SUSTAINABLE DEVELOPMENT UNIT LATIN AMERICA AND THE CARIBBEAN 70122 Disaster Risk Management in Central America: GFDRR Country Notes Panama PANAMA COUNTRIES MOST EXPOSED TO MULTIPLE HAZARDS (Top 15 Based on Land Area with 3 or more hazards)a 1. Taiwan, China 2. Costa Rica 3. Vanuatu 4. Philippines 5. Guatemala 6. Ecuador 7. Chile 8. Japan 9. Vietnam 10. Solomon Islands 11. Nepal 12. El Salvador 13. Tajikistan 14. PANAMA 15. Nicaragua a Dilley et al. (2005). Table 1.1. Panama ranks 14th among countries most exposed to multiple hazards based on land area, according to the World Bank’s Natural Disaster Hotspot study. Bridge of the Americas, Panama PANAMA Natural Disasters from 1983 - 2008b Affected People Economic Damages Disaster Date Affected (Number of People) Disaster Date Cost (US$ x 1,000) Drought 1993 81,000 Storm 1988 60,000 Flood 2008 23,292 Storm 1992 10,000 Flood 1991 20,061 Flood 2008 10,000 Earthquake* 1991 18,060 Flood 1995 7,000 Flood 2002 15,000 Flood 2005 7,000 Flood 2004 11,650 Flood 2000 1,300 Flood 2002 11,500 Flood 2002 500 Storm 1988 8,732 Flood 1996 350 Flood 2004 7,698 Storm 1998 50 Storm 1998 7,500 Drought 1983 0 Statistics by Disaster Typeb Population Affected by Disaster Type Economic Damages / Disaster Type (1000s US$) 80,000 70,000 60,000 43% 50,000 7% 2% 40,000 10% 30,000 20,000 37% 10,000 0 Flood Storm Flood Epidemic Earthquake Drought Storm Relative Vulnerability and Risk Indicatorsc Major Disaster Impact (2000) 100.00 Lack of Resilience (2007) 50.00 Local Events (2006-8) 0.00 Socio-economic Fragility (2007) Risk Management Index (2008) LCR 17 Average Exposure & Physical Susceptibility (2007) Panama b UN (2009). http://www.preventionweb.net/english/countries/statistics/?cid=131. Source data from EM-DAT. Data displayed does not imply national endorsement. c Relative Vulnerability and risk Indicators are adapted from IADB-IDEA-ERN (2009). Values are normalized on scale of 0 – 100 and presented against the average for 17 LCR countries. Major disaster Impact taken from disaster deficit Index: the ratio of economic losses which a country could suffer during a Maximum Considered event and its economic resilience. Local events taken from Local disaster Index: the propensity of a country to experience recur- rent, small-scale disasters and their cumulative impact on local development. risk Management Index is presented as the negative (i.e. 0 = optimal, 100 = incipient) of IADB’s Risk Management Index: measures a country’s risk management capability in (i) risk identification, (ii) risk reduction, (iii) disaster management, and (iv) financial protection. resilience, Fragility and exposure are taken from the component indices of Prevalent Vulnerability Index. Date for local event data depends on information available for each country. Data, and the respective LCR 17 average, from 2000 is used for Dominican Re- public, El Salvador, Guatemala, Jamaica and Nicaragua. Data, and the respective LCR 17 average, from 2006-08 is used for Bolivia, Colombia, Costa Rica, Ecuador, Panama and Peru. All LCR 17 averages are calculated based on available data. 75 Disaster Risk Management in Central America: GFDRR Country Notes DISASTER RISK PROFILE The country is located over a segment of the Caribbean tectonic plate, namely the Panama Panama ranks 14th among countries most Deformed Belt (also known as the Panama micro- exposed to multiple hazards based on land area, plate), at the border of the Cocos and Nazca Plates, according to the World Bank’s Natural Disaster with influence from the nearby South American Plate. Hotspot study.2 Panama has 15% of its total area This is one of the most important seismogenic sources exposed and 12.5% of its total population vulnerable in the region as part of the Circum-Pacific Belt. to two or more hazards. The same study ranks Panama 35th among countries with the highest percentage Earthquakes have continued to strike Panama. In 2003 a magnitude 6.0 earthquake struck Panama of total population considered at a “relatively high near the Costa Rican border; the event was followed mortality risk from multiple hazards.� by more than 60 aftershocks (of magnitude higher than 4.0) during the following few weeks. Soil liquefaction occurrences were widespread, creating more damage to the infrastructure and at least three fatalities.5 Major Natural Hazards Tremors of magnitude 4.0 or less are common in Panama, particularly near the borders with Costa Rica Due to its geographical location and and Colombia. According to local experts from the geotectonic characteristics, Panama is exposed University of Panama’s Geosciences Institute, there to a variety of natural hazards, including is a considerable amount of active geologic faults in hydrometeorological and geophysical hazards. Panama, and at some point a powerful earthquake is The Isthmus of Panama is only 60 to 90 km wide going to happen. The seismic history of Panama shows between the Caribbean Sea and the Pacific Ocean, that there have been many earthquakes greater than 7.0 with a mountain divide well known for its slope on the Richter scale throughout recorded history. instability, intense rainfall and active tectonics. Volcanism and tsunamis are also present in Panama is characterized by very intense and Panama with a volcanic range stretching from the long lasting rainfalls, windstorms, floods, border with Costa Rica to the East, dividing the droughts, wildfires, earthquakes, landslides, country into two main North-South watersheds tropical cyclones, tsunamis and ENSO3/El (Caribbean and Pacific). The Chiriquí volcano, also Niño-La Niña episodes. Natural Disaster Data known as Barú, is the highest mountain peak of the from Panama published on the Prevention website4 country, reaching 3,475m.6 The latest eruptions of indicates that the country experienced 32 natural the Barú and La Yeguada Volcanoes were recorded disaster events between 1983-2008, with total around 1550 and 1620, respectively. Tsunamis have economic damages estimated at US$86 million, with been recorded as affecting both Panama’s Caribbean a total of 249 people killed by these events. and Pacific shores with up to 5m surge wave height. 2 Dilley et al. (2005). 3 El Niño-Southern Oscillation; commonly referred to as simply El Niño, a global coupled ocean-atmosphere phenomenon. 4 Prevention Web (2010b). 5 Damage caused by the 2005 earthquake: http://www.igc.up.ac.pa/info.jpg. 6 Instituto de Geociencias (2010). 76 PANAMA GDP growth upon conclusion of the canal expansion Exposure and Vulnerability project is projected. Special attention in Panama is required to protect these assets by reducing the The most important recent disasters in Panama country’s increased vulnerability. have resulted from vulnerability to floods, landslides, earthquakes, windstorms, wildfires and Global climate change models9 have predicted storm. A high proportion of the low-income population that Panama will undergo several climatic shifts in Panama lives in areas most exposed to natural such as increases in temperatures, droughts, higher- hazards and resides in poorly designed and inadequately intensity rainfalls and storms, and rising sea level. It built structures. The poor enforcement of national is known that ENSO events have already severely and local land use regulations, the uncertainty about impacted water availability and canal operations. It compliance with building codes, rapid demographic is also known that inter-annual climate variability of growth and unplanned urban and industrial expansion either the Pacific (i.e. ENSO) or the Atlantic (i.e. North are responsible for most of the current and significant Atlantic subtropical highs) causes a significant amount increases in vulnerability. Panama City’s skyline is of the total variance in rainfall in the Caribbean and growing steadily and concerns are widespread about throughout Central America.10 There are geological, adherence to construction codes. geomorphologic, and hydrometeorological studies, developed or sponsored by the Panama Canal In light of its significant economic growth, Authority, that can be interpreted as studies on natural the Government of Panama must be proactive hazards exclusively for the Panama Canal watershed. to ensure the country reduces its long- term exposure to hazards. The integration of As is the case in most Central American disaster risk management is essential in large countries, cities in Panama have grown steadily infrastructure investments such as the ongoing and have thereby heightened vulnerability due US$5.25 billion Panama Canal Expansion project, to the increased concentration of the population, the planned construction of the Panama subway infrastructure and production of goods and services. at about US$1.8 billion, and other road and urban Although the country has a comprehensive anti-seismic development projects included in the Government’s building code (based on the State of California’s investment plan for 2010-2014. In 2004, the cluster construction code), its implementation in new buildings of operational and economic activities linked to and towers is uncertain, and provisions for retrofitting the Panama Canal operations - locally known as existing buildings are not efficiently enforced. the Canal Economic Sector (Sector Económico del Canal, SEC) - generated direct and indirect contributions totaling 25% of the revenues received by the National Treasury.7 In 2009, the Panama Canal DISASTER RISK MANAGEMENT Authority’s direct transfers to the National Treasury FRAMEWORK represented about 3.4 percent of Panama’s GDP and about 12.5 percent of its fiscal revenues8, and a Panama has improved its legal and institutional permanent 0.6 to 0.8 percentage-point boost to real framework for disaster risk management 7 Panama Canal Authority (2006). 8 World Bank (2010). 9 Hadley Centre Coupled Model, Version 2 (HADCM2), as reported in Mulligan (2003). Same modeling data as used by the Intergovernmental Panel on Climate Change (IPCC). 10 Giannini et al. (2002). 77 Disaster Risk Management in Central America: GFDRR Country Notes (DRM). The authority for Panama’s DRM National (SICA)’s Ordinary Meeting of Heads of State and Platform stems from Law No. 7, Resolution 28 which Government, held in Panama in June 2010. created the National Civil Protection System (Sistema Nacional de Protección Civil, SINAPROC) in 2005. As the leading DRM authority in Panama, SINAPROC is responsible for coordinating DRM in SINAPROC maintains responsibility for the Panama as the highest-ranking authority in the event development and implementation of the of a natural catastrophe or man-made emergency. National Emergencies Plan and the country’s SINAPROC is also charged with executing the Risk Management Plan. The National Emergencies actions, regulations and directives towards the removal Plan defines roles, responsibilities and general or reduction of the impacts of disasters on human procedures for institutional preparedness and lives, goods and society. response, establish an inventory of resources, coordinate operational activities, and assessments in The Government of Panama is making important order to safeguard life, protect property, and restore efforts in the Strategic Plan 2010-2014 (GPSP) normalcy as soon as possible after the occurrence of toward mainstreaming environmental protection a hazardous event. The Risk Management Plan guides in the sectoral planning processes. The GPSP risk reduction activities, emergency preparedness, recognizes that current efforts to promote sustainable and disaster recovery efforts. These measures are land use have been incomplete, with poor planning, intended to improve safety against various risks while and without effective enforcement of zoning greatly reducing the economic impacts and social regulations. It also highlights the need for protecting consequences of disasters. the country’s natural resource base as a fundamental ingredient for maintaining the growth performance of The Government of Panama acknowledges key economic sectors, including the operation of the that there is still a need to further strengthen Panama Canal and tapping the very high potential of existing DRM institutions and policies. Actions the country’s tourism industry to induce economic explored by the Government to improve disaster risk growth and generate employment. management in Panama include: (i) strengthening the National Civil Protection System (SINAPROC)’s Panama has adopted the recommendations institutional capacity, (ii) reducing vulnerability in urban and priority actions of the “Hyogo Framework areas, (iii) developing the country’s risk assessment for Action 2005-2015: Building the Resilience of and monitoring capacity, (iv) developing risk reduction Nations and Communities to Disasters� as part of strategies for emergency response and diversified risk the Government of Panama’s efforts to improve its management instruments, and (v) strengthening the DRM capacity. Panama is an active participant in environmental institutions. regional and international DRM forums, including the Central American Coordination Center for the The National Environment Authority (ANAM) Prevention of Natural Disasters (CEPREDENAC) and and the Canal Watershed Inter-Institutional the United Nations International Strategy for Disaster Committee have integrated DRM and climate Reduction (UN ISDR). The Government of Panama change in their national agendas. This is in established and maintains an active CEPREDENAC’s recognition of the fact that each year during the rainy National Commission. In addition, as part of its season, from May to November, floods and landslides increasingly proactive DRM agenda, the Government are the most destructive natural disasters in the of Panama signed the Central American Policy for country, affecting people and communities, agricultural Comprehensive Disaster Risk Management, adopted productivity, the road system and housing. In addition, at the 35th Central American Integration System the Panama Canal Watershed is particularly vulnerable 78 PANAMA to wildfires and the canal itself is vulnerable to ACTIVITIES UNDER THE HYOGO earthquakes that can cause floods, damages to dams, FRAMEWORK FOR ACTION and loss of life and property. Contingency measures have been developed to retrofit infrastructure, train SINAPROC is in charge of planning, scientific staff, acquire necessary equipment and enhance inter- research, direction, supervision, assessment, institutional coordination. information, education, organization, public policy implementation and all other DRM actions In 2011, the Government of Panama achieved in Panama. The execution of the National DRM several DRM milestones, including: i) enacting Plan, including proactive initiatives and coordination the Disaster Risk Management National Policy; with all national and international entities, is also updating the Risk Management National Plan, aligned within SINAPROC’s responsibilities. Emergency with the new Policy; and enhancing the functions of management and disaster response are prescribed in the Ministry of Economy and Finance’s Directorate Articles 6, 7 and 8 of Law No. 7 of 2005. of Investment, Concessions, and Risks (DICRE) to facilitate the fulfillment of MEF’s responsibility of Emergencies are managed by the Center for developing and mainstreaming a risk transferring Emergency Operations (COE12). This entity was strategy and risk reduction considerations into the created in 2000 with funding from the Southern public planning processes. Command of the United States Army. Equipped with the latest ICT, GIS and Remote Sensing technology Panama has nationwide networks of and managed by civil servants, the COE has a volcanological and meteorological monitoring command-and-control structure, with clearly defined stations and has implemented regional and local hierarchical authorities and responsibilities. Alerts, flood early warning systems. The country also has supervision and command-control operatives are a national emergency toll-free phone number: “*335�. executed during emergency situations for both natural By calling the “*335� number flooding, landslides, and man-made hazards. earthquakes, high winds, falling trees, falling ceilings, missing persons along rivers or beaches, infrastructure CEPREDENAC’s National Commission collapses, and fires, among other incidents, can is comprised of a multisectoral and be reported. Since February 2009, the Unified multidisciplinary set of governmental and Emergency Management System (Sistema Único non-governmental entities involved in DRM. de Manejo de Emergencias, SUME), or 911, began Led by SINAPROC, the Commission is playing an operations in Panama. The 911 emergency number increasingly important role in mainstreaming DRM is available for common EMS emergencies. These activities in the country. numbers are integrated with modern ICTs11 that allow efficient delegation of authority and responsibilities The Government of Panama signed the Central to the appropriate responders. Government agencies American Policy for Comprehensive Disaster involved in emergency response are working on Risk Management, adopted at the 35th Central educational campaigns to ensure that the population American Integration System (SICA)’s Ordinary understands the importance of such emergency Meeting of Heads of State and Government, held in services and uses them responsibly. Panama in June 2010. 11 Information and Communication Technologies. 12 http://www.sinaproc.gob.pa/index.php?option=com_content&view=article&id=80&Itemid=56. 79 Disaster Risk Management in Central America: GFDRR Country Notes Panama’s progress towards achieving the goals (CEPREDENAC-PANAMA). The Commission of the Hyogo Framework for Action13 includes was delegated the responsibility for coordinating the following: CEPREDENAC’s activities in Panama. The Commission is comprised of a representative of SINAPROC, who presides; along with representatives of the Ministries of Foreign Affairs, Hyogo Framework for Action (HFA) Economy and Finance, Education, Public Works, Priority #1: Policy, institutional Health, Housing, and Agricultural Development; capacity and consensus building for a representative of the National Environment disaster risk management Authority (ANAM); a representative of the Social Security Administration (Caja del Seguro Social, As part of the Government’s efforts to CSS); representatives of the Civil Engineering mainstream disaster risk reduction and to Department and the Institute of Geological implement its risk reduction strategy the Sciences of the University of Panama; and a following actions have been implemented: representative of the governmental Electricity Transmission Company (Empresa de Transmisión A National DRM Policy (Política Nacional de Eléctrica S.A., ETESA). This commission remained Gestión del Riesgo, PNGR) was developed, under the guidance of SINAPROC, with participation inactive until 2005 when it was re-launched, as of a multidisciplinary team of governmental and part of the restructuring of SINAPROC, under the nongovernmental stakeholders, and approved mandate of Law 7. Since then, the commission, by the Government of Panama. The leadership with the leadership of SINAPROC, has become role played by SINAPROC during its preparation the country’s National DRM Platform, and is ensured that the Government’s DRM goals and involved in mainstreaming the country’s legal perspective were incorporated in the Policy. and institutional DRM framework, as well as SINAPROC, working closely with relevant DRM preparing the country’s progress reports towards stakeholders, who were also involved in the the achievement of the Hyogo Framework for drafting of the PNGR, concluded the process for Action’s DRM goals. The incorporation in 2006 of updating the National Risk Management Plan, as the Panama Canal Authority as a member of the mandated by Executive Decree No. 177 of April National DRM Platform represents an important 30, 2008, which regulates Law No. 7 of 2005. recognition of the platform’s increasing role in The Ministry of Economy and Finance created the promoting DRM in Panama. Directorate of Investment, Concessions, and Risks The Government of Panama signed the Central (DICRE). DICRE is responsible for integrating natural American Policy for Comprehensive Disaster disaster risk considerations in the planning process for Risk Management in June 2010. This agreement, infrastructure investments. signed by all the Central American Presidents, As part of its regional binding commitments, positions DRM as one of five pillars for sustainable through Executive Decree No. 402 of November development in the region, and commits its 12, 2002, the Government of Panama created signatories to integrate DRM in their countries’ the National Commission of CEPREDENAC national development plans. 13 Speech made by the Ambassador Deputy Representative of the Permanent Mission of Panama to the United Nations in Geneva before the �rst meeting of the Global Platform for Disaster Risk Reduction. June 2007. Geneva. http://www.preventionweb.net/ �les/2271_PanamaStatementGP07.pdf. 80 PANAMA Important efforts have also been made to also assessed at this bureau with coordination links to mainstream DRM into the development of SINAPROC and COE. sectoral policies. Panama has developed several environmental policies that address DRM in an attempt The Government of Panama reported the to foster sustainable environmental development, such following accomplishments and outcomes as the national policies for water, climate change, within HFA Priority #213 : cleaner production, environmental monitoring, and environmental information, among others. The National The disaster inventory database was updated Environment Authority is playing an increasingly and improved. proactive role in promoting the enforcement of these Flood-prone and landslide-prone areas were policies into the urban and rural planning processes. identified in the district of San Miguelito: Villa Greece In addition, the Ministry of Health has developed and and 8 communities of the Bocas del Toro province. implemented a proactive program for risk reduction within its health facilities. Several early warning systems for floods were implemented in vulnerable communities prone to floods from the Mamoni, Cabra, and Chico rivers. Monitoring tools were customized for the Cabra, HFA Priority #2: Disaster risk assessment Tocumen and Tatar rivers and hazard maps of and monitoring floods were developed to support decision- making in vulnerable districts. Additional hazard Earthquakes in Panama are monitored by maps were created for rainfall, temperature, runoff two seismological networks: the Western patterns, and volcanic risk to benefit communities Earthquake Observatory (OSOP14) and the and enhance DRM activities. National Seismological Network (RSN15). Earthquake hazard has been probabilistically Progress has been made to develop structural assessed in Panama through the RESIS II Project and non-structural risk assessment and risk (NORSAR 2008). Volcanic hazards have been reduction programs pertaining to health preliminarily assessed in the western region, near the Barú volcano.16 The Institute of Geological Sciences infrastructure. The Ministry of Health has developed of the University of Panama is the leading agency protocols to ensure that health facilities exposed to responsible for monitoring seismological events in natural or human hazards are retrofitted to withstand Panama. The Government of Panama has adopted the impact of a disaster and remain in operation the seismic code of California as the standard for after the event, to assist victims in the aftermath of construction in the country. such an event. This requires the timely reduction of the vulnerability of the infrastructure, in addition to The Hydrometeorological Management Office preparedness for providing a timely and effective of the Electric Transmission Company (GH- response. National risk assessments of hospitals ETESA17) acts as the national climatologic, and health centers have been supported through the meteorological and hydrological monitoring Social Security Fund and 95% of related staff have service in Panama. Hydrometeorological hazards are been trained in risk management. 14 http://www.osop.com.pa/index.html. 15 http://www.igc.up.ac.pa/. 16 Instituto de Geociencias (2010). 17 http://www.hidromet.com.pa/sp/InicioFrm.htm. 81 Disaster Risk Management in Central America: GFDRR Country Notes Monitoring systems and related networks An initiative was proposed to develop a have been advanced in Panama. The University National Strategic Education Plan for Risk of Panama’s Geosciences Institute has a real-time Management and Sustainable Development in data-gathering system with 20 seismological stations order to mainstream a culture of prevention that that continuously monitor seismic activity at national strengthens the Panamanians’ way of life and and local levels. Also, twelve research projects were advances sustainable development. implemented to develop monitoring networks of urban The inter-agency coordination between the hazards throughout Panama. Social Investment Fund, the General Accounting Office, the Tommy Guardia Institute, and Inspections have been conducted by the SINAPROC was strengthened to facilitate National Civil Protection System in prevention the management and sharing of scientific and and mitigation activities, developing changes in technical DRM information. home-building processes, erosion control in urban SINAPROC organizes public education development, and integrated watershed management, campaigns to mainstream Disaster Risk Prevention towards reducing the impact of flooding in the most through printed media, and radio and TV vulnerable areas of the country. broadcasting. The hydrometeorological network was SINAPROC’s Academy of Civil Protection implemented and expanded through the Electric (a technical body created by Law 7 of 2005) Power Company to monitor climatic conditions and serves as a national and regional training center support DRM initiatives across the country. Long- for professional first responders by providing term, weekly and daily weather forecasts have also specialized courses in risk reduction and been prepared. These forecasts are provided to the emergency response. Ministry of Agrarian Development to support decision- making and are shared with the Ministry of Health, the The National Civil Protection System and the Smithsonian Institution, the National Civil Protection Ministry of Education have begun incorporating System, the National Environment Authority, and risk management and disaster topics in the international organizations. programs and curricula of early childhood education, primary, middle and high schools, and the first DRM manual has been released for teachers at primary levels. The National Civil Protection System HFA Priority #3: Use of knowledge, and the University of Panama’s Faculty of Education innovation, and education to build a initiated coordination activities towards developing culture of safety and resilience at all levels qualified DRM personnel to strengthen the Operative Plan for the School Safety Program. The National Secretariat for Science, Technology and Innovation (SENACYT) is charged with Community outreach on environmental fostering all research, development, training and concepts, information and actions was carried out education efforts related to natural hazards, risk, through the World Meteorological Day celebrations and DRM in Panama. and other activities. For instance, a training project between the Electric Power Transmission Company The Government of Panama reported the and the Ministry of Education called “Rain, Source following accomplishments and outcomes of Life� sought to develop awareness of the natural within HFA Priority #313 : environment among fifth- and sixth-graders, facilitating 82 PANAMA the training of teachers. Also, a contest was developed also been created to foster effective DRM practices for children as a tool to raise awareness about and response in the event of a disaster or emergency disasters, the environment and how to protect their in areas identified as high risk. These areas include environment, sponsored by the Electric Transmission the province of Panama, Western Panama and the Company (ETESA) and the Ministry of Education. countryside, Chiriquí, Bocas del Toro, Colón, Herrera and Los Santos. The Technological University of Panama has integrated DRM topics by delivering programs on safe housing construction, quality control of construction materials, and seismic instrumentation for HFA Priority #5: Disaster preparedness, high-rise buildings. recovery and reconstruction at national, regional, and local levels The Government of Panama reported the HFA Priority #4: Reduction of the following accomplishments and outcomes underlying risk factors (reduction of within HFA Priority #513 : exposure and vulnerability and increase of resilience) Based on a regional plan, the Ministry of Public Works developed a risk reduction master The Government of Panama reported the plan, and Emergency Operation Centers were following accomplishments and outcomes established in the Provinces of Chiriquí and Coclé. within HFA Priority #413 : Panama implemented the first early warning system in Central America that integrates voice Climate change scenarios were adapted for the and text messaging for communities at risk. This Santa Maria River Watershed to facilitate the service, known as Line *335, is toll-free for landline identification and implementation of adaptation and mobile phones for all users requesting measures. information about disaster-related emergencies. The “Strengthening of Forest Fire Prevention This information is accessible 24 hours a day, 365 and Control Management� program was days a year. developed in the Soberania and Camino de Since February 2009, the Unified Emergency Cruces National Parks. Management System (Sistema Único de Manejo de Emergencias, SUME), 911, began operations in In the context of community capacity Panama. The 911 emergency number is available development for disaster risk prevention for common EMS emergencies. and mitigation, the National Civil Protection Several technical cooperation agreements on the System has strengthened local capacity for topics of disaster risk reduction, preparedness, DRM and emergency response capabilities in several and emergency response have been signed communities. Local DRM Civil Protection Committees with governmental agencies and international have been established in twenty-nine vulnerable organizations (e.g. the Southern Command of the communities. Communal Civil Protection bases have United States, Water Center for the Humid Tropics 83 Disaster Risk Management in Central America: GFDRR Country Notes of Latin America and the Caribbean, Japan’s codes and establishment of an adequate regulatory International Cooperation Agency and the United framework for the zoning of urban and industrial Nations Development Program). developments. Significant effort was made to improve emergency response capabilities at the local level by training It is expected that Panama will continue water rescue personnel, providing courses on the mainstreaming the concepts of risk reduction Incident Command System, and piloting a project into the national planning process while to promote procedures for standard search and promoting further integration of DRM into rescue and pre-hospital care. development plans. It is also expected that improving strategic risk management planning Panama will benefit from building on these in relevant sectors such as health, environment, initial efforts to ensure local governments are education, agriculture, public works and investments, accountable for the implementation of critical housing, and human settlements, will continue. DRM activities, such as the enforcement of building KEY DONOR ENGAGEMENTS Existing Projects with Donors and Funding Agency / Allocated HFA Activity International Financial Institutions International Partners Budget (US$) Area(s) Integration of Climate Change Adaptation and FAO, PAHO/WHO, UNDP, 4,000,000 2, 3, 4 Mitigation Measures for the Natural Resources UNEP 2008-2011 Management in Two Priority Watersheds in Panama Development of disaster risk management capacity Japan International Cooperation 300,000 2, 4 at the local level Agency 2008-2011 Strengthening of CEPREDENAC and National Spanish International Cooperation 130,000 1 Commissions for disaster vulnerability reduction in Agency 2005-2009 Central America Earthquake Risk Reduction In Guatemala, El Salvador Norway 2.4 million 2 and Nicaragua with regional cooperation support to 2007-2010 Honduras, Costa Rica and Panama (RESIS II) Regional Program of Environment in Central America Danish Cooperation (DANIDA) 675,112 2, 4 (PREMACA) 2005-2010 Program for the Reduction of Vulnerability and European Commission 3.34 million 2, 3 Environmental Degradation Panama (PREVDA) 2007-2011 Support to advance a Regional Plan for Disaster Norway, 400,000 1 Reduction (PRRD) Spanish International Cooperation 2006-2011 Agency Mesoamerican coordination system for territorial IADB 800,000 2 information 2009-2011 Strengthening of Information and Communication for World Bank (Institutional 446,000 1, 2 CEPREDENAC and National Commissions Development Fund) 2007-2009 Disaster Risk Management Development Policy Loan World Bank 66 million 1,3,4,5 with a Catastrophe Deferred Drawdown Option (DPL 2011-2014 with a CAT DDO) Central American Probabilistic Risk Assessment GFDRR $500,000 2,3 (CAPRA) 2011-2012 84 PANAMA GLOBAL FACILITY FOR DISASTER The following activities have been identified in consultation with local authorities and REDUCTION AND RECOVERY international donor agencies. These actions (GFDRR): ACTION PLAN support Panama’s disaster risk management program and reflect the HFA priority action areas. Given Panama’s disaster risk profile and its existing framework for disaster risk 1. It is important to continue supporting and management, the key priority in Panama is enhancing SINAPROC’s technical capacity and to mainstream disaster risk reduction at the leadership role in risk prevention and mitigation. sectoral level. Strategic actions are needed in the 2. The development of an Emergency Fund – with following areas to enhance disaster risk management an effective mechanism to ensure its proper in Panama: (i) strengthen institutional capacity of capitalization - is needed. members of the national platform for DRM, under SINAPROC’s leadership; (ii) reduce vulnerability in 3. It is important to develop strategies for urban areas; and (iii) develop a comprehensive risk mainstreaming DRM, as a cross-cutting theme, assessment and monitoring capacity. into the budgeting and planning processes of all Ministries and other governmental Panama needs to develop a robust and institutions (e.g. ensuring that new hospitals and diversified risk financing strategy. Having a risk educational buildings are built away from flood- financing strategy in place will allow the country to be prone areas and according to the seismic code. better prepared for financing—in case of a catastrophic Old buildings should be retrofitted to withstand event—the immediate emergency response, and the the impact of earthquakes). rehabilitation and reconstruction phases. Experience 4. The Ministry of Public Works should incorporate shows that when immediate liquidity is not available to disaster risk reduction and mitigation respond to external shocks, including those caused measures in its infrastructure construction and by natural hazards, the result can be expensive debt maintenance activities. instruments, diversion of resources from ongoing 5. Mainstreaming DRM among local municipalities is development programs, or slow and insufficient critical. In the particular case of Panama City and its reconstruction financing. A well-capitalized DRM fund surrounding areas (the Panama City Metropolitan is perceived as a key component of a robust national Area), the construction boom and fast-growing risk financing strategy. population are exerting serious pressures on the land and the quality of water resources. Even though GFDRR has included Panama in its list of priority there is a Metropolitan Territorial Zoning Plan and countries. The most immediate activity approved many other land use regulations, unplanned urban for Panama is the incorporation of a comprehensive development and new infrastructure projects are risk assessment platform by joining efforts with other increasing the conditions of vulnerability in the countries in the region that are actively involved with Panama City metropolitan region. the Central American Probabilistic Risk Assessment (CAPRA).18 CAPRA is expected to improve the country’s Finally, the Government of Panama has developed capacity to prepare for and respond to natural disasters. a substantial regulatory framework to guide urban 18 http://ecapra.org. 85 Disaster Risk Management in Central America: GFDRR Country Notes development in the Metropolitan Areas of Panama threatening the environmental health of the watershed, City and Colón. The main objective has been to ensure affecting water resources, and forest areas – which the sustainability of the Panama Canal operations. Most in turn is affecting the quality of the water for human of the Panamanian population lives in or around the consumption. The proposed targeted sectors are based Panama Canal Watershed, and migration from rural on the Government of Panama and WB assessments of areas continues. The pressure on land and (planned activities with the highest positive impact in disaster risk and unplanned) new urban development projects is reduction. Indicative Program for GFDRR Funding Indicative (Projects and engagement areas being considered Implementing Agency / Budget and HFA Activity for GFDRR funding) International Partners Period (US$) Area(s)19 Support for the development of a Risk Assessment SINAPROC, 500,000 1, 2, 3 Platform (CAPRA) for Panama Universities, Ministry of Finance 2009-2011 Support capacity building and integrate risk reduction SINAPROC, Municipality of Panama, 2.2 million 1, 2, 4 into national planning systems to mitigate urban risk Other Municipalities, UNDP 2009-2012 Technical assistance to mainstream disaster risk Ministry of Health, 600,000 1, 2, 4 management in the water and transport sectors Ministry of Transport, 2009-2011 SINAPROC Support to mainstream disaster risk management in Ministry of Finance, 980,000 1, 2, 3, 4, 5 other priority sectors SINAPROC 2009-2012 Technical assistance to raise public awareness and SINAPROC, 500,000 1, 3, 4 proactively engage the private sector in disaster risk Private Sector Entities 2009-2011 reduction activities Initial Budget Proposal: US$4.78 million In addition to the above-mentioned activities, management measures that consider climate there is ongoing dialogue with national change as part of adaptation strategies in and local officials to identify disaster risk Panama. 19 HFA Priority Action Areas: 1. Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation; 2. Identify, assess, and monitor disaster risks—and enhance early warning; 3. Use knowledge, innovation, and education to build a culture of safety and resilience at all levels; 4. Reduce the underlying risk factors; 5. Strengthen disaster preparedness for effective response at all levels. 86 REFERENCES Development Research Group. Environment and Energy Team. The World Bank. http://www-wds. worldbank.org/external/default/WDSContentServer/ WDSP/IB/2009/04/14/000158349_2009041410 2048/Rendered/PDF/WPS4901.pdf. Accessed in BBC News. 1998. Mitch: A path to destruction. http:// August 2010. news.bbc.co.uk/1/hi/world/americas/202395.stm. Dilley, M., Chen, R. S., Deichmann, U., Lerner-Lam, A. Accessed on April 14, 2009. L., and Arnold, M. 2005. Natural Disaster Hotspots: BBC News. 2001. Honduras declares drought A Global Risk Analysis. 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