Agile Methodology For Disaster Projects

Applying Agile Project
Management Methodology
to Natural Disaster
Projects
by
Marie Desiree M. Beekharry

Master of Project Management
Student ID: 110069541
Principal Supervisor: Dr Tony Ma
Co-Supervisor: Dr Rameez Rameezdeen
A thesis submitted for the degree of
Doctor of Project Management

School of Natural and Built Environment
Division of Information Technology, Engineering and the Environment
June 2017
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Our deepest fear is not that we are inadequate.
Our deepest fear is that we are powerful beyond measure.
… As we are liberated from our own fear,
our presence automatically liberates others.
(Marianne Williamson)
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Table of Contents
List of Figures ............................................................................................................ix
List of Tables .............................................................................................................xi
Glossary of terms ....................................................................................................xiii
Glossary of abbreviations ........................................................................................ xvi
Abstract ................................................................................................................ xviii
Declaration...............................................................................................................xx
Acknowledgments ................................................................................................... xxi
CHAPTER 1 Introduction ......................................................................................... 1
1.1 Background ........................................................................................................ 1
1.1.2 Rationale ..................................................................................................... 4
1.1.3 The need for collaboration between project and disaster management .. 5
1.2 Research aims, question, objectives and contribution ..................................... 8
1.2.1 Research aims and main research question ............................................... 8
1.2.2 Research objectives .................................................................................... 9
1.2.3 Research approach ..................................................................................... 9
1.2.4 Research contribution............................................................................... 11
1.3 Structure of the thesis ..................................................................................... 11
CHAPTER 2 Literature Review ............................................................................... 14
2.1 Introduction ..................................................................................................... 14
2.2 The nature of disaster management ............................................................... 15
2.3 Complexities in disaster management ............................................................ 19
2.4 Challenges in disaster management projects .................................................. 25
2.4.1 Project Integration Management ............................................................. 28
2.4.2 Project Scope Management...................................................................... 29
2.4.3 Project Time Management ....................................................................... 30
2.4.4 Project Cost Management ........................................................................ 31
2.4.5 Project Quality Management.................................................................... 32
2.4.6 Project Human Resources Management .................................................. 33
2.4.7 Project Communications Management .................................................... 34
2.4.8 Project Risk Management ......................................................................... 35
2.4.9 Project Procurement Management .......................................................... 36
2.4.10 Project Stakeholder Management ............................................................ 37
2.4.11 Additional challenges ................................................................................ 38
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2.5 Issues with management ................................................................................. 40
2.6 Issues with consultation, coordination and collaboration .............................. 47
2.7 Key deficiencies with post-disaster projects identified within the literature . 49
2.8 Project management and standards ............................................................... 53
2.9 Project management for international development projects ....................... 57
2.10 Agile project management methodology ........................................................ 58
2.11 Chapter summary ............................................................................................ 61
CHAPTER 3 Research Methodology ...................................................................... 62
3.1 Introduction ..................................................................................................... 62
3.2 Responding to the research question.............................................................. 62
3.3 Research approach .......................................................................................... 64
3.3.1 Qualitative research.................................................................................. 65
3.3.2 Quantitative research ............................................................................... 66
3.3.3 Descriptive research ................................................................................. 66
3.3.4 Evaluative research ................................................................................... 67
3.3.5 Mixed method research (MMR) ............................................................... 68
3.4 Research design and justification for use ........................................................ 70
3.4.1 Literature review....................................................................................... 73
3.4.2 Semi-structured interviews ...................................................................... 74
3.4.3 Case studies .............................................................................................. 74
3.4.4 Questionnaire survey ................................................................................ 79
3.5 Data analysis .................................................................................................... 80
3.5.1 Types of data analysis ............................................................................... 81
3.5.2 Tools for data analysis .............................................................................. 82
3.5.3 Linking research objectives with research methods ................................ 87
3.6 Ethical considerations ...................................................................................... 90
3.7 Chapter summary ............................................................................................ 90
Chapter 4 Analysis of Semi-Structured Interviews ............................................. 91
4.1 Introduction ..................................................................................................... 91
4.2 Preliminary data collection and analysis ......................................................... 92
4.3 Analysis and Findings ....................................................................................... 92
4.3.1 Analysis of participants and their organisations....................................... 93
4.3.2 Challenges and possible solutions to managing post-disaster projects ... 95
4.3.3 On adapting a traditional project management methodology ................ 97
4.3.4 The need for process vs flexibility/adaptability........................................ 98
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4.3.5 Decision making in the absence of intelligence........................................ 99
4.3.6 Solutions to improve the management of DM projects ......................... 100
4.4 Challenges and drivers ................................................................................... 101
4.5 Chapter summary .......................................................................................... 108
CHAPTER 5 Desktop Case Studies ........................................................................110
5.1 Introduction ................................................................................................... 110
5.2 Selection of desktop case studies .................................................................. 110
5.3 Desktop case study 1 – Haiti .......................................................................... 112
5.3.1 Type of organisation and where they operate ....................................... 112
5.3.2 Project details ......................................................................................... 112
5.3.3 Key project management features and challenges ................................ 114
5.4 Desktop case study 2 – The Islamic Republic of Iran ..................................... 119
5.4.2 Project details ......................................................................................... 120
5.5 Desktop case study 3 – Pakistan .................................................................... 128
5.5.2 Project details ......................................................................................... 129
5.6 Desktop case study 4 – Tonga........................................................................ 138
5.6.2 Project details ......................................................................................... 139
5.7 Findings from desktop case studies ............................................................... 146
5.8 Chapter summary .......................................................................................... 156
CHAPTER 6 Live case studies................................................................................158
6.1 Introduction ................................................................................................... 158
6.2 Selection of live case studies ......................................................................... 159
6.3 Case study 5 – Cagayan de Oro, the Philippines............................................ 160
6.3.2 Project details ......................................................................................... 162
6.4 Case study 6 – President Roxas, the Philippines............................................ 171
6.4.2 Project details ......................................................................................... 171
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6.5 Case study 7 – Fiji........................................................................................... 177
6.5.2 Project details ......................................................................................... 179
6.6 Case study 8 – Nepal ...................................................................................... 186
6.6.2 Project details ......................................................................................... 186
6.7 Findings from live case studies ...................................................................... 191
6.8 Chapter summary .......................................................................................... 200
6.9 Synthesis of desktop and live case studies .................................................... 200
CHAPTER 7 Questionnaire Survey ........................................................................206
7.1 Introduction ................................................................................................... 206
7.2 Justification .................................................................................................... 206
7.3 Analysis and findings...................................................................................... 207
7.3.1 Study sample........................................................................................... 207
7.3.2 Challenges in working within interdisciplinary teams ............................ 209
7.3.3 Key features of an agile methodology for disaster management .......... 211
7.3.4 Perceived benefits of an agile methodology for disaster
management .......................................................................................... 213
7.3.5 Desirable elements of an agile framework for disaster management
and skills required for implementation.................................................. 215
7.3.6 Core skills needed to implement an agile methodology in disaster
management .......................................................................................... 218
7.3.7 Perceived barriers to implementing an agile framework for disaster
management .......................................................................................... 220
7.3.8 Likelihood of adopting an agile project management methodology ..... 222
7.4 Chapter summary .......................................................................................... 223
CHAPTER 8 Discussion on Findings.......................................................................224
8.1 Introduction ................................................................................................... 224
8.2 Overview of discussion .................................................................................. 224
8.3 Developing an agile framework for post-disaster projects based on
triangulation................................................................................................... 227
8.3.1 Method of analysis.................................................................................. 227
8.3.2 Findings ................................................................................................... 228
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8.3.3 Benefits of an agile methodology for post-disaster projects ................. 230
8.3.4 Features and elements of an agile methodology for post-disaster
projects ................................................................................................... 231
8.3.5 Barriers to an agile methodology for post-disaster projects.................. 232
8.3.6 Agile project management ..................................................................... 233
8.3.7 An agile framework for post-disaster projects ....................................... 237
8.3.8 Skills ........................................................................................................ 242
8.4 Chapter summary .......................................................................................... 242
CHAPTER 9 Conclusions, Contributions and Recommendations for Further
Research ...........................................................................................244
9.1 Introduction ................................................................................................... 244
9.2 Statement of research problem..................................................................... 245
9.3 Research answers .......................................................................................... 246
9.4 Contribution to existing knowledge .............................................................. 251
9.5 Limitations of research .................................................................................. 252
9.6 Recommendations for future studies ............................................................ 253
References .............................................................................................................255
Bibliography ...........................................................................................................272
Appendices ............................................................................................................289
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List of Figures
Figure 1: Duration of post-disaster efforts per phase (ADB 2014). .................................. 6

Figure 2: Comparison between project lifecycle and disaster management phases
(Moe & Pathranarakul 2006, p. 401). ............................................................................... 7
Figure 3: Flowchart of the research design. ................................................................... 10
Figure 4: Classification of natural disasters (Guha-Sapir, Hoyois & Below 2013, p. 10). 16
Figure 5: Australia’s comprehensive approach to emergency management – PPRR
(adapted from EMA 2004, p. 5). ..................................................................................... 17
Figure 6: Disaster Management Lifecycle (Coppola 2011, p. 10). .................................. 18
Figure 7: 360° view of disaster management (adapted from Jain 2008, p. 371). ........ 22
Figure 8: Structured questions and responses (Kotnoor 1999, cited in Walker 2008). . 38
Figure 9: Pre- vs. post-event need (Harrald 2006, p. 261). ............................................ 50
Figure 10: The Project Complexity Continuum (adapted from Hass 2008). ................... 61
Figure 11: Deductive theory (adapted from Trochim 2006). ......................................... 64
Figure 12: Inductive process (adapted from Trochim 2006). ......................................... 64
Figure 13: The triangulation triangle (Erzberger & Kelle 2003). ..................................... 69
Figure 14: Theoretical framework of challenges in disaster management. ................... 71
Figure 15: Plan of the data collection activities. ............................................................. 80
Figure 16: Quantitative data analysis process (adapted from Creswell & Plano Clark
2007, p. 129). .................................................................................................................. 82
Figure 17: Basic process for content analysis (Kohlbacher 2006). ................................. 83
Figure 18: Step-by-step approach to quantitative content analysis (Rose,
Spinks & Canhoto 2015, p. 3).......................................................................................... 84
Figure 19: A link between objectives and research methods......................................... 89
Figure 20: Current status of organisations in dealing with unpredictability. ................. 99
Figure 21: Organisations’ adherence to process vs adaptability/flexibility. .................. 99
Figure 22: Factors that contribute to decision making in the absence of up-to-date
intelligence. ................................................................................................................... 100
Figure 23: Overall solutions for the improvement of post-disaster management
projects. ........................................................................................................................ 101
Figure 24: Map of Haiti with earthquake data (Encyclopaedia Britannica 2010). ....... 112
Figure 25: Cluster approach in humanitarian response (OCHA 2013). ........................ 118
Figure 26: Water supply, sanitation and hygiene promotion (Sphere Project 2015). . 118
Figure 27: Map of Iran (Source: www.geographic.org, used with permission). .......... 119
Figure 28: Bam BRO structure (World Bank 2004c, p. 46). .......................................... 123
Figure 29: Project implementation chart for the Bam Earthquake Emergency
Reconstruction Project (World Bank 2004c, p. 44). ..................................................... 123
Figure 30: Disbursement profile (World Bank 2016). ................................................... 124
Figure 31: Map of Pakistan indicating flooded areas (MCT 2010). .............................. 128
Figure 32: Management and governance of the UNDP’s Early Recovery Programme
in Pakistan (adapted from UNDP 2013). ....................................................................... 131
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Figure 33: UNDP coordination and support structure based on Inter-Agency
Standing Committee (IASC) UNDP Early Recovery Policy (UNDP 2013, p. 24). ............ 136
Figure 34: Location of Tonga’s Niuatoputapu island (Koper 2010). ............................. 138
Figure 35: Memo from Red Cross Haiti Program Director (St Fort 2011). ................... 155
Figure 36: Map of the Philippines (adapted from Globalsecurity.org 2016). ............... 160
Figure 37: BMFI’s organisational structure in 2015 (BMFI internal document, pers.
comm. 15 February)...................................................................................................... 161
Figure 38: Map of Mindanao (Source: Wikipedia)........................................................ 162
Figure 39: Members of a barangay together with the barangay captain (5th from
left) and the researcher in front of a SkyHydrant (Source: Author’s own 2016,
unpublished). ................................................................................................................ 169
Figure 40: Barangay residents waiting to receive mosquito nets and listening to the
information session given by the health department (Source: Author’s own 2016,
unpublished). ................................................................................................................ 170
Figure 41: Barangay captain during mosquito net distribution (Source: Author’s
own 2016, unpublished). .............................................................................................. 170
Figure 42: Map of Panay with location of President Roxas (Source:
http://kalibo.tukcedo.nl/panay_prov.jpg). .................................................................. 171
Figure 43: Map of Fiji, showing the location of the Tauvegavega settlement on the
left and Ovalau Island on the right (adapted from Maps of the World 2015). ............ 177
Figure 44: Deployment plan for various DAA project managers for the relief
projects (DAA internal document, pers. comm. 9 April 2016). .................................... 180
Figure 45: Map of Nepal showing the epicentre of the earthquake between
Kathmandu and Pokhara (BBC 2015)............................................................................ 186
Figure 46: Respondents’ professional profiles. ............................................................ 209
Figure 47: Opinions on challenges within interdisciplinary and collaborative teams. . 210
Figure 48: Solutions to challenges. ............................................................................... 210
Figure 49: Key features of Agile in disaster management. ........................................... 212
Figure 50: Core skills needed to implement an agile methodology for disaster
management. ................................................................................................................ 219
Figure 51: Perceived barriers to implementing an agile framework for disaster
management. ................................................................................................................ 220
Figure 52: Likelihood of adopting Agile within respondents’ organisations. ............... 223
Figure 53: A standard agile project delivery framework. ............................................. 238
Figure 54: An adapted agile project delivery framework for DM projects................... 238
Figure 55: An agile framework for managing post-disaster projects. .......................... 241
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List of Tables
Table 1: Main challenges in Project Integration Management. ..................................... 28

Table 2: Main challenges in Project Scope Management............................................... 29
Table 3: Main challenges in Project Time Management. ............................................... 30
Table 4: Main challenges in Project Cost Management. ................................................ 31
Table 5: Main challenges in Project Quality Management............................................. 32
Table 6: Main challenges in Project Human Resources Management. .......................... 33
Table 7: Main challenges in Project Communications Management. ............................ 34
Table 8: Main challenges in Project Risk Management. ................................................. 35
Table 9: Main challenges in Project Procurement Management. .................................. 36
Table 10: Main challenges in Project Stakeholder Management. .................................. 37
Table 11: Areas for improvement. .................................................................................. 39
Table 12: Existing bodies of knowledge.......................................................................... 54
Table 13: Quantitative research methods (Silverman 2006, p. 37). ............................... 66
Table 14: Purposes of mixed methods research (adapted from Venkatesh,
Brown & Bala 2013). ....................................................................................................... 70
Table 15: Loose definition of key attributes of challenges under development for
this study. ........................................................................................................................ 73
Table 16: Summary of desktop case studies and reason for selection. ......................... 76
Table 17: Summary of live case studies with country facts and project backgrounds. . 78
Table 18: Types of data collection. ................................................................................. 81
Table 19: Common tools used for quantitative data analysis (adapted from
R Foundation 2016)......................................................................................................... 85
Table 20: Interviewee profiles. ....................................................................................... 94
Table 21: Challenges faced by organisations when working with interdisciplinary
teams. ............................................................................................................................. 96
Table 22: Suggested improvements to overcome challenges and better deliver
projects. .......................................................................................................................... 97
Table 23: Use of PM in DM projects. .............................................................................. 98
Table 24: List of critical attributes. ............................................................................... 106
Table 25: Summary of challenges and issues based on interviews. ............................. 107
Table 26: Four desktop case studies. ............................................................................ 111
Table 27: Early Recovery Programme – funding by district and beneficiaries (UNDP
2013, p. 27). .................................................................................................................. 132
Table 28: Project cost by component (World Bank 2014, p. 21). ................................. 141
Table 29: Highlight of outputs from desktop case studies. .......................................... 157
Table 30: Four live case studies. ................................................................................... 159
Table 31: Highlight of outputs from live case studies. ................................................. 199
Table 32: Key project management features and challenges. ..................................... 201
Table 33: Profile of study sample. ................................................................................ 207
Table 34: Ranking of key features of Agile for disaster management.......................... 212
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Table 35: Ranking of perceived benefits of an agile framework for disaster
management. ................................................................................................................ 214
Table 36: Ranking of the desirable elements of an agile framework for disaster
management. ................................................................................................................ 216
Table 37: Ranking of core skills needed to implement an agile methodology for
disaster management. .................................................................................................. 219
Table 38: Ranking of perceived barriers to implementing an agile framework for
disaster management. .................................................................................................. 221
Table 39: List of critical attributes for DM projects. ..................................................... 226
Table 40: Differences between a traditional waterfall PM versus an agile method
(created for this study). ................................................................................................ 234
Table 41: A comparison between traditional and agile methods for IT projects
(Nerur, Mahapatra & Mangalaraj 2005, p. 75). ............................................................ 235
Table 42: 12 adapted agile principles for DM projects................................................. 236
Table 43: Features and Benefits (FAB) Matrix. ............................................................. 240
xii
Glossary of terms
AIIMS – Australasian Inter-Service Incident Management System

An incident management system for fire and emergency services agencies
which is nationally recognised in Australia and utilises an all-agencies approach
to manage bushfires and other natural disasters, e.g. floods, storms, cyclones.
Barangay
Village or local community, the smallest administrative unit in the Philippines.
Beneficiary
In this study refers to person/people receiving money or other benefits from
funding organisations or donors.
DINEPA – Direction Nationale d'Eau Potable et d'Assainissement

National Directorate for Water Supply and Sanitation in the Haitian Ministry of
Public Works.
Disaster Management / Emergency Management

These terms are used interchangeably based on the context or reference
source and are understood to have the same meaning in this dissertation.
Technically, an emergency is an event which can be responded to within the
capacities and capabilities of the affected location, state or country, while a
disaster is an event during and after which the capacities and capabilities of the
affected location, state or country are overwhelmed and outside assistance is
sought.
Disaster/Emergency/Crisis
Used to mean an event or situation which brings about instability and/or
danger to an individual, a community or a society – socially, economically,
politically or environmentally.
Donor
A person, organisation, or entity making voluntary donations of goods or
money.
Emergency Management Plan / Disaster Management Plan / Emergency Response

Plan
Technically, all businesses, education establishments, hospitals, governments
etc. should have an EM, DM or ER plan which is kept updated to meet all
regulatory standards. The purpose of these plans is to ensure that the entities
are prepared for emergencies or disasters. The plan includes the organisational
structure, procedures and processes to manage an emergency or disaster. It
comprises of preparedness and mitigation strategies, in addition to response
and recovery procedures. The plan assigns roles and responsibilities for the
control of an event and the coordination of response and recovery activities
xiii
following an event. This includes efficiently ensuring the availability and
capacity of resources to manage the event.
Emergency Services
Police, fire and ambulance services.
Force account
Work ordered on a construction project without an existing agreement on its
cost and performed with the understanding that the contractor will bill the
owner according to the cost of labour, materials, and equipment, plus a certain
percentage for overhead and profit (Dictionary of Construction.com 2016).
Kurambos
A Visayan slang word referring to a pool of resources or budget from a group
that can be shared.
Management/Leadership
Used interchangeably in this dissertation to mean dealing with, controlling,
directing, commanding and supervising people, organisations or entities.
MoU – Memorandum of Understanding

A bilateral or multilateral agreement between two or more parties
NGO – Non-governmental organisation

A not-for-profit organisation, normally funded through donations and
independent from any government or state organisation or department. The
role of an NGO is to provide a service for public good.
Post-disaster projects
In the context of this dissertation, these are projects which are managed during
the relief and recovery phases after a natural hazard has occurred (there are
also technological or man-made hazards). Post-disaster projects cover the
following:
- Relief projects – the first 96 hours after a disaster when there is a high
sense of urgency
- Recovery projects – crossing and overlapping from relief to short- and long-
term recovery where the focus is on rebuilding, restoring and rehabilitating
- Both relief and recovery projects
Recovery phase
Recovery is divided into different phases: early/short-term and medium- to
long-term recovery.
Short-term recovery is a period characterised by stable facilities, shelters in
secure structures, ready availability of food and water; normal daily life has
resumed and schools have reopened, etc.
xiv
Medium- to long-term recovery involves rebuilding, reconstruction, restoration
of social, cultural, economic and religious structures, bringing back stability to
affected communities.
Relief phase
The relief phase following a natural disaster refers to the first 96-hour period
when affected communities have the greatest need for shelter, food, clean
drinking water and medicines.
SPHERE Standards & Handbook

The Sphere Handbook, Humanitarian Charter and Minimum Standards in
Humanitarian Response are a set of common principles and minimum
standards which must be applied when delivering humanitarian aid. The
SPHERE Standards and Handbook bring together a group of humanitarian
agencies who participate in its use (Sphere Project 2015).
Traditional projects / Traditional project management

Projects delivered/implemented for commercial gain/profit by organisations.
These projects are managed utilising traditional linear waterfall methods.
xv
Glossary of abbreviations
ACNC Australian Charities and Not-for-profits Commission

ARC American Red Cross
ATS Applicant tracking system
BMFI Balay Mindanaw Foundation Inc.
BRO Bam Reconstruction Office
BEERP Bam Earthquake Emergency Reconstruction Project
CBT Community-based teams
C&C Command and control
CCPM Cluster Coordination Performance Monitoring
CDO Cagayan de Oro
CDRRMC City Disaster Risk Reduction Management Council
CDRRMO City Disaster Risk Reduction Management Office
DENR Department of the Environment and Natural Resources
DAA Disaster Aid Australia
DAI Disaster Aid International
DART Disaster Aid Response Team
DRM Disaster risk management
DRR Disaster risk reduction
ERA Early Recovery Advisors
ERP Early Recovery Program
GoT Government of Tonga
HQ/HdQ Headquarters
IBRD International Bank for Reconstruction and Development
ID International development
IFRC International Federation of Red Cross and Red Crescent Societies
INGO International non-government organisation
ICG Island container gardening
NDMA National Disaster Management Authority
NERC National Early Recovery Committee
NHq National headquarters
xvi
NTT Niuatoputapu
OCHA United Nations Office for the Coordination of Humanitarian Affairs
PM Project management
PMC Project Management Comittee
PMO Project or programme management office
PMU Project management unit
PNS Participants National Societies
PR President Roxas
R&R Roles and responsibilities
SEMP State Emergency Management Plan
SIADO Sustainable Integrated Area Development Organiser
TCERP Tonga Cyclone Emergency Recovery Project
UN United Nations
UNDP United Nations Development Programme
WASH Water, Sanitation and Hygiene (Cluster)
xvii
Abstract
The increasing volatility of our global environment is proving a major challenge for
governments, aid and private organisations in delivering effective and efficient post-
disaster relief and recovery project management (PM). When disasters strike,
especially when consequences become catastrophic, demands on all resources and
capabilities in the affected countries exceed supply. The traditional PM decision-
making system is impeded by overly bureaucratic and political issues, and in addition
there is a lack of local knowledge and ability to diffuse problems. Therefore, it is
essential for the disaster management (DM) community to consider alternative
methods to enable more effective PM and assist those affected to transition from
post-disaster chaos to smooth recovery.
DM projects, especially post-disaster relief and recovery projects, are not well
represented in PM literature. These projects, managed by international organisations
in beneficiary countries, have a poor success rate. The literature review identified key
challenges and deficiencies in best practices for managing projects in the areas of
consultation, communication, collaboration, cooperation, lessons learned, decision
making, roles and responsibilities, flexibility/adaptability and leadership. Empirical data
was obtained through interviews, eight case studies and a survey. Data collection via
interviews and international case studies and the subsequent triangulation with a
survey provided a thorough and robust methodology.
The analysis of data from the interviews confirmed that PM was not applied
consistently, professionally or even semi-professionally in post-disaster projects, with
communication and consultation, collaboration and coordination as well as resources,
roles and responsibilities identified as the main challenges. The interviews and case
studies confirmed that these factors are key skills and attributes which are not only
contributory to project collapse but also highly contributory to project success,
especially in areas such as beneficiary acceptance and fitness for purpose. The case
studies also produced firm examples of project implementation in which key skills and
attributes were utilised effectively and successfully. The survey reinforced the
xviii
empirical data collected and contributed to the design of an agile framework for post-
disaster projects.
Based on the findings, an agile framework for post-disaster projects was developed
and proposed utilising key skills and attributes. To address the complexity of managing
post-disaster projects, it is recommended that organisations pay particular attention to
these key skills and attributes required to achieve project success and beneficiary
acceptance. Based on previous methods employed by organisations involved in DM
projects, this thesis strongly suggests the use of an adaptable PM approach fitting for a
volatile environment. Thus, it is recommended that private and not-for-profit
organisations and governments consider utilising the agile framework for managing
post-disaster projects developed in this thesis as it brings together a series of key
attributes, features and required skills. The framework further allows these key
attributes and features to be adapted to suit the needs, requirements, environment
and maturity level of the implementing organisation in order to assist affected
communities to transition from chaos to recovery in the most sustainable way. This
framework proposes a holistic approach to DM by putting the
beneficiaries/stakeholders of the projects first. It is hoped that the proposed
framework will benefit project implementation through the provision of fit-for-
purpose deliverables, sustainable outcomes and more resilient communities. Based on
the survey outputs and the outcome of the study, 29% of organisations are likely and
10.6% are highly likely to adopt an agile methodology while 12.8% already use an
adaptable methodology.
Key words: disaster management, recovery projects, project management,

construction, agile project management, post-disaster project management.
xix
Declaration
This thesis presents work carried out by myself and does not incorporate without
acknowledgment any material previously submitted for a degree or diploma in any
university; to the best of my knowledge it does not contain any materials previously
published or written by another person except where due reference is made in the
text; and all substantive contributions by others to the work presented, including
jointly authored publications, are clearly acknowledged.
Marie Desiree M Beekharry Monday, 5 June 2017
xx
Acknowledgments
I wish to express enormous gratitude to all the participants of the semi-structured

interviews, the case studies and the survey.
Thank you to my supervisors, Dr. Tony Ma and Dr. Rameez Rameezdeen.
Most especially, deepest gratitude to:
• Disaster Aid Australia and David Langworthy, who opened their doors to me,
connected me to their members and DART teams, assisted me in developing
one part of the case studies and recommended me to Balay Mindanaw.
• Balay Mindanaw and Charlito “Kaloy” Manlupig, the team at Cagayan de Oro
and President Roxas, for making me feel welcome and for assisting me to grow,
not only as a researcher but also as a parent.
Last but not least, a loving thank you to my husband, my greatest supporter, and our
son whose morning hugs gave me the energy to push on. Your patience and tolerance
is what got me here. Merci de tout mon coeur, les noonays …
Special acknowledgment:
With sincere gratitude to the University of South Australia Postgraduate
Award (USAPA) and the Research Training Program (RTP) Domestic Fee Offset
Scholarship.
xxi
CHAPTER 1 Introduction
1.1 Background
This research investigates how agile project management methodology can be applied
to post-disaster projects. This and the following sections will provide the full
background on the necessity of this research.
The prevalence of natural hazards causing major disasters in every corner of the
developed and developing world has left governments, management professionals and
international aid communities hungry for solutions to a faster recovery. Recent
examples of such disasters which can be classed as extreme events, both due to the
lives lost and to the economic cost, include the Indian Ocean tsunami in 2004,
Hurricane Katrina in 2005, the Haiti earthquake and the Pakistan floods in 2010, the
2011 Tohoku earthquake and tsunami, the April 2015 earthquake in Nepal, Typhoon
Haima in the Philippines in October 2016 and the recurring New Zealand earthquakes.
According to the CRED/OFDA International Disaster Database (EM-DAT 2016),
2.7 billion people were affected and 1.1 million people killed by natural disasters
between 2000 and 2011, and the cost of such disasters over these 12 years alone was
in excess of US $1.3 trillion. Unfortunately, international development (ID) projects
delivered by aid organisations to developing countries, including post-disaster projects,
have a poor performance rate according to beneficiaries and stakeholders – an opinion
which seems to be the rule rather than an exception (Ika, Diallo & Thuillier 2012).
From the moment a natural disaster hits, DM professionals move into response and
recovery mode. Response agencies provide first assistance to save lives and protect
those in danger and vulnerable, while recovery also begins immediately afterwards.
Post-disaster relief and recovery efforts include medical attention, body identification,
clearing away rubble and debris, providing transport access, survival requirements,
dispensing water purification kits and cooking utensils, food, safe areas, relocation,
shelter as well as general living and psychological support (Seneviratne,
1
Baldry & Pathirage 2010, p. 379). Repairs and the reconstruction of homes, hospitals,
roads, bridges, railways and schools need to be coordinated in addition to
reconnecting telecommunications, electricity, gas and water supply for tens of
thousands of affected people (Rotimi, Wilkinson & Myburgh 2011, p. 163). A plethora
of aid agencies mobilise into the affected areas; the media and official and unofficial
volunteer agencies also form, disembark and begin assisting the affected communities.
Regional, state, national and international governments as well as private
organisations also attempt to be part of the recovery solution.
Managing all these activities and coordinating the number of actors on location makes
DM a complex area. ‘Disaster “management” implies a degree of control which rarely
exists in these situations. Hence, standard management tools, as we know them, may
not apply to disaster situations’ (Altay & Green III 2006, p. 484). It is therefore essential
for the DM field to consider alternative management methods which will enable the
affected communities and those assisting them to transition from post-disaster chaos
to a smooth recovery and stability. Following a disaster, disaster managers and several
organisations operate at the same time within this complex environment, and the
management of disasters is undertaken under extreme conditions. Success can only be
achieved if:
the evolving emergency management structure is an open organization, aware of and
adjusting to the rapidly changing external environment, showing the importance of
improvisation, adaptability, and creativity to the management of this transition from
chaos to stability (Harrald 2006, p. 261).
Project management (PM) is now undoubtedly a professional discipline with high-level

qualifications, certification and best-practice models available around the globe.
Disaster management (DM) projects are complex projects operating within a complex
system, not only because they are labelled as high-priority and critical for human
survival and rapid recovery, but also because of the multidisciplinary and participatory
networks which are required to achieve a successful outcome. Unlike PM, however,
DM can best be described as an emerging discipline. DM activities are led by
governments, non-government organisations (NGOs), aid and private organisations,
2
and while these organisations employ professionals and experts in their respective
fields, a more coordinated, flexible and adaptable approach is required to make their
activities more effective.
PM methodologies can assist and complement DM project activities following large-
scale extreme events. Because there is great demand on all kinds of resources and
capabilities in the affected countries, because preparedness plans are no longer viable
and often the location which once was no longer exists, managing projects requires a
professional PM approach: ‘This is usually a complex undertaking requiring high levels
of management capability and resources availability’ (Baroudi & Rapp 2011, p. 18). The
traditional centralised “command and control” (C&C) arrangements which are in place
in most countries to manage disasters can only operate in an effective manner if like
organisations are involved. The need to manage resources from various organisations
such as governments (local and foreign), the military, aid agencies, non-profit
organisations, donors, logistics providers and other volunteer groups adds a level of
complexity to an already challenging management situation. Hence, DM requires
planning or preparedness but also a degree of adaptability and flexibility during the
response and recovery phase. So if a degree of discipline is required in the planning for
pre-disaster preparedness and mitigation, an equal degree of post-disaster agility is
absolutely necessary to enable a swifter response and recovery.
The Project Management Institute (PMI) developed a methodology for post-disaster

reconstruction following the Indian Ocean tsunami of 2004. While this methodology is
a great step forward for PM in relation to managing post-disaster projects, the
methodology still applies the linear, sequentially based waterfall model which is not
sufficiently adaptable and flexible in such complex situations. The more complex a
project becomes, the more uncertain the project’s characteristics become, and
therefore, the more adaptive the methodology must be.
Agile project management is a proven flexible and adaptable approach to managing
projects in a volatile environment. While the project vision is clear, the approach does
not lock down fixed requirements. Instead, through extensive consultation,
collaboration and communication with stakeholders, Agile delivers a quality that is fit-
for-purpose using the most up-to-date and available business, technological and
3
market intelligence. In addition, this approach is particularly effective when resources
are finite and the project team is empowered to deliver its required outputs (Cooke
2012, p. 6). This means not only that dependencies and interrelationships are
constantly assessed, but also that alternative solutions are sought and weighted
against technical, cultural, economic, political, operational and legal implications to
ensure success probability (Hass 2008).
1.1.2 Rationale
Traditional projects and DM projects share the following similarities (Baroudi & Rapp
2011):
• They are both temporary endeavours with a start and end date;
• They both fall within a programme;
• They involve a number of resources in specialised and non-specialised fields;
• They involve the coordination and management of a group of tasks and
activities to form a whole and to be achieved within a certain timeline;
• They involve the careful balancing of core objectives time, cost, scope and
quality; and
• They involve multiple stakeholders.
Despite these similarities, whereas traditional projects have the choice of specifying
which area of these core objectives (time, cost, scope, quality) will be the most
significant for project success, DM projects are almost always a race against time. Time
is the difference between lives saved and lives lost, pre-empting and protecting against
the next cascading catastrophe, ensuring shelter and survival of the community,
protecting the environment and the economy in the affected area. The race against
time requires efficiency and effectiveness in management, coordination and specialist
skills.
Several researchers in the fields of DM and PM have acknowledged the need for
improved management of post-disaster activities/projects in general (Heath 1998;
Harrald 2006; Moe & Pathrananarakul 2006; Quarantelli 2006; Thanurjan & Indunil P
Seneviratne 2009; Seneviratne, Baldry & Pathirage 2010; Baroudi & Rapp 2011;
4
Brandon 2011; Nivolianitou & Synodinou 2011; Chang et al. 2012; Grigg 2012;
Crawford, Langston & Bajracharya 2013; Abulnour 2014). Other researchers have
focused on the application of decision-making frameworks or systems to better
manage post-disaster projects (Camerer & Kunreuther 1989; Kreps 1991; Klein et al.
1993; Mendonca, Beroggi & Wallace 2001; Altay & Green III 2006; Baumgart et al.
2006) or advocated for and put forward DM frameworks or models to better manage
such projects (Anthopoulos, Kostavara & Pantouvakis 2013; O’Sullivan et al. 2013). A
handful of research in the field of international development has also been
undertaken, though again limited work has been done to consider critical PM success
factors in ID projects (Crawford & Bryce 2003; Diallo & Thuillier 2005; Khang & Moe
2008; Ika, Diallo & Thuillier 2012; Hermano et al. 2013).
However, research into a new approach in the management of disasters from a PM
perspective is scarce. Much is said about the deficiency in knowledge when it comes to
the application of PM to DM projects, especially in times of crisis. In addition, aside
from the obvious deficiencies which do exist in the realm of PM in DM, the
development and sharing of lessons learned from crises is greatly lacking.
With this in mind, the scope of this thesis is limited to the application of project
management practices within the field of disaster management.
1.1.3 The need for collaboration between project and disaster management
The PMI’s Project Management Body of Knowledge (PMBoK) provides professionals,

industries and professional fields with the standards and framework to deliver
preferred outcomes in challenging and complex environments. The Project
Management Methodology for Post-Disaster Reconstruction highly encourages
collaboration between the two professions while ensuring quality and accountability
through governance processes. However, this methodology is so close to the PMBoK®
Guide itself that it would require time, training and practice to ensure its usage. Time
and practice is a luxury post-disaster projects cannot afford. In these situations, the
majority of manufacturing and supply systems is likely to be damaged together with
the other local infrastructure and thrown into chaos (Nazara & Resosudarmo, 2007).
5
However, with ‘the inadequacy of resources and capacities to rebuild … largely
overlooked’ (Chang et al. 2010, p. 248), the implementation of post-disaster projects
becomes particularly difficult and it is unsure whether project leaders would have the
necessary skills not only to adapt to the situation but also to consult a guide book.
According to Moe and Pathranarakul (2006) and Le Masurier et al. (2008), post-
disaster projects are unsuccessful and require re-work or suffer substantive disruptions
due to failure to procure the required resources. Research into managing post-disaster
projects has led to recommendations to alleviate the NGOs’ resource constraints and
to facilitate close coordination and communication with aid agencies and
governments, and priority should be given to ‘the development of market mechanisms
and improvements in policy-making to enable a variety of post-disaster resource
options’ (Chang et al. 2010, p. 261).
According to the Asian Development Bank, it takes time to achieve full recovery. While
the capacities of local communities and governments are likely to be overwhelmed
after large-scale disasters, it becomes critical to obtain lacking resources from
international sources. To be sustainable, however, full recovery and reconstruction
also needs to take the affected communities to a level where they can achieve
economic independence. Figure 1, which is based on the 2013 Typhoon Yolanda in the
Philippines, shows a timeline which incorporates lengthy relief, recovery and
reconstruction phases.
Figure 1: Duration of post-disaster efforts per phase (ADB 2014).
6
According to the ADB Shared Lessons on Post-Disaster Recovery document following
the Regional Knowledge Forum on Post-Disaster Recovery, a ‘strategic framework to
guide recovery is needed in the aftermath of a disaster’ (ADB 2015), complete with
long-term development strategies, short- and medium-term needs, budgetary
requirements and coordination mechanisms between government and non-
government stakeholders. Most importantly, given the time it takes to implement
recovery programmes, one of the most important lessons from this forum was in
regards to the flexibility of the approach, ‘during which different priorities may be
addressed at different periods … and … adjusted over time to meet evolving needs’
(ADB 2015).
Figure 2 provides a visual summary of the characteristics of PM and DM, showing

where they are different but also how closely they can be aligned so that DM can be
carried out by utilising PM processes.
Figure 2: Comparison between project lifecycle and disaster management phases

(Moe & Pathranarakul 2006, p. 401).
DM activities are principally the responsibility of government departments and

agencies. Such activities require planning, organising, mobilising resources, monitoring
and controlling the activities and the environment for additional risks (especially for
cascading events) and the completion of activities. As noted above, DM projects
involve aspects which are very similar to the PM lifecycle.
7
For this thesis, existing PM knowledge and practices as acquired through a literature
review and other data collection methods will be combined and overlayed with the
issues and challenges associated with DM activities in order to review where
improvements to key features are required and how they can be utilised to better
deliver post-disaster projects and obtain success.
1.2 Research aims, question, objectives and contribution
1.2.1 Research aims and main research question
The aim of this research is to investigate the requirements of an agile PM methodology

to natural disaster projects. In obtaining these requirements, it will be possible to
design or put forward a proposal on how to apply an agile methodology to natural
disaster projects. The study will examine the benefits of PM best practices and
methodologies in the context of disaster management for a more efficient and
effective transition from chaos to recovery and, eventually, to stability for
communities affected by a disaster. It attempts to provide project managers and
disaster managers with the appropriate tools to manage and implement projects in a
more effective manner. It is envisaged that an agile PM framework can be developed
as a guide to aid post-disaster projects and a versatile tool for traditional project
managers or disaster managers to broaden their skills base.
The research aims to answer the following main research question (MRQ):
How can an agile methodology best be applied to the management of natural

disaster projects for more effective outcomes?
8
1.2.2 Research objectives
The research will seek to achieve the following objectives:

(i) To assess the current PM practices in post-disaster projects;
(ii) To evaluate which elements of best-practice PM are most essential for an
adaptable methodology to manage post-disaster projects;
(iii) To understand the issues and challenges and seek potential solutions for
the management of post-disaster projects;
(iv) To examine whether national and international organisations face similar
issues and challenges and how an adaptable methodology would impact
post-disaster projects; and
(v) To propose an agile framework which can be applied to post-disaster
projects.
The objectives will seek to answer whether project management is being applied and
at what level, what would be the requirements for an adaptable methodology, what
gaps exist and what possible solutions are proposed. A further goal is to discover
current practices within national and international organisations.
1.2.3 Research approach
Based on a preliminary scan of the literature, DM projects were found to have limited
success and several gaps were identified, leading to the proposal for the research
topic.
Following an extensive critical literature review, a series of ten semi-structured

interviews were undertaken to gauge the current involvement of project management
within the DM realm. Case studies were then chosen as the main form of data
collection since the subject matter required real-life context to obtain data.
Furthermore, a questionnaire survey was utilised for triangulation to ensure the
robustness to the study.
Chapter 3 elaborates on the research methodology and the various methods utilised
for this thesis. The flowchart in Figure 3 provides an overview of the research design.
9
Figure 3: Flowchart of the research design.
10
1.2.4 Research contribution
The PMI’s body of knowledge (BoK) provides PM professionals, industries and

professional fields with the standards and framework to deliver preferred outcomes
within challenging and complex project environments. However, research linking PM
and DM is scarce (see Chapter 1.1.2), despite the increased need for better project
management in the field of disaster management, and despite the increase of disasters
and the associated costs and funding around the world.
This research anticipates a contribution to the professional fields of project

management and disaster management by providing a practical application of the
existing PM best practices to DM. The research also anticipates recommending
improvements to the existing Project Management Methodology for Post-Disaster
Reconstruction (PMIEF 2015). In addition, the research anticipates providing PM
professionals an avenue for knowledge and field expansion into the field of disaster
management.
1.3 Structure of the thesis
Chapter 1 provides background to the topic and objectives of the dissertation. It is

important from the onset that the research problem is clearly defined and that the
main research question is clearly articulated. The chapter therefore represents the
scope of work for this study and its deliverables.
Chapter 2 provides the literature review and an overview of disaster management and
how post-disaster projects are managed. Reasons for successes and challenges are
explored from different fields around the world. The purpose of developing this
chapter is to provide support for the research, identify key deficiencies and provide an
understanding of why it is important to apply an appropriate PM approach to post-
disaster projects.
11
Chapter 3 discloses the methodological framework which is utilised in this research.
The chapter refines the research question, aim and objectives and clarifies the
methods used to achieve the aim and objectives in order to answer the research
question. Various types of research methods as well as the research design concept
are introduced and explained. The chapter closes with an explanation of which
methodology is applied to this research, including interviews, case studies, surveys and
content analysis.
Chapter 4 begins the data collection to respond to objectives 1 and 2. A series of semi-
structured interviews is conducted with professionals involved in DM who provide the
current PM practices of organisations active in disaster relief and recovery projects.
The chapter also reviews the elements of best practices required to manage post-
disaster projects by using an agile methodology. The findings of the interviews are
analysed and discussed using qualitative and quantitative methods.
Chapter 5 delves into the next data collection method, the desktop case studies. These
case studies respond to objectives 2, 3 and 4 of the study. By utilising results obtained
from the semi-structured interviews, it is possible to build a picture of key features
which are current challenges and to compare them to these case studies. The
documented desktop case studies are concerned with four projects by four
international organisations in Iran, Pakistan, Haiti and Tonga after the impact of
natural disasters. Document and content analysis is performed, key PM challenges are
outlined and a highlight of the outputs is provided.
Chapter 6 continues to collect data from case studies to respond to objectives 2, 3 and
4; however, this time with “live” cases. These are projects which are still in progress or
just completed and have not been archived and made publically available. The data
collection for these case studies was performed in the Philippines and in Australia with
the assistance, collaboration and participation of two NGOs managing post-disaster
projects locally and internationally. The same qualitative analysis process is adapted as
for the desktop studies, the findings are discussed in-depth based on PM best
12
practices, and a highlight of the outputs is provided in addition to a synthesis of the
findings.
Chapter 7 is the analysis of a questionnaire survey performed as a means of obtaining

a broader view on the findings. This is intended to ensure the robustness of the
research, to confirm the outputs of the data collection and also to provide some key
outputs to move further in the development of a framework. The chapter concludes
with the findings of the survey, based on the key features identified by the research
thus far.
Chapter 8 provides in-depth discussions on all the findings, including triangulation. In

addition, the chapter reviews all the outputs to support the design and proposal of a
framework. Based on the discussion regarding the benefits, features, elements and
barriers as well as the necessary skills, an agile framework for managing post-disaster
projects is designed and proposed.
Chapter 9 is the final chapter, in which the research is concluded in addition to offering
its contribution to the existing body of knowledge. This chapter also addresses the
limitations of the research and provides recommendations for future research.
13
CHAPTER 2 Literature Review
2.1 Introduction
The first chapter provided a general introduction to the research and what is to be
achieved. This section provides a thorough review of the literature on the areas which
are introduced, their importance and the current status of research in the particular
fields of disaster management (DM) and project management (PM), and identifies any
key deficiencies where further research is required.
The format of the literature review follows a progressive line, divided in sub-sections.
The review begins by providing a description and common understanding of natural
disasters and an overview of the various types of natural disasters (as seen in Figure 4).
An explanation and common understanding of contemporary DM and examples of DM
approaches are shown in Figures 5 and 6. Next, an in-depth view of the complexities of
DM is reviewed with the assistance of the research available to date, and Figure 7
provides a visual of the many aspects of DM and the reasons for its complexities. We
then look at the innumerable challenges reported by various researchers with regards
to DM projects. Eleven tables are created, comparing the various best practices for
knowledge areas within the context of traditional projects to DM projects (see
Tables 1-11), which clearly illustrates why managing post-disaster projects has been
fraught with issues and failures.
The review’s focus then moves specifically to the issues of management, consultation
and collaboration, which have been contributory factors to severely hamper the
delivery of DM project activities. The key deficiencies identified from the literature
review are then presented in order to better gauge and confirm the direction of the
research, and a conclusion completes the literature review. Following on from this, an
overview of the most common PM standards, methodologies and guidelines are
presented (see Table 12). An introduction to and a brief discussion of the PMI’s
14
methodology for post-disaster reconstruction ensues, leading to the need for this
research.
2.2 The nature of disaster management
There are numerous definitions of disasters. According to Comfort (2005, p. 338), a

disaster ‘represents the interdependent cascade of failure triggered by an extreme
event that is exacerbated by inadequate planning’. Enrico L. Quarantelli, the luminary
in disaster studies, is the founder and long-time director of the Disaster Research
Centre in Delaware and considers a disaster to have the following essential features.
They:
(1) are sudden-onset occasions; (2) seriously disrupt the routines of collective units; (3)
cause the adoption of unplanned courses of action to adjust to the disruption; (4) have
unexpected life histories designated in social space and time; and (5) pose danger to
valued social objects (Perry, RW 2007, p. 10).
Interestingly, Tarrant (2006, p. 9) describes disasters as typically infrequent, large and
complex events with the requirement of non-routine management from people,
organisations and communities.
With these above definitions in mind, we conclude that disasters have the capacity to
destroy lives in the hundreds and thousands, devastate the natural and built
environment to the extent of paralysing an entire geographic location or groups of
countries, have severe impact on the economic stability of the affected region or
regions, and also require non-traditional management of rescue and recovery efforts.
Disasters can be classified as natural or technological (man-made). This research will

focus on natural disasters, i.e.:
powerful and sudden climatic and meteorological assaults such as blizzards,
hurricanes, and tornadoes, as well as more drawn out episodes (such as heatwaves
and drought). Avalanches, earthquakes, landslides, tsunamis, and volcanic eruptions
are also natural disasters (Baum, Fleming & Davidson 1983, p. 335).
15
Figure 4 provides a classification of natural disasters as obtained from the Annual
Disaster Statistical Review:
Figure 4: Classification of natural disasters (Guha-Sapir, Hoyois & Below 2013,

p. 10).
According to the International Federation of Red Cross and Red Crescent Societies
(IFRC), disaster management is the ‘organization and management of resources and
responsibilities for dealing with all humanitarian aspects of emergencies, in particular
preparedness, response and recovery in order to lessen the impacts of disaster’ (IFRC
2017). According to Jain (2008, p. 366), DM deals with:
a spectrum of activities designed to maintain control over disaster and emergency
situations and to provide a framework for persons at risk to avoid and remove from
the impact of disaster (…) involves both the pre-disaster preparedness and post-
disaster response at primary (i.e., the target areas, the community) and secondary
(i.e., institutions and agencies, usually urban based) levels.
Like projects, no disaster is identical, and the impacts and consequences are just as
dissimilar. Factors such as variation in geographical, economic, social and religious
conditions are the main reasons for this dissimilarity. Modern DM in its most
comprehensive form is based on the four pillars of prevention, preparedness, response
and recovery (also known as PPRR). Prevention is also called mitigation, depending on
16
the framework used, but has the same meaning. Modern DM is also known as
“integrated disaster management”, ‘an iterative process of decision making regarding
prevention of, response to, and recovery from, a disaster’ (Simonovic 2011, p. 31).
Emergency Management Australia (EMA) supports the need for an integrated
approach involving PPRR and the various organisations which participate within the
realm of DM; however, for this to occur, ‘arrangements need to be set within a
legislative and public policy framework’ (EMA 2004). Like in the PM lifecycle, while
there are quite distinct linear processes, the processes can also be iterative,
overlapping and requiring flexibility.
• Building codes Insurance

• Building use regulations Incentives/disincentives
• Legislation Zoning
• Public education & information Tax incentives/disincentives
Prevention
• Emergency response plans Public education & information

• Warning systems Resource inventories
• Evacuation plans Training programs
• Emergency communications Test exercises
Preparedness • Mutual aid agreements Refuge shelters
• Plan implementation Evacuation

• Emergency declarations Mobilise resources
• Warning messages Damage assessment
• Public information Search and rescue
• Registration and tracing Provide medical support
Response • Inform higher authorities Institute public health measures
• Activate coordination centres Provide immediate relief
• Restore essential services Long-term medical support

• Counselling programs Manage public appeals
• Temporary housing Restore public assets
• Financial support/assistance Economic impact studies
• Distribute recovery stores Review development plans
Recovery • Public information Initiate reconstruction tasks
Figure 5: Australia’s comprehensive approach to emergency management – PPRR

(adapted from EMA 2004, p. 5).
Examples of disaster management approaches can be found in Figures 5 and 6.

Projects undertaken during the post-disaster activities in the recovery phase are the
main focus of this research; however, as mentioned above, due to the nature of the
lifecycle the projects will overlap from response to recovery, and any practical
outcomes of the research should be implemented to any area of DM.
17
Figure 6: Disaster Management Lifecycle (Coppola 2011, p. 10).
Recovery falls broadly into the categories of reconstruction and restoration. Recovery
should begin as soon as the hazard has passed during response and relief, starting with
short-term recovery with emergency shelters, medical services, clearing of debris,
restoring vital utilities and providing water and food supplies. Long-term recovery is
about achieving cultural, social and economic stability in the affected communities,
regaining psychological health and rebuilding life which is safer and more sustainable
(Shaw 2006, p. 8).
Post-disaster recovery projects also fall back into pre-disaster preparedness and
mitigation, following the school of thought that there will likely be a next disaster as
some countries are prone to the same hazard more frequently than others (e.g.,
floods, typhoons, cyclones, earthquakes). This approach is summarised quite
adequately by Kim and Choi (2013, p. 148):
Several experts advise that for effective flood prevention and recovery, it is preferable
to prepare for disaster prevention than to focus on post-disaster rebuild (PDR),
because the possible occurrence of unforeseen major disasters is on the rise.
International development (ID) projects fall within the DM umbrella and cover the
spectrum of projects from prevention and preparedness to response/relief and
recovery while post-disaster projects focus only on the relief and recovery phases.
18
So in summary, a natural disaster is when a natural hazard impacts a community, a
state, a country or group of countries, causing excessive loss of life, crippling services
and utilities, impacting local, national or international economies and leaving the
affected communities unable to cope without the assistance from external sources.
Integrated DM deals with the spectrum of PPRR activities, and while the United
Nations’ focus has been on disaster risk reduction since 1999 (UNISDR 2015), there are
currently several issues to be addressed in the realm of response and recovery.
Disaster management focuses on improving resilience through mitigation and
preparedness and, hence, minimising risk, and on improving response rates and
ensuring a speedier, smoother and more holistic route from chaos to recovery.
2.3 Complexities in disaster management
In common terms, when something is said to be complex, it is understood that there

are many “things” or aspects involved (Simonovic 2011), several factors at play which
are hard to control, and many changes happening simultaneously which are even
harder to keep track of. There is a series of actions, reactions, connections and
relationships, all of which have their own independent and inter-dependent links and
causal effects.
A complex system can be interpreted as one which exhibits behaviours which cannot
be easily anticipated or described. Society is a complex system. Numerous links of
relationships, interactions and interconnectedness between the systems affect
behaviour in ways that cannot be anticipated. ‘Complexity theory is concerned with
the behavior over time of certain kinds of complex systems’ (Thomas & Mengel 2008,
p. 307), including ‘populations – or aggregations of individuals in inter-dependent
relationships – and the interaction of these individuals with their environment,
governed by the principle of equilibrium or homeostasis’ (Schneider & Somers 2006,
p. 352). Mileti (1999, p. 107), who strongly advocates a global systems perspective,
states that, if we are to consider the systems approach, disaster losses are the result of
interactions among three systems and their many subsystems:
19
• Earth’s physical systems (the atmosphere, biosphere, cryosphere, hydrosphere
and lithosphere);
• human systems (e.g., population, culture, technology, social class, economics,
and politics); and
• the constructed system (e.g., buildings, roads, bridges, public infrastructure,
housing).
Park, Seager and Rao (2011, p. 396) also acknowledge the interdependence between
complex networks of systems as a factor which increases the risk of disaster. When
disasters strike – especially when their consequences become catastrophic, such as
after Hurricane Katrina and the Tohoku earthquake and tsunami – the event is ‘marked
by destruction, death, physical injury and human suffering that causes permanent
changes to human societies, ecosystems and the environment’ (Braga et al. 2008, p. 2).
Following a large-scale catastrophic event, there is great demand on all kinds of
resources and capabilities in the affected countries. If we consider the complexity of
Hurricane Katrina, where the natural disaster was the hurricane, the floods brought on
by the failure of the levy set off another chain reaction due to the proximity of homes,
the unpreparedness of the community and their inability to react due to poverty,
infirmity, vulnerability, etc. Accordingly, Faulkner (2001, p. 136) states that crises and
disasters illustrate chaotic situations and the complex interrelationships between
human and natural systems.
Other sources of complexity can come from the interaction of people with technology,
the level of uncertainty associated with rapidly changing, unpredictable conditions,
and the number of critical events occurring simultaneously. This can be seen following
the Tohoku earthquake which triggered the Japanese tsunami which flooded the
nuclear reactors at the Fukushima Daiichi plant, causing a cascade of catastrophic
events. While the events were triggered by natural hazards, the man-made
catastrophe was due to negligence, ‘the direct result of errors made by both the
central government and the operating firm, including human mistakes, poor designs,
environmental flux, and regulatory flaws’ (Nakamura & Kikuchi 2011, p. 894).
20
Typically, emergency management organisations such as fire services, police,
ambulance, search & rescue and the military each have their own organisational
cultures, their own standard operating procedures (SOP), their own chain of command
and especially their own emergency management plans in place. Following a disaster,
these organisations still need to work independently, but also together with all the
other organisations and the various communities. DM organisations operate in a
complex environment where ‘diverse history, tradition, geographic location and
culture, level and type of governance etc.’ (Noran 2014, p. 1032) are at play, where the
interdependent system has collapsed, where preparedness plans are no longer viable,
and where the location which once was no longer exists. Hannah et al. (2009, p. 911)
refer to complexity as highly dynamic environments due to their interconnectedness
and the variability of the interdependencies collapsing together and producing
unanticipated consequences. When complexity occurs, seemingly small events can
interact to generate unpredictable outcomes; therefore, complexity can be said to
eventuate when many factors interact together.
The management of large disasters is complex since it impacts directly or indirectly on

several main systems. The health system is impacted as it needs to deal with mass
casualties, possibly damaged hospital infrastructure, limited human resources and
limited medical supplies in addition to the psychological health of victims and carers.
The social and cultural systems deal with loss of family and friends, loss of homes and
loss of community (Coppola 2011, p. 8), a proliferation of actors who neither
understand the way survivors live nor speak their language, all the while competing for
projects and resources (Koria 2009; O’Sullivan et al. 2013; Cosgrave 2007; Kapucu &
Garayev 2011). The religious system is affected in terms of mourning and caring for the
dead and all the rituals which death entails – often, this does not go hand in hand with
the coroner’s SOP. The economic repercussions include a surge in demand of skills, a
lack of building materials, a sky-rocketing inflation rate and other far-reaching
consequences. The Eyjafjallajökull ash-cloud event in Iceland in 2010, for example,
paralysed the Kenyan flower industry at a cost of $3 million per day and costing the
jobs of 5000 employees due to air traffic disruptions (Lee, Preston & Green 2012,
p. 13). In terms of political systems, disasters can damage or exacerbate fragile
21
situations with political regimes, e.g. in Sri Lanka (Chang et al. 2012; Delfin Jr & Gaillard
2008). The environmental system involves the interrelationship of the built, the natural
and the geographical environment. Lastly, there is also the complexity of supply chains
and logistics, such as obstructed airports, abandoned heaps of donated clothing,
vehicles and containers blocking seaports and customs areas, clogged warehouses,
costly materials and equipment deteriorating in the sun and rain, inadequate or
minimal logistics reporting, and losses or theft (Cosgrave 2007, p. 54).
Figure 7: 360° view of disaster management (adapted from

Jain 2008, p. 371).
Figure 7, an adapted version of Jain’s (2008) 360° view of disaster management,

provides a brief overview of the complex DM system. Every phase of a disaster has its
own goals and layers of complexity, which include tight timeframes, inter-
organisational involvement and collaboration within and without (Kahan, Allen &
22
George 2009; Fraser Wyche et al. 2011), and every sub-area of these phases has a
function which needs to work like a well-oiled machine. Following a disaster, it is this
360° interconnectivity, inter-relational, interdisciplinary, collaborative and cooperative
interaction which is sought.
When the demands from disasters overstretch the national capabilities and resources
– which is often the case following large-scale catastrophes – DM becomes increasingly
complex due to the cross-jurisdictional and international interactions which become
vital. Disaster management, ‘which is dynamic and adaptive, involves cross boundary
integration and a diverse mix of people’ (O'Sullivan et al. 2013, p. 239). The
complexities of disasters should not only include crisis management at the macro level
but also at the micro level, indicating an urgent need to look at the social
infrastructure to influence the capacity of affected communities. In addition,
organisations need to break down the thinking within silos and adopt a collaborative
lens – however, adopting this attitude is precisely what makes managing disasters so
complex, as organisations must not only overcome and adapt to other cultural
management methods but also because of other principles such as emergence,
connectivity and self-organisation. In their research, O’Sullivan et al. (2013) emerged
with four core themes of complexity: managing in dynamic contexts, situational
awareness and interconnectivity; planning that is sufficiently flexible to allow for
adaptive response, and active engagement and the challenges raised of working
collaboratively.
Following an event, the traditional centralised “command and control” (C&C)

arrangements which are in place in most countries to manage disasters can operate in
an effective manner, providing that like organisations are involved. Dynes (2000, p. 5)
refers to C&C as the military model, where the decision makers are far removed
geographically from the disasters (as these occur at a more local level), and the
attitude is focused on response with very little emphasis on preparedness, mitigation
and recovery. Post-disaster, the traditional C&C decision-making system is impeded by
overly bureaucratic and political issues, and in addition there is a lack of local
knowledge and ability to diffuse problems. The social process following a disaster is
23
what makes a disaster complex, and the traditional C&C decision-making system has
proven ineffective and inadequate as it largely ignores the local communities, which,
though compromised, would be a great source of knowledge, understanding and
background information regarding local conditions:
Even in major disasters, most resources, including people, still exist and continue to
function, even in these difficult situations. Utilizing those resources through
coordination and cooperation should be the goal of disaster management (Dynes
2000, p. 5).
Noran (2014) notes that there is no one-size-fits-all solution on how to manage a crisis
because every disaster event is unique. The author goes on to suggest an
interdisciplinary approach and collaborative DM system which would be compatible so
that organisations do not impede one another’s processes and progress. As most
organisations are operating within a global business environment, managing projects
with insufficient resources and know-how, a collaborative network would be the
solution to the fierce competitiveness amongst NGOs for resources by bringing about
efficiency and interconnectedness, which would be reflected in the communities being
assisted.
To conclude this section, complexity in DM means the involvement of a variety of

systems: both internal and external, national and international environments which
include aspects such as culture, geography, societies, religion, politics, economics,
services, products, materials and logistics, stakeholders and customers, all of which are
expected and required to operate within a high level of uncertainty following a large-
scale disaster event. DM organisations are required to make decisions based on these
uncertainties. In a stable environment, each one of these systems works in symbiosis
and is expected to function independently should one of the other systems fail.
However, after a large-scale disaster such as the Haiti earthquake, the Indian Ocean
tsunami or the Eyjafjallajökull volcanic eruption (Lee, Preston & Green 2012),
consequences can not only be catastrophic but far-reaching geographically and
economically, which will in turn have secondary or cascading effects – with
repercussions onto other countries, economies and cultures.
24
2.4 Challenges in disaster management projects
As seen in the previous section, managing disasters and their associated activities
comes with extraordinary challenges. It is a complex undertaking in equally complex
organisational, cultural, political and environmental surroundings and therefore
requires careful consideration.
The aim of this section of the literature review is to highlight the issues raised in the
management of large-scale post-disaster projects. It is important to note that the
majority of research currently available is in the realm of response and post-disaster
reconstruction, followed by management of medical emergencies and response.
However, the lessons and key learnings raised are applicable to any type of post-
disaster project as they refer to the management of post-disaster activities from
response through to recovery. Altay and Green III (2006, pp. 483-484) put forth that
the term ‘management’ requires a degree of control which ‘rarely exists in these
situations. Hence, standard management tools, as we know them, may not apply to
disaster situations.’ Tables 1 through to 11 have been created to illustrate in detail a
list of challenges (though by no means exhaustive) when comparing the management
of routine projects to post-disaster projects. What these tables clearly show is that
more structure, more resources, more support and more research is required to
provide a robust framework or methodology to manage post-disaster projects.
The challenges facing DM are very well described and presented in the following event
chain considerations:
1) DM activities are not a linear and constant process but can be affected by
external events, which can occur at any point during the DM activities or
tasks.
2) Events can have cascading effects and therefore cause a number of other
events (known or unknown) which will alter the course of the DM activities
– hence they are called event chains. Qualitative and quantitative analyses
will determine the anticipated time delays.
25
3) The event or multiple events which will most likely affect management
activities will be the critical event chains which are more often encountered
after large-scale disasters. DM ‘procedures could be tremendously
augmented through the presence of a disaster manager who can assign,
coordinate and monitor the various tasks in order to ensure maximum
efficiency’ (Abulnour 2014, p. 122).
This last point is further supported by Baroudi and Rapp (2011, p. 22): According to PM
directives, one single person should be the main contact point and responsible for
managing the various activities and stakeholders involved. Therefore, within the realm
of DM, a disaster manager could be viewed as a project manager.
Post-disaster activities and projects are undertaken to rebuild and recover what has
been destroyed, damaged or lost. In a traditional project environment, best practice
standards are put in place to ensure that projects follow certain guidelines from
initiation to closure in order to achieve success, in addition to best practice guidelines
related to specific professional fields, e.g. risk, fire safety, electrical, construction,
engineering, medical, etc. Projects which are delivered during the response and
recovery phase of DM include debris removal to clean up affected areas from ‘broken
tree limbs, glass, brick, wood, fiberglass insulation, furniture, office equipment,
overturned cars, even classified docs’ (McEntire 2002, p. 373). Other projects include
the set-up of medical facilities for triage and providing medical attention. The
coroner’s office will have their procedures for body identification and will also require
setting up their specialised locales. Some of the biggest projects will be in the field of
reconstruction, restoration and repairs to homes, hospitals, roads, bridges, railways,
airports, ports, and schools. In addition, the project coordination to reconnect
telecommunications, to supply electricity and gas, and to restore sanitation and water
supply for tens of thousands of affected people will need to occur at the same time
(Rotimi, Wilkinson & Myburgh 2011, p. 163). As noted previously and not to be
underestimated, there is also the coordination and management of (foreign) aid
agencies. Cosgrave (2007, p. 55) notes a persistent flow of international agencies
overwhelming the affected regions, varying in capacity from large and well-resourced
26
to very small ones, competent and incompetent, well prepared and unprepared,
secular and faith-based, reputable and disreputable, household names and unknown,
ambitious and humble, opportunistic and committed, governmental and non-
governmental, national and international, bilateral and multilateral, well-established
and just-formed. Following the Indian Ocean tsunami in 2004, it is estimated that there
were over 150 NGOs and registered donors plus an equal amount of unregistered
entities in one location in India alone.
Tables 1 to 11 outline and illustrate the main differences and challenges faced in PM
during traditional projects and DM projects. These tables, though by no means
exhaustive, are based on the PMBoK® standards (PMI 2013) for traditional projects
and have been separated according to PM knowledge areas (KAs). The following
sources have been consulted for the lists of challenges in DM projects: Abulnour 2014;
Baroudi and Rapp 2011; Brandon 2011; Chang et al. 2012; Koria 2009; Moe and
Pathranarakul 2006; Rotimi, Le Masurier and Wilkinson 2006; Seneviratne, Baldry and
Pathirage 2010; Zhong and Pheng Low 2009.
27
2.4.1 Project Integration Management
Integration Management is the bringing together of all the processes and activities to
deliver projects, including documentation of PM. It is the culmination and
consolidation of knowledge, practice and decision making for the allocation of
resources, best practice and skills of applying PM to satisfy project stakeholders,
making trade-offs or managing interdependencies to deliver a project successfully (PMI
2013). In practice, Integration Management is not linear but a series of overlapping
interactions. When applied to a DM context, the challenge is to wait until a disaster
has occurred before any of the processes can be actioned, and the shortages and
complexities associated with most KAs are what makes managing post-disaster
projects such a challenge.
Knowledge area Routine projects Disaster management projects

Project Integration • Project plans and all project • Inability to integrate all activities due to
Management documents are baselined and issues in the other KAs
approved with the intention • Common PM protocols and standards not
that the project will be delivered widely used
against the plans • Major logistical challenges (people,
• Integrated change controls are expertise, technology)
in place • Projects are delivered in environments
• Best practice standards are where geographical, infrastructure and
applied community systems are destabilised
• Lack of coordination at international,
national, local, organisational and project
level
• Post-disaster PM activities cannot proceed
in a linear or uniform manner due to the
“event-chain, critical events or critical chain
of events” principle
• Planning must be balanced and flexible
• Emergency management plans, which serve
as initiation and projects management plan
documents, can only be actioned once a
hazard has occurred
• Emergency management plans cannot be
too specific or must be hazard-specific
• Disasters are complex and emergency plans
are too prescriptive in the situation after
the hazard has impacted
Table 1: Main challenges in Project Integration Management (Abulnour 2014; Baroudi &
Rapp 2011; Brandon 2011; Chang et al. 2012; Koria 2009; Moe & Pathranarakul 2006;
Rotimi, Le Masurier & Wilkinson 2006; Seneviratne, Baldry & Pathirage 2010; Zhong &
Pheng Low 2009).
28
2.4.2 Project Scope Management
Scope Management ensures that the project will deliver the work required, all the
work required and only the work required. Most often, this KA is about managing what
is not required and ensuring that “scope creep” – the addition of work which is “out of
scope” – is included in the project. Post-disaster, scope has to be broadly defined until
needs are assessed based on what has been observed, but also in consultation with
beneficiaries. Even then, depending on the availability of resources, all that is known is
the funding that has been allocated for the project and perhaps the time permitted to
disburse the funding.

Project Scope • Scope and requirements • Insufficient time to gather needs and
Management documents completed requirements to suit affected
• Exclusions, inclusions, communities/stakeholders
constraints known • Scope inclusions and exclusions incomplete
or unknown due to unknown location of
project until hazard impacts and damage
assessed
• Monitoring needs, expectations and
requirements of affected
communities/stakeholders is a challenge as
no clear definition exists
• Projects fail or are indefinitely delayed due
to unskilled management, lack of
resources, and lack of funds
Table 2: Main challenges in Project Scope Management (Abulnour 2014; Baroudi & Rapp
2011; Brandon 2011; Chang et al. 2012; Koria 2009; Moe & Pathranarakul 2006; Rotimi, Le
Masurier & Wilkinson 2006; Seneviratne, Baldry & Pathirage 2010; Zhong & Pheng Low
2009).
29
2.4.3 Project Time Management
According to best practice PM, project time is managed by a well baselined schedule –
prepared using an Excel spreadsheet or a specific PM software, e.g. Microsoft Project,
Mavenlink, JIRA, Intervals etc. These scheduling tools will define the project in terms of
resources, start and finish date/time, sequencing, dependencies, critical path, duration
and definition of activities, etc. Changes to the scheduled baseline update and change
the schedule, and of course there is a trade-off between time, cost and quality that
needs to be carefully weighed. Post-disaster, while time is of the essence, time is not
always on the side of the project team. This is because the availability of resources,
locations and cascading events are large unknowns in such a situation. The trade-off is
not about the time-cost-quality triangle as per traditional projects. The trade-off is
about securing and keeping affected communities safe, delivering fit-for-purpose
deliverables and ensuring that the funding allocated to the project is not withdrawn if
not spent within a certain deadline.

Project Time • One of the core objectives of • Time is of the essence
Management any project • Inadequate planning time for projects
• Appropriate scheduling of all • All activities performed simultaneously and
project activities agreed upon not phased
• Schedule is phased to • Delays in obtaining approvals and consents
accommodate resourcing • Project start and delivery dates are delayed
• Schedule baseline set due to lack of planning
Table 3: Main challenges in Project Time Management (Abulnour 2014; Baroudi & Rapp
2009).
30
2.4.4 Project Cost Management
Cost Management in PM involves ‘planning, estimating, budgeting, financing, finding,

managing and controlling costs so that the project can be completed within the
approved budget’ (PMI 2013, p. 193). Post-disaster, once projects receive the green
light, the budget is approved as it is most often based on funding donations. This
budget is not based on any kind of estimating, needs assessments or prior discussion.
The project is green-lit without any prior detailing and therefore cannot be baselined.
Due to lack of time, resources and other innumerable challenges, the project is often
not baselined. In addition to issues such as political embargoes, embezzlement or
money transfers, there are no effective project controls in place – especially for cost.

Project Cost • Budgets calculated, agreed • Early funding details not available to assist
Management upon and accepted by sponsors in works prioritisation process
• Reserves agreed upon and • Cost can be seen as inconsequential due to
signed urgency of situation
• Cost baselines set • Delays in funding allocation
• Best practice standards applied • Cost surge
• Profiteering
• Suspension of rebuilding due to
overstretched budgets
• Increase in energy prices
• Inflation
• Funding gaps
• Breakdown in communications results in
increased costs
Table 4: Main challenges in Project Cost Management (Abulnour 2014; Baroudi & Rapp
2009).
31
2.4.5 Project Quality Management
Quality Management in projects refers to ensuring that the how and the what that is
delivered meets the needs of the sponsors and the beneficiary groups. Post-disaster,
fit-for-purpose is the more appropriate term, in addition to ensuring that the quality
includes some form of resilience to the next disaster and that the project deliverables
are sustainable.

Project Quality • Quality standards are set by • Products delivered (e.g. houses built)
Management industry below standard due to poor quality of
• Quality standards are set by materials and workmanship
sponsors and stakeholders • Poor quality from previous post-disaster
• Best practice quality standards recovery projects bring about more asset
are set by projects distruction and fatalities/injuries
• Laws and regulations not in place or
enforced to ensure standards
• Due diligence required to obtain best
quality with limited resources
• Projects must be delivered and be fit-for-
purpose
Table 5: Main challenges in Project Quality Management (Abulnour 2014; Baroudi & Rapp
2009).
32
2.4.6 Project Human Resources Management
Human Resources Management involves the ability to assemble, organise, manage and
lead the project team. Roles and responsibilities, tasks, and activities are carefully and
meticulously recorded (such information is normally linked to costing, budget, salaries,
etc.). Post-disaster, skilled resources and staff are scarce and often need to come from
other countries, have little cultural, linguistic or other local experience, and may or
may not have knowledge and experience in managing relief and recovery projects.

Project Human • PM professionals employed • Effective leaders and managers are not
Resources • Skills ensured necessarily developed, trained or available
Management • Qualifications ensured • Shortfalls in experienced personnel
• Contractor and supplier skills • Nationally available resources in
controlled construction industry might need to be
• Projects have contracts with mobilised to cope with large-scale disasters
employment agencies • Competent and experienced staff to
• Appropriate time allowed to manage large, complex and challenging
source out the necessary labour projects required
force • Lack of appropriate technical, managerial
• Appropriate training provided if and PM knowledge and experience
necessary • Delays in communications result in misuse
of resources
Table 6: Main challenges in Project Human Resources Management (Abulnour 2014; Baroudi
& Rapp 2011; Brandon 2011; Chang et al. 2012; Koria 2009; Moe & Pathranarakul 2006;
Pheng Low 2009).
33
2.4.7 Project Communications Management
Communications in projects must occur throughout all KAs. Its role is to ensure that all
details required to deliver the project are communicated in a timely and accurate
manner. This includes ‘planning, collection, creation, distribution, storage, retrieval,
management, control, monitoring and ultimate disposition of project information’
(PMBoK® 2013, p. 287). Traditionally, project managers spend 90% of their time
communicating to their staff, stakeholders, sponsors, boards, committees and the
public. Following a disaster, communication is a highly desirable skill which is vital in
the effectiveness and efficiency of project success. Additional skills such as cultural and
religious sensitivity, foreign languages and political knowledge are also highly sought
after.

Project • Linear and cyclic models of • Structures required to allow flexibility at various
Communications communication levels according to certain rules
Management • 2-dimensional • Simultaneous involvement of several
communications with project organisations (known and unknown)
teams (personal and • Decision making is hindered
documentation); operating • Involvement of management at local, regional,
procedures state and national government
• Based on • Transnational cooperation with non-
“command & control” government organisations and public
principles • Liaising with local communities on cultural,
• Communications to project religious and economic grounds
team, internal and external • Liaising with first responders and emergency
stakeholders are clearly services managing disasters
defined • Major gaps in information flow due to technical
and structural issues or clashes with
organisational cultures
• Information is not shared
• Information is not timely, target of information
not defined, sender of information not clarified
• Styles of communication cause
misunderstandings
• Lack of coordination in communication activities
• Inconsistencies in messages to citizens
• Gap in information coordination and
information sharing
• Coordination of intra- and inter-organisation
communications
Table 7: Main challenges in Project Communications Management (Abulnour 2014; Baroudi
& Rapp 2011; Brandon 2011; Chang et al. 2012; Koria 2009; Moe & Pathranarakul 2006;
Pheng Low 2009).
34
2.4.8 Project Risk Management
Risk Management (RM) in projects involves planning, identifying, assessing, mitigating,

monitoring and controlling the risks. The aim of RM is to ensure that the project is able
to capitalise on any opportunities created while decreasing the probability of being
affected by any negative events. Post-disaster, one of the greatest risks are the
“unknown unknowns” which go beyond the imaginations of most planning teams
(Taleb 2007). A traditional project team would lack the ability to be adaptive and think
“out-of-the-box” in a highly volatile situation.

Project Risk • High-level project risks • Lack of skills and knowledge in disaster risk
Management identified at time of initiation management to identify risk issues and
• Projects risks are identified, mitigation options
classified, analysed, assessed • Skills required to identify and manage
and mitigated using all available challenging situations
tools and techniques • Skills required to prevent secondary and
• Risk management performed by tertiary events with negative impacts
project team throughout the causing more damage and lives lost
project • Skills required for rapid damage assessment
• Best practice standards applied
(e.g., ISO 31000:2009,
IEC 31010:2009,
ISO/TR 31004:2013)
Table 8: Main challenges in Project Risk Management (Abulnour 2014; Baroudi & Rapp
2009).
35
2.4.9 Project Procurement Management
The Procurement KA is about putting in place all the processes necessary to purchase
or acquire resources, materials, skills, merchandise, supplies, suppliers and
contractors, involving the negotiating and issuing of contracts or purchase orders for
goods and/or services. These procurement processes are often negotiated and put in
place with sufficient time prior to project start and with string tendering processes in
place. Post-disaster, the same process is attempted with limited choices of suppliers
and contractors of goods and services. In addition, as most post-disaster projects are
public or not-for-profit projects, probity is one of the challenges.

Project Procurement • Goods and services are • Lack of resources for large-scale
Management procured based on reconstruction
organisational directives and • Insufficient time to perform resources
following standard procurement planning and preparedness
methods, contracts and legal • Insufficient time to perform resource
requirements mapping
• Goods and services are • Insufficient time to set up procurement
procured to meet agreed protocols
project schedule timeline • Resources procured and imported from
• Resource mapping is other countries
established and controlled • Requirement to source/develop resource
• Best practice standards applied alternatives
• Insufficient time to analyse and
comprehend trajectory of resource
demands
• No bulk contracts should be considered for
recovery projects
• No pre-determined contracts for land,
construction, houses, etc.
• Excessive energy input, excessive energy
loss
• Procurement resources include the
following areas: medical, food, temporary
shelters, transport vehicles, machinery,
building supplies, educational material in
appropriate language, clothing for
appropriate climate, etc.
Table 9: Main challenges in Project Procurement Management (Abulnour 2014; Baroudi &
Pheng Low 2009).
36
2.4.10 Project Stakeholder Management
Stakeholder Management involves the careful identification of people, groups or

organisations who are, could be or think they could be impacted by the project.
Stakeholders need to be managed appropriately based on the level of power and
influence they have. Stakeholders can make or break a project, subject the project to
costly delays and become a reputational issue to the project owners. Communication
and consultation rate high in this KA and, if not well managed, will be to the project’s
detriment. Post-disaster, stakeholder management is critical. Stakeholders are
international and national governments and world media, the population whose lives
have been negatively affected by the tragedy, as well as the individuals and
organisations that can benefit from such a tragedy.

Project Stakeholder • Stakeholders identified • Stakeholders are all members of the
Management • Level of power, influence, community affected
commitment and engagement • Stakeholders also include: governments,
assessed donors, lending agencies, beneficiaries,
• Stakeholder management plan contractors, social, religious and
put in place and managed environmental groups
throughout the project
Table 10: Main challenges in Project Stakeholder Management (Abulnour 2014; Baroudi &
Pheng Low 2009).
37
2.4.11 Additional challenges
According to the PMI’s 2015 Pulse of the Profession® study (2015), ‘projects of high-
performing organizations successfully meet goals two and a half times more often, and
these organizations waste 13 times less money than their low performing
counterparts’ when project or program management is well embedded within these
organisations. According to the Good Governance Guide (2016), governance is the
process of decision making and the process by which decisions are implemented or
not. The guide further notes that good governance is accountable, transparent, follows
the rule of law, is responsive, equitable and inclusive, effective and efficient as well as
participatory.
According to the PMBoK® Guide (PMI 2013), lessons learned are one of the most
“value-added” aspects of the PM lifecycle. Unfortunately, they are also the most
forgotten or ignored part of project completion. Even if the lessons-learned process is
in place and time is taken to perform an activity around this aspect, it is rarely utilised
before the project is complete, as clearly exhibited by a structured survey by Kotnoor
(cited in Walker 2008; see Figure 8).
Figure 8: Structured questions and responses (Kotnoor 1999, cited in

Walker 2008).
Table 11 outlines some of the critical governance, lessons learned and other project-
related issues which are essential to be rectified in order to achieve a more efficient
and faster decision-making process in all post-disaster projects.
38
Challenges
Governance • No formal processes in place to cover all emergency work required – too many
processes for each activity
• Higher level of coordination and management needed for programmes
• Recovery manager lacks statutory power to direct resources for recovery
• Regulatory and legislative processes for reconstruction after large-scale disasters
do not currently exist
• Unclear line of authority
• Roles of DM specialist not sufficiently augmented to coordinate, monitor and
control processes to maximum efficiencies
• Management competence of agencies implementing projects varies
• Governments need to take charge of management and include their agencies,
private and public organisations
• DM projects should be led by an emergency management body whose leader
should be seen as a project manager
• Role of authorities should be to support, facilitate and provide resources
Lessons Identified & • Centralised planning is effective, but decentralised implementation brings success
Knowledge • Knowledge and experiences gained from DM actors remain within the individual
Management or their organisations
• Individuals and organisations bring tacit knowledge and there is no capture,
repository or recycling of knowledge or information learned from previous
disasters
• Approaches and strategies learned from previous experiences not shared or taken
forward to next event
• Communities are placed more at risk due to lack of knowledge and information
sharing
• Lack of immediate endemic information including resources, demographics,
population distribution, etc.
Table 11: Areas for improvement (Abulnour 2014; Baroudi & Rapp 2011; Brandon 2011;
Chang et al. 2012; Koria 2009; Moe & Pathranarakul 2006; Rotimi, Le Masurier & Wilkinson
2006; Seneviratne, Baldry & Pathirage 2010; Zhong & Pheng Low 2009).
The primary challenges posed by the large programmes of work and the incessant
influx of aid population after disasters are in the area of management – this includes
leadership and decision making. Koria (2009, p. 124) states that there are also
challenges in the area of having authority to coordinate large and complex
emergencies and the increasing proliferation of actors like that which occurred
following the Indian Ocean tsunami. The key challenge is how to best manage these
programmes of projects and the surge of actors in light of the cascading effects which
have been created. These cascading challenges include the procurement of resources
to reconstruct, restore and repair and human resources ranging ‘from unskilled or
untrained laborers and volunteers to experts in technical fields relating to
infrastructure, construction, planning, logistics, and specialized equipment’
39
(Coppola 2011, p. 395). In addition, there is competition amongst aid organisations for
scarce resources and best projects, cost escalation, inflation, but also the substandard
quality of reconstructed structures due to inadequate skills of workers (Anthopoulos,
Kostavara & Pantouvakis 2013; Hidayat & Egbu 2010; Lyons 2009). This of course
points to a vicious cycle in geographical areas prone to natural disasters where the
original structures were not built to the highest quality due to these same problems
and achieving sustainable construction seems to be a quest. Issues also arise in areas
of funding allocation and corruption (Lyons 2009).
Kapucu and Garayev (2011, p. 336) suggest that current emergency, crisis and disaster
management tools have so far not proven to be effective and that hierarchy and
centralisation have to give way to decentralisation and the need for collaboration in
emergency management. The authors further affirm that, while collaborative decision
making has been broadly addressed by researchers, there has been limited attention
and adoption from the emergency management field. In addition, they also state that
such collaboration has a number of challenges, in particular decision making:
Collaborative emergency management, though, which focuses the application of
networked coordination, collaboration and partnerships in crisis, disaster, and
emergency settings emphasizing decentralized and flexible structure along with
relevant administrative and service delivery adjustments, brings its own distinctive
issues to the table. One of these issues is collaborative decision-making (ibid.).
What can be summarised from this sub-section and the illustration in Tables 1 to 11 is
that, while the same processes and phases should exist in standard projects and post-
disaster projects, the challenges to manage post-disaster projects are exponentially
greater through each phase due to the uncertainty brought about following a disaster.
2.5 Issues with management
This section will review management and leadership from a post-disaster perspective.
While scholars have long debated the definition of these two terms, no universally
40
accepted definition exists. According to Northouse (2004, p. 3) leadership must contain
the following traits or themes: ‘(1) leadership is a process; (2) leadership involves
influence; (3) leadership occurs in a group context; and (4) leadership involves goal
attainment’. The author adds that leadership is ‘a process whereby an individual
influences a group of individuals to achieve a common goal’ (ibid.). Management,
according to Koontz and Weihrich (2010, p. 4), is ‘the process of designing and
maintaining an environment in which individuals, working together in groups,
efficiently accomplish selected items’. However, according to Kotter (1990, p. 103),
‘leadership and management are two distinctive and complementary activities. Both
are necessary for success in an increasingly complex and volatile business
environment’.
In this section, both terms (“management” and “leadership”) are used interchangeably
based on the context.
Up until the point of an emergency, standard management tools work relatively well
because the imminent sense of urgency is absent in managing the various activities
from a prevention or mitigation and preparedness standpoint. Upon impact of the
disaster, the focus changes to urgency, immediacy and life-threatening consequences,
for which, as noted earlier, the standard management tools are no longer adequate.
An extensive search of the available literature revealed that very little research has
focused solely on the area of management and leadership in DM. While many articles
widely acknowledge their need, few studies have been made solely on leadership and
management after large-scale disaster events. This lack of interest and research is
surprising given the fact that crisis management and disaster recovery are important
skills and areas of competence for public and private sector managers (Bau,
Ritchie & McMullan 2012; Ritchie 2004). However, much is written about the need to
review the management/leadership style during disasters. Brandon (2011, p. 87)
mentions delays in projects due to the complexity on location affecting the daily
running of the projects and issues such as those referred to in Tables 1 to 11, especially
in areas of human resources, procurement and cost management, but also in the area
of governance where weak management and government policy was a main
41
contributing factor. Hannah et al. (2009, p. 911) also state that, in addition to the lack
of related research in the field of leadership, recent studies have raised concern
specifically in the field of crisis and recovery.
One particular example worth noting is in Koria’s (2009) case study of the recovery
programmes and projects of an international non-government organisation (INGO) in
Sri Lanka following the Indian Ocean tsunami in 2004. The author notes that the
structures within individual member organisations were standard line management
practices, and regular involvement between the national and international actors was
also standard. Each national member of the INGO had its own management practices
and decision-making processes, and there was a large variance in performance ability.
Such organisations rely on their branding, a steady volunteer base, codes of ethics and
conduct to pave the way and have indeed gained much experience in leading post-
disaster recovery activities and projects. However, while functioning best in an
emergency, they are not effective in recovery activities as lessons learned are not
identified and brought forward to improve performance. Furthermore, following the
Indian Ocean tsunami, even with solid experience, sufficient funding and a defined
mandate the recovery operation of the INGO was wrought with difficulties from the
start. Projects and therefore whole programmes experienced extensive delays from
execution through to closure. In terms of programme management, scope definition,
cost and schedule suffered mainly due to the various political agendas which had
negative effects at project level. From a programme and project management aspect,
the following were noted: lack of clarity in management roles, generalist line managers
had been managing construction programmes and projects, and insufficient or not
fully competent resources were used. Standard protocols and basic industry-standard
PM and planning tools had been rarely used, and for a funded programme worth USD
300m not one formally authorized or certified project manager had been employed.
The findings revealed the following major issues:
(i) the structure or set-up that was used to manage programmes and projects; (ii) the
managerial practices linked to the management of programmes and projects; and (iii)
the competence and ability that is fielded to manage the programmes and projects
(Koria 2009, p. 128).
42
The root causes of the above issues were that there had been as many approaches to
planning, executing and controlling of programmes and projects as there were actors
and member organisations – the necessity to find one common method to manage the
programmes and projects became significant. Contributing factors were lack of
competent and experienced staff at project level (and even fewer at programme level),
political interference and lack of buy-in to the matrix organisation.
Following an event, disaster managers and several organisations operate at the same
time within a complex environment, and the management of disasters is undertaken
under extreme conditions. Successful management can only be achieved if:
the evolving emergency management structure is an open organization, aware of and
adjusting to the rapidly changing external environment, showing the importance of
improvisation, adaptability, and creativity to the management of this transition from
chaos to stability (Harrald 2006, p. 261).
According to Hosseini and Izadkhah (2010, p. 190), emergency managers are faced
with several issues which affect their activities, such as: the variances between normal
and emergency conditions after a disaster; the challenges of decision making under
pressure; the need for frequent communication; shortage of resources; loss of human
resources; and keeping control of the whole situation, colleagues, staff and actors who
are under extreme psychological pressures.
There is currently an abundance of literature on management and leadership needs to

focus on adaptability and flexibility. Boin et al. (2005) advocate that there is a clear
need to understand leadership from all ‘pillars’ of comprehensive emergency
management, i.e. PPRR (prevention, preparedness, response, recovery). The authors
further put forth that abilities such as flexibility, communication and networking,
decision making in crisis, urgency, information seeking and planning have been
neglected and need to be enhanced. Already in the early 1990s, Kreps (1991, p. 33)
emphasised the need for flexibility and improvisation in his guidelines for emergency
management professionals:
43
Without improvisation, emergency management loses flexibility in the face of
changing conditions. Without preparedness, emergency management loses clarity and
efficiency in meeting essential disaster-related demands. Equally importantly,
improvisation and preparedness go hand in hand. One need not worry that
preparedness will decrease the ability to improvise. On the contrary, even a modest
effort to prepare enhances the ability to improvise.
Burnett (1998, p. 479) later supported this view by stating that flexibility, evaluation
and possible modification of strategic plans and integration was required at all stages
of the strategic management process, and the length and breadth of these
adjustments depended on the nature, magnitude, scale and time urgency of the
disaster. Nevertheless, a couple of decades down the road we find the same
challenges arising, and researchers are still campaigning for the same cause. According
to Kielkowski (2013, p. 62), while the role of leaders and management is to guide their
organisation by ensuring appropriate planning and practice, the organisation must also
be led and prepared to understand that crisis situations will require flexibility in their
actions. Waugh Jr and Streib (2006, p. 132) point out the paradox in EM that, while
response does require meticulous planning, emergency managers have to be adaptive,
innovative and able to improvise, because seldom do disasters go according to plan.
Two examples of flexibility in DM can be found in the literature. They occurred

during/following these two natural disasters:
(i) Hurricane Sandy in October 2012

Response and recovery teams were prepared and ready for the impending hazard.
When the “superstorm’s” trajectory veered – and the areas which were put on
alert had an emergency team ready to respond – the roles of the response teams
changed with the trajectory of the storm. Thus, the response team became the
agency supporting recovery efforts to the areas impacted more heavily by Sandy,
while the recovery team in turn became the response team. This example
demonstrates the value of having accurate weather information and a flexible
strategy which enables speedy decision making, mobilisation of resources and
44
remote communications access to disaster areas. Nevertheless, Sandy tore through
eight countries, killed over 200 people and caused extensive damage to one of the
poorest (Haiti) and one of the richest countries in the world (USA), at an estimated
cost of over USD 90 billion in the USA alone (Kunz et al. 2013).
(ii) Hurricane Katrina in August 2005

The US Coast Guard improvised its standard operating procedures (SOP) to meet
the needs caused by the crisis rather than those defined by the DM plans:
Instead we let people, professionals, exercise measured judgment about risk. That
allowed us to get more done. Was it total control? No. Was it total chaos? No. It was
the balance; the judgment of professionals about what constituted acceptable risk in
that situation that allowed us to get the most done safely … there was no single
controlling authority (Rego & Garau 2007, p. 32).
The US Coast Guard credits the leadership culture which cultivates empowerment
and improvisation: ‘Everything we do is based on four principles: adaptability,
flexibility, clear objectives, and on-scene initiative’ (ibid.).
In more recent research, there have been discussions about extreme management and
surprise management.
Extreme management is required when information flow is chaotic and renders
decision making and issues resolution problematic, when the necessary tools or
infrastructure required to fix the issues are badly damaged or completely destroyed,
when modes of communication are temporarily or severely disabled, when there is a
lack of knowledge to apply standard management, and when there is a lack of required
resources to resolve issues (Brandon 2011, p. 85). Post-disaster situations fit these
criteria, and the complexity of the situation and the need for speed in delivering
solutions following an event places management in an extreme situation compared to
the standard problem-solving process they would normally go through; hence, there is
a great requirement for new tools and processes. In addition, Brandon (2011) also puts
forth that new technologies and new thinking could impact not only the way disasters
are managed but also how society approaches the development of the built
environment. When a discipline is challenged in a formidable way, it disrupts the
45
conventional knowledge experience has taught us so that it can bring out innovation
within that field.
Surprise management, developed by Farazmand (2007), is what contends to be the
prescribed solution for survival following a large-scale disaster in hyper-complex, ever-
changing, rapidly globalised environments. The author considers events such as Katrina
or the Indian Ocean tsunami as unknown unknowns or Black Swan events which occur
out of the blue and require such surprise management. Pointing especially to the
immense EM and governance failure following Katrina, the author states that
specialised expertise is required – expertise which is outside the norm of standard
governmental structures and management processes. One of the recommendations
from his ‘Learnings from Katrina crisis’ paper touches on the lack of usefulness of
traditional emergency management:
Prepare with advanced, nonlinear, and chaos management systems that can be
applied beyond tomorrow. Prepare for an unknowable world … and manage crisis
effectively – train and develop crisis expertise with inconceivability scenarios
(Farazmand 2007, p. 156).
While the Victoria bushfires in February 2009 did not reach the disastrous scale of
Katrina, Wettenhall (2009) agrees with Farazmand (2007), suggesting that the fires
raised some very important management issues and pointing out that management of
disasters needs to be ‘flexible, robust, upgraded constantly and well informed’
(Wettenhall 2009, p. 255).
What we have observed thus far is that the management of disasters needs to change
and adapt to the rapidly changing, hyper-complex, chaotic nature and uncertain
dimensions which are brought about by and following a disaster. Managers and
leaders are required to “manage” such situations despite the uncertainty that
surrounds them, with information which may or may not be accurate or timely, and
resolve issues which are often time-critical while all the time having limited control.
The literature points to a DM strategy which promotes adaptability and flexibility,
requiring clear lines of authority. While new tools and processes are being sought,
research undertaken in the field of management/leadership in DM is still insufficient. It
46
has been observed, however, that outcomes have been more successful when
flexibility and adaptability have been incorporated into the management of disasters.
2.6 Issues with consultation, coordination and collaboration
As with any project, disaster management projects and activities also require the
involvement of their various ranges of internal and external stakeholders using
thorough communication techniques of all forms for consultation and to achieve
collaboration. Without the various entities’ willingness to work together, it can prove
practically impossible to deliver projects. Because of impaired telecommunications
infrastructure after a disaster, it is essential that this particular area be given attention
as it has a direct effect on a holistic recovery and, of course, contributes to project
success. What has been identified in the literature so far has, however, shown
otherwise: Tables 2 (Project Scope), 5 (Quality), 7 (Communications) and 10
(Stakeholder Management) are again a point of reference for some of the issues to be
outlined within this section.
Oloruntoba (2005) and McEntire (2002) contend that the management of natural
disasters requires effective collaboration between local communities, aid organisations
and local government agencies. However, Perry (M, 2007, p. 413) puts forth that, while
emergency management is legislated at state, national and international levels, it is
not sufficient to simply set high-level directives and ask organisations to collaborate.
Not only do such directives not bring about true collaboration, but they can also bring
about confusion about information, about who is leading the operation and about
delays. Noran (2014, p. 1032) notes that collaboration is built, experienced and, once
acquired, must be nurtured. Waugh Jr and Streib (2006, p. 134) assert that
contemporary emergency management is about hazard mitigation, preparedness,
response activities and recovery to restore basic services and lifelines, adding that
collaboration is vital and inevitable:
Collaborative networks are a fundamental component of any emergency response. It is
a mistake to assume that a response can be completely scripted or that the types of
47
resources that are available can be fully catalogued. It is also a mistake to assume that
any individual or organization can manage all the relief and recovery efforts during a
catastrophic disaster.
Campbell and Hartnett (2005, p. 23) suggest that the coordination of and collaboration
between various actors from national and international agencies requires strong
leadership, but according to Sommers (2000), the majority of organisations tend to still
work independently. Jain (2008) points out that, while it is most essential for such
coordination to occur in order to reduce risks, it is extremely difficult to coordinate the
multitude of actors during the recovery phase. While recovery activities are performed
by local, regional and national agencies, success depends on the disaster manager’s
ability to liaise and coordinate within the whole coordination structure. As noted
previously by Koria (2009), such an authority to coordinate is also quite problematic.
Simonovic (2011, p. 41) states the following:
Some of the key deterrents to speedy recovery are exclusion of local involvement;
poorly coordinated and conflicting demands from various government-assisted
programs; staff who are poorly prepared to deal with aid recipients; top-down,
inflexible, standardized approaches; and aid that does not meet the needs of the
affected population.
A project is normally delivered to end-users, stakeholders and sponsors based on
requirements which have been specified – else why deliver anything at all to a group if
they do not want it? Moreover, why should it be paid for? However, issues in this
regard are seen most commonly during post-disaster reconstruction. Houses and
homes are most people’s most valuable asset. Following a disaster, the rebuilding of
these homes and houses is a priority that asserts the pressure of time to protect,
shelter and manage risk of other dangers to the people. Therefore, there needs to be a
strong emphasis on consultation and collaboration with the impacted communities in
order to deliver the assistance they actually require.
In addition to the actual practical issues of rebuilding that have been noted previously
(building materials and tools, skilled and unskilled human resources, land availability,
etc.), there is a lack of understanding of what the people affected by a disaster actually
need to not only reconstruct their houses but their lives and communities. Ahmed
48
(2011) notes that houses have been built which are totally inappropriate in terms of
style, size, building material and services provided. Such issues have been raised in
research as far back as 1979 by Chisholm and, more recently, by Russell, Potangaroa
and Feng (2008). The outcomes of such projects are that recipients refuse to live in the
new homes, modify their structure or tear them down to sell the materials. Not only is
this an astonishing result of project failure, but it also demonstrates the severe
disregard and breach in consultation, collaboration and communication by agencies
towards the communities they are supposed to assist.
In contrast, when consultation, collaboration and communication are effective,

successful projects have been delivered with benefits which include sustainability,
resilience, cultural integration and indeed fitness for purpose. A perfect example is in
Koh Mook, Thailand, where 94 houses for living and fishing, costing $1,800 each, were
built by local architects. Raised on stilts over natural mangroves, the houses are
connected by “floating walkways” which also provide community spaces to the
residents. Not only do these houses meet all the necessary standards for the cultural
environment, the houses are also built to provide access to the sea and hence ensure
the livelihood of the fishermen; the local ecology is protected, as are the people who
are sheltered from storms and high seas by the mangroves (ACHR 2006).
While consultation, collaboration and cooperation have been issues raised in research
since the 1970s, the need for effective communication to achieve community buy-in
and successful post-disaster project delivery is still vital several decades later.
2.7 Key deficiencies with post-disaster projects identified within the

literature
The literature review has identified several issues and challenges which relate directly
to the management of post-disaster projects and activities. These include, but are not
limited to: disaster leadership/management expertise, lack of consultation,
49
collaboration and coordination of a broad range of stakeholders, and lack of project
management skills. In addition, it has been noted that there is a clear need for more
research to improve the noted deficiencies.
While disasters have increased in frequency, each disaster is unique and it ‘requires
tremendous agility when a natural or man-made catastrophe hits’ (Merminod,
Nollet & Pache 2014, p. 4) in order to save as many lives as possible and for recovery
to occur as quickly as possible. Areas of DM pre- or post-disaster requiring this agility
include preparedness and mitigation projects, response management, communications
management, supply chain management, relief and recovery management. Harrald
(2006, p. 260) notes that hazardous events will still occur despite mitigation activities
to reduce the risk and impacts of disasters. In order to manage the aftermath of a
catastrophic disaster, the resources required for post-event projects outweigh those
for pre-event projects due to the sheer consequences of the disasters. The need to
manage resources from various organisations such as governments (local and foreign),
the military, aid agencies, non-profit organisations, donors, logistics providers and
other volunteer groups adds a level of complexity which is even more challenging.
Figure 9: Pre- vs. post-event need (Harrald 2006, p. 261).
50
Figure 9 provides an illustration of the pre- versus post-event need and is overlapped
on Tuckman’s process of team management with storming, forming, norming,
performing and transition phases.
Hruzova and Brunet-Thornton (2011, p. 43) report that there is an obvious gap in
knowledge and research available on PM during times of crisis. Crawford, Langston and
Bajracharya (2012, p. 125) further acknowledge that, while there is considerable
literature on disaster management, there is very little which refers to the application
of project management within DM. Howsawi et al. (2014, p. 419) add that ‘theorists
and practitioners of project management need to develop their theories, assumptions,
tools and techniques to better manage projects during a national crisis’.
Hannah et al. (2009) put forth that extreme events fall outside the areas of well-
practiced operating procedures, and therefore autocratic or directive leadership may
not be completely effective. They suggest research into how leadership can balance
flexibility while at the same time having a degree of control to successfully address the
extreme event. They further suggest that adaptive leadership should be an important
focus area for research of extreme events and disaster management. In referring to
recovery programmes and projects, Koria (2009, p. 124) states that the current
theoretical base may not be fully relevant to post-disaster recovery or development
cooperation. While some research has been done on unexpected events (though more
in the areas of terrorist attacks and the strategies to manage them), it is noted that
such research should also be extended to large and complex natural disasters. The
parallels which exist between the extreme condition of a post-disaster recovery and
the mega-projects literature have also been pointed out. Ahmed (2011), Russell,
Potangaroa and Feng (2008), Jain (2008), McEntire (2002) and Barakat (2003) are but a
few authors who advocate collaboration, cooperation and consultation as the way
forward to success.
Nawaz and Zualkernan (2009, p. 164) compare a business continuity plan (BCP) to a
disaster management plan. The BCP consists of ‘preventing a disaster from occurring,
responding to a disaster during and immediately after it has occurred and resuming
51
business operations quickly after a disaster occurs’. The role of a BCP is to mitigate the
risk of business failure, protect employees from job losses and ensure the delivery of
products and services (Alonso & Boucher 2001); a BCP’s purpose is to also minimise
business interruption from natural or technological disasters, malicious threats and
other financial or political crises. In order for the BCP to have any positive effect, all
possible, conceivable (and perhaps inconceivable) risks should be addressed, these
risks should be analysed and mitigated against, employees should be trained and the
effectiveness of the BCP tested (Cerullo & Cerullo 2004, p. 71). Therefore, the BCP
seems very similar to a DM plan.
Simonovic (2011, p. 21) determined that existing DM frameworks need to evolve if we

are to cope with the complexities that contribute to disasters today and in the future:
‘Uncertainty, ambiguity, constant change, and surprise characterize disaster
management. Most management strategies unfortunately have been designed for a
predictable world and static view of natural disasters’.
In addition, the level of collaboration and consultation required between stakeholders

including local communities, local, national and international governments as well as
national and international not-for-profit and private organisations has become a
crucial and inevitable part of modern integrated disaster management. If we are to
agree that DM requires planning for mitigation but also a degree of adaptability and
flexibility for response and recovery, then the likely conclusion is that a combination of
a more traditional project management methodology for the pre-disaster phase and a
more agile PM methodology in the post-disaster phase would be appropriate:
Without improvisation, emergency management loses flexibility in the face of
changing conditions. Without preparedness, emergency management loses clarity and
efficiency in meeting external disaster related demands. Equally importantly
improvisation and preparedness go hand in hand (Harrald 2006, p. 264).
In view of the above conclusion, this dissertation aims to respond to these issues
regarding post-disaster projects by firstly considering some common PM methods and
standards currently available. The aim is to suggest that some of the current best
52
practices be adopted more broadly by agencies managing post-disaster projects.
Secondly, the proposal will review the body of knowledge of these methodologies and
substantiate whether any of them could accommodate the identified deficiencies. The
overall aim is to propose the adoption of a flexible and adaptable methodology for
disaster management.
2.8 Project management and standards

Project management (PM) is undoubtedly a professional discipline with high-level
standards, qualifications, certifications and best-practice models and methodologies
available around the globe. In the past 40 years, PM has
promoted itself as a universal and politically-neutral toolkit of techniques appropriate
for any type of activity in any sector, enabling the tight control of discontinuous
processes, with particular potential for the control of expert labour (Hodgson 2002,
p. 804).
The growth of PM can be attributed to marketing campaigns of consultancy agencies
and to universities who have not only legitimised the profession through academia but
also by supporting the promotion of accredited training and institutional bodies such
as the International Project Management Association (IPMA), the world’s first PM
association founded in 1965, which is a centralised institution representing a great
number of PM bodies around the globe, including the Australian Institute of Project
Management (AIPM), the Association of Project Management (APM) in the UK and, of
course, the Project Management Institute (PMI) in the US (Bredillet et al. 2013).
PM associations each offer a body of knowledge (BoK) and have developed standards
which PM professionals should be knowledgeable in. In defining a BoK and the
standards based on this BoK, PM has established itself firmly as a profession: ‘The Body
of Knowledge thus reflects the ontology of the profession: the set of words,
relationships and meanings that describe the philosophy of project management’
(Morris, Patel & Wearne 2000, p. 155).
53
Table 12 provides a brief overview of some of the most widely used PM bodies of
knowledge (BoK) and standards in existence around the world.
PM standard Current Accredited by Certification Disaster Specialised

edition standards or management interest/methodology
organisation(s) professional content
programs
PMI – PMBoK® 5th
• PMI Educational
Foundation
• The Project
Management
Methodology for
Post-Disaster
Reconstruction
• Project
Management in
NGOs
Prince2 2nd
ICB® – IPMA 3rd
Association • Research
Competence
Baseline
APMBoK 6th
P2M 1st
BS 6079 – 2nd
British
Standards
Institution
Table 12: Existing bodies of knowledge.
According to the PMBoK® Guide (PMI 2013, p. 5), PM is defined as ‘the application of
knowledge, skills, tools and techniques’ to execute and deliver projects effectively and
efficiently. This definition is applied to hard or tangible projects: ‘hard issues and
measures include time, cost and quality, traditional measures used to establish project
success’ (Crawford & Pollack 2004, p. 2). Soft projects, on the other hand, mean
intangible projects with a concern for the well-being of man and or environment:
‘community perception, safety, environmental impacts, legal acceptability, political
and social impacts … include benefits, stakeholders, value management, and
communications’ (ibid.).
Howsawi et al. (2014, p. 413) note that during a time of crisis a nation is subject to
challenging and overwhelming circumstances and forced changes. This would naturally
54
mean in a world of dependency and complex systems that project management would
also be challenged by the same issues. According to them, ‘national crisis is a unique
project context with particular characteristics that need project management
approach’ (ibid.). During and following world crises, projects continue to be managed
and delivered despite these events in order to respond to the crises and reconstruct
the devastated areas. Therefore, there is a need to improve project management. The
authors’ working definition for PM in time of disasters is:
the application of knowledge, skills and techniques to execute and deliver projects
effectively and efficiently in a situation or time at which a nation faces intense
difficulty, uncertainty, danger or serious threat to people and national systems and
organisations and a need for non-routine rules and procedures emerge accompanied
with urgency (Howsawi et al., p. 416).
Hruzova and Brunet-Thornton (2011, p. 43) affirm that, aside from the obvious gap in
PM knowledge and literature, ‘lessons learnt from the crisis impact on Project
Management remain to be developed and shared’.
Following the Indian Ocean tsunami of 2004, the Project Management Institute
developed a methodology for post-disaster reconstruction. This methodology uses
PMI’s best practice project management and its related processes to manage
reconstruction projects following a disaster. The aim is to keep disaster and project
professionals within agencies focused on their deliverables by providing an effective
methodology to deliver projects effectively and successfully. The methodology was
developed to be applied globally by agencies responding and assisting in recovery
efforts following disaster events, with its main aims to enhance collaboration,
accountability and the quality of project delivery (PMIEF 2015). It is developed using
the best practice PM standards, which have been developed over several years, to be
applied in a predictable world (once again, please refer to Tables 1 to 11 for the list of
issues identified through the literature review). While this methodology is a great step
forward in the thinking relating to managing post-disaster projects, the methodology is
still applying the linear, sequentially based waterfall model which is not sufficiently
adaptable and flexible in such times. So ‘while this methodology has been recognized
as helpful for rebuilding for simple infrastructure, it has been criticized in terms of its
55
wider applicability to chaotic environments encountered in disaster-related contexts’
(Steinfort & Walker 2008). The authors go on to criticise the PMI methodology for
post-disaster reconstruction in the following main areas:
• The methodology is more geared towards hard projects, meaning tangible
projects geared for construction, shipbuilding or aerospace. The PM techniques
are not appropriate for or adapted to soft projects, e.g. social service delivery
projects, or projects with poorly defined aid or ambiguous goals. And following
large-scale disasters, where the recovery projects span over years and consist
of several programmes of renewable projects, the methodology does not deal
sufficiently with the complexities which can arise from dealing with the
restoration of social needs.
• The methodology, which is based on an entire PMBoK Guide, is based on the
Western way of delivering projects. Social, cultural and ethnic sensitivities
involved in doing business are not addressed. The risk management and
stakeholder management templates do not address these extremely important
factors at all. Cultural sensitivities were addressed earlier in the literature
review as one of the factors causing projects to fail.
• Accountability for the successful delivery of post-disaster projects cannot rest
on the time-cost-quality triangle. Project success, especially post-disaster, is
based on the stakeholders’ perception of fitness for purpose, and the
methodology does not take this important factor into account.
In reviewing the PM standards and methodologies above, it becomes apparent that

PMI would be the more suited association to collaborate with in order to further
develop a more flexible methodology for post-disaster project management or
possibly enhance the current methodology for post-disaster reconstruction. It is the
hope of the researcher that such a development would not only enhance the
effectiveness of post-disaster projects delivery but also lead the way to smoother and
faster recovery.
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2.9 Project management for international development projects
While there is a wide range of research on the successes and failures of traditional
projects, especially in the areas of IT, construction and technology, international
development (ID) projects have been associated with failed project management since
research has been conducted on them – yet very little research is indeed conducted to
assist or improve these projects.
ID projects are delivered by donor countries under various types of agreements,

funding or collaboration. Often, these agreements are with or through beneficiary
governments or through ‘brokers’ such as non-government or not-for-profit
organisations (Crawford & Bryce 2003). ID projects are quite different to traditional
projects because they do not target the time-scope-cost-quality pillars as features of
success and because they have complex project goals which are mainly intangible since
they are concerned with alleviating poverty or social transformation – hence the lack
of profit motivation. These projects are also complex because of the deep social,
cultural and political challenges involved; the environment in which ID projects are
delivered is challenged by geography, instability and cultural barriers. In addition,
there is a high requirement of knowledge transfer to the beneficiary country and other
beneficiaries (Crawford & Bryce 2003; Hermano et al. 2013; Khang & Moe 2008;
Youker 2003).
Whereas traditional projects need to satisfy two stakeholder groups at the most – the
client and the contractor – ID projects are more closely aligned with post-disaster
projects in having to contend with a large web of national and international
stakeholders (Khang & Moe 2008). Other crossovers are in areas described by ID
projects as critical success factors (CFS). These include team-building skills,
competencies in dealing with the local environment, implementation approaches
including “what-if” scenario modelling, learning opportunities focused on knowledge
transfer, policy characteristics, availability of resources, and last but not least
stakeholder/beneficiary satisfaction (Khan, Thornton & Frazer 2000; Diallo & Thuillier
2004; Khang & Moe 2008).
57
What we note here is that projects being managed in other cultures (especially
developing cultures), funded by donors and not adhering to outcomes based on time,
cost, quality and scope need to consider certain key features and elements and
research solutions on how best to improve or strengthen the various challenges and
deficiencies associated with these situations to turn them into assets to be utilised
successfully within a methodology.
2.10 Agile project management methodology
Agile project management is a group of methodologies which emerged over the last
twenty years and promotes ‘relevance, quality, flexibility and business value of
software solutions’ (Cooke 2012, p. 29). When information technology (IT) projects
were being initiated and planned in the 1990s, issues arose in areas such as
requirements documenting and scope creep from both the technological and business
departments, and when the requirements documents and project plans were finally
agreed on, they were quickly outdated even in short projects as customers were
unable to state their actual needs and requirements. Project teams spent endless
hours reworking the plans, and IT industry projects went severely over budget and
suffered schedule overruns, decreased quality and dissatisfied end-users.
To counteract these issues, developers around the world established methodologies

such as the Dynamic Systems Development Method, Feature-Driven Development,
Extreme Programming, Crystal, Adaptive Software Development and Scrum. As the
various names suggest, their aim was to find an adaptive solution. While there are
several methodologies, they share these common principles:
• Favouring incremental planning instead of upfront planning;
• Beginning with high quality and having a continuous quality audit process;
• Addressing technical risks as early as possible;
• Encouraging ‘ongoing communication between the business areas and project
team members to increase the relevance, usability, quality and acceptance of
delivered solutions’ (Cooke 2012, p. 30);
58
• Reducing the impacts of changing requirements by offering a low expenditures
structure to manage variations to the requirements.
‘Agile approaches are built around the very concept of collaborative work between IT
staff and business areas’ (Cooke 2012, p. 23). They advocate adaptive management
practices and revolve around collaborative working practices between all end-users or
stakeholders involved.
While Agile has seemed like a lifesaver to IT organisations, enabling them to react to
change swiftly and effectively, there have also been some major fiascos. Therefore,
there is merit in using a combination of both agile and plan-driven methodologies.
Boehm (2002, p. 64) suggests that planning should include ‘documented process
procedures that involve tasks and milestone plans, and product development
strategies that involve requirements, designs, and architectural plans’.
Today, even in the IT realm agile project management has taken a new turn, and
project teams are working in a world of VUCA (volatility, uncertainty, complexity and
ambiguity), a term coined in the military. In business environments, VUCA means
natural disasters, currency devaluation, cyber-attacks and data theft. According to King
(2013, p. 14), ‘VUCA defies long-term planning’, suggesting that it is more prudent to
plan for a number of situations instead of only one. The author advocates for resilient
teams and advises that being highly adaptable is helpful in managing chaos. In order to
be successful in a VUCA environment, management needs to embrace agility and not
be frustrated by it. Nawaz and Zualkernan (2009, p. 172) support this point in their
case study of a Scrum team recovering from a terrorist attack by applying agile
principles.
In terms of decision making and flexibility, certain organisations consider agile

management to offer too much freedom. Agile management affects the power
structure because it allows developers to make decisions and be accountable when
resolving issues on business, process and system requirements – such decisions were
once only reserved to executives (Williams & Cockburn 2003, p. 41). However, since
59
the PMI has considered the use of an adaptive and flexible method for managing
projects as part of its BoK – and it is the only BoK to have considered extending a
framework to the field of disaster management – it is clear that there are also
structures and best practices in place to support the use of agile management. The
PMI thus endorses the methods of Agile:
Adaptive project life cycle, a project life cycle also known as change-driven or agile
methods, that is intended to facilitate change and require a high degree of ongoing
stakeholder involvement. Adaptive life cycles are also iterative and incremental, but
differ in that iterations are very rapid (usually 2-4 weeks in length) and are fixed in
time and resources (PMI 2013, p. 527).
Based on the key challenges of post-disaster projects observed in the literature review,
it is clear that the more complex a project becomes, the more uncertain the project’s
characteristics become. As can be seen in Figure 10, the type of project being managed
should determine the PM method which should be utilised. Furthermore, a review of
most PM methodologies and standards has revealed that there is potential to adapt
some methodologies for disaster management. Agile PM is a proven, flexible and
adaptable approach to managing projects in a volatile environment that works
incrementally. While the project vision is clear, the approach does not lock down fixed
requirements. Instead, through extensive collaboration, consultation and regular
communication with stakeholders, end-users and the project team, Agile delivers
quality that is fit for purpose, using the most up-to-date business, technological and
market intelligence available. In addition, this approach is particularly effective when
resources are finite and the project teams are empowered to deliver their required
outputs (Cooke 2012). The flexible and adaptive approach with Agile means not only
that the dependencies and interrelationships are constantly assessed, but also that
alternative solutions are sought and weighted against the technical, cultural,
economic, political, operational and legal implications to ensure success probability
(Hass 2008).
60
Moderately
Independent Complex Highly Complex
Predictability PROJECTS Uncertainty
Linear Iterative Adaptive
Few places Knowledge Inexplicable

Complete Assumptions Uncontrollable
Unambiguous Newness Unknown Unknowns
Explainable Pace Discontinuous
Order Understanding Uncertainty
Routine Probability Disorder
Low Tech Messiness Novel
Unhurried Behaviour High Tech
Low Skills Integration Intricate
Continuity Choices High Skill
Figure 10: The Project Complexity Continuum (adapted from Hass 2008).
2.11 Chapter summary
This chapter has provided an overview of contemporary research from around the
globe for PM challenges which affect the successful delivery of post-disaster projects.
By exploring contemporary DM and its complexities, it is understood that managing
such projects requires a set of unique skills and abilities which require new learnings to
be acquired and new methods to be adapted. The challenges are clearly dissected and
laid out in tables comparing the differences between DM and regular PM in ten PM
knowledge areas. In addition, the literature review has explored the issues attached to
international development (ID) projects and found that these projects address similar
gaps, referred to as the critical success factors pertaining to such project types. The
gap in research is clearly identified in this chapter, which concludes with a need to
manage post-disaster projects differently. Following a comparison of existing bodies of
knowledge, the Agile methodology is introduced and reviewed as a suitable
methodology to be adapted for such project types.
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CHAPTER 3 Research Methodology
3.1 Introduction
The importance of delivering post-disaster projects more effectively, whether in relief

or recovery efforts, has been brought into focus since the devastating mega-disasters
like the Nepal earthquake, Hurricane Katrina or the Tohoku and Haiti earthquakes with
severe costs in human lives and direct economic costs of trillions of dollars. Improving
the effectiveness of disaster management (DM) is most likely achieved by applying an
agile methodology, which encompasses the flexibility required in volatile situations
with a high degree of uncertainty and which can be adapted to suit post-disaster
projects.
This chapter outlines the mixed research methods, including semi-structured

interviews, case studies and questionnaire surveys, which will be applied in this thesis
for data collection and analysis in order to answer the main research question below.
3.2 Responding to the research question
The literature review has provided abundant support to this research regarding the
challenges which must be resolved in order to deliver post-disaster projects more
effectively and efficiently. Success factors for such projects include fitness for purpose,
consultation with beneficiaries to ensure that the deliverables meet their needs,
appropriate spending of funds and the sustainability of projects and deliverables.
Rather than measuring success factors, this study examines the attributes, features
and benefits which contribute to successful projects in DM.
Having addressed the main challenges for successful project delivery, the literature
review has assisted in the framing of the main research question (MRQ):
62
In order to respond to the above MRQ most comprehensively, it is important to build

the current picture of project management (PM) in the context of natural disasters and
to obtain additional data by targeting and refining some areas of questioning.
The aim of this research is to investigate the application of an agile PM methodology to

natural disaster projects. The study will examine the benefits of PM practices and
methodologies for a more efficient and effective transition from chaos to recovery
and, eventually, to stability through DM after a disaster, attempting to provide project
and disaster managers with the appropriate tools to manage and implement projects.
In doing so, not only will donor funds be spent more effectively but the project
recipients and stakeholders will be better served. It is envisaged that an agile PM
framework can be developed as a versatile tool and guide to aid post-disaster projects.
The following five objectives will direct the study approach in answering the MRQ:
(iii) To understand the issues and challenges and to seek potential solutions for the
management of post-disaster projects;
(iv) To examine whether national and international organisations face similar issues
and challenges and how an adaptable methodology would impact post-disaster
projects; and
(v) To propose an agile framework which can be applied to post-disaster projects.
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3.3 Research approach
The most common research approaches or designs are qualitative, quantitative and
mixed methods. In quantitative methods, the data collected is hard, rigorous, credible
and generally more scientific, whereas qualitative data can be described as nuanced,
detailed, contextual and sensitive (Trochim 2002).
In the acquisition of new knowledge, especially in social research, two approaches are
possible. In the inductive approach, the starting point is a more general theory about
the research topic, which is then narrowed down to a more specific hypothesis. The
deductive approach works its way up from specific interpretations to more general or
broader theories.
Theory
Hypothesis
Observation
Confirmation
Figure 11: Deductive theory (adapted from Trochim 2006).
Theory
Tentative
Hypothesis
Pattern
Observation
Figure 12: Inductive process (adapted from Trochim 2006).
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Figures 11 and 12 show the logic behind inductive and deductive processes. According
to Hyde (2000), both qualitative and quantitative research use inductive and deductive
processes. Irrespective of whether research is conducted following an inductive or
deductive approach, it nevertheless relies on theory.
This study is essentially about management research. As such, there is additional

complexity when trying to understand the relationship between theory and
management research methods (Gill & Johnson 2010). Management research is
complex because the area of research is broad and touches on ‘the way we guide,
direct, structure and develop an organization. It touches on all organizational and
decision-making aspects that underlie the function of the organization’ (Thiétart 2001,
p. 1). According to Gill and Johnson (2010), testing a theory in management research
can be done by observation or by creating the theory through observation.
The aims, benefits and disadvantages of using these methods as they are applied to
this thesis will be described in the following sections.
3.3.1 Qualitative research
The advantage of utilising qualitative research is when research problems have been
minimally explored or when there is limited access to data through the use of
numerical data collection techniques. According to Hair et al. (2015), it can also be
utilised to provide an initial idea which can be further elaborated by using quantitative
tools and techniques. The qualitative research process revolves around and draws
from theory in order to justify the need for the study, to create firm grounds for the
focus of the study and research question, and to prepare questions for interviews and
field observations (Goldberg & Allen 2015). This method is utilised to develop
understanding of, consider and justify outliers, a phenomenon which lies outside the
normal boundary of the sample. The qualitative method is grounded on data. Instead
of starting the research with a theory and allowing that theory to create bias towards
the data, the research is begun with an open idea of the possibilities which the data is
likely to divulge (Hyde 2000). The use of case studies is often a good enquiry route for
qualitative research. According to Yin (2013), a case study is the preferred research
65
approach when processes are questioned, which makes case studies the primary data
collection method for this thesis.
3.3.2 Quantitative research
Quantitative research is expressed in numerical forms and uses statistical methods as a

form of measurement. In other words, it is the collecting of measurable data to
generate statistical models and figures to explain the data gathered. According to
Sukamolson (2010, p. 2), quantitative research ‘is the numerical representation and
manipulation of observations for the purpose of describing and explaining the
phenomena that those observations reflect’.
Table 13: Quantitative research methods (Silverman 2006, p. 37).
Some of the typical forms of quantitative research (as shown in Table 13) are surveys,
samples, experiments and official statistics. This research will utilise the survey as a
form of quantitative research.
3.3.3 Descriptive research
The theory behind descriptive research is to name a phenomenon or to categorise the

foundational characteristics of something (Ivey 2016). If the aim of research is to
ascertain “what is X”, descriptive research exists in order to answer the basic questions
66
of what X is, what it looks like, how it occurs, what effects it has, where it is and how it
can be experimented with. This will enable the thorough scrutiny of concepts and
characteristics and the deduction of further theories about the phenomenon, or “X”.
According to the methods book by Gomm, Hammersley and Foster (eds 2009), such
research assists us to progress case study material, thus further assisting in the
development and acceptance of theory through evidence and empirical data
(Bryman 2006).
To achieve the objectives listed in chapter 3.2, descriptive research will be employed
for this thesis. In doing so, the researcher will be able to generate features which
currently exist, which are lacking, which are required or which could create barriers to
achieve the goal of managing post-disaster projects more effectively.
3.3.4 Evaluative research
This ‘research method … is likely to be seen as a type of applied or action research, not
as basic or theoretical research’ (Powell 2006, p. 103). Evaluation research consists of
several evaluation methods, including input/output/performance measurement,
impact/outcomes/service quality assessment, evaluation of processes, standards,
benchmarking, quantitative or qualitative methods, cost analysis, organisational
effectiveness, and programme evaluation methods. It also consists of other measuring
processes such as data collection techniques. While evaluative research uses most of
the same methodologies of social research, it is applied here in the organisational and
political context (Trochim 2006). Due to this context, it becomes necessary to study
additional skills such as sensitivity to multiple stakeholders, group skills, management
skills and a general agility in political matters.
The aim of evaluative research is to enhance knowledge and decision making leading
to practical applications. Purposes for conducting evaluative research include
accounting for use of resources, enhancing visibility, describing impacts, avoiding
errors, supporting activities, expressing interest in stakeholders, supporting decision
making and strengthening political positions (Wallace & Van Fleet 2001). Other
reasons for evaluating programmes and policies are the following: stakeholders’
progress, legitimacy of decision making, fulfilling grant requirements, making
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adjustments for underperforming programs, enhancing further decision making,
testing new ideas, considering alternatives, recording programme history, providing
feedback to internal and external stakeholders and highlighting goals (Weiss 1998).
For this research, a participant-oriented class of evaluative research will be used to

proceed as such a model places participants, clients and end-users of a programme as
the primary beneficiary of the research (Trochim 2006).
3.3.5 Mixed method research (MMR)
Mixed method research occurs where both qualitative and quantitative methods are
combined in the same investigation. The use of MMR remains an area of great debate
as to its appropriateness. Research purists would suggest that the various
epistemological and ontological paradigms and assumptions attached to qualitative
and quantitative research have a huge influence on whether these should be
combined (Onwuegbuzie & Leech 2005). There is no doubt, however, about the
benefits offered by MMR. With MMR, it is possible to obtain a more thorough
worldview to develop deeper understanding in the area under investigation. According
to Tashakkori and Teddlie (eds 2003; see also Teddlie & Tashakkori 2009), there are
three areas where MMR proves its worth:
1. MMR is able to respond to confirmatory and investigative research questions in
the same enquiry.
2. MMR is able to provide more robust extrapolations and can also leverage the
strengths and weaknesses of an area of enquiry better than a single method or
worldview. While the collection of qualitative data through interviews can
‘provide depth in a research inquiry … surveys, a quantitative data collection
approach, can bring breadth to a study by helping researchers gather data
about different aspects of a phenomenon’ (Venkatesh, Brown & Bala 2013,
p. 25).
3. MMR offers a larger assortment of contradicting or supporting views and
conclusions, which can be invaluable to the area of enquiry.
68
One method of combining the data outputs from both qualitative and quantitative
research is to employ triangulation, first introduced in 1982 by Donald Davidson with
the idea to leave little room for scepticism in research. Davidson’s theory was that the
possession of a concept of objective truth also requires a social setting, because ‘by
yourself you can’t tell the difference between the situations seeming the same and
being the same’ (Verheggen 2013, p. 462). As illustrated in Figure 13, triangulation
assists in logically describing the relations between the qualitative and quantitative
findings and the theoretical notions in the area of enquiry. It demonstrates that
combining both methods can lead to a better understanding of the area under
investigation and can assist in generating and validating new data.
Figure 13: The triangulation triangle (Erzberger & Kelle 2003).
Table 14 below summarises some of the purposes of utilising MMR as obtained from
prior research (Tashakkori & Teddlie, eds 2003; Creswell & Plano Clark 2007). The
choice of using MMR is ultimately at the discretion of the researcher. In this case, the
researcher utilises MMR because it confirms the qualitative and quantitative data
collection and supports the research itself and the subsequent framework stemming
from the findings. In providing such all-round confirmation, the researcher ensures the
robustness of the work, the findings and the framework.
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Purpose Description Illustration
Complementarity Mixed methods are used in order to gain A qualitative study was used to gain
complementary views about the same additional insights on the findings from a
phenomena or relationships. quantitative study.
Completeness Mixed method designs are used to make sure a The qualitative data and results provided
complete picture of a phenomenon is obtained. rich explanations of the findings from the
quantitative data and analysis.
Developmental Questions for one strand emerge from the A qualitative study was used to develop
inferences of a previous one (sequential mixed constructs and hypotheses, and a
methods), or one strand provides hypotheses to quantitative study was conducted to test
be tested in the next one. the hypotheses.
Expansion Mixed methods are used in order to explain or The findings from one study (i.e.,
expand upon the understanding obtained in a quantitative) were expanded or
previous strand of a study. elaborated by examining the findings from
a different study (i.e., qualitative).
Corroboration/ Mixed methods are used in order to assess the A qualitative study was conducted to
Confirmation credibility of inferences obtained from one confirm the findings of a quantitative
approach (strand). study.
Compensation Mixed methods enable compensating for the The qualitative analysis compensated for
weaknesses of one approach by using the other. the small sample size in the quantitative
study.
Diversity Mixed methods are used with the hope of Qualitative and quantitative studies were
obtaining divergent views of the same conducted to compare perceptions of a
phenomenon. phenomenon by two different types of
participants.
Table 14: Purposes of mixed methods research (adapted from Venkatesh, Brown & Bala
2013).
3.4 Research design and justification for use
The researcher has opted to utilise in part a qualitative research approach because the
research problem in this study has been minimally explored and there are limited
options to access data through the use of numerical data collection techniques (Hair et
al. 2015). However, quantitative research is also included to obtain the views of PM
and DM professionals in order to generalise the findings. With these views in mind, the
researcher utilises the literature review as the sole purely qualitative method. For this
particular study and its aims of informing decision makers to possibly change policies
and guidelines and affect organisational cultures, it is vital to also employ quantitative
methods because measurable or numerical data is required in order to make informed
decisions. In addition, these types of data provide comparisons of alternatives and
possible cost-benefit evaluations. Therefore, some statistical analyses are performed
as these will obtain the means to calculate relationships between two or more
70
variables, assess distinctions between variables in a subjective manner and establish a
quantifiable set of indicators (Bryman 2004; Silverman 2006).
The methods utilised to better attain the research aim and objectives in this study are:
• Literature review;
• Semi-structured interviews;
• Case studies – both “desktop” and “live”; and
• Questionnaire survey.
This study will look into the factors and challenges facing the field of disaster
management when delivering post-disaster projects. According to Simonovic (2011,
p. 20), ‘the nature of disasters is changing. Disasters are becoming more complex.’ This
is due to the interaction of and changes in several systems, namely the environmental
system which causes these changes, the humans and communities who live through
these changes and the built environment which is affected by these changes. Due to
the unknown consequences and uncertain impacts of a disaster event, there is a lack
of control which puts any preparedness plans under extreme stress or renders them
ineffective. Post-disaster projects, especially relief projects, are placed under equally
extreme pressures due to the time factor, which essentially translates to safety of the
people affected.
Figure 14: Theoretical framework of challenges in disaster management.
71
The challenges as shown in Figure 14, which have been identified in the literature
review and which have particularly confronted the successful delivery of post-disaster
projects, are in the areas of management, consultation, collaboration and cooperation
and the lack of effective PM tools, techniques and resources to deliver the projects.
Post-disaster project management is more than reconstruction and renovation.
Following the Indian Ocean tsunami, for example, the reconstruction and renovation
projects were part of a larger disaster aid programme of works ranging from a few
months to provide immediate relief to several years to provide permanent solutions. In
addition, projects involving psychological or spiritual rehabilitation, education and
resilience are much more complex and require just as much attention and not a one-
size-fits-all PM methodology (Steinfort & Walker 2008).
Table 15 provides a brief synthesis of the key attributes developed for this research as
they relate to the realm of post-disaster project management. These descriptions are
by no means definitive but subject to interpretation and, of course, based on several
variables. The literature review, the semi-structured interviews and the survey will also
provide additional input of what is meant by these attributes.
Key attributes of challenges in post-disaster projects

Communication Relate effectively with various stakeholders,
professionals and partners using the cultural norms of
the country, appropriate language and methods to
enhance dialogue, feedback and participation.
Consultation Active participation of stakeholders who are involved
in the project, ensuring that their needs and
requirements are heard and the project deliverables
are fit for their purpose. Projects must work with and
for stakeholders, grow partnerships with local and
international agencies and understand what is
feasible, practicable, sustainable, necessary and
desired.
Cooperation & Collaboration Parties from various organisational cultures or
backgrounds work together to achieve a common
goal, solve problems and see various perspectives.
Differences are explored and solutions obtained based
on a broad viewpoint.
72
Key attributes of challenges in post-disaster projects
Roles & Responsibilities Teams that can self-correct and monitor their
performance, take action, adapt to changes in tasks or
the team. Teams that communicate effectively
internally or externally, receive and provide feedback.
Teams that have an element of trust within.
Leadership/Management Acts as facilitator, communicator and mentor. Can
provide direction. Has good interpersonal skills,
facilitates team building, autonomy and can delegate.
Decision Making & Delegation Has the necessary experience to delegate decision-
making authority, seeks and obtains advice, is not
fixed on ideas but consults and knows when to change
direction.
Lessons Learned Ensuring that knowledge is discussed, captured and
considered, based on the understanding that every
departure of an employee is a loss of knowledge.
Adaptability Understanding that change is not easy but creates
fear. Adaptability and flexibility means changes and
requires preparation and attention. Taking advantage
of the best options for the benefit of the project and
the stakeholders, allowing for creativity and creating
“what-if” scenarios.
Table 15: Loose definition of key attributes of challenges under development for this study
(based on extensive literature research).
3.4.1 Literature review
A critical preliminary literature review as part of the proposal was conducted to enable
the researcher to ensure a complete understanding of the subject matter from a
diverse range of research materials, to identify research which had been undertaken
previously, and to identify key deficiencies and potential areas of research which are
currently lacking in the field of project management when applied to disaster
management (Randolph 2009). The detailed literature review as part of the
dissertation revealed several key challenges and deficiencies in the management of
post-disaster projects, which were supported by further research in the form of
interviews, case studies and a questionnaire survey.
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3.4.2 Semi-structured interviews
The researcher has chosen the use of ten semi-structured interviews to gauge the
involvement of PM within DM communities. Their purpose is to contribute to the
following objectives:
(i) To assess the current PM practices in post-disaster projects; and
adaptable methodology to manage post-disaster projects.
According to van Teijlingen et al. (2001), a preliminary data collection method like this
can add focus to the research, serve as an indicator of the likelihood of success for the
main research and inform the researcher on areas of improvement for the main study.
The information and data obtained through these interviews have assisted in guiding
the area of enquiry for the subsequent case studies and provided some insights into
the lack of linkages between PM and DM in current literature.
3.4.3 Case studies
The researcher has chosen to use case studies as the most appropriate principal
research method considering the flexibility of the design. It allows the researcher to
view in perspective the real-life experience of managing post-disaster projects and the
complexities involved in DM, enabling the collection of data from realistic events. The
aim of the case studies is to investigate the current methods and processes used to
deliver post-disaster projects by NGOs, to prove or disprove the findings from the
literature review, to identify further deficiencies and, ultimately, to report on further
challenges or improvements which the cases under investigation might reveal. The
purpose is to contribute to the following objectives:
management of post-disaster projects; and
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projects.
According to Yin (2013, p. 51), the use of case studies is appropriate in this research as
it: (a) investigates a contemporary phenomenon (the “case”) in depth and within its
real-world context, (b) copes with the technically distinctive situation in which there
will be many more variables of interest than data points, (c) relies on multiple sources
of evidence, with data needing to converge in a triangulation fashion, and (d) benefits
from prior development of theoretical propositions to guide data collection and
analysis.
For this thesis, four documented “desktop” case studies (see Table 16) were selected
for the following reasons:
1. They provide a variety of projects and countries;
2. They demonstrate how organisations with several years of experience in
managing relief and recovery projects actually performed throughout each
unique situation;
3. They demonstrate differences in the performance of relief to recovery
programmes and projects on a small to large scale.
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Country Project
Haiti (1) Water and Sanitation Direct Implementation Project
On 12 January 2010, an earthquake with a magnitude of
7.0 on the Richter scale shook Haiti, crippling the capital
Port-au-Prince and destroying critical public
infrastructure. With a death toll of 222,570 – 25% of
which were the capital’s civil servants – a total of
3,700,000 people were affected, which is equivalent to
39.1% of Haiti’s population (EM-DAT 2016). At a cost of
US $ 8 billion, the earthquake exceeded the country’s
own GDP.
The project was selected as the proliferation of between
3,000 and 10,000 NGOs created incredible challenges in
coordination, language, culture, health, communication
and consultation.
(Source: Noykhovich & Aquino Lopez 2012)
The Islamic Republic of Iran (2) Bam Earthquake Emergency Reconstruction Project
A 6.5 magnitude earthquake shook Iran on 26 December
2003 and devastated the Bam District. 26,796 people
were killed (including civil servants and management
staff, severely diminishing local HR capacities), 30,000
suffered injuries, 80,000 were left homeless and a total
of 267,628 were affected (EM-DAT 2016). International
response came from international aid agencies and over
44 countries (World Bank 2004a).
This project was selected as it obtained strong support,
governance and leadership from the country’s
government. In addition to providing a strong case for
cooperation and collaboration, it highlights examples of
resource allocation and unique challenges.
(Source: Zamany 2011)
Pakistan (3) Early Recovery and Restoration of Flood Affected
Communities
The 2010 floods were described as Pakistan’s worst
disaster in recorded history (UNDP 2013). At its peak,
flood waters covered roughly a fifth of Pakistan’s land
area, killing 1,985 people, damaging or destroying the
homes of 12 million and affecting approx. 20 million
people (EM-DAT 2016). With 2.2 million hectares of
crops destroyed, 450,000 livestock losses and 10,000
schools as well as other critical infrastructure damaged
or destroyed, the economic loss was approx.
US $9.5 billion.
(Source: Reuters 2010) The case was selected because of the geographic scale
of impact and the planning and coordination required to
manage such a recovery project.
Kingdom of Tonga (4) Tonga Post-Tsunami Reconstruction Project
An 8.0 magnitude earthquake struck off the shores of
Samoa on 30 September 2009, triggering a tsunami
which severely damaged over half of the 40 villages, 255
houses, public buildings and the sanitation and water
systems of Tonga’s Niuatoputapu Island (NTT). 46% of
the island was inundated, affecting the population’s
fragile food supplies and sources of income from fishing,
poultry and pig farming (Australian Red Cross 2016). The
disaster claimed 9 lives and affected 507 people, with
economic damages of US $9,5 million (EM-DAT 2016).
The project was selected as it revealed the challenges in
reinstating livelihoods and economic independence.
(Source: AP 2012)
Table 16: Summary of desktop case studies and reason for selection.
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In addition, four “live” case studies (see Table 17) with a comparative dimension were
conducted with the assistance from two NGOs: Disaster Aid Australia and the Balay
Mindanaw Group (a locally established NGO in the Philippines). These four case studies
are considered “live” because the project delivery processes were still ongoing at the
time of the study while their state of completion was unknown.
Two of the case studies were conducted in the Philippines and two from Australia. The
Philippine case studies were pure recovery projects while the case studies from
Australia had begun as relief projects and had transitioned into short-term recovery
projects. While the relief part of the projects was technically over, beneficiaries were
still living in shelters and had not fully transformed into the short-term recovery state.
The reasons for choosing these case studies are outlined below:
1. Of several NGOs approached, Balay Mindanaw Foundation Inc. (BMFI) and

Disaster Aid Australia (DAA) were the only ones who responded and were
willing to share information and participate in a case study;
2. The four “live” case studies were located in the Philippines, Nepal and Fiji. It
was only within the researcher’s financial means to travel to the Philippines to
conduct data collection for case studies 5 and 6. Funding for travel and
expenses for a further two months to Nepal and Fiji was cost-prohibitive;
3. Disaster Aid Australia’s main activity is as first responders to providing disaster

relief to affected communities. It would have been ethically questionable to
travel to a disaster-affected community and collect data during a time of high
emotional and physical distress. However, speaking to the first responders
when relief operations are in progress or transitioning to recovery was a good
option to collect data without overstepping any ethical boundaries.
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Country Project
The Philippines (5) Cagayan de Oro, Disaster Risk Reduction, Phase 2
Following typhoon Pablo (Bopha) in December 2012,
BMFI began Phase 2 of the CDO project, which includes
capacity building, provision of equipment for emergency
response and expansion of barangays (communities) to
implement peace building. The project includes an
improved layer of disaster risk reduction with three
components: strengthening and continuation of their
Barangays Disaster Risk Reduction Management plans
(BDRRMC) in terms of organisation, roles, coordination,
structure, etc.; capacity building, with a contingency plan
as an output; and health, i.e. prevention of dengue
fever.
CDO project team (Source: Author’s own 2016,
unpublished).
The Philippines (6) President Roxas, Livelihood & Resiliency Building
BMFI assisted villages from the Municipality of President
Roxas (PR) on Panay which had been badly affected by
Super Typhoon Yolanda in 2013. The typhoon was the
deadliest natural disaster in Philippine modern history,
affecting 16 million and displacing 4 million people, with
a human cost of 6,201 deaths (+1,785 still missing) and
28,626 injured; the economic damages have reached
approx. US$ 838 million (Guha-Sapir 2014). This case
study deals with the implementation of livelihood
projects in the form of tree growing, mangrove
rehabilitation, island container gardening (ICG) and
business training, e.g. organising trade associations,
providing seed funds, managing small businesses,
accounting, incentives for growing trees, value chain
PR project team with researcher (Source: Author’s
analysis, capacity building, etc.
own 2016, unpublished).
Fiji (7) Needs Assessment and Set-up (DAA Relief
Operations)
In February 2016, Tropical Cyclone Winston devastated
the islands of Fiji – the strongest in recorded history. At
least 43 people were killed, 40,000 homes were
damaged and 350,000 people were impacted. The
economic cost was US $1.4 billion (EM-DAT 2016).
Critical needs deployed from DAA included shelter and
potable water as well as family survival packs. This
project was selected as it provided an opportunity to
compare the PM methods of this relief project to a full
(Source: Disaster Aid Australia 2016) recovery project by a larger organisation with a bigger
budget in the same country.
Nepal (8) Post-Disaster Assessment (DAA Relief Operations)
A 7.8 magnitude earthquake struck Nepal on 25 April
2015, killing 9,000 people, injuring 22,000 and affecting
5.6 million with economic costs of US $7.1 billion (EM-
DAT 2016; Kamata 2016). This project focused on
immediate relief to recovery efforts, ensuring that teams
were on the ground to perform needs assessments and
deliver urgent shelter and drinking water as efficiently as
possible. The challenge was to ensure shelter for the
affected communities before the beginning of Monsoon
season, which was less than two months away.
Very few case studies have looked at the PM efforts
(Source: Disaster Aid Australia 2016) required to deploy teams to provide shelter, drinking
water and the necessary immediate first response to
affected communities.
Table 17: Summary of live case studies with country facts and project backgrounds.
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Throughout the case studies, the researcher has sought to ask questions covering a
wide range of key PM features and challenges. The aim was to gain a broad picture of
the situation and elicit specific details pertaining to the study, focussing on what is
required to succeed in delivering DM projects with an adaptable method. These areas
of flexibility did not feature in the desktop case studies as a key feature or challenge
because these projects were being managed utilising a traditional PM methodology.
However, it was possible to extrapolate areas where flexibility/adaptability was
applied and to record their outcomes.
The researcher has applied a high degree of rigour, professionalism and ethical
responsibility while conducting the case studies by ensuring that all the necessary
approvals were in place before the start of data collection and by ensuring that the
data collected was reported without bias. The aim was to carry out a thorough enquiry
and produce genuine data. Audio and photographic equipment was used to record the
case studies; where photographs of people were produced, consent was sought and
obtained.
3.4.4 Questionnaire survey
Surveys for research are especially useful because they are data collection methods
‘which are not merely tools devised to meet particular ends, but expedients which
have meaning only when considered in their social context defined in the broadest
sense’ (Ackroyd & Hughes 1992, p. 140). The use of a survey allows the researcher to
judge the behaviours of a participant group and then present the findings in numerical
form. A questionnaire survey can also be used ‘to generate general understanding of a
set of related questions to identify interview questions for deeper qualitative
investigation’ (Julien 2008, p. 846). In this research, the survey was used to obtain the
views of PM and DM professionals in order to broad-base the study findings. Only
through a survey is it possible to obtain the opinions and professional experiences of a
larger professional community. The aim of conducting a survey is not only to act as
support between theory and empirical findings but also to test the theory and create
new theory (Östlund et al. 2011). In a broad sense, the survey is used to support and
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validate all the other steps of the data production process in order to improve the
quality of information.
The survey was created with the online tool SurveyMonkey and distributed via
LinkedIn to 150 participants who are members of the Australian Institute of Project
Management (AIPM) and/or DM communities, with lesser or greater knowledge and
experience in one or both fields.
Figure 15 is a plan of this study which highlights the planned research activities and
outcomes.
Figure 15: Plan of the data collection activities.
3.5 Data analysis
According to Yin (2013), data analysis is the process of investigating, categorising,

tabulating, testing and combining evidence which addresses the original enquiry of the
study. This research will utilise both qualitative and quantitative methods; therefore,
tools to analyse data for both methods are identified below.
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3.5.1 Types of data analysis
3.5.1.1 Qualitative
Qualitative data can be obtained from structured texts such as books, journal articles,
survey comments, news articles, online articles, etc. Other forms of texts which are
unstructured in nature include interview transcriptions, interviews, focus groups and
conversations. In addition, what is readily available also includes audio and video
material and visuals. This research uses information obtained from journal articles and
books, project reports and documents (e.g., implementation completion and results
reports, project information documents, end of project review reports and lessons
learned reports). Other information is obtained through in-depth semi-structured
interviews, transcriptions, videos and conversations. Table 18 below identifies and
explains some of the data collection types utilised.
Methods Explanation in brief

Observation The researcher is sufficiently within proximity to observe and
study subjects with participation (in this case) to understand
whether the theory corresponds with practice, and accesses
tacit knowledge of participants.
Interview Using semi-structured interviews with notes and recordings –
with permission – of individuals, groups within an organisation
or community in an in-depth semi-structured format.
Table 18: Types of data collection.
3.5.1.2 Quantitative
The aim of quantitative data analysis is to obtain measureable results which are easy
to understand. It is a system where data is transformed into arithmetical forms for
statistical analyses. According to Babbie (2010, p. 422), data quantification is ‘the
numerical representation and manipulation of observations for the purpose of
describing and explaining the phenomena that those observation reflect’. Quantitative
methods can be utilised to provide objectivity in measurements and the mathematical
or statistical analysis of primary data collected through polls, surveys, questionnaires
and observations or from secondary data such as reports or artefacts. According to
Gillham (2000, p. 80) descriptive and inferential statistical information can be obtained
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by such quantitative data. Where descriptive statistics condense numerical data,
inferential statistics allow the researcher to make correlations, display differences
between groups being studied, and the implication of changes to be studied. Once the
data is collected, it is grouped, coded, classified and tabulated so that it can be
calculated. A simple example of this process is illustrated in Figure 16 below.
Data is Data is Data analysis

Data is
explored: analysed: represented,
prepared for Data is
trends and answers to results
analysis: validated
distributions questionnaire reported in
cleaned, coded
checked analysed figures/tables
Figure 16: Quantitative data analysis process

(adapted from Creswell & Plano Clark 2007, p. 129).
This research used semi-structured interviews primarily for qualitative purposes, but
their results are also coded to provide quantitative outputs. In addition, the research
utilises a questionnaire survey for quantitative data collection and analysis. The survey
also serves as a validation of findings and supports the design of the framework which
is developed as part of this research. The aim of the data is to reveal whether the key
features of the framework reflect the outputs generated by the case studies and the
semi-structured interviews. By utilising quantitative research analysis, the researcher is
able to demonstrate the links, if any, between agile project management and the PM
skills required to implement successful post-disaster projects. In addition, it provides a
focus on the PM knowledge areas which need to be in the forefront for such a
framework.
3.5.2 Tools for data analysis
3.5.2.1 Content analysis
Content analysis refers to recording human communication and transforming raw data
into a standardised form (Babbie 2001, p. 309) and is principally utilised in social
research. It has been accepted as an effective approach to investigating texts such as
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speeches, letters and articles in print or digital form as well as images, symbols and
texts in videos, films and other visual media. Figure 17 illustrates the basic process for
content analysis, the main purpose of which is to employ systematic, qualitative and
quantitative analysis to create inferences from the content of written documents,
transcripts or other types of written communication (McNabb 2008).
Figure 17: Basic process for content analysis (Kohlbacher 2006).
According to Mayring (2000), the aim of qualitative text analysis is to preserve the
benefits of quantitative content while interpreting a text qualitatively. Contents are
analysed through word groups that disclose core themes or concepts. Key themes,
concepts and new revelations emerge through this analysis according to the frequency
of words or phrases. Organisational behaviour and management research has
confirmed that content analysis is employed to study deep individual or collective
structures including values, intentions, attitudes and conditions (Duriau,
Reger & Pfarrer 2007). Qualitative content analysis is considered to be a highly
adaptable method of investigating information from a variety of sources irrespective of
their discipline; it is an ‘approach to documents that emphasizes the role of the
investigator in the construction of the meaning of and in texts (Bryman 2004, p. 542).
In this thesis, the researcher endeavours to reveal how post-disaster relief and
recovery projects were planned and managed following large disasters in various
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countries and by different organisations between 2003 and 2016. Documents were
analysed utilising a qualitative content analysis method in an effort to answer the main
research question (MRQ) and achieve the objectives of the study.
Quantitative content analysis shares many of the general characteristics of qualitative

content analysis but also has some specific distinguishing features, namely in the
application of a coding scheme and in how its reliability is tested. During the sampling
process of the materials selected, it is important to classify the unit of text during the
coding process. Then a coding scheme needs to be applied by developing classification
rules to assign coding units. These coding units include words, phrases, sentences,
paragraphs and even entire documents. Once the coding scheme has been developed,
it needs to be tested to remove any errors, and then coding begins. The step-by-step
approach to quantitative content analysis is illustrated in Figure 18 below.
Figure 18: Step-by-step approach to quantitative content analysis

(Rose, Spinks & Canhoto 2015, p. 3).
Graphs, tables and charts are used in quantitative data analysis to help the reader
understand the data. Several tools and software packages exist to organise data in its
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raw format and transform it to reveal correlations between data variables. Most
statistical outputs are displayed in the form of tables which are then extracted in more
visual formats such as charts and graphs. Table 19 below provides some of the
commonly used tools for quantitative content analysis. In this study, Microsoft Excel is
utilised to analyse the semi-structured interviews while SPSS is utilised to analyse the
results of the questionnaire survey.
Name Interface Platform Pros Cons

STATA GUI & command Windows, Mac and Unix Compatible with most Relatively hard to
syntax data sources and online learn
databases
SPSS Mainly GUI, Windows, Mac and Unix Most commonly used Not as flexible as R
supports a statistical software and SAS for
command syntax customized
analyses
SAS Mainly command Windows and Linux Intermediate-level users It is not possible to
syntax, basic GUI as can perform complex buy a student
optional add-on data analyses tailored to license for home
their needs usage.
Tableau GUI (graphical user Desktop version is Visually appealing, easy- Not adaptable to
interface) Windows only. to-use drag-and-drop specific research
Online version: Windows, interface needs
Mac and Unix
R Command syntax Windows, Mac and Unix Free to use GNU software Hard to learn, only
command syntax
interface
Excel Toolbar and tabs Windows and Max Free with Microsoft Suite Limitations for
statistical analysis
Table 19: Common tools used for quantitative data analysis

(adapted from R Foundation 2016).
In other words, quantitative content analysis ‘practices statistical deductive concept

while qualitative content analysis is inductive, non-statistical and uses exploratory
approach’ (Dumrak 2013, p. 136). In this thesis, the researcher has applied quantitative
content analysis in order to capture information in a numerical format by studying
statistical artefacts from the various post-disaster project documents. While there are
several advantages to collating quantitative content from the semi-structured
interviews and survey, it is the researcher’s intention to travel beyond the world of
numerical details. One of the noted weaknesses in the process of sampling documents
and coding information is that biases can be introduced. ‘Taking a word or phrase in
isolation of other parts of the text … may result in loss of meaning’ (Rose,
Spinks & Canhoto 2015, p. 7). What is required for this research is to perceive a holistic
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overview of how post-disaster relief and recovery projects have been managed in
order to provide a new world view through a process of analysis.
3.5.2.2 Microsoft Excel for quantitative data analysis
The researcher has utilised Microsoft Excel as the data analysis tool for the semi-
structured interviews. Because these interviews were open ended, themes were
assigned to the responses, which were then coded. The frequencies of occurrences
were then computed and proportions assigned. Excel is used primarily due to its
convenience as part of the Microsoft Office suite and neither required additional
training nor did it incur additional costs. In addition, Excel integrates efficiently into
other Microsoft software products, which makes it easier and more efficient for the
data to be moved from one area to another when preparing journal articles,
presentations, reports, etc.
3.5.2.3 SPSS Statistics for quantitative data analysis
SPSS Statistics is one of the more common tools for obtaining numeric results,
especially from questionnaire surveys. SPSS is a software package for statistical
analysis allowing data to be presented in numeric and statistical form. Because the
software allows a large quantity of data or complex data to be processed, it is possible
to save time by avoiding time-consuming manual data entry. The most common types
of analyses provided by the SPSS package are descriptive, correlation and inferential.
According to Jackson (2015), descriptive statistics display a body of data, while
correlation statistics involve two or more variables that are dependently and
interdependently interrelated (Leedy & Ormrod 2001). Inferential statistics are
‘procedures for drawing conclusions about a population based on data collected from
a sample’ (Jackson 2015, p. 196), meaning that it is possible to form generalisations on
a large population through the investigation of the collected samples.
This study will utilise SPSS to analyse the data obtained from the questionnaire survey,
which has served as a triangulation method.
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3.5.3 Linking research objectives with research methods
The aim of this thesis is to investigate the application of an agile PM methodology to

natural disaster projects. The study will use the benefits of best PM practices and
methodologies in the context of disaster management to more efficiently and
effectively transition affected communities from chaos to recovery and stability. It
attempts to provide project managers and disaster managers with the appropriate
tools, supported by robust research, to manage and implement projects in a more
effective manner.
It is envisaged that an agile PM framework can be developed as a guide to aid post-

disaster projects and a versatile tool for traditional project managers or disaster
managers to broaden their skills base in order to manage post-disaster projects. This is
intended to be achieved by adapting and applying the agile PM methodology to post-
disaster projects and utilising stakeholders, project beneficiaries and end-users as the
key sources of information for project deliverables.
To understand the key factors affecting DM and to contribute to answering the main
research question (MRQ), five research objectives were presented in Chapter 1.2 and
refined in Chapter 3.2. Once these objectives are clarified, the researcher will be in a
position to not only answer the research question with supporting evidence but also to
provide an agile framework for post-disaster projects. The objectives are:
projects; and
(v) To propose an agile framework which can be applied to post-disaster projects.
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In investigating the practices from the objectives set above and providing a solution to
achieving successful and sustainable projects, it is essential to link the research
objectives to the methods applied to this study (see Figure 19).
Firstly, a document analysis was necessary to obtain a clear understanding of the topic,
its constraints and barriers and also to support the research. In examining the
literature, a content analysis also identified the key challenges and deficiencies which
led the researcher to proceed to more active and participative methods by way of a
series of semi-structured interviews. The interviews enabled the researcher to obtain
current qualitative and quantitative data to gauge the targeted organisations’ PM
practices and to compare them with the findings from the literature review. In doing
so, it was possible to apply some robust findings to answer objectives 1, 2 and 3.
To achieve objectives 3 and 4, a series of “desktop” and “live” case studies of post-
disaster relief and recovery projects was conducted. The desktop case studies
necessitated data collection via document analysis of project documents, media
bulletins and various online databases. The live case studies were performed with the
consent, collaboration and consultation of two not-for-profit organisations, Balay
Mindanaw in the Philippines and Disaster Aid Australia. It was the researcher’s
intention to compare and contrast case studies from around the world while utilising
findings from the literature review and the semi-structured interviews as a point of
comparison.
Further, a questionnaire survey was conducted with the aim to validate the findings
and extract key features and attributes to be linked to an adaptable methodology and
applied to post-disaster projects. Findings from the survey were examined and linked
to the case studies in order to guide the research on the type of data which needed to
88
be extracted. Based on the findings from all the methods employed, a framework was
created with the learnings obtained in addition to established best-practice PM as
applied to the Agile methodology.
Document analysis includes: review of literature, internet sources and project documents, etc.
Figure 19: A link between objectives and research methods.
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3.6 Ethical considerations
As this research entails participation from non-government organisations, their staff

and community members, it is the researcher’s responsibility to ensure that consent is
acquired and the privacy, integrity and confidentiality of participants is respected at all
times. Please note that letters of support from the participating organisations have
been obtained (see Appendix I and J).
Prior to the start of the data collection, approval was obtained from the Human
Research Ethics Committee. Because of previous research undertaken for a Master of
Project Management degree, the researcher also has knowledge of the Australian
Code for the Responsible Conduct of Research and the National Statement on Ethical
Conduct in Human Research. All information obtained from this research will be
safeguarded as per the University of South Australia’s practice and policies.
3.7 Chapter summary
This chapter has covered the methodology applied to this research and the reason for
the choice of methodologies. The methods of data collection applied are in the form of
literature review, semi-structured interviews, case studies and a questionnaire survey.
The data was analysed using content analysis and statistical methods. The objective of
performing a variety of data collection methods is to establish a more robust
investigation and to provide a triangulation option. By performing data triangulation,
the research provides assurance of validity and reliability. The findings of the data
analysis are presented in both quantitative and qualitative format.
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Chapter 4 Analysis of Semi-Structured Interviews
4.1 Introduction
The aim of this chapter is to analyse the findings of the preliminary data collection in
the form of semi-structured interviews. This preliminary data collection is to obtain the
opinions from professionals in the fields of project management (PM) and disaster
management (DM) about current practices in managing post-disaster projects and
what is perceived and used as best practices during the management of such projects.
This preliminary data collection is also to act as a link between the literature review
and the main data collection in the form of the case studies.
The interviewees are DM and PM professionals with experience in a variety of natural

hazards who were selected based on their profession, their willingness to participate,
their experience and their interest in improving the field of research (see Table 20 for
the interviewees’ profiles). All participants were provided with an information sheet on
the research (Appendix B) and consented to the interviews by completing and signing a
consent form (Appendix C). The interviews lasted approximately 60 minutes and were
conducted via Skype due to their widely dispersed geographical locations (Jeddah,
Philippines, Thailand, South Australia, Victoria and Tasmania). They were recorded to
ensure the accuracy of responses and guard against loss of data. The interviews were
analysed both quantitatively and qualitatively, and a deductive research approach was
followed as described in Chapter 3.3 (see Figure 11).
The interviews were conducted with the intent to contribute to the following research
objectives:
(i) To assess the current PM practices in post-disaster projects; and
adaptable methodology to manage post-disaster projects.
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4.2 Preliminary data collection and analysis
Firstly, the main themes, categories and gaps were identified in the review of the
literature. Information from interview participants was gathered through the use of a
digital recording device which was clearly identified to them prior to the start of the
interview to confirm their consent to being recorded. The recording device allowed the
researcher the opportunity to concentrate fully on the responses, even though notes
were taken during and after the recording. These notes were also taken into account
during data analysis. Each interview was transcribed and underwent a series of coding
exercises related to themes, relationships and differences to the subject matter for the
observation stage of the data analysis. This process is called “pattern matching” of
data obtained from the interviews and correlating to the extensive reading on the
research topic was done to ensure understanding of the context and to capture
perspectives from the participants – this included re-visiting and reviewing the
interview transcripts to ensure that the emphasis on the topic was accurately
captured. Microsoft Excel was used to obtain a quantitative analysis of the interview
findings after which patterns and connections became apparent and more revelatory
and instructive – thus providing some confirmation of the theory.
Digital copies of the recordings are stored on a flash drive and in the researcher’s
computer, which is password protected. All electronic and digital files pertaining to the
interviews will be archived in a secure location to ensure confidentiality. All recordings
are available to the examiners upon request.
4.3 Analysis and Findings
Following the interviews, a number of challenges were identified as being lacking in

the way PM was applied to DM projects within the respondents’ organisations.
According to the interviewees, such challenges were said to have major impacts on the
success of post-disaster activities, and they also provided a number of solutions which
might assist in achieving success. A number of recurring key themes were identified:
communication and consultation, cooperation, training and exercise, collaboration,
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financial bureaucracy, decision making, leadership, cultural awareness and
adaptability/flexibility.
4.3.1 Analysis of participants and their organisations
This section provides the necessary support that the participants are appropriate for
this component of the study. The participation of professionals from the DM realm in
these interviews is vital for obtaining in-depth data for analysis from a PM perspective.
The sample of interview participants comes from a variety of private, government and
non-government organisations and from various states and territories in Australia as
well as the Philippines, Saudi Arabia and Thailand. The participants also hold a variety
of positions, which ensures that alternative perspectives are provided (see Table 20).
The balance of thought from the variety of organisations, countries and levels of
experience was intentional, the only pre-requisite being that the participants have
been involved in post-disaster projects. With an average of 19.3 years of experience in
the DM field, these skilled and knowledgeable professionals are not only able to
highlight the complex issues of managing post-disaster projects but also demonstrate
with their expertise the complexity of the profession itself and inform on the gaps
which will need to be bridged in order to deliver projects more successfully using PM
practices. What their participation also reflects is the need for PM professionals to
become actively and professionally involved in the DM field.
While governments, NGOs and private organisations alike have a number of

respondents and specialists active in a response or recovery role in post-disaster
projects, it is rarely the case that such DM employees have an appropriate level of PM
skills. They are specialists in managing post-disaster projects the best way they know
how, effectively becoming “accidental project managers” (Pinto & Kharbanda 1995;
Ensworth 2001; Darrell, Baccarini & Love 2010). Similarly, seldom are specialised PM
professionals skilled in managing post-disaster projects called upon. In fact, there is no
actual research to date to provide any kind of empirical information on this aspect.
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Interviewee Organisation type Position Experience Professional experience
in years and hazard
1 State Emergency Planning Officer 13 Strategic and operational

Services planning in extreme
weather (heat) and flood.
2 NGO Response Team & 6 Aid delivery, disaster project

Board Member management – cyclone,
earthquake and flood.
3 Consultant Coastal Planner 4 Emergency Management

(EM) plans, sea-level rise
assessment, emergency
access and egress – storm
surge and flood.
4 Transport Chief Risk Officer 13 Clinical, financial, health risk

management – fire, flood
and disease outbreak.
5 Local government Urban Regional 11 GIS, logistics, construction,

Planner planning – tsunami, cyclone
and earthquake.
6 NGO President in 40 Resiliency building, peace

Operation, and conflict negotiations,
Chairman post-disaster assessments –
Emeritus earthquake, typhoon and
flood.
7 Consultant Recovery Planner 40 Risk, EM plans, incident

management for fire.
8 Firefighting Director of 36 Coordination, response,

Community end-user coordinator,
community resiliency, post-
incident disaster research
for bushfire.
9 Police Planning Officer 12 Planning for HazChem

incident, counterterrorism,
information management –
bushfire and floods.
10 Consultant Project Head of 18 Water specialist, waste

Mission water treatment –
earthquake, flood, tsunami
and typhoon.
Average years of experience 19.3
Table 20: Interviewee profiles.
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4.3.2 Challenges and possible solutions to managing post-disaster projects
Table 21 shows the challenges put forward by the interviewees when they worked on
post-disaster projects within interdisciplinary and collaborative teams from
government, non-profit and private organisations in a DM context, representing the
percentage of respondents who have indicated such challenges facing their
organisations. The challenges ranked highest were in the areas of communication and
consultation (100%) as well as collaboration (70%), and several researchers confirm a
strong need in the DM sector in these respects (McEntire 2002; Oloruntoba 2005;
Perry, M 2007; Kapucu & Garayev 2011). This is closely followed by resources/roles
and responsibilities (60%), which indicates a need to improve the human resources
aspect to minimise turnover and to ensure that lessons learned from managing
previous post-disaster projects will remain within the organisation, increasing its level
of experience. According to Webb and Carpenter (2012), high turnover rates impact
agencies through loss of efficiency and effectiveness due to time taken up for training,
initiating, coaching and supervising new employees as well as the loss of collaborative
links and inter-agency relationships created by their predecessors. Moreover, high
staff turnover increases workloads for existing staff, which may also impact negatively
on morale. From a consultative aspect, the lack of staff consistency has been shown to
affect vulnerable stakeholders. What is surprising to note is the level of importance
placed on infrastructure (40%) and financial bureaucracy (40%) as key challenges.
Infrastructure is a challenge in this context because there are insufficient details on
how best to manage it, and in many developing economies much of the infrastructure
has been poorly maintained or repaired, is limited or lacking altogether
(Nazara & Resosudarmo, 2007). Financial bureaucracy has also received a high
percentage on the issues listed – for various reasons, which include high expense
charges from international NGOs, e.g. the Red Cross spending as much as 25% of
donations on internal expenses (Elliott & Sullivan 2015; Sullivan & Elliott 2016) or
assets being diverted to public relations campaigns (Elliott & Eisinger 2014), but the
cost of collaboration with other agencies has also been cited as an issue. In comparison
to these findings, empirical research has shown that joint or collaborative decision
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making contributes to successes and actually saves costs (e.g., Minson & Mueller
2012).
Key challenges % of respondents

indicating key themes
Communication & Consultation – activities for stakeholders are 100%
insufficient and inadequate; lack of stakeholder agreement; tools and
systems lack in quality; a westernised approach is used; lack of
cultural awareness; lack of social data; lack of information flow
during events, especially in response phase, when this is most critical
Collaboration & Coordination – lack of grassroots activities to obtain 70%
buy-in from community agencies and partners; people and
organisations operate randomly; work duplicated or triplicated; aid
goods and materials not permitted into the countries
Resources/Roles & Responsibilities – high personnel turnover; not 60%
enough experience; not enough personnel
Infrastructure – inadequate environment in areas such as sewage 40%
and drainage; building codes require updating; plants and equipment
Financial Bureaucracy – high NGO expenses diverted from actual aid; 40%
fund transfers are blocked; fear of who bears the cost of
collaboration
Decision Making – decisions made without using local knowledge; 20%
too much uncertainty and decisions made due to stress; sense of
dread diminishes capacity to make decisions
Training & Exercise – insufficient training on dealing with and 10%
responding to death
Governance & Corruption – governance arrangements are not in 10%
place
Processes & Procedures – Emergency Management (EM) plans are 10%
not accessible
Political Support – government in disarray and unable to cope 10%
Table 21: Challenges faced by organisations when working with interdisciplinary teams.
When asked to consider how best to overcome these challenges and what was needed
to improve the delivery of post-disaster projects, the respondents suggested
improvements as listed in Table 22. The first item on the list was communication and
consultation (100%) with all stakeholders, especially the affected communities and
groups and agencies who are in the best position to assist. This item also includes the
attendance of information sessions such as UN Cluster meetings, highly informative
sessions to receive and communicate details of activities in order to deliver what is
actually needed. Inter-agency and governmental collaboration (63%) at all levels rank
second on the list because potential gains outweigh the cost involved. Despite the fact
that it takes more time, money and effort to make decisions collaboratively,
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collaboration happens ‘on the assumption that the resulting decisions will be superior
to decisions made individually (Minson & Mueller 2012, p. 222).
Key drivers to overcome challenges % of respondents indicating

key themes
Communication & Consultation – use local knowledge; do no harm; 100%
go through the UN Clusters; obtain agreement on issues; follow
cultural guidelines; more accurate information
Collaboration & Coordination – understand level of procedures; 63%
unifying international codes; build capacity of organisations and
communities; work with other agencies; coordinate with local actors
Resources/Roles & Responsibilities – share capacities; focus on long- 63%
term resilience and recovery; manage risks better; multi-hazard
teams
Training & Exercise – better clarity and understanding of scenario; 50%
more training; need to develop new frameworks
Decision Making – authority; willingness to make tough decisions; 38%
delegation practice
Infrastructure – flood mitigation; better electrical systems 29%
Processes & Procedures – all agencies and organisations must have 25%
EM plans
Governance & Corruption – more transparency; less corruption 13%
Financial Bureaucracy 0%
Political Support 0%
Table 22: Suggested improvements to overcome challenges and better deliver projects.
Surprising in this section is the perceived need for more training and exercise, which is
interpreted as skills improvement, coaching, mentoring about decision making and the
ability to delegate. Based on the interviews, decision making during an event varies
widely based on the responsible person’s, experience, risk tolerance, level of trust and
confidence in themselves and in the intelligence provided. According to Hess and
Bacigalupo (2011, p. 719), ‘decisions worth making often generate conflict, and the
ability to manage that conflict involves an emotional intelligence skill that can
determine the ultimate success of the decision-making process’.
4.3.3 On adapting a traditional project management methodology
When asked about the use of PM to implement DM activities, 60% of the interviewees
replied that they use their own resources and 40% employ consultants for PM
activities. Table 23 indicates that PM is used but its application is not necessarily
practiced professionally. Of those who use PM, 70% have dedicated project teams to
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manage the projects within their organisation. 50% of respondents said that their
organisations do not have their own PM methodology, 30% do, and 20% noted that
PM best practice is used in their organisations.
Within the organisation % of respondents

Management of projects Utilising their own resources 60%
Using consultants 40%
Dedicated teams Yes 70%
No 30%
Own PM methodology Yes 30%
No 50%
Using best practice and standards 20%
directly linked with a certain specialty
but not necessarily linked to PM
methodology
Table 23: Use of PM in DM projects.
Many of the participants commented on being thrown into projects or becoming

“accidental project managers” (Ensworth 2001; Moran & Youngdahl 2008) and having
to crash-course their way through. ‘A typical project management life cycle consists of
initiation, planning, executing, and completing phases’ (Moe & Pathranarakul 2006,
p. 401), and due to the similarities in these life-cycle phases of PM and DM (see also
Figure 2 in Chapter 1.1.3), following a PM methodology might be beneficial.
4.3.4 The need for process vs flexibility/adaptability
DM implies unpredictability and complexity. Therefore, the ability of an organisation to

function in this environment is a key contribution to better management:
Organizations, and the projects they govern, must deal with challenges posed by
uncertainty in ecological, social and economic sustainability; ambiguity arising from
advances in the technological means of communications; shifting geopolitical power
relations that bring both challenges and opportunities (Pitsis et al. 2014, p. 1287).
This ability in times of unpredictability and complexity requires a trade-off between
adherence to a process and adaptability/flexibility. Koria (2009) notes that
organisations dealing in response strategies and recovery activities would obtain
substantial benefits from being flexible, by applying learnings through continuous
improvement and administrative innovation. However, Figure 20 (below) illustrates
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that 70% of respondents believe that their organisation is not equipped to deal with
unpredictability.
Figure 20: Current status of organisations in dealing with unpredictability.
Figure 21: Organisations’ adherence to process vs adaptability/flexibility.
When asked why, Figure 21 highlights the reverse situation, with 70% of respondents
indicating that their current culture is too attached to processes and there is a
corresponding lack of effectiveness when faced with situations for which no
operational plans exist and a degree of adaptability is required.
4.3.5 Decision making in the absence of intelligence
On the theme of roles and responsibilities, 80% of interviewees note that the chain of
command is clear while 90% note that there is always one person in charge. Based on
this outcome, the deduction is that organisations still operate a command and control
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(C&C) environment. However, when asked about what factors contribute to effective
decision making in the absence of intelligence, Figure 22 identifies that communication
and collaboration with 25%, experience with 20% and training and exercise with 20%
feature highly as contributory factors, thus confirming the outputs of the literature
review. Decision making is about the application of several skill sets, including social
awareness and relationship management skills, self-awareness and self-management
skills and also a high degree of emotional intelligence (Hess & Bacigalupo 2011). While
one can assume that the decision maker is a leader or manager of sorts, the results do
not show leadership/management and control to have a great impact on decision
making – which could lead to rethinking the role of the project manager as a
coordinator rather than manager (Nerur, Mahapatra & Mangalaraj 2005), placing
emphasis on the degree of experience and the ability to delegate.
Figure 22: Factors that contribute to decision making in the absence

of up-to-date intelligence.
4.3.6 Solutions to improve the management of DM projects
When asked to make recommendations on how to improve the way DM projects are
handled, the following four themes come into focus (as shown in Figure 23 below):
consultation (20%), delegate decision making to a broader group (20%),
flexibility/adaptability (15%) as well as cooperation and collaboration (10%). The three
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dynamic features ranking highest appear to dominate the board in the way they
influence decision making.
Figure 23: Overall solutions for the improvement of post-disaster management

projects.
4.4 Challenges and drivers
The interviews revealed that both challenges and drivers or areas of improvement
have the same attributes (see Table 21 and 22). So when these attributes are not
skilfully applied, projects are delivered with limited success in the DM realm; however,
as these attributes can also increase successes in DM project delivery and can thus be
seen as drivers.
Consultation
Consultation and stakeholder engagement support the involvement of local
communities, businesses, stakeholders internal and external to the project, technical
experts and any other member of the public in the decision-making process. By
ensuring early consultation and stakeholder management, risks and issues which could
arise during implementation can be significantly minimised, enabling ‘local people and
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community groups to have a tangible influence on the location, function and form of
the project’ (Clarke 2015, p. 35). Following a disaster, however, there are several
potential governance problems which arise due to the pressure such calamities place
on administrative systems and the consultation and participation process.
‘Meetings, talking with communities and consultation can become very
political’ (Interviewee 5).
Communication
According to PMBoK (2013), communications management is one of the ten
knowledge areas and includes the processes which provide the vital links between
people and information. The project communications process involves identifying
stakeholders for planning communications strategies and then managing
communications through creating, collecting, distributing, storing, retrieving and
disposing of project information, in addition to monitoring and controlling information
flow throughout the project lifecycle (PMI 2015). Pinto and Pinto (1990) state that
communication is a means by which multifunctional and multidisciplinary teams share
information critical for successful project implementation. Though this is well known,
communication has been a leading topic in PM literature in association with the
success or failure of projects.
‘We’re dealing more and more with having to communicate and exchange
information with other organisations, work with multi-disciplines. We still don’t
have the best way of doing this … we’re still trying to get our own internal
exchanges working’ (Interviewee 1).
Although various BoK have established communications guidelines for IT projects,

research suggests that project communications are still not being managed in a formal
manner (Carvalho 2013). In post-disaster projects, the challenges and barriers are even
greater, and greater effort is required to ensure communication flows.
‘Organisations were operating at random. They were duplicating, triplicating
and did not want to tell what they were doing or hear what others were doing’
(Interviewee 2).
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Cooperation and collaboration
In traditional PM, collaborative networks and cooperation exist because the
organisations involved have formed strategic alliances or partnerships, usually
formalised through legal agreements to achieve certain goals to be delivered through
projects. For such ventures to succeed, it is necessary to have a seamless exchange of
information and establish collaborative networks to ensure smooth implementation.
Project managers are responsible for ‘driving these networks towards their common
mission, by coordinating the collaboration and communication activities, and
managing the sharing of interests between the common objective and the goals of the
individual companies’ (Binder 2007, p. 173). Following disasters, such agreements may
or may not be in place and may not be upheld due to the widespread destruction or
other pressures the affected country has been placed under. Therefore, it is up to
individual organisations to organise themselves and form collaborative networks for
the benefit of the affected communities.
‘Unless collaborators have good grounding in their area and profession,
collaboration will not be effective. During recovery, because we are working
with so many different organisational cultures, the environment becomes very
political’ (Interviewee 7).
Delegation of decision making to a broader group

Most organisations have the hierarchical top-down model where authoritative
management persists. The delegation of decision making, better known as
participative management, “is based on the involvement of employees in decision-
making and problem-solving in the company, as well as on supporting their high
autonomy and own initiative and creativity” (Rolková & Farkašová 2015, p. 1384). As
seen above in the section on consultation, a broader group of decision makers also
includes communities, local businesses, etc., the types of groups who are affected
most by a disaster. Because they are most probably part of the project workforce in
some shape or form, their needs are primordial and, hence, it is imperative that they
have some decision-making powers.
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‘The success of emergency plans is that the community organises themselves.
Because it is their plan to stay alive, they know what they need, how they work
and think and what is best for them. So they tell us what they need and it helps
us decide how to make the plans for them’ (Interviewee 5).
Leadership
The project environment is by far one of the best professional arenas for individuals to
shine, not only as managers but also as leaders. It provides the platform to motivate
teams with meaning and vision and to ensure that the job is done well. According to
Shenhar (2004, p. 573), projects ‘are the sites where new ideas are transformed into
tangible results, and where vision becomes reality’.
Post-disaster PM can be classified as complex project management. In these situations,
experienced project or emergency managers would be skilled in their roles and also
have the additional attributes and skills necessary for complex PM. As our
environment becomes more volatile climatically, economically and politically, bringing
about more complex and unanticipated consequences, it is necessary to consider
alternative methods of managing, planning and strategising. Managing complexities in
projects requires a high level of ‘self-reference, the ability to thrive on change, a solid
foundation in traditional methods and techniques, and the ability to adapt to change
and develop new approaches on the fly’ (Thomas & Mengel 2008, p. 309). The ability
to manage post-disaster projects requires one of the highest levels of skills, attitudes
and attributes, and it is agreed that few stand out in that particular position (Crawford
2005).
‘What we call leaders in such times are not looking broadly enough. They
cannot think across functions. A CEO might be able to “re-sell” the project to
everyone, but most Australians like me, even mid-level management, have no
idea of management whatsoever. This includes PMs. There is no methodology’
(Interviewee 7).
Roles and responsibilities
Assigning roles and responsibilities to a traditional project is critical as it clarifies and
allocates resources to specific work packages and with clear governance lines.
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According to Blomquist and Müller (2006), some typical management problems in
portfolio and program management that arise include lack of resources, lack of
competencies and the composition of steering committees and teams. In addition to
the absence of management support, roles and responsibilities are also often unclear
at project, program or portfolio level in the area of commitment. In volatile conditions,
it is even more of a challenge to clearly set roles and responsibilities. Depending on the
size of the project, the availability of resources and the level of complexity, it is not an
easy feat to establish a multidisciplinary team which can function in adaptable
situations and make decisions proactively, using discipline-specific types of
information, modelling, analysis and tools for their work (Liston, Fischer & Winograd
2001). It is an even greater challenge to pool this discipline-specific information, make
sense of the greater picture of the project and support access, interaction and decision
making. Additional issues faced by such teams include differences in organisational
culture, lack of trust due to casual or short working time together and operating
procedures.
‘With AIIMS, roles and responsibilities are clear in all agencies here in Australia.
These arrangements were established three years ago – though this didn’t work
very well in the first two. By the third year we weren’t working against each
other as much’ (Interviewee 8).
Table 24 (on the following page) shows the various attributes which were analysed
based on what was mentioned in the preliminary interviews and how these attributes
relate to the field of DM for the participants.
Table 25 (on page 107), provides a summary of the issues and challenges mentioned by
the ten interviewees within their organisations. It is important to recall that a PM
approach in this field is still limited (see Table 23). With 60% of the organisations using
their own staff to manage projects and 50% of the organisations not using any kind of
methodology, it is clear that PM skill sets need to be enhanced.
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Attribute Relevance to DM projects
Consultation Community-based, with ongoing consultations occurring in
all the following PM knowledge areas: scope, procurement,
communications, stakeholder, time and risk management.
Communication Stakeholder participation and involvement in decision

making, at pre-implementation assembly and other
meetings.
Cooperation & Collaboration Involvement of local community committees, community

PM committees, planning, social welfare, municipal
agriculturist, mayor, engineers, public health etc. is a
necessity in order to ensure champions for projects.
Delegation of decision making to a Shared, collaborative or individual decision making is

broader group encouraged of all team members; rationale for decision
making is necessary; project manager or committee must be
kept informed.
Leadership Development of second-in-charge is ongoing in most areas

by current directors, ensuring sustainable succession
planning.
Roles & Responsibilities / Team Structure Dedicated programme management; project teams are
collocated, roles and responsibilities are changed based on
demands of project and resource needs.
Flexibility & Adaptability Change of best practice to suit needs; adapt to (human and
material) resource needs and requirements.
Training & Exercise Performed in quarterly lessons learned assessments and

planning sessions where accomplishments, limitations and
facilitators/enablers are discussed; mid-project assessment
and stakeholder workshops.
Table 24: List of critical attributes.
This overview of challenges mentioned by the interviewees clearly demonstrates

agreement on the strong need to improve communication, consultation, collaboration
and cooperation, flexibility/adaptability and decision making. Once lessons are
identified and become part of best practice, it is necessary to train and exercise these
new forms of best practice; hence, lessons learned are included in training and
exercise. Within Emergency Services organisations (police, firefighters and
ambulances), agencies have a thorough debrief following a disaster and lessons are
translated into actions to be practiced in the next training. Lessons learned activities
are especially thorough when best practice has failed, or in the cases of loss of life
when a formal enquiry or commission is required. Some organisations have adequate
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Table 25: Summary of challenges and issues based on interviews.
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processes in place to conduct lessons learned, whereas in others this depends on the
project manager or there is no formal process at all. One of the general issues with
gathering lessons learned is the appropriate method of collating details without staff
feeling targeted for errors they have made or fearing reprisals when there are fatalities
involved.
4.5 Chapter summary
Disasters affect people’s lives, livelihood and culture, and their impact on the local,
national and international economy means that projects cannot be managed by
looking at the pillars of cost, quality and time like in traditional projects. As supported
by the literature, both qualitative and quantitative methods have revealed the need to
approach and manage post-disaster projects differently to traditional projects. The
overview of issues and challenges in Table 25 clearly reveals what the interviewed
organisations must contend with when no appropriate PM approach to post-disaster
project is present. The importance attached to the attributes which render post-
disaster project implementation successful was also clearly demonstrated during the
interviews.
The quantitative and qualitative analyses of the semi-structured interviews revealed

findings with which it is possible to respond to the queries posed in objectives (i) and
(ii): (a) current PM practices in organisations active in delivering post-disaster projects
have been assessed; and (b) the elements of best-practice PM which are most
essential for an adaptable methodology to manage post-disaster projects have been
evaluated. The findings reveal that consultation, communication, cooperation and
collaboration, delegation of decision making to a broader group, leadership, roles and
responsibilities, training and exercise as well as flexibility and adaptability are the key
features necessary to better manage post-disaster projects. The response to these
objectives also reveals that DM will need to change from traditional C&C structures to
an adaptable style in order to better cope with the volatile environment following the
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consequences of natural disasters. The literature available has pointed out that,
without the practical application of such solutions, post-disaster relief and recovery
projects will continue to be a source of frustration to the DM industry (Boehm 2002;
McEntire 2002; Boehm & Turner 2004; Oloruntoba 2005; Harrald 2006; Koria 2009;
Simonovic 2011).
The next chapter continues the investigation into four desktop case studies of post-
disaster projects following a major calamity in a particular country. The case studies
follow the thread identified thus far and utilise the outputs of the literature review and
the semi-structured interviews to obtain some more in-depth findings.
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CHAPTER 5 Desktop Case Studies
5.1 Introduction
The case studies were chosen to gather data on how post-disaster projects have been
managed using a traditional project management methodology (TPM) by international
organisations. This chapter will introduce the details of the case studies chosen by
providing country-specific information, followed by details about the organisation
leading and/or funding the project and project-specific details. The chapter will then
focus on the key PM issues and challenges, in particular the key attributes noted in the
theoretical framework (see Figure 15), which these projects faced – with
recommendations made accordingly.
Four desktop case studies have been conducted of projects already completed and
with documentation available to the general public and on public domain networks.
The case studies provide greater understanding of how post-disaster projects have
been managed, informing the researcher on how best to achieve the stated objectives.
The case studies make several additional enquiries related to PM, which are not direct
outputs of the literature review or the interviews. However, as issues and challenges
are interdependent, the aim is to elicit answers directly related to the topics by asking
those peripheral questions.
5.2 Selection of desktop case studies
Information for the desktop studies was obtained from libraries, documents,
newsletters, brochures, fact sheets and newspaper articles available on the World
Wide Web. Table 26 provides an overview of the four desktop cases while Chapter
3.4.3 above also offers more background details about the projects (see Table 16). The
data extracted from the desktop studies also included lessons learned,
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recommendations and project review reports to identify the areas of the project which
are pertinent for this research.
Hazard Project name Year Organisation Country

1 Earthquake Water and Sanitation 2011-12 American Red Cross Haiti
Direct Implementation (ARC)
(Watsan DI) Project
2 Earthquake Bam Earthquake 2005-09 International Bank for Islamic
Emergency Reconstruction Reconstruction and Republic of
Project Development (IBRD) Iran
through the World Bank
3 Flood Early Recovery and 2010-13 United Nations Pakistan
Restoration of Flood Development
Affected Communities Programme (UNDP)
4 Earthquake Tonga Post-Tsunami 2010-13 The World Bank Kingdom
Reconstruction Project of Tonga
Table 26: Four desktop case studies.
While there have unfortunately been many natural disasters to choose from for data
collection through case studies, these projects were selected for the following reasons
(see also Chapter 3.4.3):
(i) Availability of sufficient data from numerous sources about the same event,
therefore providing adequate resource outlets to verify information;
(ii) Projects undertaken by organisations with several years’ experience in post-
disaster PM in different countries and cultures, thus providing this research
with data from broader sources;
(iii) Different hazards;
(iv) Projects addressing different components of post-disaster recovery.
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5.3 Desktop case study 1 – Haiti
Figure 24: Map of Haiti with earthquake data (Encyclopaedia Britannica 2010).
5.3.1 Type of organisation and where they operate
American Red Cross (ARC) – International
As part of their international services, the ARC has a humanitarian network in 187
countries with 13 million volunteers. Their aim is to respond to disasters, build safe
communities and provide training and education to personnel to recognise and
understand circumstances governed by international law. The ARC has over 130 years
of experience working with the network of Red Cross and Red Crescent societies and
assisting vulnerable people and communities globally.
5.3.2 Project details
Title Water and Sanitation Direct Implementation (Watsan DI) Project

Location Haiti
Client Communities, schools, camps and public spaces
Programme Water, sanitation and hygiene programme with 23 projects in 26 communities
Start Date 1 January 2011
Completion Date 31 December 2011
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Actual 30 September 2012
Completion Date
Status Completed
Initial Budget US $3 million
Actual Budget US $1,545,012 (50% reduction)
Scope School services included rehabilitation or construction of latrines, rainwater
harvesting and hand-washing stations. Services to 50 camps included water
systems, water trucking, drainage, construction and desludging of latrines. The
provision of cash transfer services permitted the employment of much needed
Cash-for-Work options for the cleaners of latrines at the camps, enabling the
workers to pay back debts and/or start small businesses. Services to the Morne
L’Hopital community included the provision of 20 rainwater harvesting systems
and 50 latrines, enabling the 250 inhabitants to remain in their community instead
of having to collect drinking water in Port-au-Prince – saving half-a-day’s journey
to bring water to a household. Services to the Marché Salomon site included
latrines and bathing facilities.
Delays 6 months, due to:
• Lack of physical resources;
• Cost increase;
• Lack of human resources;
• Political interference.
Issues • Lack of hygiene promotion follow-up from Watsan at the schools; latrine
facilities were found to be dirty and foul smelling, taps for hand washing were
broken and bins were unused;
• Lack of a proper approach and coordination of this programme restricted full
delivery of health and hygiene services and failed to capitalise on the wealth of
experience amassed in the Participatory Hygiene and Sanitation Transformation
(PHAST) and Community Led Total Sanitation (CLTS) methodologies;
• While the key messages to uphold and maintain hygiene such as hand-washing,
use of latrines, dental hygiene, and food management were passed on, the lack
of a participatory approach proved ineffective;
• Slow recruitment processes for key project personnel;
• A change in the project scope from the original proposal meant that project
activities were not delivered according to plan;
• Lack of clear communications brought about challenges for procurement and
contracting processes;
• Lack of a strategic framework;
• Lack of predefined targets for implementation;
• Procurement delays causing issues, e.g. delivery of latrine facilities to 2800
instead of 8000 people between January and March 2011;
• No contracting templates; requests for approval of procurement templates for
simple works were made to National Headquarters (NHq) between July and
September 2011 but were not approved until January 2012;
• Between January and March 2012, support for the Direction Nationale de l’Eau
Potable et de l’Assainissement (DINEPA, the National Directorate of Drinking
Water Supply and Sanitation in Haiti) was refused by NHq;
• NHq reduced the Watsan budget by over US $1m or 49%, the reasons for which
were never made clear; in January 2012, only 21% of the original budget had
been expended and the programme expenditure presented a variance of 227%;
• The original target of providing services to 50 camps was reduced to 10.
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Client satisfaction / For the recipients who received assistance, the project proved beneficial in the
project effectiveness following ways:
• It responded to the needs of recipients; the areas of implementation were
identified and occurred in sites where DRR or health activities were already
underway;
• The integration timing of Watsan projects was well planned as micro-mitigation
projects within DRR and health programmes aimed at the reduction of
vulnerabilities on health;
• Cash Transfer Support Programs proved to be an efficient system to ensure
contribution from beneficiaries using Cash-for-Work options in the operation
and maintenance of Watsan facilities;
• Cash-for-Work enabled recipients to clear debts and/or start-up own
businesses;
• Labour contracts enabled the employment of unskilled workers;
• Much needed services were delivered to the communities.
Reference Noykhovich & Aquino Lopez 2012
5.3.3 Key project management features and challenges
Planning and coordination

• Coordination efforts worked well with organisations such as the Haiti Red Cross
(HRC) for monitoring visits to settlements, the IFRC for the provision of water-
trucking services and support to DINEPA, the ARC’s Participants National
Societies (PNS) and other organisations not on the PNS list.
• Coordination was weak with DINEPA, the water authority in Haiti, and the ARC
only marginally informed them of or involved them in ongoing projects.
• The WASH Cluster meetings, which are key to those involved in the project,
were not attended by the senior Watsan delegate due to language limitations.
This challenge was overcome by the IFRC Watsan coordinator who attended
the meetings and reported on the important issues.
Communication
• During budget decisions, there were unclear lines of communications between
NHq and the Haiti Assistance Program management; reasons for halving the
budget remained unclear.
• Cluster briefings were held in English instead of French or Haitian Creole,
therefore excluding most of the local NGOs.
• Lack of communication regarding new final budget arrangements.
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• Lack of processes or templates to communicate changes.
• The project faced ongoing financial problems due to lack of communication
between NHq and the Watsan team.
Governance and other processes

• Termination of contract of the first Watsan DI delegate due to lack of
governance processes to follow and apply policies and procedures for
contracting and procurement.
• Lack of financial procedure for project tracking.
• Lack of processes, templates or documents to communicate budget changes.
• Partnership agreements should have agreed targets and monitoring and
evaluation plans.
• Roles and responsibilities for monitoring were unclear, should have been
handled by the ARC‘s Haiti staff.
Cost management
• Lack of tracking of project spending – no applicant tracking system (ATS) in
place to manage or handle recruitment needs. Consequently, there was no
overview of projects that had been approved, no details of spending to date
and balance remaining on each project.
• Lack of clarity in gaps over Watsan DI funds.
• The senior Watsan delegate had to develop several budget scenarios due to
gaps, irregularities and uncertainties.
• Lack of or unclear financial processes at the Haiti headquarters.
• Lack of communications regarding changes and final budget arrangements after
massive budget cuts.
Risk management
• Lack of risk assessment checklist and mitigation activities to avoid potential
risks.
• Lack of risk assessment in safety standards for staff and contractors.
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Personnel management
• Slow project recruitment process (two engineers recruited in first quarter for
Watsan, no direct implementation delegate recruited in first quarter, one
additional engineer and one field officer position pending in second quarter).
• One Watsan delegate hired to manage partnerships and DI projects but the
contract was subsequently terminated and a new DI delegate was recruited in
May 2011.
• Clear roles and responsibilities for project teams.
• One person based in Haiti should be employed to manage partnerships.
Stakeholder management
• Lack of involvement in project design meant lack of trust between camp
members and committee members.
• Cluster meetings were held in English only; therefore, the involvement of local
NGOs and other community members was minimal, resulting in lack of
communication and insufficient consultation.
Management/leadership and decision making

• Lack of clear delegation, authority and decision-making processes from NHq left
Watsan delegates in the position of having to make decisions regarding cash
advances, contracts and procurement.
• As decision making was mainly done at NHq level, this over-centralised system
resulted in most projects implemented in Haiti running behind schedule. It was
recommended that ARC Haiti be provided with greater decision-making
authority for projects to be implemented more efficiently and effectively.
• It was also recommended to employ logistics staff to support and prioritise
Watsan activities and ensure efficient processes and communication between
the project team and other partners or collaborators.
• Lack of tracking system for approved projects, spending or balance; despite
radically decreased funds, management failed to control spending and the
Watsan delegate had to create several budget scenarios.
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Consultation and collaboration
• A Watsan delegate had been deployed from February 2010 to identify needs
and define the operational framework. Clearly defined interventions were
planned through grants to partners via RFP (request for proposal).
• Where local capacity was consulted and utilised, such as with the water sector,
positive results were achieved. A strong recommendation is that local
capacities be developed and utilised in response, recovery and reconstruction
to not only increase the likelihood of success but also the sustainability of any
positive effects.
• ARC’s NHq agreed on partnership arrangements without involvement from the
ARC Haiti staff, creating tension in the approaches to partnering. It was
suggested that a staff member responsible for all partnership matters should
be hired and based in Haiti.
• Though the ARC Haiti staff was charged with monitoring and supervising other
partners’ work, these additional duties exceeded their capacities and the work
was not monitored according to standards. The quality of work was found to be
doubtful considering its cost, and it is challenging to assess whether these
partners will be good future partners (Kittle 2012).
Lessons learned and knowledge management

• Following the Indian Ocean tsunami of 2004, a Tsunami Recovery Program
(TRP) tool and lessons had been gathered. When requested to utilise these
tools and lessons in Haiti, NHq pushed back on the idea stating that Haiti was
different.
Best practice
• Standards based on The Sphere Handbook: Humanitarian Charter and Minimum
Standards in Humanitarian Response, ‘one of the most widely known and
internationally recognized sets of common principles and universal minimum
standards in life-saving areas of humanitarian response’ (Sphere Project 2015)
were used.
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• Water, Sanitation and Hygiene (WASH) cluster indicators through Cluster
Coordination Performance Monitoring (CCPM) were applied (see Figure 25 for a
general illustration of this cluster approach in disaster relief efforts).
Figure 25: Cluster approach in humanitarian response (OCHA 2013).
• In addition to hygiene promotion, Watsan standards were applied in order to

ensure that at least 80% of the at-risk population have access to decent water
and sanitary facilities (see Figure 26).
Figure 26: Water supply, sanitation and hygiene promotion

(Sphere Project 2015).
• Lack of monitoring and evaluation systems in place.

• Targets were defined without baselines to meet standards.
• Lack of measurement for impacts, outcomes and objectives.
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• Lack of monitoring system to measure project progress.
• While the Cash-for-Work options were beneficial for the operation and
maintenance of Watsan services through local beneficiaries, there was a lack of
quality control measures to ensure standards were met.
Project sustainability
• The sustainability of the facilities such as latrines in schools and public
establishments was not assured.
5.4 Desktop case study 2 – The Islamic Republic of Iran
Figure 27: Map of Iran (Source: www.geographic.org,

used with permission).
The International Bank for Reconstruction and Development (IBRD) is the foundation
of the World Bank Group, an international organisation with two main objectives: to
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end extreme poverty and encourage prosperity in every country by increasing shared
income. Founded in 1944, the World Bank Group has its headquarters in Washington,
DC and operates 120 offices around the world with 10,000 multidisciplinary staff
members. The group started as a single institution, the IBRD, which enabled
reconstruction and redevelopment after World War II. Today, the IBRD has substantial
experience in post-disaster recovery and reconstruction both globally and in individual
countries, including Iran.
Title Bam Earthquake Emergency Reconstruction Project (BEERP)

Location Bam, Iran
Client 93,000 people in the city of Bam, Kerman Province (homeowners, road users,
communities, government staff and general offices)
Programme 1 project, split into 5 components
Start Date 26 January 2005
Completion Date 31 May 2009
Actual Completion 31 May 2009 (despite delays in some components)
Date
Status Completed
Initial Budget US $235 million (IBRD loan)
Actual Budget US $154.4m
During implementation, the scope of work was changed, and of US $42.19m
budgeted for three of the five components, US $29.45m were cancelled.
Component A: not revised
Component B: activity to rehabilitate Bam Airport dropped due to security issues
Component C: 3-4 activities dropped due to logistics issues
Component D: activity dropped due to lack of ownership and delays
Component E: savings of US $3.87m
Scope 1 project with 5 components:
Component A: Provision of construction material and equipment for housing and
commercial buildings, implemented by the Housing Foundation of Islamic
Revolution.
Component B: Repair of transport infrastructure of (i) the Bam-Kerman Highway
by the General Office (GO) of the Ministry of Roads and Transportation (MORT) in
the Kerman Province, (ii) Bam Airport by the Airport Authority of Kerman, and (iii)
village streets by the Housing Foundation of Islamic Revolution
Component C: Repair of telecommunications infrastructure, implemented by the
Telecommunication Company of Iran (TCI).
Component D: Improved emergency preparedness in Kerman Province and
District of Bam by the Provincial Government of Kerman and provincial offices of
participating sector ministries.
Component E: Project management and technical assistance by the Bam
Reconstruction Office (BRO).
Objectives of project:
a. Restore living conditions of affected communities;
b. Improve emergency preparedness in Bam;
c. Strengthen planning and management capacity of rebuilding programme.
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Title Bam Earthquake Emergency Reconstruction Project (BEERP)
Delays • Testing of engineering designs and structures, including engaging appropriate
consulting firms;
• Specification changes on fibre optic cables without anticipating consequences of
change;
• Delays of up to one year for opening letter of credit;
• Project currency change from US $ to Euro;
• UN and US sanctions;
• Inadequate planning;
• Delay in engaging experts or specialists;
• Price escalation for supplies.
Issues • Imposition of financial sanctions by USA;
• Multiple UN sanctions;
• Screening systems for equipment purchase by Iran against prohibited items;
• Bank decision not to extend project closing date left some activities
underfunded;
• Airport authorities refused access to workers and contractors for security
reasons, hence funding for Bam airport activities was stopped;
• Acute shortage in telecommunications specialists to prepare procurement
documents for complex electronic equipment led to heavy delays.
Client satisfaction / Component A: Delivered beyond agreed targets
project effectiveness Of 22,100 urban housing units planned for rebuilding, 35,866 (160%) were actually
built; of 22,800 rural housing units planned, 29,594 (129%) were built; of 3,000
commercial units planned, 5,250 (175%) were built. While the plan to procure
construction equipment included an estimated 440 units, 508 units (115%) were
actually procured. The number of quality control and testing equipment procured
equalled 100% of the value appraised, totalling 155 units.
Component B: Due to starting delays and non-performance of the contractor,

which was due to the price escalation of construction materials and the contractor
unable to meet his contractual agreement, only approx. 37% of work was
completed. By the time prices had decreased and the construction industry had
picked up momentum, the project was nearing its closing date. An extension was
requested by the government but was not granted. Reconstruction work at Bam
airport (1.4% of total cost) was discontinued by the government for security
reasons.
Components C and D: The government requested that both components be

released from bank financing and confirmed that these activities would be
completed with government resources.
From the point of view of efficiency, this project was seen as an undisputable
success due to the economic value of the assets which were reconstructed under
an emergency operations mandate.
Fitness for purpose and project benefits (based on the Project Information
Document (World Bank 2004b)):
• Reconstruction of homes, buildings and infrastructure with minimal disruption;
• Reconstructed assets included improved standards, therefore providing better
protection and reducing vulnerability to earthquakes;
• Provision of training on self-construction and quality assurance, which in turn
reassured the population for the next disaster;
• Support for the restoration of the agricultural sector and other economic
activities;
• Restoration of historic monuments destroyed in the quake.
Reference World Bank 2004a, 2004b, 2004c
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• Establishment of the BRO and collaboration with other government agencies as
recommended by IBRD.
• The BEERP was set up as an emergency project. As such, coordination amongst
the several agencies delivering the projects required capacity building over the
long term.
• According to the implementation report, review and results, one of the most
positive outcomes of the project was the establishment of the BRO. Under
Component E, BRO’s mandate was to provide project management capacity.
Communication
• Iranian organisations would have benefitted greatly from improved
communications between themselves and the World Bank to improve
procedures and avoid misunderstandings and delays.
• Training and information sessions would have been required to communicate
and disseminate information between line agencies in order to familiarise them
with various procedures.
• Performance targets were not properly communicated.

• Figure 28 below shows the structure of the project management office with
qualified staff to manage the reconstruction project by the Housing Foundation
(HF).
• HF, line ministries and specialised government agencies were in charge of
implementation. Project support was provided by the BRO, which operated
under the Reconstruction Planning Sub-Committee at HF (see Figure 29 below).
122
Figure 28: Bam BRO structure (World Bank 2004c, p. 46).
Figure 29: Project implementation chart for the Bam Earthquake Emergency
Reconstruction Project (World Bank 2004c, p. 44).
123
Cost management
• IBRD was the main funding source through a loan to the Iranian government.
Figure 30 outlines the disbursement profile for the Bam Earthquake Emergency
Reconstruction Project.
Figure 30: Disbursement profile (World Bank 2016).
• 18 months prior to the project closing date the project currency was changed
from US $ to Euro, creating lengthy and complex issues which resulted in
delays.
• Dependency on line ministries to make decisions on financial matter resulted in
long delays and cancellation.
• HF had limited authority in decision making and depended too much on line
ministries.
• Difficulty in opening a letter of credit rendered a time-consuming matter even
more complicated, in some cases requiring over a year to open an account.
• Lack of compatibility between IBRD and Iranian bank regulations.
Risk management
• Mitigated through: (a) hiring an international procurement advisor at the BRO;
(b) hiring a monitoring and evaluation (M&E) advisor; (c) utilising steel frames
to avoid technical risks in housing reconstruction; and (d) establishing a
dedicated unit for monitoring project activities, the BRO.
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• The risk that proved most challenging to mitigate against was the collaboration
between the various government ministries and agencies.
• A fully staffed PM unit was set up to manage project activities.
• An M&E and a procurement advisor were recruited.
• A social scientist was employed to perform field visits, assess beneficiaries’
levels of satisfaction and obtain unbiased feedback and reports.
• The World Bank commissioned a supervision mission headed by an urban
specialist and a disaster risk management specialist.
• Engagement of a local firm and local consultant by the World Bank to conduct
surveys with beneficiaries about the quality of construction, their satisfaction
and the cleanliness of Bam. A report (Beneficiary Assessment, Stakeholder
Analysis and Lessons Learned) was completed in March 2010.
• Surveys and workshops were held to gauge the satisfaction of beneficiaries and
the overall fitness for purpose of the projects.

• Technical assistance was added to Component E in order to improve PM
capacity by engaging consulting firms, hence improving decision making.
• Management capacity was improved through the engagement of procurement,
monitoring and technical advisory services.
• Leaner management and smoother decision-making structure through the BRO.
• Delays in recruitment prevented the World Bank from seeing early warning
signs (and applying mitigation strategies) to schedule delays in work plans.

• The Iranian government changed its usual practice by creating a new Bam
Guidance and Policy Task Force (BGPTF) which had full responsibility for
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selecting investments in priority areas, allocating necessary resources,
approving the master plan for urban development, issuing all implementation
guidelines and planning and supervising the post-disaster rebuilding efforts.
The aim was to improve collaboration with government departments.
• Further, the Iranian President also appointed the head of the Housing
Foundation (HF) to the planning and reconstruction work of Bam to ensure a
leaner structure.
• The IBRD rated the Iranian government’s performance highly regarding the
close collaborative work between inter-ministerial committee members and
the IBRD’s preparation team to establish project priorities.
• Good support was provided from the HF team to the preparation team in
designing the project.
• Lack of support from all other implementing agencies during project
implementation caused project delays or the cancellation of components.
• Lack of consultation regarding the multiple uses of a rural home meant that the
new homes were smaller than those in urban areas. This also meant that many
residents used their old damaged houses for storage or as animal shelters due
to the lack of space in the new building, while some also rented their unsafe
houses.

• The IBRD should consider the inclusion of a price adjustment formula for
procurement purposes to counter the inflated material price rises after a
disaster.
• The IBRD should consider a change of procurement policies when specialised
equipment is required to manage post-disaster reconstruction.
• HF had the foresight of procuring construction materials (steel and cement) at
the very beginning to avoid delays. In contrast, materials ordered once the
disaster funds were secured only arrived 18 months after the earthquake. The
lesson to be applied is to procure at least 25% of the overall project’s materials
126
in early stages to meet emergency requirements and to make such funds
immediately available for procurement.
• Bureaucratic regulations in obtaining permits, authorisations and approvals,
but also decisions from ministries, customs and governments created extensive
delays.
• There is a need to better define and design post-disaster reconstruction
projects, and more clarity in developing emergency requirement objectives;
and/or increasing the capacity of the implementing agencies is required.
• A single agency with multidisciplinary teams and specialists should be
considered as more efficient than using multiple implementing agencies to
deliver emergency projects.
Best practice
• The IBRD’s project preparation team was effective and efficient in ensuring that
the budget included proviso for an M&E advisor. This enabled the BRO to
identify and evaluate the project’s economic and social impacts.
• According to the survey results, most beneficiaries considered their homes to
have been rebuilt with much higher engineering standards and were therefore
safer in the face of another earthquake.
• Reconstruction in rural areas was faster, more efficient and less bureaucratic
thanks for the following:
- Rural councils were effective in settling legal disputes and ownership issues,
hence minimising delays;
- Local residents participated in rebuilding their own homes and those of
their neighbours, hence creating a stronger sense of ownership;
- Rebuilding started early, and thanks to the lack of obstacles most homes
were rebuilt before the cost of materials escalated.
• The number of public and private facilities increased in the villages.
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• For the most part, rural residents are satisfied with their new homes and
consider them superior to what they had previously.
5.5 Desktop case study 3 – Pakistan
Figure 31: Map of Pakistan indicating flooded areas (MCT 2010).
The main goal of the United Nations Development Programme (UNDP) is to eradicate
poverty and reduce inequalities and exclusion. The UNDP works in over 170 countries
to integrate issues of climate and disaster risk and energy at the country level and
focuses on building resilience and ensuring that development remains risk-informed
and sustainable. The UNDP celebrated its 50th anniversary in 2016 and has extensive
experience in risk reduction and sustainable development.
128
Title Early Recovery and Restoration of Flood Affected Communities

Location Pakistan
Client Affected communities in the provinces of Punjab, Balochistan and Sindh
Programme The programme was led through 38 districts of the affected geographical location
at an average of 3 projects per district.
Start Date 4 October 2010
Completion Date March 2012
Actual Completion March 2013
Date
Status Completed
Initial Budget US $120 million requested for the programme
Actual Budget US $85.2 million raised from international donors
Scope To restore the capacities of local institutions and affected communities to enable
recovery and protection of rights. To stabilise and restore the livelihoods of
affected people. To restore critical and basic infrastructure and services (UNDP
2013).
The immediate benefits were seen in the way of quick gains in livelihood and
enterprise recovery, immediate stabilisation, self-reliance, promotion of social and
gender equity, multiplier effects and revival of local markets, and the recovery of
local basic, social and productive infrastructure (UNDP 2013, p. 19).
Delays Extension of original planned duration by another 12 months due to recurring
floods in 2011. The reconstruction of public buildings concluded in early 2013.
Issues • Due to the absence of elected local government representatives, local civil
servants took responsibility for relief and recovery activities;
• Loss of basic infrastructure, government offices and documents meant that it
was necessary to restore local government functions in order to manage the
early response and recovery work;
• Necessity to restore livelihoods by restoring rural productivity as most
breadwinners, including manual workers and small businesses, had lost their
jobs and earning capacity;
• Infrastructure, utilities, community buildings and services were severely
damaged or destroyed;
• The widespread geographic coverage of the disaster meant that the UNDP
needed to work with new and additional partners, including local Civil Society
Organisations (CSOs), instead of the usual national and state-level government
stakeholders which normally ensure ownership of the programme. Over 80
implementing partners were involved in the programme.
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Title Early Recovery and Restoration of Flood Affected Communities
Client satisfaction / 6.3 million people in 4,000 villages across 38 flood-affected districts received
project effectiveness assistance to restore livelihoods, rehabilitate communities and build resilience.
1.3 million people gained temporary employment through Cash-for-Work schemes
to restore local infrastructure, e.g. roads, bridges, culverts and irrigation canals.
Women and vulnerable families were the primary recipients of livelihood grants
and skill development trainings. 10,000 community organisations received support
for founding and training of members in disaster risk management and the
establishment of community-based early warning systems and risks mitigation
plans.
The assistance of grassroots NGOs meant swifter delivery of programmes/projects
and their efforts resulted in the increase of economic development and income
generation.
Fitness for purpose (based on UNDP 2013):

The UNDP followed an integrated country approach which focused on multiple
sectors by involving local authorities, civil society and the private sector to work
with the affected community. This ensured that what was being delivered would
be fit for purpose and provide sustainable solutions.
Reference UNDP 2012, 2013

• As noted above, the UNDP cast a wider net to recruit partners for the planning
and implementation of the programme. However, the programme had support
of a well-structured PMO with a governance board.
Communication
• By the end of 2010, the Pakistan disaster response and recovery effort included
89 NGOs and INGOs, 16 UN agencies, the armed forces, public and private
organisations, governments at various levels and individual donors. In disasters
of such magnitude, communication remains the primary challenge, and with
the immense geographical size, the vast spread of rural areas, the language and
cultural differences and a literacy rate below 50% among the affected
population, there were insurmountable challenges to communicate and
coordinate effectively amongst the players.
• Ensure a clear communications plan is in place which explains how the duties of
the cluster are coordinated with the Early Recovery programme and which
outlines communication strategies to various stakeholders, e.g. governments,
donors, community members, participants, partners, etc.
130
• Communication must be kept clear and differentiated between various levels
and recipients.

• The UNDP and the Pakistani government agreed to manage the programme
using a direct implementation process, meaning that the UNDP took overall
responsibility in the management, results and delivery of projects. Figure 32
illustrates the governance structure of the programme board.
• The PMO was manned with appropriate personnel both from an international
and domestic perspective to ensure the projects were underway and
appropriate personnel engaged.
Figure 32: Management and governance of the UNDP’s Early Recovery Programme
in Pakistan (adapted from UNDP 2013).
Cost management
• No direct information was available on the cost management of the project;
however, district-wide funding allocations are shown in Table 27. ‘Most of the
resources were time bound and had to be spent within a limited time span of
six months’ (UNDP 2013, p. 27).
131
Table 27: Early Recovery Programme – funding by district and beneficiaries (UNDP 2013,
p. 27).
Risk management
• Fiduciary risk: resources and assets procured for the programme were not
destined for their intended beneficiaries; an inventory was not performed,
recorded or accounted for and beneficiaries did not receive the value the
projects were meant to deliver.
132
• Management and implementation capacity of the local partners: very realistic
and important actual risk due to terrain accessibility, the geographic size of
affected sites, logistics, resources, etc.
• Political interference and pressure: implementing partners were influenced
politically in regards to the choice of communities, villages and project
activities.
• Staff security and safety: the terrain and the unstable situation in certain areas
posed challenges in these areas for programme staff travelling while
performing their monitoring and evaluation duties.
• Each project consisted of a project manager (PM), a position at first allocated to
an international staff member, subsequently replaced by a domestic staff
member. The PM was supervised by the UNDP Deputy Country Director for
Programmes and supported by the UNDP Operations Division which includes
Procurement, Finance, Human Resources, Interagency Services and Security.
Programme associates and assistants also provided support to the PM in the
areas of monitoring and overseeing programme activities.
• Due to the sheer geographical size of the affected sites, the UNDP also set up
four hub offices in Peshawar (Khyber Pakhtunkhwa), Multan (South Punjab),
Sukkur (North Sindh and Balochistan) and Hyderabad (South Sindh) (see Figure
34) to oversee the activities by other organisations engaged to implement
projects, i.e. private contractors, government and non-government agencies.
• One programme assurance specialist was employed by the UNDP Strategic
Management unit to oversee programmes.
• Monitoring and financial review of implementing partners was performed by
third-party contractors.
• Monitoring, review and assurance was also performed by UNDP Early Recovery
Programme staff, the results of which fed into the progress reports.
• UNDP programme units provided specialist technical advice to the project
team. The units additionally oversaw and provided assurance to project areas
133
with specialised themes, e.g. restoring micro-business enterprise, capacity
building for disaster resilience, provision of renewable energy solutions,
agriculture-based occupation and skills training.
• The sheer size of the disaster over the massive geographic scale meant that the
UNDP had to cast a wider net of partners to ensure the start of the recovery
efforts and project planning and implementation.
• Stakeholders were identified from the onset as the UNDP’s aim was to
implement the projects by working in close collaboration with DM partners
within the UN System, Pakistani federal, provincial and district-level authorities,
local government organisations, affected communities and private industry.
The strength of the project lay in the involvement of the local players. From the
onset the UNDP ensured the cooperation and collaboration of:
(a) Women and youth to help build bases for the affected communities and
improve living conditions in addition to increasing resilience;
(b) Local NGOs rooted in the communities prior to the disaster and
therefore bringing a wealth of experience with them – the assistance of
these grassroots NGOs meant improved timeliness in reaching affected
communities and low operational expenses.
• The network of local NGOs improved the efficiency and effectiveness of the
programme delivery and their efforts also resulted in increased economic
development and income generation.

• The Pakistani government responded at federal, provincial and district levels.
• According to the review, the Pakistani National Disaster Management Authority
(NDMA) “summoned” line departments, humanitarian stakeholders and donors
to daily meetings in order to coordinate efforts and keep them informed about
the developing situation.
• Some flexibility was shown in the way clusters responded to challenging
situations by adapting their approach and developing inventive and fit-for-
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purpose solutions for responding at scale, through preferring local
procurement options so as to ensure that requested items reached affected
communities as quickly as possible.

• In line with UN guidelines, clusters or coordinating structures were put in place
to accommodate the increasing number of players debarking into Pakistan.
There were 12 clusters (agriculture, camp management and camp coordination,
community restoration, coordination, education, food, health, logistics,
nutrition, protection, shelter and non-food items, water/sanitation and
hygiene) and 4 sub-clusters (child protection, mass communication, gender task
force, gender-based violence).
• In addition, the UN also closely coordinated its activities with the NDMA, having
the following set up at various levels. At federal level, the NDMA consulted
with the humanitarian coordinator and the humanitarian country team; at
provincial level, the humanitarian community worked through the Provincial
DMA, reinforced by the creation of humanitarian coordination centres and
provincial/area hubs and the deployment of over 50 cluster coordinators.
Coordination at district level was of critical importance given the close contact
between district coordination officers and both response operations and
beneficiaries.
• While the NDMA meetings were considered to be useful for information
sharing and initial coordination between the NDMA and humanitarian and UN
agencies, parallel structures developed with some clusters preferring to go
through line departments instead of the NDMA, thus diluting the coordination
efforts.
• Overall coordination effectiveness was affected by roles and responsibilities
issues between the Economic Affairs Division and the NDMA.
• An early recovery working group was set up in February 2011, following the
Pakistani government’s decision to shift the flood response from relief to
recovery in January 2011. In addition, a number of district and provincial-level
working groups were also set up to enhance coordination.
135
• Coordination effectiveness varied at cluster and at provincial level, depending
on the level of experience of the province in response and dealing with clusters.
Coordination at district level was more efficient and implementation swifter
than at provincial level.
• The UNDP provided disaster risk management (DRM) coordinators in selected
districts to help in recovery efforts. However, the success of this coordination
effort depended on how well the position was utilised by leadership to make
the link between districts and clusters. Figure 33 shows the primary role of the
UNDP in the Pakistan disaster.
Figure 33: UNDP coordination and support structure based on Inter-Agency

Standing Committee (IASC) UNDP Early Recovery Policy (UNDP 2013, p. 24).

• One of the strengths of the UNDP ERP programme was that NGO partners and
grassroots NGOs acted as community “agents of change” and used their local
connections, contacts and experiences to ensure buy-in and engagement from
the affected communities.
• The main challenge for the UNDP was ‘to make its experience readily available
to ensure effective response, ongoing operations and to foster long-term
resilience’ (UNDP 2013, p. 4).
Best practice
• The PMO team comprised of the appropriate personnel to ensure the projects
were properly supported in their professional areas and to ensure the
application of best practices.
136
• ‘The large number of NGOs and other partners naturally led to the formation of
local networks in which knowledge, experiences and best practices were and
are now being shared’ (UNDP 2013, p. 18).
• The implementation of an innovative renewable energy project for the
domestic energy market is also ‘identified as a best practice in many sessions’
(UNDP 2013, p. 26).
• Upon programme end/closure, the following were organised and performed:
- Operational and financial closure of donor agreements;
- Separation of national and international staff as planned;
- Audit of expenses incurred by the government and NGO partners;
- Completion of all funded building and construction work;
- Submission of final status reports;
- End-of-project lessons learned review undertaken by the UNDP Asia
Pacific Regional Centre.
• Local project boards … ensured effective local and national ownership. Project
reviews … occurred at certain decision points … to identify and select
beneficiaries, determine changes in project scope and quality control for the
provision of goods and services (e.g. cash grants, equipment, etc.). The project
boards ensured that all decisions were carried out in a transparent manner,
thereby minimizing the risk of preferential treatment, misuse of funding, and
other abuses of authority (UNDP 2013, p. 28).
• Based on the results, the following elements of sustainability were
demonstrated:
- The structures and processes of several projects and programmes were
improved during the restoration and reconstruction phases;
- A trade-off existed between building back better, which would take longer
and provide better development impact, or urgently rebuilding and
replacing what was lost;
- A focus on alternative energies proved beneficial during early recovery
when solar lamps, solar water heaters and solar water pumps were
137
provided to badly affected communities. This technology again proved
extremely useful during the winter following the floods when solar
technology was utilised to power street lights, lanterns and heating,
especially in high-altitude sites.
5.6 Desktop case study 4 – Tonga
Figure 34: Location of Tonga’s Niuatoputapu Island (Koper 2010).
Based on the previous successful collaboration between the Government of Tonga and
The World Bank on cyclone emergency recovery projects, the IBRD board saw it fitting
to approve further assistance. Details on the IBRD and the World Bank as an
organisation can be found in Chapter 5.4.1.
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Title Tonga Post-Tsunami Reconstruction Project

Location Kingdom of Tonga
Client Affected communities of Tonga following a tsunami in September 2009
Programme 1 project with 4 components, as part of the Government of Tonga’s Niuatoputapu
Priority Tsunami Recovery Program
Start Date 11 September 2010
Completion Date 31 March 2013
Actual Completion 31 December 2013
Date
Status Completed
Initial Budget US $3,320,000
Actual Budget US $3,320,000
Scope The project objectives were:
• Restore houses of affected families;
• Provide auxiliary water and sanitation facilities to affected communities;
• Establish community risk management plans.
Component 1: construction of cyclone-resistant housing (85 units).

Component 2: retrofitting of partially damaged buildings and homes (40 assets).
Component 3: planning and strengthening of disaster risk management and
preparation of Niuatoputapu DRM plans.
Component 4: provision of finance for the PM unit for coordinating and managing
PM activities, financial and procurement management, monitoring and reporting.
The funding will also provide project and project accounting audits.
Revision:
Component 2: retrofitting of partially damaged buildings, homes and
infrastructure services (40 assets plus auxiliary road infrastructure, land
preparation and road works).
Delays 9 months
Issues • The extension was due to the additional scope of component 2 to allow
completion of additional roadworks;
• Not all land owners agreed with the compensation given for land acquisition so
the new land acquisition process extended the project timeline.
Client satisfaction / • The overall impact of the reconstruction and retrofitting activities was positive.
project effectiveness According to a beneficiary survey, the inhabitants noted the feeling of well-
being from living in newly constructed and safer housing with improved
sanitation.
Reference World Bank 2011, 2014

• Following the 2009 disaster, the Government of Tonga (GoT) developed the
Niuatoputapu (NTT) Priority Tsunami Recovery Program after assessments
made by the National Emergency Recovery Committee. The Tonga Post-
Tsunami Reconstruction Project is part of that programme.
139
Communication
• While consultation had taken place and agreements were reached, the project
manager’s communications skills were not sufficiently effective to remove any
political roadblocks.
• Lack of communication between the project management unit (PMU) and the
project site meant that decisions were made without consultation, resulting in
cost overruns and unauthorised variations (lack of change control processes).
• Due to lack of adequate communication, the PMU was unable to properly
control all project work implemented by other agencies. While the work
performed was satisfactory in most areas, with payments effected through the
force-account method, road access constructions required to be redone. An
equivalent of US $38,227 of bitumen was ordered, prepaid and never received.
• The remoteness of the island, lack of regular transportation and basic
telecommunications proved challenging for communication.

• The project was managed by the PMU to ensure a more coordinated approach
between Tonga and their partners (World Bank 2014, p. 13).
Cost management
• While the project timeframe was extended, the overall budget was not.
• Nearly three quarters of the cost of the projects were incurred by the
construction of new homes construction (see Table 28 for costs by component).
• A cost overrun of US $90,000 was due to a decision made on a contract without
authorisation (absorbed via other means and not affecting overall budget).
Such procurement issues were due to limited communication between project
site and PMU.
• Financing agreement was amended in 2012 to put in place a force account.
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Table 28: Project cost by component (World Bank 2014, p. 21).
Risk management
• Standard risk analysis was performed based on risk management best practice.
Five main risks were identified as high:
- Logistics/transportation;
- Insufficient experience in procurement activities;
- Land acquisition;
- Financial cost and delays;
- Financial management.
Appropriate mitigation was put in place, reducing these risk ratings to
moderate. Three of the five risks did occur, and the mitigation strategies that
had been put in place proved effective.
• Based on the experience of the team from the Ministry of Land, Survey and
Natural Resources, land acquisition should have kept a high risk rating even
after mitigation. Despite appropriate mitigation, the project team
underestimated the politics involved with land acquisition on the Pacific
Islands.
141
• In addition, although the high workload had been identified, the capacity of
implementing agencies had not been comprehensively assessed as a risk by the
PMU, and the low capacity of these agencies contributed significantly to major
delays in procuring materials and services.
• The PMU core project team included an experienced project manager, a project
accountant and an office assistant; the team was supported by an engineer
until March 2013.
• PM and coordination of activities relied mainly on the experience of the project
manager who had been involved in the previous cyclone project.
• Other technical consultants were engaged to support the project manager.
• While the project manager was capable to manage the project activities, the
specific skills required to impart sufficient pressure and influence political
issues were lacking to clear bottlenecks and project roadblocks.
• The project manager’s contract was not extended to cover the 9-month delay.
A different PMU was tasked to manage the remaining road maintenance work.
• To complete the activities, a team led by the Ministry of Infrastructure
continued to satisfactorily manage the house-building activities over the
remaining nine months.
• The lack of a dedicated project manager to oversee overall PM and completion
activities resulted in delays.
• 91 local inhabitants also assisted in reconstructing and repairing the roads.
• Good communication with the project beneficiaries, communities, government
and ministries via consultation during needs assessments, land acquisition,
relocation and reconstruction or retrofitting.
• Communities were generally happy with the recovery process and pleased to
have a higher and safer standard of living following the tsunami.
• A beneficiary survey was conducted with mainly positive outcomes.
142
• The main contractor displayed highly competent and effective leadership in the
way the housing reconstruction was planned and coordinated in order to
deliver the project within time and budget.
• The PMU had a simple and lean structure.
• Prompt action and financial management of payments of funds by the PMU
contributed to minimising delays.
• It is essential to have neutral but strong leadership to avoid bias, unfair
practices or corruption during land and housing allocation.

• The project design did not include wide-ranging participation from the
community due to the nature of the disaster. However, based on the status
reports, it is noted that the community was satisfied with the level of input
they provided in the design of the project and was very happy with the new
relocated village.
• Using local consultants to complement formal government activities worked
well to improve accountability and transparency; in addition, the local
consultants’ knowledge of networks at community and government level and
of customs and cultures proved to be an asset.
• Consultation and participation was begun as part of the damage and needs
assessment with the aim to assess how the bank could best assist those
affected by the disaster and how best to mobilise resources to assist in the
recovery process.
• In order to plan for relocation to higher grounds, close community consultation
was undertaken. In addition, local government officials conducted rapid
consultation to ascertain and respond to communities’ concerns, which
resulted in ‘the majority of people agreeing to relocate away from the coast’
(World Bank 2014, p. 7).
• Due to time limitations, consultation with owners of the land intended for
relocation had not taken place, and protracted negotiations between the GoT
143
and land owners ensued until agreements on compensation packages were
reached.
• The housing recipients proactively supported the recovery efforts by
collaborating with the various contractors, assisting in land clearing for
relocation and providing food to the contractors.

• Following the Tonga Cyclone Emergency Recovery Project (TCERP), both the
GoT and the World Bank had amassed an amount of lessons which proved to
be particularly useful for design, best practice and implementation of projects
in a remote location. Challenges such as time constraints, the island’s remote
location and infrequent transportation were taken into account. In addition,
the type of housing construction used successfully following the previous
disaster was again utilised, and experienced consultants were again recruited
to support the government staff in the PM activities. Several recommendations
made following the TCERP were used and reflected in the strengthening of the
DRM activities in component 3.
• The time required to acquire land, despite stakeholder negotiations and
agreements, should not be underestimated and should be considered a high
risk even with mitigation strategies in place.
• Transport and logistics in remote locations should be considered a high risk,
even with past experience and mitigation, as delays in transporting project staff
delayed implementation.
• Where project funds are not committed, the wording of project development
objectives should be carefully considered at assessment in order not to exclude
any additional activities. After a disaster, the situation, needs and availability
change rapidly, and the wording of documents needs to be sufficiently flexible
to account for the volatility after a disaster.
• Direct links must be made between project activities. Component 3, which was
a capacity-building component, was too loosely linked and the already
stretched project implementation staff focused on the hard project activities of
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reconstruction of assets, leaving them unable to communicate, coordinate and
collaborate sufficiently with the staff implementing component 3.
Best practice
• A monitoring and implementation results framework was utilised.
• The financial arrangements during the last period were considered highly
inadequate. The audits from that last period were unqualified and bore
inconsistencies.
• Procurement’s performance rating fluctuated. Issues arose in the form of:
- Contract variations being made without prior review;
- Scope creep in the number of dwellings due for repair without contract
variation or approval;
- Poor records management;
- Poor contract management causing cost overruns.
• Appropriate and formal handover of each completed or retrofitted building
took place.
• House designs were simple and durable (experiments showed that the houses
could withstand a Category 5 cyclone after 30 years). The reconstruction and
retrofit was performed based on lessons learned from a previous disaster.
• The project used design, type, materials and constructions methods which
could be easily transported and assembled, especially in remote locations
where resources are limited.
• The houses were constructed using cyclone-resistant timber frame structures
on piled foundations.
• The project design was adaptable and allowed for evolving needs and increased
relevance. Instead of the 40 partially damaged structures identified during the
needs assessment, 54 were repaired and retrofitted.
• The NTT community skills are said to be adaptive and the sustainability of the
project will be greatly increased by their continuing ownership.
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• The local government provided training and support for the maintenance of
septic tanks, supply tanks and underground piping. Improved sanitation,
reliable water supply and hygiene have assisted in fewer vector-borne diseases
and added to the overall well-being of the population.
• The Ministry of Industry provided training to individuals in the communities on
manual sand seal repairs to roads and left a supply of bitumen, sealing
materials, brooms, barrows etc. for such repairs as and when required.
Improvements made to roads have also provided better access to the local
clinic.
• All project activities were said to be highly relevant. In addition to the recovery
efforts, the DRM component was also deemed successful.
• Beneficiaries were able to continue using their previous land for livestock.
• Component 3 (DRM) has provided sustainability in several ways:
- Providing formal and on-the-job training in using geospatial technology,
hazard mapping and performing risk assessments;
- Improvement of hazard and risk information, allowing information to be
integrated into land use of NTT and Tonga to make recommendations in risk
plans thanks to the establishment of a data-sharing policy;
- Better awareness of risks and better level of preparedness in addition to
community risk plans;
- Installation of international standard tsunami warning system.
5.7 Findings from desktop case studies
The four case studies focused on the PM processes of the main organisations
delivering post-disaster projects following a natural disaster, three of which were
earthquakes. The one in Haiti occurred in one of the world’s poorest countries, which
has suffered from back-to-back catastrophes and as a consequence of the 2010
earthquake practically lost its capital city. The Tongan project followed after the
cascading effect of a tsunami as a consequence of an earthquake. The Bam project was
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located in Iran, a country where international sanctions make recovery projects highly
complex and challenging. The other natural disaster dealt with in these case studies
was a major flood in Pakistan. This hazard of unprecedented scale had a different level
of complexity due to the expanse of land which was affected, 22% of the population
living in extreme poverty and a second flood which occurred while the recovery
projects were underway, hence hampering all ongoing and subsequent project
activities.
The three organisations charged with funding and delivering the projects were the
American Red Cross (ARC) for Haiti, the International Bank for Reconstruction and
Development (IBRD), a member institution of the World Bank, for Iran and Tonga, and
the United Nations Development Programme (UNDP) for Pakistan. These are large
organisations experienced in managing post-disaster relief and recovery projects.
Information from the World Bank was straightforward to gather as they have an online
presence which is easy to navigate and a dedicated Projects and Operations page from
which project data can be obtained by country/area, sector or theme (World Bank
2016). The website is quite comprehensive and the breakdown of data per project is
fully detailed with all project documents uploaded. The World Bank has demonstrated
full accountability and transparency in establishing a system of documenting and
publishing project reporting.
The UNDP report and website, whether international or country-specific, is equally
accessible and transparent. As the website is not as detailed from a project delivery
aspect, project data was obtained from a lessons learned document after programme
delivery. The website does provide a contact email address; however, the document
contained all pertinent information for the case study (UNDP 2016).
The ARC report on its Water and Sanitation Direct Implementation Project (Kittle 2012)
was the main source of information for the Haiti case study. Further information
pertinent to the data collection was requested by email to the ARC, but despite several
attempts no appropriate response to the request was forthcoming. While the ARC’s
website is quite detailed for an organisation with so much experience in post-disaster
relief and recovery, it does not seem to include a repository with clear accountability
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of projects. The maze of glossy marketing photographs indicates that the website is
aimed more at potential donors (ARC 2015).
Based on the findings from the semi-structured interviews (see Chapter 4.3), emphasis
was placed on acquiring data from the following areas:
(1) Consultation;
(2) Communication;
(3) Delegation of decision making to a broader group;
(4) Roles and responsibilities;
(5) Flexibility/adaptability;
(6) Cooperation and collaboration.
Other pertinent details were obtained in areas such as risk, cost, governance, planning
and coordination as well as sustainability. The most realistic assessment is that
projects will always contain areas of improvements. Some of the issues raised in this
context are reviewed below.
Consultation
Consultation with concerned stakeholders offers the opportunity to obtain viable
design inputs required in the iterative processes of value creation to suit the needs of
all stakeholders. The involvement of stakeholders ‘should not be restricted at creating
physical assets but should be extended to the whole of life including the operational
outcomes’, and ‘early feedback from stakeholders can reduce the need for late
changes that cause cost overruns’ (Henjewele, Fewings & Rwelamila (2013, p. 214).
In Haiti, where local capacity had been utilised and consulted for the Watsan project,
outcomes were positive in terms of project success and sustainability. However, in
most other areas the lack of consultation created tensions in achieving partnerships
between ARC Haiti staff and local partners. While ARC Haiti staff members were
delegated for all monitoring and supervision activities, the lack of consultation with
local staff signified that they were quickly overwhelmed and did not have the capacity
to verify quality standards, leading to doubtful quality of deliverables against funds
disbursed. One of the main recommendations is that dedicated locally based ARC staff
be employed and responsible for all matters of partnering.
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In the case of Bam, the Iranian government had had the foresight to make
advantageous decisions in order to achieve cooperation and collaboration between
government departments, the Housing Foundation (HF) – the primary reconstruction
partner – and the IBRD. Through good collaboration between the IBRD’s preparation
team and the Iranian inter-ministerial committees, project priorities were established
and communicated successfully. However, the lack of sufficient consultation with
other agencies during implementation led to serious delays and cancellation of
components. In addition, the lack of consultation resulted in new homes being
inadequate (too small) for all purposes – which included storage of grains and animals.
In Pakistan, the dynamics of the necessary consultation process were quite different
considering the expanse of affected locations and the amount of actors in the country.
The entire consultation process rested on successful collaboration strategies between
UN clusters, government agencies, NGOs, private and public organisations, and
recovery groups.
In Tonga, the nature of the disaster made it impossible to include stakeholder
participation in the design of the project. However, local consultants were employed
to complement the formal government activities because of their local knowledge of
communities, customs and cultures as well as their government connections. When
issues arose in the acquisition of land, additional consultations and negotiations
ensured a successful, albeit delayed outcome. According to stakeholders’ reports, the
beneficiary communities were satisfied with the quality of their new relocated village.
The focus on employing local consultants to better reach and connect with the local
communities was the best success strategy as confirmed by the literature review.
Consultation success also rested on the creation of an inclusive network of
international, national and grassroots organisations.
Communication
Communication is the primary skill in PM and DM; according to Singh (2016, p. 5),
‘effective communication is the most important contributor to project success’.
There were severe flaws in this respect in Haiti – especially in the area of budget
communications by the ARC and final budget arrangements when the budget was
essentially halved, but also in the cluster briefings held by the UN in English only
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despite of the fact that the local community speaks French or Creole, hence restricting
the sharing of information. The lack of communication led to ongoing financial
problems.
As mentioned above, Iran faced challenges due to sanctions, location and willingness
of consultants to be deployed in the affected area. Though appropriate governance
processes were put in place by ensuring the set-up of a PMO office manned by local
staff and local partners, the World Bank acknowledged that lack of communication
brought about some serious issues in the areas of financial management, bidding and
the communication of performance targets due to Iranian organisations’ lack of
familiarisation with the bank’s procedures. Through training and appropriate
communication, misunderstandings and delays would have been kept to a minimum.
Pakistan faced challenges in the areas of language barriers, the physical vastness of the
affected rural areas, poverty and the communication efforts to 89 NGOs, 16 UN
agencies, the armed forces as well as countless public and private organisations. The
primary challenge was the lack of a clear communications plan to demarcate cluster
duties in the early recovery programme and to outline the communication strategies
to the various stakeholders and actors.
In Tonga, the project manager lacked the necessary political skills to negotiate with
stakeholders. Also, the lack of sufficient communication between the PMU and the
various project sites meant lack of controls between implemented components.
Overall, stakeholders and costs proved to be the main “casualties” due to lack of
communication.
Delegation of decision making

The lack of delegation, authority and decision making, in addition to a lack of direction
from headquarters, left the delegates on the ground in Haiti having to fend for
themselves. Subsequently, taking responsibility and making a decision locally led to the
termination of an employee’s contract (though it is not clearly specified why the
contract was terminated). With leadership and management for Haiti being controlled
from overseas, this distance proved to be the greatest Achilles heel for the ARC as
projects ran behind schedule, financial tracking was more of a guess and the local
delegates had to create several budget scenarios. This over-centralisation and clear
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lack of trust in delegation and decision making led to a series of consequences within
and outside of the organisation. One of the main recommendations from this project is
that ARC Haiti should have been provided with greater decision-making authority in
order for the project to be implemented more efficiently and effectively.
In Iran, as the main partner in charge of project implementation was local, assurance
of local needs, cultures and requirements was provided. The appropriate personnel
and decision makers from the local communities provided specialist advice. Otherwise,
very little is known about the decision-making process.
What is interesting from a decision-making aspect about the Pakistani case study is
that the National Disaster Management Authority (NDMA) “summoned” all necessary
stakeholders to daily meetings in order to ensure the coordination of efforts and the
sharing of information about the developing situation. The UNDP reports that its in-
country approach, which focused on a multi-sector and integrated approach by
involving local authorities, was a source of success for its projects.
From a decision-making aspect, the “lean and simple” idea of the Tongan PMU
ensured quicker decision making and the most efficient way of working.

Based on research dating back decades already, the following is known in the areas of
roles and responsibilities (R&R) and decision making:
Good teams monitor their performance and self-correct; offer feedback; maintain
awareness of roles and functions and take action consistent with that knowledge;
adapt to changes in the task or the team; communicate effectively; converge on a
shared understanding of their situation and course of action (Zsambok 1997, p. 113).
In Haiti, the project teams had clearly defined R&R even though human resourcing was
a challenge and the local team was overwhelmed with their monitoring duties. The
lack of consultation also meant that the team members could not adequately perform
their tasks to the best of their abilities, and the lack of dedicated staff members to
manage partnerships meant that there was very little support for project
implementation.
In the Iranian case study, the distribution of R&R was achieved with success and with
forethought. While areas of improvements were present, the pre-planning by the IBRD
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and Iranian government staff, the set-up of a local project office with a main local
partner and the overall PM of the reconstruction project was well managed from an
R&R perspective.
The Pakistani recovery project by the UNDP cast a wide net of offices and hub offices
to cover the geographical vastness. Each of these offices were manned by project
managers – at first allocated to international staff who were then replaced by
domestic staff – and specialists to oversee the various implementation activities.
Specialists were also employed for monitoring, evaluation and quality assurance
activities.
In Tonga, a project manager was employed – though not for the entire duration of the
project and lacking the necessary skills to negotiate the political pressures during post-
disaster activities. Over the nine-month extension without a formal project manager,
the projects were supervised by another local PMU which also managed the road
maintenance activities with the help of local inhabitants. In general, the management
of the project by the PMU was said to be “lean and simple” in structure, which was
efficient for the size of the island. The main contractor also demonstrated highly skilled
leadership qualities in the way the reconstruction process was planned and
coordinated. While there are still challenges and obstacles to shared responsibility and
decision making, e.g. lack of information, domination by another, political pressure or
recrimination (Drury, Conboy & Power 2012), working in a multidisciplinary team and
sharing knowledge and accountability has proven to be effective.
Flexibility/adaptability
In the Haiti case study, no evidence of flexibility or adaptability was found. On the
contrary, the projects were managed in a highly centralised C&C style with little room
for creativity or adaptability, and when a decision was made by the senior delegate to
adapt to a situation and pay workers without directives about budgets, payments, etc.,
the delegate’s contract was terminated (an assumption as there is no clear information
stating the reason for the dismissal).
Adaptability to post-disaster situations was clearly reflected in the Iranian case study
where the main partner procured construction materials from the onset of the
negotiations to avoid delays – a proactive decision which proved fruitful as any
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materials ordered after disaster funds had been secured only arrived 18 months after
the earthquake.
In Pakistan, the clusters were developing inventive fit-for-purpose solutions by using
local procurement options. This ensured that the items requested reached the
affected communities as quickly as possible.
In Tonga, flexibility and adaptability was displayed by using 91 local inhabitants to
assist in reconstruction and road repairs. The locals were also provided with training
and left with additional material to fix their roads in case the incurred new damages –
which also made communities in remote locations more resilient.
Cooperation and collaboration

Collaboration is a process ‘through which parties who see different aspects of a
problem can constructively explore their differences and search for solutions that go
beyond their own limited vision of what is possible’ (Gray, cited in Thomson & Perry
2006, p. 20). Unfortunately, examples of good cooperation and collaboration could
only be observed in a small fraction of case study 1 where the local Haiti Red Cross was
involved in carrying out monitoring visits to settlements. Otherwise, the ARC limited
the involvement of other local partners in the Watsan project to a minimum – the root
cause of many issues for this unsuccessful project.
For the Bam project, the IBRD and the Iranian government applied lessons from
previous experiences to achieve success – as much as possible. Both parties put in
place processes for both international and local organisations to work together in
support and implementation. The bank requested the establishment of a PMO
manned by local staff and specialists, and their advice was taken as part of the
collaborative movement. Procurement, monitoring and technical advisory services
were set up. These services ensured the ongoing coordination of implementing
agencies and served as a role for overseeing management and application of the
bank’s policies. The Iranian case study also displayed better collaboration and
cooperation between local suppliers and professionals.
The UNDP’s challenge in Pakistan was one of coordination due to the sheer number of
players and the vast expanse of land coverage. By putting in place 12 specialised
clusters and coordinating activities with the NDMA, the humanitarian coordinator from
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the humanitarian country teams and the district coordination officers, it was possible
to reach beneficiaries at all levels – federal, state and district.
In Tonga, the National Emergency Recovery Committee was formed after the disaster,
based on whose recommendations various recovery programmes and projects were
initiated. The nature of Tonga’s disaster meant that the coordination actions were
quite different – the most important aspect which required coordination, consultation
and collaboration was in the matter of relocating the affected communities to higher
grounds and rebuilding there instead of simply rebuilding or renovating existing
structures. Political issues, in addition to land owners’ greed, made the relocation
component challenging, especially as the project manager lacked the necessary
negotiation skills at such levels. However, the general intent and structure was present
to satisfy the need of the beneficiaries. And while not all project components were
delivered to complete satisfaction, the project was nevertheless deemed successful on
the basis of stakeholder satisfaction.
Based on the documents reviewed, case study 1 (Haiti) failed on all levels as a project.
While from the perspective of beneficiaries who had received benefits the outcome
was positive, the extent of project failure is particularly shocking for a leading NGO
with extensive experience in disaster aid all over the world. Aside from the documents
pertaining directly to the management of the project (Noykhovich & Aquino Lopez
2012; Kittle 2012), the desktop research also took into consideration documents such
as the request by the United States Senate Committee on the Judiciary for an
explanation of the widespread problems with the American Red Cross’ response to the
earthquake (Sullivan & Elliott 2016), or the damning memo from the Red Cross Haiti
Program Director (St Fort 2011), which makes note of many of the failures in the
management and implementation of projects funded by the ARC. In particular, the
reluctance to employ local Haitian staff would explain the case study findings on the
lack of local engagement and consultation as well as other communication failures (see
Figure 35).
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Figure 35: Memo from Red Cross Haiti Program Director (St Fort 2011).
Case studies 2, 3 and 4 also require stronger emphasis on communication. Especially in

case study 4 (Tonga), a project manager with exceptional communication skills would
have been required to manage the subtle and distinct negotiations and the political
web the project fell into. Case study 3 (Pakistan), with its huge emphasis on local
community consultation, cooperation and collaboration with local, regional and state
departments as well as a large number of domestic and international stakeholders,
displayed adaptive capacity in the implementation, which worked to its benefit – and
the project can be said to have been moderately successful. The consultative practices
throughout a project are not atypical of a traditional management method. Lessons
learned played a major role in the way case study 4 in Tonga was managed. By utilising
designs and building codes and practices from a previous disaster, it was possible to
provide much safer and more sustainable housing to the affected communities.
Table 29 provides an overview of the outputs of case studies 1-4 from a traditional PM
perspective and in comparison to the original Agile principles according to Beck et al.
(2001) and Marbach et al. (2015). All four cases require stronger and improved
communications strategies, especially in the way these strategies are structured to
deal with mass stakeholder groups and with culturally and linguistically diverse (CALD)
community groups. What is quite surprising is that wherever more consultation, more
communication and more lessons were applied and wherever the communities were
engaged to be part of the problem-solving process, the projects tended to be more
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successful. The management of the projects investigated in these case studies was
more aligned to Agile principles than to traditional PM approaches.
5.8 Chapter summary
The four desktop case studies from Haiti, Iran, Pakistan and Tonga highlighted the
need for attention to the key attributes from the theoretical framework in Figure 14
and the findings from the preliminary interviews. Where successes were notable (to a
greater extent in Iran, Pakistan and Tonga), consultation and involvement of local
“grassroots” NGOs and local communities featured strongly. In addition, when a
dedicated project team with a project/programme management office had been set
up (in Iran, Pakistan and Tonga), the opportunities for coordination, communication
and general PM also led to successes. In the Iran and Tonga case studies, a strong
application of lessons learned contributed to lean project planning, implementation
and sustainable project deliverables which proved not only to be fit-for-purpose but
gave the beneficiaries peace of mind that they were more resilient to the next disaster
of a similar kind. However, the same key attributes (consultation, communication,
coordination and lessons learned) were what led to the overall lack of success in Haiti.
Delays to the projects in the cases of Haiti, Iran and Tonga were due to insufficient
consultation and communication, lack of resources (human and physical) as well as
political and financial reasons.
The next chapter continues this thread of investigation with four further “live” case
studies of post-disaster projects.
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Table 29: Highlight of outputs from desktop case studies.
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CHAPTER 6 Live case studies
6.1 Introduction
The “live” case studies were conducted locally in the Philippines, where the researcher
undertook visits to both the islands of Mindanao and Panay, and also in Australia. The
case studies were undertaken with significant input from and in consultation and close
collaboration with Balay Mindanaw Foundation Inc. (BMFI) in the Philippines and
Disaster Aid Australia (DAA), a member of Disaster Aid International, in Australia. The
researcher owes gratitude to both organisations.
The case studies are considered “live” as their state of completion was unconfirmed at
the time of conducting the data collection. In the two case studies in the Philippines (5
and 6), the live element was present in research on location through observation,
conversations, assisting of workshops, meetings and visits to various community
villages. In addition, case studies 7 and 8 are also considered “live” because teams
were still on the ground managing the recovery process and the projects had not been
completed. These live case studies were conducted to provide greater understanding
of projects in the process of being implemented.
Live case studies provide a unique opportunity to obtain insight into the actual running
of a project, revealing the attitudes, approach and skills of the project team. As an
observer, it is possible to collect data from non-verbal clues and from passing
comments being made about the projects, the team and the implementing
organisation. These live case studies also provide greater understanding of how
projects are being managed after a disaster and contribute further to informing the
researcher on how best to achieve the research objectives.
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6.2 Selection of live case studies
Information for the live case studies was collected from project documents and by
obtaining further details from the project leaders, team members, project partners
and project recipients. In addition, documented information was obtained from
newsletters, brochures, fact sheets and newspaper articles available on the World
Wide Web. Table 30 provides an overview of the four live cases.
Hazard Project name Year Organisation Country

5 Typhoon Cagayan de Oro, Disaster from Balay Mindanaw & The
Risk Reduction, Phase 2 2015 Johanniter Philippines
6 Typhoon President Roxas, Livelihood 2015- Balay Mindanaw & The
& Resiliency Building 2017 Johanniter Philippines
7 Tropical Needs Assessment and 2016- Disaster Aid Australia / Fiji
Cyclone Set-up 2017 International
8 Earthquake Post-Disaster Assessment 2016 Disaster Aid Australia / Nepal
International
Table 30: Four live case studies.
In addition to the reasons provided in Chapter 3.4.3, the above projects were also
interesting for the following reasons:
1. Sufficient data available from numerous sources about the same event,
thus providing adequate resource outlets to verify information;
2. Projects undertaken by organisations with several years’ experience in post-
disaster PM in different countries and cultures, thus providing this research
with greater data from a broader source;
3. Three different hazards;
4. Projects addressing different components of post-disaster recovery.
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6.3 Case study 5 – Cagayan de Oro, the Philippines
Case
Study 6
Case
Study 5
Figure 36: Map of the Philippines (adapted from Globalsecurity.org 2016).
Balay Mindanaw Foundation Inc. (BMFI), headquartered in Cagayan de Oro (see

Figure 36), is a small NGO founded in 1996, based on the Philippine island of Mindanao
and focused on the Mindanao community. The roughly 20-year journey has taken
BMFI from a single NGO to a group of six NGOs committed to disaster intervention
through to recovery. While BMFI’s early community-based work had focused on
peacebuilding, the NGO entered into disaster intervention when typhoon Sendong hit
Mindanao in 2011 and several of the NGO’s staff members were affected. Upon seeing
the devastation caused by the typhoon, BMFI decided to act and established the
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Disaster Risk Reduction, Resiliency-building and Emergency Assistance Mission
(DREAM) – see Figure 37 below for BMFI’s organisation structure.
Figure 37: BMFI’s organisational structure in 2015 (BMFI internal document,

pers. comm. 15 February).
A more detailed map of Mindanaw (see Figure 38) situates the city of Cagayan de Oro,
the seat of the head office of BMFI with its motto, ‘We refuse to be victims. We choose
to be resources’ (BMFI 2015).
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Figure 38: Map of Mindanao (Source: Wikipedia).
Title Cagayan de Oro, Disaster Risk Reduction, Phase 2

Location Cagayan de Oro (CDO), Mindanao, Philippines
Client Barangays (communities/villages) within CDO
Programme 1 project, 3 components
Start Date 1 August 2015
Completion Date 30 July 2016
Actual Completion Unknown at the time of study
Date
Status Unknown at the time of study
Initial Budget EUR 288,442.76, approx. US $329,000
Contribution BMFI: EUR 20,000
Contribution Johanniter Humanitarian Aid: EUR 268,442.76
Actual Budget Unknown
Scope The CDO project has 3 components:
additional training, capacity building for disaster preparedness, and health
preparedness, including educational campaigns on dengue fever, mosquito nets
and upgrade of existing health centres
Delays • Delays of approximately 1 month due to the following:
- Christmas stoppage;
- Consultation negotiations with the health department and
construction specialists, consultation with barangays to begin
construction, approvals from respective agencies;
- Shipment of SkyHydrants, delayed at customs;
- Shipment of mosquito nets, delayed at customs;
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Title Cagayan de Oro, Disaster Risk Reduction, Phase 2
Issues • Foreign exchange – at the time of the proposal (Reconstruction) EUR 1 = PHP 57;
at the time of implementation EUR 1 = PHP 47;
• Political challenges – politics play a highly decisive role in the country’s
machinations at all levels, and the political standing of the barangay captain can
sway decisions drastically to accept or reject projects agreed with BMFI, as was
the case with Barangay Iponan (one of 6 pilot barangays and home to several
BMFI staff members) pulling out of the CDO pilot project;
• El Niño – due to the lack of rain caused by this climate phenomenon, the
SkyHydrant water filtration system cannot be used effectively or regularly.
Client satisfaction / • Based on the consultations with barangays and partners and the needs analysis,
project effectiveness the project is going to deliver what communities asked for;
• While no official reports confirm this, there are indications that diarrhoea has
decreased in some barangays since the installation of the filtration system;
• Regarding the upgrade of health centres, at the time of conducting the case
study in the third week of construction, the participating barangays commented
that it was the first time they had seen a project using high-quality instead of
sub-standard materials;
• A mid-project assessment and workshop was held on 11 March 2016 – well
attended by the participating barangays, health organisations and other
partners. Based on the mid-project assessment, the project was delivering good
outcomes as promised, while some lessons for improvement and
recommendations were also provided.
Source Project documents, observations, attendance at meetings and workshops, general
conversations with internal and external stakeholders.

• Project planning is done in consultation with the participating barangays, the
DREAM team and the community-based teams (CBT). Any deviation from the
plan requires approval from the sponsor.
• In the case of this project, large events such as the primary and city elections
were underway during the project implementation timeline, and the team was
conscious of the delays these events could incur, displaying a level of
adaptability and flexibility with the circumstances by changing the timeline.
• Flexibility and adaptability are also recognised in using internal human
resources (see personnel management).
• Better coordination and planning required between the CBT and the DREAM
team from project proposal stage throughout the entire PM process.
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Communication
• Regular Monday morning meetings (MMM) and monthly reports and project
updates.
• Area coordinators known as SIADOs (Sustainable Integrated Area Development
Organisers, pronounced as “shadows”) oversee information sharing with
barangays. Their role is to be unobtrusive, live with the people and accompany
them without carrying or leading them – just as shadows would. SIADOs are
aware of the various languages and cultural sensitivities of barangays,
indigenous/tribal upland locations and rituals such as the water ritual to be
performed for the SkyHydrants.
• The official languages in the Philippines are English and Tagalog; the latter is
understood by all Filipinos. However, in Mindanao and the Visayas,
Cebuano/Bisaya is spoken, which is not necessarily understood nationwide.
• It is recommended to add regular shorter communication/information sessions
between the PM team and the field personnel because information delay has
been found to play a factor.

• Projects are managed via the Disaster Risk Reduction, Resiliency-building and
Emergency Assistance Mission (DREAM) programme, which is integrated into
the main organisation structure (see Figure 37 above). The DREAM team
coordinates with the community-based teams (CBT) to implement project
components and activities and to obtain information vital to each barangay.
CBTs work within the barangays and are the face of BMFI within each barangay,
building trust within the communities.
• Specific topics are discussed during project initiation and follow the process
required by the barangay committee concerned and other authorities or
jurisdictions. Both projects for this research (case studies 5 and 6) were
implemented using a mix of traditional (waterfall) and non-traditional project
delivery.
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Cost management
• All cost management overseen by the finance department at the HQ in CDO.
• Currency fluctuation meant that cost and scope had to be adapted due to
devaluation of the Philippine Peso (PHP) against the Euro.
• The main sponsor was inflexible regarding scope and number of beneficiaries
included within the scope.
• Clear baselines were set and the scope was clearly aimed at the preparedness
and prevention aspect, especially concerning dengue fever.
Risk management
• Several MoUs exist between BMFI and its partners, indicating the seriousness
and potential complexities of these partnerships. During MoU discussions and
negotiations, many of the risks and issues come to the fore and are mitigated
against.
• Continuity of programmes and projects post-implementation with the partners
or beneficiaries in regards to intention, accountability and participation was
clearly managed.
• Changes of leadership at national, state, city and barangay level are carefully
managed so as not to impact the continuation of the project.
• Risks such as bottlenecks at customs are currently a challenge to resolve,
especially during relief and recovery following disasters.
• At the start of the project specialists were outsourced as BMFI did not have the
in-house resources for construction/engineering, etc.
• For healthcare components a qualified nurse already employed by BMFI was
asked to assist and subsequently re-assigned to the CDO project team. In
addition, a medical technologist based in the BMFI office in President Roxas
was also transferred to the CDO team.
• Roles and responsibilities are reviewed based on the next courses of action
following a particular incident.
165
• Mid-project assessment and workshop, well attended by participating
barangays, health organisations and other partners from local government, to
provide a status update on the projects to the partners with participants
presenting outcomes, issues and recommendations to BMFI.
• Gathering a large number of stakeholders, partner meetings can be used for
reporting on the current project status and also as a learning, information-
sharing and networking venue.
• Consultation with all involved stakeholders is one of the primary activities
performed in order to identify needs, plan the implementation schedules and
ensure the project deliverables will be fit-for-purpose.
• BMFI participates in the following regular activities in/with the barangays:
Barangay Development Council (BDC) meetings; Barangay Council meetings
exclusive to the captain and council members, meetings of local government
units, project management committee meetings, meetings of municipal
government agencies and health agencies, status updates, status reports to
Johanniter, mid-project assessment workshops, City Health Office (CHO)
meetings, City Disaster Risk Reduction Management Office (CDRRMO)
meetings.

• Shared leadership and shared decision making are encouraged.
• Team consultation is highly encouraged and performed.
• There is a management committee to discuss all issues, and management itself
is not linear so that any member can approach executive management and
discuss issues.
• At team or operations level, there is plenty of room and encouragement for
decision making – “if it’s necessary, it’s necessary!”
• Anything involving institutional decisions must be discussed with the
management committee. If decisions such as postponements of activities must
be made at project level, consultation with the committee must take place.
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• Based on the researcher’s personal observation of the current fourth Executive
Director, leaders are very effective, empowering and assisting the next
generation of leaders as succession planning is an integral part of the NGO’s
future success.

• BMFI’s whole raison d’être is to assist the communities of Mindanao in times of
need. Since the start of the project, the main benefits and impacts noticed by
BMFI is that by working together with the various stakeholders they have been
able to bridge the gap between agencies, especially local government, city
planning and health.
• The executive management’s role focusses on communications with
international partners.
• Project partners and barangays are always involved and consulted in order to
deliver what is asked for.
• BMFI is a member of the City Disaster Risk Reduction Management Council
(CDRRMC), a multi-agency group.
• There appears to be a certain rivalry between several departments of the
CDRRMO (the responders) and BMFI although the issue has not been raised
directly due to the prevailing culture of “dislike of confrontation”. Nevertheless,
it is acknowledged that there is a lack of cooperation from the CDRRMO. Clear
lines of responsibility need to be established between the CDRRMO and BMFI
to strengthen the relationship.

• Over the past five years, quarterly assessment and planning sessions have been
held as events occurring over two to three days during which each team, unit
and programme presents and reflects on their accomplishments, limitations,
facilitators/enablers, opportunities to connect with and complement other
teams and the organisation.
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• An administration officer is assigned to the detailing and filing of contents
accumulated during the quarterly assessment and planning sessions. Once
approved by the Executive Director, details are packaged as organisational
reports or case studies and published on the organisation’s website, in journals
or as books.
• BMFI utilises a framework for assessing the programme for best practices.
• All staff members are encouraged to write stories, experiences and what they
consider to be best practices which can be adopted to improve the organisation
at all levels.
• Weekly activity reports are diligently written by all staff members.
• During and after disasters, an information management focal person is
assigned to collect raw data and collate information which is imparted to the
staff and uploaded to the BMFI portal after approval by management.
Best practice
• In regards to construction, upgrades and expansion, best practice was observed
through consultation and advice obtained from the following sources:
- Department of Health standards;
- Medical specialist controls and practices;
- Construction specialists;
- Prior consultation with barangay committees and local population on
location, timeline, and schedule of construction.
• Monitoring and evaluation is performed in the following ways:
- Status reporting within teams;
- During MMMs;
- Progress reporting to sponsors;
- Mid-project assessments;
- Quarterly assessment and planning sessions;
- Ad-hoc reviews as needed.
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Figure 39: Members of a barangay together with the barangay captain
(5th from left) and the researcher in front of a SkyHydrant (Source: Author’s
• The offer of “kurambos” (a pool of resources or budget from a group that can
be shared) is made by barangays in order to provide training on SkyHydrant
installation, technology and maintenance. In doing so, there is a sense of
ownership, accountability and responsibility from the barangays when they
accept the project deliverables while also creating a budget to sustain the
assets and establish further partnerships. The SkyHydrant in Figure 39 is the
only source of potable water in this particular community.
• The four health centres were strategically planned in order to accommodate
current and future population movements to higher lands and ease the
overloaded hospitals.
• The distribution of mosquito nets for the dengue fever protection campaign
(see Figures 40 and 41) was preceded by health and hygiene videos and
accompanied by training of community members in basic healthcare and
dengue prevention initiatives.
169
Figure 40: Barangay residents waiting to receive mosquito nets and listening
to the information session given by the health department (Source: Author’s
Figure 41: Barangay captain during mosquito net distribution (Source: Author’s
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6.4 Case study 6 – President Roxas, the Philippines
Figure 42: Map of Panay with location of President Roxas

(Source: http://kalibo.tukcedo.nl/panay_prov.jpg).
Details of Balay Mindanaw Foundation Inc. (BMFI) as an organisation can be found in

Chapter 6.3.1.
Title President Roxas, Livelihood & Resiliency Building

Location President Roxas, Panay, Philippines
Client Communities in the municipality of President Roxas
Programme Livelihood and Resiliency Building
Start Date 1 August 2015
Completion Date 31 December 2016
Actual Start/ 1 October 2015 / 31 January 2017
Completion Date
Status In progress
Initial Budget EUR 475,476.77 (approx. US $521,275)
Actual Budget Unknown at time of study
Scope • Tree growing, mangrove rehabilitation, island container gardening (ICG);
• Organising trade association, provision of seed fund for livelihood, managing
own small businesses, accounting for small businesses, incentives for each tree
grown, value chain analysis, capacity building, etc.;
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Title President Roxas, Livelihood & Resiliency Building
Delays • Delay in funding approval was a challenge, but the project team used the time
wisely to review the risks and vulnerability assessments, identify sites for
growing, identify participants, develop communications, formulate criteria and
re-establish Project Management Committees (PMC) in participating barangays;
• Delay in budget being transferred to the Philippines prevented accommodation
of all activities.
Issues • Open market hiring – candidates with conflicting priorities between own
political aspirations and the position offered, forcing an extension of the hiring
process;
• El Niño – due to the lack of rain caused by this climate phenomenon, seedling
mortality had to be factored into the risk assessment and beneficiaries selected
with priority given to those who have sufficient land on the boundary of a water
source;
• Political challenges – politics play a highly decisive role in the country’s
machinations at all levels, and some politicians were using the seedlings as
propaganda handouts instead of according to plan and land size of beneficiaries.
Dissemination of important information about the project was very much at the
discretion of the political will of the barangay captains;
• Culture and tradition – the practices of fishing communities are steeped in
tradition and any changes require time, convincing and much trust building.
• Community organising and mindset – every barangay wants to participate and
benefit.
Client satisfaction / • The project proposal was prepared following extensive consultations with the
project effectiveness barangay representatives. Based on the data collected at the time of the case
study, stakeholders’ opinions were positive and appreciative of the project’s
potential.
Source Project documents, observations, attendance at meetings and workshops,
general conversations with internal and external stakeholders.

• The schedule and planning is done, but there is flexibility to adapt throughout
the project timeline.
• To ensure the project would satisfy the needs of the communities, an
orientation about the projects deliverables and objectives was held.
• A new mangrove project by the Department of Environment and Natural
Resources (DENR) forced certain barangays to commit areas for mangrove
planting, including two barangays originally selected for the BMFI project.
Consequently, only four barangays were committed for this project and the
scope had to change from committing two hectares to committing five hectares
per participating barangay – this required additional negotiations.
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• The donor organisation needs to be more flexible. Post-disaster planning is fast,
and when planning is done at the beginning, it is far from perfect.
Communication
• Communication in these projects is largely blended in with consultation,
achieved with high success rates through the same methods as the CDO
project.

• Any changes in project scope must be communicated to the sponsors and
approval received prior to applying the changes.
• Specific topics were discussed during project initiation and the required process
was followed based on the barangay.
• Transparency boards were put in place at barangay level with a telephone
number provided for feedback, clarifications, questions and complaints.
• Systems at the head office should also adapt to changing needs. The finance
and administration departments need to work at a pace which keeps up with
the development of projects. If this process is not faster and up-to-date, the
momentum is lost and so is credibility.
Cost management
• All cost management as per CDO project.
Risk management
• Security and safety risks to travelling teams such as accidents or robbery (as
they often carry large cash sums to pay suppliers/contractors), including the
risk of drowning.
• Financial risk – only one ATM available in the city; two PMC treasurers
appointed for payments to people in the barangays for safety, accountability
and transparency reasons.
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• Disaster risks – should the barangays be affected by another typhoon, a quick
assessment is done by the barangay captains to ensure the assets implemented
by BMFI are in good condition.
• Mortality or viability of seedlings due to lack of rain caused by El Niño, hence
one of the criteria for participation was to have land adjacent to water (river
banks, creeks) as a two-fold risk mitigation in the way of water siltation control
and the option of bigger seedlings.
• The project manager is a local chemical engineer who worked on a previous
reconstruction project as part of the damage assessment team after Typhoon
Yolanda.
• A fisheries specialist was recruited to provide post-harvest training, conduct
fishing gear research and modify the existing fishing gear at President Roxas.
• The role of agricultural officer included ensuring knowledge and dissemination
of climate change adaption information;
• Two community organisers were also recruited to coordinate with the
barangays for both fishing and agricultural activities, provide assistance in the
formation of a trade association and identify eligible stakeholders who fit the
criteria as suggested by the barangay council.
• The logistics team under DREAM managed the contacts and relationships with
suppliers and contractors.
• Procurement relationships follow the procurement standards of obtaining
three proposals, with the final selection based on the criteria set by BMFI.
• See the section on consultation and collaboration for other stakeholder
management activities.

• Leadership and decision making highly encouraged within the organisation.
174
• Within the President Roxas team, the project manager also ensures mentoring
of certain individuals with potential.

• BMFI has built and continues building good reputation and strong record of
consultation with the barangays and other partners;
• Consultation with all involved stakeholders is one of the primary activities
performed in order to identify needs, plan the implementation schedules and
ensure the project deliverables will be fit-for-purpose as per CDO project.

• The team at President Roxas utilised best practice in this area similarly to the
main headquarters at Cagayan de Oro but also with some other site-specific
knowledge. This was achieved through:
- Staff orientation;
- Study of previous projects including issues and advantages;
- Knowledge shared through regular team meetings;
- Weekly activity reports;
- During staff development training of new and existing personnel when
specific cases with challenges are discussed and lessons are passed.
• Encourage the writing of stories and experiences for a lessons database to be
published.
Best practice
• Sampling for fishing gear research – parameters were adjusted to fit/suit the
community while maintaining base standards, e.g. providing kits for sampling,
training people to perform sampling, training for mangrove growers.
• Tree growing – use of 3-ft asexual (grafted) seedlings instead of seeds due to
the delay in the project start, which meant that the budget had to be adjusted
as the seedlings were more costly; however, their mortality rate was reduced
and they were easier to control and monitor. Fruit-bearing trees were planted
175
for conservation of the environment and to desilt the water (fruit-bearing trees
mature much more quickly than non-fruit-bearing trees and provide additional
income within roughly 2.5 years of planting).
• Providing the community with employment and additional sources of income.
• Good gateway for fishing communities to incorporate conservation techniques
in building their fishing gear.
• Providing opportunities to enhance community members’ skills.
• Providing business management training in sustainability, post-disaster
business continuity, budget management, etc.
• Fruit trees from grafted seedlings will bring economic sustainability for several
families in the years to come.
• Contrary to other NGOs, BMFI does not only provide short-term relief but
training, infrastructure and support.
• Livelihood projects should include more training in management, more
disclosure and transparency, better dissemination of information and more
skills training for women.
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6.5 Case study 7 – Fiji
Figure 43: Map of Fiji, showing the location of the Tauvegavega settlement on
the left and Ovalau Island on the right (adapted from Maps of the World 2015).
Disaster Aid Australia (DAA) is an Australian-based humanitarian aid organisation

which has its office in Dandenong, VIC and has been in operations since 2003. As a
charitable institution, DAA is registered with the Australian Charities and Not-for-
profits Commission (ACNC). DAA, a member of Disaster Aid International (DAI), is
highly experienced in providing relief aid packages to disaster-stricken developing
nations and has been highly active in the following countries: Sudan, Haiti, Pakistan,
Malaysia, the Philippines, Fiji and Nepal. DAA’s main task is in providing PM during
relief and recovery activities, especially in the areas of reconstruction.
177
As a modern and evolving organisation, DAA has learned along the way to adapt how
and what they do to assist communities after a disaster and has changed its methods
of delivery. The organisation has learned that going into an affected community and
telling them what they need is neither efficient nor helpful. What the people do need
is to be provided with the necessary tools to rebuild their own lives: ‘We provide
families in desperate need with shelter, materials, water and light – and a new start
within their communities, with hope and dignity’ (Disaster Aid Australia 2016).
DAA provides specialised solutions such as the Sawyer filter, an all-in-one water filter
for emergency drinking water, the SkyHydrant water purification unit producing up to
10,000 litres of clean potable water daily, and the Family Survival Packs, in addition to
shelter repair kits, home repair kits and solar lighting. The Family Survival Pack includes
some standard and some adaptable contents depending on the location of the
disaster. It comes in a 190-litre wheel-based container with handles and a lid that
serves as a carpenter’s workbench (designed for ease of transport and handling). The
contents most often include a large tent (the largest humanitarian aid tent available
which exceeds SPHERE and UN standards), blankets, water containers, cooking
utensils, a stove, pots, pans, children’s rucksacks (containing books and pencils) and
mosquito nets.
Following a disaster, Disaster Aid Response Team members (DARTs) are deployed to
the country requiring assistance to perform needs assessments. The two case studies
from Fiji and Nepal are two such deployments which occurred in the last two years. As
DARTs operate on a volunteer basis, and due to the emotional and physical demands
placed on individuals, DARTs rotate the role of project manager during short
assignment bursts – and the projects are limited to immediate post-disaster relief and
recovery (as opposed to medium- or long-term efforts). The two case studies represent
the perspectives of two DARTs who were deployed to Nepal and Fiji, respectively, to
manage early relief and recovery efforts.
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Title Needs Assessment and Set-up

Location Fiji
Client Tauvegavega settlement and Ovalau Island
Programme N/A
Start Date 5-12 March 2016 / 8–17 March 2016
Completion Date Unknown at the time of study
Actual Completion 27 March 2017
Date
Status Completed for relief, ongoing for recovery at time of study
Initial Budget AU $100,000
Actual Budget AU $100,000
Scope • Needs assessment
• Provision of potable water
• Distribution of full or partial home rebuilding kits in Tauvegavega settlement
(approx. 350 households) and on Ovalau Island
The following items were provided:
- Corrugated iron;
- Metal strips to keep structures from flying off;
- Flyers, posters and instruction manuals with photos (in 3 languages).
Delays • Unknown at time of study.
Issues • The Rotarians in Fiji were concerned that no help had come from Rotary, i.e.
DAA, when the two-week post-disaster mark was reached, given Australia’s
nearness to Fiji.
Client satisfaction / • Unknown;
project effectiveness • However, the communities received what they asked for;
• No assessment of service delivery is performed, which is an area that needs to
be improved.
Source Face-to-face conversations and interviews with DART team members; Skype and
telephone conversations; project documents.

• The first project manager/coordinator was deployed in week 3 following the
cyclone (see Figure 44 for a scheduling chart of the project managers’
deployments). At the cluster meeting and following the needs assessment it
was decided that tents were no longer necessary and what was needed were
more sustainable tools.
• By the time the team leader arrived on the scene, a coordinator had already
been deployed and was on the ground, having already established contact with
Rotary, telecommunication links, accounting processes and contact with
clusters.
179
• Every deployment is different, and the only structure which can be planned for
is a list of what is required and what must be established/done once in the
country, including resources, assessments, needs, contracts, plans/schedules,
implementation, procurement and consultation with stakeholders.
• Planning was flexible to prompt what needs to be done without stating how.
• In order to ensure he was on the right path, the DART member used the “Just
Enough” PM principles to keep himself “earthed” to his required activities.
• Forward planning was used to replace current stock, for DART succession
planning and engagements with Rotary clubs.
Figure 44: Deployment plan for various DAA project managers for the relief
projects (DAA internal document, pers. comm. 9 April 2016).
Communication
• Once deployed, the typical communication process is the following:
- Contact and connect with Rotarian on the ground and begin set-up;
- Connect with/at shelter cluster meetings;
- Get registered;
- Get contact list.
• In areas where telecommunications work well (e.g. Fiji), it is simple to stay in
touch via email and use the international email address set up for deployments.
• Vital information is imparted during reporting sessions with the clusters (who,
what, where, and optionally when).
180
• Reporting from other NGOs on the ground left a lot to be desired – by the
second cluster meeting, the DART had a plan to advise the cluster while other
NGOs were still getting “settled”.
• Important to have information on how to communicate with the local people
and who to talk to – each DART member needs to ensure that this information
is relayed to them from the departing DART member or local Rotarian during
handovers.
• Good communication skills are a must-have for deployed DART members in PM
roles.
• DART members are not talking to one another once they return home after
deployment as there is no opportunity for them to share their experiences and
exchange ideas, e.g. through regular newsletters via email.

• The operations team reports to DAI, namely the Australia Coordinator, the USA
DAI Board and the Chair in Australia.
• Reporting is done daily and, while not very long, needs to contain activities of
the day, the next day, the budget and the expenses to date.
• A final report at the end of the deployment by each DART member is necessary.
Cost management
• In Fiji, money transfers were done through WestPac and ANZ. These two banks
seemed to have a fast way of managing transactions.
• The government placed price controls on various items to ensure that costs
remained stable and the disaster did not result in over-inflation.
• Nails, iron, wood, etc. were available from the Southern part of Viti Levu, Fiji’s
main island, which was not affected, thus saving on freight costs and
contributing to buying local – a priority for DAI/DAA.
• The budget allocated to the project, the number of names on the list of
recipients of kits and the pricing situation in the country dictate who gets what.
181
• Only cash payments were accepted, and it is possible for materials not to be
delivered as there are not sufficient controls in place to mitigate for such risks.
While three quotes are obtained as per standard procurement best practice,
some suppliers will only place orders against upfront payment. One method of
mitigation is to micro-manage the orders in the beginning, i.e., place small
orders, build relationships with contractors/suppliers and grow from there –
however, time does not always allow for this.
• Cash payments, especially for large orders, need to be approved by field DART
members and one operator from headquarters.
Risk management
• DART members are told to practice what they learned at training – always
know how to get in and out of their accommodation as soon as possible, and
always have an escape plan.
• Let local guides do the driving.
• Risk of not receiving orders despite having paid for them in advance and in
cash.
• Risk of embezzlement.
• There is always a DART team leader and team member on deployment.
• While no specialist personnel were employed, the Rotary Club of Fiji provided
DART members with an office to work from.
• Rotarians provided project advice and the networks or guidance on
where/which organisation to contact for activities or resources.
• Local Rotarians volunteered their resources.
• First contact is made with the local Rotarians and through this network other
stakeholders are accessed.
182
• DART members ensure they address all the necessary stakeholders in order to
satisfy needs and avoid duplication.
• There was a lot of pressure from the local community to receive wood from
New Zealand due to its quality; however, the delivery times were too long and
it proved unworkable.
• Some communities/families were cautious about receiving aid from one
organisation, thinking they would therefore not be eligible to receive
“something better” from elsewhere.

• Team leader roles and responsibilities are clearly defined, and they ensure that
team members are following the appropriate guidelines.
• The organisation used to be very much about command and control; however,
since there is a salaried person in the field, this culture and attitude has
changed, and PM processes are more effective. When volunteers arrive on
location, they access and review the schedule and move forward with the plan.
The leadership role is more about being a go-to person rather than telling team
members what to do. While the team leader has the ultimate decision on
certain matters, the team has the option to make decisions without fear of
reprisals, especially when communications in certain countries are limited.
• The organisation needs to evolve and become more adaptive to the changing
environment.
• Continue moving towards an adaptable management style with less C&C.
• Offering additional training and skills would give people a satisfying reason for
being a volunteer DART member.

• The standard way to operate when deployed is to perform a self-assessment
and then proceed to consult with the local communities.
• There are no standards on how consultation is done as this is very country-
specific. However, one way or another it is necessary to verify the following:
183
- Beneficiary needs;
- Who the beneficiaries are;
- Who is responsible for verifying and checking identities and needs.
• Support from local Rotarians is absolutely vital for first contact. This support is
given in the following ways:
- Cost savings – most DART members are lodged/hosted by local Rotarians,
which means that all funding obtained from the public is channelled to the
beneficiaries of the disaster;
- Obtaining local knowledge – because the Rotarians are active members of
their communities, their cultural and religious knowledge as well as their
links and community networks are invaluable;
- Rotarians can act as guides and/or translators.
• DART members identify the community needs rather than individual recipients.
After speaking to the village head and advising him on what assistance was
available, the village head would in turn decide on who the recipient(s) would
be. Thus, project management became easier and more of a numbers
management.
• It is vital to establish how the community system operates and get involved
with the local community – missing this opportunity could result in a project
going awry.
• It is very important to work with the right collaborator/partner who is prepared
to be flexible. DAI is now on a “campaign” to set up various partners in
different countries where they have previously worked in order to have more
financial, supplier and transactional facilities already established locally.

• When deploying to a country, it is important to be open and adaptable, and
one cannot go in with any preconceived ideas.
• It is important to guide the local people to a better way of construction by
educating them without being insulting.
184
• Knowledge is not captured in any formal process. There are some meetings and
discussions with other team members but no analysis, no record, no debriefing
and no “post-mortem” – this is an area which is in great need of improvement.
• Knowledge sharing between DART members after a deployment is a necessity
and must be arranged on a regular basis.
• It is extremely important that DART members have proper PM skills.
• It is necessary to distance oneself from the in-country partners while they must
be utilised to the best of their abilities.
• Government representatives appreciated that aid was being delivered to
various communities and that there was no duplication from DAI.
• Due to constraints experienced regarding the supply of materials, it is best to
have pre-arranged partners in advance for collaboration, orders and payments.
Best practice
• The SPHERE guidelines were utilised a lot.
• Consultation at UN cluster meetings serves an important purpose as people
with a good level of maturity attend the meeting and the information obtained
aids in avoiding duplication, knowing who is organised, etc.
• Good PM skills make the difference for DART members.
• The kits provided are not only useful for immediate use but can be utilised for
longer term.
• The rebuilding plans and retrofitting advice obtained during repairs ensure
durability and longevity.
185
6.6 Case study 8 – Nepal
Figure 45: Map of Nepal showing the epicentre of the earthquake between
Kathmandu and Pokhara (BBC 2015).
Details of Disaster Aid Australia (DAA) as an organisation can be found in

Chapter 6.5.1.
Title Post-Disaster Assessment

Location Nepal
Client DAI, Rotary, communities in Nepal
Program Relief and Recovery program
Start Date 6-16 February 2016
Completion Date 29 February 2016
Actual Completion Unknown for recovery phase
Date
Status Completed for relief, unknown for recovery at time of study
Initial Budget AU $6000 for transport and expenses of DART member, unknown for materials
Actual Budget Unknown
186
Title Post-Disaster Assessment
Scope The aim of this short project was to carry out a follow-up assessment after
interventions in April 2015, immediately after the 7.8 magnitude earthquake.
• 1 DART member was to attend the annual conference hosted by the Rotary Club
of Thimphu, capital city of Bhutan.
- The aim was to build more relationships for future interventions. It is a
challenge to build such relationships in Nepal and the conference was
thought to be a good place to start;
- Start partnerships by offering global grants and opportunities to grow
money. 3 SkyHydrants were offered at the value of AU $9000;
- Seeking a partner, ideally another NGO who can provide smooth financial
transactions into Nepal.
• 1 team leader was to conduct a post-disaster assessment of the area where
assistance was provided, especially by DAI, and to note what other assistance
was still required.
- Provide tents;
- Provide water.
Delays • Unknown at time of the study
Issues • Impossible to get out of Kathmandu due to petrol shortages. The fuel crisis was
a major challenge, and the only way to obtain fuel was through the black
market;
• Not possible to go beyond Kathmandu;
• Without a local partner, it is practically impossible to have financial
arrangements in place, i.e. banking;
• Lack of clean drinking water;
• Insufficient shelter;
• Attacks on livestock and children from wild animals (panthers);
• Typhoid – due to faeces in water.
Client satisfaction / • The project was effective.
project effectiveness
Source Face-to-face conversations and interviews with DART team members; Skype and
telephone conversations; project documents.

• Planning on who receives what aid is a challenge as everyone who is affected
wants something.
• Very important to connect with the local system and review who really needs
shelter and water.
• Planning was accompanied with many challenges as it was necessary to
distinguish between real needs and wants.
• DART members should have the option of lodging with local Rotarians or
independently.
187
Communication
• A UN cluster meeting was being held, and on the advice of the local Rotarian it
was deemed unnecessary for the DART member to attend. In retrospect, the
UN cluster meetings are vital sources of information and communication
platforms, and as DARTs need to acquire information about what is being
managed and coordinated in relief and recovery efforts it is suggested that they
attend these cluster meetings and obtain information first-hand while also
contributing to the gathering and sharing of information.
• A very good 3G telecommunications network was available, enabling fluid
contact with DAI head office for status updates, etc. through tools such as
emails.
• Disaster-specific email accounts are set up for DART members and kept
updated for the different DARTs on assignment.

• Reporting was as per the Fiji project.
• Reporting to DAI headquarters was much facilitated by the availability of
telecommunication connections.
Cost management
• Nepal represented a cost-intensive exercise due to factors affecting the cost of
transportation.
• Delivery of tents is also cost-intensive, especially during a fuel crisis.
Nevertheless, tents were still required even long after the initial earthquake,
and DAI had run out of its stock.
• Lack of local partners with financial agreements.
Risk management
• In a country where most structures are still unstable and travel is limited, it is
important to protect oneself from physical harm.
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• Financial risks during the project are minimal.
• High risk of opportunistic crime such as hijacking of goods and vehicles.
• Same situation as with Fiji – only volunteer DART members are deployed.
• This proved to be an ongoing challenge in Nepal. As an internal stakeholder,
the local Rotarian displayed bias and tended to urge the DART members in a
particular direction based on the local culture, leading to the relationship with
this in-country partner to be described as “suffocating”.
• Stakeholders were living in rudimentary houses of mud bricks, on land which
they did not own. When offered tents, stakeholders were quite ambivalent, but
once they saw them they all wanted one.
• Stakeholders had to be watched in order to avoid two or three families moving
in together, but there was no realistic way to control this situation.

• Team leader and DART members needed to distance themselves from the local
partner as of the first day in order to remain impartial and use their own
judgement instead of being influenced to make decisions.
• The entire process in Nepal is locally guided through Rotary, requiring a high
degree of autonomy in addition to tact and diplomacy in order not to offend
but remain impartial.
• As a leader, it is important to focus on the mandate, on what can be achieved
and what resources are available.

• Having knowledge of organisations and insight into cultures is particularly
important in Nepal.
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• The caste system in Nepal means that the higher the caste, the more they
believe they are entitled to receive.
• The communities need to be identified, and it is necessary to accept that how
this is done is out of the DART’s control. Once identified, it is important to know
how many homes are affected by consulting with the community leader and to
let the community know what DAI can, cannot, will and will not provide. By
being transparent the process can remain smooth even if it does not satisfy all
concerned.
• DAI has been making attempts to create partnerships with local Rotarians to
start a Disaster Aid franchise in Nepal, but this process is very slow and
ongoing.
• DAI was and still is in negotiation with a Canadian NGO which operates in the
same manner as DAI/DAA.
• In areas that still required tents, the volunteers helped putting them up, but
local people were unwilling to assist without compensation (asking for money).
• A stronger and wider partnership network must be built throughout countries
where aid has been provided.

• It is vital to understand how the community system works, who the main
representative is, what religion is practiced, what tribal functions there are and
what attitude towards government prevails. It is equally important to follow
the country’s protocols.
• If time allows, research on the country should be conducted before arriving;
otherwise, it is important to ask many questions once in the country. Short
assignments require maximum impact; therefore, it is important to be
resourceful.
• It is very easy to be blinkered by the local Rotarian’s view – an issue which can
dramatically affect the assignment. Therefore, it is important for DART
members to think independently.
• Very good communication skills will go a long way even with limited PM skills.
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• The only partner in Nepal was the Rotary who hosted the DART members,
which became a constraint. Other DARTs who arrived later were able to
connect with other local NGOs to obtain a broader view of the situation.
• Attending the UN cluster meetings is beneficial – even if advised against it;
• DART members must be prepared to say no, particularly if assistance is
perceived as an opportunity rather than satisfying a real need. However, they
must also be prepared to face severely distraught people and a nation which is
still traumatised and rebuilding very slowly.
• It is recommended that regular lessons-learned and information-sharing
forums are organised for DART members in order to improve and increase
knowledge and apply lessons for the future. The feeling of isolation expressed
by some DART members needs to be taken into consideration.
Best practice
• Governance practices were adhered to.
• Attention to scope creep was particularly stringent – especially with
stakeholders’ increasing demands.
• Ensure DAI/DAA’s mandate is adhered to (provide shelter and potable water).
• The provision of SkyHydrants as per the organisation’s mandate is one way of
ensuring that the local community have access to potable water.
6.7 Findings from live case studies
The line of inquiry for the live case studies focused on how PM was applied in all four
projects and the relevance of issues and solutions highlighted through the semi-
structured interviews reported earlier. The findings revealed that a form of traditional
PM methodology was employed by both organisations (BMFI for case studies 5 and 6,
DAA for case studies 7 and 8) using standard processes and documentation. However,
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as a disaster management agency’s mission is to assist local communities, emphasis
was also placed on the following areas – similar to the review of the desktop case
studies:
(1) Consultation;
(2) Communication;
(3) Delegation of decision making to a broader group;
(4) Roles and responsibilities;
(5) Flexibility/adaptability;
(6) Cooperation and collaboration;
(7) Leadership/management;
(8) Lessons learned.
The major differences between traditional PM and DM requirements came from these
eight attributes.
Consultation is key. The majority of organisations delivers projects to cultures with

quite different norms, values and attributes. Therefore, it is essential to discover what
is desired, what is necessary, what is feasible, what is practicable and sustainable
within that particular culture. Consulting also means partnering with local agencies and
offices with more experience within the community, who speak the language and who
know the community’s protocols.
Communication is the edict of project management, independent of methodology.
Communication and social skills are necessary abilities to relate effectively with
stakeholders, professionals and partners (Hargie, ed. 2006). Cultural differences
necessitate active and beneficial cooperation and collaboration between the affected
communities, international and national aid workers, governments and the private
sector to achieve success in project delivery and recovery. Hindrances to success come
in the shape of competition, political interference, discrepancies in information
received by the local communities and other actors, and a lack of coordination to share
and monitor communication activities. The changing of roles and responsibilities,
adapting resources to suit needs, provides a team with better flexibility, shared
experience and accountability in decision making. This leaves the project manager to
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act more in the role of coordinator and facilitator than the only decision maker (Nerur,
Mahapatra & Mangalaraj 2005).
Some of the issues raised in the context of the above-mentioned eight attributes are
reviewed below.
Consultation
The majority of international aid organisations delivers projects to cultures whose
norms, values and attributes are quite different from Western cultures. Therefore, it is
essential to discover what is desired, what is necessary, what is feasible, what is
practicable and sustainable within that particular culture. Local partners will build a
bridge between international and local communities, enable further participation from
the community through activities such as procurement, resources, economic well-
being and diminish risk, resistance and project failure.
Throughout their training and employment, BMFI teams live and work within local
barangays (village communities) to better know the culture, the people, the
committee members and the barangay captain and to develop a relation of trust.
Consultation is applied practically in the PM knowledge areas of communications,
stakeholder, time, scope, cost, procurement and risk management according to
PMBoK. Stakeholder consultation, information sharing and joint decision making is
performed through pre-, mid- and post-implementation assembly. It is via this method
that any budgetary, risk or scope change is addressed.
DAA/DAI DARTs have a similar system with a fellow local Rotarian as first contact point
and introduction to the cultural norms, informing them what to do and what not to do.
While having a local partner has proven valuable each time, the DART members must
also have the “free will” to act and make decisions based on their professional
assessment and judgement and not get swayed by any requests from the local
Rotarian in the choice of beneficiaries, suppliers, contractors, etc.
Communication
See below under Communication, cooperation and collaboration.
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Delegation of decision making to a broader group
Succession planning is an integral part of leadership, and mentoring with succession
planning as a goal in organisations
provides strong evidence that employees with mentors are much more likely to
experience a range of positive outcomes, including enhanced job performance, greater
promotions and compensation, organizational commitment and job satisfaction,
personal learning, and reduced turnover intentions (Groves 2007, p. 244).
At BMFI, a second-in-charge is developed through coaching, mentoring and training.
Any staff member can approach executive management and discuss issues. A
management committee exists to discuss all issues – and the way management is
defined is not linear. The next generation of leaders is thus empowered and assisted,
following good leadership development practices:
If you are a leader who is going to develop another generation of leaders, you need a
teachable point of view (TPOV) about how to develop leaders, leading organizational
change … A TPOV starts with core ideas about how you’re going to succeed, and is
supported by a strong system of values, emotional energy and the courage to make
yes/no decisions (Allio 2003, p. 21).
At team, operational or project level, collaborative, team or individual decision making
is encouraged to enable adaptability and accountability for actions. Institutional
decisions are discussed with the management committee. In post-disaster situations,
information must be related to management and a rationale must be made. However,
there are usually at least two to four staff members present to discuss issues and come
to a decision.
DAA/DAI staff members feel that their organisation is moving forward with a culture
change from C&C. They have experienced that, by having a salaried individual on
location, the requirement to control could be decreased and allow the project leader
to act as contact point, delegate and point person, thus allowing the volunteers to be
freer within their areas and make decisions without fear of reprisals.

At BMFI, there are clearly defined roles and responsibilities as per the organisation
structure. However, “in an emergency, all become emergency responders, irrespective
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of job”, as one of the team leaders pointed out during case study 5. If a disaster
impacts within a project team’s location, the team in charge of the barangay will
automatically respond. When the incident is at a distance from the team’s geographic
location there is also a protocol (as noted in case study 5). This is a clear display of a
team which is able to adapt to situations, change roles and build on experience.
Flexibility/adaptability
Flexibility and adaptability in projects can be reflected in ways that can neither be
qualified nor quantified. The BMFI projects demonstrated flexibility from the onset by
going to market for the first time to obtain the skilled resources necessary instead of
drawing on their volunteer base as per their usual practice. In trying to use the right
people for the right projects, this was seen as the most efficient way. Furthermore, the
transfer of BMFI staff members with appropriate skills from one island to another was
employed as a strategy to ensure the project had the appropriate skill sets in addition
to re-employing previously known contractors who already had knowledge of the
organisation culture, the projects, the local language and the population, thus ensuring
that knowledge remained and was recycled. Flexibility was also shown when best
practice was changed in using grafted seedlings instead of seeds due to a delay in the
project start. While the budget had to be adjusted as the seedlings were more costly,
their mortality rate was also reduced and they were easier to control and monitor.
There had been no intention of changing best practice at the beginning of the project,
but the delays forced BMFI to think in a different way.
In the case of DAA, the DART’s very role is about flexibility and adaptability. From the
moment of their deployment, each volunteer needs to catch up with the profile of the
affected country – this involves the professional side of culture, religion, mandate,
guidelines and professional ethics, etc., in addition to considering their own biases or
judgements and deploying with a “different culture, different ways” frame of mind.
Communication, cooperation and collaboration:

At BMFI, area coordinators known as SIADOs unobtrusively oversee information
sharing with barangays. SIADOs have awareness of the languages, dialects and cultural
sensitivities of the various barangays, indigenous/tribal upland locations and rituals.
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Involvement and approbation from authorities such as planning, social welfare,
municipal agriculture, mayor’s office, engineering etc. is also important because in
informing and consulting them, they are more likely to become assets instead of
liabilities. Due to cultural differences, active and beneficial cooperation and
collaboration between the affected communities, international and national aid
workers, governments and the private sector is elementary to achieve success in
project delivery and recovery. Hindrances to success come in the shape of
competition, political interference, discrepancies in information received by the local
communities and other actors, and a lack of coordination to share and monitor
communication activities. Signing Memorandums of Understanding (MoU) with
partners indicates the seriousness and willingness to collaborate, and complications
which could arise with these partners are discussed, noted and negotiated before an
MoU is signed. This includes areas such as risks, the continuity of programme and
projects, implementation with partners as well as changes of leadership at national,
state, city and barangay level.
The strength of DAA/DAI and its DARTs lays in the Rotary Club networks in the
communities of the affected areas. Local Rotarians use their connections with local
partners, governments and businesses to ensure smother deployment of DARTs and
also the prompt performance of needs assessments and dispatch of aid packages.
Where DAA/DAI still needs to improve is in the area of fiduciary partners. Depending
on the country, the inability to transfer large cash sums can cause severe delays –
which in turn increases the consequence of danger and suffering for affected
communities. Funds transfers can be affected by a number of reasons, including
political ones as seen in the case of Iran due to the UN sanctions, but also due to the
difficulties in accessing formal money transfer methods or banking transactions when
organisations are not from the country in question (Aiken & Cheran 2005).
Leadership/management
See above unter Delegation of decision making to a broader group.
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Lessons learned
From a lessons-learned perspective, case studies 5 and 6 (BMFI) represent the
strongest example. Because several of the employees were themselves survivors of a
natural disaster, they apply what they have learned from personal experience in their
professional surroundings. The culture of writing stories and utilising these stories as
part of the training is also a very strong tool.
Table 31 provides an overview of the PM output highlights from the four live case
studies (5 to 8). Similarly to case studies 1 to 4, all these four “live” projects were said
to be managed utilising a traditional PM approach as most leaders/managers in the
field of DM will have had a degree of training in the traditional method. Even when
consultants are employed, they will utilise the methodology best suited for their types
of projects such as construction, engineering, etc. What the live case studies highlight
in similar ways to the desktop studies, however, is that there are areas, or rather
attributes and skills, which are being applied in a manner which deviates from
traditional PM approaches in order to obtain the best outcomes in a given situation –
often not in systematic fashion but guided by feeling and previous applications and
based on what has proven effective under similar circumstances.
Firstly, the strong focus on communication throughout is a highlight – the principal
endeavour is to ensure that the information flow is clear, that information is received
and that it is culturally and linguistically appropriate. Secondly, the full immersion into
the communities to ensure appropriate consultation is not atypical of traditional PM
methods. Normally, traditional methods would require a certain degree of
consultation to enable detailed planning whereupon additional consultation is
performed during the testing of products or services delivered by the project. Thirdly,
the degree of flexibility and adaptability on display is more than what a project with
full upfront planning would allow. In particular, the live projects under investigation
are reliant on the ability to adapt due to the many variables which such project types
encounter. Fourthly, the emphasis on cooperation and collaboration is clear in the
linkages with community leaders, local and state government agencies, professional
sectors and Rotary Clubs. Good communications and stakeholder management plans
would include all details pertaining to potential stakeholders and a structure on
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communications strategies. Fifth is the way roles and responsibilities merge with
delegated decision-making authorities. Not only do the project team members have
decision-making authority, but the stakeholders are also actively participating and
accountable for how and what the project should contain and how it can be most
appropriately managed and implemented. This in turn leads to the
leadership/management potential where the project manager acts as a go-to person
rather than the main decision maker or is seen as assisting the next generation to lead
and mentor.
What the live case studies highlight even more than the desktop case studies is that
these projects, ostensibly managed utilising a traditional PM methodology, were in fact
using an adaptable method which comprised of a different set of skills and attributes
focus. In comparing Tables 29 and 31, it can be deduced that the PM methods used for
case studies 5 to 8 were more aligned to an agile principle. While there were overlaps
between traditional and agile PM approaches– and this is important to highlight
especially in areas of communication – the strength points to Agile. It is important to
note that the Agile methodology originates in areas of information technology (IT)
projects. Few other organisation have utilised Agile outside the IT realm, e.g. in how to
use best practices and lessons learned utilising some components of Agile (Santos,
Goldman & Roriz Filho 2013) or in logistics and supply chain management (Power,
Sohal & Rahman 2001). It is therefore not a surprise that people or organisations
managing post-disaster projects have to be adaptable and creative in developing their
own PM methods, organically migrating to more adaptive methods of project
implementation.
While the projects investigated were still ongoing it was not possible to know the level
of success they eventually reached. The CDO case study in the Philippines held a mid-
project review workshop with stakeholders from various government departments and
community leaders with highly constructive feedback on improvements and on
refining the implementation of projects which were already proving successful. In
addition, the attributes used feature strongly and align with some of the
recommendations made by international development projects as noted in the
literature review.
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Table 31: Highlight of outputs from live case studies.
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6.8 Chapter summary
The live case studies highlighted the need for attention to the key attributes from the
theoretical framework in Figure 14 and those highlighted in the desktop case studies.
Successes were notable in all cases in the area of consultation and the need to involve
the local communities in any way and structure the country’s culture allows for. This
use of local communities and organisations is particularly necessary when projects are
delivered by foreign aid organisations. Local entities, communities and individuals act
as a bridge to culture, language and understanding of needs and systems – as was
demonstrated in the cases of Fiji and Nepal whereas in the Philippines, this knowledge
and community insertion was achieved by being part of the community and gaining
the locals’ trust. What the case studies in the Philippines (5 and 6) were also able to
demonstrate is the successful use of PM styles which were quite different from
traditional project management, especially in the areas of leadership/management,
decision making and best practice.
What is important to note to complete the summary of the live case studies is that
delays to the projects in the Philippines, Fiji and Nepal were attributed to challenges in
the areas of consultation, communication and risk management.
6.9 Synthesis of desktop and live case studies
Table 32 below provides a synthesis of all the case study findings. The four desktop
case studies 1 to 4 were selected on the basis of the organisations delivering the
projects, which have experience in managing post-disaster relief and recovery projects
domestically or internationally. Due to availability of documentation/information and
time constraints it was not possible to utilise details such as the size of the
organisations, staff numbers or turnover as selection criteria. The live case studies 5 to
8 were not a question of selection at all but of being accepted by two NGOs, one of
which headquartered in the researcher’s country and another one operating within
their own country in the Philippines). The researcher owes gratitude to these two
organisations for their willingness to participate in the case studies.
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Synthesis of findings
* Figures represent the number of occurrences of specific issues (positive or negative) in each case study.
Table 32: Key project management features and challenges.
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The synthesis table was constructed using content analysis of the qualitative data
collected. The key PM challenges which were raised following the semi-structured
interviews were utilised as a basis to collect data from the case studies. The number of
occurrences these challenges were mentioned or noted in either a positive or negative
way as the principal cause for project success or delay/failure, respectively, was
counted. If this appears to be a rather simplistic attempt at quantifying the findings
and arranging them in numerical form, it is vital to note that the researcher has
provided this quantitative application as a guide only whereas the real strength of the
findings from the case studies is in the qualitative form because the phenomenon
under investigation is being viewed in its context (Trochim 2006).
The aim of the case studies was to contribute to the following objectives:
projects.
In responding to objectives (ii), (iii) and (iv), the case studies revealed some very
important and yet not surprising details, confirming and supporting what the past
research has thus far discovered in the last two decades. Examining the findings in
regards to objective (iii) in particular has revealed four key features to be in the
forefront, namely consultation and collaboration, lessons learned and knowledge
management, personnel management, and communication as the PM features and
challenges mentioned or documented most often. The participation of clients or target
beneficiaries is critical for ensuring successful outcomes. It is imperative to have:
effective consultation of the project planners with, and among, the key project
stakeholders, namely donors, local authorities, implementing agency, target
beneficiaries in order to formulate an acceptable project strategy and action plan
(Moe & Pathranarakul 2006, p. 410).
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However, consultation is a feature which not only project managers but also business
and disaster professionals admit is done poorly (Koria 2009). In fact, the UK Higher
Education Disaster Relief Report emphasised the dearth of mechanisms at national
level in the UK to link expert skills and knowledge within higher education and with
that of practitioners in humanitarian agencies (University of Gloucestershire 2007).
Knowledge management through lessons learned plays a crucial role in ensuring
accessibility and availability of disaster-related information (Seneviratne,
Baldry & Pathirage 2010). The area of personnel management also includes issues such
as resource management, staff retention, skills and training as well as flexibility of
roles and responsibilities.
Cost management also appeared to be a high-ranking priority, with issues surfacing in
areas such as funding being available for a limited time after a disaster or practices in
terms of scope (the what) and planning (the how) being too stringent – post-disaster
planning needs to be flexible as availability of resources, skills, cascading events and
cost surges can have great impact on how the available funds are spent, how quickly
they are spent and how much the project delivery will actually cost. Issues in other
areas like currency fluctuations, political sanctions, funding cuts and the lack of clear
disbursement, procurement and financial processes are also recurring themes. ‘Rigid
policies in handling money hinder rapid decision making in the aftermath of disasters.
Therefore, respondents highlighted the need for more flexible systems which allow
fluid decision making’ (Moe & Pathranarakul 2006, p. 414). These opinions reflect the
researcher’s own findings from both interviews and case studies and also identify the
interdependencies within individual PM areas and how a dearth in one area has
consequences on other areas.
The mention of management/leadership and decision making includes allowing teams
to make decisions based on the situation on the ground where they are perhaps
without much or any telecommunications support. This includes an element of trust
and encouraging leadership skills which have been developed throughout
employment.
In the area of project sustainability, the idea of “building back better” and sustainable
disaster relief (Mathbor 2007; Kennedy et al. 2008; Khasalamwa 2009) is still a goal to
be fully considered and achieved. As the case studies revealed, disaster managers,
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project teams and all involved in relief and recovery activities are currently still
struggling to make projects work, and sustainability seems to be an added benefit
rather than a primary aim.
In the case studies, best practice was applied in areas such as construction, finance,
PM documentation and processes, but stronger emphasis was placed on getting on
with project implementation where other features were in the forefront of the teams’
requirements.
As noted above, planning and coordination are vital in the aftermath of disasters;
however, there is often a lack of flexibility and adaptability built into the planning,
which makes moving forward in the face of changing needs a process that involves too
much time and too many resources, and the consequences of such bureaucracy mean
delays and additional costs.
The four features ranking lowest on the list, while mentioned and/or documented with
less frequency, are by no means unimportant. Risk management, in particular, within
DM is constantly evolving within a volatile environment. Therefore, if consultation is
performed appropriately, risks emerge at an ongoing basis. In most of the case studies
though not in all projects, risk management was performed adequately. Stakeholder
management, another important feature, occurs in the form of consultation,
communication, collaboration and cooperation, which are all mentioned separately. If
these practices are performed appropriately, project stakeholders are being managed
well. If these practices are performed inappropriately or not at all, stakeholder
management is insufficient. When considering stakeholders, the following processes
are critical:
identifying and engaging key stakeholders; defining their interests and objectives for
the resource; managing conflicts; engaging them in a process of information
dissemination and dialog to explore their preferences for managing the area; collecting
and analyzing economic, social, and ecological data to understand the impacts of
different future scenarios on important criteria; analyzing data; resolving existing
conflicts; and finding areas of agreement among the stakeholders (Tompkins & Adger
2004, p. 7).
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What the synthesis of case studies and the semi-structured interviews agree on is the
placement of governance and other processes. What became apparent is the need to
have a degree of governance from a reporting point of view and in the set-up of
project or programme offices, accompanied by a decrease in documentation on the
other hand.
What the synthesis also demonstrates is a response to objective (iv) whether national
and international organisations face similar issues and challenges and how an
adaptable methodology would impact post-disaster projects. All case studies utilised
appropriate traditional PM based on the way their reporting was done and adhered to
best practice varying from a greater to a lesser degree. What the findings from case
studies 5 and 6 indicate is that BMFI, ostensibly utilising a more traditional PM
methodology, in fact utilised the features, best practice and flexibility built in to agile
PM without being aware of it or without necessarily applying the methodology to its
utmost potential. The primary attributes applied by BMFI were consultation with
stakeholders at all levels, building relationships with stakeholders, governments,
private and public organisations, collaborating and cooperating with agencies, building
partnerships and creating networks. Secondly, the project teams were empowered to
act and take responsibility for their actions and be guided by the projects. Thirdly, the
needs of the beneficiaries were the primary concern, and by listening actively to their
needs, BMFI was able to deliver projects that were more successful and fit-for-
purpose. Case studies 7 and 8 likewise indicate that DAA utilised several elements and
attributes of Agile – meaning a great deal of consultation, communication and lessons
learned in addition to adapting projects in several areas to achieve their goals. The
same types of outcomes could also be seen in the desktop case studies 3 and 4, though
to a lesser extent. What aided these projects in achieving their goals was the strength
of focus in the areas of consultation, communication, coordination and collaboration
and in the application of lessons learned to achieve the goal of making the projects fit-
for-purpose.
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CHAPTER 7 Questionnaire Survey
7.1 Introduction
A questionnaire survey was utilised to test the outcome of the literature review, the
initial semi-structured interviews and the case studies. The survey was placed on the
SurveyMonkey website (https://www.surveymonkey.com/r/DBEEK) and directed to a
cohort of 150 project managers and emergency managers. The outcome of the survey
assists in confirming or refuting the outputs already obtained and also in developing
the framework which is being put forward in this research in response to objective (v).
The questionnaire was designed utilising outputs from the research and data
collection. SPSS Statistics and Excel were utilised to analyse and interrogate the data
and the findings as elaborated on in Chapter 7.3.
7.2 Justification
A mixed-method approach was applied for the data collection because the variation in
the data collected leads to greater validity, questions are answered from a number of
perspectives, the number of deficiencies in the research is narrowed and any pre-
existing assumptions from the researcher are diminished. Mixed data collection
methods integrate qualitative and quantitative approaches in order to generate new
knowledge and both methods can be used either concurrently or sequentially to
collect data. ‘Combining methods activates their complementary strengths and helps
to overcome their discrete weaknesses’ (Stange, Crabtree & Miller 2006, p. 292). The
aim of the survey is to provide statistical generalisation and it acts as a form of
validation of the findings. A questionnaire survey is conducted to provide credibility,
robustness, quality and trustworthiness to the data collected and the research output.
A survey for validation of sources is also utilised in this research because it provides
the opportunity to record data from various settings and compares different
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viewpoints based on background. The goal of surveys as validation is not to obtain
unanimity but rather to have various methods of seeing the data collected.
The survey was distributed to 150 participants via the online tool SurveyMonkey,
comprising of the members of the Australian Institute of Project Management (AIPM)
and of the DM communities who have knowledge and/or experience to a lesser or
greater degree in one or both fields (project management or disaster management).
The outputs provide the information necessary to design and put forward an agile
framework as a utilisation tool to manage post-disaster projects.
7.3 Analysis and findings
7.3.1 Study sample
Characteristics Number of % Cumulative

respondents1
Organisation (sector)
Government 17 35.4 35.4
Emergency services and non-profit 16 33.3 68.7
Private sector 15 31.3 100.0
Role2
Project manager / team member 22 45.8 45.8
Emergency manager or response worker 26 54.2 100.0
Experience
<5 years 27 56.3 56.3
6-10 years 12 25.0 81.3
11-15 years 4 8.3 89.6
16-20 years 3 6.3 95.8
>20 years 2 4.2 100.0
Notes: 1Total number of respondents based on 48 completed responses to the questionnaire

survey; 2Where respondents selected from either project management or emergency (disaster)
management background.
Table 33: Profile of study sample.
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Of the 150 participants selected, only 48 responded to the survey. During the period of
the data collection the researcher received recurring queries by participants indicating
their reluctance to complete the survey due to their lack of experience in managing
projects following disasters. Nevertheless, the final sample was sufficient for the
purpose of the data collection. The sample collected provides three sets of information
important to the survey (see Table 33): the participants’ organisations, their role
within the organisation and the years of experience in their profession. Participants
from government organisations feature as the highest number to have participated
with 35.4% of respondents, closely followed by members from the emergency services
at 33.3% and followed by participants from non-profit organisations at 31.3%. When
considering the percentage response of the three groups, the share is quite balanced
and it can be concluded that the opinions obtained are a dynamic though small
representation of opinions in the current market. Concerning the roles of the
participants, the response rate confirms that more emergency managers or response
workers were confident to participate in the survey than project managers with DM or
PM experience in the disaster management realm.
What is interesting to notice in Table 33 also is that the majority of respondents had
less than 5 years’ experience. This confirms some of the issues stated during the semi-
structured interviews that staff turnover within government and also in other
organisations is high. According to the Australian Human Resources Institute (AHRI
2015), turnover rates over 12 months in 2008 were at 18.5%, in 2012 at 13% and in
2015 at 16%, with reasons ranging from new career opportunities to lack of career
progression or better pay provided. 2008 was probably especially significant in
Australia as it was the period of the global financial crisis (GFC). However, the reasons
for high staff turnover also correspond to current employment trends where more and
more often positions are no longer being offered with tenure but only on short-term
contracts. However, on the other side of the scale at least five participants have
around 20 years’ experience in their professions.
Figure 46 shows that a staggering 35.4% of respondents are employed in fields other
than project management while 29.2% are project managers and 16.7% are involved
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within a project team – with only 8.3% of respondents working as emergency
managers. What this data tells us primarily is that, while more and more non-profit
organisations are delivering post-disaster projects, there are not sufficient PM
professionals with knowledge of post-disaster projects who could have provided their
inputs, which confirms the research by Koria (2009) in his case study of recovery
programmes and projects of an international non-government organisation (INGO)
that post-disaster projects are failing due to the lack of PM skills applied within them.
Figure 46: Respondents’ professional profiles.
7.3.2 Challenges in working within interdisciplinary teams
Respondents were asked about challenges when working within interdisciplinary and
collaborative teams from government, non-profit and private organisations in DM
situations. The challenges previously put forward in the semi-structured interviews
were in the areas of communication and consultation (90%), collaboration (70%),
infrastructure (40%) and financial bureaucracy (40%), resources (30%), decision making
(20%), accurate information (20%), training and exercise (10%), governance and
corruption (10%), emergency management plans (10%), and political support (10%).
Figure 47 below illustrates that 64.58% of survey respondents “agreed” that these
challenges were realistic, while 14.58% of respondents “strongly agreed”. This also
points back to the literature review which confirms the same challenges (Noran
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2014) – although in some agencies such issues are being assisted and improved
through the AIIMS.
Figure 47: Opinions on challenges within interdisciplinary and collaborative teams.
Figure 48: Solutions to challenges.
When asked to consider how the challenges in working within interdisciplinary and
collaborative teams could be overcome and what was needed to improve the delivery
of post-disaster projects, respondents were presented with a table resulting from the
semi-structured interviews where the interviewees had indicated the following areas
of improvement to implement projects more successfully: communication and
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consultation (100%), collaboration (71%), training and exercise (57%), decision making
(43%), resources (43%), infrastructure (29%), emergency management plans (29%),
governance and support (14%), financial bureaucracy (0%), and political support (0%).
As per figure 48 above, 64.58% of respondents “agreed” with the presentation of the
areas of solutions while 16.66% “strongly agreed”.
7.3.3 Key features of an agile methodology for disaster management
The key features of an agile methodology obtained from the literature review were
included in the questionnaire survey to obtain the views of respondents on their
relevance to disaster management situations. Agile methodologies, especially for
volatile or uncertain environments, rely heavily on the ability of its practitioners to
make decisions about requirements within short timelines. Decision making is based
on knowledge, experience obtained from one’s own and others’ lessons learned and
the ability to ask the right questions and listen to the answers as well as having the
appropriate discussions and self-awareness (behaviour). This last feature, in other
words, is the application of emotional intelligence skills to decision making, being self-
aware and self-managed in order to make good decisions and having the social
awareness and relational skills to evaluate the decisions and the impacts these
decisions can have on one’s environment (Sweeny 2008; Hess & Bacigalupo 2011). As
the realm of DM is charged with much emotion and stress, it is vital that this area of an
agile methodology is clearly understood. Skills can be learned; however, certain
features of a methodology require the practitioner or user to have inherent abilities to
best perform for these features to be of benefit.
Figure 49 below provides an overview of the responses from the survey on six core
performance features of Agile in disaster management. 70.83% of respondents have
identified adaptability to be a “very important” feature of an agile methodology,
whereby 54.16% considered decision making to be very important and 50% considered
lessons learned to be very important. Considered as “important” by 33.33% of
respondents were the features of decision making, lessons learned and positive
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behaviour, while delivering feedback was considered “important” by 37.5% of
respondents.
Figure 49: Key features of Agile in disaster management.
No. Feature MS1 Rank based on mean2

(n=48)
F2 Adaptability 5 1
F1 Decision making 5 2
F3 Lessons Learned 5 3
F4 Asking questions / listening to answers 4 4
F6 Positive behaviour 4 5
F5 Delivering feedback 4 6
Notes: MS1 = Median score of the feature where 5 = very important; 4 = important; 3 = moderately
important; 2 = less important; and 1 = least important. 2The rank is based on the mean value of the
feature; the higher the mean, the more important the feature for an agile framework for disaster
management.
Table 34: Ranking of key features of Agile for disaster management.
To support Figure 49, Table 33 highlights what the respondents have clearly identified
as the three most important features of an agile methodology in relation to disaster
management based on their median scores and mean values. According to the survey
respondents’ opinion, adaptability (F2) has a median score of 5 and is ranked first
based on the mean value, thus supporting the percentage shown in Figure 49. Decision
making (F1) is also given a median score of 5 but ranks second based on the mean
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value. And lessons learned (F3), ranked third, also have a median score of 5, thus
confirming what are considered the most important three features for disaster
management in an adaptable method.
Agility is a necessity because in the realm of DM the element of time is vital –

especially when managing relief and, to a lesser extent, recovery projects. Therefore,
having an adaptable method which does not entail a large degree of process and
procedure is highly practical. In addition, as has been supported in the preliminary
interviews and case studies, having the appropriate decision-making authority and the
ability to apply lessons from previous experiences is the basis for managing successful
projects.
7.3.4 Perceived benefits of an agile methodology for disaster management
The respondents were asked to score the common benefits of using an agile
methodology in relation to DM situations. The survey questions were based on the
recurring issues and challenges which have come to the fore, supported during the
various stages of data collection and findings. As shown in Table 35 below, the
respondents have identified B1, Provides opportunity to adapt to changing needs,
requirements or environment, with a median score of 3 as the most significant benefit
based on the mean value, while B9, Minimal documentation, B10, Not Command &
Control, and B8, Scope is lightly defined, were perceived as much less significant for
disaster situations and ranked 8, 9 and 10, respectively, with a median score of 0. The
other benefits in Table 35 were considered relevant but were perceived as less
significant than B1.
What the results of this question confirm is that the more volatile a situation, the more
an adaptable approach is required (see Chapter 2.10 and Figure 10). In particular,
having a project plan which can be adapted with accountability but minimal
documentation was seen as an issue in the live case studies. There is overwhelming
support for an adaptable approach to management (see Chapter 2.5), in addition to
business practices such as surprise management (Farazmand 2007) or extreme
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management (Brandon 2011). Harrald (2006) stresses that modern disaster
management has to be aware of the emergency situation and be capable of adjusting
to a volatile environment where it is important to have the capacity to improvise,
adapt and be creative in order to assist an affected community to transition from
chaos to a smooth recovery. Therefore, a flexible and adaptable methodology which
“Provides opportunity to adapt to changing needs, requirements or environment” is
the main achievement and goal of an agile framework for post-disaster projects – and
this has received overwhelming support throughout this study as it reflects the
challenges of post-disaster complexities and the volatility of the needs.
No. Benefit MS1 Rank based on

(n=48) mean2
B1 Provides opportunity to adapt to changing needs, 3 1
requirements or environment
B4 Consultation, collaboration with end users and 1 2

stakeholders is a focus
B6 Teams share responsibilities, roles and decision 1 3

making
B3 Project plan can be adapted, with accountability 1 4

but minimum documentation
B7 Emphasis on lessons learned, review and getting 1 5

deliverables to agreement
B5 Decision making not left to one person (e.g., 1 6

project manager, emergency manager)
B2 Light upfront planning 1 7
B9 Minimal documentation 0 8
B10 Not Command & Control 0 9
B8 Scope is lightly defined 0 10
Notes: 1Median score of the benefit where 3 = strongly agree; 1 = agree; 0 = Neutral; -1 = disagree; and
-3 = strongly disagree. Respondents were asked to rate their options based on a scale of 1 to 5.
Therefore, a rating of 1 corresponds to -3, 2 corresponds to -1, 3 corresponds to 0, 4 corresponds to 1,
and 5 corresponds to 3. 2The rank is based on the mean value of the element; the higher the mean, the
more important the element for disaster management.
Table 35: Ranking of perceived benefits of an agile framework for disaster management.
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7.3.5 Desirable elements of an agile framework for disaster management and
skills required for implementation
The particular aim of this question was to identify the elements required for an agile
framework. What is meant by elements is more in the way of fact finding in which
areas of best-practice PM methodology, process, procedure and practice a practitioner
would require flexibility. Therefore, a collection of issues, challenges and highlights
which have been reported throughout the study from the semi-structured interviews
through to the desktop and live case studies were utilised to draw the list and test the
data obtained.
Based on the median score shown in Table 36, a clear discrimination of respondents’
views on the desirable elements of an agile framework can be observed. Element DE3,
Stakeholders clearly identified based on needs, obtained a median score of 3 and was
ranked first based on mean value; DE5, Consultation and communication is key to the
success of any project, also obtained a median score of 3 and was ranked second based
on mean value; DE4, Lessons learned should be included during project implementation
so as not to repeat errors, DE1, Clear funding support from onset, and DE2, Clear scope,
all obtained a median score of 3 as well but were ranked third, fourth and fifth,
respectively, the order of decreasing importance once again based on the mean value
given. These elements were clearly highlighted as strongly desirable as opposed to
DE16, Project manager only should have decision-making authority, which was clearly
seen as not so desirable. Other elements were considered desirable but not as strongly
as the first five as ranked above.
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No. Element MS1 Rank based on Mean2
(n=48)
DE3 Stakeholders clearly identified based on needs 3 1
DE5 Consultation and communication is key to the 3 2
success of any project
DE4 Lessons learned should be included during project 3 3
implementation so as not to repeat errors
DE1 Clear funding support from onset 3 4
DE2 Clear scope (what should be delivered) 3 5
DE6 Flexible planning (how it should be delivered) 1 6
DE9 Consultation should occur throughout all phases 1 7
of the project
DE10 Communication protocols established with all 1 8
concerned stakeholders
DE8 Consultation with aid organisations, government 1 9
departments and affected communities
DE13 Each deliverable must be accepted by beneficiary 1 10
and be fit-for-purpose
DE7 Flexible human resources / skills pool 1 11
DE14 All lessons used and applied should be in a 1 12
knowledge bank
DE15 Project management best practice and standards 1 13
should be observed
DE11 Establish collaborative links and/or partnerships 1 14
with local suppliers and organisations
DE12 Project team should have decision-making 1 15
powers
DE16 Project manager only should have decision- 0 16
making authority
Notes: 1Median score of the element where 3 = strongly desirable; 1 = desirable; 0 = Neutral; -1 =
undesirable; and -3 = strongly undesirable. Respondents were asked to rate their options based on a
scale of 1 to 5. Therefore, a rating of 1 corresponds to -3, 2 corresponds to -1, 3 corresponds to 0, 4
corresponds to 1, and 5 corresponds to 3. 2The rank is based on the mean value of the element; the
higher the mean, the more important the element for disaster management.
Table 36: Ranking of the desirable elements of an agile framework for disaster
management.
The foundation of post-disaster aid projects and programmes is to deliver assistance to

those who are in need. In the simplest and most fundamental forms those in need are
the primary stakeholders (DE3), and if they are not clearly identified, how can they
receive the assistance which is needed? However, while those in need are the most
affected in regards to food, shelter and water in the long and short term, there are
other needs, requirements and protocols which play a large role in the delivery of aid
projects after a disaster. While there may be some sense of obviousness as to who the
primary stakeholders are, there are also other, less obvious stakeholders such as
216
religious leaders, a village chief, local council, the state government, the education
department, customs, hospitals, the military, transport authorities etc. In addition,
stakeholders are those who have arrived from overseas to deliver the aid projects,
those who fund the projects and those who will implement them. The list is long, and if
stakeholders are not identified appropriately, they will become liabilities and can bring
a project to a grinding halt. While the survey does set the scene on priorities given to
elements with the highest median scores and mean values, it is important to note here
that stakeholder needs, consultation and communication go together.
As has been seen in Chapters 4.4, 5.7 and 6.7, Lessons learned should be included
during project implementation so as not to repeat errors (DE4) is purely PM best
practice which can save time, cost and effort and improve quality. Concerning post-
disaster projects, the use of lessons learned brings about resilience and sustainable
delivery practices. From the reported case studies, study 1 on Haiti demonstrates a
total disregard for best practices whereas case study 7 in Fiji demonstrates the success
best practices regarding lessons learned can have for post-disaster projects.
The need for Clear funding support from onset (DE1) for post-disaster projects is crucial
because projects cannot be initiated without funding. However, contrary to traditional
projects the biggest issue with post-disaster project funding is ensuring that the funds
remain available for the duration of the project and the time limit set by the sponsors
has some flexibility for extension. Donors are relatively inflexible when it comes to the
duration of funding; it is the donors who have initiated the projects and decided on the
scope and the delivery time, with very little consultation with the project teams or the
affected communities. Therefore, while projects require funding and start without
funding issues, one of the big challenges is to ensure project delivery before funds are
withdrawn.
The element of Clear scope (DE2) is fundamental to funding agreement and forms the
basis of moving forward with a project. While the methodology is adaptable, there is a
clear need for accountability and transparency on what is to be delivered. As a post-
disaster business strategy, an organisation must know what its funds will be made
available for. However, where the scope becomes adaptable is in the “how” it will be
delivered, and this is the part of the scope which defines adaptability.
217
DE16, Project manager only should have decision-making authority, needs to be
mentioned as the lowest ranked element with a median score of 0. Based on the data
collected so far, this outcome is possibly due to the fact that this question deals with
how best to tailor such a methodology to those to whom the project is being delivered.
Therefore, it is about how best to serve the recipients and what is needed from the
recipients. It is also possible that, should the top five elements be in place and well
actioned, then the other elements would follow suit in becoming more successful. This
would still leave the project manager to be the ‘go-to’ person rather than the main
decision maker.
7.3.6 Core skills needed to implement an agile methodology in disaster

management
The core skills needed to implement an agile methodology are in relation to which
skills the project teams have to deliver their project. It is not sufficient to have a
methodology which is designed to promote adaptability when those who implement
the work do not have the necessary skills to utilise it.
Figure 50 provides an overview of the responses which are analysed further below in
Table 37. In Figure 50, core skills are rated according to their importance, where 5 is
“very important”, 4 is “important”, 3 is “moderately important”, 2 is “less important”
and 1 is “least important”. Communications was seen as the most important skill with
a response rate of 66.66% as “very important”, followed by collaboration and
cooperation rated by 58.33% of respondents as “very important” while consultation
throughout was rated by 50% as “very important”.
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Figure 50: Core skills needed to implement an agile methodology for
disaster management.
In Table 37 below, the six skills were ranked based on the mean value attached to
them by the respondents. S2, Communication – internal & external, obtained a median
score of 5 and was ranked first while both S3, Collaboration & Cooperation, and S1,
Consultation throughout, also obtained a median score of 5 but were ranked second
and third, respectively. These skills are generally considered more important than S5
(Project Management), S4 (Delegation) and S6 (Influencing), as visualised in Figure 50
above. What these responses imply is that a framework or methodology is only as
good as those who deliver and implement it.
No. Skill MS1 Rank based on

(n=48) mean2
S2 Communication – internal & external 5 1
S3 Collaboration & Cooperation 5 2
S1 Consultation throughout 5 3
S5 Project Management 4 4
S4 Delegation 4 5
S6 Influencing 4 6
Notes: 1Median score of the skill where 5 = very important; 4 = important; 3 = moderately important;
2 = less important; and 1 = least important. 2The rank is based on the mean value of the skill; the higher
the mean, the more important the skill for an agile framework for disaster management.
Table 37: Ranking of core skills needed to implement an agile methodology for disaster
management.
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Team members must have the necessary skills, similarly to any technical skills required
for a position. According to a study by Hyväri (2006), a project manager must be a
communicator, a motivator and be decisive. These skills (i.e., communications,
collaboration and consultation) go hand in hand and are gained through experience
and with willingness to be successful in delivering projects successfully in any business
environment. The three lower ranked skills can be considered less important if the top
three skills are present because PM skills can be learned, not all team members must
know how to delegate but they must be able to communicate, and influencing will be
accomplished when the right amount of consultation and communication is present.
Therefore, these skills also have a cascading effect on one another.
7.3.7 Perceived barriers to implementing an agile framework for disaster

management
The respondents were also asked to evaluate five potential barriers to implementing
an agile framework for disaster management, as obtained through the literature
review. These barriers were also prompted and supported during the semi-structured
interviews where the responses pointed to struggles in the utilisation of a traditional
PM methodology.
Figure 51: Perceived barriers to implementing an agile framework for disaster

management.
220
Figure 51 is based on the answers from the respondents on a scale of 1 to 5 where 5 is
“strongly agree”, 4 is “agree”, 3 is “neutral”, 2 is “disagree” and 1 is “strongly
disagree”. Observing the outputs strongly agreed with, 50% of respondents thought
that their organisations were not sufficiently mature or ready to adopt an adaptive
methodology while 33.33% considered their organisations to be too focused on
“Command & Control” to include the flexibility an adaptable method would provide.
Other responses included 12.5% of respondents strongly agreeing that there is
insufficient time to adopt a new methodology and that post-disaster situations are too
chaotic respondents. Staff turnover received the lowest response rate with just 10.41%
of respondents strongly agreeing that this option is a barrier.
Viewed in another measurement, the results as shown in Table 38 indicate that except
for B1, Organisation is not sufficiently mature or ready, which obtained a median score
of 3 and was ranked highest based on the mean value given, the other barriers are not
considered to be major obstacles to the adoption of an agile methodology. Thus, the
respondents have identified BR1 as the most significant barrier while BR2 is seen as
another potential barrier. The remaining three options are not seriously considered as
barriers for disaster management. One could say that any type of PM approach which
can be adopted would benefit an organisation to better manage their projects.
No. Barrier MS1 Rank based on mean2
(n=48)
BR1 Organisation is not sufficiently mature or ready 3 1
BR2 Organisation is Command & Control 1 2
BR3 High staff turnover makes it a challenge to 0 3

apply any traditional or adaptive methodology
BR4 Not enough time to adopt a new methodology 0 4
BR5 The situation post-disaster is too chaotic to 0 5

apply any kind of methodology
Notes: 1Median score of the barrier where 3 = strongly agree; 1 = agree; 0 = Neutral; -1 = disagree; and -
3 = strongly disagree. Respondents were asked to rate their options based on a scale of 1 to 5.
Therefore, a rating of 1 corresponds to -3, 2 corresponds to -1, 3 corresponds to 0, 4 corresponds to 1,
and 5 corresponds to 3. 2The rank is based on the mean value of the barrier; the higher the mean, the
more important the element for disaster management.
Table 38: Ranking of perceived barriers to implementing an agile framework for disaster
management.
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The feedback received is quite consistent with the current literature (Boehm & Turner
2005; Cao et al. 2009; King 2013) where the challenges of adopting Agile for many
organisations have been clearly outlined. However, while there is a lot of literature to
compare and contrast the benefits and disadvantages of adopting Agile, there is a
drought of research and literature to put forward any kind of argument for or against
adopting agile methodologies in non-IT organisations. The research by Cao et al. (2009,
p. 333), based on a series of case studies in three organisations adapting Agile, noted
the four main challenges which were pertinent to the success or failure of the
adoption. Of these challenges, the two most pertinent to this investigation are
attributed to ‘organisation/management-related’ and ‘customer-related’ challenges.
From an organisational and management-related viewpoint, the authors note that the
strength of agile methods is decentralised decision making where teams are informed
of the project’s progress and processes and are empowered to make their own
decisions. However, according to Boehm and Turner (2005), many, if not most
organisations do have a centralised or hierarchical decision-making structure (i.e.,
Command & Control), and, therefore, the idea of decentralised decision making would
not only challenge organisational culture but is likely to create conflict between top
management and project team members. In addition, especially if we consider the DM
sector where every decision which is made can be heavily scrutinised, especially by the
media, there is a fear of recrimination (Drury, Conboy & Power, 2012).
7.3.8 Likelihood of adopting an agile project management methodology

Figure 52 focuses on the likelihood of adopting an agile methodology according to
survey respondents, and the result is quite encouraging, predominantly because there
is a modest number of organisations which have already adopted an adaptable
methodology. In addition, 40.4% of organisations are likely to adopt an adaptable
methodology versus 46.8% of organisations which are unlikely or highly unlikely to
make the change.
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Figure 52: Likelihood of adopting Agile within respondents’ organisations.
7.4 Chapter summary
This chapter collected, analysed and put forward the findings of a questionnaire survey
which acts as a method of validation of the earlier findings. Validation is necessary to
confirm the outputs of the literature review, the semi-structured interviews and the
case studies using a broader perspective covering a sample of practicing PM/DM
professionals. Based on the findings of the survey, the researcher can confidently
respond to the objectives of the research and proceed with the design of an agile
framework for managing post-disaster projects. The survey has been able to reconfirm
the core skills and key features required to manage post-disaster projects, to clarify
some of the challenges for managers in the project and disaster management
profession, to identify barriers to adopting an adaptable framework and also to seek
opinions as to the likelihood of adopting such a framework within organisations which
manage post-disaster projects.
The next chapter will provide a discussion on the findings and a triangulation of the
data collected in this study and move forward with the design and proposal of an agile
framework. In so doing, the next chapter will respond to the fifth objective of the
study.
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CHAPTER 8 Discussion on Findings
8.1 Introduction
This chapter provides a discussion on the study findings in addition to a survey-specific

discussion which was performed as a method of triangulation for this study and
especially as it contributes to the design of an agile PM framework for post-disaster
projects. The chapter will review the outputs obtained by the literature review, the
preliminary interviews, the desktop and live case studies and will also draw conclusions
from the outputs of the survey. Based on these findings and the corresponding
discussion, an agile framework for post-disaster projects is developed and proposed.
8.2 Overview of discussion
The study thus far has revealed the need to approach and manage post-disaster
projects differently to traditional projects. The importance attached to the factors
which render project implementation successful was clearly demonstrated in the
preliminary semi-structured interviews and several desktop and live case studies. The
fact that disasters affect people’s lives, livelihood and culture and the impact they have
on the local, national and consequently on the international economy means that
projects cannot be managed by looking solely at the pillars of cost, quality and time as
one would with traditional projects. The need for certain other attributes is clearly
shown in the interviews and case studies. The live case studies conducted in the
Philippines demonstrated that the concept and key attributes or principles of an agile
PM methodology have been utilised to a great extent by the NGO Balay Mindanaw,
without the added processes and without necessarily calling it an agile methodology
by name. In fact, one could conclude that Balay Mindanaw has been using an adapted
version of agile and traditional PM to suit the needs of the situation.
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Up until the Indian Ocean tsunami of 2004, the only other types of methodologies and
frameworks which dealt in any way with projects in the developing world were for
international development (ID) projects, which are managed principally by non-
government or not-for-profit organisations to deliver projects to beneficiary countries
and under funding. As noted in Chapter 2.9, the similarities shared by ID and post-
disaster projects are that they have very different success factors than traditional
projects. ID project proponents and research identified factors such as team building
assisted by leadership or interpersonal characteristics, competencies developed to
deal with the internationalism of projects in the context of the local environment, an
implementation approach which includes “what-if” scenario modelling and which
considers alternative methods, learning opportunities focused on knowledge transfer,
the availability of resources with information about the special conditions under which
ID projects operate, and last but not least the satisfaction of
stakeholders/beneficiaries, which deals with the definition and identification of groups
and stakeholder analysis. However, while these similarities provide some support for
the key areas of focus for post-disaster projects, they do not have sufficient focus as ID
projects lack the sense of urgency which is prevalent in post-disaster projects.
After the Indian Ocean tsunami, the Project Management Institute (PMI) developed a
methodology for post-disaster reconstruction (PMIEF 2015). This methodology uses
PM best practice and its related processes to manage reconstruction projects following
a disaster. The aim is to keep disaster and project professionals within agencies
focused on their deliverables by providing an effective methodology to deliver projects
effectively and successfully. Although this methodology is a great step forward in the
thinking relating to managing post-disaster projects, the methodology still applies the
linear, sequentially based waterfall model which is not sufficiently adaptable and
flexible in such times, and its wider applicability to chaotic environments encountered
in disaster-related contexts has been criticised (Steinfort & Walker 2008). The
methodology is geared towards tangible projects; it is based on the First World way of
delivering projects and not adaptable to the social, cultural and ethnic sensitivities of
the countries they serve, and accountability for successful delivery cannot rest on the
time-cost-quality triangle.
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Attribute Relevance to DM projects
Consultation Community-based, with ongoing consultations occurring in
all the following PM knowledge areas: scope,
procurement, communications, stakeholder, time and risk
management
Communication Stakeholder participation and involvement in decision
making, at pre-implementation assembly and other
meetings; overseeing of sharing of information with
affected communities
Cooperation & Collaboration Involvement of local community committees, community
PM committees, planning, social welfare, municipal
agriculturist, mayor, engineers, public health etc. is a
necessity in order to ensure champions for projects
Delegation of decision making to a Shared, collaborative or individual decision making is
broader group encouraged of all team members; rationale for decision
making is necessary, project manager or committee must
be kept informed
Leadership Development of second-in-charge is ongoing in most areas
by current directors, ensuring sustainable succession
planning
Roles & Responsibilities / Team Dedicated programme management; project teams are
Structure collocated, roles and responsibilities are changed based on
demands of project and resource needs
Flexibility & Adaptability Change of best practice to suit needs; adapt to (human
and material) resource needs and requirements
Training & Exercise Performed in quarterly lessons learned assessments and
planning sessions where accomplishments, limitations and
facilitators/enablers are discussed; mid-project
assessment and stakeholder workshops
Table 39: List of critical attributes for DM projects.
The critical attributes listed in Table 39 which were unearthed firstly as challenges in
the semi-structured interviews and later in the case studies suggest the need for
project managers of post-disaster projects to have greater maturity and flexibility to
perhaps shift between methodologies. In addition, the questionnaire survey confirms a
strong emphasis on decision making, communication and consultation as required
skills and attributes. In order to remain relevant in the volatile situation after a
disaster, there is a need to be adaptable to facilitate the delivery of a range of projects
and utilise different methodologies. What the factors point to is that post-disaster
projects need to identify clearly “what” and “for whom” without spending time
identifying every segment of “how” the project delivery should occur. The factors
further point to the need for focused consultation with recipients, the need for
communication – the edict of project management independent of methodology – and
decision making as an area of responsibility for more than just one individual.
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Communication is meant as an important attribute that should be supported,
employed and actively practiced by the entire project team.
Following disasters the greatest factor is time. There is insufficient processing time to
distinguish reliable from unreliable information and make decisions based on such
intelligence. In such volatile situations, having a process which is open and fluent in a
collaborative manner will produce positive results.
This research has clearly demonstrated the similarities and differences between
project management (PM) and disaster management (DM). The general PM skills and
competencies required to manage complex projects are nevertheless the same skills
required for managing post-disaster projects. However, those unique complexities
attached to disaster management are what make this field quite unique. By utilising
and improving the critical attributes which have emerged from this research, such
projects could be delivered more successfully. One gap that is certainly coming
through is in the cross-learning opportunities which could provide not only DM
agencies but also project managers with significant insights into how best to
implement such post-disaster projects (Maon, Lindgreen & Vanhamme 2009).
The implications of this thesis are manyfold. It could provide policy guidelines for
governments, an opportunity to review project implementation methodologies for
disaster response organisations and NGOs for more effective project delivery. Focusing
on the latter, the suggestion put forward in this paper is to apply an agile methodology
to post-disaster projects.
8.3 Developing an agile framework for post-disaster projects based on

triangulation
8.3.1 Method of analysis
A questionnaire survey was conducted as a form of triangulation in order to integrate

the findings of both the qualitative and the quantitative methods conducted
throughout this study. The aim of this triangulation method was to not only act as
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support for the theoretical and empirical findings but also to test the outputs obtained.
The anonymous survey was placed on the SurveyMonkey web platform, which enabled
participants to respond in full privacy. The survey was distributed to 150 professionals
in the fields of PM and DM. Several participants employed in the area of project
management contacted the researcher with apologies that they could not undertake
the survey as they did not have sufficient knowledge of disaster management.
Nevertheless, 48 respondents completed the survey, with which it was possible to
obtain adequate data to perform the triangulation. The survey was then analysed
using SPSS Statistics. The findings are presented in Chapter 7 and discussed further
below in Chapter 8.3.2.
8.3.2 Findings
The results of the survey and the principal data collection method of case studies
provide strong support for improvements in the way post-disaster projects are
managed. Firstly, the survey confirms the challenges faced in the context of PM when
managing projects following a natural disaster and the gaps obtained from the
literature review on the corresponding needs and areas of improvement. Secondly, the
survey supports the case studies which have provided in-depth details on PM best
practices, also highlighting a series of skills and attributes which are beneficial to
improve PM methods within the field of disaster management. Thirdly, what the
survey results further confirm is that there is a need for another PM approach when
implementing post-disaster projects. Such projects are managed with a large range of
stakeholders and beneficiaries to satisfy, with stakeholders ranging from local, national
or state government departments to other non-government organisations and many
more, including perhaps the military. Working within interdisciplinary teams comes
with several challenges, and when asked about those challenges the respondents
agreed that poor communications, consultation and collaboration rank very high on
the list. Consultation and collaboration with end users and stakeholders is a focus
which is strongly advocated by McEntire (2002), Barakat (2003), Jain (2008), Russell,
Potangaroa & Feng (2008) and Ahmed (2011). Further challenges include the standard
of infrastructure, financial bureaucracy, resources, decision making, the lack of
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availability of accurate information, training and exercise as well as the lack of political
support. Solutions to solve these challenges including making large improvements in
the same areas, with the slight exception of financial bureaucracy and political
support, which were not considered sufficiently important to warrant improvement.
This can be explained by the usual outpouring of funds in an affected country and
politicians rallying to their best abilities to ensure these funds enter the country after a
disaster has struck. Political support is at its peak following a disaster because
politicians reap the most benefits from the ensuing media attention and also because
there is a window of opportunity for beneficiaries to obtain political will and benefits
in the aftermath of a disaster (Healy & Malhotra 2009). Whether the beneficiaries
actually receive all the funds allocated for that particular disaster is another discussion
and not within the remit of this dissertation.
The survey also confirmed outputs from the semi-structured interviews and case
studies 1 to 4, 7 and 8 regarding the need for improved communication. Case studies 5
and 6 also required improved communications; however, the challenges seemed to be
more internal. The desktop case studies confirmed a need for improved collaboration
and consultation and demonstrated some areas where these had been applied
correctly and successfully despite enormous challenges associated with them. While a
traditional methodology was employed to manage all the projects investigated in the
case studies within this dissertation, the organisations in case studies 5 and 7 were
also pro consultation and collaboration, noting that as grassroots NGOs the only way
for them to succeed is by hearing, talking and working with their communities. Group
decision making, flexibility of resources, more training and exercise were also
employed, and lessons learned were applied in many of their cases. As one of the
interviewees mentioned, ‘Our staff are survivors themselves – they apply lessons
learned’ (Interviewee 6). Though the NGO in case studies 5 and 6 was once required to
go to market to obtain some specialist resources which were not contained in-house,
management encouraged decision making in the teams, utilised mentoring as a form
of succession planning and preferred to hire from the existing volunteer base rather
than advertise for roles. Desktop case study 1, on the other hand, demonstrated lack
of success when best practices were not applied, leadership had failed, the cultural
values of the beneficiary country were not honoured, lessons learned were dismissed
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as not applicable, and communication, consultation and collaboration had failed at
most levels. Contrasting case study 1, the survey provides a best-practice guideline.
The overall data collected throughout the case study is strongly supported by the
survey. The following chapters consider the findings of the survey and triangulate
them with the outputs of the semi-structured interviews and the case studies.
8.3.3 Benefits of an agile methodology for post-disaster projects
Our contemporary society exists in an era of uncertainty. A natural disaster not only
turns this uncertainty into a complex reality but creates additional uncertainties in
cascading events which affect a panoply of areas, functions and systems. Managing
relief and recovery projects is not only about obtaining approved funding and
understanding the scope. All this uncertainty poses a tremendous challenge on
resources, the affected community, the economy, the socio-economic structure and
the entire affected area, becoming a major political forum for politicians and aid
organisations. Increasingly, project managers and emergency managers find that there
is a need to foster a rapid adaptation strategy. Instead of being really good at doing
one particular thing, project and disaster professionals must become really good at
learning and doing new things and adapt quickly. Therefore, when the survey
respondents were asked the question about what they consider to be the perceived
benefits of an agile framework, the response that an agile framework “provides
opportunity to adapt to changing needs, requirements or environment” was most
strongly agreed with is not a surprise. It must be noted that there were fewer
respondents from the project management sector than from the disaster management
sector, which leads to the assumption that less than half of all respondents would have
had a clear idea of the agile methodology and its benefits as practiced by project
professionals in the IT field. Nevertheless, the outputs were clear. The gaps are also
clearly identified in the literature, for example by Merminod, Nollet and Pache (2014),
who advise that tremendous agility is required when a catastrophe strikes, while
Howsawi et al. (2014) strongly suggest that PM professionals and academics develop
new theories, assumptions, tools and techniques to better manage post-disaster
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projects. The case studies, in particular case studies 2-8, have also demonstrated the
positive outcomes of adaptability.
8.3.4 Features and elements of an agile methodology for post-disaster

projects
Based on Figure 49 and Table 34 (see Chapter 7.3.3), the most attractive feature of an
agile framework is the adaptability it offers, with a comprehensive 70.83% of
respondents confirming that this feature is “very important”. Working backwards to
the outputs of the data collection from the live case studies, where adaptability was
not a featured question when collecting data, the need for adaptability and the
adaptive capacity which was employed during project implementation is what gave the
chosen projects their success with stakeholders and beneficiaries. This adaptive
capacity included having a staff pool which could be rotated through projects and
locations, a flexible schedule, adapting best practice and adapting consultation
methods. Similarly, the desktop case studies highlighted adaptive capacity in
procurement processes, in the project management approach, in utilising local
capacities as assets and not treating beneficiaries and stakeholders simply as victims.
The semi-structured interviews also noted that more adaptive capacities are required,
that flexibility in planning is needed, and that emergency management plans need to
be more flexible and exercised regularly so as to improve and avoid documents
becoming static: ‘Adaptability is key to our projects but within the frame of
accountability’ (Interviewee 10).
Throughout the review of available literature there is confirmation from various

researchers that post-disaster projects are managed when a society is at its most
vulnerable, when the environment is volatile and the socio-economic and political
dynamics make the situation highly complex and even more fragile (Burnett 1998; Boin
et al. 2005; Harrald 2006; Waugh Jr & Streib 2006).
In addition to adaptability, the desired features which have received high responses in
the survey as “very important” concerned decision making and lessons learned.
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Throughout this paper and throughout the data collection the themes of lessons
learned, adaptability, decision making, consultation and communication have been
discussed – for the questionnaire survey, communication was amended to “asking
questions / listening to answers”, cooperation to “positive behaviour”, and
consultation to “delivering feedback”. The aim was to approach the question using a
mix of formal and informal terminology and verify whether the responses reaped
similar results to previous analysis in this study. As the research developed from the
literature review to the preliminary interviews and case studies it became clear that
certain areas of investigation were recurring and would be targeted and that the same
skills and attributes continued throughout. In the end, the findings from Chapters 4.4,
5.7 and 6.7 provided input and contributed to this triangulation exercise with the
survey results and will assist in the design of an agile framework for post-disaster
projects. What must also be said, in particular when looking at the case study
highlights on Tables 29 and 31, is that, even when projects were managed using
traditional PM methods, the tendency of adopting some key attributes, features and
skills of Agile had already been present.
8.3.5 Barriers to an agile methodology for post-disaster projects
50% of the survey respondents “strongly agreed” that their organisations were not
sufficiently mature to adopt an agile methodology (see Chapter 7.3.7, Figure 51). On
the other hand, the respondents did not consider high staff turnover, insufficient time
to adopt a new methodology or even the chaotic post-disaster situation preventing the
application of any kind of methodology to be an issue. Considering the modest
response rate of 32%, it is surprising that so many survey respondents considered their
organisation from a maturity perspective. However, a look back to the semi-structured
interviews reveals quite consistent outputs, with 70% of the interviewees confirming
that their organisation was too attached to processes to prefer adaptability.
While the respondents’ percentage level is consistent with other research on the
adoption of agile methodologies, some elaboration is required on the reasons for this
rate. Adopting an agile methodology is quite a challenge for many organisations,
including IT firms delivering software, where Agile was technically “born”. According to
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Nerur, Mahapatra and Mangalaraj (2005), an organisation faces changes in its
structure, its culture and its management practices by adopting Agile. Based on the
answers to the preliminary interviews, it is clear that there is a need for more
adaptability. The positively rated case studies adapt their PM approaches to best suit
the situation and go according to lessons learned to apply what works. This is
supported by the opinions elicited through the survey even though the majority of
survey respondents belonged to government agencies and emergency services (i.e.,
also government employees). The culture within these organisations has a very long
history of command and control with a high dependency on procedures and processes.
Therefore, from this aspect the results could prove to be skewed towards the negative.
However, there are several respondents from other organisations (relief workers,
recovery workers, project team members, project managers, etc.) who do not share
this opinion. The literature review has revealed some very positive cases where
adaptiveness in a C&C organisation like the US Coast Guard has made a difference and
saved lives, leading the way towards a new culture ‘based on four principles:
adaptability, flexibility, clear objectives, and on-scene initiative’ (Rego & Garau 2007,
p. 32).
While a clear disparity exists between the survey results on the adoption of agile
methodologies and the outputs of the semi-structured interviews and case studies
where a more adaptable methodology is sought, Boehm (2002) suggests that moving
to Agile is not something which organisations can achieve overnight. It is a question of
easing into flexibility, balancing a plan-driven method with Agile to suit the
organisational needs.
8.3.6 Agile project management
Agile project management promotes the ‘relevance, quality, flexibility and business
value of software solutions’ (Cooke 2012, p. 29). The common principles shared with
adaptable methodologies are that they favour incremental planning instead of upfront
planning, beginning with high quality and having a continuous quality audit process,
addressing technical risks as early as possible, encouraging ‘ongoing communication
between the business areas and project team members to increase the relevance,
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usability, quality and acceptance of delivered solutions’ (Cooke 2012, p. 30). The
survey results from Chapter 7.3.4 (Table 35) provide some alignment regarding the
perceived benefits of such a methodology. In addition, Tables 40 and 41 provide an
overview of the differences between traditional and agile methodologies.
Attributes Traditional PM methodology Agile methodology
Planning and Robust upfront planning, linear Light upfront planning,

implementation iterations and changes to
project plan
Scope/Requirements Clearly defined, inflexible Lightly defined, unclear and

incomplete, creative
Documentation Formal process in place, incl. change Minimal, implicit knowledge

requests
Stakeholders/End users Involved at specific, designated times Ongoing consultation and

collaboration
Teams Clear roles and responsibilities, duties and Teams are collocated, roles
activities; often the team is distributed and responsibilities rotate
Focus Heavy on planning to create baselines and Consultation,

avoid change; focus on time, scope, cost, communication,
quality collaborative decision
making
Leadership PM is decision maker Delegated decision making

to team members
Process Heavy on processes, especially Emphasis on lessons

documentation learned and review and
getting iteration to
agreement
Table 40: Differences between a traditional waterfall PM versus an agile method (created
for this study).
It is clear that the concept of Agile is founded on collaborative and consultative work
between project team members and the stakeholders they serve – and this point is
clearly reflected in the interview findings and in the case studies and validated in the
survey results of the perceived benefits. This type of collaborative work is encouraged
and all members share in the accountability (Beck 2000; Schwaber & Beedle 2002;
Lindstrom & Jeffries 2004; Alleman 2005; Nerur, Mahapatra & Mangalaraj 2005).
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Table 41: A comparison between traditional and agile methods for IT projects
(Nerur, Mahapatra & Mangalaraj 2005, p. 75).
While agile teams do use a coherent decision-making process during each iteration,
this process can only work provided the necessary experience and resources are
available. Nevertheless, according to research by Drury, Conboy and Power (2012), the
decision-making process still requires improvement as it is often hindered by a lack of
willingness to commit to decisions, volatile resource pools, conflicting priorities and a
lack of empowerment and ownership. According to Boehm (2002), using a
combination of both agile and plan-driven methodologies has merit. Today, agile PM
has taken a new turn even in the IT realm, and project teams work in a world of VUCA
(volatility, uncertainty, complexity and ambiguity). Applied to the business
environment, VUCA means natural disasters, currency devaluation, cyber-attacks and
data theft. An environment like that ‘defies long-term planning’ (King 2013, p. 14) and
being highly adaptable is one of very few ways to manage chaos.
In terms of decision making and flexibility, however, certain organisations consider
agile management to offer too much freedom and flexibility. Agile management
affects the power structure because it allows for decision making and accountability in
the process of resolving issues – a domain once reserved to executives (Williams &
Cockburn 2003). Nevertheless, since the PMI has considered the use of an adaptive
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and flexible method for managing projects as part of its BoK, which is the only one
extending a framework to the field of DM, it is clear that there are also structures and
best practices in place to support the use of agile management, and the methods of
Agile are endorsed in the PMBoK® Guide (PMI 2013).
Original Agile Principles1 Adapted Principles for Disaster Recovery

Projects
Our highest priority is to satisfy the customer Our highest priority is to satisfy the customer
through early and continuous delivery of through early and continuous delivery of fit-for-
valuable software. purpose deliverables.
Welcome changing requirements, even late in Welcome changing requirements. Agile
development. Agile processes harness change for processes harness change for the customer’s
the customer's competitive advantage. sustainable advantage.
Deliver working software frequently, from a Deliver functioning solutions frequently, with a
couple of weeks to a couple of months, with a preference to the shortest possible timescale.
preference to the shorter timescale.
Business people and developers must work NGOs, government and project teams must work
together daily throughout the project. with local communities and partners.
Build projects around motivated individuals. Give Unchanged.
them the environment and support they need,
and trust them to get the job done.
The most efficient and effective method of The most efficient and effective method of
conveying information to and within a conveying information to and within a team is
development team is face-to-face conversation. personal conversation whenever possible.
Working software is the primary measure of An accepted deliverable is the primary measure
progress. of progress.
Agile processes promote sustainable Agile processes promote sustainable delivery.
development. The sponsors, developers, and The sponsors, project teams and communities
users should be able to maintain a constant pace should remain engaged and consultative
indefinitely. throughout and until the project closure.
Continuous attention to technical excellence and Continuous attention to excellence and good
good design enhances agility. practice enhances agility.
Simplicity – the art of maximising the amount of Simplicity – the art of maximising the amount of
work not done – is essential. work not done – is essential. Using best practice
to ensure quality in all aspects of the projects.
The best architectures, requirements and designs The best planning, proposals and requirements
emerge from self-organising teams. emerge from self-organising teams based on
their organisational values and mandate.
At regular intervals, the team reflects on how to Unchanged.
become more effective, then tunes and adjusts
its behaviour accordingly.
Notes: 1Sources: Beck et al. 2001; Marbach et al. 2015.
Table 42: 12 adapted agile principles for DM projects.
Agile itself is founded on PMBoK best practice, which means that the very core of PM
values is respected. According to Goebel (2008, p. 1), Agile succeeds owing to the
application of these core PM practices which it applies daily and ‘focuses on fully
implementing a few critical project management tools’. Also, there is a focus on
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project team members to work collaboratively with each other and with stakeholders
to produce the desired outcomes. As agile teams rotate roles, the decision-making
potential is also increased and team members are empowered and empower one
another to make decisions. This in turn not only leaves the project manager to act
more as a coordinator and facilitator, but the decision making does not rest solely on
one person but is shared between the teams, the project manager and the
stakeholders – confirming the findings from the interviews. Table 42 above shows the
original agile principles next to the adapted principles which would best suit post-
disaster projects. The changes to the agile principles, indicated in italics, are
recommendations based on baseline results obtained from the interviews and case
studies. These recommendations may be compared to the analysis in Chapters 7.3.3,
7.3.4 and 7.3.5 where the features, benefits and desirable elements of an agile
framework are highlighted.
8.3.7 An agile framework for post-disaster projects
The outputs obtained from the survey have supported the outputs of the literature
review, the semi-structured interviews and the case studies in the majority of cases. At
this point of the study, the empirical research has provided sufficient outputs to design
and propose an agile framework. Chapters 7.3.3 through to 7.3.7 provide the survey
outputs which contribute to the design of the framework. Further, Chapters 8.3.2
through to 8.3.5 provide a discussion on these outputs. Based on the robust data
collected and supported through triangulation, it is possible to design the framework
and include the desired features and elements. The framework is based on the
confirmation of the benefits which an agile framework would bring to an organisation.
Figure 53 below illustrates a standard project delivery framework based on agile

principles and methods. Agile rests on some upfront planning but with the flexibility of
iterations during the execution phase – this enables tests to be carried out,
consultation with key stakeholders and decisions made by the delivery team to correct
any issues through lessons learned before the same process begins again on each
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component until the team gets it right and the final deliverable is accepted by the end
user.
Figure 53: A standard agile project delivery framework.
Post-disaster projects are unlike traditional projects although they can share several
similarities. When these similarities are present (i.e., complexity, many unknowns,
volatility, requiring full-on consultation with stakeholders, collaboration with team
members and partners, good communication) – as shown in Figure 10 (see Chapter
2.10), Agile becomes the appropriate methodology to follow.
The adapted framework, shown below in Figure 54, keeps the original agile delivery
structure but with added focus on the features and benefits based on the research
findings. These additional focus themes are actively intertwined and interdependent –
as failure in one area will undoubtedly lead to deleterious consequences in the others.
Figure 54: An adapted agile project delivery framework for DM projects.
The six key features of the framework (consultation, decision-making authority,

collaboration, adaptability, communication and lessons learned) occur through every
phase of the project and impact on project performance.
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The three core skills employed in a broad yet specific context are:
• Consultation throughout the entire process;
• Communication;
• Cooperation and collaboration.
Three performance features are employed to provide the required flexibility to adapt
and change to the volatile situation:
• Decision making – teams share responsibilities, roles and decision making,
which is not left to one person (e.g., project manager, emergency manager), as
confirmed by research (Schmidt, Montoya-Weiss & Massey 2001; Drury,
Conboy & Power 2012);
• Adaptability – selected throughout the survey as the key benefit and feature as
it provides the opportunity to adapt to changing needs, requirements or
environments;
• Lessons learned – the emphasis on lessons learned, reviews and getting
deliverables to agreement is a primary focus seen especially in the case studies
where it was considered a main project success factor.
Based on the triangulation results which incorporate the various outputs, a features
and benefits (FAB) matrix has been created explaining the benefits of the six key
features of the agile framework (see Table 43 below).
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Feature Benefits
Consultation Scope is more accurate
Stakeholders/end users are empowered
Buy-in is ensured
Risk of rejection minimised
Build trust
Increase success rate
Less duplication
Communication Information flow is fluid
Minimise duplication
Increase effectiveness
Cooperation and collaboration Minimise duplication
Increase knowledge and networks
Provide stability
Build trust between communities and organisations
Decision making Minimise delays
Satisfy needs
Take advantage of opportunities when they arise
Adaptability Enhance creativity and originality
Increase efficiency
Minimise delays
Minimise risk in cost, procurement, time and scope
Satisfy stakeholders/end users
Increase collaboration
Lessons learned Minimise delays
Increase knowledge in teams, stakeholders and end users
Reduce risk of repeating mistakes
Increase all-round experience
Increase effectiveness and efficiency
Table 43: Features and Benefits (FAB) Matrix.
Figure 55 finally provides the fully developed framework which has been adapted to
suit the field of disaster management. This framework is based on all the findings from
the data collected in this research, which has been validated by the survey. The
framework provides zones of flexibility where organisations have the option to adapt
the framework to suit the organisational needs, business and context. (Note: An image
with higher resolution can be found in Appendix K.)
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Figure 55: An agile framework for managing post-disaster projects.
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8.3.8 Skills
The core skills required to manage post-disaster projects utilising an agile framework
are those which have received very high ratings and rankings. Like with any kind of PM
activity, the most important skill required is communication, together with
collaboration and cooperation as well as consultation throughout. In the case studies
with successful project implementations, there are several positive examples where
stakeholders were identified early, consultation and communication with the
appropriate entities occurred in a timely manner, and sustainable and fit-for-purpose
deliverables were obtained – meaning that the projects were implemented
successfully and to the satisfaction of the beneficiaries. On the other hand, post-
disaster projects have failed when these skills are lacking in the people and teams
responsible for project implementation. If the skills are lacking, the necessary features
and attributes will not be adopted and put in motion, thus contributing to project
failure. The literature review has covered such failures comprehensively, leaving no
doubt as to no matter how well a framework is designed, it will not prove effective if
those utilising it lack the necessary skills.
Other skills featuring as important in the triangulation are project management,
delegation and influencing. While they are not far behind in importance, it is possible
to navigate through the reasons why they might have nevertheless been given
secondary importance. For instance, even though PM skills can be learned, a project
will remain static without the primary skill of communication. A communicative,
collaborative, cooperative and consultative team builds trust with internal and
external stakeholders and beneficiaries, and with trust comes delegation. And lastly, a
team which works well and has the trust of its stakeholders and beneficiaries definitely
has the power to influence (Diallo & Thuillier 2005).
8.4 Chapter summary
This chapter brought together the outcomes of both desktop and live case studies and
compared them with the outcomes of the literature review and the semi-structured
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interviews. In doing so, the chapter demonstrated successfully that the data collection
methodology was robust and that there is indeed merit in proposing a framework
which can encompass the key attributes revealed through the data collection in an
adaptable, agile methodology.
What this chapter has also been able to identify is that project management post-
disaster is an active management field in operation in a highly volatile and complex
environment, which therefore must be adapted to suit the context, the stakeholders
and the location. The highly sensitive, traumatic, culturally diverse and geographically
difficult nature of post-disaster PM demands not only a finely tuned and improved skill
set but also adaptable tools, one of which is proposed in this research.
Thus, the principles of agile PM were adapted to suit post-disaster projects and, along
with providing a features and benefits matrix, an agile framework for managing post-
disaster projects was put forward. The framework builds on the strengths of the
original framework utilised for IT projects in addition to the skills and key features
required for more successful post-disaster PM activities.
This chapter is the culmination of the entire research, and the framework proposed is
based on (a) the data collected from the literature review, which identified the gaps;
(b) the preliminary interviews, which tested the current perceptions and attitudes; (c)
the case studies, which were conducted to examine how post-disaster projects were
and are being managed and which challenges they have faced; and (d) the results of
the questionnaire survey, which was conducted to validate the previous outputs.
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CHAPTER 9 Conclusions, Contributions and
Recommendations for Further Research
9.1 Introduction
This chapter concludes the research into the application of an agile PM methodology
to natural disaster projects with the design and proposal of an agile framework for
post-disaster projects. From the literature review, the preliminary semi-structured
interviews, the case studies and the validation survey it is apparent that there are
significant opportunities to improve the way in which post-disaster projects can be
managed.
The research has highlighted the need to apply a PM method in a more formalised
way, but which also contains a degree of adaptability consistent with the volatility and
complexity of disaster management. The research has placed an emphasis on the role
of consultation, cooperation and collaboration, communication, delegation of decision
making to a project team and lessons learned to be applied throughout a project’s
lifecycle.
The research ultimately led to the design and development of an adaptable PM
framework which is based on the agile methodology and has been adapted from a
standard agile software development life cycle (SDLC) model. The framework has kept
the project phases but has introduced some specificity unique to a DM context and
integrated the key skills and features required during the post-disaster project delivery
process. Furthermore, the proposed framework offers governments, non-profit
organisations and private organisations alike the opportunity to deliver post-disaster
projects which will not only meet the needs of recipients but also provide sponsors and
donors the ability to see their funding expended in a far more judicious manner.
This chapter will now review the project problem and address the main research
question which led to the research objectives of the investigation. The final conclusion
will then be presented based on the research findings. In addition, the contribution to
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knowledge, limitations of the research and recommendations for future initiatives will
also be presented.
9.2 Statement of research problem
Natural disasters around the globe are becoming more unpredictable, growing in
regularity and increasing in the number of lives lost and in economic costs.
Governments, humanitarian and private organisations are grappling to find ways to
improve and limit damages. According to the World Economic Forum, natural disasters
caused a total of $1.5 trillion in damage around the world between 2003 and 2013,
more than 1.1 million people lost their lives and more than two billion people’s lives
were affected (Luxton 2015). According to the Australian Business Roundtable for
Disaster Resilience & Safer Communities (Deloitte 2013), natural disasters cost
Australia alone over $9 billion in 2015 – this figure includes social impacts. The report
predicts that this amount will double by 2030 and pitch to an average of $33 billion per
year by 2050. A large part of these dollar figures is “invested” in the rebuilding of
homes, infrastructure and businesses through projects funded largely by governments
and not-for-profit/non-government organisations (NGO). The issue with this so far is
that the beneficiaries’ needs have not been fully met, funding organisations place a
time limit on the duration in which the funds (donations) are to be spent, and projects
are not successful due to a whole array of issues which arise during their management
(Rotimi, Le Masurier & Wilkinson 2006 ; Koria 2009; Seneviratne, Baldry & Pathirage
2010; Chang et al. 2012; Abulnour 2014.
What this thesis has been able to successfully conclude through empirical research is
that more appropriate tools are required to better manage post disaster projects. The
literature review, the preliminary interviews and both types of case studies (desktop
and live) were able to demonstrate that an alternative method of delivering post-
disaster projects is also needed. The data collection and the findings have been able to
confirm that some key elements are essential to improve the way of managing post-
disaster projects. Those key elements are communication, consultation, lessons
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learned and knowledge management, personnel management,
management/leadership and decision making, which align well with the principles of
an agile PM methodology. In searching for possible options to respond to this aim and
deliver this alternative method of project management for natural disaster projects, as
pointed out by previous research (Beekharry et al. 2016), it was concluded that an
adapted agile framework would be developed. Though more commonly practiced in
the delivery of IT projects, more and more contemporary organisations are switching
their business practices to Agile for non-IT or software-related projects when these
projects are less than simple or straightforward (Munshi 2015). According to Hass
(2008), the more complex a project the more adaptable the methodology must be in
order to cope with the complexity.
This thesis was conceived and constructed based on this significant gap in knowledge,
not only in the realm of project management but also in the field of disaster
management. Why both fields? Because, as confirmed by the validation survey, PM
professionals are not used to and lack the skills to manage post-disaster projects while
DM professionals lack the skills to fully and competently manage projects.
9.3 Research answers
The aim of this research was to investigate the application of an agile PM methodology
to natural disaster projects. The study used the benefits of best PM practices and
methodologies in the context of DM to more efficiently and effectively transition
affected communities from chaos to recovery and eventually to stability. Supported by
robust research, an attempt was made to provide project managers and disaster
managers with the appropriate tools to manage and implement projects in a more
effective manner. One such tool is the agile PM framework developed in the course of
this thesis as a guide to aid post-disaster projects and as a versatile tool for traditional
project managers or disaster managers to broaden their skills base.
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In order to complete this investigation, it was necessary to answer the main research
question (MRQ):

In order to answer the MRQ, the study sought to attain the following objectives:
(iii) To understand the issues and challenges and seek potential solutions for
the management of post-disaster projects;
(iv) To examine whether national and international organisations face similar
issues and challenges and how an adaptable methodology would impact
post-disaster projects; and
(v) To propose an agile framework which can be applied to post-disaster
projects.
Objective (i) To assess the current PM practices in post-disaster projects
This objective was addressed in Chapter 4, for which ten project professionals active in
DM but with knowledge and practice in PM were interviewed. This preliminary data
collection method was utilised to test the climate and verify whether the findings
correlated with the literature review. The data collected confirmed that PM was not
utilised consistently within DM organisations – not to the extent of being employed at
a professional PM standard but rather in ad-hoc processes. Projects are an
unavoidable part of life in businesses and organisations; however, best practices and
standards are applied in regards to the specialty of the “trade” or “technical field” in
question rather than the actual PM methodology.
247
Objective (ii) To evaluate which elements of best-practice PM are most essential for
an adaptable methodology to manage post-disaster projects.
This objective was also addressed and supported the findings in Chapter 4 following
the analysis of the key attributes which are considered elements of best practice, i.e.,
consultation, communication, cooperation and collaboration, delegation of decision
making to a broader group, leadership, roles and responsibilities, flexibility and
adaptability, as well as training and exercise. The main data collection in the form of
case studies not only confirmed the findings of the semi-structured interviews but also
refined the results by emphasising which key attributes were imperative to the success
of an adaptable framework. These are: communication, consultation and
collaboration, lessons learned and knowledge management, personnel management,
management/leadership and decision making.
Objective (iii) To understand the issues and challenges and seek potential solutions
for the management of post-disaster projects
Findings from the semi-structured interviews (to a lesser extent) and, to a far greater
extent, from the case studies revealed that flexibility in roles and responsibilities (R&R)
add value to a team in the way that it becomes easier to manage challenges such as
staff shortages or delays in resourcing, especially in emergency situations. In addition
to flexibility in R&R, there is a greater sense of ownership, accountability and desire to
succeed when project teams have more extensive decision-making powers. However,
the counterargument can be made that some teams do not consider this as
advantageous because decision making during emergencies can also come with (fear
of) reprisals. In regards to practical processes, less documentation and more active
application of lessons learned were topics which were raised in every aspect of the
data collection throughout Chapters 4, 5 and 6.
248
Objective (iv) To examine whether national and international organisations face
similar issues and challenges and how an adaptable methodology
would impact post-disaster projects
The live case studies reflected and responded to this question particularly well.
Depending on whether an organisation is local/national or international, the
challenges can be quite different. Post-disaster issues are treated quite differently
because local/national organisations have a clearer response through their cultural,
linguistic, religious and political understanding of the affected community. While there
is some mention in the desktop case studies of difficulties finding consultants to work
with, what became apparent during the case studies, especially from observations and
comments made by stakeholders, is that when post-disaster projects are managed by a
national or local NGO, the sense of commitment, understanding, ownership and
accountability for success is far more assured and more deeply felt by the beneficiaries
and by the project teams. On the other hand, when foreign or international NGOs
manage post-disaster projects, the engagement process requires much trust and
relationship building, cultural and linguistic awareness. Without partnering with local
consultants to act as the bridge between the foreign entity and the affected
communities of beneficiaries, issues arise in the areas of consultation, communication
and collaboration which might lead to delays, cost blowouts, deliverables which are
not fit-for-purpose, disillusioned beneficiary communities and project failure.
Objective (v) To propose an agile framework which can be applied to post-disaster

projects
The agile methodology normally used for IT projects was taken as a mask, and then the
key skills and attributes, features and benefits required for post-disaster projects were
added, focussing on the areas of consultation, communication,
cooperation/collaboration, decision making, adaptability and lessons learned as high-
priority zones of flexibility which are an integral part of the framework. Not only do
these zones of flexibility provide the opportunity to adapt to the volatility of the
environment, they also ensure that lessons are captured, learned and adapted along
the way while safeguarding that maximum benefits are realised during the process. In
249
addition, the processes and best practices which feature strongly, as with any PM
methodology, were incorporated into a DM context to design and propose the agile
framework for post-disaster projects. Illustrations of the framework can be seen in
Chapter 8.3.7, Figures 53, 54 and 55, in addition to Appendix K.
Response to MRQ How can an agile methodology best be applied to the

management of natural disaster projects for more effective
outcomes?
The agile methodology and framework provide an adaptable and flexible approach to
managing post-disaster projects. The framework utilises what the study has revealed
to be the key attributes and skills required to deliver post-disaster projects more
effectively. The framework and methodology can be applied by organisations
operating in volatile environments, with a high degree of uncertainty, in unstable
conditions, with an unstable supply of material resources and a fluctuating level of
human resources and skills.
Non-profit organisations or government agencies have a unique opportunity to apply
this agile methodology in the way any PM learnings, best practices, knowledge and
skills which have been previously acquired from managing post-disaster projects can
be utilised to further enhance project delivery. Where the framework can assist is in
providing these organisations with the incentive to further develop their activities in
the areas of consultation, communication, collaboration, cooperation, shared decision
making, leadership/management, flexibility/adaptability and lessons learned. As the
framework is not bound to a particular size of project or organisation, level of
expertise or maturity in project management it can be utilised by any organisation.
And as the framework is not prescriptive it allows organisations to make decisions as
to how much or how little they choose to utilise what is being recommended, review
the lessons they obtain from the framework and make improvements as they further
its use. And lastly, as the framework is not bound to any specific processes it is up to
the organisations to apply best-practice PM to the best of their abilities in order to
improve project delivery following a natural disaster.
250
What the research has demonstrated in the way of interviews, case studies and a
questionnaire survey for validation is that there is a need for specific skills and
attributes to be improved and more broadly employed in order to obtain more success
in post-disaster projects. Success as defined by members of the DM community, by
beneficiaries of project deliverables and by affected communities is having projects
which are fit-for-purpose, accepted by communities and helpful in transitioning from
chaos to a smooth recovery.
9.4 Contribution to existing knowledge
This empirical research has highlighted that post-disaster projects are failing because
PM is not applied according to best practice in areas of planning, scoping,
implementation, budgeting and resources. The research has further highlighted the
need for a unique set of skills and attributes which are more suited to the complex
environment of post-disaster projects. This research has focused on the relationship
between traditional PM, DM and the need to apply an adaptable method to cope with
the inherent complexities which are associated with disasters. Such complexities
include cascading events, lack of skilled or unskilled resources, lack of materials,
destroyed or non-functioning infrastructure, etc.
The research findings provide an original contribution which will provide long-term and
sustainable benefits. While not in any order of importance, this contribution:
• Will inform policy on the need to change certain laws, e.g. in the area of
customs, to facilitate the transportation of building and reconstruction supplies
and to establish memorandums of understanding with national and
international partners, contractors and suppliers;
• Will change the guidelines for managing post-disaster projects and inform the
PMI to adapt their existing methodology;
• Will inform governments on their approach to disaster management;
251
• Will inform and provide knowledge to aid and non-government organisations
and encourage such organisations to review their PM methods and move from
a linear to an agile methodology;
• Addresses the current state of post-disaster PM practices in various areas of
the world and the need to improve their implementation in order to gain long-
term benefits and achieve sustainability;
• May not only improve and enrich the skills of project professionals to manage
post-disaster projects but may also improve the skills of DM professionals in
project management;
• Has provided some key attributes and skills which are applicable to any project
implementation and may create opportunities with long-lasting effects,
whether used alongside a fully adaptable or hybrid methodology or framework
or even within a traditional project methodology.
Through the research undertaken in the course of this thesis, an agile framework for
managing post-disaster projects was adapted, designed and proposed (see Figure 55 or
Appendix K). This framework proposes a holistic approach to DM by putting the
beneficiaries/stakeholders of the projects first through consultation, communication,
collaboration and cooperation and through the application of lessons learned in order
not to miss opportunities. It is hoped that the proposed framework will benefit project
implementation through the provision of fit-for-purpose deliverables, sustainable
outcomes and more resilient communities. Based on the survey outputs and the
outcome of the study, 29% of organisations are likely and 10.6% are highly likely to
adopt an agile methodology while 12.8% already use an adaptable methodology.
9.5 Limitations of research
Various methods of data collection were used for this research. The participants in
both the semi-structured interviews and the questionnaire survey were from many
different countries around the world and with experiences in various backgrounds of
project and disaster management. The desktop case studies were undertaken utilising
252
data available on the World Wide Web, and while the data did prove sufficient to meet
the needs it was not possible to obtain the same quality of data for each desktop case
study. The live case studies were performed in-depth in the Philippines and included
site visits, opportunities to observe meetings, discussions and projects being
implemented. The Australia-based live case studies of Fiji and Nepal, on the other
hand, consisted of a mixture of recounting the events, speaking to the project
managers and partners, looking at documents and obtaining an overview of the
current situation without actually being in the country of project implementation, the
reasons for which are listed in Chapter 3.4.3. While both types of case studies provided
the required data and opportunity to compare, the inability to travel to the affected
countries can be considered a great limitation. The questionnaire survey, utilised as a
means of data validation, attracted limited responses due to the small number of
project managers who have any knowledge of or experience in disaster management.
9.6 Recommendations for future studies
The complexities of natural disasters ensure that further research is required. The field
is vast and the consequences of disasters demand ongoing research in order to save
more lives, make communities and people more resilient, utilise funding more
effectively and manage projects more successfully.
The findings of this thesis are based on a robust series of data collection and analysis
on how to use an adaptable PM method to benefit project implementation. However,
this research has barely skimmed the surface of possibilities. Therefore, the following
list of recommendations is put forward for future initiatives:
• The key skills and attributes should be employed in a structured manner
throughout the project lifecycle, whether utilising traditional or adaptable
frameworks, and the outcomes of such trial runs should be evaluated;
• More case studies should be undertaken of organisations in any business
context who change from a traditional to an adaptable methodology, and their
cases and the corresponding lessons learned should recorded for others to take
forward;
253
• Training, professional or certification classes should be delivered to provide
project professionals with the necessary skills to manage post-disaster projects;
• DM professionals, non-government and other organisations managing post-
disaster projects should be provided with appropriate training to manage
projects according to appropriate PM best practices;
• Both PM and DM professionals specifically involved in managing post-disaster
projects should receive appropriate cultural sensitivity training as part of
ethical behaviour training;
• The agile framework for managing post-disaster projects in Figure 55 is highly
recommended for use by non-government organisations, humanitarian
organisations, government agencies and private organisations in the
management of post-disaster projects. As there is no one-size-fits-all
application for this framework it is recommended that organisations adapt the
framework to suit their needs, evaluate their outcomes and lessons learned
and apply these for future refinements and improvements as they become
more proficient in its use.
254
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Appendices
Appendix A – Interview Questions
Appendix B – Interview Participant Information Sheet
Appendix C – Interview Participant Consent Form
Appendix D – Interview Participant Schedule
Appendix E – Survey Questionnaire
Appendix F – Survey Information Sheet
Appendix G – Research Timeline
Appendix H – Letter of Support from BMFI
Appendix I – Letter of Support from DAI
Appendix J – Publications
Appendix K – An Agile Framework for Post-Disaster Projects
289
University of South Australia
School of Natural and Built Environments
Project title: Applying Agile project management methodology to natural disaster
projects
Researcher: Marie Desiree M BEEKHARRY (MPM), Doctor of Project Management
Appendix A
Semi-structured Interviews
1. Background information
- What is current role?

- How long have you been working in the disaster/emergency management field?
- Can you give a short explanation of your experience in working with disaster?
- Hazard & Location
- Your role/function in the disaster(s)
- Duration of said disaster(s)
2. During response and recovery – disaster management professionals are required to

work within an interdisciplinary and collaborative teams with government, non-
profit and private organisations.
- How efficient was this way of working?
- What would you say are some of the biggest challenges?
- How could these challenges be overcome?
3. During response and recovery efforts, what would you say are the most
important/necessary:
- Skills
- Attributes
4. In order to deliver essential services to affected communities pre or post-disaster,

projects are used to implement the various programmes of works.
- Based on your experience, how does your organisation manage these?
- Is there a dedicated team?
- Does your organisation use its own methodology?
5. It is assumed that most organisations have a preparedness plan. Yet, even the best
laid out plans will probably change due to the unpredictability of disasters, especially
large-scale disasters which inevitably have cascading effects.
- How effectively and quickly does your organisation or is the disaster management
organisation deal with these unpredictability?
- Is there a conflict between adherence to process and flexibility/adaptability?
projects
6. When it comes to roles and responsibilities:

- Is the chain or responsibility clear?
- Is there an overall person who receives all the information?
7. Following a disaster, information flow is scattered and often vital elements are
missing to enable decisions-makers to build a clear picture of the status at any time.
- In such instances, what do you think would be the most practical, effective and
efficient way in which to deal with such situation and make decisions (and not expect
fall back)?
8. If you could “revamp” the way disasters are managed, what would you like to see
implemented?
projects
Appendix B
Information sheet – Semi-structured interview
Dear
Re: Request for assistance to provide information for research dissertation
As you may be aware, I am currently a student of the University of South Australia

undertaking a professional doctorate, for the Doctor of Project Management Degree. My
dissertation, which is a requirement of the course objectives, regarding Applying Agile
Project Management methodology to natural disaster projects.
I would like to invite you to be individually interviewed by myself, providing feedback on

your experiences in the management of post-disaster projects either during response or
recovery. You have been specifically chosen to participate in this research because of your
relevant profession, extensive knowledge and experience in this area. It is envisaged that
the interview will be for the duration of not more than 45 minutes at a mutually acceptable
time, date and venue.
Note that your willingness to be part of this research dissertation is completely voluntary;
however, your participation is important to my research. Please also note that you are free
to withdraw from the research project at any time without affecting your status now or in
the future.
Please note that this interview will be audio-recorded. The tape or a certified transcript of
the tape is raw data and will be securely retained for five years. Your identity can be
masked. All records will remain confidential unless disclosure is required by law, and no
information about individuals involved will appear in the findings unless prior written
permission is given and becomes necessary. Under the Australian Code for the Responsible
Conduct of Research, the findings to this research will be securely stored in the School of
Natural Built Environment for a period of five years.
This project has been approved by the University of South Australia’s Human Ethics
Committee Protocol ID: 0000035045. If you have any ethical concerns about the project or
questions about your rights as a participant, please contact the Executive Officer of this
Committee, tel. +61 8 8302 3118; email: Vicki.allen@unisa.edu.au.
It is envisaged that a summary of the research findings will be forwarded to you via email
within 3 months of completion of the Doctoral Dissertation.
projects
Should you require any further information or clarification regarding the above research,
please do not hesitate to contact me on 0416 407 367 or via email:
desiree.beekharry@unisa.edu.au. My university Supervisor, Dr Tony Ma, can also be
contacted to discuss any issues or concerns you may have, tel. 08 8302 2238; email
Tony.Ma@unisa.edu.au.
Thank you for taking the time to read this letter and I look forward to receiving your
acceptance to be part of my dissertation. Please do not hesitate to contact me should you
wish to discuss any of the above.
Your assistance and cooperation is very much appreciated.
Yours sincerely,
Desiree Beekharry
0416 407 367
Human Research Ethics Committee
CONSENT FORM
Retention of taped materials, photographs or original works
Appendix C
This project has been approved by the University of South Australia’s Human Research Ethics Committee. If
you have any ethical concerns about the project or questions about your rights as a participant please contact
the Executive Officer of this Committee, Tel: +61 8 8302 3118; Email: Vick i.Allen@unisa.edu.au
SECTION 1: CONTACT AND PROJECT DETAILS
Researcher’s Full Name: Marie Desiree M BEEKHARRY
Contact Details: 0416 407 367
Supervisor’s Full Name: Dr Tony MA
Contact Details: 08 8302 2238
Protocol Number: Application ID: 0000035045
Project Title: Applying Agile Project Management methodology to natural disaster projects
SECTION 2: CERTIFICATION
Participant Certification
In signing this form, I confirm that:
• I have read the Participant Information Sheet, and the nature and the purpose of the research project has
been explained to me. I understand and agree to take part.
• I understand that I may not directly benefit from taking part in the project.
• I understand that I can withdraw from the study at any stage and that this will not affect my status now or in
the future.
• I confirm that I am over 18 years of age.
• I understand that I will be audio-recorded during the study
• I understand that the MP3 file will be securely stored in the School of Natural Built Environment for a period
of five (5) years.
Participant Signature Printed Name Date

Researcher’s Certification
I have explained the study to subject and consider that he/she understands what is involved.
Researcher’s Signature Printed Name Date
Human Research Ethics Committee Page 1 of 1

CONSENT FORM (retention of materials) Current Nov ember 2011
CRICOS Prov ider No. 00121B
Appendix D
Interview participants’ schedule
Participant Date Time

1 07 December 2015 07:00
2 07 December 2015 10:00
3 08 December 2015 12:30
4 08 December 2015 14:00
5 09 December 2015 08:30
6 10 December 2015 09:00
7 10 December 2015 15:00
8 11 December 2015 08:00
9 11 December 2015 10:00
10 21 December 2015 16:00
Appendix E
Applying Agile Project Management methodology to natural disaster projects

By completing and submitting the survey, you are indicating that you have read
and understood the Participant Information Sheet and give your consent to be
involved in the research.
1. Demographics
2. Which of the following best describes your organization?

a. Project/Program Management Office
b. Emergency Services industry
c. Non-profit organisation
d. Federal Government
e. State Government
f. Local Government
g. Private organisation
3. Which of the following best describes your role?

a. Project Manager
b. Emergency Manager
c. Project team member
d. Emergency Response team member
e. Relief worker
f. Recovery worker
g. Medical Emergency Response
h. Aid worker
i. Other – please specify below
4. How long have you been working in the disaster management?

a. Less than 5 years
b. 5-10 years
c. 11-15 years
d. 16-20 years
e. More than 20 years
1. Verification of Interviews and Case Study Findings

1. Table 2 shows the challenges put forward when working within interdisciplinary
and collaborative teams from government, non-profit and private organisations
in disaster management situations. The highest ranking challenges were in the
areas of Communication & Consultation (90%), Collaboration (70%),
Infrastructure (40%) and Financial Bureaucracy (40%).
Key themes Challenges
Communication & Consultation 90%
Collaboration 70%
Infrastructure 40%
Resources 30%
Decision Making 20%
Training & Exercise 10%
Governance & Corruption 10%
Accurate information 20%
EM Plan 10%
Political support 10%
Table 2: Challenges faced by organisations
On a scale of 1-5, please tick which you believe to be the best representation of the table.
5-Strongly agree; 4-agree; 3- neutral; 2- disagree; 1- strongly disagree
2. When asked to consider how these challenges could be overcome, and what was
needed to improve the delivery of post-disaster projects, respondents – as seen in
Table 3 – suggested improvements in the area of Communication & Consultation
(100%), Collaboration (71%), Training & Exercise (57%), Decision making (43%)
and Resources (43%) to implement projects more successfully.
Key themes Solutions to improve challenges
Communication & Consultation 100%
Collaboration 71%
Infrastructure 29%
Resources 43%
Decision Making 43%
Training & Exercise 57%
Governance & Corruption 14%
Accurate information 14%
Emergency Management Plan 29%
Political support 0%
On a scale of 1-5, please tick which you believe to be the best representation of the table.

2. Proposed Agile Framework
1. An effective agile framework should have the following zones of flexibility as
outlined below.
Please use the scale below to convey your opinion for all questions.
a. Clear funding support from onset 5 4 3 2 1

b. Clear Scope (what should be delivered) 5 4 3 2 1
c. Flexible planning (how it should be delivered) 5 4 3 2 1
d. Flexible human resources/ skills pool 5 4 3 2 1
e. Stakeholders clearly identified based on needs 5 4 3 2 1
f. Consultation with Aid organisations,
Government departments, affected Communities 5 4 3 2 1
g. Consultation should occur throughout all phases
Of the project 5 4 3 2 1
h. Communication protocols established with all
Concerned stakeholders 5 4 3 2 1
i. Established/or establish collaborative links,
Partnerships with local suppliers, organisations 5 4 3 2 1
j. Project team should have decision making powers 5 4 3 2 1
k. Project manager only should have decision making
authority
l. Lessons learned should be included during project
implementation so as not to repeat errors 5 4 3 2 1
m. Each deliverable must be accepted by beneficiary
And be fit-for-purpose 5 4 3 2 1
n. All lessons use and applied should be in a Knowledge
Bank 5 4 3 2 1
o. Project Management best practice and standards
should be observed 5 4 3 2 1
p. Consultation and Communication is key to success
any project 5 4 3 2 1
2. The core skills needed to implement Agile methodology in disaster management are
given below. Please indicate your agreement of their importance based on the scale
below:
5-Very important; 4- Important; 3-Moderately important; 2- Less important; 1 –

Least important
a) Consultation throughout 5 4 3 2 1
b) Communication – internal & external 5 4 3 2 1
c) Collaboration & Cooperation 5 4 3 2 1
d) Delegation 5 4 3 2 1
e) Project Management 5 4 3 2 1
f) Influencing 5 4 3 2 1
3. The core performance features of Agile methodology in disaster management

have been identified. Please indicate your opinion using the following scale:
5-Very important; 4- Important; 3-Moderately important; 2- Less important; 1 –

Least important
a) Decision making 5 4 3 2 1
b) Adaptability 5 4 3 2 1
c) Lessons Learned 5 4 3 2 1
d) Asking questions/listening to answers 5 4 3 2 1
e) Delivering feedback 5 4 3 2 1
f) Positive behaviour 5 4 3 2 1
4. Benefits and shortcomings of Agile as a disaster management tool

compared to traditional project management
5. The following are the potential benefits of using an agile methodology over a
traditional project management methodology to manage post-disaster projects.
Do you agree?
Please provide your response based on the scale: 5-Strongly agree; 4-agree; 3-
neutral; 2- disagree; 1- strongly disagree.
a) Light upfront planning 5 4 3 2 1

b) Project plan can be adapted, with accountability but minimal documentation
5 4 3 2 1
c) Scope is lightly defined 5 4 3 2 1
d) Minimal documentation 5 4 3 2 1
e) Consultation, collaboration with end users and stakeholders is focus
5 4 3 2 1
f) Decision making not left to 1 person (e.g. Project Manager, Emergency
Manager) 5 4 3 2 1
g) Not Command & Control 5 4 3 2 1
h) Teams share responsibilities, roles and decision making
5 4 3 2 1
i) Emphasis on lesson learned, review and getting deliverables to agreement
5 4 3 2 1
j) Provides opportunity to adapt to changing needs, requirements or
environment 5 4 3 2 1
6. Based on the list below, what would you consider to be the disadvantages of an
Agile methodology over a traditional project management methodology to
manage post-disaster projects?
Tick all appropriate responses.
a) Lack of robust upfront planning

b) Lack of clearly defined scope
c) Not 1 person has overall responsibility
d) Allows for change to baselines
e) Provides too much flexibility
f) Project teams have decision making power
g) Difficult to adopt for most organisations
7. What do you consider to be the barriers to adopting this or another adaptive

methodology?
Please provide your response based on the scale: 5-Strongly agree; 4-agree; 3-
neutral; 2- disagree; 1- strongly disagree.
a) Organisation is not sufficiently mature or ready

5 4 3 2 1
b) Organisation is Command & Control 5 4 3 2 1
c) Not enough time to adopt a new methodology
5 4 3 2 1
d) The situation post-disaster is too chaotic to apply any kind of methodology
5 4 3 2 1
e) High staff turnover makes it a challenge to apply any traditional or adaptive
methodology 5 4 3 2 1
8. How likely is your organisation willing to adopt Agile or any other more
adaptable methodology to manage post-disaster projects?
- Already use an adaptable methodology
- Highly likely
- Likely
- Unlikely
- Highly unlikely
Project title: Applying Agile Project Management to natural disaster projects
Researcher: Desiree BEEKHARRY, Master of Project Management
Tel: 0416 407 367
Protocol ID: 0000035045
Appendix F
Participant Information sheet – Survey
Dear survey participant
Re: Request for assistance to complete an anonymous survey for research dissertation
I am currently a student of the University of South Australia undertaking a professional

doctorate, for the Doctor of Project Management (DPM) degree. My dissertation, is focused
on Applying Agile Project Management (PM) methodology to natural disaster projects.
Following a series of interviews and case studies, I would like to invite you to participate in
this short survey and provide feedback on your experiences in Project Management and/or
post-disaster projects either during response or recovery.
The aim of the survey is to validate the research findings based on interviews, and
interview-based case studies. The findings have confirmed that traditional PM models lack
the flexibility which can be applied in a volatile environment to manage post-disasters
projects. Both preliminary interviews and case studies have supported that an agile
approach is the more effective approach.
As this is a professional doctorate and intends to contribute directly to professional practice,

I encourage you to participate in order to provide Project Managers and Emergency
Managers an effective tool to manage projects more effectively.
It is envisaged that the survey will not take more than 13 minutes.
Please note that your willingness to be part of this survey is completely voluntary; however,
your participation is important to my research. Please also note that the survey is
completely anonymous, therefore any personal details about you will not be known or
traced.
You are free to withdraw from the study at any point while completing the survey, without
affecting your position now or in the future. Once you submit your survey, however, we are
unable to remove your response as it will be impossible to identify your individual data.
The researcher will take every care to remove any identifying material from responses as
early as possible. Likewise individuals' responses will be kept confidential by the researcher
and not be identified in the reporting of the research. No information which could lead to
Project title: Applying Agile Project Management to natural disaster projects
Researcher: Desiree BEEKHARRY, Master of Project Management
Tel: 0416 407 367
Protocol ID: 0000035045
identification of any individual will be released, unless required by law. However, the
researcher cannot guarantee the confidentiality or anonymity of material transferred by
email or the internet.
Under the Australian Code for the Responsible Conduct of Research, the findings to this
research will be securely stored in the School of Natural Built Environment for a period of
five years.
This project has been approved by the University of South Australia’s Human Ethics
Committee; Protocol Number ID: 0000035045.
If you have any ethical concerns about the project or questions about your rights as a
participant, please contact the Executive Officer of this Committee, tel. +61 8 8302 3118;
email: Vicki.allen@unisa.edu.au.
A summary of the research findings will be available to you upon request within 3 months of
completion of the dissertation.
Should you require any further information or clarification regarding the above research,
please do not hesitate to contact me on:
+61 416 407 367
Email: desiree.beekharry@unisa.edu.au.
My university Supervisor, Dr Tony Ma, can also be contacted to discuss any issues or
concerns you may have, tel. +61 8 8302 2238; email Tony.Ma@unisa.edu.au.
Thank you for taking the time to read this information sheet and I look forward to receiving
your contribution to the survey.
Your assistance and cooperation is very much appreciated.
Yours sincerely,
Desiree Beekharry
Desiree.beekharry@unisa.edu.au
+61 416 407 367
Appendix G
Applying Agile Project Management methodology to natural disaster projects
DPM timeline
DESKTOP CASE STUDIES
COMPLETED
PAPER ON CASE STUDIES &
FRAMEWORK SUBMITTED
DPM START DESKTOP
SUBMISSION OF THESIS
HREC APPROVAL
CROSS ANALYSIS
DEVELOP DISSERTATION DRAFT
PROPOSAL SUBMITTED COMPLETED
Feb-15 Mar-15 Apr-15 May-15 Jun-15 Jul-15 Aug-15 Sep-15 Oct-15 Nov-15 Dec-15 Jan-16 Feb-16 Mar-16 Apr-16 May-16 Jun-16 Jul-16 Aug-16 Sep-16 Oct-16 Nov-16 Dec-16 Jan-17 Feb-17
FINAL AMENDMENTS TO THESIS

CONFIRMATION OF CANDIDATURE COMPLETED
"LIVE" CASE STUDY AUSTRALIA
SEMI-STRUCTURED INTERVIEWS ALL DATA STORED - PROJECT
COMPLETED STRUCTURED INTERVIEWS COMPLETED
COMPLETED
"LIVE" CASE STUDY THE PHILIPPINES
Appendix H
Appendix I
Appendix J
Publications
Beekharry, MD, Blanks, M, Rameezdeen, R & Ma, T 2016, ‘An Agile approach to Natural Disaster
Management’, in Proceedings of the 10th International Conference on Project Management, Society
of Project Management, Tokyo
Appendix K
An Agile Framework for Post-Disaster Projects
(see overleaf)
Agile framework for post-disaster projects
Flexibility zones
Handover
Top Management support Consult
Funding support Support
Evaluate
Implement work packages
Consultation:
Needs analysis High influence Lessons in Knowledge
Evaluate work packages
High vulnerability bank
stakeholders
Risk analysis Apply to knowledge bank
Scope
Establish Recommendations
Communication protocols & Schedule Communicate/
support: Consult stakeholders
ID stakeholders with: Who? How? When? Why?
Risks Knowledge bank
High influence Adapt or Implement:
High vulnerability Planned Approach
Initiate partnerships & Resources
collaborative links with
Complete
local organisations, Funding
Consultation with: implementation
suppliers, community
Communities leaders etc.
Governments
Aid organisations Move to next work package
Agree decision making
delegation of project teams Iterate implementations
Complete all work packages
Project Management: necessary documentation, best practice, standards & due diligence applied

Agile Methodology For Disaster Projects

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Applying Agile Project

Marie Desiree M. Beekharry

A thesis submitted for the degree of

Doctor of Project Management

Figure 1: Duration of post-disaster efforts per phase (ADB 2014). .................................. 6

Table 1: Main challenges in Project Integration Management. ..................................... 28

AIIMS – Australasian Inter-Service Incident Management System

DINEPA – Direction Nationale d'Eau Potable et d'Assainissement

Disaster Management / Emergency Management

Emergency Management Plan / Disaster Management Plan / Emergency Response

MoU – Memorandum of Understanding

NGO – Non-governmental organisation

SPHERE Standards & Handbook

Traditional projects / Traditional project management

ACNC Australian Charities and Not-for-profits Commission

Key words: disaster management, recovery projects, project management,

Marie Desiree M Beekharry Monday, 5 June 2017

I wish to express enormous gratitude to all the participants of the semi-structured

Project management (PM) is now undoubtedly a professional discipline with high-level

The Project Management Institute (PMI) developed a methodology for post-disaster

The PMI’s Project Management Body of Knowledge (PMBoK) provides professionals,

Figure 1: Duration of post-disaster efforts per phase (ADB 2014).

Figure 2 provides a visual summary of the characteristics of PM and DM, showing

Figure 2: Comparison between project lifecycle and disaster management phases

DM activities are principally the responsibility of government departments and

1.2 Research aims, question, objectives and contribution

1.2.1 Research aims and main research question

The aim of this research is to investigate the requirements of an agile PM methodology

How can an agile methodology best be applied to the management of natural

The research will seek to achieve the following objectives:

1.2.3 Research approach

Following an extensive critical literature review, a series of ten semi-structured

The PMI’s body of knowledge (BoK) provides PM professionals, industries and

This research anticipates a contribution to the professional fields of project

1.3 Structure of the thesis

Chapter 1 provides background to the topic and objectives of the dissertation. It is

Chapter 7 is the analysis of a questionnaire survey performed as a means of obtaining

Chapter 8 provides in-depth discussions on all the findings, including triangulation. In

2.2 The nature of disaster management

There are numerous definitions of disasters. According to Comfort (2005, p. 338), a

Disasters can be classified as natural or technological (man-made). This research will

Figure 4: Classification of natural disasters (Guha-Sapir, Hoyois & Below 2013,

• Building codes Insurance

• Emergency response plans Public education & information

• Plan implementation Evacuation

• Restore essential services Long-term medical support

Figure 5: Australia’s comprehensive approach to emergency management – PPRR

Examples of disaster management approaches can be found in Figures 5 and 6.

2.3 Complexities in disaster management

In common terms, when something is said to be complex, it is understood that there

The management of large disasters is complex since it impacts directly or indirectly on

Figure 7: 360° view of disaster management (adapted from

Figure 7, an adapted version of Jain’s (2008) 360° view of disaster management,

Following an event, the traditional centralised “command and control” (C&C)

To conclude this section, complexity in DM means the involvement of a variety of

Knowledge area Routine projects Disaster management projects

Knowledge area Routine projects Disaster management projects

Knowledge area Routine projects Disaster management projects

Cost Management in PM involves ‘planning, estimating, budgeting, financing, finding,

Knowledge area Routine projects Disaster management projects

Knowledge area Routine projects Disaster management projects

Knowledge area Routine projects Disaster management projects

Knowledge area Routine projects Disaster management projects