25% of the committees meet outside the hurricane season, and only a similar percentage prepare annual budgets for inclusion in their ministry’s submission to the Ministry of Finance to be included in the national budget.9 Notwithstanding, these committees have broad and diverse functions, most requiring the preparation of plans and all having some HRR component, and where not explicit, can be expanded upon to more forcefully address hazard mitigation. This is particular to the Mitigation and Environment and Housing and Shelter Committees, the latter confined to shelter, instead of being broad to include statistics of the housing stock to inform disaster vulnerability, and the former focused on environmental recovery, instead of being broad to include preventative measures, namely, land use planning and development control review to reduce disaster vulnerability. However, this requires capacity and capability building. The NEC is also supported by six (6) district and three (3) special emergency committees at the regional and local levels. Noteworthy, is that village councils have responsibility for local response, and NEMO has embarked on a programme of development of Village Emergency Committees and plans. Secondary Legislation: (1)

Constitution of Belize:

The Constitution of Belize10 is the supreme law of the land and enshrined in it, is the requirement of policies of the state to ‘…protect the environment’. This is a commitment which should clearly underpin all policies and subsequent legislation. This is a key element of the National Hazard Mitigation Policy. The constitution also provides for the allocation of portfolios to ministers of government by virtue of S 41. That which have relevance to this consultancy is the assignment of responsibility for National Emergency Management Organization, which according to the gazette notice, is to a Minister, and not to the Prime Minister. While the Constitution states that no person shall be required to perform forced labour, it excludes any labour required during any period of public emergency or in the event of an accident or natural calamity that threatens the life and well being of a community, providing that the requirement is justified in the circumstances of any situation. The Constitution also provides for the Governor General to declare a state of emergency in the event of natural and man induced hazards which are likely to endanger the public safety or to deprive the community of supplies or services essential to life.

9

Per conversation with the NEC Chapter 5 of the Laws of Belize RE 2000

10

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Housing and Town Planning Act11

(2)

Planning legislation plays a central role in addressing hazard mitigation, because of its enormous importance in relation to locational issues (where development is sited), as well as determining how much of a particular activity (resorts, housing, shrimp farms etc.) is allowed and the intensity of such development. It is an anticipatory system of control and much wider than simply hazard mitigation, in that in organizing physical development, it balances economic, social, political and environmental factors in making decisions about the use of land. The preparation, implementation and enforcement of land use plans is possibly the single most effective tool to sustain the health of ecosystems, to maintain soil productivity and to influence climate change. The Housing and Town Planning Act (HTPA) is the primary land use planning legislation in Belize to regulate the use and development of land, according to the meaning of development ascribed in the act, notwithstanding its provisions for addressing housing. It applies to all land in Belize and provides for the appointment of a Central Housing and Planning Authority (CHPA) for its administration with powers to prepare and enforce planning schemes. The Housing and Planning Department (HPD) is the executing arm of the act. However, the dual function of housing and planning proved detrimental to the development of planning, as housing was a tangible product that gained political benefits and planning did not. Today, the department has neither the technical capability nor the capacity to perform its legislative mandate. Antoniou and King 1990 acknowledge however, that while described as anachronistic and flawed by deficiencies, these do not render it completely unworkable. In fact, they were of the view that the fundamental problem was resource allocation and technical expertise. Added to this is centralization and sectoral approach to decision making, and the non-prioritization of planning. Notwithstanding, there are key legislative deficiencies which have been identified, the two main ones being: (1)

In plan preparation and adoption, the CHPA has a power and not a duty to prepare and adopt planning schemes. Thus, invoking that power is discretionary.

(2)

The narrow meaning of development which “in relation to any land includes any building includes any building or re-building operations and any use of the land or any buildings thereon for a purpose which is different from the purpose for which the land or building was last being used”. Development activities are wider in scope.

In preparing a planning scheme, specific matters must be dealt with including:  

11

The zoning of land in town and country areas for reserving such land for specific purposes, including agriculture, forestry, industry, commerce, housing, recreation which overlaps with the Forest Act; Providing for the preservation and protection of forests, woods, trees, shrubs, plants and flowers;

Chapter 182 of the Laws of Belize RE 2000

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The prohibition, regulation and control of the deposit or disposal of waste material and refuse which overlaps with the Environmental Protection Act; and, The layout , density, spacing, grouping of housing areas and siting of community facilities.

Planning schemes have been prepared and adopted for Dangriga and Corozal Towns, and resolutions have been passed by the CHPA to prepare schemes for Ambergris Caye, Belize City and Belize as a country. While these have not been adopted, once a resolution is passed to prepare a scheme, the CHPA is empowered to approve with or without conditions applications to develop land or refuse such applications. However, this only applies if an application is submitted. It is also empowered to serve prohibition notices against unauthorized development. In addition, the provisions of the HTPA to prepare and enforce planning schemes were conferred upon the Reconstruction and Development Corporation by virtue of the Reconstruction and Development Corporation Act to prepare and enforce a planning scheme for Belmopan. The planning act also empowers the CHPA to require ruinous and dilapidated buildings to be taken down secured or repaired, to acquire, reconstruct and manage slum clearance areas, improve unhealthy areas and repair or demolish unsanitary buildings. (3)

Land Utilization Act

The Land Utilization Act (LUAct)12 provides for the establishment of a Land Utilization Authority (LUA), of which NEMO is currently represented, and is been administered through the Lands and Surveys Department (LSD), Physical Planning Section (PPS). Part II provides for the subdivision of all land in Belize and for alienation purposes, and Part III for Land Utilization. Matters dealt with for the subdivision of land are the location, dimensions, boundaries of land and location of drains, rivers, streams, monuments or ruins in relation to the land and applies to both urban and rural land. While the LUA has been vigilant in its administration, the act itself provides no criteria or factors to weigh or consider whether approval should or should not be issued and the conditions which should apply if it should. Neither is there any policy direction from the MNREI, and approval of provisional and final approval for subdivision are at the sole discretion of the Minister. This has allowed the act to be criticized as lacking transparency and accountability in decision making. Furthermore, there is no process for the aggrieved person to appeal and while it provides for consultation with local authorities, the process remains centralized. S 19 (1) of the act empowers the minister to make regulations for a variety of matters including:    12

The demarcation of areas for water catchment and watersheds and the prohibition of clearing of vegetation in those areas which overlaps with the Water Industries Act; The demarcation of special development areas (SDA) and the stipulation of the type of development to be permitted in these areas which overlaps with the HTPA; The clearing of forests and the felling of trees which overlaps with the Forestry Act.

Chapter 188 of the Laws of Belize RE 2000

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A number of SDA’s have been prepared by the PPS of the LSD and have been declared. They are as follows:          

Monkey River (SI 152 of 1991) to facilitate the economic generation of the area through the mix of locally controlled tourism and agriculture; Burrel/Boom/Hattieville/Ladyville (SI 164 of 1991) to cater for the growth options of the Belize City environs; Manatee (SI 162 of 1991) to address the conflicts between agricultural uses and tourism/conservation uses; Corozal District East (SI 163 of 1991) to identify land suitable for agricultural expansion with coastal tourism; Cayo District West (SI 90 of 1992) to reconcile the differences between urban expansion, agriculture, tourism and environmental protection; Manatee West (SI 142 of 1992) to open up land with agricultural potential while endeavouring to maintain the forest reserve; Mango Creek (SI 4 of 1994) to address the conflicts of tourism development pressure, to identify suitable land for village expansion, to maximize agricultural potential, to protect the environment and to promote the Mango/Big Creek as an economic growth point; Belize District Northeast (SI 1 of 1994) to revitalize the economy of the area through agricultural expansion, tourism and local commercial initiatives; Orange Walk District East (SI 2 of 1994) to rationalize competing agricultural and forestry uses to cater for urban expansion around Orange Walk Town and to identify suitable land for village expansion; Corozal District North (SI 3 of 1994) to guide urban expansion and protect agricultural land to rationalize the expansion of tourism and retirement home building, to promote commercial and industrial growth and to protect the environment.

The process of preparing a SDA does not legally require consultation with affected stakeholders, and there are fines for non compliance. However, the LUAct does not detail the contents or effects of a SDA or provides for the meaning of development and other key terminologies. Neither does it provide for decentralization in its administration and enforcement. These SDA’s are hardly known outside the MNREI, and monitoring, compliance and updating is absent, due to its centralized administrative location and mechanism and insufficient institutional capacity and capability. Notwithstanding, they can be described as representative of adequate and proactive responses to prevailing changes in land use development trends and patterns, and are useful as broad indicators of land use classes to be applied in specific areas. It is perhaps the only de facto land use planning legislation, even though it has been described as a “one line authorization’. Unfortunately, they are not maximized by other GOB agencies, institutions and organizations in policy formulation and decision making, and the composition of the LUA itself is confined, and even departments and sections within the MNRE ignore their existence and hardly subscribe to them. This is evidence of minimal integration between units of departments and departments within the ministry and may be a result of the Physical Planning Section (PPS) been relegated to merely a

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section in the Lands and Surveys Department rather than being a more pivotal position within the Ministry itself. Currently, it is overshadowed by the other units and sections such as the Land Information Center (LIC), the National Estate Section (LES) and the Land Valuation Unit (LVU), all of which should be data bases for the PPS, which rightly should be providing direction to these other units and sections as to type and format of data to be collected and presented, and conversely using the data generated in these units and sections to inform decision making in the allocation, distribution and use of land, all of which have implications to the protection of the environment, sustainable development and hazard mitigation. A paradoxical situation exists which is glaringly apparent, as data sharing and support mechanisms for work programmes are not coordinated and integrated sufficiently to inform policy and programs. (4)

Environment Protection Act

The Environmental Protection Act (EPA)13 cuts across many sectors in its coverage and has a broad environmental mandate. It is the primary pollution control legislation and empowers the Minister to set levels for emissions, discharges and deposits of pollutants into the environment. It also requires any person intending to undertake any programme or activity which may significantly affect the environment to prepare and submit an Environmental Impact Assessment to the Department of Environment (DOE). An evaluation committee, the National Environmental Appraisal Committee (NEAC), is charged through regulations to make recommendations to the DOE as to the adequacy or otherwise of EIAs submitted to the Committee and also of the circumstances where a public hearing is desirable. NEAC is comprised of representatives of the private, public and NGO communities. It must be noted however that the decisions of NEAC is collective. Furthermore, the DOE is not bonded by the recommendations of NEAC. Neither does it have to specify its reason for approval or refusal of an EIA application. In the absence of a functioning planning structure, the DOE has been the ‘de facto’ agency authorizing development in Belize through the EIA process and the application of an Environmental Compliance Plan. This has raised serious concerns, as the EIA is primarily skewed toward environmental concerns, with that of social and economic being secondary. Chief Justice Abdulai Conteh noted that there may well be inadequacy or inappropriateness of the EIA to undertake this function, but that this was not clear, and that there is no explicit provision that the consideration or approval of the EIA is to be tied to the grant of permission for a project to proceed. This ruling was further upheld in two recent cases and brings to question the use of an EIA as a de facto planning tool. As noted by Conteh, ‘This may therefore be a gap in the laws of Belize that needs to be plugged so as to make it clear that no planning permission or approval of a scheduled project will be given unless an EIA is presented in respect of it and approved. And preferably to state the reason for approval or disapproval.’

13

Chapter 328 of the Laws of Belize RE 2000

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Undoubtedly, without the use of the EIA process, and the absence of an effective planning system, the review and approval of projects which may have negative impacts on the environment is in a vacuum, and requires serious attention. (5) National Lands Act The National Lands Act14 is administered through the Lands and Surveys Department (LSD) and applies to all national lands, including cayes and sea beds, but excluding forest reserves. It empowers the minister to approve grants, titles and leases on such terms and conditions of occupancy and use at such rates as he deems fit. Interestingly, it enables persons to achieve ownership of land through development, which includes’ removing and keeping clear of bush.’ There are no implementing regulations, guidelines or policy statements to guide the Minister in the disposal of land or conditions of lease or grants or use of land. Such decisions may or may not comply with the use assignment of SDAs, coastal zone guidelines or in recognition of the needs and aspirations of local authorities and municipal agencies, the latter being a rather contentious matter. Neither is the ecological value of land taken into consideration in determining lease and purchase value. The act also defines classes of land but provides no explanation of the designations. However, it empowers the minister to make exceptions to the sixty-six feet reserves requirement for protecting properties and preserving public access, but no guidelines as to when it is appropriate to deviate. (6)

North Ambergris Caye Development Corporation Act

The North Ambergris Caye Development Corporation Act15 (NACDCA) provides for the establishment of a North Ambergris Caye Development Corporation with the function to secure the proper development of the North Ambergris Caye including infrastructural, residential, commerce and tourist facilities, ecological reservations, environmental protection, wildlife reserves etc. While it is without prejudice to the provisions and functions of the HTPA, it does overlap with the Forestry Act and the Fisheries Act. (7)

Coastal Zone Management Act

The Coastal Zone Management Act (CZMA)16 was enacted in 1998 to promote sustainable development of the coastal areas and associated ocean areas through coordination of existing legislation affecting coastal resources and through building capacity and expertise to manage coastal areas. It is administered by the Coastal Zone Management Authority and Institute (CZMAI) and provides for the appointment of an Authority whose functions are primarily in the realm of planning, advising, cooperating, collaborating and monitoring. It has no jurisdiction to permit or regulate the use and development of coastal areas.

14

Chapter 191 of the Laws of Belize RE 2000 Ibid at Chapter 282 16 Ibid at Chapter 328 15

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The Board is appointed by the Minister and is multi-disciplinary, crosses ministerial boundaries and represents a clear attempt at integration of the management of coastal resources. The Authority is charged, among other tasks, with the development of a Coastal Zone Management Plan which must address inter alia,   

Guidelines to determine suitability of particular development activities in the coastal zone; Proposals relating to coastal zone which deal with land use, planning for the establishment of protected areas and conservation of threatened or potentially threatened endangered species; and, Proposals for reservation of land or water in coastal zone for certain uses.

Because it has no permitting powers, it is dependent upon agencies so empowered to implement the plan, that is, the CHPA and the LUA. The implementation of the plan is to be monitored by the CZMAI and the governmental and non-governmental agencies consulted during plan preparation, though it does not say how this feat is to occur and how compliance is to be assured. Notwithstanding, the CZMAI has accumulated a repository of information on sustainable development uses and practices in the coastal zone and represents a wealth of information to inform environmental management planning. Furthermore, its capacity building measures, scientific research arm, power to acquire and hold land, participatory approach through stakeholders involvement to coastal zone management and public education/awareness programmes may be best practices to review for such initiatives. (8)

The Forest Act

The Act17 empowers the Minister to declare areas as forest reserves in an attempt to manage and protect the resources through controlling the removal of timber species and vegetation cover. This function is within the ambit of the Forest Department (FD). The Act has been criticized as vague in the rationale for setting aside, de-reserving and managing reserves, as it provides no standards or criteria for defining or stating the purposes of a forest reserve and no basic notice for designation. Neither does it require stakeholder participation in the process, which brings into question transparency and accountability in decision making. The department is also responsible for permits for mangrove clearance under the Mangrove Protection regulations, but its use is limited and monitoring and enforcement is almost impossible due to insufficient human, technical and financial resources. This Act overlaps with the HTPA, the LUA and the NACDCA. (9)

The National Parks System Act

The National Parks Systems Act (NPSA)18, administered by the FD, provides authority for the designation of national parks (for the protection and preservation of natural and scenic values of national significance), nature reserves (as a scientific reserve), wildlife sanctuaries (for the protection of nationally significant species) and national monuments (for the protection and 17 18

Ibid at Chapter 213 Ibid at Chapter 215

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preservation of nationally significant natural features of special interest or unique characteristics). While the Act specifies what constitutes each of the designee, restricts entry and prohibits certain acts, there is a discretionary power for the Minister to make exemptions. There is no clear understanding of an overarching aim of the act or if the intent is that each designee should be an integral part of a national series. While informal mechanisms exist for consultation and participation in the designation of areas and the development of management plans, there is no legally binding mechanism to ensure this, despite the fact that it has been proven that the involvement of local communities in the monitoring and implementation of management plans is critical to their success. There also exists a National Protected Areas Policy Committee to guide policy and accommodate public involvement in policy formulation. Notwithstanding, in regard to Marine Protected Areas, the CZMAI has formulated guidelines for the development of management plans to address all areas including “…zoning schemes, permits, surveillance and enforcement, research and monitoring, interpretation, education and community development, recreation and tourism, administration and maintenance, and financial and sustainability.” There are also co-management arrangements with NGOs and community based groups for the management of areas declared for the purposes of this act. However, there is no standard format for the contents of these agreements or specific criteria to determine how agencies are qualified to enter into co-management agreements. (10)

Fisheries Act

The Fisheries Department (FishD) through the Fisheries Act (FishA)19 licenses fishermen and aquaculture developments. It applies to ‘the whole of Belize’ thus covering the country’s coastal and riverine waters. The Minister is empowered to declare any area within the fishing limits of Belize and as appropriate any adjacent surrounding land to be a marine reserve in order to:     (11)

Afford special protection to the aquatic fauna and flora of such areas and to protect and preserve the natural breeding grounds and habitats of aquatic life; Allow for the natural regeneration of aquatic in areas where such life has been depleted; Promote scientific study and research in respect of such areas or; Preserve and enhance the natural beauty of such areas. Belize Land Development Authority Act

This Act 20 provides for the appointment of an Authority to acquire and develop land and to enforce the pattern, restriction and extent of land use. It overlaps with the HTPA and the LUAct. It is administered by the Ministry of Agriculture (MOA).

19 20

Ibid at Chapter 210 Ibid at Chapter 181

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Mines and Minerals Act

The Mines and Minerals Act21 is administered by Geology and Petroleum Department (GPD). It governs the dredging and extraction of any non-renewable resources except for petroleum from land and in marine areas and provides specifically for the protection of the environment, as in granting mineral rights, the GPD ‘shall take into account the need to conserve the natural or cultural resources’. (13)

Protected Areas Conservation Trust Act

This act22 was created to “encourage and promote for the benefit and enjoyment of the present and future generations of the people of Belize, the provision, protection, conservation and enhancement of the natural and cultural resources of Belize.” It provides grants for research, training etc. to facilitate its purpose and collects revenues from the use of the resources. Furthermore, approximately 45.5 % of all lands are under protected status.23 It is managed by the Protected Areas Conservation Trust (PACT). (14)

Private Works Construction Act

This Act24, the Private Works Construction Act (PWCA) empowers the Minister of Natural Resources and the Environment to authorize construction on the banks or shores of waterways and bodies. It is at the Minister’s sole discretion and input by the Physical Planning Section may be requested. This piece of legislation has implications to coastline stability. (15)

Solid Waste Management Authority Act

This Act25 provides for the appointment of an Authority by the Minister responsible for pollution control with powers to declare any area in Belize to be a service area and for the Authority to make arrangements for the collection and disposal of solid waste within a service area, but not for the storage or treatment. (16)

University of Belize Act

The objectives of this Act26 are to provide teaching, conduct research and offer services consistent with the development needs of Belize.

21

Ibid at Chapter 226 Ibid at Chapter 218 23 Boles 2005 : 22 24 Ibid at Chapter 337 25 Ibid at Chapter 224 26 Ibid at Chapter 37 22

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Belize Building Act

The Belize Building Act27 provides for the regulation of building operations in the interest of public health and safety and to enable the introduction of regulations prescribing standards relating to the use of materials and methods of construction, repair, maintenance and demolition of buildings. The Act establishes a Central Building Authority to be headed by a Director, requires anyone engaged in building operations to obtain a building permit and mandates the inspection of public buildings every four years by a competent engineer to make a determination of its safety. The Act also places a statutory responsibility on owners, occupants and users pf property to secure buildings and equipment once hurricane conditions have been declared. The strengths of the Act are that it provides for safe and quality buildings, contributes to the reduction of the vulnerability of communities from natural hazards, and sets out standards which are intended to be a minimum and which do not prevent the use of alternate approaches. The weakness is noted as uncertainty and limitations in monitoring and enforcement provisions. This Act came into effect September 1, 2005. However, the mechanism for administrating the Act is not in place. This has serious implications to regulation the construction of buildings, particularly in Belize City. (18)

Public Health Act

The Public Health Act28 empowers the Minister to make regulations for the removal of house refuse, cleansing of earth closets, privies etc., cleansing and watering of streets, the trimming of trees, the cleansing of verminous houses, articles and persons and the regulation of stables etc., which would reduce damage caused by flooding, storms and hurricanes and could prevent health epidemics. It also makes it illegal for a person to cause a nuisance and makes provisions for the prevention of highly contagious diseases (19)

City, Town and Village Council Acts

These acts29 provide for municipal and community services (garbage collection etc.), layout and management of cemeteries, parks, canals, streets, to coordinate activities of utility agencies and in general to do all things or matters for the purpose of increasing the convenience and amenities of cities, towns and villages. (20)

Reconstruction and Development Corporation Act

This act30 empowers RECONDEV to designate, plan and build new towns. It assumes the planning function of the CHPA for this purpose.

27

No 7 of 2003 Chapter 40 of the Laws of Belize RE 2000 29 Ibid at Chapters 85, 86, 87 and 88 30 Ibid at Chapter 193 28

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The Development Finance Corporation Act

This act31 empowers DFC to purchase, develop and improve land without necessarily consulting with the regulatory authorities. (22)

Forest Fire Protection Act

This act32 makes provisions for the prevention of forest or bush fires and extinguishing such fires, and for building lines, roads etc for fire fighting operations. The Minister is empowered to declare any area in Belize to be a Fire Prevention Area and the Chief Forest Officer has a requirement to prepare a fire protection plan. (23)

Agricultural Fires Act

This act requires persons desirous of setting fires on land to apply for a license. Noteworthy, is that the legislation which empowers regulatory functions do not incorporate penalties other than fines and imprisonment if the law is not complied with, pointing to the use criminal means to address non-criminal activities. 11.3.3 Institutions without Legislative Mandate One institution that is integral in disaster management and hazard risk reduction is the National Meteorological Service (NMS), which has the responsibility to advise the GOB on matters related to climate, climate change and water resources; the provision of warning services to safeguard life and property and the collection, analysis and dissemination of hydrological and meteorological data and information. There is uncertainty as to the status of this agency, particularly as to the legality of its operations, as no legislation empowers its operations or assigns responsibility for any duty or function. 11.4

Other Organizations and Agencies Involved in Hazard Mitigation There are several other organizations and agencies involved in hazard mitigation. These include the insurance sector, which engages in risk assessment to determine premiums; the utility and petroleum companies and the Belize Audubon Society, which have emergency plans to respond in the event of a disaster, and operational processes and procedures to reduce the occurrence of disasters, and the Red Cross, which have in place plans and procedures in responding to disasters and emergencies.

31 32

Ibid at Chapter 279 Ibid at Chapter 212

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Ongoing Programmes/Activities with Linkages to Hazard Mitigation

11.5.1 General There are three major ongoing initiatives or activities which have implications to and which represent opportunities to hazard risk reduction. They are as follows: 11.5.2 Land Management Programme: The LMP is a joint initiative between the GOB and the IDB and implemented through the Ministry of Natural Resources and the Environment (MNRE). The goal of the program is: “to improve the enabling environment for private and public sector development through enhanced land tenure security, effective land markets and the promotion of a coherent land policy framework contributing to the sustainable development and efficient use of land resources.” The objectives of the program are to:    

Expand systematic cadastral surveying, tenure clarification and property rights registration activities, accompanied by consolidation of lands rights into a single land registry system; Improve the efficiency and sustainability of land administration services provided by the public sector; Build capacity for land use planning at the local, regional and national level;, and, Support national land policy reform.

To realize the objectives, the program consists of four components: 1) Cadaster and property rights registration This component is expected to complete tenure clarification and registration of land rights in selected areas and initiate a programme of public awareness on the process and benefits to be gained from a land administration system. 2) Expansion of land administrative services This component is expected to improve the efficiency, reliability and accountability of land administration services provided by the MNRE. 3) Land use planning and development review This involves the development of a decentralized national land use planning framework. The recommendations of this component provides for a mechanism that can facilitate

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forward planning and managing land use changes in the interest of communities and the country. The goals of such a mechanism were stated as:       

Recognition of the importance of land use planning at the policy level Clarification of roles and functions of agencies involved in land use planning Empower and place a duty upon local governments to be involved in decision making on the use and development of land in their communities Enable central government to govern whilst facilitating local level participation and involvement in land use planning activities Introduce transparency and consistency in decision making Make the meaning of development more inclusive and reflective of contemporary land use activities Facilitate a holistic approach to development by integrating land use planning into development planning

As a result of the above it was proposed that:  

A portfolio of planning be included in the responsibility of the Minister of Natural Resources. Consolidation of all planning functions into one piece of legislation, namely the National Planning Bill. This bill has been drafted and details the legislative and institutional framework for regulating development in Belize. It provides for the orderly and progressive use and development of land in Belize in the interest of sustainable development practices, with a broader and more embracing meaning of development; for public health and safety; for the preservation and improvement of amenities; the granting or refusal of permission to use and develop land; for the introduction of regulations to give effect to the bill and prescribes powers to planning authorities to prepare, adopt, enforce, modify, replace or repeal development plans for communities. It also provides for a two tier planning system with a simplified organizational structure comprising of both central and local governments, with the latter having the power and responsibility for the day to day administration of land use planning and the former, the power and responsibility to supervise and coordinate the way in which the powers and responsibilities of local governments are exercised. Furthermore, it is also to provide for the inclusion of the public in decision making and their right of appeal against a planning decision. In the bill, local governments are explicitly designated as local planning authorities to prepare, adopt, implement and enforce development plans for their communities. It also provides for special planning authorities to be local planning authorities for areas not within the jurisdiction of local planning authorities. In addition, the bill is to be administered by a National Planning Authority comprised of public and private sector organizations, local government and NGO

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representation, including NEMO. It is charged with preparing a National Land Use Policy, inclusive of a Human Settlement Policy and Road Hierarchy Policy. A National Planning Agency is to be established to administrate the Act. It was recommended that the Physical Planning Section of the Lands and Surveys Department be amalgamated with the planning function of the Housing and Planning Department to become the foundation of the National Planning Agency to administer the National Planning Act. The Department of Housing and Planning was to focus solely on housing matters. 4) National land policy and institutional reform This component is expected to introduce reforms to land management in a systematic, transparent and participatory manner while strengthening the various MNRE departments to implement policy. It is also to provide support to the National Lands Advisory Committee. 11.5.3 National Capacity Self Assessment Project The goal of the National Capacity Self-Assessment (NCSA) was to identify, through a country driven consultative process, priorities for capacity development to protect the global environment. Particularly, it was to assist Belize in assessing its capacity to meet the requirements under the United Nations Convention for Biological Diversity (UNCBD), United Nations Framework Convention on Climate Change (UNFCCC) and United Nations Convention to Combat Desertification (UNCCD). Key recommendations of this project are: (1)

Policy Direction   

(2)

A responsibility for sustainable development be assigned to the Minister of Natural Resources in accordance with S 41 of the Constitution; A National Sustainable Development Policy be formulated to articulate GOB position and strategy for streamlining and incorporating sustainable development principles in Belize’s national development strategy; National Land Policy be formulated to articulate GOB position and strategy for the transparent and accountable allocation and distribution of land, a natural resource, and the use and development of land according to it’s capacity and capability to inform sectoral policies dealing with land use (forest, agriculture, human settlements, tourism etc.). Legislative Programme



Drafting of a National Sustainable Development Bill to:  To appoint National and District Sustainable Development Councils to keep the Minister advised and abreast of issues concerning sustainable development, including but not limited to the implications of contemporary and emerging

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development trends to sustainable development; the implications of Belize’s socioeconomic, cultural and physical characterization to sustainable development; the human, technical and financial resources needs for engaging in sustainable development principles and practices; and the impact of governance structures to sustainable development; To create a coordinating mechanism for all public and private sector and civil society stakeholders engaged in sustainable development practices to facilitate the incorporation of sustainable development principles into the formulation of other national and sectoral policies, the design of development programmes and projects and to coordinate dialogue with funding agencies based on identified and agreed upon national needs;. To facilitate training, awareness and advocacy of sustainable development concepts, principles and practices; To formulate and keep under review national policies on sustainable development for approval by the Minister; To develop and keep under review indicators to measure and monitor Belize’s progress towards sustainable development.

Adoption of the proposed National Planning Bill recommended under the LMP and pursue legislative amendments as recommended. Drafting of a Protected Areas Management Bill to enable managers of protected areas to be local planning authorities in accordance with the proposed National Planning Bill, and for harmonization of the management of protected areas. Drafting of a National Meteorology Service Bill to legally empower the NMS and mandate it to perform its national and international functions. This will enable certainty of role, continuity of functions and provide for a clear legislative mandate. Institutional Framework

The report notes also that there is a need for institutional redress to bring effect to the preceding. It recommended: 



The existing Policy Coordinating Unit of the MNRE be upgraded to be a Sustainable Development and Policy Coordinating Unit to coordinate and integrate activities of the MNRE with other Ministries in furtherance of the objectives of the Ministry and the adopted Sustainable Development Policy, and to be the executing arm of the National Sustainable Development Council; The upgrading the Physical Planning Section of the Lands and Surveys Department to Departmental Status until the recommendations for amalgamation with Housing and Planning Department to become the National Planning Agency to administer the National Planning Act be realized.

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11.5.4 Belize Protected Area Policy and System Plan This is an initiative to formulate protected area policies through establishing a qualitative foundation of the planning process; assessing and analyzing the status and opportunities for recharacterization; improving the effectiveness of governance of protected areas; and identifying the delivery of economic benefits and strengthening management and monitoring capacity. This policy and system plan was recently adopted. 11.6

Financial Mechanisms The formal financial mechanisms available for engaging in HRR activities are a combination of GOB funding, through national budgets, and the provisions of International Financial Institutions (IFI) and Donor Agencies, with the former particularly allocated for daily operational activities and specific projects, and the latter, for specific programmes and projects. Over the past years, GOB has entered into loan agreements with IFIs, for example, the Hurricane Rehabilitation Project being funded by IDB and CDB and the LMP being funded by the IDB. It must be noted that there are many donor agencies funding projects currently being implemented by GOB and the NGO community which are related to the objectives and goals of the policy, particularly natural resource management, poverty alleviation, climate change and gender equity. This becomes particularly important as public sector agencies involved in HRR are limited by the budgetary allocations.

11.7

Information Systems and Database The purpose of an information system is to provide the information required to integrate hazard consideration into development planning and management process and vice a versa, that is, to identify current and future development activities that may impinge upon vulnerability, to facilitate the identification, collection and retrieval of relevant information, to assist in the process of analyzing issues, identifying conflicts and defining priorities and to help the process of public and private decision making. Characteristics should be:     

Adapted to the requirements of development planning – that is be issue specific and goal oriented; Organized to facilitate the identification and formulation of specific problems and needs and the analysis of possible approaches to solving problems; Conceived as a dynamic, continuous process so that information can be constantly updated in order to maintain its relevancy and allow for the maintenance of a regular flow of critical data to inform decision makers to intervene in the development process; Geared to the collection and processing of data at different levels to create linkages between sectors and levels; and, Capable of providing pre and post disaster analysis.

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Components of an information system should be: 

 



Description of hazards – information on hazard characteristics and quality, records, topography, the primary and secondary effects of hazards, historical records of hazards to study frequency, probability of occurrence and magnitude and data on relevant hazards, specific physical and local characteristics etc. For example, data necessary to estimate flood hazard include among other things, topographic data about drainage area, run off coefficients, rainfall, stream discharged, areas flooded in the past, areas of potential high risk etc. Data from post disaster analysis – Disasters provide valuable information on the identification of social and technical shortcomings and weaknesses and of vulnerable conditions requiring change. Description of human settlement characteristics – data at a macro level on physical, social and economic factors to reflect the spatial and temporal development of the country, focal points of activities, networks of interaction and communications, and on a micro level to reflect specific patterns of human settlement at the community level over time and space, density, configuration etc. Development options – different options and implications of specific development approaches.

While there is an overwhelming amount of information data base at NEMO on many of its operations, which is posted on its web site www.nemo.org.bz, to a large extent this is not the type of data and formats that are useful for decision making on hazard risk reduction by other government and non-governmental agencies. Notwithstanding, information is lodged in many other agencies and departments, namely Land Information Center, Lands and Surveys Department, Central Statistics Office and the Department of Environment, as well as in many NGOs and CBOs engaged in research and programme development and implementation and municipal authorities. 11.8

Technical Capacity Recent capacity assessments conducted through the NCSA Project33 revealed that many of the departments engaged in environmental protection, which in essence are those engaged in hazard mitigation, are characterized by the following weaknesses:      

33

Job descriptions are not amended to reflect changing responsibilities or assignments on committees of other ministries; Insufficient time to perform committee duties viz a viz increasing responsibilities within respective ministries; Insufficient technical human resources within ministries and municipal authorities to execute legislative and traditional mandates; Lack of planning for human resource training according to identified needs; No data base of skilled professionals in public and private sector to draw upon; Limited use of professionals from the private sector and NGO/CBO in public sector;

Belize National Self Assessment Capacity Report 2005

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Minimal synergy and integration of resources of departments with similar or complimentary goals; Skills and knowledge of technical officers not applied where optimized; Perception of changes being additional responsibilities – hazard risk reduction is not considered part of their daily operations;

 

Of concern also however, is the lack of participation of key agencies in HRR workshops and training conducted by NEMO. Furthermore, there is no follow up and monitoring of the use of the training provided in the workplace, subsequent to the training, suggesting that training may not be utilized or optimized. 12.0

SUMMARY

12.1

General This part presented the hazard mapping and vulnerability assessment and the legislative and institutional capability assessment for preparing a HMP. Both are critical to appreciating the challenges faced by Belize in developing measures to mitigate against the impacts of disasters. Hazard mitigation cannot be realized if the tools, such as maps and data, are not available to inform decision making, and if the means of implementing hazard risk reduction measures are not streamlined into policy, and legislation if lacking or if the existing legislation is deficient and incapable of contributing to meeting the goals of the policy, and thereafter if the institutions are not structured or have the capacity and capability to enforce the provisions of the legislation. Key findings of the assessment are:

12.2

Hazard Mapping and Vulnerability Assessment From the Hazard Mapping and Vulnerability Assessment, the following can be discerned:     

The priority hazards which the HMP should address is flooding and hurricanes; However, there are other natural and man induced hazards which must be addressed; There is a need to produce basemaps and build information baseline data to inform vulnerability assessment; While the CDD defines data availability and gaps, it does not sufficiently respond to the needs required to engage in hazard mapping and vulnerability assessment for Belize; However, the CDD is a start in developing information database to inform hazard mapping and hazard risk reduction; Seven priority areas for vulnerability assessment were identified. San Pedro, Ambergris Caye was one of those areas.;

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Legislative and Institutional Capability Assessment

12.3.1 Policies, Strategies and Plans From the assessment of policies, plans and strategies, the following can be discerned:      

 





There is an overarching hazard mitigation policy with clearly defined goals and objectives, but no comprehensive disaster management policy; There are two key elements to the policy – sustainable development (social and economic development and environmental management) and capacity building at the institutional and individual levels; The focus of the policy is on mitigation measures involving natural resource and environmental management in the case of natural hazards, and hazardous materials and solid waste management in the case of man-induced hazards; The focus of the policy is on preparedness, response, recovery and reconstruction but not prevention; There are several policies, either adopted or in draft stage, which have implications to hazard mitigation and which can contribute to meeting the goals of the policy; There is no overarching land use policy to guide sectoral policy formulation and implementation as it relates to the use of land, whether for protected areas, industry, agriculture or human settlement, or for defining human resource needs to manage natural resources. This has implications to hazard mitigation at the policy level; Several policies which can contribute to HRR are non-existent – Land Use, Sustainable Development, Human Settlement and Transportation Policies There is a sectoral and centralized approach to policy formulation and implementation which contributes to a disconnect between decision makers and resource users, and a disregard for the cumulative negative impact of development and long term sustainability of resources. This has implications to hazard mitigation at the local level; There is no mechanism to create linkages between policy formulation, parallel ongoing activities and hazard mitigation activities, such that the latter can be streamlined into the first and integrated into the second. This has implications to capitalizing on opportunities to contributing to the goals of the policy; There is minimal use of fiscal policies and economic instruments to encourage environmental stewardship and hazard mitigation;

12.3.2 Legislation, Institutions and Financial Mechanisms From the assessment of legislations, institutions and financial mechanisms, the following can be discerned. Primary Legislation: 

While the primary legislation is skewed towards preparedness and response, nonetheless, it does provide for mitigation, but albeit, restricted;

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The primary legislation is deficient is several key areas, and overlapping with other legislation in others, but have strengths and opportunities for hazard mitigation; The law is very centralized; There is no requirement for human resource planning representation on the advisory committee; NEC, and not NEMO, is tasked with broad and diverse responsibilities under the Act; NEC is responsible to both the Prime Minister and Minister of NEMO; However, constitutional and legislative authority is assigned by gazette the Minister, not the Prime Minister; While not explicit, there are key provisions to address hazard mitigation horizontally and vertically in the act;

Secondary Legislation:       

There is overlapping and duplication of several pieces of legislation which regulate development activities, and which can be effective mitigation tools. This contributes to ambiguity in roles and responsibilities of agencies and organizations; There are inherent deficiencies in some legislation to address contemporary development concerns as a result of the initial purpose for promulgation and gaps between legislation; There is underutilization of key legislation which can contribute to sustainable land use practices and hazard mitigation; Several pieces of legislation have powers to prepare development plans, guidelines, SAPP, but not the power to enforce; No legislation provides for the operations of the NMS; Legislations focus on fines and imprisonments for violation of legislation thus limiting the scope for more eclectic approaches, for example, voluntary performance indicators etc. The application to terrestrial and marine provinces are separate in some legislation and jointly in others;

Institutions, Financial Mechanisms and Parallel Activities:   

 

Agencies critical to implementing hazard mitigation activities are under resourced ; There are several committees and sub-committees supporting NEMO with broad but encompassing mandates with opportunities to be strengthened, where absent, to engage explicitly in HRR, but certain deficiencies must be addressed; There is a sectoral and centralized approach to decision making, monitoring and enforcement which contributes to a disconnect with resource users, and which manifest in contention between local and central governments, between ministries and departments and between GOB and CBO and NGO; There is limited community involvement in hazard mitigation activities; The requirements of hazard mitigation activities are not internalized into the operations of most institutions with legislative mandates which can contribute to hazard mitigation, resulting in insufficient knowledge of the concept of hazard mitigation, and subsequent its application;

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Availability and accessibility of information on environment, development and disaster to inform both private and public sector decision making is limited, and where it exist, underutilized; There are parallel activities underway which addresses the deficiencies of legislation which could contribute to hazard mitigation; Financial resources to engage in hazard mitigation activities appears to be limited, but opportunities exist in areas with linkages to hazard mitigation – poverty alleviation, natural resource management, climate change, gender equity and sustainable development; Individual and institutional technical capacity for hazard mitigation limited, and where exist, underutilized; Key agencies which can contribute to hazard mitigation has no legislative mandate or is not established; Many private sector and NGO and CBO are involved in hazard mitigation initiatives and can represent best practice in hazard mitigation;

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INTRODUCTION Vulnerability represents the conditions and processes which increase the susceptibility of a community to the impacts of hazards, which can result in a disaster. Any reduction of the vulnerability of a community can reduce or minimize the magnitude of disaster damages. Relatively small investments in mitigation measures can reduce the recurrent losses caused by disasters. This is particularly relevant in countries where there is often only one of each critical facility (e.g. one general hospital). Furthermore, the reduction in costs of disasters to the society through concerted efforts at vulnerability reduction can in turn lead to a more stable social and economic environment. Notwithstanding, while disasters are by definition devastating events, lessons learnt and incorporated into post disaster recovery can often present opportunities for future vulnerability reduction. For example, the destruction of unsafe infrastructure and buildings can provide opportunities for rebuilding, with better standards or for relocation if a site was particularly vulnerable. In addition, damage to buildings may highlight structural weaknesses in conventional building practices, which could be rectified and may serve to improve planning and building regulations. In order to be successful in the reduction of vulnerability, it is necessary for hazard risk reduction measures to be built into existing and ongoing development programmes at all stages of the development process. As well, this will need to be complemented by the necessary authority, legislation, institutions, human capacity and capability, guidelines and checklists. This section presents the strategy for reducing disaster vulnerability in Belize.

14.0

GOALS, OBJECTIVES AND STRATEGIC INTERVENTIONS

14.1

Plan Goals and Objectives The National Hazard Mitigation Policy articulates two (2) goals with corresponding objectives. These goals and objectives were reviewed by the Plan Development Committee (PDC) and found to equally relevant in guiding the national hazard mitigation plan development. The two goals and numbered objectives are replicated below:

Goal #1: To enhance sustainable social and economic development, and environmental management through the integration of hazard risk reduction into national development processes. Objectives: 1. To maintain natural resources at viable production levels where they will continue to yield useful benefits to resource users; 2. To recover and sustain the ecological integrity of degraded terrestrial areas and aquatic ecosystems; 3. To ensure that the primary resources of the nation are fairly and effectively distributed to afford the citizenry an improved and acceptable quality of life;

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4. To pursue national development from a planned perspective; 5. To discourage the practice of ‘squatting’ or informal settlement on public land; 6. To promote agricultural and forest practices that are sustainable and consistent with the landform and soil characteristic of the particular area. 7. To improve and expand the volume of information available to the public with regard to the proper handling, disposal and management of hazardous materials. 8. To improve the national capacity to manage waste. Goal #2: To build the capacity of national institutions to more effectively implement programmes and projects to reduce vulnerability of the nation and people to natural and technological hazards. Objectives: 1. To decrease the susceptibility of all sectors and particularly the Agriculture, Tourism, Fisheries, Forestry and Housing Sectors to severe weather events; 2. To raise national consciousness about geohazards and the threat they pose to people and/or their property; 3. To lend greater financial support to public sector institutions with a role in natural resource management and hazard risk reduction; 4. To develop the appropriate legislative and regulatory framework for enforcement in support of hazard risk reduction. 5. To improve the information available to public sector agencies with a role in hazard risk management. 6. To strengthen and enhance the capacity of NGOs, private sector and other Stakeholders with a role in hazard risk reduction. 7. To focus the attention of communities on their vulnerabilities to natural and technological hazards with a view of enhancing their participation in decision-making processes related to hazard risk reduction. 8. To improve coordination among Public Sector agencies with a role in hazard risk management. 9. To raise national consciousness with regard to the connectivity between global warming and the frequency and intensity of severe weather events. 14.2

Strategic Interventions

In order to realize these goals and objectives, certain strategic interventions are necessary as a result of the findings of the situational assessment presented in the preceding part. These are presented under eight (8) cross cutting themes with associated directions which will form the basis of the mitigation actions. (1)

Streamlining Hazard Risk Reduction into National Development and Sector Policy Planning

An integrated approach to hazard risk management is essential in order to reduce costs and any overlaps in the legal and administration frameworks governing hazard mitigation actions. In Belize, similar to the rest of the Caribbean region, hazard mitigation competes for the slender resources available to individual countries with a number of other pressing socio-economic concerns such as poverty alleviation, high unemployment, improvement of housing, and

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improvement of education and health care facilities. Under these circumstances, it is important to recognise that there are existing institutional frameworks within which hazard mitigation activities must fit. Of particular significance is the existing national development planning process, which provides a dynamic framework for vulnerability reduction and for the implementation of hazard mitigation actions at the various levels of strategic planning. As well, an integrated approach to hazard risk management will need new methods for dealing with cross-cutting development issues. One of the main areas that will have to be addressed is the reduction of conflicts in policy development. This will require sectors to work together and to understand the need to harmonize their respective plans and policies in keeping with national objectives and priorities. Communities and stakeholders must also be included as part of this process and governments must provide the necessary resources, coordination and support to encourage participation in the decision-making process. The Capability and Legal Assessment identified inherent links between several sector policies and national development policy initiatives and the goals and objectives of the Hazard Mitigation Policy. The goals and objectives which this strategic intervention will address are: Goal 1 – Objectives 3, 4, 5, 6 and Goal 2- Objectives 1 & 8. Strategic Directions:       (2)

Establish a mechanism for streamlining HRR into national development planning; Establish a mechanism to integrate HRR into sector policy formulation and implementation; Advocate for the adoption of draft policies and the review of existing and draft policies critical to HRR to streamline HRR into them; Advocate for the formulation of additional policies critical to HRR such as land use, human settlement planning and transportation policies; Recommend the formulation of separate HMPs for specific hazards not addressed in this report, in addition to subsequent HMVAs for other priority vulnerable areas in the nation; Review the National Hazard Mitigation Policy to broaden the concept of mitigation and to introduce the use of fiscal and economic instruments in hazard mitigation. Recognizing the inter relationship between HRR, Environmental Management and Economic Development

Our ability to alter our environment and tailor it to our needs has increased, and with it, our sensitivity to the cost of environmental degradation. Pursuing hazard risk reduction presents opportunities to conserve resources and to enhance the quality of the environment, which in turn provides benefits to improve the quality of life. The goal and objectives which this strategic intervention will address are Goal 1 – Objectives 1 & 2.

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Strategic Directions:    (3)

Establish a mechanism to bring to the forefront the interrelationship between HRR, environmental management and economic development at all levels; Develop a programme to identify and restore degraded natural habitats that provide natural buffers that reduce vulnerability; Recognize the importance of protected areas as integral to HRR and natural resource management. Strengthening Legislative Framework for Hazard Risk Reduction

With proper enabling legislation and regulatory powers, the GOB possesses the authority to engage in various hazard mitigation activities. While there is existing legislation and proposed legislation which can contribute to HRR, as was noted, there are overlapping responsibilities and deficiencies which must be addressed. The goals and objectives this strategic intervention will address directly are Goal 1 – Objective 8, and Goal 2- Objectives 4, 7 & 8. Strategic Directions:   (4)

Pursue a legislative review programme to review legislation addressing HRR to strengthen and harmonize them; Advocate for the enactment of proposed legislative initiatives which can contribute to coordination of HRR efforts. Building Institutional and Individual Capacity to Manage Risk

The capability of the national and local governments, the private sector and NGOs and CBOs to implement a HMP is affected by the institutional framework in which it will operate, and the technical expertise and local knowledge of the individuals functioning within the institutions, agencies and organizations. The goals and objectives this strategic intervention will address directly are Goal 1-Objective 8 and Goal 2 – Objectives 1,3,5,6 & 7. Strategic Directions:    (5)

Create and enhance capacity for HHR through training designed to target specific public and private sector agencies, NGOs and CBOs; Plan for and manage human resources for HRR more effectively; Increase financial and technical support for public and private sector agencies, NGOs and CBOs to equip them to perform their HRR functions. Establishing a Hazard Risk Reduction Information Management System

Data availability and accessibility in a type and format that informs decision making is fundamental to HRR. As was noted, the HMVA limitations have restricted hazard mapping to a pilot study area and additional resources will be needed in the future to develop a HMVA database

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that has nationwide coverage. The goals and objectives of this strategic intervention will address directly are Goal 1 – Objectives 6 & 7, and Goal 2 – Objectives 2, 5, 7 & 9: Strategic Directions:   (6)

Establish and sustain an information system that can contribute to decision making at all levels and be available and accessible to the public, private and non-governmental sector; Develop a mechanism for identifying and implementing HMVA studies for priority vulnerable areas throughout the nation. Empowering and Mobilizing Communities to Manage Risk

To ensure that everyone contributes to the achievement of sustainable development it is necessary to establish effective mechanisms for the involvement of all communities in hazard risk reduction. During hazard events, impacts are rarely evenly spread across the affected country or area, with individual communities suffering greater effects than the country as a whole. This underscores the need to build community resilience to the impacts of hazards. Consequently, capacity must be built at the community level to understand the range of hazards that affects each community and to reduce their vulnerability to those hazards. Community groups represent valuable constituents for support and cooperation in achieving success in the implementation of risk reduction activities. Involving the community through the building of partnerships is the most effective means of implementing measures to reduce the impacts of hazards. The goals and objectives this strategic intervention will address are Goal 2 – Objective 7: Strategic Directions:   (7)

Increase local capability of communities to engage in HRR activities through training in specific areas to undertake hazard mapping and vulnerability assessments; Explore legislative opportunities for community level participation in decision making. Public Outreach, Education and Training

Disaster mitigation is likely to be successful only if efforts are an integral part of everyday life, not something unusual or extraneous to normal activities. A programme of public outreach, education and training can serve as a means of conveying information and sharing responsibility for disaster mitigation. The goals and objectives this strategic intervention will address directly are Goal 1 – Objectives 5, 6 & 7 and Goal 2 – Objectives 2, 5 & 7: Strategic Directions: 

Design and implement programmes to educate resource users on sustainable land use practices, natural resource management, environmental stewardship, economic development and the linkages to HRR;

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Design and implement programmes to educate people on the laws as they relate to illegal occupation of public lands; Design and implement programmes to educate the citizenry at large on the threats of hazards, particularly geo hazards and hazard waste; Design and implement programmes to educate public, private sector and the NGO community on the role they play in internalizing HRR into their work ethic. Accessing Alternate Financial Resources

With an increasing debt burden, a competitive environment for scarce resources, and the increasing pressure on the national budget, it is important that opportunities be explored for alternate sources of funding for HRR. The goal and objective this strategic intervention will address directly is Goal 1 – Objective 3. Strategic Directions :   

Devise a strategic approach for donor agency support for HRR; Strengthen capacity of institutions and individuals in pubic sector agencies at various levels and in the NGO and CBO communities to draft proposals to access financial support for programmes and projects incorporating HRR measures; Strengthen capacity of institutions and individuals in pubic sector agencies at various levels and in the NGO and CBO communities to more effectively manage project funding.

15.0

IMPLEMENTATION MEASURES

15.1

General Plans express a vision for the future, especially how future development will look and function. Without implementation, continuous monitoring and evaluation, they will remain simply statements of intent. It is therefore essential that an implementation plan be developed to complement the mitigation strategy presented in 14.0. Implementation responsibilities do not reside solely within the key line ministries that have a role to play in HRR. Rather, a successful implementation programme must define the myriad ways that government agencies can collaborate with the private sector, NGOs and local community organizations to affect meaningful change. The Plan provides an institutional framework for reducing future vulnerabilities but implementation only occurs when it affects the day-to-day activities of professionals in the private sector, those working on behalf of NGOs and the general public. A number of government agencies have already been involved in developing the national hazard mitigation policy, as well as in the implementation of specific mitigation projects. However, there is still the need for further enhancement of these activities, particularly in the ability of the national government to execute and implement mitigation measures through formal or informal multiagency collaborative actions. The plan also identifies mechanisms for achieving synergy between

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related policies and programmes that can help create a more sustainable future for Belize. The implementation plan is meant to serve as a catalyst for change in the way in which development is carried out, so that mitigation measures become a part of the everyday activities of all facets of civil society. The strategic interventions described in the mitigation strategy cannot occur over night. The Plan envisions a ten-year planning horizon for implementing the hazard mitigation programme. Many of the implementation elements are multi-year in scope and may require new legislation, institutional changes, additional staffing and new training requirements. However, programming all of the detailed implementation elements over a ten-year timeframe is not realistic and the plan includes provisions for Annual Action Plans to effectively mobilize resources and target high priority interventions on an annual basis. The annual action plans also provide a convenient mechanism to monitor, evaluate and refine hazard mitigation initiatives as the programme evolves over time. Plan implementation has both a pre-disaster component and a post-disaster recovery and reconstruction component. By pre-disaster, we are referring to all the planning and preventative measures that can be undertaken prior to a disaster event occurring. Although no community wants to be faced with the daunting task of disaster recovery, the fact remains that the post-disaster environment provides one of the greatest opportunities to implement hazard mitigation and enable the community to become more disaster resilient and sustainable. Advance planning for the postdisaster period enables the national government to take advantage of this “window of opportunity” to mainstream disaster risk reduction in the reconstruction process. Pre-disaster implementation mechanisms described in this section include: legislative and regulatory changes; necessary administrative changes to the institutional framework, public education and outreach initiatives; and monitoring, evaluation, and plan updating requirements. 15.2

Pre-Disaster Strategy

15.2.1 Policy Formulation, Coordination and Implementation A division of responsibilities among agencies at different levels, a lack of coordination among sectors and a lack of communication among decision makers can hamper the development process. Integration throughout the disaster stages and effective prevention and mitigation efforts require a comprehensive and coordinated approach that pre-supposes both an overall national development strategy and individual strategies at sector and local levels. Effective implementation will require sustained interagency coordination and collaboration. Although NEMO must be actively involved with hazard mitigation initiatives, it serves as a coordinating agency for disaster management activities and is not a national planning and implementation agency. It must take a leadership role to create awareness about HRR at various levels of government, the private sector, NGO and CBO, and the general public at large, and collaborate with them in their HRR efforts, but it must rely on them to implement plan proposals.

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To do this NEMO must undertake the following Plan Actions: 



   

Participate in national development planning initiatives through formal membership of the National Human Development Advisory Committee (NHDAC) and the Economic Advisory Council (EAC) to enable the streamlining of HRR in the National Poverty Alleviation Strategy and the Medium Term Economic Strategy; Be able to influence and shape sectoral policy through engagement with sectoral partners during policy formulation, and later to monitor implementation. The law provides for the NEC to liaise and facilitate with partners. For ministries to comply, the cabinet must give approval. Consequently, a cabinet paper should be prepared and submitted for this purpose; Review existing draft and proposed policy, starting with those identified in this report, with a view to making recommendations to streamline HRR measures into them; Recommend the formulation of sector policies which are critical to hazard mitigation to increase HRR at the policy level. These include Land Use, Human Settlement, Planning and Transportation; Recommend the formulation of Hazard Mitigation Plans for critical sectors, including Fire, Hazardous Materials, Health, Civil Unrest, Oil and Food Security; Review National Hazard Mitigation Policy to broaden the meaning of hazard mitigation to include prevention as a component of the disaster management cycle and fiscal and economic instruments as a tool for hazard mitigation.

15.2.2 Strengthening Legislative and Regulatory Framework As the leadership agency in hazard mitigation, the legislation which governs its operations must empower its functions in hazard mitigation. It must also be able to rely on other permitting and regulatory agencies. For this to happen, NEMO must undertake the following Plan Actions: 

Undertake a review of the Disaster Preparedness and Response Act to strengthen it in its hazard mitigation functions to include:  Harmonization with the Housing and Town Planning Act or Draft National Planning Bill to give effect to the implementation and enforcement of the SAPP;  Give the Prime Minister or Minister responsible for NEMO the power of moratorium, which is a short term suspension of the right to develop after a disaster, until a SAPP or planning scheme can be prepared under either the HTPA or the DPRA;  Representation of the Minister responsible for NEMO on the Advisory Committee;  Clarification of the role of the Minister viz a viz the Prime Minister  Clarification of the role of NEC viz a viz NEMO;  Representation from the Ministries of the Public Service and Planning on the Advisory Committee;  A requirement to formulate a Disaster Preparedness and Response Policy;

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 A requirement of the Minister of NEMO to review and comment on the annual report and National Disaster Preparedness and Response Plan prior to submission to the Prime Minister;  As a requirement in the National Disaster Preparedness and Response Plan, a review and analysis on the mitigation activities and initiatives of the public sector and major private sector entities;  

 

Request amendments to the Environmental Protection Act to include a representative of NEMO on the National Environmental Appraisal Committee (NEAC) and to include HRR as a component of scoping under the EIA process; Provide support to the MNRE, through the use of a cabinet paper, for the enactment of the National Planning Bill, the National Sustainable Development and the Protected Areas Management Bill as supporting legislation for HRR which empowers local communities to be engaged in decision making about resource use at the community level. Provide support to the MNRE, through the use of a cabinet paper, for the amendments recommended in the Decentralized National Land Use Planning Framework to harmonize other laws with the proposed planning bill; Provide support to the MNRE, through the use of a cabinet paper, for the amendments recommended under the NCSA project to improve natural resource and environmental management;

15.2.3 Building Institutional and Individual Capacity to Manage Risk Collaboration with other agencies and organizations engaged in HRR compliments the leadership and coordinating role of NEMO, and enables NEMO to concentrate its efforts in that role. However, while NEMO itself must be equipped and positioned to perform this role, it must also collaborate with agencies and organizations whose activities compliments that of NEMO to build their capacity to perform their functions. To that end, NEMO must undertake the following Plan Actions:   

 

Request that established posts at NEMO be filled as a matter of urgency; Review its current institutional and individual capacity in view of the report Sustainability of the NEMO mechanism by Dr. Barbara Carby and the legislative review conducted in 15.2.2 to enhance its hazard mitigation function; In view of the findings of the preceding, establish a mechanism to create and sustain linkages between national HRR needs, human resource planning and training institutions, through partnerships with the Office of Governance, University of Belize, and other local and international educational facilities and funding agencies or conduit to educational opportunities such as PACT, MOF and the MFA; Review the TOR of the12 NEMO operational committees to expand and broaden their role in hazard mitigation; Review the operations of key public sector agencies engaged in hazard mitigation to internalize hazard mitigation into their operational plans and to determine the extent of individual and institutional strengthening required to support NEMO, either through their direct operations or

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through committees which they may chair. These include those listed with and without legislative mandate and NEMO 12 operational committees; Review the operations of key private sector, NGOs and CBOs operations to collaborate internalizing hazard mitigation in operational activities; Aggressively pursue the appointment of the Central Building Authority and supporting staff to regulate the construction of buildings; Identify training in specific fields including data collection, analysis and interpretation of both scientific and para-scientific data to inform policy and decision making and to create awareness; and the design, planning, management, administration and so on for those with direct public and private sector responsibilities in the field of development and disaster mitigation; Provide knowledge building for public sector for better understanding of the concept of HHR; Create, share and make accessible data base of professionals involved in HRR in the private and public sector nationally, regionally and internationally;

15.2.4 Establishing a HRR Information Management System In the generation of information, it is necessary to identify linkages and conflicts between hazards and development options. NEMO must be the repository of data and the linkage between agencies that generate, analyze and store data. To that end NEMO must undertake the following Plan Actions:     

Engender and nurture a culture for information gathering, sharing and use; Create a data base on HRR and disaster management professionals, agencies and organizations engaged in HRR and disaster management; Create a data base of best practices in hazard mitigation at local, regional and national levels for public and private sector entities as well as CBOs and NGOs;; Create an Information System that is accessible and available, with the characteristics, components, data type and format required to analyze, exchange and manipulate data to inform decision making in the public and private sectors and NGO and CBO fraternity; Upgrade existing website to enhance availability and accessibility of data to inform decision making by the professional associations, lending institutions, central and local government agencies, NGOs and CBOs.

15.2.5 Integrating HRR into Environmental Management and Economic Development Recognizing the inter relationship between HRR and environmental management and economic development is crucial to sustainable development. To this end NEMO must undertake the following Plan Actions: 

Work closely with agencies and organizations responsible for environmental stewardship to promote this inter relationship;

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Collaborate with agencies and organizations responsible for environmental stewardship to identify areas requiring ecological restoration and develop programmes to address this situation.

15.2.6 Public Education, Training and Outreach Public education, training and outreach encourage society to shoulder its responsibility and implement vulnerability reduction measures. Three essential and overlapping types of activities are recommended. As well, they should be underpinned by the connection between HRR and sustainable development. 



 

Design a public information data base of known hazards, HRR initiatives and measures, sources of information, individual and collective responsibilities, and a connection between HRR and daily life of the general public and operational activities of key private sector institutions, that is, the lending, insurance and building industry; Design an awareness training programme to disseminate the public information data base and sources of information among public officials and selected private sector groups such as professional associations, developers, vulnerable sectors such Tourism and Agriculture, lending institutions and insurance companies, and those who build and renovate their own homes; Design a programme to include school training through the inclusion of hazard mitigation topics in curricula of primary and secondary schools and vocational technical schools, making the connection between HRR and daily life; Upgrade web site to include information on best practices, linkages to additional sources of HRR information, and networks of individuals, professional associations, NGOs and CBOs that will serve as partners in implementing vulnerability reduction measures throughout Belize.

It is also recommended that NEMO develop these programmes in consultation with the media, the Belize Broadcasting Authority, in the case of the first and second, and the Ministry of Education and Belize National Teachers Union in the case of the third. 15.2.6 Community Mobilization and Empowerment Providing knowledge empowers communities. Engaging then in decision making involving HRR activities encourages participation in HRR programmes. To empower and mobilize them involves the following Plan Actions:  

Enhancing their capacity and capability to engage in HRR activities through training and exchange of anecdotal experiences, culture and traditional approaches to HRR to develop best practices to be integrated into all aspects of the disaster cycle; Working with priority communities to engage in hazard mapping and vulnerability assessments to prepare local HMP.

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15.2.7 Access to Financial Resources HRR is a component of sustainable development, and has implications to poverty alleviation, environmental management and climate change. Linking HRR to these issues can open opportunities for new sources of funding to compliment national budgets. To this end NEMO must undertake the following Plan Actions:  

Devise a strategic approach for donor agency support for HRR; Strengthen capacity of institutions and individuals in pubic sector agencies at various levels and in the NGO and CBO communities to draft proposals to access financial support for programmes and projects incorporating HRR measures; Strengthen capacity of institutions and individuals in pubic sector agencies at various levels and in the NGO and CBO communities to manage project funding.



15.3 Planning for Post-disaster Recovery and Reconstruction 15.3.1 General Planning for post-disaster recovery and reconstruction differs from many of the preventative measures described elsewhere in this plan in that the activities will only be implemented after a disaster event. As such, recovery planning is similar to the traditional preparedness activities associated with emergency response functions. Emergency preparedness focuses on increasing the capability of police, fire, medical, and other emergency management staff to respond to critical health, safety, evacuation and sheltering issues that arise in the immediate aftermath of a natural or human-caused disaster event. However, recovery and reconstruction planning focuses on expediting and facilitating the transition from the response to recovery and having mechanisms already in place to better integrate hazard mitigation into long-term reconstruction. The International Strategy for Disaster Reduction (ISDR) refers to the opportunity to reduce vulnerability in the post-disaster setting as, Mainstreaming Disaster Risk Reduction (United Nations Development Programme, Post-disaster Recovery Guidelines). The guidelines highlight the conventional approaches to recovery that often fail to grasp these opportunities: 

“Response to disasters is still dominated by humanitarian assistance and emergency management. While vital, … [it] does not address the underlying causes of that resulted in the disaster, nor does it automatically stimulate rapid recovery … and may even exacerbate the underlying causes of vulnerability.



The long time spans required for the necessary impact studies, the design of programmes and projects, the negotiation of multilateral loans for reconstruction and the timeframe for approval of development funding generates a gap between the ending of humanitarian assistance and the initiation of reconstruction programming in which affected people are usually left without support for recovery.

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Reconstruction is frequently conceptualized and designed to return a country to the conditions of the normal development it enjoyed before a disaster occurred. This too often leads to rebuilding the conditions of risk which existed before the disaster, thus preparing the ground for future disasters and possibly contributing to increase the country’s debt levels with large reconstruction loans.



Similarly, during the gap, people begin to recover spontaneously, rebuilding and reproducing conditions even more risk prone that existed before the disaster occurred.



Support to recovery by government organizations, international agencies, NGO’s and others is often done through isolated and uncoordinated interventions, leading to a duplication of efforts in some areas, gaps in others and again a failure to factor in risk reduction considerations.



Too often, societies affected by a major disaster tend to seek rapid and visible solutions to restore normalcy, frequently at the cost of more sustainable and durable solutions that truly address the root causes of the disaster.”

This section describes the mechanisms proposed by the national government to effectively mainstream disaster risk reduction by having a post-disaster assessment and recovery strategy in place before the next major natural disaster strikes. Four mechanisms are described in the following subsections: disaster assessment; legislative requirements; institutional mechanisms; and, identification of post-disaster opportunities. 5.3.2

Disaster Assessment The rapid assessment of disaster damages and societal needs following a major event is critical, not only to inform immediate emergency response functions but to provide preliminary estimates of recovery and reconstruction needs. This information is vital to guide the actions of government agencies in both the short and long term in several ways. It is valuable in informing regional relief organizations and the international donor community. In addition, it is a source for the HRR Information System as it can provide valuable lessons for use in other contexts, and case studies may be useful in predicting what types of development will increase or decrease vulnerability The Damage Assessment and Needs Analysis Committee must ensure that the data it will collect is in a standardized format and type, because generalizations about the past can be applied only if experiences can be compared, evaluated and summarized.

5.3.3

Legislative Requirements Legislative amendments proposed to the Disaster Preparedness and Response Act provides for the Prime Minister or Minister to have the power of moratorium, which is a short term suspension of the right to develop after a disaster, until a SAPP or planning scheme can be prepared under either the HTPA or the DPRA. The law could be further amended to:

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Enable the drafting of an Emergency SAPP without the required drawn out legislative process; Empower the Recovery Committee appointed by the NEC with powers to prepare and implement a SAPP; Empower municipal governments to implement already designed urban redevelopment plans for target communities prepared through the National Planning Bill.

. Institutional Mechanisms If the recommendation of 5.3.3 preceding is accepted, the Recovery Committee should be renamed the Recovery and Redevelopment Committee. It should have in place a proposal for the composition of a team with the required expertise and resources on call to expedite the preparation and implementation of a SAPP in the immediate aftermath of a disaster.

5.3.5

Identifying Post-disaster Mitigation Opportunities Post disaster environments provide opportunities both at the national and local levels. In the case of the former, the GOB can use the opportunity to encourage the relocation of families to existing inland communities which have available land and underutilized infrastructure. For Belize City, communities such as Mahogany Heights and Hattieville can be prepared in this eventuality. In the case of the local level, the enactment of the National Planning Bill will empower communities to prepare, adopt and implement development plans. Post disaster represents opportunities to redevelop areas impacted upon using already defined standards and guidelines for development, which would have incorporated HRR principles.

15.4

Monitoring, Evaluating and Updating the Plan The HMP is not intended as a static document and its objectives, strategies, programmes and projects may be changed over time based upon assessments of whether they are effective in achieving the stated goals. Monitoring of plan implementation will be the responsibility of the Hazard Mitigation Council through the Hazard Mitigation Coordinator. However, the lead implementing agencies will have responsibility for the day-to-day monitoring of their respective mitigation programmes and projects. The monitoring, evaluating and updating of the HMP must be specified in the Terms of Reference of the Hazard Mitigation Council and Coordinator. The HMP has clearly defined outputs and time lines. The role of the Hazard Mitigation Council will be to establish the criteria for evaluating the HMP and the intervals within which the HMP will be evaluated.

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ACTION PLAN The implementation of the HMP spans ten years. The following matrix details the operational activities, expected outcome, specified time frame to perform the activity, the agency responsible for executing the task, the resources required to execute the task and the assumptions made in respect of the outcome.

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STRATEGIC INTERVENTION I : Streamlining Hazard Risk Reduction into National Development and Sector Policy Planning Outcome

Operational Activities

NEMO is a member of NHDAC and MEC and enables hazard mitigation to be streamlined into National Development Planning

Time Frame – 10 Years

Responsible Agency or Person

Resources

 NEMO requests membership of the NHDAC and contributes to PASP – MND  NEMO requests membership of the MEC and contributes to the MTES-MND

NEMO

$15000.00

 Political will  MND supports the request

A coordinating mechanism for hazard mitigation is established

 A proposal and TOR for a Hazard Mitigation Council is prepared, submitted to cabinet, approved and established  A desk is established at NEMO for Hazard Mitigation Officer to monitor/coordinate/contribute to sector policy formulation/review and provide support for the council

NEMO

$36000.00 PA

 Political will  Budget allocated

Hazard Mitigation Policy incorporates prevention and fiscal and economic instruments as mitigation tools

Review Hazard Mitigation Policy to incorporate prevention and fiscal and economic instruments as mitigation tools

NEMO

$5000.00

 Political will  Budget allocated

A Comprehensive Disaster Management Policy is formulated and adopted

Formulate a Disaster Preparedness and Response Policy

NEMO

$20000.00

 Political will  Budget Allocated

A National Lands Policy formulated and adopted

Prepare and submit a cabinet paper in support of the drafting and adoption of a National Lands Policy through the MNRE

NEMO MNRE

Request in progress to UNDP through NCSA

 Political will

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Assumption

A National Human Settlement Policy is formulated and adopted

Prepare and submit a cabinet paper in support of the drafting and adoption of a National Human Settlement Policy through MNRE

NEMO MNRE

$20000.00

 Political will  Funding requested and approved

A National Transportation Policy is formulated and adopted

Prepare and submit a cabinet paper in support of the drafting and adoption of a National Transportation Policy through MOW

NEMO MOW

$20000.00

 Political will  Funding requested and approved

A National Sustainable Development Policy is formulated and adopted

Prepare and submit cabinet paper in support of the drafting and adoption of a Sustainable Development Policy through MNRE

NEMO MNRE

Request in progress to UNDP through NCSA

 Political will  Request approved

HMP for specific hazards prepared and adopted

Coordinate the preparation of HMP for Fire and Hazardous Waste, Oil Spills, Food Security and Civil Unrest

National Fire Service Geology and Petroleum BAHA BDF

$100000.00

 Political will Support from sectors designated

HRR principles streamlined into sector policies

Existing policies which have implications to HRR are reviewed to create harmony with the national policy, and adopted in cases where this has not occurred

NEMO/Associated Agencies

$25000.00

 Political will  Sector interest  Funding requested and approved

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STRATEGIC INTERVENTION II : Integrating Hazard Risk Reduction into Environmental Management Outcome

Operational Activities

Time Frame – 10 Years

Responsible Agency or Person

Resources

Assumption

HRR is featured prominently in the National Environmental Policy

Review draft National Environmental Policy and Plan to integrate HRR in environmental management

NEMO/DOE

$5000.00

DOE supports initiative

A plan of action to resuscitate ecologically degraded area

An assessment of areas characterized by environmental degradation is conducted and a plan of action with recommendations for ecological resuscitation detailed

DOE

$100000.00

DOE supports initiative

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STRATEGIC INTERVENTION III : Strengthening Legislative Framework for Hazard Risk Reduction Outcome A Disaster and Preparedness Act that is strengthened with clearly articulated provisions for hazard mitigation at all levels

Operational Activities 



Time Frame – 10 Years

Review the DPRA to elaborate on provisions for hazard mitigation function, to address deficiencies and to harmonize with other legislation Submit to cabinet for approval and to parliament for amendments

Responsible Agency or Person

Resources

Assumption

NEMO

$25000.00

Funding requested and approved

National Planning Bill enacted

MNRE complete the process to enact Bill

MNRE/LMP

Request in progress to UNDP through NCSA

 Political will  Request for funding approved

Protected Areas Management Bill enacted

MNRE to initiate the process to draft and enact bill

MNRE/NCSA

Request in progress to UNDP through NCSA

 Political will  Request for funding approved

National Sustainable Development Bill enacted

Review, finalize and enact the draft National Sustainable Development Bill

MNRE/NCSA

Request in progress to UNDP through NCSA

 Political will  Request for funding approved

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Legislation amended to harmonize with National Planning Bill and DPRA

Recommendations of LMP reviewed to take into consideration SAPP in legislative amendments and submitted to cabinet and parliament

MNRE/NCSA/ NEMO

Request in progress to UNDP through NCSA

Responsible Agency or Person

Resources

NEMO

National Budget

 Political will  Request for funding approved

STRATEGIC INTERVENTION IV : Building Institutional and Individual Capacity To Manage Risk Outcome

 





All established posts are filled at NEMO A restructured NEMO with a desk for hazard mitigation coordination in place A clear role and responsibility for NEMO and committees in hazard mitigation Individual and institutional capacity established at NEMO to engage in hazard mitigation

Operational Activities

 



Time Frame

Request is made and approved to fill established posts at NEMO; Institutional review of NEMO and committees viz a viz legislative/traditional mandate to engage in hazard mitigation conducted Create and enhance capacity of NEMO to engage in hazard mitigation function as per review through training programmes and human resource planning and management

$15000.00

Assumption

 Political will  Request for funding approved

MOF/Donor Agencies

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Individual and institutional capacity to manage hazards in key agencies at national and local levels established Hazard mitigation internalized into the operations of key agencies/organizations and institutions at the national and local levels



Review of Key Agencies/Organizations engaged in hazard mitigation to make recommendations for individual and institutional strengthening, capacity building and internalizing hazard mitigation into daily activities. Strengthening of individual and institutional capacity of key agencies/organizations engaged in hazard mitigation as per review



NEMO Associated Agencies

$25000.00

 Political will  Request for funding approved



Central Building Authority and Agency functional



CBA established

MOH

National Budget

Political will



National Planning Authority and Agency functional



NPA established

MNRE

National Budget

National Planning Bill passed

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STRATEGIC INTERVENTION V : Community Empowerment and Mobilization to Manage Risk Outcome

Operational Activities

City, town and village councils and local NGO and CBO of priority areas are knowledgeable of the linkages between HRR and development planning, sustainable development and environmental management

Time Frame – 10 Years

Assumption

Responsible Agency or Person

Resources

Design and implement programmes to increase awareness of communities of priority areas of the linkages between HRR and sustainable development, development planning and environmental management

NEMO Ministry of National Development Ministry of Local Government Mayors Association Village Council Association

$60000.00

 Political will  Request for funding approved

City, town and village councils and local NGO and CBO of priority areas have the capacity to engage in hazard mapping and vulnerability assessment

Design and implement programme to build capacity of communities of priority areas to engage in base line data collection and analysis to engage in hazard mapping and vulnerability assessment

NEMO Ministry of National Development Ministry of Local Government Mayors Association Village Council Association

$150000.00

 Political will  Request for funding approved

City, town and village councils and local NGO and CBO of priority areas have the capacity to prepare HMPs and do prepare them

Design and implement programme to build capacity of communities of priority areas to prepare hazard mitigation plans for their communities

NEMO Ministry of National Development Ministry of Local Government Mayors Association Village Council Association

$250000.00

 Political will  Request for funding approved

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STRATEGIC INTERVENTION VI : Establishing a Hazard Risk Reduction Information Management System Outcome

Operational Activities

An Information Management System to inform public and private sector decision making and create linkages between NEMO and supporting agencies and organizations engaged in hazard mitigation and between HRR and settlement planning, economic activities and environmental management is operational

Database to inform hazard mapping and vulnerability assessment for priority areas

Inventory of professionals in private and public sector housed at NEMO and accessible from web site

Time Frame – 10 Years

Responsible Agency or Person

Resources

 Review available data of NEMO and other agencies to identify data gap deficiencies as it relates to the components, characteristics, format and type of information required to constitute an Information Management System to inform public and private sector decision making and make recommendations to design and build Information Management System  Build Information Management System

NEMO/HRR Partners

To be determined

 Political will  Sector interest  Request for funding approved

 Review CDD to identify data gap deficiencies as required to conduct hazard mapping and vulnerability assessment for priority areas  Engage in hazard mapping and vulnerability assessment of priority areas

NEMO

$250000.00

 Community support  Request for funding approved

NEMO

$5000.00

 Request for funding approved

Do stock taking of professionals with HRR skills and knowledge

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STRATEGIC INTERVENTION VII : Public Education, Training and Outreach Outcome

Operational Activities

Private and public sector agencies NGOs and CBOs knowledgeable of the linkages between hazard mitigation and their activities

Web site updated

Time Frame – 10 Years

Responsible Agency or Person

Resources

Assumption

Design and implement public education, training and outreach programmes targeting specific private sector and non-governmental agencies and organizations to internalize HRR measures in daily operations

NEMO

$250000.00

 Political will  Sector interest  Request for funding approved

Enhance web site with information data base to ensure information is available and accessible to the general public

NEMO

$100000.00

 Request for funding approved

STRATEGIC INTERVENTION VIII : Accessibility to Financial Resources Outcome

Operational Activities

Individual and Institutional capacity developed at NEMO and other agencies to access resources to engage in hazard risk reduction measures

Strengthening the capacity of Hazard Mitigation Coordinator to draft proposals, identify new sources of funding through linkages with other sectors and sustain donor support for specific activities

Time Frame – 10 Years

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Responsible Agency or Person

Resources

NEMO

$10000.00

Assumption

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BIBLIOGRAPHY Christies Dr. Donna R. (2001) Legislation, Policies and Regulations Relevant to Coastal Management in Belize : A Review and Proposals for Better Implementation of the Coastal Zone Management Act of 1998 CZMAI (2003) Draft Cayes Development Policy CZMAI (1999) State of the Coast Report 1999 Department of Environment (1995) Compendium on Environmental Protection and Natural Resource Management Legislation in Belize GOB Draft Policy on Adaptation to Global Climate Change GOB (2002) Medium Term Economic Strategy 2003-2005 Homer, Floyd (2005) Improving Governance of Protected Areas in Belize: Institutional, Management and Legislative Requirements MNRE (2005) Forest Department Strategic Plan (2005-2010) MNRE (1998) Belize National Biodiversity Strategy National Policy Development Committee (2004) Belize National Hazard Mitigation Policy PACT (2004) Strategic Plan 2005-2010, PACT : Belmopan Tunich Nah Consultants and Engineering (2003) National Aquaculture Policy and Zoning Plan for Belize Smith Warner International (2002) Terminal Report – Part 2 – Hazard Risk Assessment Trench-Sandiford, C. (2005) Final Consultancy Report – Decentralized National Land Use Planning Framework UNCHS – Habitat (1983) Planning for Human settlements in Disaster Prone Areas UNCHS:Nairobi UNFCCC Stock Take Report – Belize UNFCCC Thematic Report UNCCD Stock Take Report – Belize UNCCD Thematic Report - Belize Laws of Belize RE 2000 Draft National and District Councils for Sustainable Development Bill Country-specific references: Status of Hazard Maps, Vulnerability Assessments and Digital Maps. ·

Country Report on the Hazard Mapping and Vulnerability Assessment Prioritization Workshops Country Report on the Review of the Common Digital Database for HMVA.. Vulnerability Assessment of Critical Facilities Country Reports on the Introduction to Hazard Mitigation Planning Workshop Development of Soil Erosion Hazard Maps Country Report on Legislative Review and Institutional Capability Assessment for Hazard Mitigation

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Regional Guidance Documents British Virgin Islands. (2002). A Mitigation & Development Planning Framework. Department of Disaster Management. Caribbean Group for Cooperation in Economic Development (CGCED). (2002) Natural Hazard Risk Management in the Caribbean: Revisiting the Challenge. Discussion draft. World Bank, Private Sector & Infrastructure Department, Latin America and the Caribbean Region. USAID/OAS. (1997). Planning to Mitigate the Impacts of Natural Hazards in the Caribbean. Unit of Sustainable Development and Environment, Organization of American States. CDERA/USAID/UNDP. (2001). A Strategy and Results Framework for Comprehensive Disaster Management in the Caribbean (includes a Baseline Study and several annexes). UNDP. (undated). Post-Disaster Recovery Guidelines. A concise 10-page discussion on how to mainstream disaster risk reduction in the post-disaster environment. Available on the UNDP website. Prepared by the Bureau for Crisis Prevention & Recovery, Disaster Reduction Unit.

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ANNEX I-SAN PEDRO, AMBERGRIS CAYE HAZARD MITIGATION PLAN

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TABLE OF CONTENTS PART I 1.0 2.0 3.0 4.0 5.0 6.0 7.0

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4 4 5 5 5 5 6

ASSESSMENT

Introduction Hazard Mapping and Vulnerability Assessment Legislative and Institutional Capability Assessment Summary

PART III 12.0 13.0 14.0 15.0 16.0

BACKGROUND

Introduction Overview of Hazard Mitigation in San Pedro, Ambergris Caye The Rational The Challenges Context and Scope Approach and Methodology Limitations

PART II 8.0 9.0 10.0 11.0

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8 8 12 13

IMPLEMENTATION AND MITIGATION STRATEGY

Introduction Guiding Principles, Goals and Objectives Mitigation Strategy Plan Implementation Action Plan

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1.0

INTRODUCTION A Belize National Hazard Mitigation Plan (HMP) was drafted to serve as a guide to decision makers, government agencies, developers and contractors, design professionals and citizens on the tools and techniques that can be employed to decrease our vulnerability to future hazards. The research and consultations conducted to formulate the HMP identified seven (7) priority areas of Belize which were considered vulnerable to disasters. San Pedro, Ambergris Caye was one of these areas and was selected as a .pilot study area to conduct hazard mapping and vulnerability assessment for this purpose. The reasons for the selection as cited in the HMP were:   

The site has a high degree of vulnerability in the country; Resources of the project could provide for the research data for that area; Site possesses attributes and characteristics that can be used as a model for application in other parts of the country.

Ambergris Caye is approximately 25 miles from north to south and about 4.5 miles from east to west at its widest part. It is bounded by the Caribbean Sea to the east and Chetumal Bay to the west. On the eastern seaboard, the island comprises a narrow sand ridge overlying limestone. The leeward side of the Caye is characterized by low lying swamp land extending into a series of shallow lagoons. Offshore at varying distances, but averaging about 3500 feet offshore, the Belize Barrier Reef stretches the whole length of the caye and then extends southwards to the Gulf of Honduras. In the north of the island, and west of the lagoons to the south, the limestone platform rises to form a low scrub plateau. Off the west coast there are a number of smaller cayes. The San Pedro River, another narrow east/west channel, approximately 6 miles from the southern tip, effectively divides the island into two. The only town is San Pedro. It has a population of 6800 persons. Statistics show that the town has experienced dramatic increases between census periods, with 64.4 % and 143.3% respectively for the 1980-1991 and 1991-2000 period. This has been based on migration from the mainland Belize and other Central American countries to respond to the demands of the growing tourism industry, which is the island premier economic activity. Statistics also show that besides the resident population, the visitor population has increased significantly, both having implications to ecological integrity and disaster management. 2.0

OVERVIEW OF HAZARD MITIGATION IN SAN PEDRO, AMBERGRIS CAYE Records show that some 120 storms passed within 500 km of San Pedro Ambergris Caye since 1852 to present, of which 9 were categorized as catastrophic and another 14 as extreme on the Saffir Simpson scale. While many had no impact on the island, several did directly and indirectly, resulting in significant costs, economically, socially, physically and environmentally. Estimates of recent disasters were $1179200.0034 and $31431617.0035 for Hurricane Wilma and Tropical Storm Chantel respectively. Both central and local governments have responded in varying ways to these disasters. Generally,

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through legislative and regulatory measures, central government have set buffer zones from the high water mark, provided for the protection of mangroves, discouraged excessive mining of sediment from the beach system and limited the inappropriate siting of shore protection mechanisms and coastal structures. Specifically, a dredging operation was established to restore beaches subsequent to Hurricanes Mitch and Keith and Tropical Storm Chantel, and a tree planting soil stabilization programme implemented. Individual property owners have also constructed beach stabilization structures to prevent further erosion of shorelines. 3.0

THE RATIONALE San Pedro, Ambergris Caye is the tourism capital of Belize. Numerous piers, hotels, villas, houses, restaurants and bars line its white sandy beaches, exposed to the onslaught of hurricanes. To compound this situation is the breakages discovered in the Barrier Reef. To add to this dilemma, is the threat to it’s interior, which is slowly succumbing to encroachment of shanty towns on ecologically vulnerable ecosystems. Furthermore, the increase in population and rapid and unregulated development in the initial growth phase of the tourism industry has resulted in high building and population densities near the coast and the town core, broadening the types of hazards to which San Pedro is vulnerable, including fire. The continued viability of the tourism industry upon which both San Pedro and the country relies upon is intrinsically linked to firstly, the ability of all stakeholders to preserve the beauty and natural features that attract people in the first place, and secondly, to enable the perception of the island as a safe place in which to visit and vacation. Damages from hazards may create an image that the island is a dangerous and risky vacation stop. Thus it is important that the conditions upon which the island will grow and prosper economically is protected and enhanced, and hazard mitigation contributes to this.

4.0

THE CHALLENGES In addition to the challenges to hazard mitigation planning articulated in the Belize National HMP, preparing a HMP for San Pedro must also consider the local governance structure in the context of a centralized decision making disaster legislation and framework. Notwithstanding, while policies and legislation is a function of central government, NEMO accepts that communities are generally knowledgeable about their own environment and coping mechanisms and ways to reduce vulnerabilities. The challenge is therefore to harmonize the two tiers of government in engaging in HRR initiatives.

5.0

CONTEXT AND SCOPE The San Pedro, Ambergris Caye mitigation plan is a pilot study HMP, and is formulated within the context of the Belize National HMP and must be read in conjunction with that. In addition, the focus of the HMP will be on coastal erosion, storm surge/coastal flooding and wind hazards.

6.0

APPROACH AND METHODOLOGY The approach and methodology applied is similar to that of the national HMP as articulated in Part I-6.0 Development Solutions Ltd. June 2006

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7.0

LIMITATIONS There were a few limitations to formulating the San Pedro, Ambergris Caye HMP. Firstly, information about San Pedro is limited; and secondly, there was no organized community consultation in developing the localized objectives for the plan.

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8.0

INTRODUCTION This section presents the findings of the hazard mapping and vulnerability assessment and the legislative and institutional capability assessment that was conducted for San Pedro, Ambergris Caye.

9.0

HAZARD MAPPING AND VULNERABILITY ASSESSMENT

9.1.1 General Hazard mapping and vulnerability assessment was conducted for five (5) kilometers of shoreline, beginning above the town of San Pedro at the San Pedro River, and extending approximately 5 kilometers, south past Victoria House to Mosquito Cove. This area was found to be of high priority as a result of its recreational, residential and tourist related commercial purposes. See Figure 1. 9.2.

Hazard Identification, Prioritization and Description While San Pedro, Ambergris Caye is vulnerable to many types of hazards, three were prioritized for hazard mapping application. They are coastal erosion, wind and wave/storm surge.

9.3

Common Digital Database Consultancy The accurate identification, evaluation, and mapping of natural hazards for the development of the pilot HMP is dependent upon a consistent set of Geographic Information System (GIS) data. The CDERA/CDB Collaboration used consultants to develop a common digital database for undertaking the HMVA phase of the Plan development process. Digital elevation models were produced for the study area.

9.4

Hazard Mapping CEAC Solutions Ltd. was engaged to develop coastal erosion maps for the study area. The Consultants utilized the data base developed through the CDD as one of several data sources to produce the topographic digital data base to facilitate the storm surge analysis. Modeling parameters used for the study were 100 year return period, with a 20 years shelf life and the mean sea level as the baseline for the erosion modeling. The following captures the summary and conclusions. 

  

Bathymetric and topographic data highlighted the importance of the barrier reef to vulnerability reduction, and depicted four noticeable breaks. Depths between the reef and the coast do not exceed 3.5 meters and the topography is generally low lying; Sand grain found was essentially medium to coarse, with one particular area markedly coarser; Anecdotal references indicated that Hurricane Mitch caused 3-20 meters of erosion, the most occurring at Banyan Bay. Erosion pattern have been influenced by dredging, beach nourishment and sea walls; The most frequent hurricane waves are from a northeasterly to easterly direction, but the greatest wave heights and periods were from the east and southeast, 9.6 meters, 15.3 seconds and 8.6 meters, 14.5 seconds respectively; Development Solutions Ltd. June 2006

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Storm induced erosion is not uniform along the study area as both anecdotal reference and modeling patterns revealed that certain areas along the shoreline are more prone to erosion than others. This is likely due to various factors, including breaks along the reef system, shoreline orientation, and grain size. The area in the general vicinity of Banyan Bay is likely to experience substantially greater storm induced erosion than the remainder of the study area. This is supported by the results of Hurricane Mitch, presence of very coarse sand and high wave energies; Long term estimation points to the southern most section of the study area being more vulnerable to dune line retreat as a result of erosion.

Key recommendations of the study are:     



Future erosion studies should collect sand samples from the back of the beach area and near shore areas as well for better model calibration and to determine which area sand is effectively being removed from the beach; A detailed study of anthropogenic influences and their effect on morphodynamics of the shoreline should be undertaken to understand erosion patterns; Anthropogenic activities should also be monitored and borrow and fill areas defined; A sediment transport study would be useful to trace the movement of sediments and the under varying conditions; Beach profile monitoring at quarterly intervals with standard bench marks over a long term period would help highlight the natural beach profile changes and associated shoreline retreat seen with average prevailing conditions and typical seasons. In addition, beach profiles should also be monitored before and after extreme events in order to have direct measurements of the changes observed. This could affect calibration of erosion models in the future; A study of possible beach stabilization and protection works should be undertaken for the most critical areas, for instance, at the centre of San Pedro and areas at which residential and commercial area exists in close proximity to the shoreline. Stabilization structures which should be considered include breakwaters and buried revetments. The studies should incorporate the effects of erecting such protective beach works on the morhpodynamics of the beach.

The study was reviewed in a workshop held January 19, 2006. Recommendations from the workshop were as follows: Coastal Erosion Hazard:   

Beach monitoring is needed to identify causes and patterns of coastal erosion, as well as would provide necessary historical data which is currently absent for San Pedro; The coastal erosion model was calibrated using anecdotal information for one hurricane event (Hurricane Mitch) and this should be clearly highlighted on the map; Additional studies are needed to consider the effects of anthropogenic activities (such as dredging and the removal of sand when clearing beaches of turtle grass); Development Solutions Ltd. June 2006

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That a more rigorous study (one which includes beach stabilization and sediment transport regime) be carried out to determine coastal erosion in the future since the present model only considered the effect that one factor, sea level rise, would have on coastal erosion in the next twenty years; The need for consideration of the outputs from the wind and wave hazard study on coastal erosion via a multi-hazard study; The need for investment in high resolution imagery such as LIDAR data which could improve the accuracy of hazard mapping.

Wind Hazard: 

That based upon indigenous knowledge, the prediction for the 50 year MLE Wind Risk Map of 30-35 m/s seemed too low.

Wave/Storm Surge Hazard: 

   9.5

The TAOS model had already been utilized for the entire country of Belize. However, the output was not very useful. It was thought that the study would result in an inland inundation flood output which was not the case; There is a need for wave heights to be interpolated to give inland inundation (the resolution should be one which would facilitate planning); There is no historical storm surge data for San Pedro, hence the type of data used to calibrate the TAOS model may not have been applicable; Clarification required on the statistical approach used by the TAOS model (whether maximum annual analysis or minimum search radius).

Vulnerability Assessment

9.5.1 General As was stated in the Belize National HMP, Vulnerability Assessments (VA) are systematic evaluations of buildings, facilities, population groups or sectors of the economy that are susceptible to damages from the effects of natural hazards, and is determined not only by a facility’s geographic location and susceptibility to prevalent natural hazards, but also by the structure’s characteristics (design, materials, and quality of construction). An important component of VA is the assessment of critical facilities. These are those structures important to the general health and welfare of public, particularly following a natural disaster event. The process applied determined hazard, exposure and vulnerability scores, which are all valuable inputs to hazard mitigation planning. The hazard mapping effort conducted by others provides valuable information for physical planning and development review for future development in the study region. The ranking of exposure alerts emergency management officials to the potential for monetary damages to critical facilities. When the hazard and exposure scores are combined it provides a powerful tool for hazard mitigation planning, by providing a ranking of the vulnerability of critical facilities in the study region. Scarce financial resources can then be effectively targeted to retrofitting only the most

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vulnerable critical facilities. Twenty seven (27) critical facilities were identified in the study area. 9.5.2 Hazard Score The average hazard scores ranged from 0 to 2.00. The eight (8) facilities with the highest average hazard scores are presented in the table below. Average Hazard Score

Facility ID

Classification Code

11

WWLS

Waste Water Lift Station #5

2

12

WWLS

Waste Water Lift Station #4

2

17

CLTW

Main Communication Tower

2

20

ESS1

9

WWLS

18

CC01

19

PP2

21

ERPS

Facility

Belize Electrical Limited – Substation

2

Waste Water Lift Station

1.66

Belize Telecom Limited - Main Office

1.66

Belize Electrical Limited - Power Station

1.66

Police Station

1.66

9.5.3 Exposure Score The exposure score ranged from 0 to 5.00. The six (6) facilities with the highest combined exposure score included in the table. Facility ID

Classification Code

Facility

Exposure Score

1

WWT2

BWL – Water Salidation Plant

5

8

WWT1

Waste Water Treatment Pond

5

5

WPP1

Belize Water Service

4

10

HT3

San Pedro Polyclinic II

16

ERSH

San Pedro Roman Catholic School

3.9

15

ELRT

Belize Electrical Limited - Relay Tower

3.6

3.9

9.5.4 Combined Vulnerability Score The combined vulnerability score ranged from 0 – 10.00. The seven (7) facilities with the highest combined vulnerability score are depicted in the table below. Facility ID

Classification Code

Facility

Vulnerability Score

7

PST2

Belize Water Services - Water Tank

10

26

ESEC

Submersible Electrical Cable Entry Point

10

25

TFP1

Marina

8

23

TIB2

Boca del Rio Bridge

6.5

24

ESS1

Belize Electrical Limited - Substation

6.5

21

ERPS

Police Station

5

22

ERFS

Fire Station

6

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10.0

LEGISLATIVE ASSESSMENT

REVIEW

AND

INSTITUTIONAL

CAPABILITY

An effective hazards risk reduction programme requires a solid understanding of the existing opportunities and constraints for reducing vulnerability across all sectors of the economy. A review of existing legislation and authorities for disaster and hazard mitigation related activities and a review of the institutional capabilities of key agencies and organizations were conducted by regional experts and the Country Plan Coordinator (CPC) and presented in the Belize HMP. While all the legislation analyzed are applicable, of significant importance are the Housing and Town Planning Act, the Town Council Act, the Belize Building Act and the Disaster Preparedness and Response Act (1)

Housing and Town Planning Act (HTPA):

In 1991, in accordance with s41 of the HTPA, the Central Housing and Planning Authority (CHPA) passed a resolution to prepare a scheme for Ambergris Caye. In accordance with s 6 of the said act, a committee was appointed for the purposes of S 49, that is, to grant permission, with or without conditions, to persons applying to develop land, construct, demolish, alter, extend, repair or renew a building, or to prohibit the further development of land, or construction, demolition, alteration, extension, repair or renewal of any building in the area of the scheme during the period of the passing of the resolution to prepare the scheme and the passing of a resolution to adopt the scheme. The committee was also charged with reviewing a Draft Master Plan for Ambergris Caye which was prepared in 1988-89, through cooperation and funding from the World Tourism Organization and the United Nations Development Programme. This was never intended as a mitigation tool. Rather, it was in direct response to development pressures on the island as a consequence of the rapid tourism growth. The project was intended to serve as a planning and regulatory model for application, mutatis mutandis, to other similar areas in Belize under development pressures. Since 1991, several committees have been appointed by the CHPA for the purposes stated before. The composition of the present committee includes representation from Lands and Surveys, Public Health, Housing and Planning Department, Department of Environment, the Town Council and the private sector. This committee has in its employ one building inspector. Despite the fact that the law states that once a resolution to prepare a scheme has been passed, the Authority with due haste should prepare the scheme and submit it to the minister for approval, a scheme has been prepared, with standards and guidelines to regulate development, but has not yet been approved. Currently, it is being used as a guideline to approve or prohibit development in accordance with s49. (2)

Town Council Act (TCA):

The San Pedro Town Council is governed by the Town Council Act. This act empowers it to lay out and build streets, make by-laws in regard to the rule and good order of the town and for the proper carrying out of its objects and purposes. These are for mainly operational matters such as regulating public Development Solutions Ltd. June 2006

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lavatories, licensing horses and carts, managing and regulating markets, bath houses etc., lightening of streets and markets and buildings etc., regulating parks, playgrounds, streets, canals, drains etc. Discussions with town council personnel revealed that while they are engaged in mandated activities, these are not considered for the purposes of hazard mitigation.36 The mayor is authorized to assign members of the council with specific areas of responsibilities, including town zoning, planning and health among others. While it does not mention disaster mitigation, responsibilities can be assigned for coordination between the town council and GOB. (3)

The Belize Building Act (BBA)

The BBA provides for the regulation of the construction of buildings. It provides at s 4 for the appointment of Local Building Authorities by the Minister on the recommendation of the Local Authority. For the purpose of the BBA, the Local Authority is the San Pedro Town Council. At s9, it provides for the Central Building Authority to make regulations as to the type of buildings the Local Building Authorities will deal with. (4)

Disaster Preparedness and Response Act (DPRA)

The DPRA does not explicitly provide for community participation in decision making. However, s5 (6) empowers the NEC to establish committees and sub committees, and charge them with responsibilities. A San Pedro Special Emergency Committee was established for the purposes of this Act. Membership is drawn from the private sector, the public sector and the town council. However, the committee role is primarily concerned with emergency response and recovery functions and has not yet focused on risk reduction initiatives. 11.0

SUMMARY From the hazard mapping and vulnerability and legislative and institutional capability assessment, the following can be discerned: Hazard Mapping and Vulnerability Assessment:     

36

The most frequent hurricane waves are from a northeasterly to easterly direction, but the greatest wave heights and periods were from the east and southeast; Storm induced erosion is not uniform along the study area; this is likely due to various factors, including the breaks in the reef system, shoreline orientation, and grain size. The area in the general vicinity of Banyan Bay is likely to experience substantially greater storm induced erosion than the remainder of the study area; Long term estimation points to the southern most section of the study area being more vulnerable to dune line retreat as a result of erosion; There is a need for studies on sediment transfer, beach stabilization and protection works, anthropogenic influences on the shoreline and beach profile monitoring;

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Seven facilities were identified as being the most vulnerable based on a combination vulnerability scores. These are, in order of descending priority, BWS water tank, Submersible Electric Cable Entry Point, the Marina, Boca del Rio Bridge, BEL Sub-station, Police and Fire Stations.

From the legislative and institutional capability assessment, it can be discerned that:       

Similar legislation as assessed in the national HMP applies to San Pedro, Ambergris Caye Pilot Area; The Housing and Town Planning Act is currently been utilized to regulate development and building construction, but that act has several deficiencies; There is an office with staff to engage in development regulation; The Town Council Act empowers the Council to engage in activities which can contribute to hazard mitigation; Hazard mitigation is not internalized in the operations of the Town Council; The Town Council has limited technical capacity to engage in HRR activities; NEMO is represented by the San Pedro Special Emergency Committee. However, this committee is only engaged in emergency response related activities.

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12.0

INTRODUCTION The Belize National Hazard Mitigation Policy states as its vision “A society safer from natural and technological hazards supported by integrated, social, economic and natural resource development.” The policy articulates two (2) goals with corresponding objectives and was shaped by five (5) guiding principles. This section presents the Mitigation and Implementation Strategy for the Ambergris Caye Pilot Study Area. It is built upon the traditional framework of goals, objectives and strategic actions. It combines the contribution and input from the PDC, the Town Council, vulnerability and legislative and institutional capability assessments.

13.0

GUIDING PRINCIPLES, GOALS AND OBJECTIVES

13.1

General These goals and objectives were localized to address hazard mitigation concerns specific to San Pedro, Ambergris Caye region but within the hazard mitigation planning framework developed for the national HMP. From the national policy and HMP, a Mitigation Strategy and Actions were developed.

13.2

Guiding Principles The following guiding principles were extracted from the HMP. They provide continuity from the HMP and underpin the goals and objectives. Principle # 1 : The value of vulnerability assessment and reduction Principle # 2: The importance of an integrated approach to hazard risk management and development activities Principle # 3 : The requirement for community mobilization and public education Principle # 4 : The need for protection of the environment Principle # 5 : The need for good governance

13.3

Goals and Objectives Four broad policy statements to be achieved through specific objectives identified to support, correspond and define a path on how to attain the goals and lead to implementation were developed. These serve as the framework for obtaining the vision over the long term planning horizon. Goal 1 : Integrate hazard mitigation principles into municipal management, development planning and review process Objectives: 1.1

Internalize hazard mitigation principles into the operations of the San Pedro Town Council;

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1.2

Include hazard mitigation as a key component of forward planning efforts for Ambergris Caye that address natural resource management and social and economic development concerns and issues;

1.3

Incorporate designs into buildings and other development projects that reduces their vulnerability to hazards.

Goal 2 : Integrate hazard mitigation principles into environmental management initiatives Objectives: 2.1

Preserve, rehabilitate and restore areas of natural beauty and ecological importance;

2.2

Increase awareness and understanding of the citizenry of the importance of environmental management to the sustainability of the tourism industry.

Goal 3 : Build capacity at the local level to effectively engage in hazard mitigation programmes and projects Objectives: 3.1

Increase awareness and understanding of the citizenry to the principles of hazard mitigation and their roles in it;

3.2

Strengthen the knowledge base of the populace through public information, education, training and communications;

3.3

Increase availability and accessibility to data to inform decision making in the public and private sector and NGO and CBO communities.

Goal 4 : Reduce the impact of hazards on residents and properties Objectives:

14.0

4.1

Reduce the vulnerability of critical facilities to disasters;

4.2

Reduce the vulnerability of existing and future development.

MITIGATION STRATEGY Objective 1.1

Internalize hazard mitigation principles into the operations of the San Pedro Town Council (SPTC)l

1.

Establish a HRR Working Committee of the San Pedro Emergency SubCommittee with representation from NEMO and the SPTC with the task of reviewing all municipal operations of the SPTC to establish their relationship to HRR;

2.

Engage the HRR Working committee of 1 preceding for continued review and monitoring of the HRR activities of the SPTC. Development Solutions Ltd. June 2006

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Objective 1.2

Include hazard mitigation as key component of forward planning efforts for Ambergris Caye that address natural resource management and social and economic development concerns and issues:

3.

Review the Draft Master Plan for Ambergris Caye with the specific purpose of incorporating HRR as a key component in the development strategy;

4.

Review and evaluate siting and development guidelines and standards currently being used in the development review process by virtue of the HTPA to amend them where necessary in view of the findings of the HMVA.

Objective 1.3

Incorporate designs into buildings and other development projects that reduces their vulnerability to disasters

5.

Establish design specifications for buildings and development projects that address HRR for public use and knowledge;

6.

Review the building approval process to incorporate HRR design criteria.

Objective 2.1

Preserve, rehabilitate and restore areas of natural beauty and ecological importance

7.

Develop maps delineating wetlands and mangrove ecosystems which require preserving, rehabilitating and restoring to maintain their natural beauty and ecological functions;

8.

Integrate information of 7 preceding into the review of the Ambergris Caye Master Plan to delineate these areas for preservation;

9.

Design and implement programmes to facilitate the preservation and restoration of areas at risk.

Objective 2.2

10.

Design and implement and implement public awareness programme which provides information to the citizenry on best practices in environmental stewardship and tourism sustainability.

Objective 3.1

11.

Increase awareness and understanding of the citizenry of the importance of hazard mitigation to environmental management and the sustainability of the tourism industry

Increase awareness and understanding of the citizenry to the principles of hazard mitigation and their roles in it

Design and implement public awareness programmes concerning known hazards, emergency procedures, sources of information and individual responsibilities

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Objective 3.2

Strengthen the knowledge base of the populace through public information, education, training and communications

12.

Design and implement programmes for school population and target groups to include hazard mitigation in school curricula and in their daily operations and activities;

13.

Design and implement programmes to train members of the San Pedro Emergency Sub-committee and those with direct public responsibilities in the field of development and hazard mitigation concerning methods of data collection, analysis, design, construction, planning, management administration and so on.

Objective 3.3

Increase availability and accessibility to data to inform decision making in the public and private sector and NGO and CBO communities

14.

Establish a repository of data base information of maps, demographics etc. to contribute to hazard mitigation; of agencies and professionals engaged in hazard mitigation and of best practices in hazard mitigation at the SPTC to be accessible to public and private sector and NGO and CBO to guide decision making;

15.

Conduct studies on sediment transfer, beach stabilization and protection works, anthropogenic influences on the shoreline and beach profile monitoring to guide decision making.

Objective 4.1 14.

Reduce the vulnerability of critical facilities to disasters

Conduct structural engineering assessments of the top seven (7) priority critical facilities identified and prepare concept designs and costs to retrofit where necessary.

Objective 4.2

Reduce the vulnerability development to disasters

of

existing

and

future

15.

Develop a programme to provide an annual budget for the continued execution of projects to remove built up sediment, debris, drainage channels and street drains and beach nourishment;

16.

Advocate for the appointment of the Local Building Authority.

15.0

PLAN IMPLEMENTATION

15.1

General Plans express a vision for the future, especially how future development will look and function. Without implementation, continuous monitoring and evaluation, they will remain simply statements of intent. It is therefore essential that an implementation plan be developed to complement the mitigation strategy presented in 14.0. This is presented as Pre- and Post Disaster Mitigation Actions.

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It must be noted that due to the lack of information and community participation in identifying mitigation actions, these will be broad based. 15.2

Pre-Disaster Strategy The specific activities the Pre-Disaster Strategy has been placed into four cross cutting mitigation actions: (1) 



   

(2)

Building Institutional and Legislative Capability to Manage Risk NEMO to establish HRR working committee to review operations of SPTC to identify activities of the SPTC which contribute to hazard mitigation and to create recognition at the council level of the linkages of their operations to HRR; Conduct review of Ambergris Caye Master Plan to incorporate HRR in the :  Physical, social, economic and environmental development strategy for the Caye;  Standards for development including no development zones on the beach, along the river and within proximity of sensitive wetlands and ecosystems; setbacks between buildings and permissible development densities; Advocate for the adoption of the revised plan in accordance with the Housing and Town Planning Act; Advocate for the appointment of the Central Building Authority and subsequent, the appointment of the Local Building Authority for San Pedro, Ambergris Caye; Review the criteria for approving building applications to incorporate hazard mitigation concerns as a requirement for approval; Conduct structural engineering assessments of the top seven (7) priority critical facilities identified and prepare concept designs and costs to retrofit where necessary. Establishing a HRR Information Management System

      

Develop design specifications that require builders and developers to address HRR for public and private sector developments and make available for public use; Conduct research and analysis to develop maps delineating wetlands and mangrove ecosystems at risk and which require preserving, rehabilitating and restoring to maintain their natural beauty and ecological functions; Design and conduct erosion studies to collect sand samples from the back of the beach area and near shore areas for better model calibration and to determine which area sand is effectively being removed from the beach; Design and conduct a detailed study of anthropogenic influences and their effect on morphodynamics of the shoreline to understand erosion patterns; Design and administer studies to determine the impact anthropogenic activities have on the shoreline and to monitor the borrow and fill areas; Design and conduct a sediment transport study to trace the movement of sediments and the under varying conditions; Design and conduct beach profile monitoring at quarterly intervals with standard bench marks over a long term period and before and after extreme Development Solutions Ltd. June 2006

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events to help highlight the natural beach profile changes and associated shoreline retreat seen with average prevailing conditions and typical seasons; Design and conduct studies for possible beach stabilization and protection works to be undertaken for the most critical areas, for instance, at the centre of San Pedro and areas at which residential and commercial area exists in close proximity to the shoreline. Stabilization structures which should be considered include breakwaters and buried revetments. The studies should incorporate the effects of erecting such protective beach works on; Conduct research and stocktaking of baseline data, maps, best practices in HRR and other information on hazard mitigation and establish a digital and hard copy repository at the offices of the SPTC to be accessible to public and private sector and NGO and CBO to guide decision making.





(3)

Engaging in Environmental Management  

(4)

Public Education, Training and Outreach    

15.3

HRR working committee to design and implement a programmes to preserve and restore identified wetlands and habitats at risk; HRR working committee to develop a programme of sustained works for mitigation projects that lessen the impact of disasters by physically modifying the environment including the removal of built up sediment and debris, drainage system maintenance and beach nourishment projects.

Design and implement and implement public awareness programmes which provides information to the citizenry on best practices in environmental stewardship and tourism sustainability; Design and implement public awareness programmes concerning known hazards, emergency procedures, sources of information and individual responsibilities; Design and implement programmes for school population and target groups to include hazard mitigation in school curricula and in their daily operations and activities; Design and implement programmes to train members of the San Pedro Emergency Sub-committee and those with direct public responsibilities in the field of development and hazard mitigation concerning methods of data collection, analysis, design, construction, planning, management administration and so on.

Post Disaster Strategy

15.3.1 Disaster Assessment The rapid assessment of disaster damages and societal needs following a major event is critical, not only to inform immediate emergency response functions but to provide preliminary estimates of recovery and reconstruction needs. This information is vital to guide the actions of government agencies in both the short and long term in several ways. It is valuable in informing regional relief organizations and the international donor community. In addition, it is a source for the HRR Information System as it can provide valuable lessons for use in Development Solutions Ltd. June 2006

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other contexts, and case studies may be useful in predicting what types of development will increase or decrease vulnerability The Damage Assessment and Needs Analysis Committee must ensure that the data it will collect is in a standardized format and type, because generalizations about the past can be applied only if experiences can be compared, evaluated and summarized. In addition, residents of San Pedro must be trained to conduct these assessments as often times they will be the first to respond to a disaster. 15.3.2 Legislative Requirements The SPTC can pass by-laws to engage the citizenry in hazard mitigation activities through procedures and tax credits for solid waste storage and disposal, landscaping and individual beach nourishment and stabilization programmes. As well, it can institute penalties and volunteerism in enforcement of the laws which requires the citizenry to perform tasks which contribute to hazard mitigation. 15.3.3 Institutional Mechanisms The SPTC must identify and designate an officer to be their Hazard Mitigation Officer and redefine their job description to reflect this. This officer will be responsible for monitoring the implementation of the HMP and the operations of the SPTC as it relates to hazard mitigation. 15.3.4 Identifying Post-disaster Mitigation Opportunities Post disaster environments provide opportunities both at the national and local levels. In the case of San Pedro, it provides the opportunity to redevelop areas impacted upon using already defined strategy, standards and guidelines for development in the Master Plan, which would have incorporated HRR principles. 15.3.5 Monitoring, Evaluating and Updating the Plan The HMP is not intended as a static document and its objectives, strategies, programmes and projects may be changed over time based upon assessments of whether they are effective in achieving the stated goals. Monitoring of plan implementation will be the responsibility of the Hazard Mitigation Working Group through the Officer assigned at the SPTC and NEMO. The monitoring, evaluating and updating of the HMP must be specified in the Terms of Reference of the Hazard Mitigation Working Group and Officer. The HMP has clearly defined outputs and time lines. The role of the Hazard Mitigation Working Group will be to establish the criteria for evaluating the HMP and the intervals within which the HMP will be evaluated. 16.0

ACTION PLAN The implementation of the HMP spans ten years. The following matrix details the operational activities, expected outcome, specified time frame to perform the activity, the agency responsible for executing the task, the resources required to execute the task and the assumptions made in respect of the outcome.

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Belize National Hazard Mitigation Plan

MITIGATION ACTION # 1 - Building Institutional and Legislative Capability to Manage Risk Outcome

Operational Activities

Hazard mitigation internalized into the operations of the SPTC

Time Frame – 10 Years

Responsible Agency or Person

Resources

Assumption

 Prepare TOR of HRR working committee  Establish committee and conduct review of operations of SPTC  Assign SPTC Hazard Mitigation Officer with TOR  Design and implement programme to create awareness of connection of municipal operations to hazard mitigation

NEMO/SPTC

$15000.00

 SPTC is interested

Ambergris Caye Master Plan incorporates HRR in its development strategy and standards

Conduct review of Ambergris Caye Master Plan to incorporate HRR in development strategy and standards

MOH

$25000.00

 Political will  Funding provided

Ambergris Caye Master Plan adopted and used as a mitigation tool to guide and regulate development activities

 Ambergris Caye Planning Committee submits revised plan to CHPA for adoption  CHPA pursues legislative path to adopt the Master Plan

MOH

National Budget

 Political will

Local Building Authority appointed and functional

Request made to the MOH to appoint Central Building Authority and subsequent Local Building Authority

MOH

National Budget

 Political will

Hazard mitigation concerns incorporated in building approval process

Conduct review of current building application process to incorporate HRR as a criteria for approval

MOH

$5000.00

 Political will

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 Vulnerability of critical facilities to disasters reduced  Where vulnerability is not reduced, concept designs and estimates have been prepared and approved for implementation in the aftermath of a disaster

 Conduct engineering assessments of prioritized critical facilities  Prepare concept designs and estimates to retrofit as necessary;  Identify and secure funding to retrofit as necessary  Consultants engaged to retrofit buildings

MOW

To be discussed

Responsible Agency or Person

Resources

Assumption

MOH

$15000.00

 Political will  Funding provided

DOE

$100000.00

 Political will  Funding provided

MITIGATION ACTION # 2 :Building HRR Information Management System Outcome

Operational Activities

Designs for public and private sector projects incorporates HRR

Develop design specifications that require builders and developers to address HRR for public and private sector developments and make available for public use;

Wetlands and mangrove ecosystems at risk delineated on maps





Time Frame – 10 Years

Conduct research and analysis to develop maps delineating wetlands and mangrove ecosystems at risk and which require preserving, rehabilitating and restoring to maintain their natural beauty and ecological functions; Develop maps

Development Solutions Ltd. June 2006

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Belize National Hazard Mitigation Plan

Data is being utilized by the private and public sector in decision making





 

Data base of findings of studies is integrated into HRR Information System

Conduct research and stocktaking of baseline data, maps, best practices in HRR and other information on hazard mitigation Establish a digital and hard copy repository of the data gained from the research at the offices of the SPTC to be accessible to public and private sector and NGO and CBO to guide decision making; Establish linkage to HRR Information System of NEMO Create awareness of the availability of the data and processes for accessing the data

NEMO

Conduct studies on the following to form a data base to for the HRR Information Management System:  sediment transfer  beach stabilization and protection works  anthropogenic influences on the shoreline  and beach profile monitoring

$150000.00

NEMO To be discussed

Development Solutions Ltd. June 2006

 Political will  Funding provided

MITIGATION ACTION # 3 :Engaging in Environmental Management Outcome

Operational Activities

The health and integrity of wetlands and other ecological ecosystems and habitats restored Sustained programme of hazard mitigation activities being executed

Time Frame – 10 Years

Responsible Agency or Person

Resources

Design and implement a programme to preserve and restore identified wetlands and habitats at risk

DOE

To be discussed

 Using data from studies conducted, design and develop a programme of sustained works for mitigation projects that lessen the impact of disasters by physically modifying the environment including the removal of built up sediment and debris, drainage system maintenance and beach nourishment projects  Implement programme as designed

SPTC

To be discussed

Responsible Agency or Person

Resources

NEMO

$15000.00

Assumption

MITIGATION ACTION # 4 :Public Education, Training and Outreach Outcome

Operational Activities

An informed citizenry engaged in environmental stewardship

 Design and cost public awareness programmes which provides information to the citizenry on best practices in environmental stewardship and tourism sustainability  Implement Programme

Time Frame – 10 Years

Development Solutions Ltd. June 2006

Assumption

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A citizenry that is equipped with the knowledge to make informed decisions regarding daily life

 Design and cost public awareness programmes concerning known hazards, emergency procedures, sources of information and individual responsibilities in hazard mitigation  Implement programme

NEMO

$15000.00

Hazard mitigation is incorporated in the school curriculum

 Design and cost programmes for school population and target groups to include hazard mitigation in school curricula and in their daily operations and activities  Implement Programme

NEMO

$10000.00

Individual capacity exist to engage in research, analysis and use of hazard mitigation data

 Design and cost programmes to train members of the San Pedro Emergency Sub-committee and those with direct public responsibilities in the field of development and hazard mitigation concerning methods of data collection, analysis, design, construction, planning, management administration and so on;  Implement programme

NEMO

$10000.00

Development Solutions Ltd. June 2006

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