Natural Disasters Report 2015

Natural DisasterS REPORT
2015
1
+ THINKING...
FOR A CHANGE
We would like to thank all those that participated in these discussions
and those that took endless hours to spend with us as we explored
the parameters of human rights in natural disaster within the High
River context. Special thank you to Samaritans Purse, Alberta Health
Services, Hearts and Minds, World Renew, Hull Services, Heritage
Inn, and Municipal Affairs for bringing your perspectives forward and
providing us guidance and input as we went along this journey.
Thank You.
Natural DisasterS REPORT

2015
Authors Renee Vaugeois &Tatiana Wugalter
TABLE OF CONTENTS
Executive Summary.................................................................................................... 01
Lessons Learned and Recommendations Moving Forward........................................ 04
Priority Recommendations for Alberta................................................................. 05

1 | Build a Network of Advocates.................................................................. 05

2 | Build a Safe Space for Remedy of Disputes and Concerns....................... 06

3 | Support the Recovery of Key Documents................................................. 07

4 | Multisectoral Collaboration and Communication..................................... 07

5 | Caps Placed on Hotel Fees in the Immediate Response........................... 08

6 | Encourage Donor Support to Local Community Agencies....................... 09
7 | Special Attention to Disenfranchised and Marginalized........................... 09
Additional Lessons Learned................................................................................. 10

8 | Address the Roots Before the Crisis Hits.................................................. 10

9 | When Responding, Think Long Term........................................................ 11

10 | Empower Voice....................................................................................... 11

11 | Prioritize the Health and Well-Being of Children & Youth...................... 12

12 | Foster Trust and Transparency Among Stakeholders.............................. 13

13 |Training and Preparation for First Responders........................................ 13

14 | Engage in First Response Triage............................................................. 14

15 | Ensure Supports and Self-care for First and Secondary Responders...... 15

16 | Empower Secondary Actors to Support Secondary Trauma................... 15

17 | Critical Communication is Essential........................................................ 15

18 | Promote Financial Security and Reduce Stress,

Especially in Relation to Government Funding....................................... 17

19 | Develop Comprehensive Disaster Management Plans........................... 18
Stages of Recovery..................................................................................................... 20
Framework for Dialogue............................................................................................ 30
Human Rights Protections in High River.................................................................... 32
Call To Action............................................................................................................. 38
NATURAL DISASTERS REPORT 2015 | TABLE OF CONTENTS
Protecting
Human Rights
in
Natural Disasters:
Considerations
for Alberta
In light of the recent adoption of the Sendai Framework for Disaster and Risk Reduction 2015-2030
at the UN World Conference in Sendai, Japan, the John Humphrey Centre for Peace and Human
Rights and Thinking... for a Change, are delighted to present this report to the people of Alberta.
The Sendai Framework addresses the critical need to respond to disaster risk reduction through
a people-centred lens and address the issues surrounding poverty in order to build longer term
sustainable resilience in communities. While this makes incredible strides over the Hyogo Framework
Agreement to embed human rights as a framework in responding to disaster, the challenge is
upon us to now make a commitment of putting people first and begin to operationalize the Sendai
Framework in our institutions and communities.
For over a year, the John Humphrey Centre, with the support of Thinking... for a Change, has spent
time learning about and exploring the 2013 floods in Southern Alberta to gain an understanding
of the protection and provision of human rights and participation of marginalized communities in
disaster response and recovery. Our aim was to assess and identify the common protections that all
people deserve in the event of natural disaster and determine the gaps in Alberta in fulfilling these
protections.
To strengthen our understanding of the many complex impacts of natural disasters, we focused our
time in High River, a town which was hit particularly hard by the devastating Southern Alberta floods.
The experience in High River was unprecedented in terms of the scale, impact and cost of the flood.
All stakeholders involved were under incredible strain to respond to the mass scale of the disaster
and did so in incredible ways. The community of High River was exemplary in their response. There
are however always lessons to be learned in these events and we hope to provide some concrete
ideas of what Albertans and Canadians need to be considering in our future responses to disaster.
The information we have gathered was taken from diverse community members from a variety of
backgrounds and is summarized below. This summary provides an overview of the range of perspectives we heard in High River and we have sought to present them in the best way possible; highlighting the challenges that were raised by the diverse voices engaged. The John Humphrey Centre
understands that some may disagree with the perspectives brought forward but we have sought to
maintain the authenticity of voice and foster constructive discussion. We believe that in all voices,
there are lessons to be learned, and that all voices deserve to be heard.
We would like to thank all those that participated in these discussions and those that took endless
hours to spend with us as we explored the parameters of human rights in natural disaster within the
NATURAL DISASTERS REPORT 2015 | INTRODUCTION
01
High River context. Special thank you to Samaritans Purse, Alberta Health Services, Hearts and
Minds, World Renew, Hull Services, Heritage Inn, and Municipal Affairs for bringing your perspectives forward and providing us guidance and input as we went along this journey. The process was
not easy but we hope what we present below can create a strengthened discussion within Alberta,
and Canada, about how we can embrace the principles of the Sendai Framework collaboratively
and in trust.
The Larger Context of Disaster in Canada

According to the Canadian Disaster Database, as of 2015 there have been 472 meteorologicalhydrological and geological disasters in Canada since the institutionalization of the Charter of Rights
and Freedoms in 1982. These disasters vary widely in regards to social, economic and environmental
impact with the worst disasters being the 2013 Southern Alberta floods, 2011 Slave Lake Fire,
1998 Quebec, Ontario and New Brunswick Icestorms, 1997 Manitoba Red River Flood, and 1996
Quebec Saguenay Flood. The frequency of disasters and the costs of disaster are increasing and it is
something that we as a country need to grapple with in a constructive manner.
Emergency management in Canada is a shared responsibility between all levels of federal, provincial
and territorial (FPT) government. Emergency management legislation exists at all levels of government, outlining the complementary roles and responsibilities for each jurisdiction. Over the past
several years, there has been a shift both nationally and internationally from disaster response to
risk reduction, prevention and mitigation. Mitigation efforts now form the foundation of disaster/
emergency management at the FPT government level in Canada. While this is an important aspect
of disaster management, it shifts focus away from ensuring that, when disasters do occur, the longterm emotional, mental, financial and social impacts are considered and rights-based approaches are
implemented to ensure that the comprehensive human rights of those affected are protected. There
is a tendency to focus on infrastructure mitigation approaches at the expense of human capital and
resiliency.1
International Standards for Disaster Management

Many international disaster management standards and initiatives are focused on developing
countries, where political and financial systems often do not have a strong capacity to effectively
mitigate or respond to disasters. However, there are a number of documents which outline mitigation measures and human rights protections that can be implemented universally, including Human
Rights and Natural Disasters: Operational Guidelines and Field Manual on Human Rights Protection
in Situations of Natural Disaster.2 This document, created by the Inter-Agency Standing Committee
of the United Nations Office for the Coordination of Humanitarian Affairs and the Brookings-Bern
Project on Internal Displacement, stresses the importance of upholding human rights in the event of
natural disasters and provides practical and comprehensive guidelines on how stakeholders may do
so in a number of critical areas. The document was used by the John Humphrey Centre to create a
community assessment survey for High River and was used as a guiding tool to frame our discussions
in the project.
As noted previously, there is been a major shift at the international level towards disaster risk
reduction and mitigation. The Hyogo Framework for Action resulted from the 2005 World Disaster
Reduction Conference and was endorsed by the UN General Assembly. It placed emphasis on
proactive risk mitigation rather than reactive disaster management in order to reduce vulnerabilities
and build resilient communities and countries. The overarching aim of this approach is to prevent
1
More information on natural disasters in Canada and disaster legislation can be found in the John Humphrey Centres
Summary of Findings on Natural Disasters. Contact us at info@jhcentre.org to request a copy.
2
http://www.brookings.edu/~/media/research/files/reports/2008/5/spring-natural-disasters/spring_natural_disasters.pdf
NATURAL DISASTERS REPORT 2015 | INTRODUCTION
02
prepared
Unfortunately, it is beyond our power to prevent every
disaster that might occur somewhere in the world. But
we can do something to alleviate human suffering,
to help people at risk in such a way that they are
prepared for future disasters.. This strategy also has a
positive effect on costs: by investing in prevention, we
can reduce the expenditure on emergency aid and
reconstruction by a factor of between five and ten.
Princess Margriet of the Netherlands
investing in prevention
disasters from occurring, and if this is not feasible, to heavily reduce the detrimental impact they
may have in order to protect lives, infrastructure and economies. With the adoption of the Sendai
Framework, the international community is heading in the right direction. It is up to us at the local
level to shift our approach.
Lessons Learned and Recommendations

Moving Forward
The John Humphrey Centre spent time with a core team of individuals consistently meeting to
discuss the progress of recovery but also to identify key lessons that could be learned from the High
River Flood. This community excelled in many ways in responding to the flood but like any disaster,
there are always lessons to be taken away and opportunities for growth. While this is not an exhaustive list, we believe that these recommendations should be seriously considered at the provincial
level, as well as national, in our efforts towards disaster risk reduction.
Snapshot of Recommendations
Priority Recommendations for Alberta
1 | Build a Network of Advocates

2 | Build a Safe Space for Remedy of Disputes and Concerns

3 | Support the Recovery of Key Documents

4 | Multisectoral Collaboration and Communication

5 | Caps Placed on Hotel Fees in the Immediate Response

6 | Encourage Donor Support to Local Community Agencies

7 | Special Attention to Disenfranchised and Marginalized

Additional Lessons Learned

8 | Address the Roots Before the Crisis Hits

9 | When Responding, Think Long Term

10 | Empower Voice

11 | Prioritize the Health and Well-Being of Children & Youth

12 | Foster Trust and Transparency Among Stakeholders

13 | Training and Preparation for First Responders

14 | Engage in First Response Triage

15 | Ensure Supports and Self-care for First and Secondary Responders

16 | Empower Secondary Actors to Support Secondary Trauma

17 |Critical Communication is Essential

18 | Promote Financial Security and Reduce Stress,

Especially in Relation to Government Funding

19 | Develop Comprehensive Disaster Management Plans
NATURAL DISASTERS REPORT 2015 | LESSONS LEARNED AND RECOMMENDATIONS MOVING FORWARD
04
Priority recommendations
for alberta
RECOMMENDATION One:
Build a Network of Advocates
In the event of disaster, it is essential to have a network of advocates available to support and to
walk alongside disaster victims for processes such as rebuilding, contracts, accessing DRP etc. This
will ensure that marginalized communities are supported and to reduce stress on individuals and
feelings of isolation.
People must be on the ground going out to people immediately after a disaster. This can serve a
two fold function, to connect people appropriately to where they need to go thus fostering more
effective communication, but also to support them if they are facing major barriers, for example, in
terms of social supports, insurance help, navigation support, funding, and building contracts. This
team is part of the initial immediate education that needs to happen in a community but can also
serve as a pulse to determine and identify community needs immediately. With an effective feedback
mechanism into the larger recovery efforts, this will result in the prevention of a lot of barriers for
people.
There is a need to ensure that business ethics are applied in response and recovery. Elements to
consider include:
Provide readily accessible checklists and infographics which outline what to do if your home
has been damaged and how to find a reputable and affordable contractor;
Support the creation of an association of government approved contractors and builders;
Support the creation of a committed watchdog team which can monitor quality control, review
contracts prior to signing and be available for guidance. These individuals can also assist with
ticketing, licensing permits and inspections immediately post-disaster; and,
Allow advocates to support community members in the rebuilding process.
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RECOMMENDATION Two:
Build a Safe Space for Remedy of
Disputes and Concerns
It is essential that community members, if they feel they are facing unnecessary barriers, are being
discriminated against, are being treated wrongfully by a private actor or the public service, have a
place to go to remedy their concerns in a constructive manner.
In terms of contractors and builders, a process of inspection and support to rebuilds for individuals
(with an emphasis on seniors and women) is needed to avoid unnecessary overpayments and losses.
There also needs to be clear information provided to people immediately in the disaster to understand what they need to know and think about as homeowners. Education in advance could also
be a good mitigation strategy to equip people with the understanding of what to do when disaster
strikes and what their rights are as consumers.
In the event of conflict or concerns by community members, there should be a remediation space set
up to address and respond to complaints as quickly as possible. This ultimately builds greater trust
for the community, reduces stress among community members as well as staff people of the public
service and private agencies, and will support longer term cost effectiveness in responses. It was
stressed in High River that there needs to be some way for people on ground to provide input into
gaps and a need for a direct line to government so that the gaps can be addressed immediately and
appropriately.
In the event of conflict or concerns by community

members, there should be a remediation space set
up to address and respond to complaints as quickly
as possible.
06
RECOMMENDATION three:
Support the Recovery of Key Documents
Government agencies should set up in the community for a period of time to enable people to
recover their government documents and identification such as passports, health cards, drivers
licenses. If there is a large immigrant/refugee/temporary foreign worker population from one
country, it should be encouraged
PHOTO CREDIT | Sergei Zolkin
that the embassy/consulate visit the
https://www.unsplash.com
community to provide these documents as well.
Groups who are marginalized and

vulnerable prior to disasters are
likely to be severely affected and
further marginalized.
RECOMMENDATION Four:
Multisectoral collaboration and communication
To ensure long-term recovery, collaboration and communication between the number of sectors
affected by the disaster, build a multi-sectoral hub, based on a culture of care, which includes, but is
not limited to, the following persons:
Aboriginal liaison
Immigration/cultural broker
Communications specialist
Federal and Provincial Disaster Relief Program Administrators (e.g. DRP administrator)
Fund developer/connector
Alberta Health Services staff focused on mental health
Alberta Health Services staff focused on environmental protection
Contractor/tradesperson
External/neutral dialogue facilitator
Municipal representative
Establishing clear lines of communication, lines of authority and respect for one another will result
in financially effective approaches that meet the needs of those most marginalized in the community
(homeless, age, disability). Having one point person in charge for quick decisions is essential and
there has to be agreement from day one who is in charge or in the lead.
07
A longer term recovery committee that is multidisciplinary different levels of government,

NGOS, academia, community individuals should be set up and connected to this recovery group to
develop, implement and monitor a respective strategy that meets the long term needs of
the community.
Having one point person in charge

for quick decisions is essential and
there has to be agreement from day
one who is in charge or in the lead.
RECOMMENDATION FIVE:
caps placed on hotel fees in the immediate response
At the time of response, a demand for caps and empathy among hotels and accommodations to
support evacuation should be demanded by local and provincial authorities. In High River, the
costs of hotel rooms in surrounding areas immediately increased as a result of the flood. At
times like these, hotels and accommodations should be encouraged to be more supportive and
cap their fees or even offer a reduction.
08
RECOMMENDATION SIX:
encourage donor support to
local community agencies
In the event of disaster, the natural tendency is to push people to donate to large external agencies
to respond to the crisis and support recovery. This includes for example the Red Cross. All levels of
government and the media should make efforts to encourage good will towards local agencies who
face increasing strain in disaster and are the ones who not only know the community and hold the
trust of the community; they are the agencies that are there supporting immediate needs with often
already strained financial resources.
RECOMMENDATION SEVEN:
special attention to disenfranchised
and marginalized
In preparing for natural disaster, municipalities and emergency responders need to develop clear
evacuation strategies and outreach to agencies working with those that are homeless, live with
disability, and those that are seniors; particularly with an emphasis on those living in poverty.
We have noticed that in discussions around natural disaster response and recovery, the focus seems
to centre on property owners and there may be oversight in the unique needs that these groups
face. These groups do not necessarily have the capacity to evacuate on their own. In High River we
saw great response to those that were seniors and living with disability.
Those that are homeless face a very unique situation in terms of evacuation and response. In meetings with the City of Calgary, the floods of 2013 were a turning point for the worse in terms of
poverty and that things have never recovered. We need to remember that in recovery, not everyone
has the privilege of insurance to cover off the property they lost. Those that are most affected are
those that are the most marginalized and disenfranchised. Their losses are hard to measure.
We would like to stress that all disaster recovery and response needs to centre these groups as
a priority.
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ADDITIONAL LESSONS LEARNED

RECOMMENDATION EIGHT:
Address the Roots before the Crisis Hits
In the event of a natural disaster, those who are marginalized in a community or who are of lower
socio-economic status are those that can suffer the greatest. Prior to the flood, High River was in
need of more affordable housing and the flood accentuated this problem. The community needs
increased access to affordable housing to help those of lower economic status be able to recover
rather than leave the community. This speaks to the need for communities to make social supports
and housing a priority without regard to natural disaster.
A more resilient community is one in which the necessary support systems exist prior to a disaster
and in which all individuals have their basic needs met. A key goal in all disaster recovery or mitigation planning should be to ensure that at minimum there is same or greater level of affordable and
subsidized housing available for all demographic needs following a disaster. As highlighted in the
Sendai Framework, more dedicated action needs to be focused on tackling underlying disaster risk
drivers, such as the consequences of poverty and inequality and this needs to happen through a
people-centred preventative approach. (Articles 6-7)
In the event of an emergency, conditions and policies should be made that put a cap on
increases to rent and basic goods. The increases of rental costs in High River resulted in a deepening of the challenge of housing everyone in the community as well as influenced the departure of
many residents, including seniors, who had made High River their home for many years. Housing is a
critical issue that if there were a strong base of affordable accommodations, many of the challenges
of meeting basic needs after a flood could have been mitigated.
In High River, when Saddlebrook (the temporary housing space) was closed and low income individuals were moved to Cold Trail, housing was heavily subsidized for a short period and then within
months, residents were expected to pay the full rate. This group was not stably housed pre-flood
and many are on income supports such as AISH. They dont know what they are going to do and the
roots of these issues exist pre-flood. There is a need for life skills among individuals. If resources
were channeled into these community needs prior to the flood, it would alleviate the pressures postflood. The flood in High River brought to attention issues around social service supports.
There is a need for advocacy and income planning for those most vulnerable in advance, during and
post-disaster. It would also be prudent for communities to set up slush funds or savings for in the
event of a disaster. We need to think beyond property owners in natural disaster and think of those
that are renters and who are struggling with housing.
In the event of an emergency, conditions

and policies should be made that put a cap on
increases to rent and basic goods.
PHOTO CREDIT | Govt of Alberta
https://www.flickr.com/photos/governmentofalberta/10177150326
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RECOMMENDATION NINE:
When Responding, Think Long Term
Response and recovery efforts must prioritize strategies and processes which promote community independence and self-sufficiency. Due to an overwhelming focus on securing basic needs,
recovery programs are often initiated which do not take into consideration the long term financial
and emotional capacity of disaster victims. This leads to dependency and a difficult transition from
government and non-profit support to community self-sufficiency. The promotion of community
independence and self-sufficiency must be embedded in all disaster response and recovery efforts
and programs. Recovery efforts need to be planned for up to five years to enable the appropriate
resources and support to the community. Specific strategies could include:
Hiring three staff for five years under the Disaster Recovery Program instead of six staff for
one year, allowing staff to build deeper relationships with community members and engage in
long-term recovery/community development efforts;

Prioritizing fund development for all disaster response and recovery stakeholders through the
use of a fund development officer who provides stakeholders information about, and access
to, funding sources and supports them in this process. This will ensure continued support and
sustainability for their programs, services or efforts; and,
Encouraging consistent self-evaluation and strategic transition planning to ensure the work of
all stakeholders remains relevant and effective.
Recovery efforts need to be planned for up to five years to enable the

appropriate resources and support to the community
RECOMMENDATION TEN:
Empower Voice
An overarching priority of a rights based approach to natural disaster response and recovery is the
need to foster voice among disaster victims; to allow them an opportunity to voice their concerns,
perspectives, experiences and ideas for positive recovery. The key to empowering the voice of
victims is truly valuing their perspectives and implementing their ideas, granting them ownership and
acting with rather than for them. Government agencies, non-profit organizations and community
members must work as equal partners in the recovery phase. Victims must be treated with dignity
and respect through the fostering of genuine relationships based on understanding, trust and the
knowledge that, having experienced the disaster first-hand, they are in an ideal position to influence
positive recovery strategies. The use of participatory approaches to community decision making in
recovery should be applied.
Groups who are marginalized and vulnerable prior to disasters are likely to be severely affected and
further marginalized. They must not be left behind and should be included in all aspects and levels
of disaster management including mitigation/prevention, response and recovery. Vulnerable or
11
marginalized groups could include seniors, persons living with disabilities, low-income individuals or
families, single parent families, newcomers, non-English speakers, and indigenous peoples.
In order to empower voice and build trust, it is essential that government agencies make it a primary
principle to engage with local service agencies to address the needs of the community. These agencies have first hand experience and relationships in the community that can foster a quicker support
for individuals in the community. External agencies are not easily trusted and are starting relationships from scratch. There should be a transfer of trust in response efforts. Also a monthly meeting
for community members to come out and speak up would be a healthy form of engagement to
ensure community needs are being met. Placing listening as a fundamental principle for recovery
was stressed in High River as something that needed to improve.
RECOMMENDATION ELEVEN:
Prioritize the Health and Wellbeing of
Children and Youth
Children and youth, while resilient, can often suffer long term trauma in disaster that need to be
considered in developing a response. Some key elements to consider in relation to children and
youth include:
Comprehensive emergency plans must be developed by education institutions;
Strong mental health supports should exist in all schools at all times. These must be
strengthened during times of disaster;

Alberta Education and local school boards must loosen expectations regarding curriculum
targets, grade standards, school schedules and budgets to account for the financial, emotional
and psychological recovery of students, teachers, school administration, and in some cases,
school infrastructure;
Strong mental health supports

should exist in all schools at all
times. These must be strengthened
during times of disaster.
PHOTO CREDIT | Ryan L.C. Quan
Own work, http://www.flickr.com/photos/ryan_quan/9147836698/. Licensed
under CC BY-SA 3.0 via Commons - https://commons.wikimedia.org/wiki/
File:East_Village_Calgary_Flood_2013.jpg#/media/File:East_Village_Calgary_
Flood_2013.jpg
12
Extended allowances for external substitute teachers are necessary to promote the self-care
of teachers and school administration who have been affected by the disaster themselves or
are experiencing secondary trauma; and,
Provide children and youth with safe spaces to voice their concerns, engage in positive
initiatives within the community and be involved in decisions which affect them.
Utilize and embed the UN Convention on the Rights of the Child as a framework for all
planning and response.
Over our time on the project, the conversations often came around to how we can educate children
and youth to be prepared for disaster. There is a need to build and deliver an educational program
for children and youth; something that the John Humphrey Centre for Peace and Human Rights
would be in a good position to do as an education organization.
RECOMMENDATION TWELVE:
Foster Trust and Transparency Among Stakeholders
In the event of disaster, stress can cause and accentuate challenges in relationships between the
various responders including community agencies, law enforcement and all levels of government. In
preparing for disaster, clear lines of responsibility, authority and communication should be in place
and a team of stakeholders brought together at least every year to review processes. It is essential
as well in this process that stakeholders are transparent when it comes to commitments, money
allocations, resources and capacities.
RECOMMENDATION THIRTEEN:
Pre-Service Training for all
Responders
One of the critical needs in disaster response is to ensure there are a level of competencies and
qualities within all first responders. Dignity, privacy and compassion must be priorities for first
responders during immediate disaster response.
Volunteer first responders often arrive at disaster scenes with high energy and adrenaline, failing
to be cognizant of the trauma, grief and stress that victims are experiencing. This can lead to
even higher levels of anxiety and trauma, as well as stripping victims of their privacy and dignity.
Additionally, dignity and privacy must be maintained by media who are eager for coverage but may
be doing more harm to victims than good.
13
Communities as well as the provincial government should build a ready to go volunteer team
of responders that have specific protocols to follow on site. They should have processes in place
whereby they debrief daily and participate in information sessions at the beginning of their shifts
to keep them up to date on information and changes. In disaster, things change by the minute and
volunteers need to go into the field with the most up to date and accurate information. This requires
a strong network of communication in disaster which requires preparation in advance. These first
volunteer responders should be prepped in advance by alerting them to what they need to be
aware of in terms of insurance to support victims but also to ensure they are not taking unnecessary
actions such as throwing out valuable belongings and protecting property as much as possible. Key
elements for volunteer training plans include prepping them on whats needed, whats appropriate,
who is doing what, the safety of the resident, and safety of volunteers.
It was clear in the High River case as well that the DRP staff were ill-prepared and equipped to
deal with the scale of the disaster as well as in an understanding of how to support the trauma and
mental health needs of clients. While this is not their key role, they need to be prepared to deal with
the stress and how to treat victims with respect and dignity.
Training with law enforcement is also another area that should be developed. Law enforcement
officials need to be engaged to learn trauma informed practises, respect of private property as well
as consider embedding a community policing approach.
Communities can consider creating a checklist for the various responders which challenge them to
consider the needs of the vulnerable groups in the community.
RECOMMENDATION FOURTEEN:
Engage in First Response Triage
As a best practise, in the event of disaster, the front line responders need to embed an immediate
triaging approach for people affected by the disaster and ensure they get the appropriate support
they need to move into recovery. This involves a necessary communication flow between those on
the ground and those making decisions. This approach ensures that the psychosocial elements of
disaster and not having a home are supported.
A triaging approach would enable responders to recognize people with mental health issues and
invisible disabilities who may need extra support right from the start. These individuals are not
necessarily best supported in temporary housing and the approach should not be just about getting
heads in beds. Communities should respond with professionals to recognize high needs, stress and
cultural boundaries to ensure all victims are supported with dignity. High needs individuals can be
placed in stressful situations which further accentuates their challenges.
14
RECOMMENDATION FIFTEEN:
Ensure Supports and Self-Care for
First and Secondary Responders
Those that respond to disaster are often so passionate and committed to addressing the needs of
the communities that they often forget about themselves. One or two years post disaster, these
responders can suffer incredible strain and stress from neglecting their own self care. In disaster
planning, response and recovery, it is essential that all agencies involved build a plan for caring for
their staff and ensuring they have their mental, emotional, spiritual, and physical needs met.
RECOMMENDATION SIXTEEN:
Empower Secondary Actors to Support
Secondary Trauma
In the event of disaster in a community, secondary actors can often find themselves playing a
supportive role in recovery without the necessary supports or capacities to do so. Support should
be provided to business owners and employers in dealing with secondary trauma as community
members may come and rely on them for a safe place to talk or share their challenges. Schools and
school boards need to provide increased mental health supports to staff and students and need
to be prepared for this additional stress. Faith Centres can also play a large role in supporting the
community and need to be prepared to support in the best way possible. These actors often have to
deal with peoples stories and trauma despite not being trained to do so. This is an opportunity for
capacity building in the community and can involve pharmacists as well.
RECOMMENDATION Seventeen:
Critical Communication is Essential
When communicating in disaster, there are a number of key elements to consider. These include:
Direct people to supports and relaying information about evacuation locations, medications
and healthcare, cleaning out homes etc through simple language and infographics;
Ensure individuals/families with limited English skills and/or limited access to technology and
social media are not excluded from communication plans and procedures;
Ensure that the media does not re-traumatize victims, invade their privacy or
spread misinformation;
15
human-centred
As we look ahead, the evidence demands of the global
community a more comprehensive commitment to a
human-centred agenda for disaster risk reduction an agenda whose purpose is the resilience
of individuals and their communities.
Dr. Babatunde Osotimehin, Executive Director
United Nations Population Fund
risk reduction
Ensure communication plans are created and followed by schools and educational
institutions, especially where children/youth may be separated from their teachers,
school administrators and/or parents;
Develop a call-in system where calls from concerned community members could be
answered by informed volunteers; and,
Meet people where they are: utilize local congregation points, such as local coffee shops and
grocery stores, as communication hubs.
RECOMMENDATION EIGHTEEN:
Promote financial security and reduce stress,
especially in relation to government funding
The Disaster Recovery Program was a major source of stress in High River and a number of lessons
can be drawn with an eye to promoting financial security and reducing stress on victims. The DRP
should consider the following:
To address the rules changing and policy inconsistency, DRP should consider having a base
program for all that rolls out immediately and then this will allow time to respond to the need
on a case by case basis;
Appropriate training for front-line DRP staff with an emphasis on maintaining dignity, privacy
and empathy. There should be staff authorized to make decisions on individual files;Policies
and programs must be consistent and well-communicated;
PHOTO CREDIT (Above) |

Licensed under CC BY-SA 3.0 via Wikipedia - https://en.wikipedia.org/wiki/File:Okotoks_-_
June_23,_2013_-_Local_campground_playground_after_flood-02.JPG#/media/
File:Okotoks_-_June_23,_2013_-_Local_campground_playground_after_flood-02.JPG
PHOTO CREDIT (Left) | Canadian Press
17
Efforts should be taken to listen to the needs of community members and engage in
collaborative decision making which provides victims with empowerment and ownership;
Allow DRP funds to be disbursed quicker through the use of advances with clearly
communicated expectations and accountability mechanisms;
Ensure DRP staff are provided with mental health support and practice self-care, as they too
often take the blame for policies which they have no control over;
The government should set up on an online tracking system for claims so people can verify
that information is received and know the status of their claim. It would take pressure off the
local DRP representatives and give people the peace of mind; and,
DRP language is very complicated and is often too hard for someone who just experienced a
disaster, or someone with limited English skills, to understand.
RECOMMENDATION NINETEEN:
Develop Comprehensive Disaster Management Plans
Detailed pre-disaster plans throughout the community are necessary to mitigate the physical,
emotional and financial impacts of natural disasters. Stakeholders should have thorough knowledge
of their plans, should ensure they are kept up-to-date and relevant, and should re-train staff on a
regular basis (approximately every 2-3 years). These plans should be collaborative and integrated
across the community with school plans and hospital plans connected to the municipal plan.
The following are key aspects which should be considered in each stakeholders
disaster management plan:
Municipalities
Multiple integrated alert system; communications strategy; trained first responders and service
providers; evacuation strategy; coordination and possible agreements with nearby communities; agreements with the Province of Alberta (framework for response, key agencies, and lines of
communication and authority); fund development plan; community outreach team; potential mock
disaster every 2 to 3 years.
Provincial and Federal Governments

Standards for contractors and builders and remedial processes for community members in the event
of problems with contractors and builders; establishment of clear lines of authority; communication
liaison procedures; partnership agreements with municipalities; plans for supporting the education
system and being flexible with curriculum and timetables; ensuring basic needs; hiring additional
staff with the necessary skills, competencies and values; clear policy and procedures on what will be
covered in disaster, what will not and how to claim. An effective education strategy for these policies
and procedures should also be established.
18
Media
A clear strategy to respond in disaster with a focus on
what flood victims should do and where they can get
information. Attention to languages would also be
helpful. Media should have a good relationship and
agreement with municipal partners to ensure they are able
to effectively communicate and broadcast not just the
devastation of the flood to a broader audience, but what
people can do as victims and what people can do to help
support flood victims and the community in a meaningful
way. Inappropriate donations, such as wedding and prom
dresses, were a major challenge in High River and this
should be part of an outreach strategy for media as well.
Internal Community Agencies

Office relocation; self-evaluation tool; fund development
plan; partnership agreements with other agencies and
municipalities that clearly outline roles and responsibilities,
how they will work together and lines of authority.
Faith Agencies
How to provide psychological first aid; pre-made arrangements with other centres to bring in substitute clergy;
arrangements for secondary meeting/congregation spaces
with other community buildings; be prepared to support
the spiritual and mental impact of the disaster for months
and years afterward; know when support is needed that
the faith cant offer.
Potential
Action Item:
One other key element
which came out of discussions in High River was the
need to think about fund
development and mobilization planning post disaster.
It was suggested that
having a fund development
person identified within the
municipality to play this role
with community agencies
would be a valuable asset
following disaster and
would assist in reducing
tensions around competing
for funding.
Schools
Evacuation plan with a safe meeting/reuniting point and roles/responsibilities for teachers and
school staff; communication system between school and parents; handy roll call and emergency
contact lists that are not on the computer; first aid kits and emergency food; pre-identified building in the community that could be used as classrooms if needed; funding allocations for substitute
teachers (up to 2 years post-disaster); scheduled debriefs; support to trauma in children and youth
following the disaster.
19
Stages of Recovery
The following tables provide some food for thought for different stakeholders in the community
and what they should be considering at the various stages of planning, response and recovery.
STAGES OF RECOVERY: CONSIDERATIONS FOR...
CONTractors | builders | trades

Pre-Disaster
Government approved checklist to give to homeowners about what to

expect from a reputable contractor.
Establish a quality control monitor that can be on hand when a disaster
happens to assist with consumer protection and identify inappropriate
business practises (e.g. Mike Holmes).
Professional association establish standards for operation in a
natural disaster.
IMMEDIATE
Quality control monitor is dispatched to area to monitor and support

consumers. They check contracts, are available to community members
for questions, and give guidance and counsel.
Municipality identify someone to focus specifically on ticketing, licensing,
permits and inspections. Could tie to the quality control monitor.
Ensure people have access to enough contractors or builders to get
estimates on their work.
3 MONTHS 1 YEAR
Builders and contractors should have a warranty provision for

their work.
1 - 3 YEARS
in the case of a flood, ongoing monitoring and follow up on

mould testing.
PHOTO CREDIT | Stephanie N. Jones

Licensed under CC BY-SA 3.0 via Wikipedia - https://
en.wikipedia.org/wiki/File:Okotoks_-_June_23,_2013_-_
Local_campground_playground_after_flood-02.JPG#/
media/File:Okotoks_-_June_23,_2013_-_Local_campground_playground_after_flood-02.JPG
NATURAL DISASTERS REPORT 2015 | STAGES OF RECOVERY
20
LAW ENFORCEMENT
Pre-Disaster
Training in trauma response (trauma informed practise) which should

include psychological and first aid preparation.
Ensure there is a connected and positive community relationship.
Embed a community policing approach.
Balanced policy between safety and security particularly as it relates to
private property.
IMMEDIATE
Hold the responsibility for safety for persons and property. Must ensure a
humanistic approach and quick action to remedy inappropriate responses.
3 MONTHS 1 YEAR
Ensure at this point that there is a monitoring of compassion fatigue

among law enforcement as they are busy and at front lines. Recognize
and support vicarious trauma of first responders.
Increase staff.
Cooperate with nearby enforcement.
Be alert to risk of opportunistic predators - drug dealers, theft,
organized crime and desperation of citizens.
Take responsibility for any property damage done during first response
and expedite a response and support; claims through police should be
expedited rather than caught up in bureaucratic process.
1 - 3 YEARS
Apologize and reconcile for any conduct that negatively impacted

the community.
Review and adjust work and stabilize plans.
3 - 5 YEARS
Community rebuild - recognize that increased authority during disaster/

trauma can fracture trust.
Training refresher needs to be built into ongoing cycle.
Be more prepared with new knowledge and awareness.
PHOTO CREDIT | Alberta Solicitor General

https://www.flickr.com/photos/albertasolgen/9208531021
5 - 7 YEARS
21
COMMUNITY AGENCIES (INTERNAL/LOCAL)

Pre-Disaster
Develop a disaster preparedness plan: what do we do when the office is

gone? Develop a Plan B for office and communications.
Have a self-evaluation tool developed.
Build mutual partnership agreements with other agencies in the
community and the municipality.
There has to be a willingness to collaborate with outside agencies as well
(not a competition) for funding.

IMMEDIATE
Accreditation on emergency plan - good practises: understanding that

people will look to them to do psycho-social piece; preparing for fund
development impact; what you will encounter/what to expect and how it
can impact work; self care.
Know your limits; ask for help when needed.

Inform incoming response - share wisdom, share cultural awareness,
connect with community influencers.
Team work and collaboration.
Act as a conduit of information for responders and government to clients.
3 MONTHS 1 YEAR
Build a timeline of expectations.

Ask questions; talk; communicate; need both pre and post flood groups at
the table.
Identify gaps quickly; seek resolutions that are sustainable.
1 - 3 YEARS
Transition and rebuild.

Reassessment: re-evaluating mandate and resources; who you are has
changed - disaster reforms things; are we still relevant? priorities change.
This is the let down period - funding being pulled for example; it is
important to manage expectations.
PHOTO CREDIT (both) | Public Domain Pictures

http://www.publicdomainpictures.net/
22
FAITH AGENCIES
Pre-Disaster
Basic needs distribution plan.

Disaster training (e.g. Psychological First Aid).
Connect to other faiths (of course voluntarily).
Ensure a plan to support faith leaders in disaster so they do not burn out.
Interfaith agency meetings to spend time discussing role and how to
mobilize. They have a responsibility for the existential piece.
Provide temporary housing - Assess what are their resources, how they
are connected to the municipality, consider partnership agreements.
IMMEDIATE
Distribution of basic needs.

Spiritual care/support for victims.
Be prepared to move outside the walls of the church/temple/synagogue
and meet people where they are at.
Act as a safe place for questions.
Have support faith leaders brought in.
3 MONTHS 1 YEAR
Build a timeline of expectations.

Ask questions; talk; communicate; need both pre and post flood groups at
the table.
identify gaps quickly; seek resolutions that are sustainable.
Transition and rebuild.

Reassessment: re-evaluating mandate and resources; who you are has
changed - disaster reforms things; are we still relevant? Priorities change.
This is the let down period - funding being pulled for example; it is
important to manage expectations.
PHOTO CREDIT | Public Domain Pictures

1 - 3 YEARS
23
SCHOOLS
Pre-Disaster
Evacuation plan.
Safe meeting point/reuniting point.
Communication system between school (children) and parents - must be
able to prepare for cell lines down.
Transportation away from danger point.
Roles and responsibilities well defined for staff.
Kit supplies, food in case stranded.
Broad emergency plan where communication is the priority and teachers
with children (who stays with the ship? who does what?).
Lists of children with key information should be up to date, off computer,
ready to grab and go. Up to date emergency contact information.
Identify other buildings in the community which could be used in event
of disaster.
IMMEDIATE
Alternate buildings designated and ready to accommodate

temporary classrooms.
Professionals to work with the children at their levels
(fears, memories, sounds); immediate responsibility and priority
and a very targeted approach.
Schools up and running as fast as possible.
3 MONTHS 1 YEAR
Pool of substitute teachers; extended allowance for them to be away to

fix their homes/take care of their own families. Funds should be allocated
by provincial and federal governments to allow for this support.
Scheduled debriefs.
(fears, memories, sounds).
1 - 3 YEARS
Pool of substitute teachers and extended allowance to support them to fix

their own homes and take care of families.
(fears, memories, sounds).
We must rise up to the unprecedented

challenges confronting us today. And we
have to ensure that future generations
will not have to pay the price of our
indecision. It is now a matter of collective responsibility, collective action and
collective accountability.
Mr Tadateru Konoe, President

International Federation of Red Cross and Red
Crescent Societies
24
Homeowners
Pre-Disaster
Be prepared: stay kit, go kit, what would you grab?

Safety plan for family.
Know your insurance policy.
Realistic expectations in case of crisis.
Illegal basement suites - know the consequences
Content insurance in place.
IMMEDIATE
Know your contractor: right licensing; questions to ask contractor.

Speak/reach out: self advocate or ask someone to assist you.
3 MONTHS 1 YEAR
Know your contractor: right licensing; questions to ask contractor.
1 - 3 YEARS
Self advocate.
3 - 5 YEARS
Self advocate.
Speak/reach out - self advocate or ask someone to assist you.
PHOTO CREDIT | KEVIN PHILLIPS @ PUBLIC DOMAIN PICTURES

25
MEDIA
Pre-Disaster
Training about re-traumatizing people is necessary.

Pre-templated disaster plan re: messaging (who, what, when, how).
IMMEDIATE
Ask: is your presence necessary? Harm vs. good.

Directing people to supports (consistent messaging); clear and easy to
understand communication.
Consider language diversity.
Considerate of your viewers/listeners.
Aware of your power.
3 MONTHS 1 YEAR
Messaging about normalizing experiences in the recovery process.
1 - 3 YEARS

Messaging about normalizing experiences in the recovery process.

Media can play a valuable role in ensuring people do not feel alone in the
community and that there are shared challenges. By sharing the stories,
we can normalize the experience and foster broader community supports
and engagement.
BUSINESSES AFFECTED
Pre-Disaster
Know your insurance coverage.
IMMEDIATE
3 MONTHS 1 YEAR
Once business is up and running, training as a secondary support in the

community. Dealing with trauma and acting as a community bridge.
Assess safety and liability issues.
26
MUNICIPALITIES
Pre-Disaster
Have a detailed disaster plan in place: alert systems (multiple, integrated

system that works regardless of potential barriers - i.e. no power, loud
noises, systems overloaded or down, language barriers).
Think long term in plan.
Demographics on hand to inform reaction.
Keep plan relevant and keep people trained.
Build a communications strategy and emergency lines.
Set up a long term recovery group that is interdisciplinary
and intersectoral.
Run town through mock disaster every 2-3 years.
Have a trained team in place ready to respond with ongoing
professional development.
Agreement in place with province: framework for response for key
agencies and established lines of authority.
IMMEDIATE
Act as main central hub.

Continuous, immediate stream of information.
Specific debriefing and prepping schedules that are consistent.
Community outreach team on foot getting out to educate and support.
Long term recovery team active.
3 MONTHS 1 YEAR

Review and training cycle every year.
Run through checklist - do we still have
Consistent and specific debriefing and prepping schedules.
Fund development officer working with agencies to connect agencies
and resources.
1 - 3 YEARS

Review and training cycle every year.
Run through checklist - do we still have
Consistent and specific debriefing and prepping schedules.
Fund development officer working with agencies to connect agencies
and resources.
Housing - lobby and work with government to restore affordable
housing units.
27
EXTERNAL AGENCIES
Pre-Disaster
Respect for internal agencies (foster agreements).

Mindset of coming into community to learn and serve.
IMMEDIATE
Meet people where they are at.

Basic needs outweigh your agenda, dont have an agenda.
Come in with openness.
Be clear on what you have to offer.
Appropriate support offered.
3 MONTHS 1 YEAR
Teach advocacy.
Responsible to versus responsible for.
Empower resident.
1 - 3 YEARS
Transition planning to leave area.

We recognize that resilience comes from individuals

and communities, and we need to work with them in the
process of reconnecting with their own power and taking
ownership of their lives. Reducing risks and vulnerabilities
is a process that must be owned, led and carried out by the
people themselves to bring about lasting change in their
communities.
Mr Tadateru Konoe, President
International Federation of Red Cross and Red Crescent Societies
28
GOVERNMENT (PROVINCIAL & FEDERAL)

Pre-Disaster
Disaster plan - promote accountability and quick response.

Staffing - hire right staff and train and prepare them. Develop authority
and training in empathy - key skills include psychosocial, social work,
human services, trades and structural advice.
Creation of standards - clear lines of authority; communication/liaison
procedures; messaging; limits and regulations around housing (i.e. freeze
on rental increases).
Partnership agreements with municipalities.
Basic recovery package clearly articulated.
Create and support education.
Buyer beware education on contracts and building.
IMMEDIATE
Bring in neutral facilitator to connect agencies (internal and external) and

take lead on pulling together. Ask the right questions and establish who is
an influence in the town.
Listen; understand who is closest to the issue.
Plan for a 5-7 year recovery.

Create a recovery team/structure for regular connect/feedback/

adjustment/communication. Allocate resources to this team and ensure a
collaborative framework is put in place. This team should include:
Aboriginal liaison, immigration/cultural broker, education, mental health,
environmental protection, DRP administration, building trades, facilitator,
fund developer/connector.
Policy should be to hire locally.

Recognize immediate needs and put funds here.
Establish a volunteer and donations central command coordination.
Volunteer preparation - work to have an immediate how to for cleaning
that is going to all volunteers and responders in home. Require training
and debrief for volunteers.
Simple communications infographics.
3 MONTHS 1 YEAR
Specific allocation of resources to substitute teachers.

Bring efficiency into procedures (recovery team and volunteer central).
Mindful collaboration and allocation of federal money.
1 - 3 YEARS
Recognize that there will be problems with contractors. Need to prepare

to have a remedial space for bad work (e.g. mould in home two years
later) or conflicts with professionals.
29
framework for dialogue

In order to guide our conversations with the High River community through a human rights lens, the
John Humphrey Centre created a series of questions adapted from the Human Rights and Natural
Disasters: Operational Guidelines and Field Manual on Human RIghts Protection in Situations of
Natural Disaster, Brookings-Bern Project on Internal Displacement, 2008. It is these questions that
helped guide our conversation and bring forward the issues presented in this report.
Protection of life, security, & physical,

mental and moral integrity
How often have public meetings been held?
What methods of communications were used to invite residents to
public meetings? (was it all written? was it in English only?)
What networks did you reach out to?
What mechanisms for public transparency and accountability were put in place?
Housing:
Did you feel the evacuation process was effective?
How far in advance were warnings?
Was this adequate? (if not, how could it have improved)
Is anyone in the community currently living in conditions where their health or safety may be
compromised or at risk?
Were there identified permanent space set up whereby the community could come in to deal
with insurance companies, home builders or the Disaster Relief Program?
What mechanisms existed for people who were having problems dealing with their insurance
company, home builder or Disaster Relief Program?
Were families able to stay together while living in temporary housing?
How was the location of the temporary houses determined?
How accessible were food and health services to those in temporary shelters?
PROVISION Of goods and services

Who provided humanitarian assistance in the immediate response?
Is there still a need for humanitarian assistance?
What measures were taken to ensure access to clean water for victims?
What food was provided for victims during the immediate response?
What expenses did community members have to cover during the emergency?
Where do people currently get their food?
Were victims able to access medical resources and medications during and following
the disaster?
Were those living with disabilities able to access medications or medical support aids
(wheelchairs, walkers etc)?
What kind of trauma care and counselling support was provided to victims?
Was there any unique support for those dealing with addictions such as alcohol or drugs?
Were there any needed health education initiatives were implemented during and following
the disaster to help spread disease?
NATURAL DISASTERS REPORT 2015 | FRAMEWORK FOR DIALOGUE
30
Protection of ECONOMIC, SOCIAL, AND CULTURAL RIGHTS

EDUCATION:
Has an audit been conducted of the damage and losses of the educational sector?
What damage was done to buildings/facilities?
Are existing buildings/facilities safe? Do they need repairs/reconstruction?
How were teachers, administration and school staff impacted?
How were students impacted?
What supports have been implemented to assist in coping with this impact? Ex. psycho-social
support programs, disaster prevention programs
Do children who have disabilities, as well as those who may otherwise be marginalized, have full
access to school?
EMPLOYMENT:
How did the flood impact employment in the community?
Which sectors where most affected?
Did businesses or employers offer any additional trauma or support to employees?
Where there long periods of unemployment following the flood?
Are there certain groups that have been particularly impacted?
PROPERTY & POSSESSIONS

Did any type of violence or unlawfulness occur such as looting or vandalism?
Were people made aware of what would happen to their possessions and property?
Protection of OTHER CIVIL AND POLITICAL RIGHTS

Have you had many complaints or concerns expressed by victims during the recovery process?
How did you resolve these?
Was there an official mechanism for which people could voice their complaints or concerns?
Has there been damage to cultural and religious centres?
Have these been repaired?
Were there any special mechanisms put in place for the replacement of government documents?
Were there any education campaigns to make people aware of how to replace
government documents?
NATURAL DISASTERS REPORT 2015 | FRAMEWORK FOR DIALOGUE
31
Human Rights Protections in High River

Over the course of eighteen months, the John Humphrey Centre spent time in High River engaging
in community conversations on disaster response and recovery. The dialogue was fascinating and
revealed the passion and commitment that all members we spoke to had for their community. Below
is a highlight of key take aways that we heard.
Housing
Many homes in High River experienced sewage back-up with up to five or six feet of sewage in their
basements. According to the Town assessment, 52% of homes were affected. In some neighborhoods, this sewage sat in homes for up to 12 days.
Many individuals and families were still experiencing health and safety hazards in their living arrangements. Mold and poor air quality were still present and some families after well over a year continue
to live in trailers or garages, rather than in their homes.
Many seniors were forced to move from the community.
A lack of subsidized housing prior
to the flood contributed to a serious
housing shortage, with many people
being forced to relocate and costs of
accommodations sky-rocketing.
Initial health and safety inspections
were often superficial and did not test PHOTO CREDIT | Resolute
Licensed under CC BY-SA 3.0 via Commons - https://commons.wikimedia.org/wiki/File:High_River_damaged_Tracks_
for air quality or mold, contributing to
cropped.jpg#/media/File:High_River_damaged_Tracks_cropped.jpg
health problems after homeowners had moved back in.
There were concerns expressed that the private sector company hired by the Government of Alberta
to assist in clean-up often caused additional problems by allowing unqualified people to clean-up
homes who did not have a thorough understanding of remediation guidelines and insurance qualifications. They would often strip away too much of the home, deeming it uninsurable.
Many homeowners have struggled with efforts to rebuild or repair their affected homes. There has
been a range of financial exploitation and fear-mongering regarding the rebuilding of homes, particularly towards seniors. People were told that they must get repairs done within a certain amount of
time or they wouldnt get insurance and many have been vastly overcharged for unqualified or poor
quality repairs. Several unqualified people who had never done homebuilding or trades work were
suddenly claiming to be experts and those who have never had repairs done did not know how to
avoid this, nor are there remedy procedures in place for people to be able to seek redress.
Saddlebrook, the temporary housing created specifically in the aftermath of the flood, was located
seven kilometers outside of the town in a wide open field. Saddlebrook allowed some individuals to have a high quality of life that they had not experienced previously, however concern was
expressed that the facilities were located too far from essential goods and services (disrupting their
daily routines and forcing them to incur additional transportation costs), exacerbated mental health
issues, negatively impacted their privacy and increased their feelings of isolation.
NATURAL DISASTERS REPORT 2015 | HUMAN RIGHTS PROTECTIONS IN HIGH RIVER
32
Service providers talked about doing an analysis of the costs of distrust in housing. They stressed
that the amount of money spent on policing misuse or overuse, which would likely be caught down
the road, was not efficient and not based on trusting the client. Trust is an essential element for
voice but the timelines and pressures make it hard to hear them.
Provision of Goods and Services

Several internal and external non-profit organizations
worked collaboratively to run the emergency operations
centre and engage in immediate clean-up.
It was expressed by some that there seemed to be a lack
of clarity and communication about where resources were
available right after evacuation. Those who were responsible for communications in the disaster made valiant efforts
and did a great job overall however we did hear from some
that they felt they lacked information. This is understandable given the situation but something to consider in future
preparations for disaster.
There was continued access to water thanks to community
members although boiling was required before consumption or use; pre-paid credit cards were given out to assist
those who had evacuated to buy clothes and food.
Potential
Action Item:
In preparing for disaster,
build in donation management and supports around
mobility aids. Make this a
priority in building a plan to
ensure mobility for citizens
is an immediate need that
can be met with preparation.
Citizens were unsure of air quality. Although air quality

measures were posted online they were difficult to read
and understand.
Health care was strained with doctors offices and the hospital being affected by the flood.
Prescriptions were lost in the flood and medications needed to be shipped in. Individuals using
walkers, canes, wheelchairs etc often had to wait for extended amounts of time for replacements.
There was a second wave of assistance required with more middle class residents, who did not
seek assistance previously, asking for it over the winter months when they had expended all their
resources and credit. People had tried to weather it out on their own and drained all their resources
in doing so. Still into 2015, agencies were having first time clients come in needing support.
Property and Possessions

In an effort to prevent the looting of guns from evacuated homes, police searched many houses in
High River, however without homeowners knowledge. Many homes faced significant damage due
to doors being kicked down and homeowners felt violated. This negatively impacted trust between
community members and the RCMP and the community questioned why doors needed to be kicked
in when in fact many were left open.
Volunteers assisting with clean-up often threw out important family objects which could have been
cleaned and restored. There was a lack of understanding of what could be salvaged and a tendency
to discard.
33
hitting hardest
vulnera
Increasing inequality means that disaster risk is

concentrated in low income households, territories and
economies, hitting hardest the poorest and most
vulnerable that is least able to cope.
Han Seung-soo,
Special Envoy of the UN Secretary-General for Disaster Risk Reduction and Water
economies
Insurance does not cover overland flooding. A large number of people had to prove that their home
was ruined by sewage which posed a major challenge as many did not know to take pictures of their
homes during the immediate disaster. There was no clear place to seek help if residents did not
understand their insurance policy.
Disaster Relief Program

Albertas Disaster Relief Program (DRP) is a federal
cost-sharing process in which eligible residents, small
businesses, agricultural producers and municipalities can
receive recovery funding for uninsurable damage and
losses. At the time of the High River flood, DRP had four
staff for 10,000 flood affected Albertans. It became the
greatest challenge for community members in their recovery efforts.
The purpose of the DRP was not communicated well to the
public. Its intention is to meet needs, not return homes to
their original state. Consistently we heard that the rules
from DRP were changing and there was not consistency in
DRP support. There has also been concern that the allocation of DRP funds will be made public, potentially affecting
the privacy rights and social cohesion of High River residents.
DRP paperwork was lengthy and complicated. Documents
were often lost, with people having to re-submit them
multiple times. Almost two years following the flood, DRP
still had not made its final decision on how much money
will be allocated and to whom. A number of claims were
being held up due to missing receipts of minimal value by
claimants.
DRP staff were underqualified and not authorized to make
decisions. This created frustrations on both ends and
delayed the DRP process even further. It also resulted in
a lot of stress and anxiety for DRP staff resulting in significant turnovers and thus, lack of consistent support and
approaches.
Potential
Action Item:
The Disaster Relief Program
has set up an incredibly integrated online Community
Emergency Management
Program for municipalities
to prepare for emergencies.
This capacity for online
support and assessments
should be translated into an
online integrated platform
for claimants to assess their
damages, get information
on what they need to do
and what information they
need to collect, as well as to
file and monitor their claims.
This could be a valuable
resource tool for citizens
and could take pressure off
front line staff.
DRP has since shifted to a case management model, offering one-on-one support to individuals and families, which
has been more effective.
At the time of the High River flood, DRP had four staff for
10,000 flood affected Albertans. It became the greatest challenge
for community members in their recovery efforts.
35
Protection of Other Civil and

Political Rights
There has been a lack of remedial spaces for community
members to voice concerns. In many instances, they feel
that they have been stripped of dignity and privacy, having
to retell their stories to multiple agencies in crowded
offices in order to gain financial support. Some residents
expressed that they did not feel that their perspectives
were considered in decision making processes.
There was concern about government transparency.
Policies were unclear and not effectively communicated.
The government was not clear on their policies and did not
adequately communicate their policy changes. Residents
and those involved in recovery were incredibly frustrated.
PHOTO CREDIT | Alberta Solicitor General

https://www.flickr.com/photos/albertasolgen/9208531021
Information on how to replace lost or damaged documents was limited. This has severely impacted
the immigrant population who sometimes did not understand the application forms. The Filipino
community has been particularly affected, as they must travel to embassies in Vancouver and
Toronto to renew their documents and have a lack of resources to do so.
Communication
At the time of the disaster, there were not plans or tools to communicate for an emergency. Cell
phone towers jammed which caused confusion and stress. There is now a system to communicate
without cell phones as well as an early warning siren and alert system.
Concrete information in simple wording or infographics was needed to inform people on response
and recovery efforts. The media showed pictures of the flood but did not provide concrete or helpful
information to those who were experiencing it.
Some expressed a concern about accessing information in a language other than English despite key
documents being translated and available at recovery centres.
Local media and social media were heavily used, with the mayor posting weekly YouTube videos
and the town councillors being highly active on their personal Facebook pages. This posed a challenge for residents who lost computers and for immigrants or seniors who may not be technologically literate, English speaking or active on social media. There were consistent meetings in the
town to convey information and efforts by the community, however we did still hear that people
felt that they did not have the information they needed. This helps to inform future preparedness
approaches.
Cell phone towers jammed which caused confusion and stress. There is
now a system to communicate without cell phones as well as an early
warning siren and alert system.
36
Protection of Life, Security and Political,

Mental and Moral Integrity
It was expressed that marginalized communities (newcomers, seniors and those with disabilities)
were often the last to receive information on evacuation registries and temporary housing.
The domestic violence shelter has seen an increase in people accessing its services; financial stress
and mental health issues have contributed to marital strains and health issues.
Education
Schools evacuation procedures were stressful and disorganized due to lack of information and
preparedness.
There has been an increase in teachers
taking leaves of absence a year post
flood. Many teachers were affected
and had to deal with their own trauma,
as well as the trauma of their students.
Children experienced extensive
trauma and continue to exhibit behaviour issues. Drug use has increased in
high schools and behaviour problems
were coming out once school started
in September following the flood.
Holy Spirit Catholic School was
PHOTO CREDIT | Stephanie N. Jones
affected and suffered damage. They
Licensed under CC BY-SA 3.0 via Wikipedia - https://en.wikipedia.org/wiki/File:Okotoks_-_June_23,_2013_-_Local_campground_playground_after_flood-02.JPG
had to have classes at a community
centre, then to portables and returned
to their building in March 2015. The Hearts and Minds Program has been integrated in all schools to
address the mental health needs and trauma faced by children and youth. Alberta Health Services
also put Family Therapists in place.
Employment
Many businesses were affected; many business owners did not know that they qualified for DRP in
time and thus missed their opportunity to apply for funding.
Small businesses in High River formerly thrived off of town members disposable income which many
people no longer have. These businesses, as well as the local economy, are suffering.
Many people are stuck in limbo not knowing how much DRP support they will receive and thus not
knowing what the future holds financially.
Some businesses provided mental health support.
Many near retirees have lost all financial savings and are forced to re-enter the job market, with
limited marketable skills due to their age.
37
CALL TO ACTION
There has to be a broader and a more people-centred preventive approach to disaster risk.
Disaster risk reduction practices need to be multi-hazard and multisectoral, inclusive and
accessible in order to be efficient and effective. While recognizing their leading, regulatory
and coordination role, Governments should engage with relevant stakeholders, including
women, children and youth, persons with disabilities, poor people, migrants, indigenous
peoples, volunteers, the community of practitioners and older persons in the design and
implementation of policies, plans and standards. There is a need for the public and private
sectors and civil society organizations, as well as academia and scientific and research
institutions, to work more closely together and to create opportunities for collaboration, and
for businesses to integrate disaster risk into their management practices.1

- Sendai Framework for Disaster Risk Reduction 2015-2030
There is a critical need in Alberta, and throughout Canada, to open up discussions around
disaster mitigation, response and recovery through a human rights based lens and across
diverse sectors and experiences. It is essential to do so in order to ensure those most
vulnerable in disaster are included in the decisions that affect them but also to ensure we
build resilience and address poverty as underlying issues to effective disaster response and
recovery.
If we address the underlying roots of poverty, we can ensure the most vulnerable, who are
the most impacted by disaster, are supported. This includes women, persons with
disabilities, seniors, immigrants, children and language minorities to name a few. We need
to ensure our conversations shift from a property ownership lens in recovery to one that
includes those at the margins. We need spaces for remedy and support in the recovery
process for all Albertans, but particularly those that are most vulnerable.
We call on the Government of Alberta to take action by building a provincial level discussion
that starts to look at the recommendations that we have put forward and build standards and
protocols to ensure rights are protected in natural disaster and that supports and remedy are
inclusive and accessible to all.
We hope that with this report we can inspire a debate and conversation that ensure that
when a natural disaster happens, all Albertans can be included in the recovery and planning
processes and that we, as a province, are working to operationalize the Sendai Framework.
Only truly inclusive societies will be disaster-resilient.

Tarja Kaarina Halonen, Former President of Finland
2002-2012
1
Sendai Framework for Disaster Risk Reduction 2015-2030
http://www.preventionweb.net/files/43291_sendaiframeworkfordrren.pdf
NATURAL DISASTERS REPORT 2015 | Call To ACtion
38
Thank
You.
Report Layout and Design by

STUDIOS
www.ajalouden.com
http://www.jhcentre.org/
John Humphrey Centre for
Peace and Human Rights
8617-104 Street
Edmonton, AB T6E 4G6
TEL: (780) 453-2638

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Natural DisasterS REPORT

Natural DisasterS REPORT

The Larger Context of Disaster in Canada

International Standards for Disaster Management

Lessons Learned and Recommendations

In the event of conflict or concerns by community

Groups who are marginalized and

A longer term recovery committee that is multidisciplinary different levels of government,

Having one point person in charge

ADDITIONAL LESSONS LEARNED

In the event of an emergency, conditions

Recovery efforts need to be planned for up to five years to enable the

Strong mental health supports

PHOTO CREDIT (Above) |

Provincial and Federal Governments

Internal Community Agencies

STAGES OF RECOVERY: CONSIDERATIONS FOR...

CONTractors | builders | trades

Government approved checklist to give to homeowners about what to

Quality control monitor is dispatched to area to monitor and support

Builders and contractors should have a warranty provision for

in the case of a flood, ongoing monitoring and follow up on

PHOTO CREDIT | Stephanie N. Jones

NATURAL DISASTERS REPORT 2015 | STAGES OF RECOVERY

STAGES OF RECOVERY: CONSIDERATIONS FOR...

Training in trauma response (trauma informed practise) which should

Ensure at this point that there is a monitoring of compassion fatigue

Apologize and reconcile for any conduct that negatively impacted

Community rebuild - recognize that increased authority during disaster/

Be more prepared with new knowledge and awareness.

PHOTO CREDIT | Alberta Solicitor General

NATURAL DISASTERS REPORT 2015 | STAGES OF RECOVERY

STAGES OF RECOVERY: CONSIDERATIONS FOR...

COMMUNITY AGENCIES (INTERNAL/LOCAL)

Develop a disaster preparedness plan: what do we do when the office is

Accreditation on emergency plan - good practises: understanding that

Know your limits; ask for help when needed.

Build a timeline of expectations.

Transition and rebuild.

PHOTO CREDIT (both) | Public Domain Pictures

NATURAL DISASTERS REPORT 2015 | STAGES OF RECOVERY

STAGES OF RECOVERY: CONSIDERATIONS FOR...

Basic needs distribution plan.

Distribution of basic needs.

Build a timeline of expectations.

Transition and rebuild.

PHOTO CREDIT | Public Domain Pictures

NATURAL DISASTERS REPORT 2015 | STAGES OF RECOVERY

STAGES OF RECOVERY: CONSIDERATIONS FOR...

Alternate buildings designated and ready to accommodate

Pool of substitute teachers; extended allowance for them to be away to

Pool of substitute teachers and extended allowance to support them to fix

We must rise up to the unprecedented

Mr Tadateru Konoe, President

STAGES OF RECOVERY: CONSIDERATIONS FOR...

Be prepared: stay kit, go kit, what would you grab?

Know your contractor: right licensing; questions to ask contractor.

Know your contractor: right licensing; questions to ask contractor.

Speak/reach out - self advocate or ask someone to assist you.

PHOTO CREDIT | KEVIN PHILLIPS @ PUBLIC DOMAIN PICTURES

NATURAL DISASTERS REPORT 2015 | STAGES OF RECOVERY

STAGES OF RECOVERY: CONSIDERATIONS FOR...

Training about re-traumatizing people is necessary.

Ask: is your presence necessary? Harm vs. good.