CDMP Progress Bulletin

Post Disaster Mitigation Missions to Antigua and Barbuda, Dominica and St. Kitts and Nevis in the aftermath of Hurricanes Luis and Marilyn

Bulletin Date: December 1999

The General Secretariat of the Organization of American States (OAS), under an agreement with the Office of Foreign Disaster Assistance (OFDA) of the U.S. Agency for International Development (USAID), is executing a five-year Caribbean Disaster Mitigation Project (CDMP). While the preferred mode for providing technical assistance in disaster mitigation is to incorporate vulnerability reduction measures into all aspects of development projects, the reality is that often a disaster must strike before there exists sufficient institutional and technical interest in mitigating against future losses. For this purpose, the OAS/CDMP has developed a Post Disaster Mitigation Strategy, which enables disaster-affected OAS member states to have access to a wide pool of technical specialists to assist in the design of mitigation activities and their incorporation into reconstruction plans and projects. The CDMP Technical Advisory Committee (TAC) approved the addition of this project activity to the overall project workplan and the budgeting of funds to support it during its first meeting in Miami, November 1993.

1995 was a strong hurricane season for the Caribbean. Between the 4^th and 15^th of September, the Eastern Caribbean was affected by two hurricanes, Luis and Marilyn. Luis, a category 4 hurricane, passed over Dominica, Antigua and Barbuda, and St. Kitts/Nevis on the 4^th and 5^th. The housing sector, agriculture, and tourism industry were severely impacted on all three islands.

Antigua and Barbuda Training Workshops

Following the passage of both hurricanes, the CDMP Regional Coordinator visited Antigua and Barbuda and Dominica to discuss possible mitigation actions with government officials. The meetings focused on the need to effect repairs in a timely manner and along established guidelines in order to ensure the integrity of the restored buildings. In Antigua and Barbuda, a task force was established, led by the Government Town Planner, to develop plans for 11 workshops that would train local carpenters, artisans, builders, and homeowners in hurricane resistant construction. These workshops were organized by a local steering committee composed of the Central Housing and Planning Authority (CHAPA), the Development Control Authority (DCA), the National Office of Disaster Services (NODS), UNDP/UNCHS, USAID/OAS CDMP. Three consultants were hired to report on the common structural problems that resulted in building failure, and to run a series of workshops during a two-week period. CDMP also prepared and printed a booklet with practical instructions for roof construction and retrofitting. More than 80 artisans and homeowners were trained in the months after the hurricane.

A few problems were encountered during the workshops. One of the major problems was timing. In several cases, it became clear that homeowners and builders were working, seeking funds for repairs, or awaiting external repair resources. This proved to be a major obstacle as the workshops were scheduled for weekdays and not weekends when most people would have been available. Publicity for the project was a matter of concern, and according to some, was not adequate. In addition, transportation was not always available and affected the access of the trainers to their fieldwork.

Achievements

Despite these problems, the response was enthusiastic from both homeowners and builders, who showed a general willingness to change their old building practices based on what was learned at the workshops. Appropriate training materials were provided, with a request to DCA for 1,000 additional copies. While in Antigua, the consultants also participated in a number of television and radio programs, thus reaching a far greater audience. A registry of all persons trained was created, making it possible to follow-up and determine to what extent the measures taught have been incorporated in their work.

Improving Future Training Activities

It was generally recognized that there is a need for a constant presence to provide ongoing training in hurricane resistant construction activities. The DCA was identified as the most appropriate agency to undertake this activity. On the 30^th of November, 1995, the Regional Coordinator visited Antigua to discuss future activities with the DCA. The DCA was interested in a) training building officers and PWD workers in safe construction techniques, and b) training building officers in inspection procedures and code enforcement. Other possible future training initiatives include:

• Preparing training materials that address priority issues
• Relevant building codes should exist that can be enforced by building inspectors trained in disaster resistant construction techniques.
• Provisions should be made in reconstruction training initiatives to upgrade materials over time.
• Organization of evening training sessions on construction sites.
• Invite local contractors by letter to participate in future training.

Dominica

A donor's meeting convened by the OECS Secretariat, the Government of Dominica, and the UNDP was held on September 28^th, 1995. The purpose of the meeting, which the CDMP Regional Coordinator attended, was to identify sources of financial and technical assistance to expedite Dominica's rehabilitation. During the meeting, the CDMP expressed a willingness to continue its efforts in the Housing Retrofit Program and to facilitate any assistance which other donors may wish to contribute in the area of housing. Building Codes was another area which could be expedited by the CDMP together with UNCHS. Also discussed during the meeting was the possibility of working with Canadians to produce storm surge maps of coastal areas.

Saint Kitts/Nevis

A collaborative effort was undertaken on the part of CDMP/CDERA who sent two trainers from Dominica to St. Kitts on November 19^th. The trainers assisted the National Emergency Management Agency (NEMA) in carrying out various tasks. They assessed and provided feedback for post hurricane reconstruction activities associated with the government's rehabilitation efforts and provided advice to local contractors involved in the reconstruction. Additionally, the trainers prepared a summary report on findings and suggested improvements. General problems covered in the reports included: hurricane ties not included in materials being distributed for reconstruction (these were immediately added to the list); lack of supervision for reconstruction work; lack of quality construction work; wrongly installed hurricane straps; use of inferior zinc sheeting, low pitched roofs; and poor reinforcement for concrete walls. Before returning to Dominica on November 25^th, the trainers participated in public media interviews.