Final Performance Evaluation of Partnership for Capacity 
Building in Disaster Management Program: National 
Incident Management System (NIMS)
(Final Report) 
United States Agency for International Development (USAID) 
USAID Contract Number: AID-663-O-14-00022 
Prepared by Dadimos Development Consultants 
Mulugeta Tefera (Team Leader) 
Agez Hidaru 
Guluma Soboksa 
Abdurehman Eid 
June 2014 
Addis Ababa, 
ii
Contents
Acronyms..................................................................................................................................................... iii
Acknowledgement ....................................................................................................................................... iv
Executive Summary...................................................................................................................................... v
1. Introduction...........................................................................................................................................1
2. Background...........................................................................................................................................2
3. Scope and Methodology........................................................................................................................3
4. Findings.................................................................................................................................................4
4.1 Contextualization and Integration of NIMS Components ............................................................4
4.1.1 Contextualization ..................................................................................................................4
4.1.2 Integration ............................................................................................................................5
4.2 Functionality and Efficacy of NIMS ...............................................................................................8
4.2.1 Multi-Agency Coordination...................................................................................................8
4.2.2 Emergency Operation Centers............................................................................................12
4.2.3 Incident Command System.................................................................................................13
4.2.3 Strengths and challenges in the integration and functionality of NIMS.............................15
4.3 Process and Outcomes NIMS Trainings ......................................................................................17
4.4 Study Tours.................................................................................................................................21
4 4 1 Processes and key outcomes of study tours.......................................................................21
4.4.2 Recommendations from the study tour participants.........................................................22
4.5 Program Design and Management..............................................................................................24
4.5.1 Relevance of Program Design and Management...............................................................24
4.5.2 Coordination and Collaboration among Stakeholders ........................................................26
5. Sustainability.......................................................................................................................................28
6. Summary of findings and conclusions................................................................................................32
7. Lessons Learned..................................................................................................................................37
8. Recommendations...............................................................................................................................38
Annexes.......................................................................................................................................................42
Annex 1: Evaluation Protocols................................................................................................................42
Key References ........................................................................................................................................51
iii
Acronyms
AWSA: Addis Ababa City Water and Sanitation Authority 
BoA: Bureau of Agriculture 
CEPRP: Comprehensive Emergency Preparedness and Response Planning 
DRMFSS: Disaster Risk Management Food Security Sector 
DRMTWG: Disaster Risk Management Technical Working Group 
EOC: Emergency Operation Centres 
EW-ECC: Early Warning and Emergency Coordination Centre 
EWRD: Early Warning and Response Directorate 
FEPRA: Fire Emergency Preparedness Rescue Agency 
FGD: Focus Group discussion 
FMAC: Federal Multi Agency Coordination 
GoE: Government of Ethiopia 
HR: Human Resources 
HRD: Humanitarian Requirement Document 
ICPs: Incident Command Post 
ICS: Incident Command System 
IMT: Incident Management Team 
IRC: International Rescue Committee 
LIU: Livelihoods Integrated United 
MoA: Ministry of Agriculture 
MoARD: Ministry of Agriculture and Rural Development 
MoFA: Ministry of Foreign Affairs 
MoH: Ministry of Health 
MoWR: Ministry of Water Resource 
NGOs: Non-Governmental Organizations 
NIMS: National Incident Management System 
TWG-NIMS: NIMS Technical Working Group 
NPS-DRM: National Policy and Strategy- Disaster Risk Management 
DPPC: Disaster Prevention and Preparedness Commission 
QDA: Quantitative Data Analysis 
RRFA: Regional Reserve Fund Administration 
SC: Steering Committee 
SCI: Save the Children International 
SMAC: Strategic Multi Agency Coordination 
SNNP: Southern Nations and Nationalities Peoples 
Somali DPPB: Disaster Prevention and Preparedness Bureau 
TDY: Temporary Duty Assignment 
UNOCHA: United Nations Organization for Coordination and Humanitarian Affairs 
UN: United Nations 
USAID: United States Agency for International Development 
USDA: United States Department of Agriculture 
USFS: United States Forest Services 
USG : United States Government 
iv
Acknowledgement 
The team from Dadimos Development Consultants wishes to express its thanks to David E. 
Horton III, Food for Peace Officer who is directly in charge of the evaluation, Demeke Eshete, 
Sarah McNiece from USAID for their critical comments on the evaluation methodology and as 
well as flexibility of the report submission. 
We are also greatly indebted to Muluneh W/Mariam EWRD Director, Adane Tesfaye from 
USFS, Beletu Tefera Federal EW-ECC Coordinator and NIMS Co-focal person, Rahel Asfaw 
Co- focal person from DRMFSS, Hassan Aden Deputy head of Somali DPPB, Hessen Barud 
NIMS program alternate focal person of Somali DPPB, Mahamed Reshid NIMS program 
alternate focal person from Somali DPPB, Commander Amauel Reda Deputy Director for 
Operation, Nesibu Yasin FEPRA Head of Training Institute, Beto Dima Deputy Director for 
Disaster Risk management from FEPRA and Mulatu Neguma Oromia DPPC Head of EWRPO, 
Dawud Mussa NIMS program Focal person, and Harun Husen ORF Unit Head from Oromia. We 
also express our gratitude to Markos Budusa from BDU for his conspicuous support in providing 
his views on NIMS program. The cooperation of woredas level cascade trainees and other 
humanitarian actors such as UN-OCHA field Office, and SCI field office, is gratefully 
acknowledged. 
v 
Executive Summary 
This report presents the findings of the Final Performance Evaluation of the Partnership for 
Capacity Building in Disaster Management Program: National Incident Management Systems 
(NIMS). NIMS is a $ 5 million and four year pilot program, technically and financially 
supported by US Government to strengthen the GoE disaster risk management system. The pilot 
program is still being implemented. However, this evaluation covered only the time up until 
September 2013 in which major pilot activities took place at federal level by DRMFSS, in 
Oromiya Region by DPPC, in Somali Region by DPPB and in Addis Ababa City by FEPRA 
with the technical support from USFS.
Contextualization of NIMS Components 
Initially, the GoE identified four components of NIMS including MAC, EOC, ICS and CEPRP 
to integrate into the country’s DRM system. In the course of implementation the first three 
components focusing on emergency command and management system were found to be timely 
relevant to be integrated in the DRM system by the GoE. The three components have been 
contextualized, training manuals prepared and operational guides drafted during the pilot phase. 
Integration and Functionality of NIMS Components 
At federal level major attempts have been made by DRMFSS to integrate MAC, EOC and ICS 
within the existing DRM structures. From these SMAC has been formed by expanding the role 
of the earlier ad-hoc group called Emergency Coordination Forum (ECF). In the last two years 
the SMAC played a role in mobilizing resources and prioritizing emergency responses based on 
the request of the GoE through its HRD. TMAC was activated from DRMTWG to coordinate 
specific emergency responses in coordination of with ICPs. Currently, DRMFSS plays a leading 
role for both SMAC and TMAC, whose members are from key ministries, donors, UN agencies 
and NGOs. 
In the past three years, DRMFSS in collaboration with line ministries, Oromiya and Somali 
regions have activated ICPs to manage humanitarian incidences related to conflicts, return of 
migrant workers from Saudi Arabia and floods. According to evaluation informants from 
DRMFSS, UN agencies and regions the ICPs played important roles in speeding up and 
coordinating emergency responses by bringing different actors together and facilitating 
information flow from emergency places to DRMFSS which makes decisions over resources. 
In Oromiya Region existing structures have expanded their roles to assume new tasks and 
responsibilities introduced with NIMS to enhance multi-agency and multi-hazard approach. 
Based on this SMAC roles are being played by Disaster Preparedness and Response Committee 
while TMAC roles are being carried out by Regional DRMTWG. In Addis Ababa City SMAC 
was established and functional with the leadership role of FEPRA. However, TMAC is not yet 
activated or established. 
vi
In Somali Region neither SMAC nor TMAC were established or activated during the pilot phase 
due to delayed NIMS familiarization to bureau heads and other higher officials as well as 
existence of two parallel humanitarian structures in the region. However, recently the regional 
DPPB drafted MAC operation guide and conducted a familiarization workshop towards the end 
of the pilot program. 
EOCs have been formed under DRMFSS and Oromiya DPPC. Both centers are currently 
working on compiling and sharing emergency situation updates. FEPRA has allocated offices 
space and planning to establish EOC soon. However, Somali DPPB has no plan or readiness to 
establish EOC. 
In this course some of the key challenges of integration of NIMS have been lack of linkage 
between EOCs and ICPs, low decision making role of the ICPs, absence of assigning NIMS 
trained personnel in the ICPs, shortage of logistic facilities for the ICPs on scene, limited 
professional diversity within EOC vis-a-vis the nature incidences in the county, and absence of 
approved NIMS operation guides that harmonize structures suggested by NIMS with the existing 
practices.
NIMS Study Tours and Trainings 
The study tours organized by USFS were eye openers and motivators for the Ethiopian senior 
and middle-level officials, and experts to develop a good perception and attitude towards NIMS 
in the US and bring it to Ethiopia. The tours helped the GoE to identify and develop a strategy to 
integrate NIMS components in the country’s DRM system. 
A total of 41 (five women) Ethiopians participated in the study tours from different line 
ministries, regional bureaus and agencies. However, visa restrictions to some of the proposed 
study tour participants have created a dreadful sentiment, especially among NIMS Program 
implementers in Somali Region. Moreover, repeated participation of some people was indicated 
to reduce the chance to involve others from key line ministries in the study tours.
NIMS trainings on MAC, EOC and ICS were instrumental to enhance human resources capacity 
in emergency resource management of the pilot regions and agencies. These trainings also served 
as a forum for contextualization of NIMS into the country’s DRM system. 
So far 59 and 601 people participated in the ToTs and cascade trainings respectively. From these 
only about 24% of the ToT participants have attended all the three trainings while about 19% of 
the cascade trainees did the same. No competency and facilitation skill test was given for master 
trainers before they involve in NIMS cascade trainings. This occasionally have resulted in a few 
incompetent master trainers facilitating NIMS trainings 
Sustainability of NIMS 
In general there is a strong desire and commitment from federal to regional level to pursue with 
NIMS components integrated with the DRM system of Ethiopia. The following are positive 
signs and challenges for NIMS Program sustainability. 
vii 
The positive contributing factors for sustainability of NIMS: 
 DRM policy and institutional commitments of the GoE, 
 Contextual relevance of NIMS to Ethiopia, 
 Preparation of contextualized NIMS training manuals and operation guides, 
 Existence of training institute under FEPRA dedicated for human resources development, 
 Interests of UN agencies and NGOs to participate in NIMS initiatives (e.g. ICPs) and 
funding the establishment of EOCs, 
 Availability of resources from some GoE to operationalize EOCs. 
Challenges and areas improvement for NIMS sustainability: 
 Absence of institutions dedicated to DRM human resource capacity building at federal or 
regional level, 
 Limited budget allocation for institutional capacity building outside of training from 
NIMS program, 
 Absence of a specific responsible structure within the DRM system to promote the 
integration of NIMS, 
 Lack of a clear scaling up and phase out strategy and commitment, 
 Existence of parallel DRM structures in Somali Region, 
 Use of non-standard/uniform terms and structures within DRM system, 
 Delayed approval and application of NIMS operation guides, 
 The NIMS pilot woredas and zones have not yet proactively put NIMS into practice, and 
 Absence of a binding memorandum of understanding among MAC group members at 
federal level.
Key Lessons from the NIMS Pilot Program 
A range of lessons in the area of program implementation and management as well as policy 
processes have been documented by this evaluation in a way they are useful for ensuring 
sustainability and scaling up of NIMS. The key lessons are: 
 The NIMS study tours have played decisive roles in the institutionalization/integration of 
NIMS components into the Ethiopia’s DRM system.
 Early familiarization of NIMS to key decision makers can play an advocacy and 
enlightening role for the integration of NIMS into the DRM system at federal and 
regional level.
 The time overlap in the introduction of NIMS with DRM policy development process and 
institutional reform creates a higher propensity for acceptance and integration of NIMS 
components.
 The strong strategic and technical leadership responsibilities of the DRMFSS in the 
NIMS program have helped the country to explore different options for the integration of 
NIMS. 
viii 
 Past experiences from DRMFSS and Oromiya DPPC indicate that there are possibilities 
of obtaining external resources for financing NIMS initiatives beyond the development of 
DRM system, trainings and study tours. 
 Standardized classification of emergency response resources can help for appropriate, 
coordinated and rapid responses to incidences. This was typically seen in FEPRA that 
classified resources by type and kind appropriate for incidence management based on the 
lessons from the study tours and technical supports. 
Recommendations 
Based on the findings of the evaluation study, the following recommendations have been put 
forward for consideration in strengthening and scaling up the NIMS program pilot initiatives in 
more coordinated and sustainable ways by considering the GoE DRM policy framework. 
1. The challenges of of the full integration and functionality of NIMS components into the 
DRM system identified through this evaluation and others should be broadly discussed 
and a action plan part of the next phase on the NIMS program. 
2. The next phase of NIMS program, regions should encourage and make woredas 
accountable to put NIMS components into practice. 
3. Further standardization of DRM structures (such as committees and work groups), terms 
and emergency resources has to be promoted to enahance coordinated and effective 
communication and actions in the course of NIMS integration and incidence 
management. 
4. Future NIMS Program should have a clear and transparent results framework that 
indicates expected outcomes, outputs and activities linked with budget. 
5. Depending on budget availability, DRMFSS and regions (both piloted and scale up) 
should deploy fulltime or part time staff for coordination and monitoring of NIMS 
activities.
6. UN agencies and NGOs should be part of the NIMS steering committee to speed-up the 
integration and functionality of NIMS. 
7. The next phase of NIMS program should allocate budget or come up with a strategy for 
obtaining other matching funds from existing complementary programs to ensure 
effective functionality of all NIMS components. 
8. NIMS should consider resources and technical supports to build EOCWeb with 
components broadly capturing and sharing early warning information. Such system 
should enable EOCs to expand the existing use of and access to early warning and 
climate information from international data suppliers and NMA. 
9. Future study tours should be organized in other African or Asian countries that practice 
emergency response management system similar to NIMS to overcome the problem of 
US visa restriction. 
10. Priority should be given to ToT trainings to have adequate number of master trainers who 
have attended all the NIMS trainings at regional level. 
11. NIMS operation guides should be further reviewed to align the contents with the existing 
DRM practices, structures and terms, and approved before scaling up of NIMS. 
12. Develop, resource and apply a NIMS Program visibility strategy to demonstrate values of 
NIMS components for the promotion of multi-agency and multi-hazard approach through 
a decentralized DRM system as per the new DRM policy of Ethiopia. 
1 
1. Introduction 
This report presents the findings of the Final Performance Evaluation of the Partnership for 
Capacity Building in Disaster Management Program: National Incident Management Systems 
(NIMS). The objectives of the evaluation is to gain an independent view of the performance of 
the Program in order to help guide USAID, partners and other stakeholders to learn from what 
has been undertaken for future scale-up interventions, management and implementation. 
The evaluation exercise assessed the effectiveness of the NIMS components in helping the GoE 
to respond to disasters, the functionality and effectiveness of the NIMS established coordination 
mechanisms and the capacity of DRMFSS and pilot partners to support increased program scale￾up. The evaluation also identified and documented lessons from the program implementation in 
order to inform the subsequent program scale-up. The key questions the evaluation attempted to 
answer were program performance in terms of achievement of its objectives and results 
(outcomes and goal), the sustainability of these results and the overall management of the 
program. 
2 
2. Background
Ethiopia is amongst the developing countries most vulnerable to natural and human-made 
hazards. The most profound hazards include drought, flood, forest fire, human and livestock 
diseases and crop pests. Drought induced hunger and famine, flood and civil conflicts are the 
most catastrophic, causing suffering to communities and millions of dollar worth of property 
destructions. Although the system of disaster management in Ethiopia seems to benefit from a 
paradigm shift, there are still salient problems that DRM has to reckon with. 
A consultative meeting and a brainstorming workshop between the USFS of United States 
Department of Agriculture (USDA) and the Early Warning and Response Department (EWRD) 
within the Ministry of Agriculture and Rural Development (MOARD) was held in February 
2008 and October 2009 respectively for a potential partnership program between the U.S. and 
Ethiopian Governments to build Ethiopia's disaster management capacity. 
These events found the relevance and applicability of the U.S. Incident Command System (ICS) 
in command and management, preparedness, resource management areas in Ethiopia. In June of 
2009, USAID commissioned USFS expert to develop a proposal and to hold further discussions 
with the federal Early Warning and Response Department (EWRD), regions and other 
stakeholders on the viability of a disaster risk management partnership program. 
Following this, ALT brought USFS disaster management technical experts to Ethiopia to 
introduce components of the U.S. National Incident Management System (NIMS) to GoE 
counterparts. Then a four year NIMS program fully integrated into the GoE disaster risk 
management system with estimated budget of $ 5 million program was designed with the GoE. 
The program is believed to significantly contribute to operationalize the GoE's National Disaster 
Policy, further mitigating and preventing disasters, while improving preparedness to respond to 
emergencies. It intends to strengthen the capacities for disaster risk management capacity of the 
GoE integrating the relevant components of the NIMS into the Ethiopian DRM system. The 
program also aims to provide technical assistance to further professionalize the DRM capacities 
of the partner institutions. The selected priority NIMS components include, Multi-Agency 
Coordination (MAC), Emergency Operations Centre (EOC), Incident Command System (ICS), 
and Comprehensive Emergency Preparedness and Response Planning. Partners to implement the 
program in the pilot phase are the Federal Government through the DRMFSS, Oromiya Region 
through Disaster Prevention and Preparedness Commission, Somali Region through Disaster 
Prevention and Preparedness Bureau and Addis Ababa City Government through Fire and 
Emergency Prevention and Rescue Authority. 
3 
3. Scope and Methodology
The Final Performance Evaluation of the Partnership for Capacity Building in Disaster 
Management: NIMS Program is conducted using secondary data collected from documents and 
primary data attained from key informant interviews. Pilot regions and agencies of the program 
were the main source of information for this evaluation. 
Secondary Data 
Different relevant document about NIMS Program were reviewed at the start of the assignment. 
The team carefully studied the reports previously compiled by USAID, USFS and DRMFSS. 
Accordingly, all relevant documents including quarter reports, monitoring reports, field visit 
reports, stakeholders workshop reports, study tour reports, steering committee meeting reports, 
assessment reports and program manuals and guidelines were sources of secondary data for this 
evaluation. 
Primary Data 
Ten set of qualitative instruments to collect primary data from pilot regions and agencies were 
developed and applied to assess the performance, design, management arrangement, 
sustainability and impacts of the program. The instruments were composed of a set of structured 
questions for key informant interviews and key guiding questions for focus group discussions. 
The data collection was done from May 5 to 20, 2014. 
Key Informant Interviews (KIIs): Structured interviews were conducted with the staff of 
Federal Disaster Risk Management and Food Security Sector (DRMFSS), Oromiya Disaster 
Preparedness Commission (DPPC), City Government of Addis Ababa Fire and Emergency 
Prevention Rescue Authority (FEPRA) and Somali Disaster Prevention and Preparedness Bureau 
(DPPB) and Bahir Dar University (BDU) and Study tour participants. In addition, key informant 
interviews were conducted with select UN Agencies (UNOCHA) and NGOs (SCI and IRC). 
Data Analysis 
The qualitative data was analyzed using a qualitative data analysis (QDA) procedure. The data 
was transcribed from the notes and recorded voices collected from each respondent group and
individual informants. Then cross-section content analysis under each question was carried out 
and crucial findings were summarized. 
4 
4. Findings
4.1 Contextualization and Integration of NIMS Components 
4.1.1 Contextualization 
Since 2010 the Federal Government of Ethiopia (GoE) has been adopting the relevant 
components of National Incidence Management System (NIMS) in order to strengthen the 
country’s disaster management. The government started the process by incorporating the relevant 
components of US NIMS into the existing disaster risk management system through the funding 
and technical partnership (the NIMS Program) with the Government of the United States. The 
technical support is being given by United States Forest Service (USFS). 
After two rounds of study tours to the US (in February and August 2010), senior officials from 
DRMFSS, line ministries and regional bureaus identified four components of NIMS to adapt and 
integrate into Ethiopia’s Disaster Risk Management (DRM) system. These components are: 
 Multi-agency Coordination (MAC); 
 Emergency Operation Centre (EOC); 
 Incidence Management System (ICS); and 
 Comprehensive Emergency Preparedness and Response Plans (CEPRP). 
In the middle of the two study trours, an assessment was conducted on the DRM capacity of the 
GoE at federal and regional levels July 2010. Based on the outcomes of the assessment, NIMS 
program pilot regions and agencies were selected. Since then, the GoE, with different 
contextualization efforts, has been integrating the NIMS components and associated functions in 
the pilot regions and agencies. 
A two-round NIMS familiarization workshops were undertaken for regional bureaus in Oromiya 
(July 2012) and in Somali Region (September 2013). Similar workshops were given on time 
(November 2012) to people selected from Addis Ababa City Government key bureaus and 
agencies, civil society organization as well as Addis Ababa City Fire and Emergency Prevention 
and Rescue Authority (FEPRA). 
NIMS familiarization workshop in Somali Region was delayed because of the preoccupation of 
the regional bureau heads with their routine activities. Despite the huge effort exerted by the 
regional Disaster Preparedness and Prevention Bureau (DPPB) to hold NIMS familiarization 
workshop to the regional bureau heads as per the schedule, it was postponed three times before it 
was finally conducted in September 2013. 
Contextualization of NIMS into the Ethiopia’s DRM system was started during initial trainings 
on NIMS components identified for the country. The United States Forest Service (USFS) and 
DRMFSS organized the first MAC training of trainers (ToT) with participants from DRMFSS, 
key line ministries, pilot regions (Oromiya and Somali) and FEPRA, in January 2011, using the 
original training manuals prepared for US experts. Subsequent to this, in March 2011 a small 
group of the first cohort of master trainers (representing DRMFSS, MOH, MOWR, Pilots and 
BDU) were brought together to work on the contextualization of MAC training manual. At that 
5 
juncture, the MAC training manual was adapted to Ethiopia’s DRM system, jurisdictional 
contexts and disaster scenarios with a facilitation support from USFS. For instance, the tasks 
assigned to the different administrative structures and agencies in the US were changed to the 
context of Ethiopia. Moreover, hypothetical disaster response planning scenarios were also 
converted to Ethiopia’s disaster risk management scenarios in the contextualized MAC training 
manual. In this way the first Ethiopian MAC training manual was developed. 
The EOC and ICS training manuals were contextualized by DRMFSS, with the technical support 
from USFS, in the same way. The DRMFSS and USFS continually improved the MAC, EOC 
and ICS training manuals to reflect the Ethiopian realities based on lessons obtained from 
training events and pilot experiences. DRMFSS believes in the need for continuous upgrading of 
the training manuals along with further contextualization of NIMS based on future experiences 
and changing policy contexts. 
With regard to the fourth NIMS components, CPERP, trainings were given at the federal level 
for experts from DRMFSS, pilot regions and FEPRA. Yet, contextualization of CEPRP in the 
DRM system was not made at all. The main reason for this is that DRMFSS is having an 
ongoing woreda risk profiling initiative which works on emergency and response contingency 
planning. However, alike the other components, the training has built the disaster response 
planning capacity of the government staff and created the opportunity to share comprehensive 
preparedness and response planning guide template for woreda risk profiling. 
4.1.2 Integration 
i. Federal-level Integration of NIMS 
The DRMFSS, with the technical support of the USFS, has developed operation guides for 
MAC, EOC and ICS to integrate NIMS in the Ethiopia’s DRM system. The process of 
developing operational guides involved the participation of DRMFSS senior expert team; key 
line ministries (MOH, MOWEI); NIMS focal persons from FEPRA, Oromiya DPPC and Somali 
DPPB; USFS and BDU. Finally, the draft operation guides for MAC, EOC and ICS were 
distributed to selected donors, UN agencies and NGOs to solicit their feedback. The operation 
guides set standards and procedures for the integration of the NIMS components into the existing 
DRM system of Ethiopia. Moreover, the guides describe as to how the NIMS command and 
management structures are activated and deactivated as well as their functions at federal, 
regional, zonal and woreda levels. The operational guides are awaiting the endorsement of 
federal authorities for their full-scale adoption at federal, regional, zonal and woreda levels as 
well as by other state and non-state actors. 
At the federal level, the NIMS components are being integrated into the DRM system and 
structures. MAC is one of the components being included in the DRM architecture. MAC group 
members are from relevant ministries (MoH, MoE, MoWEI, MoE and MoD), donors, UN 
agencies and NGOs under the leadership of DRMFSS. SMAC is chaired by the MoA State 
Minister from DRMFSS side, and co-chaired by UN agencies Resident Humanitarian 
Coordinator with the secretarial role of UNOCHA. The executives and decision-makers on 
emergency response resources from the above stated government organizations and non-state 
humanitarian actors are members of SMAC. 
6 
SMAC has taken over the roles of the earlier Emergency Coordination Forum (ECF). In the past 
the ECF was formed on ad-hoc basis where there were needs for humanitarian appeals. Members 
of ECF varied from time to time depending on the type of disaster. Currently, permanent SMAC 
members are known and whenever there is a need additional institutional members are pulled 
together to join the permanent SMAC members. Based on DRMFSS informants the SMAC 
group receives DRM situational updates from the DRM Technical Working Group (DRMTWG)1
 
chaired by the Director of EWRD, with technical and operational members from the 
abovementioned organizations. 
Based on the current practice, DRMTWG activates TMAC and ICPs when emergency situations 
are happening or looming to happen. The TMAC is led by Director of EWRD. Its members 
selected from DRMTWG based on the relation between the nature of the emergency and the 
mandates of the organizations they represent. DRMTWG meets on a monthly basis to review 
DRM situations in the country and TMAC meets on more frequently to provide guidance to ICPs 
and review emergency response situations on the scene. 
This technical working group has been there before the introduction of NIMS and technically 
lead the preparation of HRD and regularly discuss on multi-hazard issues. Currently TMAC is 
activated from DRMTWG when emergency situations are occurring or likely to occur. By 
DRMFSS, TMAC is seen as a subset of DRMTWG. In the past TMAC was activated during 
different times to technically coordinate emergency responses. 
DRMFSS and other DRM actors at federal level give strong focus on the importance of 
DRMTWG in the country’s DRM system. However, the draft MAC operational guide has not 
specified how the DRMTWG integrates in the DRM system. On the other hand the DRMFSS 
has the intension to maintain SMAC, DRMTWG and TMAC in the DRM architecture as multi￾agency forums for multi-hazard management. 
As an integral component of the NIMS, DRMFSS established federal-level EOC in March 2013 
under the Early Warning and Response Directorate of DRMFSS. The centre is blended with 
early warning functions and termed as Early Warning and Emergency Coordination Centre (EW￾ECC) in the contextualization of NIMS by DRMFSS. The coordinator leads the ECC for Early 
Warning and Emergency Coordination Centre who is also NIMS Program co-focal person. 
The team members were given NIMS training after they assign as federal-level ECC staff. Their 
professional backgrounds are agro-meteorology and crop production. Nonetheless, experts 
competent in livestock, conflict management and food market information system for early 
warning and decision-making purposes seem to be lacking. 
ii. Integration of NIMS in Oromiya and Somali Regions 
The Oromiya Regional DPPC has assumed the responsibility of integrating NIMS components in 
the regional DRM system. Lessons from study tours and NIMS training as well as engagements 
in federal forums promoting NIMS program have helped in this regard. In the past both SMAC 
 
1
It was also operational within the DRM system before the introduction of NIMS.
7 
and TMAC groups have been ‘formed’ despite there is no MoU that binds the participant 
organizations. The Oromiya Regional DPPC is waiting for the endorsement of Federal NIMS 
guide to develop its own operational guide for MAC groups. 
The DPPB in Somali Region is responsible for the integration and application of NIMS 
components in the regional DRM system. Despite the initiative of drafting regionally 
contextualized MAC operational, based on the federal level draft guide, by the DPPB and the 
participation of regional and pilot woreda staff members in NIMS training, both SMAC and 
TMAC groups are not integrated in the regional DRM system. This delay in integration is 
associated to the lag in NIMS familiarization workshop for regional DRM actors, which was 
behind schedule (September 2013). In addition absence of participation of the region in the 
NIMS study tours has reduced the motivation of officials to quickly run the integration work in 
parallel with the other pilot region and agency. 
According to a Somali DPPB informant, the familiarization workshop for the regional senior 
officials was postponed three times due to the unavailability of the regional bureau heads. In 
addition, the presence of two parallel and separate DRM forums that lead and coordinate 
humanitarian issues in the region has made the integration of MAC difficult. The two forums are 
the Humanitarian Coordination Forum led by BoFED, and the DRM Technical Working Group 
led by DPPB. Interestingly, BoFED has a mandate on the emergency resources while DPPB has 
a judiciary mandate on DRM with control over resources. 
From the pilot regions, only Oromiya Region dedicated facilities and established a regional EOC
within the regional DPPC. The establishment of EOC started with the allocation of a room and 
staff by DPPC. Based on the experiences obtained from the US study tours and capacity building 
efforts of NIMS program, the Commission developed a program proposal and solicited funds 
from donors, NGOs and UN agency to equip the EOC with information communications 
facilities and operational procedures. As a result, so far it was able to equip the centre with the 
necessary facilities with financial support from Save the Children International Ethiopia.
ICS is used to organize on-scene operations for a broad spectrum of emergencies from small to 
complex incidents, both natural and human made. The GoE and humanitarian actors in the 
country have proven ICS to be an important part of command and management component of 
NIMS as a means for strengthening on ground coordination of emergency responses. Some of 
the ICS functions were not new to Ethiopia as emergency response team (ART) was assigned 
and dispatched for on the scene disaster management before the NIMS program. However, the 
current Incidence Command Posts (ICPs) replacing the ERT started to engage multi-agency with 
multi-hazard coordination concepts during disaster responses. 
The assimilation of these concepts with the leadership of DRMFSS has been demonstrated to a 
limited extent in Addis Ababa, Oromiya and Somali regions (see the functionality section of this 
report). As indicated by DRMFSS there were a number of humanitarian agencies that showed the 
interest to be part of ICPs. However, in the past it only allowed agencies with readily available 
emergency response resources and presence in the disaster areas to be the members of ICPs. 
However, limited NIMS trained ICP participants and lack of adherence to approved ICS 
8 
guideline and tools has been indicated to be the limitation for the full and harmonized integration 
of ICS. 
iii. Integration of NIMS in Addis Ababa City, FEPRA 
The City Council of Addis Ababa and the Mayor are providing support to FEPRA and other 
DRM actors in the city for a full-scale integration and application of NIMS components being 
adopted by the country. So far, FEPRA, in consultation with DRM partners in the city and USFS, 
has developed MAC and ICS operational guides for the Addis Ababa City Government DRM. 
These operational guides took urban disaster and risk scenarios and the recently (2013) revised 
mandate and structure of FEPRA into account. The MAC guide is approved by the City Council, 
and the ICS guide is being commented upon by MAC member organizations. FEPRA has 
translated the MAC guide into Amharic. 
The MAC operational guide indicates the existence of two permanent structures at City level, 
including S-MAC and T-MAC and other two MAC structures City-MAC (CMAC) and Sub-city 
MAC (SCMAC) to be activated during emergency times. The document provides guidance on 
the roles of the different MAC structures and the activation and deactivation of CMAC and 
SCMAC at the city and sub-city levels, respectively. 
FEPRA has dedicated office space for EOC at its headquarters. The Authority is committed to 
operationalize EOC by assigning the required human resource and office facilities soon. The 
EOC operation envisages guarantying the activation of CMAC, SCMAC and unified command 
centres during incidences by providing early warning and response information to DRM actors.
4.2 Functionality and Efficacy of NIMS 
The functionality and efficacy of NIMS within the DRM system of Ethiopia (pilot regions and 
agencies) depends on the level of integration of NIMS components which is facilitated or 
constrained by different factors. Participation of leaders, existence of harmonized DRM 
structure, contextualization of NIMS, favourable policy and strategies and existing human 
resource capacity are the main factors. Based on these factors, the efficacy and the extent of 
functionality of NIMS components vary by pilot region and agency. 
4.2.1 Multi-Agency Coordination 
During the pilot phase, three out of four NIMS components (MAC, ICS and EOC) mainly 
focussing on command and management in the DRM system, were functional at different levels 
of efficacy in Ethiopia. The fourth component, CEPRP, which was supposed to focus on building 
capacity of planning disaster responses, has not been functional as part of NIMS program. Thus, 
this section of the evaluation examines the functionality of the first three NIMS components 
including MAC, ICS and EOC.
9 
Federal Multi-Agency Coordination 
DRMFSS has the authority to lead the coordinate disaster risk management (DRM) activities in 
the country. Therefore, it is functioning as a pivotal body for the MAC at federal level in times 
of disaster. At the same time, it is spearheading integration and functioning of the NIMS 
components into the DRM system throughout the country. With the leadership responsibility of 
DRMFSS, it is possible to claim that MAC, EOC and ICS have started to function at federal 
level. 
The SMAC group functions as a continuation and expansion of the roles of the earlier Federal 
Emergency Coordination Forum (FECF) at federal level. The SMAC group is led by the MOA 
State Minister. The different feature of SMAC from FECF is that it has got multiple actors from 
government ministries (MoWIE, MoA, MoA, MoFA and other ministries as appropriate), 
donors, UN agencies and NGOs. Senior officials from these organizations are also members of 
SMAC groups. The group members meet as required during disaster time to discuss and pass 
decision over resource mobilization, coordination and prioritization for emergency responses as 
per the Humanitarian Requirement Documents (HRD) presented to them by the GoE. 
In the past, DRM actors often responded to disasters unilaterally and in less coordinated ways 
during emergency time. Thus, the functionality of SMAC and incorporation of multi-agency and 
multi-hazard approaches, have enabled efficient resource use and coordination of the DRM 
system. The DRM actors discuss over a report from DRM technical working group and make 
emergency response decisions in the SMAC meetings as per the HRD. In the meeting, the 
SMAC group members agree on roles and responsibilities of the different actors in relation with 
the HRD. In addition, the SMAC group members meet to review the progress and discuss over 
outstanding issues of ongoing emergency responses. Based on this, HRD of the country were 
resourced jointly by SMAC group members twice in 2013 FY and once in 2014 FY. However, 
some donors and non-state humanitarian actors consider that the HRD preparation process to be 
less consultative and participatory. 
According to DRMFSS, the TMAC group has started reviewing ICPs reports from emergency 
scene and providing ICPs with necessary supports, by convening more frequently compared to 
DRMTWG. This practice is an indication of promoting multiagency participation and direct 
information flow from ICPs at the emergency scene to MAC member institutions. However, the 
practice is not always the case as the system is immature. 
“Previously DRMFSS, MoA, MoH and others were working independently NIMS has 
created coordination of emergency response and management efforts. This has 
substantially reduced duplication of resources delivered by the different agencies to the 
same needy people. Now we started to jointly assess and coordinate shared 
responsibilities by working together through MAC.” [DRMFSS key informant]. 
Although there is a progress on a functional integration of MAC in the DRM system at federal 
level, there is no binding memorandum of understanding among its member ministries and 
organizations. This approach is unbinding to both governmental and humanitarian actors to take 
part in MAC activities on regular basis or during disaster times. According to DRMFSS this 
10
problem will be addressed after the legislation of the new National Policy and Strategy on 
Disaster Response and Management (NPS-DRM). 
Oromiya Regional Multi-Agency Coordination 
In Oromiya, the regional Disaster Prevention and Preparedness Commission (DPPC) is a house 
for multi-agency coordination (MAC) forums. The MAC system as one of the piloted 
components of NIMS are being executed by the existing disaster risk management structures of 
the region called Disaster Prevention and Response Committee, whose members are heads of 
regional bureaus, including BOWIE, BoH, BoE, Livestock Development Agency and 
Cooperative Promotion Agency. The roles of TMAC are also being played by regional DRM 
technical working group whose members are drawn from the directors, process owners and 
experts of the above regional institutions. According to the regional officials, there was no need 
to change the existing names of DRM coordination structures to SMAC or TMAC thus far. 
However, the regional DPPC informants use the new terms (SMAC and TMAC) interchangeably 
with the name of the existing structures. This is mainly associated with the absence of NIMS 
operational guides to apply in the course of integration of NIMS. 
Activation of MAC group was not required in the past as there were no major disaster events in 
the region. However, both SMAC and TMAC groups are meeting to discuss on DRM issues. The 
region is waiting for the approval of the federal MAC operational guide to develop its own 
contextualized version of the guide. 
“An inter-sectoral coordination and collaboration on disaster management has highly 
improved. A few years back it was not possible to get representative/ leaders of any 
sector bureaus for DRM meetings without the circulation of formal letters. This made the 
decision-making time long. Now, it is possible to hold regional SMAC members 
meetings by simply making telephone calls by the DPPC Commissioner or Vice 
Commissioner. In the same way, members of TMAC can be invited for meetings through 
telephone calls of the technical MAC coordinator in the commission.” [Key informants 
from Oromiya Regional DPPC].
The coordination and collaboration level of the existing structures have been strengthened due to 
series of capacity building interventions such as study tours, seminars and NIMS training. In the 
past, calling committee members that played roles of SMAC had not been easy. DPPC had to 
write a letter and wait for days to hold meetings. These committee members can now 
immediately come together to discuss and pass decisions over DRM issues. 
“We can say one thing; the NIMS program has contributed toward enhancing the disaster 
risk management of our region.” [Key informants from Oromiya Regional DPPC]. 
Somali Regional Multi-Agency Coordination 
Multi-agency coordination in the DRM system has not been functional in Somali Region until 
the time of this evaluation. As indicated in the NIMS integration section above, the NIMS 
11
familiarization workshop for regional DRM actors was conducted lately. In addition, the 
existence of two parallel regional DRM structures in the region has hampered the integration of 
NIMS within the existing structures. Lack of exposure of regional DRM authorities and experts 
to international study tours has also played negative role in dragging the operationalization of 
MAC structures in the region. 
With these constraints, the regional DPPB informants also acknowledged that there is an effort to 
establish the MAC structure and develop operational guide at regional level. However, 
operations of two parallel structures on DRM have to be resolved in order to ensure the 
integration and functioning of MAC and other NIMS components in the regional DRM system 
effective. 
“MAC is not established because there is an operational guide that must be finalized first. 
We have almost finished the operational guide and now will move to establish MAC. The 
guide is adapted from the federal level draft MAC guide.” [Regional DPPB key 
informants]. 
Addis Ababa City Multi-Agency Coordination 
In 2013, FEPRA was restructured and legislated by the Addis Ababa City Council with the 
mission of informing the city residents about urban risk of hazards, and preventing and 
controlling disasters in the city. Previously, FEPRA solely focused on a fire fighting approach. In 
line with the restructuring and the new legislation, however, FEPRA together with civil society 
organizations and city-level government stakeholders is moving towards multi-hazard and multi￾agency coordination approach. The approved city-level MAC operational guide and experiences 
learned from NIMS program are contributing to this move. FEPRA serves as focal body for 
multi-agency coordination (MAC) at city-level in times of disaster. FEPRA, Addis Ababa Water 
and Sewerage Authority (AWSA), Bureau of Labor and Social Affairs, Bureau of Women and 
Youths Affaires, Bureau of Health, Addis Ababa Police Commission and Federal Police 
Commission, Addis Ababa Electric Utility, Addis Ababa Ethio-telecom Branch and Addis 
Ababa Red Cross Society are permanent members of MAC. The role of each agency varies based 
on the nature and scope of the disaster. 
“NIMS program is contributing to the realization of FEPRA’s Vision and Mission. So 
far, MAC, EOC and ICS are found appropriate for this purpose. We are also coordinating 
our efforts with others. Through MAC, we have realized the existence of resources within 
the city that can be pooled together during disasters.” [Key informant interviews with 
FEPRA authorities.] 
According to the deputy director and NIMS focal person at FEPRA, the formation of MAC 
system along with NIMS training and awareness raising activities have created wider 
understanding among the city government, and different bureaus as well as agencies. For this 
reason, the different DRM actors in the city are regularly meeting and discussing prevention and 
control of disasters with the coordination of FEPRA. So far, only SMAC is functional from the 
NIMS architecture. Although the role of TMAC is described in the City MAC guide, the body is 
12
not yet formed. However, FEPRA is taking part in the federal NIMS technical working group led 
by DRMFSS, thus acquiring experience which would enable it to form a city level TMAC. 
4.2.2 Emergency Operation Centers 
The Federal EW-ECC, which performs EOC functions, has three functional rooms: situations 
update room, operation room and decision-makers (SMAC) room. The situations update room 
has four permanent staff members that work data collection, analyze and dispatch early warning 
information for decision-making by federal authorities and for public consumption on regular 
basis. 
Although the necessary facilities and office spaces are provided for each of the EW-ECC rooms, 
the operations and SMAC rooms have not been active as there were no major disaster events 
triggered full-scale activation of the ECC. However, all the rooms are fitted with networked and 
internet connected computer system as well as large situation update display screens acquired 
through financial support of UNDP. Given the existing setting, the ECC has huge potential to 
assist agencies and organizations to fully integrate the components of NIMS in the DRM system. 
The situation update team is regularly obtaining meteorological data from international sources 
and Ethiopia Meteorological Agency (EMA) as well as early warning information from regions 
and different agencies/departments under MoA indicating incidents and situations at local and 
regional levels. With the introduction of NIMS and the establishment of EW-ECC, Early 
Warning and Disaster Response Directorate has improved its facility and system to capture and 
disseminate early warning information. However, logistics and budget shortages at woreda and 
zonal levels are still the constraints that hamper federal EW-ECC from obtaining ground-level 
early warning data on time. In this regard, the EW-ECC hopes for the timely accession of early 
warning data from woredas with the completion of Woreda NET connectivity system that is 
underway. 
With regard to EOC, Oromiya Region has already established a funding scheme with Save the 
Children International (SCI) Ethiopia for the purchase of fixed items and budget. Based on this, 
the regional DPPC operationalize EOC with three staff and furnished with the minimum required 
equipment and facilities. The EOC is awaiting for the start Woreda Net system to establish a 
wide area computer network system with woreda DPP office for automated data collection. 
Large display screen, disaster profile maps and computer systems are available in a large single 
room dedicated for EOC. The regional DPPC has allocated a running budget for the EOC. 
Somali DPPB has developed a proposal to request funds from UNDP and WFP to establish EOC. 
DPPB plans to establish and operationalize the EOC as soon as the funds are secured. 
FEPRA is planning to establish EOC base at its headquarter. EOC operational guide has not yet 
been prepared. The MoH has agreed with FEPRA to assign three doctors and an ambulance 
which will work at the EOC for 24 hours a day. In addition, FEPRA is searching for funds to 
equip the EOC and make a real time linkage (online watch system) between the EOC and 
emergency scenes during incidences. 
13
4.2.3 Incident Command System 
Since the launching of NIMS program, incidence command system (ICS) has started to function 
in the pilot agencies and regions by activating incident command posts (ICP) to coordinate 
emergency responses at the scene. These include: 
 ICP activated by DRMFSS to coordinate reception and dispatch of Saudi migrant worker 
returnees in 2014; 
 ICP activated by FEPRA to coordinate the control of fire and rescue lives and properties 
during the Merkato area fire incidence in November, 2013; 
 ICPs activated by DRMFSS and Somali Regional DPPB to coordinate emergency 
responses in Godey and Jigjiga; and 
 ICPs established by DRMFSS and Oromiya Regional DPPC to coordinate emergency 
responses in Koni, Chiro and Yabelo. 
To facilitate the reception of Saudi migrant worker returnees in 2014 DRMFSS made attempts to 
activated ICPs from the relevant ministries and agencies by assigning commanders from its staff. 
According to DRMFSS informants the ICPs formed were not as per the NIMS principles. The 
people assigned were not structure as per requirement for the different posts in ICP and have no 
adequate skills and knowledge to apply. Both NIMS trained and untrained ICP personnel were 
assigned at the command posts within Addis Ababa. Nevertheless, in those command posts the 
ICPs played important roles in psycho-social support, organization of temporary shelters, food 
and cash handing, and providing transportation. The ICP members who took the ICS training 
have provided better service under the post they assumed at the time. Participants of these ICPs, 
by representing DRMFSS, indicated better response to crisis in relative terms due to the 
introduction of NIMS. For instance some of the NIMS trained participants had applied ICS 
monitoring forms to communicate with the area commander which was responsible to coordinate 
the different ICPs. However, this was not uniformly done across all the ICPs. 
The ICP activated by FEPRA in Addis Ababa had helped a lot during the fire disaster in Merkato 
on November 11, 2013. During this incidence, FEPRA activated a unilateral and on-scene 
incident command post (ICP) with a command system that only involved its staff. Information 
sharing to the different agencies involved in the rescue operation was done through FEPRA to 
facilitate coordinated responses during the incidence. Currently, FEPRA and other city-level 
DRM actors are working to create a system that would help to activate a unified command post 
during emergency operations which require multi-agency responses. 
ICPs were established in Godey and Jigjiga of Somali Region to respond to flood damages and 
conflict induced crisis, respectively. Similarly, ICPs were activated in Yabelo of Oromiya 
Region to respond to crisis which emanated from migration of Kenyan pastoralists to Ethiopia as 
well as in Kumbi to respond to crisis due ethnic conflicts between Oromos and Somalis. In both 
region, ICP members came from DRMFSS, regions, zones, NGOs, woredas and UN agencies 
(UNOCHA, UNICEF and WFP). In both regions, the activated ICPs were led by commanders 
from DRMFSS. The involvement of federal government in the formation and leadership of ICPs 
14
was mainly required because decisions over resources for disaster response are made centrally by 
the DRMFSS, as per the existing policy. In addition inter ethnic conflicts and cross-country 
nature of the incidents demanded the involvement of the federal government in the ICPs. 
According to the federal and regional informants, in the past, disaster response teams were 
deployed on emergency scene without proper skill and knowledge of managing disasters in 
unorganized manner. As a result, the information required by federal authorities to decide on 
emergency resource dispatching and utilization had to go through the administrative chain, 
including woredas, zones and regions. This was one of the causes for the relative delayed 
emergency responses. Thus, the incorporation of ICS in the DRM structure broke the long chain 
of information flow and created direct linkage between ICPs on scene and DRMFSS. In this 
manner ICP enhanced relatively effective, better coordinated, transparent, appropriate and timely 
emergency responses. 
For instance, the Godey and Jigjiga ICPs coordinators were instrumental in creating relatively 
effective link and harmonious communication among UN agencies and NGOs, and with regional 
and federal government. The ICP at Godey worked closely with UN agencies and NGOs in the 
multi-agency flood disaster assessment and helped DRMFSS to clearly understand the situation 
and allocate 100% of the resources requested. Based on the information from Oromiya DPPC, in 
addition to information linkage and coordination, the ICP at Koni provided supports for the 
woreda level concerned structures in conflict resolution and management. 
Specifically the ICPs activated in Somali Region encounter shortage of office, communication 
and transport facilities. On top of this, the person assigned to lead the ICP in Godey did not go 
through NIMS training. 
“ICP is the most important ICS facilities that helped to strengthen on-ground 
coordination of emergency responses from assessment to delivery of assistance”. [A key 
informant] 
FEPRA recognizes the relevance of ICS as it suits urban areas, mostly those affected by fast 
onset disaster. As a result, it has been applying different lessons learned from the US study tours 
in its institutional system. Classifying human resources and machinery by type and kind 
according to the response needs during incidences is one of the actions being taken for the 
application of ICS. Based on these lessons, the post of fire-fighter, which was collective in the 
previous FEPRA human resources structure, is now structured at three-levels as fire-fighter 1, 
fire-fighter 2 and fire-fighter 3. Similarly fire trucks are grouped under two types, based on their 
capacity. 
The federal ECC and ICPs are less coordinated to feed into MAC and make effective command 
and management structures in the DRM system. This is mainly due to the fact that the 
incorporation of NIMS in the Ethiopian DRM system is at its infancy stage. There are no 
operational guides, individuals not trained in NIMS are sometimes assigned as ICP commanders, 
and as indicated above commanders have no adequate power to make decisions over resources. 
Due to local capacity gaps and long-standing practices, centralized emergency resources 
15
management and decentralized decision-making on emergency responses have not yet been in 
place. Therefore, ICPs cannot make decisions on resources while they are at emergency scenes. 
The implementation of the new National Policy and Strategy on Disaster Risk Management 
(NPS-DRM) issued in July 2013 is expected to promote decentralized disaster risk management 
system. The enforcement of this policy requires government proclamation to realign the policy 
with other policies and strategies of the country, create disaster risk management coordination 
structures, and improve physical, financial and human resources capacity for disaster risk 
management from local to federal levels. 
“The country is following decentralized disaster risk and management system. Thus 
future focus with regard to adopting NIMS components would help realize its goal.” [KII 
from a humanitarian agency] 
4.2.3 Strengths and challenges in the integration and functionality of NIMS 
Since 2010 major achievements have been gained in the integration and functionality of NIMS 
with the Ethiopia’s DRM system in piloting NIMS components. This evaluation has come across 
the following key areas of strength and challenges of the piloting process that have to be taken 
into account as lessons and areas of improvement in the course of improving efficacy of NIMS 
components in the pilot areas and agencies as well as nationwide scaling up the system. 
i. Multi-agency coordination system 
a. Strengths of MAC 
1. SMAC has helped to expanded multi-agency and multi-hazard approach in DRM by 
bringing decision makers from relevant federal ministries, donors, UN agencies and 
NGOs. 
2. TMAC activated from DRMTWG at federal level has started to provide support to IPCs 
on emergency scene. 
3. NIMS introduction into the DRM system of FEPRA during the its restructuring and 
legislation process from agency to authority level supported FEPRA to mainstream multi￾agency and multi-hazard approach. 
4. The preparation and approval of Addis Ababa City MAC Operational Guide has 
promoted clear understanding and brought binding engagement of DRM actors in the city 
with leadership responsibility of FEPRA. 
5. The multi-agency coordination approach followed by the Disaster Prevention and 
Response Committee, after the integration of NIMS, has improved collaboration and 
coordination of DRM actors in Oromiya Regions on emergency responses. 
6. Participation of NIMS focal persons from regional and pilot agencies in federal level 
NIMS Technical Working Group meetings is helping them to acquire experiences to
establish their own MAC.
b. Challenges of MAC 
16
1. Both at regional and federal levels there are unclear functional overlaps between DRM 
structures existing before the introduction of NIMS and structures to be reformed or 
created after NIMS. These perplexities are observed during DRM practices and in the 
draft operational guides expected to be endorsed in the near future. 
2. Addis Ababa City level TMAC is not yet formed and could not be activated during 
occurrence of incidents. This has limited the formation of multi-agency ICPs at the time 
of responding to incidents. 
3. Dalliance of regional NIMS familiarization events, existence of computing dual 
humanitarian response structures, and lack of senior officials exposure to study tours 
have contributed to the retarded integration of NIMS within the DRM structures in 
Somali Region.
ii. Emergency Operation Centers 
a. Strengths of EOC 
1. The interest to integrate and functionalize EOC has been seen at all levels. 
2. Pilot regions, DRMFSS and EFPRA have dedicated resources in different forms 
including staff, office space and facilities. 
3. Some funding agencies have shown the interest to finance the establishment of EOC. 
4. Federal EW-ECC and Oromiya Regional EOC have started to access early warning 
information from regional, national and international sources 
b. Challenges of EOC 
1. EOCs are not yet linked with ICPs to provide their comprehensive supports throughout 
the DRM cycle. 
2. EOCs lack some critically required professionals to provide decision making support for 
different types of incidences. 
3. EOCs are not yet established in Somali Region and FEPRA though there are strong 
efforts to do this in both cases. 
4. Zonal and woreda offices lack budget for collection and transferring of early warning 
information to the higher level. 
5. Delay in WoredaNet impended timely early warning data transfer to regions and federal 
EOCs. 
iii. Incidence Command System - Incidence Command Posts 
a. Strengths of ICS/ICP 
1. ICS enhanced communication from disaster scene to DRMFSS which resulted in 
relatively timely emergency response actions. 
2. The same way information from incidence scenes to FEPRA created coordinated 
emergency response by DRM actors in Addis Ababa. 
3. ICP created an opportunity for humanitarian actors to speak common language and 
collaborate on emergency responses. 
17
4. The participation of different actors at different levels with pre-defined roles and 
responsibilities in the ICPs contributed for the promotion of transparency in disaster 
response. 
5. With minimum orientation about specific disaster, ICPs can quickly be activated and 
functional by involving NIMS trained members. However, readily getting trained people 
for ICPs is still a challenge. 
6. ICPs contribute to DRM professionalism during emergency responses among participants 
among different profession by representing different sectors. 
7. Beyond responding to tangible needs (such as food, medical and cash support) of disaster 
affected people, ICPs have shown their potential for fulfilling the emotional needs of the 
target population through psychosocial and providing advises to local administrators on 
conflict management. 
b. Challenges of ICS/ICP 
1. ICPs have no decision making power over emergency responses due to centralized 
emergency response management system. 
2. Mix of trained and untrained ICP members are assigned together, sometimes this hinders 
the effectiveness collaboration and reduces DRM professionalism 
3. Shortage of facilities and logistics for ICPs on scene reduces effective coordination of 
emergency responses 
4. Segregation of roles and responsibilities of ICP members are not made based on NIMS 
principles mainly due to the absence of commonly accepted ICS operational guideline. 
5. Lack of effective linkage with EOC limits holistic and systematic integration of NIMS 
within the DRM structures.
4.3 Process and Outcomes NIMS Trainings 
Once the NIMS components to be integrated within the DRM system of Ethiopia were known 
after the initial US study tours and consultative meetings as well as NIMS familiarization events, 
the next major action was building the capacity of DRM actors through two levels of training. 
The first-level was Trainers of Training (ToT) to develop NIMS master trainers, and the second￾level was cascading NIMS training in the pilot regions, woredas and agencies. Overall, the 
NIMS program had achieved 90% of its training plans, and about 6.8% of the trainees were 
female. 
As indicated in Table 1, below, 59 trainees attended master trainers training (ToT) on at least one 
of the NIMS components in two rounds during the pilot phase of NIMS Program. From these 
participants only 23.7% (14) of them completed the trainings in the three components of NIMS 
can be regarded as fully equipped mater trainers. Over three quarters of ToT participants have 
attended one or two of the NIMS component trainings. 
According to the program records (Table 2), 601 individuals have participated in at least one of 
the three NIMS cascaded trainings, up until September 2013... From these about, 15.1%, 35.4%, 
17.6% and 31.9% of the participants were from DRMFSS, Oromiya, FEPRA and Somali 
respectively. Likewise about 70% attended only and 18.6% participated in two of the trainings. 
18
From the cascaded NIMS training participants only 11.8% attended all the three trainings. On top 
of the trainings on NIMS components, additional skills training were provided to DRMFSS, 
regional and FEPRA staff in National Comprehensive Emergency Response and Preparedness 
(CEPRP), All Hazard Incidence Management, Facilitation Skills and Exercise Design. Overall, 
the NIMS program had achieved 90% of its training plans, and about 6.8% of the trainees were 
female. 
Obviously holistic knowledge of and making connections between the NIMS components are 
fundamental, both during the facilitation of trainings by master trainers and emergency response 
management by cascade trainees. Specifically attending trainings on the three components of 
NIMS is very vital for master trainers, emergency response planners and EOC coordinators. 
However, until the program time covered by this evaluation, from the total number participants 
of the ToT and cascade trainings about 23.7% and 18.6%, respectively, took part in MAC, EOC 
and ICS trainings. 
Table 1: Master trainers participated in ToT by NIMS componets 
Trainees MAC 
only
EOC 
only
ICS 
only
MAC and 
EOC only
MAC and 
ICS only
EOC and 
ICS only
All MAC EOC 
and ICS
At least or more of 
the trainings
Number 9 22 7 1 6 14 59
Percentage 15.3% 0.0% 37.3% 11.9% 1.7% 10.2% 23.7% 100%
Table 2: Number of people participated in NIMS Cascade Trainings Pilot Period 
Trainees
from
MAC 
only
EOC 
only
ICS 
only
MAC and 
EOC only
MAC and 
ICS only
EOC and 
ICS only
All MAC EOC 
and ICS
At least or more of
the trainings
Federal 
level
27 23 23 7 2 5 4
91 (15.1%)
Oromiya 61 55 46 15 9 4 23 213 (35.4%)
FEPRA 13 10 32 14 2 5 29 105 (17.6)
Somali 58 38 32 16 4 29 15 192 (31.9%)
Total 159 126 133 52 17 43 71 601 (100%)
Table 3: Percentage of cascade trainings participants by type of training 
Trainees 
from
Only one training Only two trainings All MAC 
EOC and 
ICS MAC 
only
EOC 
only
ICS 
only Total
MAC and 
EOC only
MAC and 
ICS only
EOC and 
ICS only Total
Federal 
level
29.7% 25.3% 25.3%
80.2%
7.7% 2.2% 5.5%
15.4%
4.4%
Oromiya 28.6% 25.8% 21.6% 76.1% 7.0% 4.2% 1.9% 13.1% 10.8%
FEPRA 12.4% 9.5% 30.5% 52.4% 13.3% 1.9% 4.8% 20.0% 27.6%
Somali 30.2% 19.8% 16.7% 66.7% 8.3% 2.1% 15.1% 25.5% 7.8%
Total 26.5% 21.0% 22.1% 69.6% 8.7% 2.8% 7.2% 18.6% 11.8%
MAC master trainers training was provided as training of trainers (ToT) to 32 (originally planned 
to be 30) people from DRMFSS, line ministries, UN agencies, I/NGOs and USFS focal persons 
by USFS staff in January 2011. The ToT was not only about training on NIMS, but also laying 
foundation for the creation of cadres for contextualizing NIMS into the Ethiopia’s DRM system 
and situations. Following the first round training and contextualization of the MAC training 
19
manual, the second round master trainers training was given to another group of 24 people 
(originally planned to be 30) in March 2011 by Ethiopians who attended the first training with 
support from USFS. This training was given to regional experts drawn from the concerned line 
bureaus (DPPB/DPPC), federal stakeholders (MoWRIE, MoH and MoA), and FEPRA. 
The second ToT given by master trainers was conducted to test whether the first master trainers 
were capable of properly delivering the NIMS training contents to the cascade trainees as well as 
creating another set of master trainers. Similarly, ToT was given to master trainers on EOC and 
ICS, each in two rounds. Facilitation skills training were next given to master trainers to enhance 
local capacity at DRMFSS and pilot regions for cascading NIMS training. Four to five days were 
allocated for each NIMS component. The trainings were participatory and master trainees from 
the federal and pilot regions presented their contexts developing their local and hazard specific 
scenarios which later on were used as inputs in adapting the NIMS training manuals. The ToT 
training in the NIMS components (MAC, EOC and ICS ) were provided by the trainers from 
USFS who met the expectations of the master trainers. 
The master trainers highly appreciated the quality of presentations and skills of the USFS 
facilitators in delivering training contents with clear and understandable English. They also 
acknowledged that the four to five days allotted per training were enough. In addition, the 
training manuals provided both on CDs and paper copies helped the trainees to continually refer 
about NIMS components both during and after the training. 
The master trainers from the DRMFSS, regional offices and FEPRA have further cascaded the 
NIMS components (MAC, EOC and ICS) into the pilot woredas, FEPRA, and UN agencies (in 
Somali) and NGOs operating in the pilot woredas with financial and technical supports from 
NIMS. Pilot regions, zones, woredas and FEPRA staff were also trained on all Hazard Incident 
Management Team (IMT) to capacitate them in managing disasters/incidents in their respective 
jurisdictions. 
The cascade training participants from pilot regions, woredas and agencies have recognized the 
quality and relevance of the training they had. However, cascade trainees in Oromiya and Somali 
regions indicated that the duration of the training (3 days for MAC, 4 days for EOC, and 5 days 
for ICS) were very short as compared to the volume of the training manuals and extensiveness of 
the topics. Some of the participants suggested that the training manuals be translated to local 
languages. 
As opposed to this, the participants from pilot woredas of Oromiya and Somali regions told the 
evaluation team that there was lack of follow-up and support from the regions to institutionalize 
NIMS components after the cascade trainings. However, they indicated that the training have 
helped them enhance their understanding and practices in coordination and multi-hazard 
approach to DRM. The Oromiya DPPC indicated that providing specific follow-up and support 
to the two pilot woredas out of 246 total woredas in the region was unrealistic.
DRM at large, and Early Warning (EW) and emergency response in particular, are cross￾sectional issues that critically need the involvement of all concerned actors. The participation of 
the sector offices in NIMS cascaded training in DRMFSS in Oromiya region and Addis Ababa 
20
(FEPRA) was good but very limited in Somali region. As opposed to this, the regional sector 
offices that have master trainers were reluctant to collaborate in the process of cascading the 
NIMS training to regional and woreda level offices, together with DPPB. Delayed 
familiarization of the NIMS program to the regional officials had its own negative impact in 
reducing such collaboration among regional bureaus. 
After the training, both the NIMS master and cascade trainees are technically backing their 
respective offices in times of incident management in preparing disaster preparedness planning 
and coordination of efforts. In this course the trainees at federal and regional levels and FEPRA 
played pivotal roles in the integration and institutionalization of NIMS components in the DRM 
system. For instance, people leading and writing funding proposals for the establishment of 
EOC, preparation operational guides, and acting as commanders and members of ICP are those 
participated in master or cascade trainings. 
The fourth NIMS component, i.e. the comprehensive emergency preparedness and response 
planning (CEPRP) preparation training was also given only to master trainees of the DRMFSS, 
Addis Ababa (FEPRA) and pilot regions. It has not yet reached woreda level experts in both 
Oromiya and Somali regions.
Strength of the NIMS trainings 
1. The NIMS trainings were not only skill transfer events but also they served as platform 
for contextualizing NIMS and later for the preparation of NIMS training manuals and 
operational guides. 
2. Trainings were conducted in a participatory manner to make a multi-way experience 
sharing and attractive for trainees. 
3. Cascade trainees were selected from multiple DRM actors from federal, regional zonal 
and woreda as well as UN agencies and NGOs having DRM roles in the pilot regions and 
federal level. This has helped the integration NIMS at different levels. 
4. Scenario based exercises during the NIMS training in the context of incidences prevailing 
or expected to prevail in the pilot area helped participants to link NIMS training with 
their actual work. 
Challenges and areas of improvement on NIMS trainings 
1. The same participants are not always sent for different rounds and components of NIMS 
ToT to produce master trainers having attended all the required trainings. 
2. Provision of all the trainings for all participants of cascade trainings was difficult to 
achieve during the pilot phase. However, selection participants for the specific NIMS 
training based on their current mandate and DRM roles of their institutions have not been 
taken into account so far. 
3. NIMS trainings have built participants capacity. However, when it goes down to woreda
level the culture of maintaining institutional memories by documenting training materials 
has been found to be weak. 
4. Trainees from pilot woredas have not proactively brought what they leaned into practice 
to the required level. So far there was no system that encourages or makes the trainees or 
their institutions accountable to integrate NIMS in the local DRM practices. 
21
5. There is no a follow-up and monitoring mechanism to ensure the application NIMS at 
woreda or zonal levels. Both federal and regional level DRM actors have no the capacity 
and the resources to this. 
6. The training materials given to the cascade trainees are prepared in English. This limits 
the readability and application of the manuals during on the job DRM practices. 
7. So far there is no formally designed and accepted after training test to check the uptake of 
NIMS knowledge by both ToT and cascaded training participants. This system would 
have helped to examine the effectiveness of the trainings and the readiness of the trainees 
to engage in DRM activities with good understanding on NIMS within DRM system. 
4.4 Study Tours 
4 4 1 Processes and key outcomes of study tours 
With the funding from the NIMS program, four rounds of study tours were conducted by senior 
and middle-level officials and experts from federal ministries, regional bureaus and agencies 
responsible for leading and coordinating emergency response operations with the GoE. The main 
purpose of the tours was to get exposure to the application different NIMS components in the 
US, understand the importance of interagency coordination in disaster management, observe on￾scene operations of ICPs and exchange ideas with US colleagues on disaster management. 
In the study tours a total of 41 (five women) Ethiopians from MoA, MoH, and MoWRIE; MoFA, 
Disaster Prevention and Preparedness Food Security program coordination Office of Amhara 
Region; DPPB of Somali Region; BoA and DPPC of Oromiya Region; and FEPRA from the 
City of Addis Ababa as well as BoA from Tigray and SNNP regions. In the 2nd, 3rd and 4th round 
study tours, the participants were drawn only from pilot regions and institutions, including 
DRMFSS, Oromiya DPPC and FEPRA. In the first round of training, federal state ministers, 
regional bureau heads and directors were the main participants. In the last two rounds of the 
tours were dominated by case team leaders and experts from DRMFSS, Oromiya DPPC and 
FEBRA. 
The individual participants and the institutions they represented were selected based on the 
importance of the roles they play in the national DRM system. Due to this nature of the study 
tours arrangement, the first study tour participants played a greater role in making strategic 
decisions in terms of identifying NIMS components that are relevant to be adapted to Ethiopia’s 
DRM context, and in selecting regions and institutions appropriate for piloting NIMS. 
The study tours were instrumental for the integration of NIMS components in the DRM system 
with its effect at federal level in general and in pilot agencies and regions in particular. The tours 
enhanced the knowledge, skills and attitudes of the participants that are contributing for the 
improvement of the national and regional DRM system at different levels. Participants also 
recognize the motivational effect the study tours on the participants to improve the national 
DRM system after seeing new ways doing things in the US. Apart from the repeated 
participation of certain individuals, limited participants from federal ministries and repeated 
denial of visas for participants from Somali regions were reported as shortcomings of the study 
tours.
22
4.4.2 Recommendations from the study tour participants 
Based on the lessons learned and after each tour the participants collectively made 
recommendations, with the facilitation support from USFS, on the actions to be taken to enhance 
the national DRM system. Some of the recommendation was taken as part of the bi-annual NIMS 
and DRMFSS’s regular implementation plans. These recommendations are grouped into six
clusters indicated below. The numbers in the parentheses and in front of the recommendations 
indicate the rounds of the study tours. The statements in the italics font also describe the status of 
the implementation of the recommendations organized based on the evaluation results. 
1. DRM Policy and Strategy 
 Refine the draft DRM policy on the basis of lessons learned from the tour to U.S. (1) 
 Legislation of DRM policy (3) 
The National Policy and Strategy on Disaster Response Management was endorsed by July 
2013. The policy has benefited from NIMS Program in incorporating different principles 
including multi-agency coordination and multi-hazard focus. However, the document is not 
legislated yet to institutionalize and develop its implementation guideline. 
2. NIMS Program Management 
 Establish and operationalize NIMS Steering Committee comprising State Ministers 
and/or Directors of key line ministries, with a clear TOR. (1) 
 Assign persons as NIMS program coordinator/advisor to be based and work for 
DRMFSS. This person was expected to provide technical assistance in disaster risk 
profiling as well) 
The NIMS Steering Committee was established and acting as oversight body of the program. The 
committee meets every six months to discuss its progress and provide directives for the next six 
months period. The placement program coordinator/advisor basing at and working for DRMFSS 
was not executed. Rather two co-focal persons were assigned from the DRMFSS and a liaison 
office from USFS. These focal persons have played important roles in planning and 
implementation of the NIMS Program togther with USFS. 
3. Integration and contextualization of NIMS components 
 Review existing DRM system in Ethiopia and identify and agree which specific and 
component/components of NIMS can be incorporated in to it. (1) 
 Further contextualization and customization of MAC, EOC, ICS processes. (3) 
 Familiarization and Training on MAC, EOC and ICS. 3 
 Further revitalize the DRMTWG so that it could serve as champion for NIMS as well as 
working group. (1) 
 Awareness creation on NIMS components has to be further enhanced to government and 
private agencies. (4) 
23
The DRM system, programs and capacity of Ethiopia was assessed with the support of USFS. 
The findings of the review contributed for developing the NIMS Program implementation 
strategies and identification of specific components of NIMS to be incorporated in the national 
DRM system. 
Customized NIMS training manuals and operation guides have been developed after 
contextualization and familiarization efforts. Training manuals and federal level operation 
guides developed on MAC, EOC and ICS. The training manuals are being widely applied in pilot 
areas before September 2013, the reference period for this evaluation. The federal level MAC, 
EOC and ICS operation guides are waiting the approval of DRMFSS. 
Familiarization of NIMS components have been carried out for head of pilot institutions, regions 
and woredas, federal ministries as well as member Federal Council of Representatives. This has 
helped to promote NIMS program components at different levels. However, delayed 
familiarization action taken in Somali Regions has contributed for dragged integration of the 
program in the region. 
Awareness creation efforts have not been widely promoted among private agencies on NIMS 
components. However, FEPRA has started to provide advice letters on suspected disaster risks 
and precautions to private agencies in Addis Ababa. 
4. Establish and functionalize NIMS 
 Establish federal EOC with minimum required facility (3) 
 The two pilot regions and FEPRA should establish EOC/ECC as soon as possible for 
timely response and sharing of information during an incident(4) 
 Strengthen relationship between strategic MAC and technical MAC (3) 
 Study and analyze the possibility of WebEOC (3) 
 Enhancing the Agency’s involvement in the NIMS component is very crucial (4) 
DRMFSS and Oromiya DPPC have established and staffed their EOC with minimum required 
facilities. These facilities are providing situation update services in the DRM system under their 
jurisdiction. Somali DPPB and FEPRA, as pilot agencies, are making preparations and 
soliciting funding to establish EOC. 
SMAC and TMAC relations have shown improvement at federal level and in Oromiya Region. 
The functions of MAC were mainstreamed in the pre-existing DRM coordinating bodies, 
especially at federal and in Oromiya at regional level. 
WebEOC option was not examined so far. However, DRMFSS and Oromiya DPPC are looking 
for the finalization the Woreda Net System to integrate early warning systems with woredas to 
timely obtain information. 
5. DRM Capacity building 
 Explore improvement of communication systems in DRMFSS. (3) 
24
 Strengthening the capacity of DRMFSS in terms of mandate, human resources and 
structure enables the organization to carry out its responsibility of coordinating and 
managing disasters in the country (4) 
 The idea of domestically financed DRM should be operationalized(4) 
The DRMFSS ECC has been linked to the internet to obtain online meteorological data from 
international sources. In addition, it obtains electronic information from regions and NMA. At 
the same time it disseminates regular situation updates electronically to users at different level. 
FEPRA also has a radio communication system with its frontline workers. 
The tendency of domestically financing DRM is largely seen in FEPRA by doubling its human 
resources and dramatically increasing machinery and ambulances in the last two years. 
Oromiya DPPC is developing a guideline on raising and administering disaster reserve fund. 
The reserve fund will be established shifting the previous annual contingency budget. 
6. Scaling UP and Sustainability of NIMS 
 Develop a NIMS scale-up plan, including timeframe, methodology, and resource 
requirement (1) 
 Develop institutionalization strategy to ensure sustainability and effectiveness including 
identifying higher learning or research institution for providing training and on-going 
research-based refinement (1) 
 Developing Mutual Aid Agreement (3) 
The NIMS Program has prepared a scale-up plan based on repeated consultation meetings and 
workshop outputs. However, consolidated scaling-up plan with defined goals, indicators, 
resource plans and program management structure was not developed and endorsed so far. 
NIMS program considered institutionalization of NIMS in the BDU training curriculum as one of 
the strategies. Bahir Dar University is waiting its curriculum review season to do this. 
4.5 Program Design and Management 
4.5.1 Relevance of Program Design and Management 
i. NIMS Program Management 
The highest management body of NIMS program is a steering committee with members from 
DRMFSS, USFS, USAID, OFDA, FEPRA, Somali DPPB, Oromiya DPPC, MoH, MoWIE and 
NMA. The steering committee is an oversight body and conducts semi-annual meetings to 
discuss on program progress and approve next six-month plans. The NIMS steering committee is 
fed by NIMS-TWG which is a technical body that consists of the Co- focal persons of DRMFSS 
and focal and alternate focal persons of pilot regions, up to four persons from USFS (including a 
liaison officer), and directors and case team workers from DRMFSS. This TWG conducts 
planning and review of NIMS Program activities and presents the outcomes to the steering 
committee. 
25
The main strength of the steering committee is that it provides a platform for the donor and key 
GoE’s DRM actors joint planning and reviewing of the Program. In addition, the program is not 
both strategically and technically led by a coordinator external to DRMFSS. This made the GoE 
and its institutions (DRMS, FEPRA, DPPC and DPPB) feel responsible as owners in achieving 
the program objectives. This also has helped all the program outputs as a system and tools to be 
contextualized start functioning within the capacity of the owners of the program.
Despite these strengths, the following are found to be the limitations in the program 
management: 
 The attendance of State Ministers of federal ministries having stake on NIMS program 
has been replaced by their delegates during the steering committee meetings. This has an 
implication to reduce the effort to enforce strategic decisions made by the committee 
members that would help the integration of NIMS components. 
 NIMS program detailed implementation plan with associated budget was not clear to the 
NIMS management body. This has limited the management body to decide on effective 
allocation of program resources. 
 Key stakeholders of the DRM system in the country, including UN agencies and NGOs 
(both local and international), have not been included in the steering committee 
membership while they are members of the different DRM forums in which NIMS 
components are being integrated in one way or another.
 The NIMS Program monitoring is based on six-month reviews meetings of the steering 
committee and technical working group. The NIMS Program has continuous activities, 
but it has no continuous and systematic performance monitoring and follow-up system. 
 Participation of Somali Region in the steering committee meeting is also lower. As a 
result, it has the implication to lower the rate of the integration of NIMS into the regional 
DRM system. 
 The absence of full or part-time staff dedicated to the implementation and monitoring of 
NIMS activities across the pilot regions and DRMFSS, has reduced the effectiveness of 
program implementation. Specifically, this problem will be magnified in the future as 
NIMS Program is scaled-up to other regions and woredas.
ii. NIMS Program Design 
NIMS Program was designed to be flexible and incorporate lessons obtained in the course of 
piloting. The design of the program was flexible, starting from the choice of NIMS components 
and pilot regions/institutions. In addition, the conceptual framework of the program envisioned 
in four phases was appropriate to promote collaborative partnership based on flexible, responsive 
and adaptive piloting and integration of NIMS components in the country’s DRM system. 
The selection of four pilot organizations helped to promote NIMS principles and components at 
policy and strategic level in different livelihood systems, in urban-rural settings within varied 
26
institutional capacity and multiple hazard contexts. These situations have yielded varied lessons 
to scale out NIMS across regions. 
The limitations in the design of the program as observed by the evaluation team include: 
 Lack of clearly defined NIMS monitoring and evaluation framework. The Pilot 
program lacked program monitoring and evaluation framework with defined indicators to 
systematically measure and report on outcomes and impacts as well as continuously 
document lessons. As well, there are no definite structures within the pilot agencies 
assuming M&E roles of the program. As a result, obtaining organized data on the pilot 
program was a bit difficult for this evaluation team. 
 Limited Number of Pilot Woredas. The Program incorporated only two woredas from 
each pilot region, Oromiya and Somali. As results obtained from this pilot regions 
pointed out it was very difficult for regions to give due attention to the system being 
piloted only in two woredas while all the others were being under a different system 
which was there before the introduction of NIMS. This has also further led to reduction in 
the resource use efficiency of the Program by holding training only from small number of 
woredas, while more can be included by adding pilot woredas with marginal increase in 
the program cost. 
 Lack of clear program scale up and phase out strategy Though there were discussions 
on scaling up of NIMS Program to more regions and woredas, there is no clear strategy 
as to how that would be done. Moreover, there is no clear phase out strategy that would 
inform the relevant actors in terms of planning for sustainability of the program 
outcomes. 
4.5.2 Coordination and Collaboration among Stakeholders
The efficiency in coordination and collaboration of NIMS Program stakeholders is examined by 
DRMFSS with USFS, and DRMFSS with key federal ministries and regions. The findings of the 
evaluation with this respect are summarized as follows. 
DRMFSS with USFS: Better line of consistent coordination and coordination has been observed 
between DRMFSS and USFS in the implementation NIMS Program. The NIMS focal persons in
DRMFSS and the USFS liaison officers jointly prepare program plans and reports and present 
them to the NIMS Program Steering Committee and Technical Working Group. DRMFSS and 
regional master trainers are responsible to facilitate training while the USFS officer acts as a 
backstop. USFS also has been a facilitator for the successfully completed four round of study 
tours. However, lack of a dedicated office space for NIMS Program and USFS liaison officer in 
DRMFSS has affected the performance of the link. Usually the focal persons are busy with their 
regular work and for them it is difficult to perform what they intend to do for NIMS Program 
with NIMS liaison officer. 
DRMFSS with Federal Ministries: Federal ministries are part of the NIMS Steering Committee 
as an oversight body for the Program and members of SMAC group. These ministries were 
27
usually represented by their State Ministers in the bi-annual meetings organized to review and 
approve plans and accomplishments of the NIMS Program. Gradually, due to competing 
responsibilities, the State Ministers designated directors at the levels. These representatives have 
limited decision-making power in resource mobilization and strategic decisions in relation to 
DRM. This situation has definitely reduced the role of NIMS in influencing the coordination and 
collaboration role of senior government actors in the program implementation. 
DRMFSS – Pilot Regions and FEPRA: Pilot regions DRM actors (DPPC, DPPB and FEPRA) 
are part of the NIMS Steering Committee and NIMS TWG, both led by DRMFSS. The regional 
DRM actors present and share their cases during these two forums meetings. They also take from 
the federal level forums what they do at home when they return to regions and agencies. This is 
actually a periodic engagement between federal and regional actors. In the case of Somali region, 
senior DPPC officials do not usually come to the federal forums formed to manage NIMS 
program. 
Apart from this, the coordination and collaboration between DRMFSS and pilot regions has gone 
well with smooth communication mainly during provision of NIMS training and study tours. 
Especial the level of coordination and collaboration of DRMFSS with Somali DPPB, Oromiya 
DPPC and FEPRA in master training and cascade NIMS training went with satisfactory results. 
However, the regions are not receiving further follow-up and technical supports after the training 
events from DRMFSS. This loose coordination in monitoring and technical support is mainly 
due to the absence of full time staff for NIMS both at DRMFSS and in the pilot regions. 
Secondly, DRMFSS mainly focuses on rural disasters when compared to urban areas, and its 
coordination with FEPRA is very limited. 
28
5. Sustainability
The sustainability of NIMS is about the extent to which outcomes and impacts would continue 
after NIMS Program assistance has come to an end. Assessing sustainability involves evaluating 
the extent to which there is contextual and policy relevance, availability of sufficient capacity (in 
human, financial, and institutional terms) to maintain, manage and ensure development results in 
future by the different DRM stakeholders. 
The positive contributing factors for sustainability of NIMS: 
 DRM policy and institutional commitments of the GoE, 
 Contextual relevance of NIMS to Ethiopia, 
 Preparation of contextualized NIMS training manuals and operation guides, 
 Existence of training institute under FEPRA dedicated for human resources development, 
 Interests of UN agencies and NGOs to participate in NIMS initiatives (e.g. ICPs) and 
funding the establishment of EOCs, 
 Availability of resources from some funding agencies and GoE to operationalize EOCs. 
Challenges and areas improvement for NIMS sustainability: 
 Absence of institutions dedicated to DRM human resource capacity building at federal or 
regional level in relation with on the job trainings, 
 Limited budget allocation for institutional capacity building outside of training from 
NIMS program, 
 Absence of fulltime of part time staff responsible within the DRM system at federal and 
regional level to promote the integration of NIMS, 
 Lack of a clear scaling up and phase out strategy and commitment, 
 Existence of parallel DRM structures in Somali Region, 
 Use of non-standard/uniform terms and structures within DRM system at different levels, 
 Delayed approval and application of NIMS operation guides, and 
 Absence of a binding memorandum of understanding among MAC group members.
Key Lessons from the NIMS Pilot Program 
A range of lessons in the area of program implementation and management as well as policy 
processes have been documented by this evaluation in a way they are useful for ensuring 
sustainability and scaling up of NIMS. The key lessons are: 
 The NIMS study tours have played decisive roles in the institutionalization/integration of 
NIMS components into the DRM system.
 Early familiarization of NIMS to key decision makers can play an advocacy and 
enlightening role for the integration of NIMS into the DRM system at federal and 
regional level.
 The time overlap in the introduction of NIMS with DRM policy development process and 
institutional reform creates a higher propensity for acceptance and integration of NIMS 
components.
29
 The strong strategic and technical leadership responsibilities of the DRMFSS in the 
NIMS program have helped the country to explore different options for the integration of 
NIMS.
 Past experiences from DRMFSS and Oromiya DPPC indicate that there are possibilities 
of obtaining external resources for financing NIMS initiatives beyond the development of 
DRM system, trainings and visits. 
Some of these key sustainability factors are described below. 
DRM Policy Commitment 
One of the important fertile grounds for the sustainability of NIMS within the Ethiopia’s DRM is 
that the integration of NIMS components are supported by the newly ratified National Policy 
and Strategy on Disaster Risk Management. NIMS components can be considered as a best way 
for bringing most of the aspects of the new DRM policy such as comprehensive disaster risk 
management system, decentralized DRM, and multi-agency approach for mainstreaming DRM 
into social and crosscutting issues, mobilizing resources, and information management through 
EOC. However, the legislation, development of directives and institutionalization of the new 
policy is the cornerstone to sustain NIMS in the Ethiopia’s DRM system. 
NIMS has a potential to sustain in Addis Ababa, as the city has a goal to make itself safe from 
disasters by 2020. In recognition to this FEPRA has incorporated the NIMS principle of multi￾agency and multi-hazard approach in its new legislation and organizational structure. 
Institutional Commitment 
NIMS activities such as capacity building, contextualization, recommendations of study tours, 
bi-annual check-in results and establishment of NIMS structures (such as EOC) are incorporated 
in the DRMFSS, Oromiya DPPC, Somali DPPB and FEPRA annual operational plans. These are 
further divided into directorates, case teams and individual staff plans. Based on these plans, the 
reporting and performance evaluations at different levels are being carried out. This a good sign 
of the commitment of pilot regions and agencies to sustain NIMS Program.
Integration of NIMS Components into the DRM System 
Currently MAC, EOC and ICS are being integrated in the DRM system at federal level. These 
components have started to function. Multi-agency and multi-hazard approach in DRM is 
practiced through MAC structure and activation of ICPs for on scene management of incidences. 
The different DRM actors are participating in SMAC, TMAC and ICPs. There is also a strong 
desire among DRM actors including GoE at federal and regional level, UN agencies and NGOs 
to work through systems and structures functioning using NIMS principles. 
Contextual relevance of NIMS 
From the pilot program, NIMS has proven to be working under different DRM contexts 
including causes of disasters (Human made or natural), socio-economic settings (urban or rural), 
30
livelihood systems (farming or pastoral), and size and type of disaster. In this respect, all the 
pilot regions and agencies with different DRM contexts have shown great interest and 
commitment to instill NIMS approach in their systems. To sustain NIMS, the manuals for the 
adapted components have been contextualized to Ethiopia’s DRM system. 
Human Resource Capacity 
Having dedicated, skilled and trained human resource is vital for the sustainability of NIMS. In 
the country human resources fly from one job to the other and from office to office so frequently. 
Therefore, building dedication and skills as well as retaining staff in the DRM positions are 
required. So far, i.e. up until September 2013, only about 59 people from the pilot agencies have 
been trained on at least one of components of NIMS as master trainers. From these only less than 
a quarter (23.7%) attended the full set of NIMS trainings. This was achieved in three years time 
through the pilot program. This number of master trainees might be enough for the pilot regions 
and woredas. However, this could not be enough to scale up the program to new regions and 
woredas (even within the pilot regions). 
When it comes to institutionalization of HR capacity building, FEPRA has a training institute 
that can serve this purpose. Thus, FEPRA can use this facility and its current master trainers to 
produce new trained personnel and provide refresher training on NIMS as required with 
reasonable budget. NIMS can be sustainable and scaled up to urban areas if other cities and 
towns have been further familiarized to NIMS through a federal structure that has strong 
functional responsibility on urban development. 
Apart from this, federally or regionally there are no such facilities for HR capacity development 
on DRM, including NIMS. Thus, this will continue to be a challenge to sustain NIMS Program 
outcomes unless actions are taken by establishing new or strengthening existing DRM capacity 
building centers such as Bahir Dar University (BDU). 
The NIMS Program expected BDU to institutionalize NIMS in its curriculum. This action has 
not yet been taken by BDU as it is currently waiting for the coming curriculum review period. 
However, the University has shown the interest to include NIMS in the next cycle of curriculum 
review as an independent course or chapters of one or more courses. This will somehow 
guarantee future availability of DRM professional graduates having NIMS training. 
Scaling-up NIMS 
The scaling up of NIMS Program to other woredas of pilot and non-pilot regions is vital to 
sustain NIMS. Unless there is technical and budgetary support to expand and uniformly apply 
NIMS in the rest of the woredas and regions of the country, it will be less likely to continue to 
work with NIMS only in the pilot areas. 
Currently, NIMS Steering Committee and NIMS Technical working groups have the desire to 
scale-up NIMS in pilot and non-pilot regions and woredas. So far, the focus of the NIMS 
scaling-up strategy has been identified. However, the plan has not been approved by the GoE and 
USG. Thus, this will be a threat for the sustainability of NIMS. 
31
Financial resources 
NIMS program came with resources to build human capacity without having other funds 
required for other institutional capacity building needs. In the past, a few donor agencies and 
NGOs showed an interest to support the establishment of EOC as part NIMS components. 
Specifically, DRMFSS and Oromiya DPPC also allocated budget to run the operations of NIMS. 
This budget allocation by the GoE and donors indicates the desire for sustaining the system. 
Institutional Support 
In the past NIMS initiatives have been supported by focal persons having other fulltime 
responsibilities at federal and regional levels. Although the focal persons have technical 
competencies, they have no decision making role with regard to the program, including writing 
official letters to partners. These have limited their roles to regularly monitor the program, 
including providing supports to regions and woredas. In this way, it was difficult for them to 
make effective linkages about NIMS at different levels. 
Absence of binding memorandum of understanding among MAC group members 
The lead DRM actors which are members of MAC have no binding memorandum of understand 
and approved terms of reference for their operations. DRMFSS considers the legislation of the 
new NPS-DRM as a future tool for this. Even after the legislation of this policy there should be a 
clear terms of reference for MAC groups embedded in the MAC operation guide which is still 
expected to be approved by DRMFSS. 
Use of Non-Uniform Terms and DRM Structures 
In general NIMS is about standardized disaster response management. However, currently, DRM 
structures that are supposed to mainstream NIMS are being named differently at different level. 
For instance in Oromiya Region DPP committee is understood as SMAC while DRMTWG is 
referred as TMAC. The regional DPPC is not yet ready to replace the earlier names with the 
names that came with the introduction of NIMS. At DRMFSS level TMAC is considered and 
activated as a sub-set of DRMTWG. On top of this the draft federal MAC operation guide which 
is expedited to be widely applied has not mentioned about DRMTWG in its suggested DRM 
architecture. This would make effective communication and application of NIMS very difficult 
within DRM system. 
32
6. Summary of findings and conclusions
General 
The NIMS program has contributed to DRM capacity building through trainings and introduction 
an effective system for emergency response and management. There are positive improvements 
in the DRM system of the country both at federal and regional levels where NIMS pilot program 
reached. Now leaders of DRMFSS, Oromiya DPPC, Somali DPPB and FEPRA have developed 
a mindset through which they involve all other key stakeholders in the DRM system. 
Institutional collaborations on DRM issues have been improved due to the creation MAC group 
especially at federal, Oromiya and Addis Ababa levels. 
Integration and functionality of NIMS components 
MAC has been included in the existing DRM architecture at federal level with the participation 
of relevant ministries, UN agencies and NGOs, and the leadership role of DRMFSS. SMAC 
group members are State Ministers and executives of UN agencies and NGOs that have decision￾making roles over resources. The role of TMAC is fully assumed by the existing DRM Technical 
Working Group. TMAC is activated from DRMTWG during emergency times. SMAC made 
decisions on HRD three times in the past two years based on the reports organized by 
DRMTWG. The DRMFSS commitment to strengthen the linkage between SMAC and DRTWG 
the draft federal MAC operation guide has not mentioned the role of this group in the DRM 
system. 
In Oromiya Region, the SMAC and TMAC functions are incorporated in the existing DRM 
structures. With the lead role or DPPC, both groups are meeting on regular basis and discussing 
emergency issues. In Somali Region, it was not possible to establish MAC groups until the time 
frame covered by the evaluation, September 2013, due to the delay in the familiarization of 
NIMS among bureau heads and other senior officials, and unaddressed issue of the parallel DRM 
structures at regional level. 
Addis Ababa City has formed SMAC groups under the leadership role of FEPRA. The 
integration and functionality of NIMS was relatively straightforward because the NIMS 
introduction coincided with the restructuring and legislation of FEPRA. 
EOCs have been formed in DRMFSS and Oromiya DPPC. Both centers have started their 
situation update duties as a regular responsibility. The DRMFSS’s EOC named by EW-ECC has 
separate three rooms: situation update, coordination and decision-making. The Oromiya EOC 
has a single room, but people assuming different responsibilities during emergency time have 
been identified, trained on NIMS and informed. FEPRA has dedicated space for EOC and 
soliciting funding for its establishment. Apart from this lack of communication facilities and 
budget for telephone service are hindering a smooth flow of data from regions and woredas to 
ECO/ECC. 
In relation with ICS facilities, ICPs were formed to manage on scene emergency responses in 
different times over the last three years. These include 6 ICPs sites in Addis Ababa for Saudi 
33
migrant returnees, Jigjiga and Godey ICPS in Somali, and Yabelo and Koni ICPs in Oromiya. 
The IPCs have contributed for coordination of emergency responses, provision of psycho-social 
and conflict management supports and speedy delivery of emergency resources to affected 
population. It was also found to be instrumental for promoting transparency and accountability 
within the DRM system, and rapid flow of information between the emergency scene and 
DRMFSS. These in turn have contributed to effectively save lives and livelihoods of emergency 
affected population. 
However, as the system is at the infancy stage there is no appropriate coordination of information 
for decision-making through EOC facilities. In some cases members and commanders not trained 
on NIMS were assigned in the ICPs. Moreover, centralized resources management system and 
limited decision-making power of ICPs are found to be the limiting features of the current DRM 
system to fully exercise NIMS principles. 
The integration NIMS at woreda level is not yet started. There is no woreda follow-up and 
monitoring system at both federal and regional levels. After training, woreda staff raise about 
NIMS only if ICPs are activated in their areas by DRMFSS and regions to coordinate emergency 
responses. 
NIMS/DRM Standardization 
Over time regions and federal institutions have been using different terms and conceptual 
formulations for similar issues, topics or groups/structures involved in DRM. Even after the 
introduction of NIMS the same structures or committees are termed differently in different 
institutions and times. This practice indeed blurred the chance to exchange message and support 
one another in times of disaster and capacity building. Finally, it could cause confusion among 
DRM actors. This situation also negatively affects the sustainability and scalability of NIMS in 
the DRM system of Ethiopia. 
In the case of FEPRA, standardization of the DRM system in terms of classifying emergency 
response machineries and human resources is being practiced. This is helping the organization to 
ease communication during emergency responses and classify which resources to be used for 
what size and type of incidence. 
NIMS Program Design and Management 
NIMS Program initiated to build DRM capacity of Ethiopia is led by the GoE with its US 
partners (USAID and USFS). This has created ownership of the Ethiopian institutions at federal 
and regional levels, both on strategic and technical aspects of the program coordinated by NIMS 
steering committee and TWG. Nevertheless, lack of clear information on planned program 
activities and associated budget was indicated as challenge by management body from GoE’s 
side. 
The day-to-day activities of the NIMS Program were orchestrated mainly by USFS through its 
liaison officer from Ethiopia and focal persons assigned by DRMFSS, Oromiya Regional DPPC, 
Somali Regional DPPC and Addis Ababa City FEPRA. However, since the focal persons have a 
34
fulltime job on top of NIMS Program responsibilities, their limited availability and mandates 
restricted only to technical issues have affected the program performance. In addition, the M&E 
responsibilities of the program are not fully handled in the DRMFSS to track the records of work 
progress based on preset plans and indicators. 
The absence of UN agencies and NGOs, from NIMS Program management structures, while 
having decisive roles in SMAC and humanitarian actions in the country, is a missed opportunity. 
These institutions have important roles in the country’s DRM system. They could have played 
more roles by participating in the NIMS program management. 
Roles of the Study Tours 
The study tours organized by USFS were eye openers and motivators for the Ethiopian senior 
and middle-level officials and experts to develop a good perception and attitude towards NIMS 
program in the US and bring it to Ethiopia. The tours helped the GoE to identify and develop a 
strategy to integrate NIMS components in the country’s DRM system. 
At the end of every study tour, the participants prepared lessons and recommendations to 
enhance the DRM system in the country. Afterwards the NIMS management system, point 
persons and USFS exerted their efforts to implement and follow-up issues of recommendations. 
A total of 41 (five women) Ethiopians participated in the study tours from different line 
ministries, regional bureaus and agencies. A few of the participants have taken part in two three 
round of the tours. On the other hand, visa restrictions to some of the proposed study tour 
participants have created a dreadful sentiment, especially among NIMS Program implementers in 
Somali Region. Moreover, repeated participation of some people was indicated to reduce the 
involvement of key line ministries in the study tours. However, the development of criteria for 
selection study tour participants in the later stage has helped to promote fair distribution in the 
participation of officials and experts and agencies. 
NIMS Training 
NIMS training were organized for two levels of trainees: ToT for master trainers and cascade 
trainees. The first cohort of master trainers from DRMFSS, key line ministries (MOH, MOWIE), 
Oromiya DPPC, Somali DPPB, FEPRA, UN agencies and NGOs were trained by USFS. This 
group of master trainers in their turn trained second cohort of master trainers (Master trainers by 
master trainers exercises) with a technical support from USFS. These two training occasions and 
another forum formed from master trainers effectively worked in contextualizing NIMS as per 
the Ethiopian DRM system and local context scenarios. Based on this, the master trainees 
produced the Ethiopian version of MAC, EOC and ICS training manual with the support of 
USFS. The master trainers also cascaded NIMS training to pilot regions, staff and agencies, 
using the manuals prepared for this purpose. 
The trainings have has contributed in enhancing DRM capacity of pilot regions and agencies 
staff. The pilot regions and agencies have master trainers with a capacity to cascade NIMS 
training independently with minimum technical support. Pilot woreda staff that attended NIMS 
35
have also increased their understanding of the NIMS components and their places within the 
DRM system. However, there were limited a proactive engagement of woreda staff in applying 
the skills obtained from the trainings. In addition, there is not practice of checking the facilitation 
capacity of master trainers before they are allowed to train others. 
So far 59 and 601 people participate in the ToTs and cascade trainings respectively. From these 
only about 24% of the ToT participants have attended all the three trainings while about 19% of 
the cascade trainees did the same. 
Gender and NIMS Program 
The NIMS program has directly or indirectly promoted gender issues in DRM system. NIMS has 
created a command and management approach into the existing DRM system which helps to 
promote the accessibility of vulnerable groups, mainly women and children. On top of this, about 
6.8% of participants of NIMS training were women. Of course this could be a good start in a 
male dominated civil service system. 
Sustainability of NIMS 
The policy environment both at federal and regional levels are conducive to continue the DRM 
initiatives started by NIMS Program. The lessons from NIMS program have contributed for the 
preparation of the newly ratified DRM policy. The policy is a favorable ground to promote 
NIMS components in the country. In addition, the recent legislation of FEPRA perfectly goes 
with NIMS principles of multi-agency and multi-hazard approach. 
NIMS Pilot Program was able to create limited number of master trainers. BDU is still waiting 
time for the institutionalization of NIMS into its curriculum. Except FEPRA, other federal and 
regional DRM agencies have no training centers to incorporate NIMS and provide on the job 
training for government, humanitarian and private agencies. 
On top of human resources issue, delayed approval of NIMS operation guides, lack of clear 
scaling up and phase out strategies, use of non-standard terms and structures, absence of specific 
structure at federal and regional levels for coordinating NIMS program, and shortage of budget 
outside of training are the key challenges to sustain NIMS initiatives at all levels. 
NIMS Visibility 
Program visibilities can be vital to leave messages and memories in the minds of stakeholders in 
many programs like NIMS focusing on policy, systems and capacity building. NIM was visible 
in the past through familiarization workshops and a single brochure which was developed by 
Federal ECC. We believe NIMS sustainability to be reduced due to inadequate visibility efforts 
by the programs. 
36
Piloting in Somali Region 
Due to different reasons, the piloting program in Somali Region has not gone along with other 
regions and DRMFSS. Some of the reasons include late familiarization of NIMS to regional 
authorities, existence of two parallel humanitarian coordination structures and limited 
involvement of decision-makers from regions in the NIMS Program Steering Committee 
meetings as well as low participation of regional representatives in the US study tour. On the 
other hand, the region showed great interest towards NIMS Program and the staff who attended 
the training have appreciations to the applicability of the NIMS components in their region. 
37
7. Lessons Learned
 The NIMS study tours were sources of inspiration for senior leaders and experts to play 
decisive roles in the institutionalization/integration of NIMS components in the DRM 
system. 
 Early familiarization of NIMS to key decision makers can pay an advocacy role for 
integration of NIMS at federal and regional levels. Pilot agencies started NIMS 
promotion with familiarization events such as meetings and workshops, and exposure 
visits to existing outcomes of NIMS have found to be successful in bringing leadership 
commitment and integration of NIMS within the DRM system. 
 The time overlap in the introduction of NIMS with DRM policy development process and 
institutional reform creates a higher propensity for acceptance and integration of NIMS 
components in a new system. This can be explained by wider integration of NIMS 
components in FEPRA’s new legislation and organizational structure as well as in the 
newly ratified National Policy and Strategy on Disaster Response Management (NPS￾DRM). 
 The strong strategic and technical leadership responsibility of the DRMFSS in the NIMS 
program has helped the country to explore different options for the integration of NIMS, 
including in planning and monitoring of NIMS program activities, policy formulation, 
and institutional restructuring. 
 NIMs as a system is flexible to be contextualized and applied under wider context where 
there is decentralized DRM system. 
 Past experiences from DRMFSS and Oromiya DPPC indicate that there are possibilities 
of obtaining external resources by drawing partners into NIMS program for financing 
NIMS initiatives outside of DRM system development, trainings and visits. 
 Application NIMS lessons for classification and standardization of emergency resources 
can help for appropriate, coordinated and rapid responses to incidences. This has been 
seen from the standardized classification of fire fighter personnel and machineries in 
FEPRA. 
38
8. Recommendations
The evaluation has captured findings on effectiveness and sustainability of and lessons from 
NIMS pilot program. Based on this the following recommendations have been put forward for 
consideration by NIMS program and GoE for strengthening and scaling up the pilot initiative in 
more coordinated sustainable ways by taking NIMS principles and the GoE DRM policy 
framework. 
1. Integration and functionality of NIMS components within the DRM system 
1.1 In all the pilot regions and agencies all the components of NIMS have not been fully 
integrated and functional due to different circumstance as indicated in this 
evaluation. Thus, with the participation of senior officials at federal and regional 
levels and USFS possible solutions should draw for the key challenges based on the 
findings this studies and existing institutional realities. The outcomes of this process 
should to apply and integrate them in the next NIMS scaling up plan. 
1.2 NIMS components have not been proactively practiced in the pilot woredas for 
emergency planning and response management. The full integration of NIMS can be 
realized when the system is adopted and able function up to the lower DRM 
structures, at woreda level. The next phase of NIMS program should encourage and 
make woredas accountable to put NIMS components in to practice. 
1.3 Further standardization of DRM structures, terms and resources has to be promoted 
to enhance coordinated and effective communication and actions in the course of 
NIMS integration and during incidences. 
2. NIMS Program Design and Management 
2.1 Future NIMS Program should have a clear results framework that indicates expected 
outcomes, outputs and activities. This framework should have indicators, tagged 
resources and responsible actors to promote both effectiveness and accountability 
during the scaling up phase of the program. 
2.2 Steering committee and technical working group in the management of NIMS system 
can continue to be a good oversight structures. However, these cannot support day-to￾day activities of the program together with DRMFSS and regional focal persons as 
well as USFS liaison officer. Therefore, program coordinator and M&E personnel 
reporting to both DRMFS and USFS should be embedded in the EWRD of DRMFSS. 
Depending on budget availability, regions (both piloted and scale up) should have a 
fulltime or part time staff for making linkages from federal to region and from region 
to woredas. The regional staff can be embedded in the regional EOC mainly 
responsible for program M&E responsibility. 
2.3 UN agencies and NGOs should be part of the NIMS steering committee to speed-up 
the NIMS integration and functionality. Their participation in this forum can help 
bringing resource and knowledge gaps that cannot be supported by NIMS program. 
2.4 Different strategies should be followed by the NIMS Program to encourage the 
participation of state ministers in the NIMS steering committee meetings. For this 
reason the state ministers should be consulted for their absence from the meetings and 
possible encouraging and binging solutions must be sought. At the same time 
39
important NIMS program issues should be discussed during SMAC meetings in 
which these senior officials are participating. 
2.5 NIMS integration and functionality cannot be fully realized only through systems 
development and human resources capacity building of the current practice. The next 
phase of NIMS should take this into account and allocate budget or come up as with a 
strategy and activities for obtaining other matching funds required for the effective 
functionality of NIMS components. 
2.6 Alternatively, it is recommended to map complementarily of existing programs with 
NIMS program during the scaling up to match funds that would help the full 
integration of NIMS. 
2.7 EOCWeb was one of the important recommendations highlighted after one of the 
sturdy tours. The next phase of NIMS should come with resources and technical 
support to build EOCWeb with the components of capturing and sharing early 
warning information. This system should be able to expand the existing use of and 
access to early warning and climate information from international data suppliers and 
NMA. The EOCWeb should be planned in such a way that it can be linked to the 
forth coming Woreda Net system. On top of this the EOCWeb should help in storing 
and sharing institutional memories and lessons of NIMS program implementation. 
3. Study tours 
3.1 Study tours should be organized in other African or Asian countries that practice 
emergency response management system to overcome the problem of US visa 
restrictions. 
3.2 The program should further refine its selection criteria for study tour participants 
to reduce repeated visits of a few individuals and provide a chance for others like 
from key line ministries. 
3.3 The implementation of recommendations after every study tours in the future 
should be part of NIMS program as well as participant institutions responsibility 
that are reflected in their operational plans. The achievements towards these 
recommendations should be monitored by NIMS steering and technical 
committees.
4. NIMS Trainings 
4.1 Priority should be given to ToT trainings to have adequate number of master trainers 
who have attended all the NIMS trainings at regional level. 
4.2 Master trainers should be given a certificate of proof of their capacity to facilitate 
cascade trainings. For this reason the candidates should be given a test by DRMFSS 
and USFS after the ToT for all the NIMS trainings. The certificate can be qualifying 
the candidate for one or more NIMS trainings based on their test scores. 
5. Sustainability of NIMS 
5.1 NIMS operation guides should be further reviewed to align them with the existing 
DRM practices, structures and terms. For instance DRMTWG is playing decisive 
roles in DRMFSS and Oromiya DPPC. DRMFSS still determined to continue with 
this structure. However, the current version of MAC operation guide does not 
mention about it. 
40
5.2 Promoting visibility of NIMS program will have strong contribution for its 
effectiveness and sustainability. Mainly the next phase should develop, resource and 
apply NIMS Program visibility strategy to demonstrate values of NIMS components 
for the promotion of multi-agency and multi-hazard approach through a decentralized 
DRM system as per the new DRM policy. Therefore, visibility has to be one of the 
next key activities of NIMS. 
6. Recommendations to DRMFSS and regions 
6.1 Clearly, DRMFSS is working hard to legislate the NPS-DRM. However, we would 
like stress the advantage of finalizing legislation and start putting the NPS-DRM 
while NIMS Program is scaled up into other regions and woredas. 
6.2 Directorates, processes and case teams and staff members of DRMFSS have started 
to put NIMS components and related activities in their operational plans and reports. 
To ensure sustainability NIMS these structures and staff members should have 
incorporated such tasks in their regular terms of references and job description. 
6.3 EOCs, specially, at federal level should have professional staff that can support in 
early warning and emergency response including food market information system, 
conflict management and livestock. 
6.4 Somali Region is a little behind in terms of NIMS integration into regional DRM 
system. Before putting further time and resources, the region should harmonize the 
DRM arrangement in the region, based on the legislative power of the regional 
DPPB. 
6.5 Continues human resource capacity development through on the job trainings is vital 
to effectively undertake DRM activities including the application of NIMS 
components. In the latter case, FEPRA has a training institute. DRMFSS requires 
having a facility that can lead DRM system and HR capacity building and provide 
supports for federal, regional and private agencies in DRM. Alternatively, national 
universities or training institutions should assume this role with a strong support from 
the GoE. 
6.6 Bahir Dar University should be supported and encouraged by DRMFSS and USFS to 
incorporate NIMS in its curriculum in the near future. 
6.7 Alongside the formation of EOC, FEPRA should work on establishing unified ICPs 
during emergency situations like the case of Merkato where fire happened in 2013. 
41
42
Annexes
Annex 1: Evaluation Protocols 
Protocol 1: KI with State Minster of DRMFSS 
Federal Level 
Informants: State Minister of DRMFSS 
General 
1) What are the improvements in DRM system and capacity in preparedness and emergency relief 
provision of the GoE at federal and regional levels? 
2) What are the key factors contributed for these improvements? 
3) What was the role of NIMS project in this respect? 
4) Have the NIMS pilots works? At what level? 
5) What skills and knowledge has been gained from the study tours to further enhance Ethiopian 
DRM system? Which study tour was better in gaining valuable DRM experience to you and 
other participants from Federal level? 
6) How was the collaboration of DRMFSS with USFS in the project implementation? What would 
have been differently? 
7) What are the positive and negative lessons learned from NIMS to be drawn up on to inform 
future DRM approach? 
8) Would the outcomes and impacts of NIMS sustain after the NIMS project? What are the signs 
and commitments from GoE’s side? 
Protocol 2: Federal MAC Strategic (KII) 
Federal Level 
Informants: People from DRMFSS (EWRD and EW-ECC) 
General 
1) What are the improvements in DRM system and capacity in preparedness and emergency relief 
provision of the GoE at regional levels? 
2) What are the key factors contributed for this improvements? 
43
3) What was the role of NIMS project in this respect? 
Performance Questions 
4) How (and which) NIMS components (MAC strategic, EOC, ICS, and C-EPRP) coherently 
interface with the existing DRM structures, NGO and GO sectoral task forces and DRM working 
group in the region? 
5) How DRMFSS is coordinating the different activities and stakeholders within MAC groups? 
6) At what levels strategic and technical MAC working groups including EOC and ICPs 
established? At what level and where are they functional or less functional? Why? 
7) What skills and knowledge has been gained from the study tours to further enhance Ethiopian 
DRM system? Which study tour was better in gaining valuable DRM experience to you and 
other participants from Federal level? 
8) How was the study participants identified from the deferent government offices during the 
different cycles of the tours? 
9) What overall views do you have on the achievements of NIMS project vis-a-vis the project 
objectives and goals? 
10) Would the outcomes and impacts of NIMS sustain after the NIMS project? What are the signs 
and commitments from GoE’s side? 
Project Design and Management 
11) How federal and regional level structures (MoA, DRMFSS, EWRD, DPPC/B) and USFS 
effectively cooperated and coordinated to harmoniously execute NIMS project components? 
What aspect of the project went well? What aspects the project went poor? (Relate these 
questions with NIMS project implementation and management system.) 
12) How DRMFSS, DPPC/B and USFS are effectively and harmoniously cooperating and 
coordinating DRM efforts in the pilot region? (take the concept of multi-hazard in to this 
questions)
Impacts 
13) What are the key impacts of the NIMS project in improving the quality and effectiveness of the 
regional DRM system in the following areas: 
a. Proactive disaster preparedness and response plan 
44
b. Application standard mechanisms in prioritization of critical resources and information 
coordination 
c. Focus given to multi-hazard 
d. Improved emergency responses 
e. Decentralized decision making 
f. Resource mobilization 
g. Information flow (vertical and horizontal) 
h. Improved gender integration 
Sustainability
14) What evidences suggest NIMS would sustain in the regional DRM system? (From government, 
donors and CSO perspectives) ? What is there any concrete plan and commitment to scale up 
NIMS initiative throughout the region? (Budget, institutional structure, HR) 
Lessons learned 
15) What are the positive and negative lessons learned from NIMS to be drawn up on to inform 
future DRM approach? 
16) Are there any lessons documented for future use on NIMS? Please share them with us. 
Protocol 3: Regional MAC Strategic (KII) 
Regional Level 
Informants: 
Oromia/Somali: DPPC Commissioner/Bureau Head, V/DPPC Commissioner/ Deputy Bureau 
Head and EWR Process Owner 
1. What are the improvements in DRM system and capacity in preparedness and emergency relief 
provision of the GoE at regional levels? 
2. What are the key factors contributed for this improvements? 
3. What was the role of NIMS project in this respect? 
Performance Questions 
4) How DPPC/B is coordinating the different activities and stakeholders within MAC groups? 
5) What overall views do you have on the achievements of NIMS project vis-a-vis the project 
objectives and goals? 
45
6) At what levels strategic and technical MAC working groups including EOC and ICPs 
established? At what level and where are they functional or less functional? Why? 
Project Design and Management 
7) How DPPC/B coordinated with NIMS project, and DRMFSS? How do you judge the 
effectiveness of this coordination in planning, implementation and monitoring of NIMS project? 
What would have been differently? 
8) In which woredas NIMS project was piloted including training provisioning and establishment of 
NIMS structure? Which woredas were able to effectively integrate NIMS in their DRM system? 
Which were not? Why? 
Impacts 
9) What are the key impacts of the NIMS project in improving the quality and effectiveness of the 
regional DRM system in the following areas: 
a. Proactive disaster preparedness and response plan 
b. Application standard mechanisms in prioritization of critical resources and information 
coordination 
c. Focus given to multi-hazard 
d. Improved emergency responses 
e. Decentralized decision making 
f. Resource mobilization 
g. Information flow (vertical and horizontal) 
h. Improved gender integration 
Sustainability
10) What evidences suggest NIMS would sustain in the regional DRM system? (from government, 
donors and CSO perspectives) ? 
11) What are the concrete plans and commitments to scale up NIMS initiative throughout the region? 
(Budget, institutional structure, HR) 
Lessons learned 
12) What are the positive and negative lessons learned from NIMS to be drawn up on to inform 
future DRM approach? 
13) Are there any lessons documented for future use on NIMS? Please share them with us. 
46
Protocol 4: Addis Ababa City Administration MAC Strategic (KIIs) 
Informants: City Administration and AA FEPRA 
1) What are the improvements in DRM system and capacity in preparedness and emergency 
response of the FEPRA? 
2) What are the key factors contributed for this improvements? 
3) What was the role of NIMS project in this respect? 
Performance Questions 
4) Would you share us what you benefited from the training in relation to enhancing your urban 
DM? 
5) What overall views do you have on the achievements of NIMS project vis-a-vis the project 
objectives and goals? 
Project Management 
6) How federal and regional level and USFS effectively cooperated and coordinated to 
harmoniously execute NIMS project components? 
7) What aspect of the project went well in the City? What aspects the project went poor? (Relate 
these questions with NIMS project implementation and management system.) 
8) What do you think about what was done by USFS with you and other stakeholders to enahnce 
urban DM? 
Impacts 
9) What are the key impacts of the NIMS project in improving the quality and effectiveness of the 
regional DRM system in the following areas: 
a. Proactive disaster preparedness and response plan 
b. Application of standard mechanisms in prioritization of critical resources and information 
coordination 
c. Focus given to multi-hazard 
d. Improved emergency responses 
e. Decentralized decision making 
f. Resource mobilization 
g. Information flow (vertical and horizontal) 
h. Improved gender integration 
47
Sustainability 
10) What evidences suggest NIMS would sustain in the Administration and FEPRA DRM system? 
(From government, donors and CSO perspectives)? 
11) Is there any concrete plan and commitment to scale up NIMS initiative throughout the City 
Administration and FEPRA? (Budget, institutional structure, HR) 
Lessons learned 
12) What are the positive and negative lessons learned from NIMS to be drawn up on to inform 
future DRM approach? 
13) Are there any lessons documented for future use or scale up to other cities on NIMS? 
Protocol 5: (FGD) with study tour participants 
1) In how many study tours have you participated? 
2) To what extent the study tours conducted in two rounds helped in transferring NIMS skills to the 
regional DRM at strategic and technical level? What aspects of the DRM operations enhanced 
after the study tours? 
3) To what extent the recommendations from the study tours followed-up and implemented on the 
ground? 
4) Which recommendations were implemented and which were not and at what level? Why? 
5) Was the study necessary and important? How? 
6) In the study tours you participated which one was more educative and enlighten? 
7) Was the skill and knowledge provided in the different study tours you participated in varied in 
their nature? 
Protocol 6: Master Trainers (KII) at DRMFSS and USFS level 
1 To what level do you feel that the the NIMS training including the training manuals, 
content covered, duration, approach, and language of the NIMS training were to the 
needs and standard of the trainers and target offices? 
48
2 How were the effectiveness cascaded the trainings to grass roots level? (Discuss within 
the context or the readion) 
3 What were the criteria by which NIMS master trainees selected? 
4 What are the mechanisms in place to monitor whether or not the trainings are cascaded to 
the level required by the project to the woredas level DRM implementers? 
5 To what level the training helped promote NIMS in the regional and local Incident 
management efforts? 
6 What opportunities you observe for the NIMS project with regard to the master trainees 
for it to be cascaded to the grass roots level? 
7 What were the constraints you face (problems of whatever kind) that hampered you not to 
properly deliver NIMS components to Master trainees? 
8 Do you feel that this training approach should sustain in DRM capacity building efforts in 
the future? 
Protocol 7: FGD for NIMS training participants at woreda level 
1. In how many rounds of NIMS trainings have you participated? Would you please 
describe? 
2. What was the criterion for you to be selected for the NIMS training? Do you think you 
are the appropriate person for the NIMS training? Why? 
3. How adequate were the trainings to operationalize ICPs, EOC, and C-EPRP (duration, 
capacity of the trainers? Do you need extra refresher training to effectively implement 
NIMS? 
4. How relevant were the quality, adequacy and appropriateness of the NIMS manuals 
(relevance to the operational context, presentation style, language, training setting, 
approach) 
5. What changes has the training brought on your awareness and skill on incident 
management. 
6. What are the positive and negative lessons learned from NIMS to be drawn up on to 
inform future DRM approach? 
49
7. What do you think is the contribution of NIMS project to the woreda in its incident management 
efforts?
Protocol 8: Post training evaluation for training participants at woreda level 
Please rate by ticking the cell your level of agreement as per the rating scale below (Likert).
Behaviors’ evaluation to measure the extent to which the trainees applied the 
learning. 1 stands for the very low and 5 the very high rate.
Rate
1 2 3 4 5
1) Training participants were selected as per the established criteria
2) The trainees have the required level of skill and awareness of NIMS to use it in 
times of incident management
3) Trainees performance at work place in incident management has improved 
4) There is better coordination, collaboration and partnership of woredas level 
DRM structures with humanitarian agencies working in incident management 
after NIMS
5) Woredas level LCPs, EOC and C-EPRP structures are established with clearly 
stated duties and responsibilities to carry out
6) Woredas level LCPs, EOC and C-EPRP structures are properly functioning to 
the desired level
7) The trainings conducted were adequate enough to operationalize ICPs, 
EOC, and C-EPRP (duration, capacity of the trainers)?
8) The quality and Relevance of Trainings of NIMS provided (in terms of 
Topics, selection of participants from relevant positions, language, 
approach, and manuals prepared) was to the required level.
General remark: What part of the training has been applied at the job place? 
What have improved in your work after the training by on the skills you reveived? 
1 
Strongly 
Disagree
2 
Disagree
3 Neither 
Disagree 
or Agree
4 Agree
5 
Strongly 
Agree
50
Protocol 9: KII with UNOCHA, WFP and NGOs 
1. What are the improvements in DRM system and capacity in preparedness planning and 
emergency response of the GoE at regional/FEPRA levels? 
2. What are the key factors contributed for this improvements? 
3. What was the role of NIMS project in this respect? 
4. What do you know about NIMS project? 
5. Has your organization been involved in any of NIMS structures? If yes what was your 
involvement in the NIMS components and at what level (federal/regional/zonal/woreda)? 
Lessons learned 
6. What are the positive and negative lessons learned from NIMS to be drawn up on to inform 
future DRM approach? 
Protocol 10: Bahir Dar University - Disaster Risk Management and 
Sustainable Development Department (DRMSD) 
1) Please tell us some the background about BDU-DRMSD and its current status and 
contributions in the Federal and regions DRM system? 
2) What aspects or NIMS institutionalized in the BDU-DRMSD curriculum? 
3) What was the contribution of NIMS project to capacitate BDU-DRMSD in order to 
strengthen and sustain institutionalization of NIMS curriculum? (Number staff obtained 
long/short term trainings, technology transfer, logistics support, etc) 
4) What values have been added to the Ethiopian DRM system due to the 
institutionalization of NIMS in to the BDU-DRMSD curriculum? 
5) To what extent BDU-DRMSD is effectively coordination with DRM HR (long and short 
term) development in collaboration with DRMFSS and NIMS groups? 
6) How effective was of NIMS project design, management and collaboration to 
institutionalize NIMS in the BDU-DRMSD curriculum? 
7) How is the trend and commitment of BDU to sustain DRMSD masters/graduate training 
program. 
51
Key References 
Disaster Risk Management and Food Security Sector (DRMFSS). (September 2012). Federal 
Level Operational Guide for Multi-Agency Coordination. Addis Ababa: Federal Democratic 
Republic of Ethiopia Ministry of Agriculture. Addis Ababa. 
Disaster Risk Management and Food Security Sector (DRMFSS). (December 2012). Emergency 
Operation Centre (EOC) Operational Guide. Addis Ababa: Federal Democratic Republic of 
Ethiopia Ministry of Agriculture. Addis Ababa. 
Disaster Risk Management and Food Security Sector (DRMFSS) (December 2013). Draft ICS 
Operational Guide. Addis Ababa: Federal Democratic Republic of Ethiopia Ministry of 
Agriculture. Addis Ababa. 
Addis Ababa City Government Fire and Emergency Prevention and Rescue Agency (FEPRA) 
(March, 2013). City Level Operational Guide for Multi-Agency Coordination System. 
Addis Ababa. 
Addis Ababa City Government Fire and Emergency Prevention and Rescue Agency (FEPRA) 
(October 2013). Draft ICS Operational Guide . Addis Ababa.
Federal Democratic Repoblis of Ethiopia. (July 2013). National Policy and Strategy on 
Disaster Risk Management. Addis Ababa. 
Disaster Risk Management and Food Security Sector Partnership of GOE with US government 
for Capacity Building, Report of the 3rd Study Tour Program to the USA, August 18, 2011. 
Addis Ababa.