A | Lessons Learned Exercise for EP&R in Nigeria Lessons Learned Exercise for Emergency Preparedness and Response in Nigeria Strengthening Emergency Planning and Response in Nigerian Cities and Communities Building Urban Flood Resilience in Nigeria Lessons Learned Exercise for Emergency Preparedness and Response in Nigeria Strengthening Emergency Planning and Response in Nigerian Cities and Communities Building Urban Flood Resilience in Nigeria 2025 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington, DC 20433 Telephone: +1-202-473-1000; Internet: www.worldbank.org Some rights reserved. This work is a product of the staff of The World Bank and the Global Facility for Disaster Reduction and Recovery (GFDRR). The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. 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The World Bank therefore does not warrant that the use of any third-party-owned individual component or part contained in the work will not infringe on the rights of those third parties. The risk of claims resulting from such infringements rests solely with you. If you wish to reuse a component of the work, it is your responsibility to determine whether permission is needed for that reuse and to obtain permission from the copyright owner. Examples of components can include, but are not limited to, tables, figures, or images. All queries on rights and licenses, including subsidiary rights, should be addressed to World Bank Publications, The World Bank Group, 1818 H Street NW, Washington, DC 20433, USA; e-mail: pubrights@worldbank.org About the cover: North-east Nigeria, Maiduguri, capital of Borno State, faced an unprecedented humanitarian disaster caused by the worst flooding the city has seen in 30 years. Caused by the overflowing of the Alau dam, the flood inundated entire communities, destroyed crucial infrastructure, and forced more than 400,000 people from their homes. Photo: Sadiqnanic|iStock.com. Design: ULTRAdesigns, Inc. iii | Lessons Learned Exercise for EP&R in Nigeria Table of Contents Foreword by the Director General of NEMA............................................................................................................................... vii Acknowledgements.......................................................................................................................................................................... viii List of Abbreviations and Acronyms............................................................................................................................................... ix Executive Summary ............................................................................................................................................................................ x 1 Introduction to the Nigeria EP&R Lessons Learned Exercise................................................................. 1 2 LLE Methodology.............................................................................................................................................................. 2 2.1 Goal and Objectives...................................................................................................................................................... 2 2.2 LLE Process..................................................................................................................................................................... 2 3 Project Tasks........................................................................................................................................................................4 3.1 Task 1: LLE Inception and Design..............................................................................................................................4 3.2 Task 2: Desk Review.....................................................................................................................................................4 3.3 Task 3: Develop and Distribute the Pre-Engagement Survey. ...........................................................................4 3.4 Task 4: Engagement Week 1—Stakeholder Engagement. ................................................................................... 5 3.5 Task 5: Engagement Week 2—LLE Workshops...................................................................................................... 5 3.6 Task 6: Final Analysis and Report.............................................................................................................................. 5 4 Context of Disaster Risk in Nigeria........................................................................................................................ 6 4.1 General Risk Context in Nigeria................................................................................................................................. 6 4.2 Government Priorities..................................................................................................................................................7 4.3 Focusing Event for the LLE: 2002 Flooding Disaster in Nigeria......................................................................... 8 5 Emergency Preparedness and Response Frameworks............................................................................ 15 5.1 National Legislation and Policy............................................................................................................................... 15 5.2 Provision of Early Warning....................................................................................................................................... 17 5.3 Preparedness Planning.............................................................................................................................................. 17 5.4 Community Participation. ........................................................................................................................................ 17 5.5 Financial Preparedness............................................................................................................................................. 17 iv | Lessons Learned Exercise for EP&R in Nigeria 6 Findings and Analysis. ................................................................................................................................................. 18 6.1 Legal and Institutional Framework. ....................................................................................................................... 18 6.1.1 Context............................................................................................................................................................. 18 6.1.2 Community Preparedness............................................................................................................................ 18 ............................................................................................................................. 19 6.1.3 State-Level Coordination. 6.1.4 Persisting Coordination Challenges........................................................................................................... 19 ................................................................................. 20 6.1.5 Legal and Institutional Framework - Key Findings. 6.2 Personnel...................................................................................................................................................................... 21 6.2.1 Context............................................................................................................................................................. 21 6.2.2 Personnel Interactions.................................................................................................................................. 23 6.2.3 Collaboration Considerations...................................................................................................................... 26 6.2.4 Key Findings.................................................................................................................................................... 26 6.3 Facilities........................................................................................................................................................................ 27 6.3.1 Context............................................................................................................................................................. 27 6.3.2 Emergency Operation Centers (EOCs)...................................................................................................... 27 6.3.3 Emergency Shelter Facilities........................................................................................................................ 28 6.3.4 Training and Base Facilities.......................................................................................................................... 28 6.3.5. Key Findings.................................................................................................................................................... 28 6.4 Equipment.................................................................................................................................................................... 30 6.4.1 Context............................................................................................................................................................. 30 6.4.2 Rescue and Response Capabilities............................................................................................................. 30 6.4.3 Communications Equipment....................................................................................................................... 30 6.4.4 Resource Database........................................................................................................................................ 30 6.4.5 Key Findings.................................................................................................................................................... 31 6.5 Information.................................................................................................................................................................. 32 6.5.1 Context............................................................................................................................................................. 32 ................................................................................................................................. 32 6.5.2 Early Warning Systems. 6.5.3 Challenges and Opportunities for Improvement.................................................................................... 33 6.5.4 Response Capability...................................................................................................................................... 33 .............................................................................................. 33 6.5.5 Knowledge and Information Management. 6.5.6 Community Considerations......................................................................................................................... 34 6.5.7 Institutional Arrangements.......................................................................................................................... 34 6.5.8 Important Observations from the Stakeholders..................................................................................... 35 6.5.9 Key Findings.................................................................................................................................................... 35 v | Lessons Learned Exercise for EP&R in Nigeria 7 Recommendations......................................................................................................................................................... 38 7.1 Legal and Institutional Framework. ....................................................................................................................... 38 7.2 Personnel...................................................................................................................................................................... 39 7.3. Facilities........................................................................................................................................................................ 40 7.4. Equipment.................................................................................................................................................................... 42 7.5 Information.................................................................................................................................................................. 43 8 Consolidated and Prioritized Action Steps..................................................................................................... 45 1 List of Annexes ANNEX 1—Prioritized List of Participants for LLE......................................................................................................... 48 ANNEX 2—LLE Thematic Workshop Agenda and Materials....................................................................................... 52 ANNEX 3—Final Workshop Attendance List................................................................................................................... 57 ANNEX 4—LLE Timeframe.................................................................................................................................................. 61 vi | Lessons Learned Exercise for EP&R in Nigeria Marina, Lagos Island, Lagos—Mobolaji Johnson Stadium along the ring road. Photo: Kehinde Temitope Odutayo. vii | Lessons Learned Exercise for EP&R in Nigeria Foreword by the Director General of NEMA I t is with great pride and a deep sense of responsibility that I present this report on the Lessons Learned Exercise (LLE) for Emergency Preparedness and Response (EP&R) in Nigeria. As the Director General of the National Emergency Management Agency (NEMA), I have witnessed firsthand the challenges and triumphs faced by our nation in its ongoing efforts to mitigate the impacts of disasters and protect our communities. The 2022 floods, which this report examines in detail, were among the most devastating in recent history, affecting millions of lives and causing unprecedented Mrs. Zubaida Umar Director General, damage across the country. This report captures the vital lessons learned from that National Emergency tragic event and provides actionable recommendations to strengthen our disaster Management Agency management framework. (NEMA) The collaboration between NEMA, state and local agencies, international partners, and community stakeholders has been central to the success of this exercise. Together, we have built a comprehensive understanding of the gaps in our current systems and identified opportunities to enhance our readiness and response capabilities. This report reflects not only the knowledge gained from the 2022 floods but also the collective will to build a more resilient Nigeria. As we move forward, it is imperative that we continue to integrate these lessons into our policies, plans, and practices. The recommendations outlined in this report serve as a roadmap for enhancing our disaster preparedness and response across all levels of government and within our communities. NEMA remains committed to leading these efforts and ensuring that the safety and well-being of our people remain at the forefront of our national agenda. I extend my heartfelt thanks to all those who contributed to this report. Your dedi- cation, expertise, and tireless efforts are deeply appreciated. Let us use the insights gained here to forge a path towards a safer, more resilient future for Nigeria. viii | Lessons Learned Exercise for EP&R in Nigeria Acknowledgements T he Lessons Learned Exercise (LLE) for and agencies. Input of the following organizations Emergency Preparedness and Response (EP&R) were invaluable: National Environmental Standards was a collaborative project between the Federal and Regulations Enforcement Agency (NESREA), Government of Nigeria (FGN) and the World Bank. Stakeholder Democracy Network (SDN), Defense The exercise lasted from December 2023 to March Headquarters Abuja, Radio Nigeria Network, Catholic 2024, involving interactions with stakeholders at the Relief Services, Ministry of Special Duties and federal and state levels. The completion of this report Humanitarian Services and Regional Development would not have been possible without the significant Taraba State, Cooperazione Internazionale (COOPI), contributions and unwavering support of the National Nigerian Agricultural Insurance Corporation (NAIC), Emergency Management Agency (NEMA). NEMA’s United Nations Office for the Coordination of commitment to enhancing disaster preparedness and Humanitarian Affairs (UN-OCHA), Nigeria INGO response across Nigeria has been instrumental in Forum, ActionAid Nigeria, Federal Ministry Of Health gathering the valuable insights and data that underpin Headquarters Abuja, International Rescue Committee, this report. The collaboration with state agencies, local International Federation of the Red Cross and Red governments, and various stakeholders has provided Crescent Societies, Federal University of Technology a comprehensive understanding of the challenges Minna Centre for Disaster Risk Management and and opportunities in EP&R within the country. Development Studies, Nigerian Police, Federal Ministry Furthermore, the continuous guidance and technical of Agriculture and Food Security, Kainji Dam, SOS support provided by NEMA, ensured that the World Children’s Villages, Nigeria Security and Civil Defense Bank (WB) was able to conduct the LLE efficiently and Corps (NSCDC), Helen Keller International, Christian effectively, while efforts in mobilizing resources and Aid, National Space Research and Development facilitating access to critical information have been Agency (NASRDA), Nigerian Meteorological Agency crucial to the success of this exercise. The NEMA team (NiMet), Federal Fire Service, University of Port was led by the Director General of the agency, Mrs. Harcourt, eHealth Africa, Plan International, Taraba Zubaida Umar, and she was supported by Dr. Onimode State government, Federal Ministry of Transportation/ Abdullahi Bandele, Director Planning, Research, and Marine and Blue Economy, Presidential Committee Forecasting, who served as the focal person for the exercise. The World Bank team was led by Nkem on Flood Relief and Rehabilitation (PCFRR), Natural Joseph-Palmer (Senior Disaster Risk Management Red Cross Society (NRCS), Federal Ministry of Water Specialist, Extended Term Consultant) and Mary Boyer Resources & Sanitation (FMWR&S), Federal Ministry (GFDRR Senior Disaster Risk Management Specialist, of Environment, The Catholic Agency for Overseas LLE Team Leader), along with Alhassan Nuhu (Disaster Development (CAFOD), Tearfund, Action Against Risk Management Consultant), Paul Hayden (Senior Hunger, Malteser International, and Terre Des Homme Disaster Risk Management Consultant), Francis Nkoka (TDH). Senior Disaster Risk Management Specialist), and The LLE and this report would not have been possible Martha Obaje (Team Assistant). without the financial support of the Japan-World Bank The LLE team conducted the final workshop on Program for Mainstreaming Disaster Risk Management April 17-26, 2024 to validate the findings from in Developing Countries, funded by the Government the exercise, which then led to the drafting of this of Japan and technically supported by the World final report. The report greatly benefited from the Bank Tokyo Disaster Risk Management Hub and the guidance, coordination, and technical and logistical technical and financial support of the Global Facility for support provided by officials from various ministries Disaster Risk Reduction (GFDRR). ix | Lessons Learned Exercise for EP&R in Nigeria List of Abbreviations and Acronyms AAL Annual Allowable Loss NCP National Contingency Plan AFO Annual Flood Outlook NDMF National Disaster Management Framework AWS Automatic Weather Stations NDRMP National Disaster Risk Management Policy CBDRM Community-Based Disaster Risk Management NDRP National Disaster Risk Policy CRT Crisis Response Team NECC National Emergency Coordination Centre DIMS Digital Information Management System NEMA National Emergency Management Agency DMIS Disaster Management Information System NERA National Emergency Relief Agency DOC Disaster Operations Centre NERB National Emergency Response Board DRM Disaster Risk Management NFPRP National Flood Preparedness and Response Plan DRR Disaster Risk Reduction NGN Nigerian Naira (currency) EF Emergency Function NGO Nongovernmental Organization EOC Emergency Operations Centre NHRC National Human Rights Commission EP&R Emergency Preparedness and Response NIHSA Nigeria Hydrological Service Agency EPRP Emergency Preparedness and Response Plan NiMet National Meteorological Agency of Nigeria EWS Early Warning System NRCS National Red Cross Society FAAN Federal Airport Authority of Nigeria OEC Operation Emergency Centre FCT Federal Capital Territory PML Probable Maximum Loss FGN Federal Government of Nigeria PWD Persons with Disabilities FEWS Floods Early Warning System R2R Ready2Respond FFS Federal Fire Service SAREEP Search and Rescue and Epidemic Evacuation GDP Gross Domestic Product Plan GFDRR Global Facility for Disaster Reduction and SCP Seasonal Climate Predictions Recovery SEMA State Emergency Agency GPS Global Positioning System SLA Service Level Agreements GRADE Global RApid post-disaster Damage Estimation SMS Short Message Service ICS Incident Response System SOP Standard Operating Procedure IDP Internally Displaced Persons TTX Tabletop Exercise IFRC International Federation of the Red Cross and UN United Nations Red Crescent UNDRR United Nations Office for Disaster Risk INGO International Nongovernmental Organization Reduction IT Information Technology UNICEF United Nations International Children’s ITC Information and Communications Technology Emergency Fund LEMA Local Government Emergency Management UN-OCHA United Nations Office for the Coordination of Agency Humanitarian Affairs LEMC Local Emergency Management Committees UN-SPIDER United Nations Space-Based Information for LGA Local Government Area Disaster Management and Emergency Response LLE Lessons Learned Exercise US United States LLEW Local Level Early Warning USD United States Dollar MDA Ministries, Departments, and Agencies USAID United States Agency for International Development MHEWS Multi-hazard Early Warning System VCA Vulnerability and Capacity Analysis NAP National Adaptation Plan VRAM Vulnerability Risk Assessment Mapping NARSDA National Space Research and Development Agency WMO World Meteorological Organization x | Lessons Learned Exercise for EP&R in Nigeria Executive Summary F looding continues to be the most common and The Nigerian Government, along with its international recurring disaster in Nigeria, causing loss of life, partners, play important roles in shaping a forward- property damage, community displacement, and looking, systemic approach to emergency preparedness other impacts and shocks. The floods in 2012, 2015, and response (EP&R). Then there is the need to adapt and 2022 were particularly disastrous for farmers, EP&R at the state and local levels– because it is within which, in turn, reduced food security and negatively the state and local levels where disaster impacts are impacted health and nutrition. The floods of June to documented, and a lot of detailed knowledge resides. December 2022 were unprecedented—causing 600 Acknowledging that this is the Government’s moment deaths, affecting about 4.6 million people, and displacing to make meaningful and measurable disaster risk over two million people, with direct economic damages reduction (DRR) efforts, and upon reviewing the estimated at US$6.68 billion.1 magnitude of impact from the 2002 floods’ total These floods represent an opportunity and a turning direct economic damages as summarized in the World point for the Nigerian Government to examine Bank’s Global RApid post-disaster Damage Estimation and tackle the underlying drivers of disaster risk (GRADE) Note, the Government decided to thus and vulnerability. The Nigerian Governmental also prioritize EP&R to ensure Nigeria’s resilience to future recognizes that it has reached a very important stage disasters. NEMA, the federal agency responsible for in its mission to combat the devastating losses from disaster risk management, in discussions with the these recurring floods. One recent policy directive and National Government, then proposed the start of a one declaration at a high-level United Nations (UN) Lessons Learned Exercise (LLE), where all parties could forum point to this recognition and the prioritization of review and analyze the systemic opportunities to disaster preparedness: develop and strengthen the core element of Nigeria’s EP&R arrangements at the national and subnational › In October 2024, the Nigerian Senate urged the levels. Federal Government to develop a comprehensive “Marshall Plan” to address the country’s perennial NEMA, in partnership with the World Bank’s Nigeria flooding.2 The Senators recommended that, rather Country Office, started conducting the LLE in than resorting to ad hoc interventions each time September 2023, which covered 18 Nigerian states parts of the country are flooded, the Federal and the Federal Capital Territory (FCT). The LLE is a Government should put in a plan to address the government-led review of existing EP&R arrangements disaster before the floods occur. that aimed to (1) facilitate discussions of systems, procedures, and experiences related EP&R capacity in › Also in October 2024, at the Eighth High-Level UN Nigeria by engaging key government and disaster relief Office for Disaster Risk Reduction’s (UNDRR) Africa agencies at the local, state, and federal levels, and (2) Regional Platform for Disaster Risk Reduction, NEMA generate actionable recommendations to develop a underscored its commitment to Priority Area 4 of roadmap for enhancing disaster preparedness and the Sendai Framework for Disaster Risk Reduction response. 2015-2030: Enhancing disaster preparedness for effective response.3 While the LLE primarily focused on the 2022 floods that affected 34 out of 36 Nigerian states and the FCT, 1 World Bank’s Nigeria Global RApid post-disaster Damage the LLE also captured experiences from other recent Estimation (GRADE) Note (2022) disasters. The LLE included an in-depth analysis of 2 https://blueprint.ng/senate-seeks-marshall-plan-to-tackle- flood event timelines, government responses, multi- flooding-in-nigeria/ 3 https://afrp.undrr.org/publication/nigeria-official-statement hazard responses, and the preparedness levels of xi | Lessons Learned Exercise for EP&R in Nigeria national, state, and local governments. The LLE team, private sector entities, civil society organizations with support from the Global Facility for Disaster (CSOs), and disaster relief agencies. This broader scope Reduction and Recovery (GFDRR) and the Japan facilitated a comprehensive understanding of gaps in International Cooperation Agency (JICA), conducted EP&R. Additionally, the LLE featured a tabletop exercise workshops and organized stakeholder discussions simulating a fictional flood event, which engaged in seven cities, which captured experiences relevant government officials at all levels to think through and to each locality’s unique contexts and environments. consider ways to enhance EP&R capacity. These stakeholders included government agencies, To facilitate the achievement of the LLE’s goal, the LLE team set four objectives: OBJECTIVE 1 OBJECTIVE 2 OBJECTIVE 3 OBJECTIVE 4 Conduct a focused, Develop strategies Enhance participants’ Produce a final report government-led for improving future understanding of with findings and examination of disaster preparedness integrated emergency recommendations to preparedness and and response through management systems, guide the expansion response efforts related a discussion-focused including roles, of EP&R capacities to the 2022 floods, tabletop exercise responsibilities, nationwide. documenting valuable coordination mechanisms, insights to enhance EP&R response plans and capacities protocols. Rainy season in Lagos. Photo: peeterv xii | Lessons Learned Exercise for EP&R in Nigeria The LLE team has organized the LLE findings across adequate equipment ensure efficient response. five key components of the World Bank Ready Facilities and equipment supply responders with the to Respond (R2R) EP&R framework: Legal and necessary resources, and information management Institutional Framework, Personnel, Information, facilitates effective communication and decision- Facilities, and Equipment. The legal and institutional making during emergencies. The findings are followed framework provides the structure and authority for by proposed action steps organized by government coordinated action, while trained personnel and priority communicated during the LLE process. LLE Findings 1. LEGAL AND INSTITUTIONAL FRAMEWORK 2. PERSONNEL › Policy Integration: Emergency preparedness › Inadequate Training: Emergency responders across policies on flood risk management and inter-agency federal, state, and local levels lack standardized coordination are currently fragmented, disconnected training and regular drills. Middle-level and or non existant implementing personnel are especially in need of comprehensive training. › Lack of Unified Coordination Framework: The absence of a legal mandate for inter-agency › Recruitment Challenges: Poor salaries, lack of career collaboration hinders disaster response across advancement, and unattractive working conditions federal, state, and local levels. NEMA’s role make it difficult for emergency agencies to recruit as coordinator is not reinforced in an Incident and retain qualified personnel. Command System (ICS). › Centralized Control Limits Response: NEMA’s › State-Level Gaps: Eight states lack Local Emergency centralized control limits flexibility and Management Committees (LEMCs), and many State responsiveness. The role of the Fire Service as Emergency Management Agencies (SEMAs) either Incident Commander in flood disasters needs have outdated laws or lack the capacity to support reevaluation. emergency preparedness and response. › No Consolidated Incident Command System: › Budgetary Constraints: Legislative budgeting Nigeria lacks a unified ICS backed by law, leading to for disaster preparedness is insufficient at all fragmented responses across various jurisdictions. levels. There is a need for a consolidated fund, › Mental Health Support for Responders: Emergency beyond ecological fund allocations, with increased personnel lack access to mental health services, involvement of the private sector. which can lead to burnout, depression, and decreased › Inadequate Early Warning System: While Nigeria effectiveness during high-stress operations. Hydrological Service Agency (NIHSA) provides 3. INFORMATION flood forecasts, the country lacks a comprehensive end-to-end early warning system that integrates all › Outdated Information Systems: Nigeria’s emergency components from hazard monitoring to response. management lacks real-time data systems, limiting effective decision-making during crises. › Inconsistent Data Management: Emergency agencies have inconsistent data collection and management practices, leading to incomplete or unreliable datasets. xiii | Lessons Learned Exercise for EP&R in Nigeria › IT Training Deficiencies: Many EP&R personnel lack supplies, and communication devices, limiting the adequate training in modern information technology effectiveness of disaster response. and data management tools, reducing their ability to › Suboptimal Facility Locations: Many emergency use technology effectively for disaster management. facilities are poorly located, with urban areas having › Communication Failures: Insufficient communication a higher concentration while disaster-prone rural infrastructure, especially unreliable internet, and regions are underserved. telecom networks, delays the dissemination of critical information to emergency responders. 5. EQUIPMENT › Weak Early Warning System: While early warning › Significant Equipment Shortage: A shortage of key systems like the Flood Early Warning System equipment, including hydrological tools, swift water (FEWS) exist, they often fail to reach vulnerable rescue gear, and data collection platforms, severely local communities due to inadequate dissemination limits response capabilities. efforts and poor local engagement. › Inadequate Swift Water Rescue Equipment: State- level emergency management agencies often lack 4. FACILITIES sufficient equipment for flood rescue operations, › Insufficient Emergency Facilities: Emergency putting responders and victims at higher risk. facilities such as fire stations, hospitals, and shelters › Volunteer Reliance: Due to equipment shortages, are inadequate, especially in rural areas, resulting in residents and volunteers frequently conduct search delayed response times. and rescue operations using makeshift tools, › Lack of Maintenance: Emergency facilities and increasing danger for all involved. critical infrastructure suffer from neglect and poor › Borrowed Resources: Disaster response operations maintenance, leading to equipment failures and often rely on borrowed equipment from civil reduced readiness during disasters. engineering companies, exposing critical gaps in › Inadequate Emergency Warehouses: NEMA national capacity. operates warehouses across the country, but they › Outdated Technology: Many agencies operate with are often insecure and lack sufficient capacity, with outdated and malfunctioning equipment, hampering incidents of looting reported during disasters. response efforts, and jeopardizing the safety of › Poor Equipment Availability: Emergency facilities responders. often lack essential equipment like modern fire engines, poor ambulance services, medical xiv | Lessons Learned Exercise for EP&R in Nigeria Recommendations 1. LEGAL AND INSTITUTIONAL FRAMEWORK c. Develop a scalable ICS structure that can expand to accommodate a wide range of disaster magnitudes. a. Development of an integrated framework for EP&R across sectors and jurisdictions. d. Revise salary structures and benefits packages to make emergency response roles more b. Harmonize institutional policies, plans, frameworks competitive with the private sector and to support an Incident Command System (ICS). international opportunities. c. Develop implementable Service Level Agreements e. Decentralize response operations by establishing (SLAs) among the coordinating agency, NEMA, and regional emergency response coordinators who can other MDAs involved in EP&R. take on leadership roles during disasters. d. Conduct an assessment of SEMAs/LEMCs in f. Create a national schedule for joint exercises and the country and support the development and drills, involving NEMA, SEMAs, the military, police, establishment of enabling laws (where necessary) Red Cross, and other relevant stakeholders. and strengthen systems and capacities. g. Draft a comprehensive ICS framework document e. Strengthen resource availability at all jurisdictional legally mandated across all levels of government. levels through the establishment of a Disaster Financing Strategy supported by legislative h. NEMA and SEMAs should create a medium-term budgeting. strategic plan that outlines priorities for enhancing community-based disaster response and risk f. Adoption of the structures and frameworks set out awareness programs. in the African Union Multi-hazard Early Warning Systems (MHEWS) Framework. i. Establish mental health and counseling services for emergency responders. g. Removal of the Federal Fire Service from the concurrent list of the Nigerian Constitution 3. FACILITIES and the passage of the Fire, Search, and Rescue a. Review existing plans and SOPs relating to Establishment Bill into law. emergency management facilities and define a h. Revise procurement systems at all jurisdictional single and integrated SOP or service agreement for levels to improve transparency and efficiency. ICS that is harmonized across all agencies and all facilities. i. Nigeria’s Search and Rescue and Epidemic Evacuation Plan (SAREEP) and the NDRP need to b. Invest in the construction and establishment of become more inclusive by integrating the needs of more emergency facilities, especially in underserved persons with disabilities (PWD) and high-risk areas. c. Provide emergency facilities with modern, reliable 2. PERSONNEL equipment. a. Establish a unified recruitment framework across d. Develop and enforce regular maintenance schedules federal, state, and local government levels that for all emergency facilities based on an operations emphasizes the hiring of individuals with relevant and maintenance plan. skills or backgrounds in disaster management. e. Conduct a needs assessment to determine gaps b. To overcome bureaucratic rigidity, NEMA should in emergency management equipment across all support and facilitate the strengthening of SEMAs available facilities. and local agencies, empowering them to make critical decisions in real-time during emergencies. xv | Lessons Learned Exercise for EP&R in Nigeria f. Conduct comprehensive risk assessments and 5. INFORMATION mapping to identify high-risk areas and strategically locate emergency facilities accordingly. a. Develop a centralized, real-time data platform that allows for seamless sharing and updating g. Review shelter requirements and address identified of information across all EP&R agencies, such as shortfalls. T NEMA, SEMAs, NIHSA, and NiMet. h. Equip personnel with the skills and knowledge to b. Create national standards for data collection, manage and maintain facilities effectively. storage, and sharing to ensure consistency across all emergency management agencies. 4. EQUIPMENT c. Develop comprehensive and ongoing training a. To address resource and equipment issues, the WB programs on IT tools for disaster management, recommends a review and consolidation of existing including GIS and early warning systems. resource inventories at the state and federal levels. d. Invest in expanding reliable internet and b. To address the reported shortage of equipment for telecommunications networks. EP&R, particularly in hydrological data collection, e. Harmonize forecasting tools and ensure better immediate investment in modern technologies is coordination among NIMET, NIHSA, and NEMA. essential. f. Provide additional resources and training to SEMAs c. To rectify the significant deficiency in swift water and MDAs to enhance their ability to effectively rescue equipment at the state level, particularly disseminate risk information. within SEMAs, it is crucial to establish and strengthen specialized swift water rescue units. g. Customize FEWS alerts to target high-risk communities. d. Invest in advanced communication tools to improve coordination and information dissemination h. Mobilize and train local volunteers to act as liaisons between the FEWS and their communities. e. Strengthen collaboration with international development agencies i. Invest in state-of-the-art GIS technology at the state and local government levels and ensure that it f. Implement regular training and capacity-building is fully integrated into EP&R systems. programs for emergency responders at all levels. j. Develop behavioral change communication strategies that address local beliefs and cultural attitudes toward disaster warnings. k. Tailor Early Warning Systems to local communities by ensuring that warnings are delivered in the most spoken languages and consider local customs. xvi | Lessons Learned Exercise for EP&R in Nigeria Consolidated and Prioritized Actions Steps   National Reviews Priority Lead Key Stakeholders Ministry of Assess and review financial incentives and requirements to Ministry of Finance, Budget and 1 encourage investment in risk mitigation and preparedness by 3 State Ministry of Economic Federal, State, and Local Government Areas. Finance, NEMA, SEMAs Planning Ministry of Ministry of Finance, Optimize the disaster financing chain ensure availability and to Budget and 2 3 State Ministry of reduce processing delays. Economic Finance, NEMA, SEMAs Planning Ministry of Ministry of Finance, Undertake a national review of emergency procurement/ Budget and 3 3 State Ministry of commissioning processes Economic Finance, NEMA, SEMAs Planning Joint Federal and State Institutional Reviews Strengthen NEMA capacity to deliver their statutory leadership SEMAs, LEMCs, Federal 4 and performance management role and refocus resources on risk NEMA and State Legislature, mitigation and preparedness at all levels of government. and Political Leadership Undertake a comprehensive review of early warning provision to NIMET, NIHSA, SEMAs, 5   NEMA inform an improvement and capacity building program. and LEMCs Process and Documentation Reviews Review multi-agency Incident Command Systems (ICS) and Communication protocols, develop a standard training syllabus Federal and State Fire 6 for all personnel that operate at federal, state, and local EOCs, 3 NEMA Services, SEMAs, and as well as build ICS capacity at all levels through regular training, LEMCs drills, and multiagency exercises. Review existing plans and SOPs relating to emergency command Federal and State Fire and control facilities and define a single and integrated SOP or 7 3 NEMA Services, SEMAs, and service agreement for ICS that is harmonized across all agencies LEMCs and all facilities at different jurisdictional levels. Review existing hazard, risk and vulnerability assessments at all levels and identify how decision makers at all levels of 8 government, responders, and the wider community can gain   NEMA SEMAs, and LEMCs access to a single and authoritative source of information for improvement of EP&R. Ministry of Environment, Review existing Climate and Resilience Strategies to identify NCCC, State Ministries 9 opportunities for mainstreaming risk reduction and disaster   NEMA of Environment, and management SEMAs Review current inventories of equipment/resources that can Federal and State Fire be used to respond to an emergency and produce a single 10 3 NEMA Services, SEMAs, and consolidated database setting out the equipment available and LEMCs the protocols for its mobilization and use in emergency. Conduct an assessment of existing hydromet and early warning NIMET, NIHSA, SEMAs, 12   NEMA systems and identify gaps and areas of improvement. and LEMCs xvii | Lessons Learned Exercise for EP&R in Nigeria   National Reviews Priority Lead Key Stakeholders Process and Documentation Reviews (cont.) Ministry of Water Resources, Water Review Dam Safety arrangements and ensure that all dams Basin Development 13 are supported with a suitable and actionable Emergency 3 NEMA Authorities, SEMAs, Preparedness Plans (EPPs) LEMCs, and Federal and State Fire Services NSCDC, Nigeria Police Undertake a review of communications systems and recommend Force, Federal and State 14 a suitable radio system, while identifying opportunities for its   NEMA Fire Services, SEMAs, development to replace the current reliance on mobile phones. and LEMCs Equipment and Technology for Emergency Preparedness and Response (EP&R) To address the shortage of equipment for EP&R, particularly in hydrological data collection, invest in modern technologies like NEMA, Ministry of 15 acoustic Doppler current profilers, data collection platforms, and 3 NIHSA Water Resources, advanced geophysical tools. These technologies are essential for SEMAs. flood prediction and analysis. Establish specialized swift water rescue units at the state level and equip them with necessary tools and training. Integrate local SEMAs, NEMA, Local 16   NEMA divers as full- or part-time members in SEMAs and LEMAs to Divers, NGOs. reduce the risks during flood emergencies. Invest in advanced communication tools to improve coordination SEMAs, Ministry of during disasters, while also ensuring that shelter supplies like 17   NEMA Communications, tarpaulins and tents are adequately stocked to meet emergency Telecom Providers. needs. Partner with international agencies (e.g., IOM, UNICEF) to IOM, UNICEF, and 18 establish temporary shelters during disasters, leveraging their   NEMA SEMAs. expertise in addressing housing challenges. Capacity Building and Investments SEMAs, LEMCs, NGOs, Build the capacity of existing community structures and groups Federal and State 19 to enhance understanding of disaster risk and emergency 3 NEMA Legislature, and Political preparedness. Leadership Work with partners and volunteers to develop community- based response plans supported by programs for community SEMAs, LEMCs, NGOs, 20   NEMA sensitization on the risks they face. Plans must be reinforced by FBOs and CBOs regular trainings and drills. Clarify who is responsible for emergency shelters, how many shelters are required for every jurisdictional level to deal with anticipated disasters and invest in shelter development and Federal and State Fire 21 operation. In support to this task, there will be a need to develop   NEMA Services, SEMAs, and minimum standards for shelter facilities and robust plans to LEMCs ensure that they can be developed, activated, and managed to ensure the safety and welfare of users. Review and assess current risks and special rescue/ response Federal and State Fire needs. Conduct a gap analysis to identify capacity building 22 3 NEMA Services, SEMAs, and requirements (personnel, equipment, training, and SOPs) and an LEMCs associated investment program. xviii | Lessons Learned Exercise for EP&R in Nigeria   National Reviews Priority Lead Key Stakeholders Data Management and Information Systems Develop a centralized data platform for seamless information SEMAs, NIHSA, NIMET, sharing among EPR agencies. Use cloud-based platforms for 23 3 NEMA and Private Tech scalability and redundancy, integrating data from various sources Companies. (NEMA, SEMAs, NIHSA, NIMET). Create national standards for data collection, storage, and sharing across all emergency management agencies. Introduce SEMAs, and Ministry 24 mandatory training on data management and utilize advanced 3 NEMA of Information and analytics and machine learning for improved risk assessment and Technology disaster forecasting. Offer ongoing training programs on IT tools for disaster SEMAs, Educational management, including GIS, FEWS, and early warning systems. 25   NEMA Institutions, and Collaborate with educational institutions for certification International Bodies. programs. Ministry of Invest in expanding internet and telecommunications Ministry of Communications, 26 infrastructure, especially in disaster-prone or remote areas.   Communications Telecom Providers, Establish emergency telecoms plans NEMA, and SEMAs. Invest in state-of-the-art GIS technology at the state and local SEMAs, Local levels, ensuring it is fully integrated into EPR systems. Provide 27   NEMA Governments, and specialized training on GIS tools for disaster mapping and Academic Institutions. management, in partnership with academic institutions. Community Engagement and Early Warning Systems Establish an inter-agency task force to harmonize forecasting tools like NIMET’s “Seasonal Climate Predictions” and NIHSA’s NIMET, NIHSA, and 28 3 NEMA “Annual Flood Outlook” to ensure consistency in disaster SEMAs. forecasts and messages. Equip SEMAs and local agencies with resources to effectively Community Leaders, and 29 disseminate risk information in accessible formats (radio, SMS,   SEMAs Telecom Providers. local language posters) to reach vulnerable populations. Tailor FEWS alerts to high-risk communities by translating SEMAs, and Community 30 technical data into actionable steps, involving local leaders in the   NEMA Leaders interpretation and dissemination process. Train local volunteers to act as liaisons between the EWS and their communities, ensuring early warning information reaches 31   SEMAs CBOs remote populations. Include rural and flood-prone communities in EWS by installing localized monitoring stations. Develop communication strategies that address local beliefs and cultural attitudes towards disaster warnings. Organize Community Leaders, and 32 3 SEMAs regular disaster preparedness drills and offer incentives for early NGOs. compliance with warnings. Ensure that disaster warnings are delivered in local languages and formats that consider local customs. Use various Local Linguists and 33   SEMAs communication methods (radio, SMS, social media) to reach Cultural Experts marginalized populations effectively. xix | Lessons Learned Exercise for EP&R in Nigeria Idah Agenebode Niger River Flooded Niger River. Top: June 12, 2022; Bottom: October 2, 2022. Photos: NASA. Niger River Idah Agenebode Marina, Lagos Island, Lagos—Mobolaji Johnson Stadium along the ring road. Photo: Kehinde Temitope Odutayo. 1 | Lessons Learned Exercise for EP&R in Nigeria 1 Introduction to the Nigeria EP&R Lessons Learned Exercise T he Lessons Learned Exercise (LLE) for Emergency seven cities, which captured experiences relevant to Preparedness and Response (EP&R) in Nigeria is a each locality’s unique contexts and environments. joint initiative between the Federal Government This broader scope facilitated a comprehensive of Nigeria (FGN) and the World Bank (WB), spanning understanding of gaps in EP&R. eighteen Nigerian states. The LLE is a government- The various information-gathering and collaborative led review of existing EP&R arrangements that aimed engagements built into the LLE process have enabled a to (i) facilitate discussions of systems, procedures, forward-looking, shared vision of EP&R capacity needs, and experiences related EP&R capacity in Nigeria by leading to the identification of priority actions for engaging key government and disaster relief agencies different stakeholders across all government levels and at the local, state, and federal levels, and (ii) generate external entities. The LLE also explored multi-sectoral actionable recommendations to develop a roadmap for preparedness before events, multi-hazard responses by enhancing disaster preparedness and response. government and partners, and recent EP&R capacity- While the LLE primarily focused on the 2022 floods that building projects. The LLE exercise focused on the 18 affected Nigeria’s 34 out of 36 states and the Federal states that were most impacted by the 2022 floods. Capital Territory (FCT), it also captured experiences from In-person meetings were held in 6 states, and the WB other recent disasters. The exercise involved a detailed conducted virtual meetings with stakeholders in the examination of event timelines and government remaining 12. responses at the federal, state, and community levels. The WB also conducted stakeholder discussion in 2 LLE Methodology B ased on the Ready2Respond (R2R) conceptual Objective 3: To produce a Final LLE Report that framework of the WB’s Global Facility for captures findings and recommendations, which can be Disaster Reduction and Recovery (GFDRR), an used to guide the next steps in building EP&R capacity effective EP&R system is underpinned by five critical across Nigeria. components: (a) legal and institutional Framework, Objective 4: To build the capacity of key government (b) personnel, (c) facilities, (d) equipment, and (e) agencies in EP&R by ensuring they have a information. The WB examined these components, comprehensive understanding of the capabilities and which are common across various national disaster capacities of all response partners. preparedness systems and international organizations and analyzed them in relation to Nigeria’s unique context. 2.2 LLE Process The WB tailored the LLE process to the unique EP&R 2.1 Goal and Objectives environment of Nigeria, with an emphasis on operational The LLE aimed to facilitate constructive discussions effectiveness. Through stakeholder discussions and among various stakeholders (key government officials, thorough analysis, the lessons identified during the LLE private sector representatives, disaster relief agency were distilled into clear, actionable recommendations. personnel, and others) in Nigeria regarding EP&R The LLE outlines key areas for consideration and capabilities. The exercise also aimed to strengthen provides specific recommendations for building Nigeria’s EP&R capacity, provide a basis for addressing EP&R capacity but does not prescribe how each gaps and opportunities for improvement, and generate recommendation should be implemented. The LLE collaborative recommendations. In addition to several report is presented to the FGN for review to decide on ongoing government plans to improve EP&R, the the next steps for enhancing EP&R capacity in Nigeria. LLE represented an important initial step towards The recommendations provided may be valuable to modernizing Nigeria’s EP&R capacity systematically government agencies and state governments. and sustainably. As a collaborative initiative, the WB utilized its A strong benefit of the LLE is ultimately to enable an R2R conceptual framework to ensure a consistent, enriched, mutual understanding of each stakeholder’s comprehensive, and integrated approach to EP&R. perspective, resources, and capacity for preparedness This framework, adopted by the United Nations’ activities and response operations. The WB set four Global Preparedness Partnership in 2018, helps objectives, including examining responses to the 2022 ensure that the LLE’s findings can be understood and floods and enhancing the understanding of integrated implemented by the government in collaboration with emergency management systems: other development partners. The R2R framework also Objective 1: To enable a targeted, collaborative serves as a tool to consider the various interconnected government-led review of preparedness and responses elements of EP&R. While a full diagnostic is not associated with the 2022 floods in Nigeria, capturing required for the LLE, the structure and components of lessons learned to enhance EP&R capacities. the framework, detailed below, inform the analysis (see figure 1). Objective 2: To facilitate an engagement process and discussion-based workshops that present how The LLE process combined a “top-down” analysis, preparedness and response to similar disasters can be examining legal frameworks and strategic plans, with enhanced in the future in Nigeria. a “bottom-up” assessment, gathering evidence on how 2 | Lessons Learned Exercise for EP&R in Nigeria institutional framework, (ii) personnel, (iii) facilities, (iv) equipment and (v) information. This model ensures that the program aligns with existing preparedness/response systems as well as international best practice for resilient business and business continuity. The approach also provides consideration 3 | Lessons Learned Exercise for EP&R in Nigeria for system fault tolerance, whereby despite any particular local disruption, the preparedness and response systems capacity to ensure public safety and limit economic disruption is maintained. The five components and framework, including indicative activities, are shown below: Figure 1. Core components of the R2R Conceptual Framework. Figure1: Emergency preparedness and response system core components these plans were implemented and evaluating their The LLE was an iterative process, with insights effectiveness from the perspectives of responders and gained at each stage used to inform and refine the communities. This multi-faceted approach involved subsequent steps. To ensure that the lessons learned various methods of data collection, including desk were well-supported by local stakeholders and that reviews, case studies, interviews, and workshops— the recommendations were clear, pragmatic, and all grounded in the context of relevant past events. actionable, the LLE drew on experiences from the Ready2Respond The WB synthesized the information gathered in 5 2022 floods and other previous disasters. By focusing the earlier stages of the LLE during a final workshop, on actual events and practical actions, the process where participants collaboratively identified encouraged all stakeholders to contribute meaningfully, potential solutions. This collaboration allowed key ensuring that all voices were heard, specific lessons stakeholders to shape the LLE findings into concrete were captured, and priorities were clearly established. recommendations aimed at enhancing EP&R in Nigeria, including suggestions to strengthen both national and state disaster management capacity. 3 Project Tasks The LLE has three phases divided into multiple tasks: Figure 2. Overview of LLE Project Phase. Validation › Collect information about › Highlight gaps, the Nigerian EP&R system improvement suggestions, › Presentation of findings. and capabilities. and key recommendations. › Collaborative discussions › Conduct interviews with › Production of a final report. with stakeholders in a relevant stakeholders. workshop setting to validate findings. Information Final Report collection 3.1 Task 1: LLE Inception and Design › Detailed the methodology, principles, procedures, and processes to be followed, including the proposed To formally kick off the project, the WB organized a workshop agenda, information collection methods, meeting in September 2023 with key stakeholders from and the frameworks and theories to be utilized. the National Emergency Management Agency (NEMA) and the World Bank. The meeting confirmed (i) the LLE’s strategic goals and key components, (ii) the project 3.2 Task 2: Desk Review team responsible for execution, (iii) the project’s scope, The desk review provided a concise analysis of academic objectives, and planned activities, and (iv) expected literature to examine EP&R systems in Nigeria, the 2022 outcomes of the project floods and other relevant disaster incidents. These The meeting also provided an opportunity to discuss included reviews of disaster assessments and lessons project management approaches, communication learned. The desk review also included recommendations protocols, and quality assurance and control measures for subsequent phases of the project, such as a draft to ensure expectations were aligned. engagement plan, a data collection timeline, and a list of stakeholders to be invited for interviews and workshops. Additionally, it highlighted several emerging Task 1.2: Finalize Inception Report observations and preliminary conclusions that informed After the project mobilization meeting and the the questions explored and tested during the virtual confirmation of the proposed LLE focal event (the 2022 engagement phase. floods), the WB prepared an Inception Report. This report: 3.3 Task 3: Develop and Distribute the › Outlined the project’s objectives, tasks, schedule, Pre-Engagement Survey staffing, and exercise management approaches; The WB sent a pre-engagement LLE survey to identified › Established the control processes, including the stakeholders to gain insights into the Nigerian context, the critical path, to ensure the exercise achieves its goals; national response framework, and the survey participants’ and capabilities, capacities, and areas of accountability. The 4 | Lessons Learned Exercise for EP&R in Nigeria 5 | Lessons Learned Exercise for EP&R in Nigeria WB used the feedback from the survey to refine the › Any gaps or challenges identified from responding engagement agenda and improve the materials for one- to recent floods; and on-one interviews and other engagements. › Improvement programs implemented or underway because of recent flood events or similar disasters. 3.4 Task 4: Engagement Week 1— Stakeholder Engagement 3.5 Task 5: Engagement Week 2— Between November 27 through December 5, 2023, LLE Workshops the WB conducted a series of initial interviews and From February 6–26, 2024, the WB participated facilitated discussions with various groups, including: in field visits and conducted interviews with 43 a) NEMA stakeholders representing the six geopolitical zones. These interviews included representatives from the b) Nigerian Hydrological Services Agency (NIHSA) NEMA, State Emergency Management Agencies c) Nigerian Security and Civil Defence Corps (SEMAs), Local Emergency Management Committees (NSCDC) (LEMCs), and community-based organizations (CBOs). d) Nigerian Metrological Agency (NIMET) From February 7 to April 10, 2024, the WB organized e) Federal Fire Service (FFS) a series of LLE stakeholder workshops involving in- f) National Space Research and Development Agency person meetings in six states and virtual meetings in (NASRDA) an additional twelve states. The workshops included separate sessions focusing on each component of g) Federal Ministry of Water Resources the R2R framework and involved 64 professional h) Federal Ministry of Environment stakeholders, the private sector; and 20 community i) Federal Ministry of Information members from areas impacted during the 2022 floods. Interviews with community-based stakeholders j) Presidential Committee on Flood Relief and focused on their involvement with public authorities Rehabilitation (PCFRR) in preparedness activities, such as risk awareness k) National Council for Refugees, Migrants, and campaigns and community exercises. It also examined Internally Displaced Persons (NCFRMI) their perceptions of the effectiveness and utility of l) Federal Ministry of Health early warning systems and their experiences with public authorities and responders during recent flood events. m) Federal Ministry of Women Affairs On April 24-25, 2024, the WB conducted a concluding n) Federal Ministry of Humanitarian Affairs and workshop to present the final conclusions and outcomes Poverty Alleviation of the LLE process, including recommendations from During these initial engagements, WB representatives, each thematic workshop. This session, which brought supported by NEMA, conducted interviews to explore together 90 participants representing 66 organizations, the contributions of responders and government provided an opportunity for stakeholders to validate departments at the national, state, and local levels. the LLE’s emerging findings and recommendations. They also considered the experiences and perspectives of affected communities. The WB drafted and used 3.6 Task 6: Final Analysis and Report a set of high-level questions in a semi-structured The LLE for EP&R in Nigeria—Final Report provides interview format, focusing on: a comprehensive summary of the LLE process and › The level of organizational preparedness for outlines the key findings and recommendations for responding to major flood events, including areas action, which have been agreed upon with NEMA. The such as personnel, equipment, training, plans, and report includes copies of the materials created for the standard operating procedures (SOPs); stakeholder workshops. 4 Context of Disaster Risk in Nigeria N igeria is a nation deeply affected by a range of As Nigeria increasingly experiences extreme weather disaster risks stemming from both natural and events, including heavy rainfall, prolonged droughts, human-induced factors. The complex interplay and heatwaves, the impacts from climate change of environmental challenges, socio-economic conditions, further intensifies the country’s disaster risk scenario. and governance issues contributes to a precarious These shifts in weather trends and patterns contribute disaster risk context, necessitating a comprehensive and to a higher frequency and severity of natural disasters, multifaceted approach to management and mitigation. challenging existing preparedness, planning, and response systems. Flooding is a recurring and severe issue, particularly during the rainy season. Urban areas such as Lagos and Socioeconomic factors also significantly influence Abuja are particularly vulnerable due to their inadequate disaster risk. High poverty rates limit the ability of many drainage systems, which struggle to cope with the Nigerians to prepare for and recover from disasters volume of water. Additionally, river basins like those effectively. Weak infrastructure and inadequate of the Niger and Benue Rivers exacerbate flood risks, services further exacerbate the vulnerability of these leading to widespread damage and displacement. In the communities. Additionally, weak governance and northern regions, drought poses a significant threat, institutional capacity can hinder effective disaster resulting in water scarcity that undermines agricultural management. Limited resources and systemic challenges productivity—a critical sector for many Nigerians. impede the implementation of DRR strategies and the Furthermore, desertification in the Sahel region, which delivery of timely responses. encompasses northern Nigeria, exacerbates land degradation and reduces arable land, further straining 4.1 General Risk Context in Nigeria agricultural activities. Coastal regions, especially the NEMA and stakeholders, with technical support from Niger Delta, face the challenges of erosion, which the United Nations International Children’s Emergency endangers communities and disrupts local ecosystems. Fund (UNICEF), evaluated the general risk context in Human-induced factors also play a substantial role in Nigeria. In 2021, the Nigerian National Government, increasing disaster risks in Nigeria. Fragility, conflict, and with support from UNICEF, developed a National violence (FCV), particularly involving insurgent groups Risk Analysis, as well as six additional analyses for the such as Boko Haram and various banditry activities, geopolitical zones of Nigeria (Northwest, Northeast, exacerbate the vulnerability of disaster-affected Southeast, Southwest, and South). communities. These conflicts displace large numbers Flood, drought, storm, epidemics, conflict and of people, disrupt essential services, and complicate violence, essential services and critical infrastructure disaster relief efforts. Environmental degradation, failure have been identified as priority risks for notably from oil spills and gas flaring in the Niger Delta, Nigeria. The Nigerian National Contingency Plan has led to severe ecological damage, impacting health, focuses on mitigating the impact of disasters, while agriculture, and overall quality of life. Rapid urbanization saving as many lives as possible in the event of the without corresponding infrastructure development above prioritized risks. Contingency plans have been further compounds disaster risks, as the pace of growth developed at the national and geopolitical regional often outstrips the capacity of urban planning and levels, with clear guidelines on sector response services. and interventions, coordination and management arrangements, information management, etc. 6 | Lessons Learned Exercise for EP&R in Nigeria 7 | Lessons Learned Exercise for EP&R in Nigeria Figure 3. Riverine Flood Risk Analysis in Nigeria. Sokoto Kebbi Katsina Jigawa Yobe Zamiara Borno Kano Gombe Kaduna Bauchi Niger Adamawa Plateau Kwara Federal Capital Territory Nasarawa Oyo Taraba Ekiti Kogi Osun Benue Ogun Ondo Riverine Flood Risk Lagos Edo Enugu River Line Arambra Ebonyi High Cross River Medium Delta Imo Abia Low None Akwa Ibom Bayelsa Rivers Data Source: NEMA/SEMA and Stakeholders workshop @August–November 2022 4.2 Government Priorities key priority. The FGN encourages local communities to take an active role in disaster preparedness, response, The FGN priorities for disaster risk management (DRM) and recovery. This includes training community- are articulated through LLE focus group discussions, based volunteers and promoting disaster education to and interviews. They have been outlined in policy and improve resilience at the grassroots level. strategy documents and are driven by national needs and international commitments, such as the Sendai Infrastructure Development and Resilience Building: Framework for Disaster Risk Reduction. Key priorities Efforts to build resilient infrastructure, especially include: in vulnerable areas prone to flooding, erosion, and drought, includes reinforcing critical infrastructure Strengthening EWS: The government prioritizes the like dams, bridges, and drainage systems and adopting development and enhancement of EWS through climate-resilient construction practices. timely dissemination of information before and during floods, droughts, and other natural hazards. Agencies Improving Data Management and Information Systems: Robust disaster data collection, analysis, and like NiMet and NEMA play significant roles in providing sharing mechanisms enables better decision-making weather forecasts and early alerts. and response coordination. Improving IT systems and Capacity Building and Training: The FGN focuses on adopting Geographic Information Systems (GIS) for training and equipping disaster management personnel mapping disaster risks are part of these efforts. at federal, state, and local levels. This includes Collaboration and International Partnerships: The improving the skills of emergency response teams, FGN prioritizes collaborating with international enhancing technical expertise, and integrating modern organizations, donors, and regional bodies to technology into DRM operations. strengthen DRM capacities. This includes working with Community Engagement and Public Awareness: entities like the UN, the AU, and neighboring countries Increasing community awareness and participation is a to coordinate efforts and share best practices. 8 | Lessons Learned Exercise for EP&R in Nigeria Disaster Preparedness and Response Planning: Several interconnected factors contribute to the Developing comprehensive national and regional prevalent issue of flooding in Nigeria. According to the disaster preparedness and response plans that outline annual flood outlook by the NIHSA, primary causes roles and responsibilities for government agencies, civil include soil moisture levels, extreme weather events society, and private sector stakeholders to ensure a driven by climate change, topographical characteristics, coordinated and efficient response to disasters. and the operational status of dams. These factors collectively exacerbate flood risks, necessitating Environmental Management and Climate Change comprehensive and integrated management strategies Adaptation: The FGN focuses on integrating climate to mitigate their impacts effectively.6 Additionally, change adaptation into DRM strategies. This includes other factors attributing to flooding involve alterations promoting sustainable land use, reforestation, and in land use, particularly urbanization, acting as a water resource management to mitigate the impacts of catalyst for urban flooding.7 climate change on vulnerable communities. In the intricate urban landscape of Lagos, flooding is closely linked to several factors, including canal 4.3 Focusing Event for the LLE: 2022 blockages, deficiencies in drainage infrastructure, Flooding Disaster in Nigeria episodes of intense rainfall, and encroachment upon The World Resources Institute’s 2015 Aqueduct Global watercourses. These elements collectively contribute Flood Risk Country Ranking places Nigeria among to the heightened vulnerability of the metropolis to the top 15 nations with the highest annual exposure flooding events, necessitating responsive planning of populations to flood hazards. Other countries in and robust management strategies to address these this ranking include Afghanistan, Bangladesh, Brazil, challenges effectively.8 Concurrently, during episodes Cambodia, China, the Democratic Republic of Congo, of heightened or intense rainfall, precipitation emerges Egypt, India, Indonesia, Iraq, Myanmar, Pakistan, as a significant catalyst for flooding in the area. On Thailand, and Vietnam.4 Flooding has recently emerged a broader scale, determinants impacting flooding as a significant and recurrent disaster in Nigeria. nationwide include the overarching influences Between 2012 and 2022, virtually every region of of climate change and human-induced activities, the country experienced varying degrees of flooding, underscoring the multifaceted nature of flood risk resulting in loss of life, destruction of property, and management in the region.9 displacement of communities. An in-depth study Flooding has posed recurrent challenges for farmers examining flood occurrences in Nigeria from 2011 to in Nigeria, the nation encountered notably severe 2020 across the six geographical zones revealed notable occurrences in 2012, 2015, and 2022. The flood patterns. The North-West zone recorded the highest events of 2022 took an unprecedented turn, marked frequency of flooding with 31 incidents, followed by the North-Central and North-East zones with 20 and 6 Nigeria Hydrological Services Agency, 2020, 2020 annual flood 19 occurrences, respectively. In contrast, the South- outlook. Available online at: https:/ /nihsa.gov.ng/wp-content/ East zone experienced the fewest floods, comparable uploads/2020/06/2020-NIHSA-Annual-Flood-OutlookAFO-5-2. to the South-South and South-West zones. This spatial pdf 7 Adegboyega, S.A., Onuoha, O.C., Adesuji, K.A., Olajuyigbe, A.E., distribution highlights the differential vulnerability and Olufemi, A.A., and Ibitoye, M.O., 2018, An integrated approach to impact of flooding across Nigeria’s diverse geographical modelling of flood hazards in the rapidly growing city of Osogbo, landscape.5 Osun State, Nigeria. Space Science International 4(1), 1–15. doi: 10.3844/ajssp.2018.1.15 8 Aderogba, K.A., 2012, Global warming and challenges of floods in 4 https://www.wri.org/data/aqueduct-global-flood-risk-country- Lagos metropolis, Nigeria. Academic Research International 2(1), rankings 455–468. 5 Nura Umar & Alison Gray (2022): Flooding in Nigeria: a review 9 Agbonkhese, O., Agbonkhese, E.G., Aka, E.O., Joe-Abaya, J., Ocholi, of its occurrence and impacts and approaches to modelling M., and Adekunle, A., 2014, Flood menace in Nigeria: Impacts, flood data, International Journal of Environmental Studies, DOI: remedial and management strategies. Civil and Environmental 10.1080/00207233.2022.2081471 Research 6(4), 32–40 9 | Lessons Learned Exercise for EP&R in Nigeria Figure 4. Number of flood occurrences across the six geographical zones of Nigeria between 2011 and 2020. 20 4 2 4 15 5 Flood ocurrences 2 5 2 4 Key 10 3 2 n North Central 5 2 4 n North East 5 7 4 5 1 n North West 5 2 1 1 n South East 2 2 4 4 1 2 4 n South South 3 1 1 2 1 1 1 1 1 1 1 n South West 0 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Year Source: Umar and Gray, 2022. by distinctive characteristics. According to the NEMA to agricultural lands, with 176,852 hectares partially report, the disaster resulted in the loss of over 600 destroyed and 392,300 hectares entirely devastated.12 lives and the displacement of more than two million The causes of the flood were multi-faceted. While individuals. The FGN estimated an economic loss of some sources attributed the intensity of the flooding to USD 9.12 billion (equivalent to 4.2 trillion Nigerian the release of water from the Lagdo Dam in Cameroon, Nairas (NGN)) attributable to the flood, encompassing prompting bilateral discussions between Nigerian and damages to residential and non-residential structures, Cameroonian authorities, NEMA stated that the Lagdo infrastructure, productive sectors, and cropland. This Dam was not solely responsible for the widespread highlights the imperative to prioritize an LLE focused flooding across Nigeria,13 and NEMA primarily on the 2022 flood event.10 attributed the floods to the exceptionally heavy rainfall The 2022 floods affected 3.2 million people and experienced in 2022.14 displacing 1.4 million and spanned 34 out of the The states of Anambra, Bayelsa, Delta, Jigawa, Kogi, 36 states, including the FCT.11 During a legislative and Nasarawa bore the brunt of the disaster, with briefing, the Director General of NEMA characterized more than half the population impacted. Bayelsa the 2022 flood disaster as the nation’s most severe on state was hit the hardest, with an estimated 700,000 record, surpassing the 2012 floods. Additionally, 2,776 individuals sustained injuries, while 181,600 houses 12 The DG NEMA, Mustapha Habib Ahmed briefing the Special Ad- were partially destroyed, and 123,807 houses were hoc Committee of the House of Representatives investigating the destroyed. The flood also caused extensive damage utilization of Ecological Funds. Wednesday, 16 Nov 2022. https:// dailytrust.com/2022-flood-worst-in-nigerias-history-nema-tells- reps/ 10 https://punchng.com/2022-flood-caused-n4-2tn-economic-loss- 13 The minister of Humanitarian Affairs, Disaster Management says-fg/ and Social Development, Sadiya Umar Farouq making remarks. 11 1 Relief Web (2022a): Nigeria - Floods Response: Flash Update Retrieved from https:/ /leadership.ng/2022-flood-603-dead-1- 2 (Last Updated: 1 November2022), https:/ /reliefweb.int/report/ 3m-displaced-across-nigeria-federal-govt/ nigeria/nigeria-floods-response-flash-update-2-last-updated-1- 14 https://www.icirnigeria.org/lagdo-dam-not-entirely-responsible- november-2022 for-2022-flooding-nema/ 10 | Lessons Learned Exercise for EP&R in Nigeria displaced or affected as of 18 October, 2022.15 The were significantly impacted in the flood-affected impact resonated profoundly across various sectors, communities, where primary food sources were significantly affecting livelihoods, income streams, market purchases and household production. Beyond food security, public health, mortality rates, and access the immediate effects of scarcity, the ramifications to education and housing. of the 2022 floods on food security extended to exacerbating constraints on food availability and In the flood-affected states, agriculture, encompassing nutritional intake within affected households. An crop cultivation, animal husbandry, and fishing, overwhelming 87.3 percent of households were represents the predominant occupation for residents. compelled to limit their diet to a single type of food, A staggering 94.9 percent of households encountered while 76.2 percent resorted to skipping at least one adverse effects on their crops, with Anambra state meal due to shortages. Moreover, 69.2 percent of witnessing the most significant impact at 99.1 percent, households depleted their food stocks entirely, with followed by Kogi state (97.4 percent), Jigawa state (97.2 60 percent experiencing episodes of hunger in the percent), and Bayelsa state (89.8 percent). Overall, 57.4 absence of any accessible food resources. Notably, percent of agricultural households reported severe 33.5 percent of households endured an day without repercussions on their crops due to the 2022 floods, sustenance and 84.9 percent of households were prompting significant alterations in farming practices. unable to procure nutritious food.18 To adapt to these challenges, households implemented modifications such as reducing farm size, minimizing The floods had substantial repercussions on health, input purchases, and curtailing farming hours.16 mortality, and morbidity, disrupting access to healthcare facilities and precipitating disease outbreaks The 2022 floods also exerted a significant toll on that affected nearly a quarter of the population in the farmers engaged in non-crop agricultural pursuits such flooded regions. Bayelsa State reported the highest as livestock farming, fishing, and snail farming, with a number of incidents of such outbreaks. The floods substantial 76.3 percent reporting adverse effects. exacerbated the occurrence of water-borne diseases, Notably, farmers in Kogi were particularly impacted, including cholera, dysentery, and typhoid, attributable with 73.3 percent witnessing the flood’s repercussions to compromised access to clean water and sanitation on their agricultural activities. Consequently, many facilities. NEMA documented over 600 fatalities and farmers were compelled to adapt their approaches to two million individuals displaced as a consequence of these activities post-flood. The ramifications of the the flooding disaster.19 floods extended beyond agriculture and profoundly affected non-farm activities and businesses. The impact on education and housing access were Remarkably, 91.3 percent of companies bore the brunt substantial, marked by significant disruptions in of the floods, with over 90 percent of households in school attendance during the flood. UNICEF puts Anambra, Bayelsa, Kogi, and Nasarawa. This resulted in the number of out-of-school children at 20 million.20 significant impacts on their business and communities. Bayelsa State witnessed the most pronounced impact, with discernible effects also evident in Delta and Kogi These impacts manifested in various forms, ranging States. On average, children were unable to attend from total business loss and physical damage to school for around 53 days due to flood-induced downsizing, revenue loss, and increased operating disruptions. However, the severity of the impact costs.17 The 2022 flood affected Nigeria’s food security, differed across states, with Anambra enduring a more causing widespread crop and farmland destruction. protracted disruption in education. In Anambra, the This devastation resulted in food shortages, triggering a surge in prices for essential goods. These channels 18 ibid 15 Nigeria Flood Impact, Recovery and Mitigation Assessment Report 19 https://www.efdinitiative.org/news/floods-cause-increasing- 2022-2023. losses-nigerian-communities 16 ibid 20 https://www.dataphyte.com/latest-reports/flooding-making- 17 ibid access-to-education-difficult-in-rural-communities/ 11 | Lessons Learned Exercise for EP&R in Nigeria average duration of children’s absence from school reports presented a different narrative, with a significant surged to 73 days.21 In Ondo State, flooding sacked portion of community members asserting that they schools at Kelema community, leading parents to take received no alerts from the government and were back their legal guardianship of their children after unable to evacuate prior to the flood. As it is generally floods took over the school building. accepted that early warning system effectiveness can only be judged by the effective early action that such systems drive. Given the loss of life and damages experienced, it is evident that warnings did not reach all those required to act, and those receiving a warning did not know what to do as a consequence. Losses and damages experience in 2022 emphasize the imperative to enhance early warning and early action, including local and community level warning dissemination, and to bolster community preparedness.23 In the annual flood outlook for 2022, the UN identified 233 Local Government Areas (LGA) in 32 States of the Federation and the FCT as being situated within highly probable flood-risk areas. Additionally, 212 LGAs in 36 states and the FCT were classified within moderately probable flood risk areas. The remaining 392 LGAs fell Houses affected by the 2022 flood in Lokoja. Photo: Guardian Newspapers. within probable flood risk areas, encompassing states such as Adamawa, Abia, Akwa Ibom, Anambra, Bauchi, Bayelsa, Benue, Cross River, Delta, and Ebonyi, among The housing impact was considerable, characterized others.24 by extensive damage to residential structures, including partial or complete destruction. Numerous Relief material distribution and support provided houses remained submerged underwater for days, to flood victims present a mixed picture. While exacerbating the damage and prompting the governmental reports indicate the allocation of displacement of residents. Subsequently, a significant assistance, divergent testimonies suggest that many number of internally displaced persons (IDPs) households did not receive aid during the flood crisis. sought temporary shelter in makeshift camps, often A comprehensive evaluation revealed that a notable characterized by substandard living conditions. The 89.6 percent of respondents reported no receipt of insufficiency of shelter and basic amenities in these support, contrasting sharply with the 10.6 percent camps compounded the already severe circumstances acknowledging assistance. This incongruity prompts for disaster-affected individuals. scrutiny of the effectiveness, coverage, and equitable dissemination of relief endeavors. NEMA, representing Government response, coping, and recovery initiatives the government, orchestrated response efforts by were promptly initiated in the aftermath of the mobilizing available assets, including search and flood. Nonetheless, a disparity emerged between the rescue resources and personnel, to the most severely government’s stance, as articulated by the Minister impacted states. This endeavor aimed at augmenting for Humanitarian Affairs and Disaster Management, life-saving interventions in collaboration SEMAs and which asserted adequate warning and information other state-level stakeholders during the peak of the dissemination regarding the 2022 flood.22 However, 23 Nigeria Flood Impact, Recovery and Mitigation Assessment Report 21 Op cit. 2022-2023. 22 https://leadership.ng/2022-flood-603-dead-1-3m-displaced- 24 https://reliefweb.int/report/nigeria/nigeria-floods-anticipation- across-nigeria-federal-govt/ emergency-plan-action-dref-operation-ndeg-mdrng034 12 | Lessons Learned Exercise for EP&R in Nigeria Figure 5. Flood Extent Along the Benue Channel Across Benue and Taraba States During the 2022 Floods. FLOOD EXTENT ALONG THE RIVER BENUE CHANNEL IN BENUE AND TARABA STATE (UPSTREAM LOKO) 8º40’0"N Plateau Nasarawa 0 10 20 40 60 80 Km Description The map shows the flooded areas in Benue and Taraba State on the River Benue Channel upstream Loko. The HASARD sllgorithm was used to delineate flooded areas using a reference scene of 2022-09-14 and after event scene of 2022-09-26 of Sentinel-1 radar data. Data sources ➢ Modified Copernicus Senintel-1 imagery (2022). ➢ Administrative boundary from OSGOF ➢ Background: Bing, Microsoft (2022) 8º0’0"N Taraba Projection: UTM 31N, Datum: WGS 84 Map produced by National Space Research and Development Agency Legend Built-up Benue Waterbody Flooded Extent State Boundary 7º20’0"N 8º20’0"E 8º40’0"E 9º0’0"E 9º20’0"E 9º40’0"E 10º0’0"E 10º20’0"E flood calamity.25 However, reports of capacity and in FCV regions where humanitarian needs were already capability gaps were reported from all impacted states, high. Resources were stretched thin, and relief efforts especially regarding flood rescue teams. were fragmented, often unable to reach the most vulnerable populations due to security risks and limited The 2022 floods exposed significant weaknesses access. Additionally, public health risks increased as in EP&R, especially FCV-affected areas. Emergency flooding exacerbated existing challenges like poor preparedness efforts were inadequate, particularly in sanitation and limited healthcare services, leading to regions where institutional capacities were already outbreaks of waterborne diseases. The lack of resilience compromised. Many of these regions lacked the planning and disaster management systems in these infrastructure and coordination mechanisms needed areas underscored the need for stronger integration to respond effectively to such large-scale disasters. of DRM and conflict-sensitive approaches in Nigeria’s This resulted in delayed interventions, insufficient emergency preparedness frameworks. early warning systems, and the inability to evacuate vulnerable populations, including IDPs who were During the 2022 floods, the Emergency Operation already living in precarious conditions. The weak Centre (“Situation Room”) was not activated. However, governance in FCV-affected regions further hampered NEMA activated the International Charter: Space and the ability of state and local governments to mount a Major Disasters.26The NASRDA processed the images timely and coordinated response. acquired through the Charter activation. The flooded areas depicted in the map products were shared with The emergency response during the floods was NEMA to inform the emergency response, aiding flood overwhelmed by the scale of the disaster, particularly management efforts in the country. This collaboration 25 https://dailytrust.com/2022-flood-worst-in-nigerias-history- nema-tells-reps/ 26 https://disasterscharter.org/web/guest/how-the-charter-works 13 | Lessons Learned Exercise for EP&R in Nigeria enabled NEMA to precisely identify flooded There are other institutions that collaborate to support communities and the extent of the flood for emergency EP&R for disasters in Nigeria. The Nigeria Hydrological response planning and management. Furthermore, Service Agency (NIHSA) has been actively producing NEMA had proactively informed respective Ministries, the Annual Flood Outlook for Nigeria (AFO), offering Departments, and Agencies (MDA) about impending insights into the national flood risk through hydrological excess spillages and the need for each MDA to take modelling of extreme river flows. However, limitations appropriate steps towards risk reduction and mitigation. arise in the dissemination of the AFO due to the exclusive However, this has not led to enhanced collaboration, and hosting of public presentations and sensitization more engagement is required. Additionally, NEMA has workshops in the capital Abuja. NIHSA representatives, designated desk officers for each humanitarian sector during the LLE workshops, cited financial constraints and hosted planning and coordination meetings, further as the primary hindrance preventing the organization reinforcing its proactive stance in disaster management. from conducting workshops beyond Abuja for wider dissemination of the AFO. The workshop also identified To safeguard the rights of disaster victims and that the AFO, in isolation, does not constitute an early ensure their protection, the National Human Rights warning system as defined in the World Meteorological Commission (NHRC) assumes a pivotal role in disaster Organization (WMO) and UN published Multi-Hazard management. Leveraging the National Action Plan Early Warning Systems: A Checklist.27 In addition, Nigeria for the Promotion and Protection of Human Rights is yet to establish the required structures and systems in Nigeria 2023-2027, the NHRC is dedicated to to deliver effective early warning in accordance with upholding human rights during emergencies. Over the the AU’s Institutional and Operational Framework for years, the NHRC has actively monitored the human Multi-Hazard Early Warning and Early Action.28 In the rights implications of flooding and underscored the absence of an early warning system, it was impossible imperative of emergency response efforts. Specifically, for the government or communities to take effective the NHRC conducts assessments to gauge the impact early actions. of flooding and other natural disasters on vulnerable The 2022 floods exposed several instances of groups, including women, children, older persons, coordination failures at both the federal and state and persons living with disabilities. Additionally, the levels. In some cases, delays in decision-making and institution evaluates the efficacy of evacuation and resource allocation hindered timely response actions, relief measures, ensuring that respective MDAs at both exacerbating the impact of the disaster. For example, in national and sub-national levels comprehend their one affected state, conflicting directives from different roles and responsibilities in safeguarding the rights of government agencies led to confusion among response affected individuals. These rights encompass the right teams and delayed the delivery of essential supplies to life, health, and shelter, among others. to affected communities. NEMA also encountered Despite the existence of these strategic documents and initial bureaucratic impediments that hindered its the presence of NEMA, SEMAs, and LEMCs, institutional response efficiency. In a bid to streamline operations, the agency was temporarily relocated to the Office of coordination remains a significant challenge to Nigeria’s the Vice President from the former Federal Ministry of disaster management system. Fragmentation of Humanitarian Affairs, Disaster Management and Social responsibilities, overlapping mandates, and limited Development. communication channels among government agencies impede effective coordination during emergencies. To reinforce NEMA’s effectiveness and efficiency, According to a report by the UN Office for the NEMA has been permanently placed under the Coordination of Humanitarian Affairs (OCHA), weak 27 https://library.wmo.int/records/item/55893-multi-hazard-early- coordination was a key factor contributing to delays in warning-systems-a-checklist response efforts during the 2022 floods, resulting in 28 https://www.undp.org/africa/publications/africa-multi-hazard- unnecessary loss of life and property. early-warning-and-early-action-system 14 | Lessons Learned Exercise for EP&R in Nigeria Figure 6. Functionality Structure of Disaster Management in Nigeria National Level Coordination of National Disaster Response Central role in Disaster Risk Reduction (DRR) initiatives Provides Capacity Building and Training for emergency response personnel at federal, state, and local levels Development of Early Warning Systems Relief and Recovery Assistance State Level Implementation of National Disaster Policies at the State Level Coordination of State Level Disaster Response Public Awareness and Community Engagement Emergency Preparedness Planning Resource Mobilization and Distribution Local Government Level Functions of LEMCs (Local Emergency Management Committees): Community-Based Disaster Risk Reduction Local Disaster Response Coordination Public Education and Training Establishment of Local Emergency Plans Collaboration with Higher Authorities (NEMA and SEMA) to ensure that local needs and capacities are integrated Presidency and operates in accordance with its serving as a guiding framework for all stakeholders, designated mandate. While the Ministry (now the including communities, to enhance their preparedness Ministry for Humanitarian Affairs and Poverty and response strategies. Alleviation) will continue to focus on policy formulation Nigeria has seen recent improvement in institutional at the strategic level, NEMA is inadvertently tasked enhancement and collaboration for disaster with executing operational activities related to disaster management and emergency response, as highlighted risk management, especially at the state level where by the intensified activities of the UN Platform for there are significant capacity constraints at SEMAs. Space-Based Information for Disaster Management and The challenges confronting Nigeria’s disaster Emergency Response (UN-SPIDER). In 2022, a simulation management system predominantly stem from the of an emergency operation center for the annual floods recurrent and damaging annual floods witnessed across in Nigeria was organized, with stakeholders divided numerous states in the country. They consistently strain into four groups covering search, rescue, and shelter the country’s response mechanisms, unnecessarily provision; logistics; impacts; and external support. These overwhelming a system that could be better prepared groups were subsequently tasked with performing these for predictable events. Considering this persistent roles for flood disasters driven by excessive rainfall and threat, NEMA drafted a comprehensive National Flood transboundary floods. Emergency Preparedness and Response Plan in 2022, 5 Emergency Preparedness and Response Frameworks 5.1 National Legislation and Policy for coordinating emergency preparedness and N response efforts across the nation, working in close igeria has established a legal and institutional collaboration with SEMAs and LEMCs, which are framework for DRM that defines the roles responsible for executing the policy frameworks at and responsibilities of different levels of state and local levels, respectively. government—national, state, and local. The NEMA Act, supported by the National Disaster Management These agencies are also responsible for ensuring that Framework (NDMF) and the National Disaster preparedness and response activities are aligned with Risk Management Policy (NDRMP), serves as the national policies and are tailored to the specific needs cornerstone of this framework. of each region. Additionally, coordination structures such as NEMA’s National Emergency Response Board Under this framework, legal instruments provide for an (NERB) facilitate cooperation among government integrated and coordinated approach to DRM, focusing ministries, departments, agencies, NGOs, and the on preventing and reducing disaster risks, mitigating private sector, with the objective of ensuring a unified the severity of disasters, enhancing preparedness, response during emergencies. ensuring rapid and effective response to disasters, and facilitating post-disaster recovery. NEMA has developed the National Contingency Plan (NCP) in conjunction with other stakeholders. These instruments include the National Strategic The NCP serves as the framework for humanitarian Plan for Flood Management in Nigeria (2023), Multi responses in the event of disaster, facilitating prompt Hazard Emergency Preparedness and Response Plan, intervention by the FGN. This plan encompasses National Contingency Plan (2023-2025), National various disaster scenarios, including floods, epidemics, Flood Preparedness and Response Plan (NFPRP) of conflicts, violence, among others. The NCP undergoes 2022, Search and Rescue and Epidemic Evacuation a review every two years to ensure its relevance and Plan (SAREEP), and others. The NDMF mandates the effectiveness. The most recent revised iteration spans following legal and policy guides: from 2023 to 2025, reflecting the evolving landscape › NEMA Establishment Act of disaster management in the country. › SEMA Law of Establishment Current legislation in Nigeria supports a multi-agency and multi-sectoral approach to EP&R, encouraging › LEMA Bylaw of Establishment proactive and community-led DRR activities. The › Guidelines for Call Out of the Members of the NDMF extends the provisions of the NEMA Act by Armed Forces in Aid to Civil Authority emphasizing disaster mitigation, prevention, and preparedness, and by assigning a significant role to › Volunteer Administration Guide. communities in managing their risks. This requires local governments to establish structures that maximize As outlined in these legal and institutional arrangements, community participation in EP&R, including the agencies at national, state, and local levels are required formation of LEMCs and the involvement of emergency to ensure that all necessary structures are in place volunteers. for effective emergency management, including arrangements and facilities for the establishment The NDMF prescribes two approaches to coordination of Emergency Operation Centers (EOCs) at each in the management of disasters: the use of a Vulnerability jurisdictional level to direct and coordinate disaster and Capacity Analysis and the operationalization response activities, including the involvement of of EOCs. Vulnerability and Capacity Analysis (VCA) volunteers. NEMA, as the lead agency, is responsible is used as the methodology to investigate and 15 | Lessons Learned Exercise for EP&R in Nigeria 16 | Lessons Learned Exercise for EP&R in Nigeria Figure 7. Horizontal and Vertical Coordination in Disaster Management Relevant Federal Minitries, CSOs, International Departments and Agencies Organizations, Development (MDAs), Military (DRUs), Police, NEMA Partners and Private Sector Parliamentary ZONAL OFFICES Relevant Minitries, CSOs, International Departments and Agencies SEMA Organizations, Development (MDAs), Military (DRUs), Police, Partners and Private Sector Parliamentary Relevant LG departments, LEMA CBOs, FBOs, NGOs Police, Parliamentary Age groups, grassroots volunteers, religious Community organizations, Ward Heads, etc. Source: National Emergency Management Framework gather information on hazards, vulnerabilities, and Command System (ICS). The NDMF prescribes that the coping capacities of communities, represented EOCs will operate at three levels: Strategic (Gold level), spatially through Vulnerability Risk Assessment Operational (Silver level), and Tactical (Bronze level). Mapping (VRAM). The VCA and VRAM is designed At the Gold level, the Director General of NEMA, to enhance stakeholders’ operational coordination the Executive Secretary of SEMAs, and the Head of by enabling them to assess disaster risks, understand LEMCs will lead their respective EOCs at the national, the nature and sources of risks, identify the most state, and local government levels. Each EOC will have vulnerable populations, and determine available Watch Directors at the Silver level, appointed from resources to reduce risks. This approach supports relevant stakeholders, and provided with information informed decision-making for disaster risk reduction by the Incident Commander. The Incident Commander, by identifying necessary activities to raise awareness representing the lead agency responsible for a specific and build community resilience. It also provides data disaster, will head the coordination system at the Bronze for disaster preparedness, prevention, and mitigation level, overseeing on-site operations across sectors strategies, as well as for developing recovery plans such as logistics, planning, finance, and administration. that support rehabilitation and reintegration efforts for The ICS framework is designed to integrate various affected communities. facilities, equipment, personnel, procedures, and EOCs located at the NEMA, SEMAs and LEMAs have communication systems from multiple organizations the legal mandate for coordinating disaster response operating within the EOC structure, ensuring effective operations, working under a common Incident and efficient incident management. 17 | Lessons Learned Exercise for EP&R in Nigeria 5.2 Provision of EWS 5.3 Preparedness Planning Legal and institutional frameworks such as the NDMF Preparedness planning is also laid out the NDMF, place a significant emphasis on risk assessment and the which requires comprehensive emergency plans to be development of EWS. However, while these general developed at the national, state, and local levels and ambitions are set out clearly, Nigeria is yet to consolidate outlines specific procedures for responding to different legal and institutional arrangements for early warning, types of emergencies. These plans are required to leaving various warning system components to separate summarize the roles and responsibilities of involved ministries, departments, agencies, and jurisdictions. parties, communication protocols, resource mobilization The African Union (AU) Institutional and Operational strategies, and evacuation procedures. Additional Framework for Multi-Hazard Early Warning and Early preparedness requirements include conducting regular Action29 provides guidance on how these requirements training and capacity-building activities to ensure that may be addressed at member state level but is yet to emergency responders, government officials, and be adopted in Nigeria. The AU Continental Framework community members are well-prepared to act swiftly proposes model structures for member states, including and effectively in the event of an emergency. Simulation the nomination of an early warning focal point to lead exercises, drills, and workshops are also required to development of national warning systems and the be conducted regularly to test and refine these plans, establishment of a multi-agency and multi-sectoral ensuring readiness at all levels. early warning technical working group to coordinate the activities of all partners involved in the delivery of 5.4 Community Participation effective early warning and early action. This includes partners responsible for one or more of the four pillars Community engagement and public awareness are of early warning set out in the UN Early Warning 4 All also prioritized within the policy frameworks. Public guidance.30 awareness campaigns educate citizens about disaster risks and preparedness measures. Additionally, Key agencies currently involved in delivery of separate the framework promotes Community-Based DRM EWS components include NiMet, NIHSA, and NEMA (CBDRM), encouraging the involvement of local (with NEMA leading the charge on risk communication). communities in disaster risk management activities. This SEMAs and LEMCs also play a role in last-mile warning includes training community volunteers, establishing dissemination and early action planning. However, local disaster response teams, and integrating traditional until and unless all early warning components are knowledge into preparedness and response strategies. coordinated to form a single and end-to-end warning system, anticipated benefits in terms of lives saved and damages avoided in Nigeria cannot be achieved. 5.5 Financial Preparedness In accordance with existing legislation and policy The framework emphasizes the need for adequate documents, regular risk mapping and vulnerability financial resources to support EP&R activities. This analyses are supposed to be conducted to identify includes the establishment of contingency funds, potential hazards and high-risk areas across the country access to immediate liquidity, risk transfer instruments, for which EWS should be designed. These assessments access to international aid, and the encouragement are intended to inform the design of hazard monitoring of private sector participation in funding disaster systems, warning dissemination and communication management initiatives. The efficient public financial arrangements, and targeted preparedness and early management and mobilization of resources, including action/response plans. personnel, equipment, and supplies, are also addressed within the framework, with guidelines provided for the pre-positioning of critical resources in high-risk areas 29 https://www.undp.org/africa/publications/africa-multi-hazard- early-warning-and-early-action-system to ensure a swift response. 30 https://www.un.org/en/climatechange/early-warnings-for-all 6 Findings and Analysis 6.1 Legal and Institutional Framework all agencies hampers coordination among neighboring jurisdictions and between national and sub-national 6.1.1 Context governments. During the 2022 floods, this created significant challenges. W hile Nigeria’s legal and institutional Legislation and policy require EOCs to be established Framework for DRM appears to be robust, at the national, state, and local levels. While EOCs are many of its key systems and structures have responsible for developing disaster response plans, there not been fully operationalized in practice. In terms of are currently gaps in consolidating disaster management response and recovery, NEMA is required to utilize information required to underpin those plans. In the an ICS for its EOC operations at the national level, absence of a common Disaster Management Information establishing a standardized approach to managing System (DMIS) that allows for the rapid exchange of emergency operations. Once implemented, ICS data and information within and between agencies and provides a clear chain of command, efficient resource jurisdictions, effective disaster coordination, and the use management, and effective coordination among and sharing of resources is extremely difficult. Although responding agencies. some individual agencies and jurisdictions may have However, while the National Disaster Framework databases and inventories to support sectoral or local clearly describes the role of various agencies and response planning and operations, there is no system to provides detailed lists of their functions and areas of share data and information in a unified format, which responsibility, the Framework provides only general can hinder coordination efforts. guidance on how the agencies must undertake those functions. For example, an ICS structure, based on 6.1.2 Community Preparedness the United States’ (US) ICS system, is set out in the Requirements for community preparedness are National Disaster Framework, but provides only partial clearly set out in law and supporting DRM policy and guidance. Without further and more specific guidance framework documents. However, progress on delivering and Standard Operating Procedures (SOP), the ICS is not operational. these statutory obligations, particularly in community risk awareness and preparedness, has been limited. Guidance set out in other hazard or contingency For example, during the 2022 floods in various parts specific plans, such as the National Flood Preparedness of Nigeria, community members reported that they and Response Plan, the Multi-Hazard Emergency were unaware of any disaster preparedness initiatives Preparedness and Response Plan, and the National or early warning systems in place. Many individuals did Disaster Response Plan (NDRP), contain duplications not receive timely warnings and were unsure of how and conflicting structures and terminology for disaster to respond when floods occurred, leading to avoidable coordination. At the sub-national level, SEMAs and losses, including fatalities. This was particularly LEMAs are required to determine and establish their concerning as these communities had been previously own systems and protocols to fulfill general disaster affected by similar disasters, yet no risk communication coordination objectives set out in the NDMF. Given or community sensitization initiatives had been the lack of funding and resources for EP&R at state and implemented. local levels, and the absence of national guidance and training, few SEMAs and LEMAs have established their Interviews with stakeholders from NEMA zonal offices, own systems. The lack of a single and consolidated state emergency management agencies, and other ICS that is fully aligned to the Nigerian context and government agencies reveal that a primary reason operated uniformly at all jurisdictional levels and across for these gaps in community preparedness is a lack 18 | Lessons Learned Exercise for EP&R in Nigeria 19 | Lessons Learned Exercise for EP&R in Nigeria of resources. There are limited resources allocated to facilities during emergencies, which can lead to delays fulfilling statutory obligations related to high-risk areas, and inefficiencies in disaster response. leaving insufficient capacity to focus on community While different levels of government must decide risk planning and preparedness. As a result, LEMCs and where to position SEMAs within their structures and community members are not systematically engaged how to address capacity gaps, the current arrangements in understanding their risks or in developing local create difficulties for SEMAs in fulfilling their statutory emergency plans that could mitigate those risks or functions. If SEMAs are to be empowered to coordinate ensure an effective response when disasters occur. and direct other ministries and departments, as While some departments, responder agencies, and envisioned in the NDMF, responsibilities involving NGOs make efforts to engage communities and raise risk reduction and preparedness could be more evenly awareness about disaster risks, these initiatives are often distributed across various government departments. In uncoordinated and under-resourced. During the 2022 this scenario, SEMAs would require additional capacity floods, the lack of an effective early warning system building to provide the necessary leadership, technical and inadequate community preparedness revealed the support, and direction to these departments. current approach’s limitations, highlighting the need for a more comprehensive investment in preparedness to 6.1.4 Persisting Coordination Challenges protect communities, the environment, and the economy. There are several notable gaps in Nigeria’s Search and Rescue (SAR) and Evacuation Plans with respect to 6.1.3 State-Level Coordination persons with disabilities (PWDs). It is estimated that The challenges faced by EOCs in Nigeria are not unique there are about 35 million PWDs living in Nigeria, to a single region; similar issues are reported across the based on a 15 percent disability prevalence rate. PWDs country. EOCs at all levels of government face significant are disproportionately impacted by climate change, resource constraints, which impact their ability to fulfill disasters, and environmental degradation. Feedback the wide-ranging statutory responsibilities outlined in from the LLE exercise pointed to Nigeria’s vulnerability, the NDMF. Although the legislation clearly outlines the especially in coastal areas, due to rising sea levels and EOCs’ disaster response roles, much of their resources more frequent extreme weather events. However, are consumed by maintaining an effective response current disaster preparedness efforts largely overlook structure, leaving little room to address broader the specific needs of PWDs, placing them at even preparedness objectives. greater risk. These gaps can impact the efficiency and inclusivity of these systems in addressing the special One of the fundamental issues contributing to these needs of this vulnerable population. challenges is SEMA’s positioning, which limits their authority to coordinate and direct the preparedness actions of other ministries or departments. This issue has been recognized in previous reports, which have recommended that SEMAs report to the highest possible authority to improve coordination and ensure that disaster risk management activities are aligned with national and state policies. A practical example of this challenge is when EOCs coordinate and manage emergency shelters. While EOCs are responsible for identifying potential emergency shelter facilities, they do not own or operate these shelters, which are typically government buildings or privately-owned facilities. As a result, EOCs lack the authority to enforce the use of these Houses inundated during the 2022 floods. Photo: NEMA. 20 | Lessons Learned Exercise for EP&R in Nigeria 6.1.5 Legal and Institutional Framework— preparedness and response, however, stakeholders Key Findings have not taken ownership of the process, resulting in ineffective and inefficient EP&R programs and a. Nigeria has a comprehensive legal and institutional initiatives. framework for EP&R, which is aided by a wealth- supporting policy, framework documents both d. Eight (8) out of the thirty-six (36) states in the for EP&R and framework documents in the water, country do not have LEMCs as required by law. In environment, and agriculture sectors. However, most states the WB interacted with, SEMA had there may be value in developing a new overarching no appropriate systems and capacities in place to framework document for EP&R to replace the support EP&R requirements. In some cases, laws many separate plans, removing duplications and backing the establishment and functions of SEMAs contradictions. This is common practice in many were either outdated, not suitable, not implemented other countries and could be used to strengthen appropriately, or not in place. The situation is similar disaster coordination structures and clarify roles and or worse with the LEMCs. Legal mandates must be responsibilities at all jurisdictional levels. revised, updated, and institutionalized to strengthen systems and capacities for EP&R. b. The lack of coordination remains a challenge to implementing effective preparedness and response e. Legislative budgeting for disaster preparedness (vertical and horizontal coordination), and inter- and response should be increased across national, agency collaboration at the federal, state, and local state, and local government levels. The creation of levels is limited. This relates to the finding summarized a consolidated fund within each budget cycle can above, as there is no explicit legal framework function as a critical mechanism for facilitating mandating collaboration among stakeholders timely emergency responses. Other than the for disaster management in Nigeria, and disaster ecological fund, budget allocations, and support coordination arrangements are currently spread from international partners, the government must across multiple documents. While the act establishing mobilize more private sector funding in disaster NEMA grants it a coordinating role, this does not risk financing. Most participants across the states explicitly encourage inter-agency collaboration and mentioned that there is either a very low budgetary has not been reinforced through a national disaster allocation or the absence of budget appropriation coordination or ICS that applies to all agencies and for disaster preparation and response. While at all jurisdictional levels. There is an urgent need to the national budget allocates minimal financial strengthen and streamline coordination systems and resources for preparedness at the state and build capacities across the country. local government levels, there is often a lack of prioritization for disaster management, resulting in Despite the development of guiding policies, plans, insufficient funding for critical resources such as frameworks, and SOPs to guide several organizational emergency response teams and equipment. As many response plans based on the Sendai Framework, LLE participants representing local governments there is no cohesive and integrated approach commented, this lack of investment at the lower available to manage disaster response in Nigeria. levels of government can severely impact the ability Federal agencies work in silos, and in the absence to effectively respond to disasters when they occur. of a single and unified ICS, national emergency f. The NIHSA has consistently forecasted floods and response efforts will be limited. Participants agree published these forecasts in its AFO. Advancements that individual institutional policies, plans, and in hydrological hardware and software applications frameworks need to be harmonized, and a standard have significantly enhanced the accuracy of these ICS or SOP developed. forecasts. The current monthly flood and drought c. The NDMF, NDRP, and NFPRP have clarified the forecasts are useful, but it is not sufficient to roles and responsibilities regarding emergency ensure that local governments and communities 21 | Lessons Learned Exercise for EP&R in Nigeria receive timely warnings that drive effective early progress and collaborative initiatives. While action. In addition to investments in technical flood structures such as the LEMC are in place in most monitoring and forecasting capabilities, a warnings states, operational guidelines and responsibilities must reach all those required to act according to at the local government level often lack clarity and pre-established response protocols to ensure that definition. appropriate actions can be taken when warnings are i. A pervasive lack of transparency in procurement issued, saving lives and reducing losses. practices within NEMA and SEMAs posed a critical Despite these positive technical developments obstacle during the 2022 floods. Operational staff in flood hazard monitoring and forecasting, the frequently experienced exclusion from decision- Council on Water Resources experiences challenges making processes, resulting in a lack of transparency in managing and monitoring water resources. The and the potential for operational inefficiencies. Council allocates a specific percentage of funds for data collection related to any water project. j. Current policies and plans (e.g., NDRP, SAREEP, Unfortunately, the lack of effective implementation and others) often neglect to engage with PWDs or of these decisions leads to delays and inefficiencies their representative organizations in the planning in water resource management. The specific process, leading to an inadequate understanding recognition and consideration of alerts from of their specific needs during emergencies. Existing NIHSA and by other mainstream disaster response plans lack clear, specific provisions that outline organizations, particularly NEMA, remain unclear. how PWDs will be accommodated in search, This aspect requires further clarification to ensure rescue, and evacuation efforts. This can result in a more coordinated and efficient disaster response delays or failure to provide timely and appropriate system. assistance. Additionally, many of the communication tools used in Nigeria for emergency alerts, such as g. The enactment of the National Fire Safety Code into radio, television, and mobile text messages, are law signifies a significant milestone in regulating not accessible to people with hearing or visual citizens’ attitudes and practices regarding safety impairments. This limits their ability to receive management. The ongoing efforts of the National timely information and instructions during crises. Assembly to review the Fire Service Act are crucial. Furthermore, information is not always provided Furthermore, the expansion of the organization from in accessible formats like sign language, Braille, 12 zones to 18 zones aims to enhance the effective or easy-to-read formats, making it difficult for coordination of emergency response. However, individuals with sensory or cognitive impairments to delays in the review process, as highlighted by understand evacuation and safety instructions. the Fire Service, are impeding practical response efforts. Additionally, placing the Fire Service within 6.2 Personnel the concurrent list of the Nigerian Constitution has led to conflicts between the federal and state Fire 6.2.1 Context Services. Learning from the 2022 floods, it is crucial for EP&R h. NEMA’s foundational legal framework is robust, plans to be comprehensive and aligned with legislative dynamic, and inclusive, with provisions for requirements. These frameworks are designed to continuous improvement and enhancement as guide the management of emergencies at the national, necessary. However, this organizational standard provincial, municipal, and local levels, and to facilitate is not consistently replicated at the state and local regional and international coordination as needed. government levels. In many instances, where such However, while senior officials are familiar with these frameworks exist, they remain largely theoretical. plans, there are concerns that middle-level officers The absence of a comprehensive legal framework in and implementing personnel may not be fully aware numerous sub-national entities impedes operational of the multi-agency plans and their own specific 22 | Lessons Learned Exercise for EP&R in Nigeria responsibilities. This lack of awareness, although not In addition to the above personnel, other government identified as a critical issue during the 2022 floods, agency personnel, various other stakeholders, including poses a potential risk. In addition, if the ICS and NGOs, civil society organizations, academia, the private sectoral plans are not harmonized or clearly defined, sector, and international partners, are actively involved this could compromise the effectiveness of emergency in EP&R activities in Nigeria. These stakeholders responses. contribute to capacity-building, advocacy, research, and resource mobilization efforts, complementing the Effective emergency response relies on a unified and roles of government agency personnel. Collaboration well-understood ICS, which informs detailed plans and partnership among these diverse stakeholders and SOPs for managing supporting facilities, systems, have been essential for the effective implementation and training for response personnel. Furthermore, the of initiatives and the achievement of shared goals. successful delivery of functions outlined in disaster management plans and the coordination of multi- To effectively manage emergency incidents, personnel agency responders depend on well-trained personnel. must understand their own responsibilities, as well Regular training programs, exercises, and drills are as the roles and responsibilities of their multi-agency essential to ensure that all personnel, including those counterparts. They should be proficient in applying not regularly involved in emergency response, are the ICS, whether they are working in the field or prepared to fulfill their roles effectively. operating from the EOCs. Senior staff representing their departments or organizations at the EOC must EP&R in Nigeria faces significant challenges related be thoroughly trained in the multi-agency ICS. They to personnel and human capacity requirements. should be empowered to make decisions and commit These challenges include inadequate training, human resources as necessary. resources limitations, and the lack of continuous professional development. Understanding these For effective training, it is beneficial for all departmental challenges is critical to improving Nigeria’s disaster and service representatives to develop and refer to the management capabilities. same learning and training materials, which will enhance mutual understanding and coordination. Multi-agency Figure 8. Emergency Operations Center Arrangements. Head Emergency Operational Centers (EOC) Watch Directors Watch Directors Watch Directors Watch Directors Incident Commander Public Information Officer Liasion Officer Command Staff Safety Officer Operations Planning Logistics Finance/Admin. Section Chief Section Chief Section Chief Section Chief 23 | Lessons Learned Exercise for EP&R in Nigeria Figure 9. Organogram of the Incident Command System. Incident Commander Public Information Liasion Officer Officer Safety Officer Finance/Admin. Operations Section Planning Section Logistics Section Section Staging Area Resources Demob. Service Support Compensation Time Unit Unit Branch Branch Branch Claims Unit Air Ops. Situation Doc. Commun. Supply Procurement Compensation Branches Branch Unit Unit Unit Unit Unit Claims Unit Environmental Unit Medical Facilities Divisions Groups Unit Unit Food Ground Strike Team Unit Support Unit Task Force Single Resource and multi-sectoral training courses may provide further by strict chains of command and procedures that slowed advantages, fostering even better integration and down decision-making, especially at the local level. collaboration. Ongoing training and staff development While the scale of the 2022 flooding was unprece- are essential to ensure personnel acquire and retain dented, organizational structures were not equipped the knowledge, skills, and understanding required to expand rapidly in response to growing demands. to effectively implement the ICS. Regular drills and NEMA and SEMAs struggled to mobilize person- exercises should reinforce information covered in nel and resources in a timely manner to address the training sessions, allowing personnel to apply what they floods’ wide geographic impact. The lack of scalability have learned. These activities also offer opportunities affected the deployment of trained personnel, leading for continuous review, updating plans, and assessing SOPs to ensure they remain current and effective. to delays in relief efforts and resource allocation. Effective disaster response requires a clear and 6.2.2 Personnel Interactions responsive organizational structure that prioritizes One of the critical personnel challenges during the communication, coordination, and rapid decision- 2022 flooding was the limited flexibility and scalability making. However, during the 2022 floods, the existing of organizational structures within NEMA and SEMAs. organizational structure at NEMA and SEMAs lacked Emergency management organizations need the ability a robust emergency response hierarchy that could to adapt quickly to unforeseen disasters. However, delegate authority and decision-making powers to NEMA’s and SEMAs’ bureaucratic and rigid structures of regional or local officers. Centralized control, especially made it difficult for them to respond swiftly to the fast- from NEMA’s headquarters, hindered swift responses evolving flooding crisis. Personnel were often confined in some regions. 24 | Lessons Learned Exercise for EP&R in Nigeria Figure 10. Incident Command Structure for Flood Incident Commander Federal Fire Service Safety Officer NIWA Liasion Officer NEMA Public Information Officer Operations: NPF, Planning: FS, FMOH, SEMA, FMHADMSD, Inteligence/ NIMET, NIHSA, NEMA, HIHSA, FS, Logistics: NPF, FS, Admin/Finance: Investigation: DSS, FRSC, NIMASA, FMWR, FMEnv, DHQ NEMA, NIMASA NIA, NPF, NSCDC NSCDC, NCS, NIS, NIWA, NIMASA, NRCS, DHQ DHO Source: Emergency Flood Preparedness and Response Plan (NEMA). Communication breakdowns were observed, as A significant challenge during the 2022 flooding was overlapping roles among NEMA, SEMAs, and other the absence of an updated and comprehensive roster stakeholders led to confusion in executing response of trained and experienced personnel. NEMA and some activities. This often resulted in the duplication of SEMAs had insufficient databases of personnel with efforts, or, in some cases, neglect of critical areas in specialized disaster management skills. This hindered need of attention. the timely identification and deployment of individuals with the necessary expertise in flood response, search According to the NDMF, the Federal Fire Service (FFS), and rescue, medical care, and logistical coordination. a key response agency, is the Incident Commander for There was also a reliance on volunteers or ad hoc flooding; however, during the 2022 floods, the FFS personnel with little to no formal disaster management could not play an effective role due to institutional and training. This led to inefficiencies and, in some cases, resource constraints. endangered the safety of both personnel and affected The FFS continues to make significant improvements communities. in developing its personnel and planning for disasters. Emergency preparedness is highly dependent on For example, FFS has recently recruited and trained conducting regular exercises and drills to ensure that firefighters in emergency preparedness and response. personnel are ready for real-life scenarios. However, This initiative includes comprehensive training the 2022 flooding response highlighted deficiencies in programs designed to equip firefighters with essential this area. NEMA and SEMAs had not conducted regular, skills and knowledge required for effective disaster large-scale disaster simulations to test their readiness response. However, significant challenges exist within for events of such magnitude. As a result, personnel FFS. For instance, there is no toll-free telephone line were not fully prepared to handle the complexity and dedicated to the Fire Service to enhance prompt scale of the disaster. reporting of incidents, and most roads are not accessible by fire trucks. Given these circumstances, The lack of joint drills among NEMA, SEMAs, and other FSS’s capacity to respond and perform its mandate is key stakeholders, such as the military, Red Cross, and far from optimal, especially at the local and community local governments, created gaps in the coordination levels, which in most cases are the first responders. and collaboration during the actual disaster response. 25 | Lessons Learned Exercise for EP&R in Nigeria Without adequate drills that integrated all relevant results in a lack of organizational knowledge and actors, response efforts were fragmented and delayed. insufficient lessons learned to handle major disasters adequately, thereby exposing communities to risks The flooding disaster in 2022 attracted international during similar events. Additionally, despite the attention, with offers of assistance received from retention of community-based organizations during foreign governments, NGOs, and international emergencies, there is a dearth of comprehensive organizations. However, NEMA and SEMAs faced training and operational modules. Ninety percent of significant challenges in coordinating this support respondents at the local and community levels in all the effectively. For example, the process of accepting states engaged with on the LLE described an absence of and distributing international aid was hampered by SOPs and protocols for personnel engagement during bureaucratic bottlenecks within NEMA, SEMAs, and the disaster events. Personnel at different levels of the relevant ministries. This delayed the arrival and government acknowledged that training of personnel utilization of much-needed resources such as food, should be on the priority list of any effort to strengthen medical supplies, and equipment. EP&R systems and capacities in Nigeria. The absence of trained personnel dedicated to coor- Continuous professional development is essential for dinating international support led to weak commu- maintaining and enhancing the skills and knowledge nication between local authorities and international of emergency responders. In Nigeria, however, there agencies. This resulted in overlapping efforts, where is a significant gap in providing ongoing training and some areas received excessive aid while others were professional development opportunities for EP&R neglected. Coordinating with international teams, par- personnel. Many responders do not receive regular ticularly in rural and remote areas, was complicated by refresher courses or advanced training to keep up language barriers, differing operational standards, and with evolving disaster management practices and logistical challenges, such as inaccessible roads due to technologies. This stagnation in professional growth transport infrastructure damage. means that many emergency responders may not be Many personnel, including firefighters, medical staff, equipped with the latest skills and knowledge required and disaster management officials, lack the necessary to handle modern-day emergencies effectively. skills and knowledge to handle complex emergency Nearly all SEMAs across the six states and FCT situations effectively. Training programs are offered reported inadequacies in disaster management skills, infrequently, insufficiently comprehensive, and fail to incident reporting, and management. Many states incorporate the latest best practices and technological highlighted the inability to organize simulations due advancements in disaster management. The lack of to resource constraints. For instance, Enugu State specialized training for different types of disasters— SEMA indicated that their last simulation, conducted whether natural, technological, or man-made—means in 2022 with the Federal Airport Authority of Nigeria that responders are not adequately prepared to address (FAAN), was the most recent, while Adamawa State the unique challenges each scenario presents. During reported a significant gap in simulation training. Only the stakeholder assessment in Lagos State, participants Lagos State reported plans for simulation exercises in representing diverse local governments acknowledged conjunction with UNICEF. At the organizational level, inadequacies in effectively managing significant similar challenges persist. For example, according to disasters, as evidenced by their struggle to address the National Space Research and Development Agency the ocean surge encountered during the 2022 flood (NARSDA), although there is continuous capacity disaster, due to personnel capacity constraints. While development on a space-based approach for disaster there exists a commendable readiness for routine and management, the only mock exercise on the EOC was less severe incidents, vulnerabilities become apparent conducted in 2022 during the UN-SPIDER workshop. when confronted with more complex and substantial challenges, such as the ocean surge event. The absence Despite the efforts of stakeholders, Nigeria faces of sufficient training and resources for local responders significant human resource limitations in its EP&R 26 | Lessons Learned Exercise for EP&R in Nigeria efforts. There is a shortage of trained and experienced existing structures, such as LEMCs, and work with personnel available to manage and respond to local community groups, volunteers, NGOs, and disasters. Additionally, among the emergency services academic partners. Engaging these community-based workforce, low morale due to difficult working governance structures in planning and implementing conditions, inadequate compensation, and high stress programs ensures that they are community-led and levels have led to high turnover rates. This situation focused. creates a cycle of inadequacy, where there are not Capacity building and training support will be neces- enough experienced personnel to train new recruits, sary for community members, volunteers, and partners further diminishing the overall capacity of the EP&R involved in executing agreed programs. Annual com- system. munity safety plans should outline how these capacity 6.2.3 Collaboration Considerations building needs will be addressed and detail a program of community-based training and planning activities. In 2023, following the 2022 floods, NEMA undertook initiatives to strengthen inter-agency collaboration 6.2.4 Key Findings and enhance grassroots-level human resources. In a. One of the foremost personnel challenges in Nigeria’s partnership with the UN-OCHA and the United EP&R is the inadequate training of emergency States Forest Service, facilitated by the United States responders. In addition to attaining recruitment Agency for International Development (USAID), NEMA goals, it is important that personnel receive and conducted training programs. These programs aimed to use unified training materials at the federal, state, equip personnel and stakeholders with essential skills and LGA levels, with an emphasis on a multi-agency and knowledge for effective disaster management. ICS. There is also the need for these trainings to The collaboration had a dual focus: first, to boost be reinforced by regular drills and exercises. This is coordinated disaster management efforts in line with most important for middle-level and implementing NEMA’s mandates, and second, to enhance SEMA’s personnel. For other personnel, regular and joint capacities. This collaboration aimed to enable SEMAs exercises and drills are required. There was also an to effectively manage disasters at both the state and absence of an updated and comprehensive roster of local government levels. However, the effectiveness trained and experienced personnel. and sustainability of the training is limited by the absence of a consolidated ICS. b. In NEMAs’ and SEMAs’ organizational structures, there is limited flexibility due to bureaucracy and Building community resilience requires a collaborative rigidity. As an example, during the 2002 floods, effort from various stakeholders, including government organizational structures were not scalable, and departments, response agencies, NGOs, academic this affected the deployment of trained personnel, institutions, community groups, and volunteers. To leading to delays in relief efforts and resource enhance community planning and risk reduction allocation. efforts, capacity building across these sectors is c. The recruitment and retention of qualified essential. A strategic approach is needed to tackle this personnel is another critical challenge. Emergency challenge effectively. A medium-term strategic plan management agencies in Nigeria often struggle should outline priorities for developing community- to attract and retain skilled professionals due to based response plans and risk sensitization programs. several factors, including inadequate salaries, This plan should have an annual program of activities lack of career advancement opportunities, and aimed at improving community safety, involve multiple difficult working conditions. The public sector’s partners, and be overseen by NEMA. unattractiveness compared to the private sector Community-based risk sensitization programs, or opportunities abroad contributes significantly response plans, drills, and exercises can be more to this issue. Moreover, the recruitment processes effective if statutory authorities collaborate with are often plagued by bureaucratic inefficiencies and 27 | Lessons Learned Exercise for EP&R in Nigeria corruption, further limiting the pool of competent Effective coordination of EP&R activities requires and motivated individuals entering the emergency dedicated facilities, which serve as command centers services workforce. At SEMAs, for instance, for managing emergency aid, coordinating response personnel contend with labor shortages. teams, and staging equipment. These facilities are crucial for creating a culture of preparedness, ensuring d. NEMA’s centralized control limited the emergency consistent communication, and maintaining essential response hierarchy and hindered swift response. services, especially when critical infrastructure and Similarly, the role of the Fire Service as Incident government services are disrupted. They provide Commander for flood disasters was ineffective and needs to be strengthened or revised. a centralized hub for information, personnel, and equipment, enabling the emergency response system e. Nigeria lacks a consolidated ICS, which is clearly to mature and become more effective through targeted established by law, and should have its own single investments. framework document. 6.3.2 Emergency Operation Centers (EOCs) f. There is an absence of a medium-term strategic plan with clear priorities for developing community-based The NDMF mandates the establishment EOC at the response plans and risk sensitization programs. local, state, and national levels. These centers are essential for coordinating and managing emergency g. The physical and psychological well-being of response operations across the country. These facilities, emergency responders is crucial for effective disaster when functional, ensure that coordination among management. In Nigeria, there is a lack of adequate government agencies, first responders, and NGOs, and support systems to address the health and well-being others is seamless. In addition to established EOCs, needs of EP&R personnel. Emergency responders mobile command units can be deployed in disaster often work in high-stress environments with limited zones to manage on-site or local emergency response access to mental health services and support. The efforts. absence of counselling and psychological support can lead to burnout, depression, and other mental As Nigeria continues to face climate-induced disasters health issues, reducing the overall effectiveness and like the 2022 floods, strengthening the operational readiness of the emergency response workforce. capabilities of EOCs and ensuring they are equipped to handle both small and large emergencies will be critical. 6.3 Facilities Focused investment in infrastructure, training, and the development of SOPs for various disaster scenarios will 6.3.1 Context enhance the country’s resilience to future disasters. The effectiveness of Nigeria’s EP&R system is Nigeria requires a strengthened and integrated EOC at significantly impacted by challenges related to the federal and state levels in the likeness of Fusion facilities. Key areas that need to be addressed include Centers found in the United States. Fusion Centers are deficient emergency facilities, inadequate equipment, state-owned and operated centers that serve as focal neglected facility maintenance, and the lack of points in states and major urban areas for the receipt, strategic location planning. By increasing the number of facilities, upgrading equipment, implementing regular analysis, gathering and sharing of threat-related maintenance programs, placing facilities in strategic information among state, local, tribal and territorial, locations, enhancing training sessions, and fostering federal, and private sector partners.31 A typical Fusion coordination, Nigeria can significantly improve its EP&R Center have the following: capabilities. Addressing these facilities requirements is 1. Multi-disciplinary Call Information/Analysis/ essential for ensuring a robust and effective response Dispatch: to emergencies, ultimately reducing the impact of disasters on the population. 31 https://www.dhs.gov/fusion-centers 28 | Lessons Learned Exercise for EP&R in Nigeria › Emergency services (with appropriate call no specific obligation to adapt their buildings for use numbers) during disasters. › Electricity and water outage telemetry The 2022 floods exposed the shortcomings of this decentralized shelter system, particularly in › Engineering services government-owned buildings, which reported the most › Traffic surveillance safety issues. Furthermore, no dedicated funding exists to ensure that these buildings meet safety and welfare › City fleet management standards for use as shelters during emergencies. › Health and disaster management monitoring Without establishing minimum standards and securing 2. Crisis Management Boardroom for decision-making funding for necessary facility maintenance and during emergencies upgrades, the challenges of providing safe and well- maintained shelter facilities during future disasters 3. Resting Areas and Kitchen for staff during will persist. To address these issues, Nigeria must prolonged operations clarify the responsibilities of various agencies involved 4. Data Centre with multimedia critical in shelter management and establish a coordinated communication, a Geographic Information System, approach to ensure that emergency shelters are safe, video surveillance, and flood early warning systems. well-managed, and equipped to handle the needs of vulnerable populations during disasters. 5. City Safety Laboratory for research and analysis. 6.3.4 Training and Base Facilities While Fusion Centers offer a model for improving The WB assessed training and base facilities for Nigeria’s EP&R system, it must be carefully integrated response agencies and found that Nigeria has no well- into existing emergency operations. Stakeholders established facilities that support the training and emphasized the need for a single, overarching ICS development of emergency responders. For example, that clearly outlines roles alongside existing EOCs, NEMA should offer professional courses, including emergency call centers, and command centers operated by agencies like the Nigerian Police Force. Without leadership and management development courses, proper integration, there is a risk of duplication and while specialized agencies, such as the Nigerian Police confusion, which could hinder emergency response Force and the Federal Fire Service, should develop and efforts. operate their own accredited training programs. 6.3.3 Emergency Shelter Facilities 6.3.5 Key Findings During the 2022 floods, significant challenges emerged a. At the national level, NEMA operates the National regarding the provision of safe and adequate emergency Emergency Coordination Centre (NECC). The NECC shelters. Many shelters lacked sufficient water and serves as NEMA’s primary notification hub for sanitation facilities, had unsafe or illegal electricity impending or actual disasters or emergencies. It connections, and were not able to provide necessary maintains a 24-hour watch to monitor all sources welfare services. A key issue is the lack of a single of warning and disaster information, including department responsible for managing shelters. While information and reports received from other NEMA plays a role in planning for and coordinating federal agencies, NEMA zones, and the media. The shelter use during emergencies, it does not have the NECC disseminates disaster event information to resources needed to manage them effectively once key NEMA officials, NEMA zone representatives, they are activated. Many designated emergency and agency personnel who are signatories to shelters, such as school buildings or community halls, the NDRP. Additionally, the NECC coordinates are owned and operated by various government logistics operations, which encompass control departments, NGOs, or faith-based organizations, with and accountability for supplies and equipment, 29 | Lessons Learned Exercise for EP&R in Nigeria resource ordering, delivery of supplies, equipment, are limited in functionality. At emergency facilities, and services to the Disaster Field Office (DFO) personnel require training and development to and other field locations, resource tracking, facility improve capacity and reliability during emergencies. location, setup, space management, building While NEMA operates warehouses across 15 states services, transport coordination, fleet management, and the FCT to facilitate the rapid distribution of information and technology systems services, humanitarian aid to disaster-affected communities, administrative services, and customer assistance. the current conditions, capacity, and security of Emergency coordination across MDAs in terms these warehouses are often inadequate. In 2023, of the management of EOCs remains a challenge. numerous respondents reported incidents of SOPs across sectors and MDAs need to be aligned looting at NEMA warehouses in Jos, Adamawa, and for improved coordination and emergency response Taraba, where individuals seeking food breached performance. the facilities. Participants in the Local Level Early Warning (LLEW) process from various states have b. One of the most pressing challenges facing EP&R underscored the need for enhanced storage and personnel in Nigeria is the lack of sufficient warehousing solutions in disaster management. It emergency facilities. These include fire stations, is critical to address these vulnerabilities to prevent emergency operation centers, shelters, and hospitals the destruction of materials intended for disaster equipped to handle disaster situations. The current response before they reach the recipients. number of these facilities is often inadequate to meet the needs of Nigeria’s large and diverse population. d. Emergency facilities often lack the necessary For instance, many rural and remote areas lack equipment to respond effectively to disasters. basic emergency services, forcing responders to This includes basic medical supplies, firefighting cover vast distances, which delays response times equipment, rescue tools, and communication and reduces the effectiveness of the intervention. devices. Many emergency response units operate EOCs are not common among disaster response with outdated or malfunctioning equipment, organizations. For instance, the National Red Cross which hampers their ability to perform their duties Society (NRCS) lacks a dedicated and fully equipped effectively. For instance, firefighters might not have EOC. During the 2022 floods, volunteers from the access to modern fire engines or sufficient protective FCT Abuja Branch of the NRCS were mobilized to gear, and medical responders might lack advanced staff an improvised EOC using the boardroom. Some life-saving equipment. This shortage not only puts subnational actors have initiated the construction of the lives of responders at risk but also limits their necessary facilities. capacity to save lives and mitigate damage during emergencies. NARSDA has identified significant c. Maintaining emergency facilities so that they remain deficiencies in facilities for monitoring disaster in optimal condition is crucial for ensuring readiness onsets. The country’s space sector relies heavily on and reliability during disasters. In Nigeria, however, international mechanisms for access to satellite data. there is a significant gap in the maintenance of Particularly crucial are non-optical satellites, such such facilities. Many emergency centers, shelters, as radar systems, which are vital during the rainy hospitals, and other critical infrastructures suffer season when cloud cover limits the effectiveness from neglect and lack of regular maintenance. of optical satellite systems. Additionally, there is a This can result in equipment failures, structural notable absence of sensors for monitoring slow- deficiencies, and overall reduced functionality of onset disasters like droughts, which require long- the facilities. Negligent maintenance practices also term monitoring solutions. lead to a rapid deterioration of the already limited resources, further straining the EP&R system. e. The strategic location of emergency facilities is Emergency shelters in Nigeria are largely not vital for ensuring quick and effective response to available, and even when they are available, they disasters. In Nigeria, many emergency facilities are 30 | Lessons Learned Exercise for EP&R in Nigeria not optimally located to cover the areas that are to provide effective relief and protection against the most prone to disasters. Urban areas might have a flood’s impact. Strengthening the country’s rescue higher concentration of facilities, leaving rural and and response capabilities by investing in specialized disaster-prone regions underserved. This disparity in equipment is crucial to saving lives and improving the strategic location of facilities means that some outcomes in future flood events. communities are more vulnerable to disasters due to 6.4.3 Communications Equipment the delayed arrival of emergency services. Effective EP&R requires a strategic approach to the placement Effective communication, both within emergency of facilities, ensuring that they are accessible to all responder organizations and among them, is a crucial regions, particularly those at higher risk. element in delivering a successful emergency response and early recovery, which was especially the case during 6.4 Equipment the 2022 floods. The ability of responders to coordinate their actions quickly and accurately depends heavily 6.4.1 Context on the reliability and resilience of communications Effective EP&R in Nigeria depends significantly on the systems and equipment. During the LLE engagement, availability and adequacy of equipment. Addressing and stakeholders reported insufficient and outdated meeting the equipment requirements for fire services, communications equipment as a significant challenge. medical response, search and rescue operations, Furthermore, there is a need to ensure that available communication, and EOCs is critical for enhancing equipment is resilient. A report by the United Kingdom- EP&R personnel’s disaster response capabilities. By based Royal United Services Institute (RUSI) emphasizes investing in modern equipment, providing training, that emergency communication systems must be robust implementing regular maintenance, and fostering enough to withstand various shocks and stressors.32 collaboration, Nigeria can significantly improve its These can include hacking attempts, physical damage EP&R system. Ensuring that responders have the to infrastructure, power failures, and sudden spikes necessary tools and technologies is essential for in network traffic, as well as the risk of cyber-attacks. reducing the impact of disasters and enhancing overall The 2022 floods highlighted the importance of resilient emergency management. communications systems, especially when physical infrastructure was compromised due to the flooding. 6.4.2 Rescue and Response Capabilities To ensure an effective response, it is critical that During the 2022 floods, there were numerous fatalities communications systems are safeguarded from and widespread damage to infrastructure. While the these potential vulnerabilities and risks. Safeguarding Nigerian Fire Service and other rescue teams played a measures can include upgrading the infrastructure, critical role in saving lives through swift response, they implementing secure and reliable backup systems, and faced significant limitations due to a lack of specialized ensuring communications channels remain operational water rescue equipment. Personnel, although trained under extreme conditions. Reliable communication is in basic search and rescue techniques, did not have essential not only for immediate disaster response but tools such as water rescue boats and specialized also for the coordination of long-term recovery efforts. equipment for swift water rescues. Furthermore, there was no access to flood protection equipment like 6.4.4 Resource Database mobile or deployable flood barriers and high-volume The 2022 floods underscored the importance of pumps. This shortage made it difficult to control having a well-organized and accessible resource floodwaters and mitigate the damage caused by rising database for emergency response and recovery. water levels. The lack of such essential resources not While various departments and agencies have some only hampered immediate rescue efforts but also increased the vulnerability of affected communities, as 32 Emergency Services Communications: Resilience for the Twenty- emergency responders were limited in their capacity First Century (RUSI) 31 | Lessons Learned Exercise for EP&R in Nigeria valuable equipment and trained personnel who could however, due to capacity constraints at SEMAs, support emergency efforts, these resources are often NEMA mobilizes disaster risk units and local dispersed across different organizations and external operators at the state level in most cases. The WB partners. For example, during the 2022 floods, there observed significant shortages in swift water rescue was a significant challenge in accessing high-level equipment. This shortage is prevalent across various clearance to obtain four-wheel drive vehicles needed government agencies at all levels nationwide. to navigate safely in flooded areas, particularly at the c. In the absence of dedicated resources, residents, state level. Similar issues arose with the provision of particularly those living in riverine and coastal plant and machinery for clearing flood debris, with areas, frequently volunteer to undertake the confusion about whether operators or just equipment challenging task of rescuing flood victims. This trend was required. Regarding search and rescue equipment, is common across states and in other disaster-prone rescue boats especially were in short supply, and local areas, such as during building collapses, where divers with crude devices often led rescue efforts. community members and volunteers use makeshift Stakeholders noted that utilizing available resources equipment for search and rescue operations. The efficiently depends on having a clear understanding of lack of specialized equipment represents a critical what is available, knowing the protocols for requesting capacity gap, which significantly increases the risk of and mobilizing these resources, and identifying the casualties and injuries for both victims and rescuers. trained personnel needed. External resources, such as d. According to participants, inadequate heavy machinery, also require knowing the protocols communications equipment was a major challenge for managing costs and liabilities, even if they are during the 2022 flood response and continues to provided free of charge. hinder effective disaster management. Additionally, 6.4.5 Key Findings there was a severe shortage of shelter materials, such as tarpaulins and tents, forcing many people a. The insufficiency of EP&R equipment, as identified to sleep outdoors. Housing equipment is always a through interviews and surveys at the local level, major issue during large-scale disasters. However, was a predominant concern among stakeholders. international development agencies, such as Nearly all respondents expressed concerns about the IOM and UNICEF, often assist in setting up their ability to fulfill their responsibilities effectively temporary shelters for victims. during the 2022 floods due to a significant lack of resources. For instance, the National Hydrological e. To address the reported shortage of equipment for Information Service (NHIS) reported shortages EP&R, particularly in hydrological data collection, in modern equipment and technologies needed immediate investment in modern technologies is for hydrological data collection, processing, and essential. This includes the acquisition of critical archiving. These include essential tools such as equipment such as acoustic Doppler current Acoustic Doppler Current Profilers, Data Collection profilers, data collection platforms, and advanced Platforms, emerging geophysical equipment for geophysical tools. The NHSA has emphasized the groundwater investigations, Mass Spectrometers, importance of these technologies in improving flood conventional analytical equipment for measuring alert prediction and analysis. isotopic and chemical concentrations in water, Data f. To rectify the significant deficiency in swift water Loggers, Sediment Samplers, and Eco-Sounders, rescue equipment at the state level, particularly among others. Respondents noted that equipment within SEMAs, it is crucial to establish and is often borrowed from civil engineering companies strengthen specialized swift water rescue units. to meet disaster response needs. These units should be equipped with the necessary b. At the state level, SEMAs are responsible for tools, training, and supplies. Additionally, consider conducting flood search and rescue operations; hiring local divers willing to participate in these 32 | Lessons Learned Exercise for EP&R in Nigeria efforts, either as full-time or part-time members which notify local residents and the response teams within SEMA or LEMA. This proactive approach ahead of emerging hazardous events. Additionally, aims to reduce reliance on community volunteers coordinating emergency information from responding during flood emergencies, minimizing risks for both agencies and monitoring social media channels ensures rescuers and victims. both horizontal and vertical situational awareness. The development of hazard and vulnerability maps, as g. Invest in advanced communication tools to improve well as other geo-referenced emergency information coordination and information dissemination during captured digitally and shared electronically, provides disasters. This will address the critical gaps in decision-makers with crucial resources for planning communication equipment and shelter supplies that over time to reduce risk. However, for information to were identified during the 2022 flood response. have a meaningful impact, it must be utilized by both Additionally, ensure that there is an adequate the affected communities and well-trained, committed stockpile of shelter materials, such as tarpaulins personnel equipped to respond safely and effectively. and tents, to meet the immediate needs of affected By addressing existing challenges, Nigeria can enhance populations and prevent situations where people its capacity to respond to future emergencies and are forced to sleep in open fields. mitigate the risks posed by climate change and natural h. Strengthen collaboration with international disasters. Additionally, strengthening the links that development agencies, such as the IOM and connect actionable information, expert analysis, and UNICEF, to address challenges related to housing community preparedness will help save lives and equipment during disasters. Explore partnerships to reduce the economic impact caused by disasters. establish temporary shelters for victims, leveraging the expertise and resources that these agencies can 6.5.2 Early Warning Systems offer. EWS in Nigeria provide decision-makers, responders, i. Implement regular training and capacity-building and community members with the information they programs for emergency responders at all levels. need to take effective early actions to save lives and Equip responders with the necessary skills to minimize damage. For an EWS to be effective, it must effectively use modern equipment and technologies. address four interconnected technical components: This is particularly important for responders at › Risk Knowledge: Mapping and assessment of data the state and local government levels, who were on hazards, exposure, and vulnerabilities. overwhelmed during the 2022 floods, exacerbated › Monitoring and Warning: Identifying hazards to be by their lack of adequate equipment to respond monitored, establishing systems for monitoring, and effectively. issuing warnings when thresholds are breached. 6.5 Information › Dissemination and Communication: Ensuring warnings are effectively delivered to communities 6.5.1 Context and stakeholders, enabling early action. In Nigeria, the effective collection, analysis, and › Response Capability: Facilitating an effective swift dissemination of information are essential for response by individuals, communities, governments, better decision-making, especially in anticipation and institutions. of emergencies, during response operations, and through the transition to early recovery phases. The If these components are developed in isolation, they impact of emergencies is often felt at the local level, may provide some benefits. However, an effective EWS making community engagement critical for a robust must integrate all components into a unified system to preparedness framework. Information used for drive coordinated early actions. In Nigeria, successful preparedness and response includes data from EWS, integration requires good governance, which involves 33 | Lessons Learned Exercise for EP&R in Nigeria a regulatory framework establishing institutional institutions could support the dissemination of and financial arrangements, supported by political warnings and preparedness measures. The use of commitment. Community feedback and professional mobile networks, radio, and social media platforms can input are also essential in evaluating the status and further improve outreach and ensure that messages effectiveness of current EWS, as shown in previous reach rural and remote areas. emergency situations, such as flooding in states like Lagos or Benue. Stakeholders, including disaster 6.5.4 Response Capability management agency authorities, local government Improving the capacity of Nigerian communities to representatives, and impacted community members, respond to early warnings is crucial. This involves the can provide critical insights into the effectiveness of development of response plans at both the community early warning systems. and individual levels, as well as training programs for Despite having weather information provided by the emergency responders. Public awareness campaigns NiMet, many communities have reported a lack of can help ensure that those receiving warnings localized warnings or clear instructions on how to act in understand their significance and know the action steps the face of threats like flooding or drought. For example, to take. Given the current gaps in statutory duties and residents impacted by recurrent floods in places like responsibilities across different government spheres, a Makurdi or Lokoja have noted that they often receive comprehensive review of Nigeria’s EWS is needed. Such general weather warnings but are unsure how those a review would inform the development of governance warnings apply to their specific situations. This highlights structures that ensure clear roles and responsibilities, the need for targeted and localized instructions to efficient data sharing, and harmonized response efforts. ensure preparedness and minimize damage. 6.5.5 Knowledge and Information Management 6.5.3 Challenges and Opportunities for Access to accurate, high-quality information is key to Improvement addressing Nigeria’s shortfalls in EP&R. This information In many instances, such as the floods in Lagos or can guide the development of emergency response Benue, despite investments in hazard monitoring, plans, community action strategies, and effective EWS. warnings were either not received by the affected During disasters, reliable data is critical for informed communities or were too general to be of practical use. decision-making, enhancing disaster response and Even when warnings are disseminated, many Nigerians recovery efforts. Although Nigeria has made strides in are uncertain about what actions to take or where to gathering data on potential hazards—such as flooding, seek shelter. Community sensitization and capacity droughts, and conflicts—this information is often building are necessary to bridge this gap, ensuring fragmented across different government agencies. For that early warning systems are not only functional but example, NEMA and NiMet may possess important data actionable. that could inform flood mapping, but this information may not be readily accessible to the public or local In Nigeria, there is not a single government agency governments. Consolidating this data into a centralized, responsible for all aspects of EWS, and coordination digital information management system (DIMS) would among federal, state, and local bodies is often weak. greatly enhance preparedness and response efforts. Agencies such as NiMet, NEMA, SEMAs, and LEMCs must work together to harmonize systems and In Nigeria, effective disaster preparedness and develop comprehensive strategies for early warning emergency response rely heavily on the availability dissemination. Collaboration with local institutions, of actionable information, which goes beyond simply community groups, and businesses can enhance EWS accessing raw data. This information must be expertly effectiveness by tailoring communication methods to analyzed to provide decision-makers with relevant specific user groups. For instance, local chambers of insights that are tailored to their needs. In the context commerce, civil society organizations, and educational of EP&R, historical data alone is insufficient for making 34 | Lessons Learned Exercise for EP&R in Nigeria future-oriented decisions. Decision-makers require Effective EP&R in Nigeria is significantly hindered information that is also informed by projections of by challenges related to information management climate change impacts, which are critical in guiding at the community level. Inadequate information long-term investments and strategic planning. For systems, weak data management practices, lack of example, climate change forecasting is invaluable in information technology (IT) training, and insufficient preventing the creation of future risks by informing communications infrastructure are key issues that need policy decisions related to urban planning, zoning, to be addressed. By developing robust information and land use. Additionally, they help inform and shape systems, improving data management practices, preparedness decisions on issues such as stormwater enhancing IT training programs, and strengthening management and infrastructure development. In some communications infrastructure, Nigeria can significantly countries, future rainfall projections extending to 2100 enhance EP&R personnel’s capabilities. are used to set standards for storm drain designs, Prior to the LLE mission, the WB led organizational ensuring that drainage infrastructure can handle not engagement activities and conducted an extensive only current but anticipated rainfall patterns. literature review and discovered that coordination While significant progress has been made in developing and timely information sharing emerged as critical climate adaptation strategies, like Nigeria’s National areas. Furthermore, the impediment of real-time Adaptation Plan (NAP), there is room for further data dissemination hampers effective EWS and integration of climate change considerations into interventions. Accurate information is essential EP&R strategies. NEMA and other key stakeholders for determining accurate EWS and the scope of can examine and apply lessons from international intervention required for disaster response. While examples to inform future preparedness efforts, such some LLE participants noted some improvements in as infrastructure planning and community resilience information dissemination, particularly in the early programs. warning of a disaster, others identified coordination and real-time data dissemination as significant barriers In conclusion, by addressing the gaps in early warning to effective disaster response. communication, developing community response capabilities, and improving information management 6.5.7 Institutional Arrangements systems, Nigeria can significantly enhance its ability to In disaster information management, multiple manage disasters and reduce risks. The development of institutions perform essential roles within EWS and a unified, effective EWS and DIMS, supported by cross- the dissemination of disaster management information. sector collaboration and community engagement, will NEMA is primarily responsible for the dissemination be crucial for building resilience to future hazards. of risk communication to state and local government 6.5.6 Community Considerations authorities, based on risk information received from NiMet and NIHSA. The NDMF recognizes that DRR should be a community-driven process and encourages the NiMet is a key institution in this role, providing vital inclusion of indigenous knowledge and the participation weather and climate information services to ensure of traditional leaders in disaster preparedness. By public safety and support sustainable socio-economic empowering communities with a clear understanding development nationwide. NiMet operates a network of of risks and practical measures for self-protection, over 200 observing stations, including 163 Automatic Nigeria can reduce disaster response times and Weather Stations (AWS) and six Doppler weather radar build resilience at the local level. Currently, there are installations, to monitor and forecast weather patterns examples of community engagement through local across Nigeria. In 2022, NiMet identified 233 local NGOs, civil society, and religious groups, especially government areas in 32 states and FCT to be at risk in rural and informal settlements, but gaps remain in of flooding. The agency proactively communicated systematic and coordinated preparedness programs. this information by sending advisory letters and 35 | Lessons Learned Exercise for EP&R in Nigeria maps illustrating the predicted flood risk areas to the members frequently disregard disaster alerts until respective state governments. confronted with dire circumstances, especially when the information originates from agencies or individuals The Ministry of Environment, in collaboration with other not integral to their communal or religious lives. agencies, has implemented a web-based Flood EWS to Many LEMA representatives expressed difficulties in systematically monitor multiple locations across the garnering cooperation from local residents to adhere country for flood indicators. This system issues timely to early warning information. Thus, there is a need alerts to mitigate the risk of loss of life and property. to alter the perceptions and misperceptions of local FEWS covers urban areas, river basins, and reservoirs communities regarding disaster preparedness. such as dams. However, FEWS does not adequately reach rural dwellers, who are disproportionately 6.5.8 Important Observations from the Stakeholders affected by disasters. During the LLE exercise, respondents indicated that ineffective information During the 2022 floods, members of the business dissemination, particularly in local communities, is a community reported their active involvement in significant issue due to limited access to communication coordinating relief efforts with NGOs and government channels. Several LEMA representatives expressed authorities through the Disaster Operations Centre concerns that disaster victims in local communities (DOC). Businesses contributed by donating food often lack access to communication mediums, further supplies and using their facilities as distribution centers. exacerbated by unreliable access to power. Without Many business representatives expressed a desire for reliable power, mobile phones cannot be charged, deeper involvement in preparedness and planning, and televisions and radios become non-functional. suggesting that appointing additional representatives However, this power deficiency is not confined to rural from the Chamber of Commerce to the NEMA and areas; urban settlements are also affected. SEMAs would enhance and secure their participation in future relief efforts. The NIHSA continues to publish its Annual Flood Outlook for Nigeria (AFO), utilizing hydrological Despite these positive actions, NEMA highlighted modeling of extreme river flows to assess the national a key challenge: the absence of a comprehensive flood risk. However, the dissemination of the AFO is community safety and engagement strategy that can primarily conducted through public presentations and benefit from early warning systems and risk information sensitization workshops held in Abuja, which restricts shared routinely. Without such a strategy, NEMA its widespread distribution. NIHSA representatives found it difficult to ensure that information gets to the cited insufficient funds as the primary constraint grassroots level, track ongoing efforts, set priorities preventing the organization from hosting workshops for future actions, or identify potential partners for beyond Abuja to disseminate the AFO widely. collaboration. Stakeholders from NEMA, SEMAs, and first responder agencies shared the view that existing Utilizing satellite imagery and extensive data local structures, such as Local Emergency Management resources, UN-SPIDER actively generates detailed Committees (LEMCs), are not well-suited to support maps delineating regions affected by floods and community-based EP&R programs. They agreed that droughts. These maps are swiftly disseminated to (i) strengthening structures at the community level for key stakeholders such as NEMA and NASRDA. For more effective EP&R, capacity building, training, and instance, in 2020, UN-SPIDER provided NASRDA and support are crucial for all participants and (ii) specific NEMA with comprehensive maps identifying flood- resource allocations must be made. affected areas along the Niger River. 6.5.9 Key Findings At the grassroots level, mobilizing disaster-affected or vulnerable community members to heed alerts presents a. One of the primary challenges facing EP&R challenges. Participants in the Local Level Early Warning personnel in Nigeria is the lack of robust information (LLEW) process consistently report that community systems. Effective EP&R requires systems that can 36 | Lessons Learned Exercise for EP&R in Nigeria collect, analyze, and disseminate data swiftly and Inadequate data management practices hinder the accurately. Unfortunately, many of the current ability of EP&R personnel to perform accurate risk systems in Nigeria are outdated or non-existent. assessments, develop effective preparedness plans, This deficiency means that emergency responders and execute timely response actions. often lack access to real-time data, which is crucial c. The use of IT is essential for modern disaster for making informed decisions during a crisis. The management. However, many EP&R personnel absence of integrated, up-to-date information in Nigeria lack adequate training in IT and data systems also hampers coordination among various management tools. This skill gap limits their ability to agencies involved in disaster management, leading effectively use technology for disaster preparedness to fragmented and inefficient responses. and response. Training programs that do exist are b. Data management is a critical component of EP&R. often insufficiently comprehensive and are not In Nigeria, however, there are significant gaps in in pace with rapid technological advancements. how data is collected, stored, and utilized. Many Without proper IT training, emergency responders cannot fully leverage tools vital for effective disaster emergency management agencies suffer from management. inconsistent data collection practices, leading to incomplete or unreliable datasets. Additionally, d. Effective communication is critical during emergen- there is often a lack of standardized data formats cies. In Nigeria, the communication infrastructure and protocols, making it difficult to share and is often insufficient to support the needs of EP&R compare information across different organizations. personnel. This includes both the physical infra- The communities of Krakrama and Opobo Villages have experienced periodic flooding, with 2022 being particularly severe. Photo: Joshua Taiwo. 37 | Lessons Learned Exercise for EP&R in Nigeria structure, such as reliable internet and telecommu- i. GIS and other information management tools are nications networks, and the systems and protocols significantly deficient at all levels, especially at state, for information exchange among agencies. In many local government, and community levels. cases, emergency responders struggle with unreli- able communication channels, which can delay the j. At the community level, mobilizing disaster-affected dissemination of crucial information and hinder co- or vulnerable community members to heed alerts ordination efforts. Furthermore, the lack of a cen- proves challenging. Participants in the Local Level tralized communication platform exacerbates these Early Warning (LLEW) stakeholder consultations challenges, leading to fragmented information flow consistently reported that community members and operational inefficiencies. frequently disregard disaster alerts until confronted e. The NiMet, NIHSA, NEMA, and SEMAs lead the with dire circumstances. forecasting, preparation, and dissemination of early k. Diversity and inclusion should be built into the Early warnings. Effective risk communication is hampered Warning Systems, and relevant authorities should by coordination and collaboration challenges at all ensure that primary communication mediums are levels of government. Historically, there have been used to effectively guide local community members conflicts in the messaging in NiMet’s “Seasonal Climate Predictions” (SCP) and NIHSAs AFO as NEMA through essential processes, incorporating local mentioned during the LLE workshop. NEMA leverages languages or customs whenever feasible. both documents to prepare the annual “Climate- Related Disaster Preparedness and Mitigation Strategy” (CRDPMS), which serves as guidance to SEMAs and sectoral MDAs on disaster preparedness. f. Last-mile risk communication is limited by (1) the capacity of the MDAs, especially SEMAs, at the state and local government levels and (2) the availability of resources to disseminate information to at-risk populations. g. The Ministry of Environment, in collaboration with partner agencies, has established a web-based Flood Early Warning System (FEWS) to systematically monitor multiple locations across the country for signs of flooding. This system issues timely alerts to mitigate the risk of loss of lives and property. The critical challenge is how to ensure that the information generated is disseminated and utilized at the community level by stakeholders, especially in high-risk flood areas. h. The FEWS is configured to address urban areas, river basins, and reservoirs like dams, but often neglects the vulnerable local communities at highest risk. Consequently, to disseminate information effectively to these communities, it is imperative to actively integrate local volunteers into FEWS. 7 Recommendations 7.1 Legal and Institutional Framework responsive approach to the evolving challenges posed by recurrent flooding at state level. Annual Despite extensive national policies for EP&R, reviews also will enable a timely assessment of the operationalization of these policies hinges on effectiveness of existing strategies, allowing for successful execution at the state and local levels and swift adaptations and improvements based on the cohesive coordination across the board. Addressing latest insights gained from the preceding year’s the challenges mentioned above, Nigeria must adopt experiences. This proactive measure is aligned a multi-faceted approach to enhance institutional with the dynamic nature of environmental threats, coordination in disaster management. Key strategies ensuring the development of a more resilient and include: adaptive NCP to safeguard communities from the a. Development of an integrated framework for EP&R continuous and escalating flood risk. across sectors and jurisdictions. e. Strengthen resource availability at all jurisdictional b. Harmonize institutional policies, plans, frameworks levels through the establishment of a Disaster to support an Incident Command System (ICS), Financing Strategy supported by legislative ensuring that SOP are aligned for optimal budgeting. Enhancing financial preparedness at the effectiveness and efficiency of EP&R service delivery state and local levels requires several actionable for all disaster types. steps. Most importantly, there is a need to conduct a thorough review of the laws pertaining to SEMA c. Develop implementable Service Level Agreements to identify any inefficiencies or gaps in funding (SLAs) among the coordinating agency, NEMA, provisions. It will also be important to streamline and other MDAs involved in EP&R. Address legal operational funding processes to go beyond and functional overlaps in disaster management, providing advances for emergencies to developing a especially at the state level, by defining delegated Disaster Risk Financing strategy for Nigeria, enabling functions and mandates clearly. Provide sustainable access to finance. These actions will comprehensive training on coordination and synergy contribute to smoother operations and improved aligned to a new DRM Framework and ICS, ensuring readiness to respond to disasters at the state and all states have operational SEMA and LEMC. These local levels. measures will reduce interagency bureaucracy, relieve the burden on NEMA, and empower state f. Adoption of the structures and frameworks set out governments to efficiently utilize their resources in in the African Union Multi-hazard Early Warning disaster management, rather than relying solely on Systems (MHEWS) Framework would be a starting NEMA for leadership. point for improvement, ensuring coordination among all the agencies and bodies responsible for d. Conduct an assessment of SEMAs/LEMCs in installing individual warning system components. the country and support the development and establishment of enabling laws (where necessary) g. Removal of the Federal Fire Service from the and strengthen systems and capacities. Considering concurrent list of the Nigerian Constitution and the the persistent and escalating risk of flooding in passage of the Fire, Search, and Rescue Establishment Nigeria, it is advisable to transition from a biennial to Bill into law. For more effective coordination of fire an annual review of the National Contingency Plan and rescue efforts, a collaborative initiative aimed (NCP). This adjustment is imperative to capitalize at precisely delineating the roles and responsibilities on the lessons learned from each yearly disaster of federal and state-level fire services to mitigate management cycle, facilitating a more dynamic and overlapping jurisdictions and bolster coordination 38 | Lessons Learned Exercise for EP&R in Nigeria 39 | Lessons Learned Exercise for EP&R in Nigeria during emergency situations is required. This will This will ensure rapid mobilization during also include collaboration with the Navy, Air Force, emergencies. Implement a comprehensive training and the Nigerian Civil Defense Corporation through program for local representatives across various an extensive stakeholder engagement to pinpoint states, focusing on the Annual Flood Outlook (AFO) areas of overlap and establish protocols conducive dissemination workshops. This initiative will alleviate to efficient cooperation. the operational burden on the Nigeria Hydrological Services Agency (NIHSA) and establish a sustainable h. Revise procurement systems at all jurisdictional model of local ownership and engagement. By levels to improve transparency and efficiency. To empowering local trainers, the program ensures enhance the efficiency of resource mobilization continuous and effective knowledge transfer, and procurement within NEMA, it is also essential integrating disaster preparedness into the core of to establish transparent and efficient procedures. each state’s emergency management framework. This includes defining spending authority levels It will also enhance efficiency, foster a strong for NEMA operational staff in accordance with sense of local ownership, and ensure that the AFO internal policies and regulations. Additionally, workshops are tailored to meet the specific needs these procedures should be incorporated into a of each region, thereby increasing their impact and centrally administered training module to ensure responsiveness. comprehensive understanding and effective implementation by all staff members. b. To overcome bureaucratic rigidity, NEMA should support and facilitate the strengthening of SEMAs i. Nigeria’s Search and Rescue and Epidemic Evacuation and local agencies, empowering them to make Plan (SAREEP) and the NDRP need to become more critical decisions in real-time during emergencies. inclusive by integrating the needs of persons with Bureaucratic procedures for decision-making, disabilities (PWD) at all stages- from planning to resource allocation, and personnel deployment implementation. This would require improving during emergencies should be simplified. NEMA infrastructure, providing disability-specific training and SEMAs should establish fast-track processes for for responders, ensuring accessible communication, emergency situations to ensure rapid response. The and including PWDs in policy development and risk institutional structure of disaster risk management assessments. in Nigeria limits NEMA’s influence on SEMAs, however, effective collaboration can provide 7.2 Personnel improved capacity at the state level. a. Establish a unified recruitment framework across c. Develop a scalable ICS structure that can expand to federal, state, and local government levels that accommodate a wide range of disaster magnitudes. emphasizes the hiring of individuals with relevant This system should allow for the rapid deployment skills or backgrounds in disaster management. of additional personnel and resources based on the Develop and implement a standardized, multi- severity of the disaster. Implement collaborative agency Incident Command System (ICS) training agreements with other governmental and non- curriculum for all emergency responders. This governmental organizations (NGOs) to provide should be tailored to Nigeria’s specific disaster risks surge capacity during large-scale disasters. These and contexts, ensuring consistency across all regions agreements would help scale up operations by and agencies. Conduct regular drills and simulations bringing in extra personnel, equipment, and that mimic real-life flood scenarios. These should expertise when needed. involve middle-level and implementing personnel to enhance their operational readiness. Create and d. Revise salary structures and benefits packages to maintain a comprehensive, regularly updated roster make emergency response roles more competitive of trained and experienced personnel, including their with the private sector and international qualifications, availability, and contact information. opportunities. Examples of benefits could include 40 | Lessons Learned Exercise for EP&R in Nigeria hazard pay, health insurance, and pension plans. h. NEMA and SEMAs should create a medium-term Establish clear career advancement pathways within strategic plan that outlines priorities for enhancing NEMA, SEMAs, and other emergency management community-based disaster response and risk agencies to motivate personnel. Implement awareness programs. This plan should focus on continuous professional development programs building resilience at the local level, especially in and leadership training. Strengthen transparency flood-prone areas. Engage local communities in and accountability in the recruitment process to the development of tailored disaster response minimize bureaucratic inefficiencies and corruption. plans. Train community leaders and volunteers on Implement merit-based recruitment processes and basic emergency response techniques to ensure monitoring mechanisms to ensure only qualified local awareness and preparedness. Launch risk individuals are hired. Increase staffing levels, sensitization programs that educate the public on particularly in SEMAs, by implementing targeted flood risks, prevention measures, and evacuation recruitment campaigns and offering incentives for protocols. These campaigns should use multiple professionals to work in emergency management communication channels, including radio, television, roles, especially in underserved regions. social media, and community outreach. e. Decentralize response operations by establishing i. Establish mental health and counseling services regional emergency response coordinators who for emergency responders. These should include can take on leadership roles during disasters. These access to trained counselors, regular debriefings coordinators should be empowered to make quick after stressful missions, and stress management decisions without waiting for approval from NEMA. workshops. Implement health monitoring programs Review and potentially revise the Fire Service’s for responders, providing routine physical health role as Incident Commander for flood disasters. If check-ups and emergency medical support during retained, the Fire Service should receive specialized and after disaster operations. Introduce stress-relief training in flood response. Alternatively, appoint a initiatives such as fitness programs, time-off policies more appropriate lead agency or create a specialized after high-stress deployments, and peer support task force for flood disaster management. groups to mitigate the risk of burnout and mental health decline. f. Create a national schedule for joint exercises and drills, involving NEMA, SEMAs, the military, 7.3 Facilities police, Red Cross, and other relevant stakeholders. These drills should focus on common disaster a. Review existing plans and SOPs relating to scenarios such as floods, ensuring all agencies can emergency management facilities and define a coordinate effectively. After each drill, conduct single and integrated SOP or service agreement for a thorough evaluation and debriefing to identify ICS that is harmonized across all agencies and all areas for improvement. These evaluations should facilities. inform updates to response protocols and training b. Invest in the construction and establishment of programs. more emergency facilities, especially in underserved g. Draft a comprehensive ICS framework document and high-risk areas. This includes building new that is legally mandated across all levels of fire stations, emergency operation centers, government. This framework should define roles, hospitals, and shelters to ensure that all regions responsibilities, and communication protocols for have access to essential services. The National all agencies involved in emergency response. Seek Emergency Coordination Centre (NECC), under the legislative approval to formally establish the ICS as auspices of NEMA, has demonstrated significant the national standard for disaster response, ensuring leadership and know-how in coordinating disaster all emergency management agencies adopt and response activities, particularly on a federal scale. implement it. Consequently, it is recommended to replicate 41 | Lessons Learned Exercise for EP&R in Nigeria and enhance similar facilities at the state level. (NEMA) to extend its warehousing infrastructure This entails the establishment of State Emergency to encompass the remaining 21 states not covered. Coordination Centers equipped with 24-hour This extension will ensure an equitable allocation surveillance capabilities to optimize disaster of emergency provisions and assets throughout response coordination. These state-level centers the entirety of the nation, thereby fortifying the should be permanent fixtures within the institutional agency’s capability to mount effective responses to response framework rather than be seen as ad hoc calamities and crises on a nationwide scale. arrangements. The possibility of developing centers e. Conduct a needs assessment to determine gaps in the mold of the Unites States’ Fusion Centers in emergency management equipment across all should be considered. available facilities. Develop a funding strategy to c. Provide emergency facilities with modern, reliable close identified gaps. equipment. This includes updating medical f. Conduct comprehensive risk assessments and supplies, firefighting tools, rescue equipment, mapping to identify high-risk areas and strategically and communication devices. Regular audits and locate emergency facilities accordingly. This involves assessments should be conducted to identify considering factors such as population density, equipment needs and ensure that all facilities are disaster history, and geographical vulnerabilities adequately equipped. It is recommended that to ensure that facilities are well-positioned to each state establish specialized high-functioning provide timely and effective response. Enhance hospitals dedicated exclusively to addressing health disaster monitoring capabilities of disaster response emergencies. These hospitals should possess the agencies. Investing in national disaster monitoring capacity to manage both general emergencies and facilities, particularly in the space sector, is crucial. specific public health challenges stemming from Developing or acquiring non-optical satellite systems disasters, including water-borne illnesses following such as radar can overcome the limitations cloud floods and outbreaks such as Ebola and Lassa fever. cover poses during the rainy season. Additionally, Conventional hospitals often become overwhelmed deploying sensors for long-term monitoring of slow- during disaster situations, resulting in delayed onset disasters like drought is recommended. medical attention for disaster victims who manage to reach the facility. g. Review shelter requirements and address identified shortfalls. This process should include: d. Develop and enforce regular maintenance schedules for all emergency facilities based on an operations › Clarification of who is responsible for emergency and maintenance plan. This includes routine checks, shelters and the determination of how many repairs, and upgrades to ensure that facilities and shelters are required in Nigeria to manage equipment remain in optimal working condition. anticipated disasters. Allocating sufficient budget and resources for › Development of minimum standards for shelter maintenance activities is essential. To optimize the facilities and robust plans to ensure they can be swift and secure dissemination of humanitarian activated and managed to ensure the safety and relief, it is paramount to enhance both the security welfare of users. measures and the capacity of NEMA warehouses situated across various states. Expanding the › Establish an investment and capacity building number and size of these warehouses warrants program for shelter development and operation consideration to accommodate the escalating and to address any gaps and deficiencies demand, consequently averting instances of pilferage identified. and bolstering the efficiency of disaster response h. Equip personnel with the skills and knowledge to operations. Moreover, there exists an imperative manage and maintain facilities effectively. This for the National Emergency Management Agency includes training in the use of new equipment, 42 | Lessons Learned Exercise for EP&R in Nigeria facility management, and maintenance procedures. essential. This includes the acquisition of critical Continuous professional development should be equipment such as acoustic Doppler current provided to ensure that personnel stay updated with profilers, data collection platforms, and advanced best practices and technological advancements. geophysical tools. The NHSA has emphasized the In Nigeria, a country characterized by significant importance of these technologies in improving flood landmass and population density, efficient alert prediction and analysis. coordination across its six geopolitical zones c. To rectify the significant deficiency in swift water necessitates the deployment of an EOC-in-the-box rescue equipment at the state level, particularly technical package. This package comprises essential within SEMAs, it is crucial to establish and components such as laptops, Global Positioning strengthen specialized swift water rescue units. System (GPS)-enabled radios, charging cables, These units should be equipped with the necessary backup generators for continuous power supply, tools, training, and supplies. Additionally, consider and localized WiFi with satellite uplink capabilities. hiring local divers willing to participate in these These features enable seamless voice and data efforts, either as full-time or part-time members communication, facilitating effective disaster response coordination. within SEMA or LEMA. This proactive approach aims to reduce reliance on community volunteers 7.4 Equipment during flood emergencies, minimizing risks for both rescuers and victims. a. To address resource and equipment issues, the WB recommends a review and consolidation of existing d. Invest in advanced communication tools to improve resource inventories at the state and federal levels coordination and information dissemination during and across all agencies involved in emergency disasters. This will address the critical gaps in management. This should involve creating a single, communication equipment and shelter supplies that comprehensive database that includes: were identified during the 2022 flood response. Additionally, ensure that there is an adequate › A detailed list of available equipment and trained stockpile of shelter materials, such as tarpaulins personnel, specifying whether additional training and tents, to meet the immediate needs of affected or vehicles are needed for mobilization populations and prevent situations where people › Information on resources available from response are forced to sleep in open fields. partners, NGOs, and the private sector e. Strengthen collaboration with international › Provisions for integrating pre-approved development agencies, such as the International commercial contractors into the database, with IOM and UNICEF, to address challenges related arrangements for emergency assistance through to housing equipment during disasters. Explore pre-arranged contracts partnerships to establish temporary shelters for victims, leveraging the expertise and resources that › Clear protocols for the request, approval, and these agencies can offer. mobilization of resources, including guidelines for managing associated costs and liabilities. f. Implement regular training and capacity-building programs for emergency responders at all levels. Implementing a centralized resource database will Equip responders with the necessary skills to enhance the efficiency of emergency response efforts effectively use modern equipment and technologies. by ensuring that all available resources are accounted This is particularly important for responders at for and can be mobilized effectively when needed. the state and local government levels, who were b. To address the reported shortage of equipment for overwhelmed during the 2022 floods, exacerbated EP&R, particularly in hydrological data collection, by their lack of adequate equipment to respond immediate investment in modern technologies is effectively. 43 | Lessons Learned Exercise for EP&R in Nigeria 7.5 Information partnerships with telecom providers and government initiatives focused on infrastructure development. a. Develop a centralized, real-time data platform Create a unified, secure communication platform that allows for seamless sharing and updating for all emergency response stakeholders, ensuring of information across all EP&R agencies, such as that information flows efficiently between agencies NEMA, SEMAs, NIHSA, and NiMet. This system and responders during crises. Establish backup should include features for real-time data collection, communication systems equipment such as satellite analysis, and dissemination to ensure that phones or two-way radios for areas with unreliable responders have the most up-to-date information infrastructure, ensuring continuous communication during a crisis. Adopt cloud-based platforms to during emergencies. enhance scalability, storage, and access to data. Cloud systems can facilitate the integration of e. Harmonize forecasting tools and ensure better data from various agencies and avoid redundancy coordination among NIMET, NIHSA, and NEMA by in case of local system failures. Collaborate with creating an inter-agency task force responsible for private sector technology companies to modernize aligning the “Seasonal Climate Predictions” (SCP) the information systems used by EP&R personnel. and “Annual Flood Outlook” (AFO). This task force This can accelerate technology transfer and provide should oversee a unified forecasting document to access to cutting-edge solutions. avoid conflicting messages. Conduct joint capacity- building workshops for all agencies involved in b. Create national standards for data collection, disaster forecasting and preparedness to ensure storage, and sharing to ensure consistency across alignment in both messaging and strategy. all emergency management agencies. This could involve adopting the ISO 22320 standard for f. Provide additional resources and training to emergency management data exchange. Introduce SEMAs and MDAs to enhance their ability to mandatory training programs on data management effectively disseminate risk information at the for all EP&R personnel, focusing on the importance state and local levels. Engage community leaders of accurate, complete, and timely data collection and local institutions to establish locally tailored and utilization. Use advanced analytics and machine communication systems that use accessible formats learning algorithms to improve risk assessments, (e.g., radio, short message service (SMS), and posters trend analyses, and disaster forecasting. in local languages) to reach vulnerable populations. Partner with telecom companies to send SMS c. Develop comprehensive and ongoing training alerts and public radio broadcasters to reach rural programs on IT tools for disaster management, populations. Messages should be concise, clear, and including GIS, FEWS, and early warning systems. in the local languages. These programs should be updated regularly to keep pace with technological advancements. g. Customize FEWS alerts to target high-risk Collaborate with educational institutions or communities by translating technical information international bodies to offer certification programs into actionable steps for local stakeholders and for EP&R personnel in IT and data management, integrating these into local communication ensuring they have recognized qualifications that networks (churches, local markets, schools). Launch reflect their skills. Establish a network of local IT programs that involve community members in the experts who can provide in-field technical support interpretation and dissemination of FEWS alerts, during emergencies and develop local capacity to using trusted local figures and organizations to relay troubleshoot and maintain these systems. information. d. Invest in expanding reliable internet and h. Mobilize and train local volunteers to act as liaisons telecommunications networks, particularly in remote between the FEWS and their communities, ensuring or disaster-prone areas. This can be achieved through that early warning information reaches remote and 44 | Lessons Learned Exercise for EP&R in Nigeria vulnerable populations. Ensure that FEWS is not compliance with early warnings. Organize regular only urban-centric but includes rural and flood- disaster preparedness drills in collaboration with prone communities by installing localized monitoring local communities to demonstrate the importance stations and creating community outreach programs. of responding to early warnings, ensuring active participation in disaster response protocols. Provide i. Invest in state-of-the-art GIS technology at the incentives for early compliance with disaster alerts, state and local government levels and ensure that such as evacuation stipends or prioritized assistance it is fully integrated into EP&R systems. This should for those who heed early warnings. include both hardware and software updates. Provide specialized training to EP&R personnel k. Tailor Early Warning Systems to local communities in the use of GIS tools for disaster mapping and by ensuring that warnings are delivered in the most management. This could involve workshops and spoken languages and consider local customs. This hands-on exercises with real-time data. Partner with may involve working with local linguists and cultural academic institutions to utilize their expertise in GIS experts. Use a combination of communication and other information management tools to build methods (radio, SMS, television, social media, local announcements) to ensure that different capacity at the local level. demographic groups, especially marginalized ones, j. Develop behavioral change communication are reached effectively. Establish local committees strategies that address local beliefs and cultural or representatives who can act as points of contact attitudes toward disaster warnings. This could for disseminating information to communities, using include the use of community leaders, tribal grassroots networks to ensure that information leaders, role models, or influencers to encourage reaches even the most isolated individuals. Maiduguri, the capital of Borno State, faced an unprecedented humanitarian disaster caused by the worst flooding in 30 years. Photo: Sadiqnanic. 8 Consolidated and Prioritized Action Steps   National Reviews Priority Lead Key Stakeholders Assess and review financial incentives and requirements to MoF, State MoF, NEMA, 1 encourage investment in risk mitigation and preparedness √ MOBEP SEMAs by Federal, State, and Local Government Optimize the disaster financing chain ensure availability and MoF, State MoF, NEMA, 2 √ MOBEP to reduce processing delays. SEMAs Undertake a national review of emergency procurement/ MoF, State MoF, NEMA, 3 √ MOBEP commissioning processes SEMAs Joint Federal and State Institutional Reviews Strengthen NEMA capacity to deliver their statutory SEMAs, LEMCs, Federal leadership and performance management role and refocus 4 √ NEMA and State Legislature, and resources on risk mitigation and preparedness at all levels Political Leadership of government. Undertake a comprehensive review of early warning NIMET, NIHSA, SEMAs, 5 provision to inform an improvement and capacity building   NEMA and LEMCs program. Process and Documentation Reviews Review multi-agency Incident Command Systems (ICS) and Communication protocols, develop a standard training Federal and State Fire 6 syllabus at federal, state, and local EOCs, as well as build √ NEMA Services, SEMAs, and ICS capacity at all levels through regular training, drills, and LEMCs multiagency exercises. Review existing plans relating to emergency command and Federal and State Fire control facilities and define a single and integrated SOP 7 √ NEMA Services, SEMAs, and or service agreement for ICS that is harmonized across all LEMCs agencies Review existing hazard, risk and vulnerability assessments at all levels and identify how decision makers at all levels 8 of government, responders, and the wider community   NEMA SEMAs, and LEMCs can gain access to a single and authoritative source of information for improvement of EP&R. Ministry of Environment, Review existing Climate and Resilience Strategies to Nigerian Council for 9 identify opportunities for mainstreaming risk reduction and   NEMA Climate Change, State disaster management Ministries of Environment, and SEMAs Review current inventories of equipment and produce a Federal and State Fire single consolidated database setting out the equipment 10 √ NEMA Services, SEMAs, and available and the protocols for its mobilization and use in LEMCs emergency. Conduct assessment of existing hydromet and early NIMET, NIHSA, SEMAs, 12 warning systems and identify gaps and areas of   NEMA and LEMCs improvement. 45 | Lessons Learned Exercise for EP&R in Nigeria 46 | Lessons Learned Exercise for EP&R in Nigeria   National Reviews Priority Lead Key Stakeholders Process and Documentation Reviews (cont.) Ministry of Water Resources, Water Basin Review Dam Safety arrangements and ensure all dams Development Authorities, 13 are supported with a suitable and actionable Emergency √ NEMA SEMAs, LEMCs, and Preparedness Plans Federal and State Fire Services Undertake a review of communications systems and NSCDC, Nigeria Police recommend a suitable radio system, while identifying Force, Federal and State 14   NEMA opportunities for its development to replace the current Fire Services, SEMAs, and reliance on mobile phones. LEMCs Equipment and Technology for Emergency Preparedness and Response (EP&R) To address the shortage of equipment for EP&R, particularly in hydrological data collection, invest in modern NEMA, Ministry of Water 15 √ NIHSA technologies like acoustic Doppler current profilers, data Resources, SEMAs. collection platforms, and advanced geophysical tools. Establish specialized swift water rescue units at the state level and equip them with necessary tools and training. SEMAs, NEMA, Local 16 Integrate local divers as full- or part-time members in   NEMA Divers, NGOs. SEMAs and LEMAs to reduce the risks during flood emergencies. Invest in advanced communication tools to improve SEMAs, Ministry of coordination during disasters, while also ensuring that 17   NEMA Communications, Telecom shelter supplies like tarpaulins and tents are adequately Providers. stocked to meet emergency needs. Partner with international agencies (e.g., IOM, UNICEF) to 18 establish temporary shelters during disasters, leveraging   NEMA IOM, UNICEF, and SEMAs. their expertise in addressing housing challenges. Capacity Building and Investments SEMAs, LEMCs, NGOs, Build the capacity of existing community structures and Federal and State 19 groups to enhance understanding of disaster risk and √ NEMA Legislature, and Political emergency preparedness. Leadership Work with partners and volunteers to develop community- based response plans supported by programs for SEMAs, LEMCs, NGOs, 20   NEMA community sensitization on the risks they face. Plans must FBOs and CBOs be reinforced by regular trainings and drills. Clarify who is responsible for emergency shelters, how many shelters are required for every jurisdictional level to deal with anticipated disasters and invest in shelter Federal and State Fire development and operation. In support to this task, there 21   NEMA Services, SEMAs, and will be a need to develop minimum standards for shelter LEMCs facilities and robust plans to ensure that they can be developed, activated, and managed to ensure the safety and welfare of users. Review and assess current risks and special rescue/ Federal and State Fire response needs. Conduct a gap analysis to identify capacity 22 √ NEMA Services, SEMAs, and building requirements (personnel, equipment, training, and LEMCs SOPs) and an associated investment program. 47 | Lessons Learned Exercise for EP&R in Nigeria   National Reviews Priority Lead Key Stakeholders Data Management and Information Systems Develop a centralized data platform for seamless SEMAs, NIHSA, NIMET, information sharing among EPR agencies. Use cloud-based 23 √ NEMA and Private Tech platforms for scalability and redundancy, integrating data Companies. from various sources (NEMA, SEMAs, NIHSA, NIMET). Create national standards for data collection, storage, and sharing across all emergency management agencies. SEMAs, and Ministry 24 Introduce mandatory training on data management √ NEMA of Information and and utilize advanced analytics and machine learning for Technology improved risk assessment and disaster forecasting. Offer ongoing training programs on IT tools for disaster management, including GIS, FEWS, and early warning SEMAs, Educational 25 systems. Collaborate with educational institutions for   NEMA Institutions, and certification programs to enhance the skills of EPR International Bodies. personnel. Invest in expanding internet and telecommunications Ministry of infrastructure, especially in disaster-prone or remote areas. Ministry of Communications, Telecom 26   Establish backup communication systems like satellite Communications Providers, NEMA, and phones for continuous communication during emergencies. SEMAs. Invest in state-of-the-art GIS technology at the state and local levels, ensuring it is fully integrated into EPR systems. SEMAs, Local 27 Provide specialized training on GIS tools for disaster   NEMA Governments, and mapping and management, in partnership with academic Academic Institutions. institutions. Community Engagement and Early Warning Systems Establish an inter-agency task force to harmonize forecasting tools like NIMET’s “Seasonal Climate NIMET, NIHSA, and 28 √ NEMA Predictions” and NIHSA’s “Annual Flood Outlook” to ensure SEMAs. consistency in disaster forecasts and messages. Equip SEMAs and local agencies with resources to effectively disseminate risk information in accessible Community Leaders, and 29   SEMAs formats (radio, SMS, local language posters) to reach Telecom Providers. vulnerable populations. Tailor FEWS alerts to high-risk communities by translating SEMAs, and Community 30 technical data into actionable steps, involving local leaders   NEMA Leaders in the interpretation and dissemination process. Train local volunteers to act as liaisons between the FEWS and their communities, ensuring early warning information 31 reaches remote populations. Include rural and flood-prone   SEMAs CBOs communities in FEWS by installing localized monitoring stations. Develop communication strategies that address local beliefs and cultural attitudes towards disaster warnings. Community Leaders, and 32 √ SEMAs Organize regular disaster preparedness drills and offer NGOs. incentives for early compliance with warnings. Ensure that disaster warnings are delivered in local languages and formats that consider local customs. Use Local Linguists and Cultural 33   SEMAs various communication methods (radio, SMS, social media) Experts to reach marginalized populations effectively. A1 ANNEX 1—Prioritized List of Participants for LLE Names Designation Organisation Nkem Joseph-Palmer Senior DRM Specialist World Bank Mary Elinor Boyer DRM Specialist World Bank Allhassan Nuhu Consultant World Bank Paul Hayden Consultant World Bank Martha Obaje Team Assistant World Bank Oluwafunmilayo R. Aladesuyi Team Assistant World Bank Ndidi Rita Omega HOD Administration Anambra State Emergency Management Agency (SEMA) Eugene Louis Nyelong NEMA National Emergency Management Agency (NEMA) Tamunosiki Ogbanga Director Rivers State Emergency Management Agency (Ministry of Special Duties PH) Manzo Ezekiel Head of Press Unit NEMA NEMA Muyiwa Ebenezer Olowe State Coordinator FCT Helen Keller International Dahiru Yusuf Head of Operations NEMA Edo National Emergency Management Agency (NEMA) Dr. Ibrahim Jalo Muhammad Director Operations Yobe State Emergency Management Agency (SEMA) Nuraddeen Abdullahi Coordinator NEMA Kano Territorial Office National Emergency Management Agency (NEMA) Karo Gabriel Ovemeso Director Delta State Emergency Management Agency (SEMA) Haruna - Mairiga Executive Secretary Jigawa State Emergwncy Management Agency (SEMA) Saviour Noku Badzoilig Commissioner Ministry of Special Duties and Humanitarian Services Taraba State Abdulkadir Ibrahim ASCIO NEMA Abdullahi Kalli Ba’Aba Senior Program Officer Cooperazione Internationale (COOPI) Margaret Akuh Director Of Administration Kogi State Emergency Management Agency (SEMA) Dr David Akpan Deputy Director eHealth Africa Rukaiya Aliyu Project Manager Terre Des Homme Bamidele Emmanuel Fagbite Senior DRR & Peacebuilding Specialist Christian Aid Aliyu Kafindangi Shehu Head Of Operations NEMA Sokoto NEMA Philemon Habila Yatu Meal Manager Catholic Relief Services Uzoamaka Priscilla Onyeuka Executive Secretary Imo State Emergency Management Agency (SEMA) Zainab Suleiman Saidu Head Of Operations Minna NEMA Ladan Ayuba Head Of Operations Yola NEMA 48 | Lessons Learned Exercise for EP&R in Nigeria 49 | Lessons Learned Exercise for EP&R in Nigeria Names Designation Organisation Koudraogo Denis Yameogo Country Program Coordinator Malteser International Ngozi Echeazu Zonal Coordinator, Southeast Office NEMA Sunday Egwu Ogba Director Of Search & Rescue Defense Headquarters Lumba Jk Auwal Monitoring, Evaluation, Research, And Plan International Learning (MERL) Coordinator Suwaiba Muhammad Dankabo Deputy Country Director& Director Of Actionaid Nigeria Programmes Mary Obasi DC Disaster Nigerian Police Oladapo Akinniran Akingbade Chief Planning Officer NEMA Minhammad Saidu Barkindo Director General Borno State Emergency Management Agency (SEMA) Sunday Onyebuchi Jackson Executive Secretary Abia State Emergency Management Agency (SEMA) Terhide James Iorhuna Programme Manager, Refugees & IDPs Benue State Emergency Management Operations Agency (SEMA) Ekat Effiom Ibor Technical Officer Federal Ministry of Water Resources & Sanitation Florence Kayemba Country Director & Programme Manager Stakeholder Democracy Network (SDN) Johnson Dadu Controller FCT Federal Fire Service Thickman Godwin Assistant Director Special Duties NEMA Kamorudeen Alao AGM Meteorology NIMET Nkoyo Asuquo Eyo Principal Planning Officer NEMA Ojuolape Busari Executive Secretary Oyo State Emergency Management Agency (SEMA) Jamiu Olayinka Salami Coordinator LASEMA Lagos State SEMA Mercy Dachir CTO Federal Ministry of Environment Fatima Kasim Director, Special Duties NEMA Ifeanyi Hilary Udenze Orderly - Director Search & Rescue DEFENSE HEADQUARTERS (DHQ) (D-SAR) Bandele Onimode Director, Disaster Planning, Research And NEMA Forecasting Sani Jiba Ahmed DFA NEMA Kenedy Rosely Mataluwo Director Search & Rescue NEMA Ugochukwu Samuel Uyanna Journalist Classic FM Binta Dangani Hussaini ES Katsina State SEMA Suleiman Sani Aliyu Chief Technical Officer Federal Ministry of agriculture and food security Mbee Mbee Director, CDRMDS University of Port Harcourt Charles Kiplangat Emergency Preparedness And Response Interational Rescue Committee (IRC) Coordinator Fatimah Suleiman Kasim Director Special Duties NEMA 50 | Lessons Learned Exercise for EP&R in Nigeria Names Designation Organisation Friday Amana Abalaka Assistant Director Federal Ministry of Agriculture and food security Joseph Nwangbo Omogo Principal Scientific Officer Federal Ministry of Health Headquarters Abuja Njeduwa Apagu Bulus Emergency Coordinator Action Against Hunger Mohammed Nuhu PEO NEMA Philomina Akpomoshi Attah Reporter The News Agency of Nigeria (NAN) Martins Ejike Director, HRM NEMA Aishat Ibrahim HAO Government Liaison United Nations Office for the Coordination of Humanitarian Affairs (UNOCHA) Saadatu Ovosi Muhammed Principal Information Officer NEMA Hopewell Munyari Operations Manager International Federation of the Red Cross and Red Crescent Societies Henrietta Danladi Ibrahim Deputy Director News Radio Nigeria Ibrahim Abayomi Kuti Lecturer/Coordinator Centre for Disaster Risk Management and Development Studies, Futminna Dayo Omoniwa Agric Officer Nigerian Agricultural Insurance Corporation (NAIC) Ayodeji Akande Principal Manager Kainji Dam Àbdullahi Usur Adamu Acting Director, Relief and Rehabilitation NEMA Sidney Osariemen Osawaru Head of Safety And Security SOS Children’s Villages Godknows Ben Journalist Africa Independent Television (AIT) Emmanuel Abbey Balogun Driver - Director Search & Rescue (D-SAR) DEFENSE HEADQUARTERS Suleiman Abubakar Asst. Chief Planning Officer Federal Ministry of Transportation Olawale Shonde Director Ogun State Emergency Management Agency (SEMA) Confidence Obayuwana Government Liaison Coordinator Nigeria INGO Forum Walamam Samuel (Hon). Igrubia Director-General Bayelsa State Emergency Management Agency (SEMA) Ademuyiwa Oyewumi DG Rep National Space Research and Development Agency (NASRDA) Tosan Usifoh Collin PSO National Environmental Standards and Regulations Enforcement Agency (NESREA) Justin Uwazuruonye Head Of Operations Abuja NEMA Ruth Sherifat Oluwole Deputy Commandant Nigeria Security and Civil Defence Corps (NSCDC) Garba Kuki Mohammed Director NEMA Lawal Hassan LA NEMA Nkechukwuchor Godwin Okwunwa Chief Planning Officer GIS NEMA Shamsiyyah Tijjani Principal Planning Officer NEMA 51 | Lessons Learned Exercise for EP&R in Nigeria Names Designation Organisation Wahidat Mustapha Meteorologist Nigerian Meteorological Agency Dorah Tarfa Project Manager Tearfund Lokoja Alhaji Sani Ag Director ICT NEMA Jude Likita Interim Country Coordinator - JISRA Tearfund James James Akujobi Director General Services NEMA Eyiuche Benefette Anagor Chief Disaster Risk Reduction Officer NEMA Abdullahi Abubakar Executive Secretary Kebbi State Emergency Management Agency (SEMA) Yusuf Ubandoma Dan’Asabe Secretary Taraba State Emergency Management Agency (SEMA) Aminu Anka Mohammed Director Zamfara State Emergency Management Agency (SEMA) Adebiyi Babatunde Razaq AD NEMA Heidi Edgar Sunday Director Adamawa State Emergency Management Agency (SEMA) Muhammadu Abdulsalam Tanko Director Niger State Emergency Management Zumba Agency (SEMA) Jimoh Hasanah Assistant Director Katsina State Emergency Management Agency (SEMA) Manasseh Panpe DM Officer Nigerian Red Cross Society (NRCS) Rahila Lassa Reporter Voice of Nigeria (VON) Owoicho John A Deputy Director Presidential Committee on Flood Relief and Rehabilitation (PCFRR) Mmachukwu Oyeka-Chinweoke Funding Catholic Agency for Overseas Development (CAFOD) Taiwo Adeleke ACG Federal Ministry of Water Resources & Sanitation Muhammad Saidu Barkindo Director General Borno State Emergency Management Agency (SEMA) Florence Kayemba Country Director Stakeholder Democracy Network (SDN) Confidence Obayuwana Government Liaison Coordinator Nigeria INGO Forum Ayodeji Cornelius Akande Principal Manager Kainji Dam Emmanuel Àbbey Balogun Dvr– DSAR Defense headquarters Kamorudeen Adesina Alao AGM Meteorology Nigerian Meteorological Agency (NiMet) Ekundayo Mobayo Deputy General Manager Nigerian Agricultural Insurance Cooperation Aisha Bisalla Assistant Director Federal Ministry of Marine and Blue Economy A2 ANNEX 2—LLE Thematic Workshop Agenda and Materials Building Urban Flood Resilience in Nigeria (P180933),   Emergency Preparedness and Response Assessment  Hybrid Lessons Learned Workshop (Face-To-Face & Virtual) Workshop   April 24–25, 2024  Workshop Objective: introduce Ready2Respond as a high-level platform to view EP&R systemically and for framing solutions to Using the 2022 flood disaster as a focusing event challenges noted in the first session. and the World Bank’s Ready2Respond platform as a foundation, this workshop will bring together During the afternoon of Day 1 and the morning government and disaster relief agencies to improve of Day 2, participants will engage in a syndicate emergency preparedness and response (EP&R) capacity exercises to identify emerging themes and develop in Nigeria. project proposals to address challenges identified. Those proposals will then be discussed and prioritised Together we will explore lessons learned from through plenary discussions on day 2. these disasters through the eyes of participants and collaboratively define opportunities for capacity On the afternoon of Day 2, delegates will take part improvement using the World Bank’s EP&R Framework in a short discussion-based table-top exercise using (reviewing preparedness and response through the a similar scenario to the 2022 Nigeria flood disaster. lens of the core components: Legal and Institutional At critical challenge points, the facilitators will pause Framework; Personnel; Facilities; Equipment; and the scenario to ask participants to work together in Information). interdisciplinary groups to identify priorities for action, and to propose potential solutions to the identified The workshop will begin in the morning of Day 1 challenge. with World Bank feedback from the LLE Exercise and participant reflections on what worked well during The workshop will close with a summary of the response operations and where there is room for information gathered through the Lessons Learned improvement. This will be followed by a session to Exercise and provide clarity on the project’s next steps. 52 | Lessons Learned Exercise for EP&R in Nigeria 53 | Lessons Learned Exercise for EP&R in Nigeria Workshop Agenda: TIME (NIGERIA)  ACTIVITY  FACILITATOR(S)  Day 1—April 24 9:00–9:30 am Arrival and Registration of Participants All  9:30–9:35 am Opening prayer (2nd Stanza- National Anthem)  9:35–9:45 am  Welcome and Opening Remarks  Director General, NEMA 9:45–10:15 am  Introductions NEMA/World Bank Group LLE Team  10:15–10:30 am  Workshop Overview/Goals and World Bank EP&R Mary Boyer, World Bank Group  approach 10:30–11:00 am  Overview of the Nigerian EP&R System   Dr. Onimode, Director, Disaster Planning, Research, and Forecasting, NEMA  11:00–11:30 am  LLE Initial Findings   Nkem Joseph-Palmer, World Bank Group  11:30 am–12:00 noon  Break   — 12:00 noon–1:00 pm  Reflective discussion on the 2022 Flood response   NEMA/World Bank Group LLE Team  1:00–2:00 pm  Lunch   — 2:00–2:15 pm  Group Photo   TBD  2:15–3:15 pm Briefing on Project development sessions for EP&R NEMA/World Bank Group LLE Team  capacity improvement   and Syndicate based EP&R Project discussions—identifying thematic areas for capacity building and investment  3:15–3:45 pm  Break  —  3:45–4:30 pm Day 1 Syndicate Feedback, Summary and Close  NEMA/World Bank Group LLE Team   Day 2—April 25  9:30–10:00 am Welcome and reminder of  thematic areas for capacity NEMA/World Bank Group LLE Team  building and investment  10:00–11:00 am  Syndicate based EP&R Project discussions– developing NEMA/World Bank Group LLE Team  project proposals 11:00–11: 30 am Break   — 11:30 am–12:15 pm   Plenary Discussion and Prioritization of Project Proposals   NEMA/World Bank Group LLE Team  12.15–1:00 pm   Disaster Coordination Principles and International Case World Bank Group LLE Team   Study 1.00–2.00 pm   Lunch   — 2.00–3.00 pm Disaster Coordination Desktop Exercise NEMA/World Bank Group LLE Team  3.00–3.30 pm Exercise Debrief and Discussion NEMA/World Bank Group LLE Team  3.30– 3.45 pm Next Steps and Workshop Evaluation   NEMA/World Bank Group LLE Team  3:45–4:30 pm   Certificate Award Ceremony   NEMA/World Bank Group LLE Team  4:30–5:00 pm  Closing Remarks   Dr. Onimode, Director, Disaster Planning, Research, and Forecasting, NEMA   54 | Lessons Learned Exercise for EP&R in Nigeria EP&R Project Development Exercises EP&R Project Development— › Please choose a presenter to share your Project Disaster Coordination Concept with the larger group. › In your groups, please create a Project Concept for Group 1 each of the actions you identified yesterday. Legal, institutional and policy issues—clarifying the › Whilst you will work on just one thematic area roles and responsibilities of the various actors at for improvement, to avoid duplications, we have National / State and Local levels. proposed that each group should concentrate on Group 2 different elements of that area as set out below. Investment in Specialist Equipment—including re- › Use the Project Concept Template provided to quirements for operationalisation, such as training, develop each project. production of SOPs, and mobilisation of equipment for › Concentrate on the top 4 or 5 Actions you identified, SAR, community relief, etc. but if you have time, please feel free to develop more. EP&R Project Development— Community Resilience › Please choose a presenter to share your Project Concept with the larger group. › In your groups, please create a Project Concept for each of the actions you identified yesterday. Group 1 › Whilst you will work on just one thematic area Legal, institutional, and policy issues—including ICS for improvement, to avoid duplications, we have and operational plans. proposed that each group should concentrate on different elements of that area as set out below. Group 2 Operationalisation—including facilities, disaster man- › Use the Project Concept Template provided to agement information system (DIMS), communication develop each project. and coordination equipment, training and testing / › Concentrate on the top 4 or 5 Actions you identified, exercises. but if you have time, please feel free to develop more. EP&R Project Development— Flood Response › Please choose a presenter to share your Project Concept with the larger group. › In your groups, please create a Project Concept for each of the actions you identified yesterday. Group 1 › Whilst you will work on just one thematic area Investments in Community Level Facilities, i.e., for improvement, to avoid duplications, we have temporary shelters, and to establish Community proposed that each group should concentrate on Responders (search and rescue equipment and training different elements of that area as set out below. etc.). › Use the Project Concept Template provided to Group 2 develop each project. Community risk sensitization, community level › Concentrate on the top 4 or 5 Actions you identified, training, and dissemination of early warnings, but if you have time, please feel free to develop more. 55 | Lessons Learned Exercise for EP&R in Nigeria EP&R Project Development— EP&R Project Development— Early Warning Additional Themes In your groups, please create a Project Concept for › In your groups, please create a Project Concept for each of the actions you identified yesterday. each of the actions you identified yesterday. › Whilst you will work on just one thematic area › Whilst you will work on just one thematic area for improvement, to avoid duplications, we have for improvement, to avoid duplications, we have proposed that each group should concentrate on proposed that each group should concentrate on different elements of that area as set out below. different elements of that area as set out below. › Use the Project Concept Template provided to › Use the Project Concept Template provided to develop each project. develop each project. › Concentrate on the top 4 or 5 Actions you identified, › Concentrate on the top 4 or 5 Actions you identified, but if you have time, please feel free to develop but if you have time, please feel free to develop more. more. › Please choose a presenter to share your Project › Please choose a presenter to share your Project Concept with the larger group. Concept with the larger group. Group 1 Group 1 Clarifying legal and institutional arrangements to Shelter provision and protection of the most vulnerable, ensure an end to end early warning system can be including women, children and those with disabilities. delivered (as per the AU MHEWS Framework this includes; Risk Knowledge, Hazard Monitoring and Group 2 Flood risk mitigation grey infrastructure forecasting, warning dissemination and communication, (flood walls, dams), nature-based solutions and climate and preparedness and early action) adaptations. Group 2 Investments in hydrological and metrological monitoring and telemetry equipment, enhancing warning communication and early actions—especially in relation to flood relating warnings. 56 | Lessons Learned Exercise for EP&R in Nigeria Nigeria TTX IAP Template Form 1. Incident Name 2. IAP Number Date From: Date to: Time From: Time to: 3. Situation 4. Direction 5. Actions Priority 1. (Insert Description of the Action required) Responsible Agency that will lead this action, and list of any supporting organisations involved Specific Actions to be taken Resources Required / To be deployed Objective and End State to be achieved Priority 2. (Insert Description of the Action required) Responsible Agency that will lead this action, and list of any supporting organisations involved Actions to be taken Resources Required / To be deployed Objective and End State to be achieved Priority 3. (Insert Description of the Action required) Responsible Agency that will lead this action, and list of any supporting organisations involved Actions to be taken Resources Required / To be deployed Objective and End State to be achieved Priority 4. (Insert Description of the Action required) Responsible Agency that will lead this action, and list of any supporting organisations involved Actions to be taken Resources Required / To be deployed Objective and End State to be achieved Priority 5. (Insert Description of the Action required) Responsible Agency that will lead this action, and list of any supporting organisations involved Actions to be taken Resources Required / To be deployed Objective and End State to be achieved 57 | Lessons Learned Exercise for EP&R in Nigeria 8 A3 ANNEX 3—Final Workshop Attendance List Sn First name Surname Other names Designation Organization 1 Abdulkadir Ibrahim ASCIO NEMA 2 Abdullahi Ba’aba Kalli Senior Program Officer Cooperazione Internazionale (COOPI) 3 Abdullahi Abubakar Executive Secretary Kebbi SEMA 4 Àbdullahi Adamu Usur Acting Director, Relief and NEMA Rehabilitation 5 Adebiyi Razaq Babatunde Assistant Director NEMA 6 Ademuyiwa Oyewumi Director General’s NASRDA Representative 7 Aisha Bisalla Assistant Director Federal Ministry of Marine and Blue Economy 8 Aishat Ibrahim HAO, Government Liaison UNOCHA 9 Aliyu Shehu Kafindangi Head, Sokoto Operations NEMA Office 10 Aminu Mohammed Anka Director Zamfara SEMA 11 Ayodeji Akande Cornelius Principal Manager Kainji Dam 12 Bamidele Fagbite Emmanuel Senior DRR and Peacebuilding Christian Aid Specialist 13 Bandele Onimode Director, Disaster Planning, NEMA Research and Forecasting 14 Binta Hussaini Dangani SEMA Katsina 15 Charles Kiplangat Emergency Preparedness and IRC Response Coordinator 16 Confidence Obayuwana Government Liaison Nigeria INGO Forum Coordinator 17 Dahiru Yusuf Head of Operations NEMA NEMA Edo 18 Daniel Mbee Mbee Director, Centre for Disaster University of Port Harcourt Risk Management and Development Studies 19 Dayo Omoniwa Agric Officer NAIC 20 Dorah Tarfa Project Manager Tearfund 21 Dr david Akpan Deputy Director eHealth Africa 22 Dr. Ibrahim Muhammad Jalo Director Operations Yobe SEMA 23 Dr. Thickman Godwin Tanimu Assistant Director NEMA 24 Ekat Ibor Effiom Technical officer Federal Ministry of Water Resources & Sanitation 25 Ekundayo Mobayo Deputy General Manager Nigerian Agricultural Insurance Cooperation 26 Emmanuel Balogun Abbey Driver - Director Search & Defense Head Quarters Rescue (D-SAR) 27 Eugene Nyelong Louis Jos Plateau state NEMA 57 | Lessons Learned Exercise for EP&R in Nigeria 58 | Lessons Learned Exercise for EP&R in Nigeria Sn First name Surname Other names Designation Organization 28 Eyiuche Anagor Benefette Chief Disaster Risk Reduction NEMA Officer 29 Fatimah Kasim Suleiman Director Special Duties NEMA 30 Florence Kayemba Country Director & Program Stakeholder Democracy Network Manager (SDN) 31 Friday Abalaka Amana Assistant Director, Engineering Federal Ministry of Agriculture and Food Security 32 Garba Mohammed Kuki Director NEMA 33 Godknows Ben Journalist AIT 34 Haruna Mairiga - Executive Secretary Jigawa State Emergency Management Agency 35 Heidi Sunday Edgar Director Adamawa SEMA 36 Henrietta Ibrahim Danladi Deputy Director News Radio Nigeria 37 Hopewell Munyari Operations Manager International Federation of the Red Cross and Red Crescent Societies 38 Ibrahim Abayomi Kuti Lecturing/ Training Coordinator Federal University of Technology Minna Centre for Disaster Risk Management and Development Studies 39 Ifeanyi Udenze Hilary Orderly– Director. Search & Defense Head Quarters (DHQ) Rescue (D-SAR) 40 James Akujobi James Director General Services NEMA 41 Jamiu Salami Olayinka Coordinator LASEMA Lagos SEMA 42 Jimoh Hassanah Ass Director Katsina SEMA 43 Johnson Dadu FCT Controller Federal Fire Service 44 Joseph Omogo Nwangbo Principal Scientific Officer Federal Ministry of Health Headquarters, Abuja 45 Jude Likita Interim Country Coordinator - Tearfund JISRA 46 Justin Uwazuruonye Head of operations Abuja NEMA 47 Kamorudeen Alao AGM meteorology NIMET 48 Karo Ovemeso Gabriel Director Delta SEMA 49 Kennedy Mataluwo Rosely Director Search & Rescue NEMA 50 Koudraogo Yameogo Denis Country Program Coordinator Malteser International 51 Ladan Ayuba David Head of Operations NEMA NEMA Yola office 52 Lawal Hassan L. A. NEMA 53 Lokoja Sani Alhaji Ag Director, ICT NEMA 54 Lumba Auwal JK Monitoring, Evaluation, Plan International Research, and Learning (MERL) Coordinator 55 Manasseh Panpe DM Officer NRCS 56 Manzo Ezekiel Head of Press Unit NEMA NEMA 57 Margaret Akuh Director of Administration Kogi SEMA 58 Martha Obaje Team Assistant World Bank 59 Martins Ejike Director, HRM NEMA 59 | Lessons Learned Exercise for EP&R in Nigeria Sn First name Surname Other names Designation Organization 60 Mary Obasi DC DISASTER, Force Nigerian Police Force Headquarters 61 Mercy Dachir CTO Federal Ministry of Environment 62 Minhammad Barkindo Saidu Director General Borno SEMA 63 Mmachukwu Oyeka- Funding CAFOD Chinweoke 64 Mohammed Nuhu PEO NEMA 65 Muhammadu Zumba Abdulsalam Director Niger SEMA Tanko 66 Muyiwa Olowe Ebenezer State Coordinator FCT Helen Keller International 67 Ndidi Omega Rita HOD Administration/ Human Anambra SEMA resources 68 Ngozi Echeazu Oduokwu ZONAL COORDINATOR NEMA, Southeast Zone, Enugu 69 Njeduwa Bulus Apagu Emergency Coordinator Action Against Hunger 70 Nkechukwuchor Okwunwa Godwin Chief Planning Officer GIS NEMA 71 Nkem Joseph- Senior DRM Specialist World Bank Palmer 72 Nkoyo Eyo Asuquo Principal Planning Officer NEMA 73 Nuraddeen Abdullahi Coordinator NEMA Kano NEMA Territorial Office 74 Ojuolape Busari Abidemi Secretary, SEMA Oyo SEMA 75 Oladapo Akingbade Akinniran Chief Planning Officer NEMA 76 Olawale Shonde Ishau Director Ogun SEMA 77 Oluwafunmilayo Aladesuyi R. Team Assistant World Bank 78 Onimode Bandele Director, Disaster Planning, NEMA Research and Forecasting 79 Owoicho A John Dep Director PCFRR 80 Philemon Yatu Habila MEAL Manager Catholic Relief Services 81 Philomina Attah Akpomoshi Reporter NAN 82 Rahila Lassa Reporter VON 83 Rukaiya Aliyu Project manager Terre Des Homme 84 Ruth Oluwole Sherifat Deputy Commandant of Corps NSCDC (Nigeria Civil Defense Corps) 85 Saadatu Muhammed Ovosi Principal Information officer NEMA 86 Sani Ahmed Jiba DFA NEMA 87 Saviour Badzoilig Noku Commissioner Min of Special Duties and Humanitarian Services and Regional Development, Taraba State 88 Shamsiyyah Tijjani Principal Planning Officer NEMA 89 Sidney Osawaru Osariemen Head of Safety and Security SOS Children’s Villages 90 Suleiman Abubakar Asst. Chief Planning Officer Federal Ministry Transportation/ Marine and Blue Economy 91 Suleiman Aliyu Sani Chief Technical officer Federal Ministry of agriculture and food security 60 | Lessons Learned Exercise for EP&R in Nigeria Sn First name Surname Other names Designation Organization 92 Sunday Ogba Egwu Director of Search & Rescue Defense Headquarters 93 Sunday Jackson Onyebuchi Executive Secretary Abia SEMA 94 Suwaiba Muhammad Deputy Country Director& ActionAid Nigeria Dankabo Director of Programs 95 Taiwo Adeleke ACG Federal Ministry of Water Resources 96 Tamunosiki Ogbanga Director Rivers SEMA (Ministry of Special Duties, Port Harcourt) 97 Terhide Iorhuna James Program Manager, Refugees/ Benue SEMA IDP’s Operations 98 Tosan Collin Usifoh PSO NESREA 99 Ugochukwu Uyanna Samuel Journalist Classic FM Abuja 100 Uzoamaka Onyeuka Priscilla Executive Secretary Imo SEMA 101 Wahidat Mustapha Meteorologist Nigerian Meteorological Agency 102 Walamam Igrubia Samuel (Hon.) Director General Bayelsa SEMA 103 Yusuf Dan’asabe Ubandoma Secretary Taraba SEMA 104 Zainab Saidu Suleiman Head of Operations Minna NEMA 8 A4 ANNEX 4—LLE Timeframe Schedule of activities for LLE  1. Desk review— Draft submitted  2. Interviews  a.  Training of researchers   b.  Schedule of interview for MDAs Date  February  1 February  2 February  5 February  6 February  7 MDA  NiMet  NARSDA  NCFRMI  FMoH  FMEnv  FMWR  FMEdu  FMoI  FMWA  FMHAPA  FFS  PCFR&R    c. Field visits schedule  Date  4– 6 March 15–17 February 19–21 February 22–24 February 8–11 March  2024 Zone  Northeast—Adamawa South South—Delta Northwest—Jigawa Southeast—Anambra North Central—Benue State, (Yola)   State, (Asaba)  State, (Dutse)  State, (Awka)  State (Makurdi) 3. Delivery of Workshop  2-day Workshop: 24–25 April, 2024 61 | Lessons Learned Exercise for EP&R in Nigeria Photo: Grandilock.