Disaster
Management
(i)
Introduction
Over
the last three years, Cambodia has been devastated by flood and drought. In 2000
flooding resulted in 347 deaths and more than 3.5 million people were affected (NPRS,
2002). In 2002, NCDM reported total damage from natural disasters at 33 million
US dollars (ECHO, 2002). Natural disasters (flood and drought) most acutely
affect poor households. Floods cause homelessness and low production (i.e. rice
and fish spawning). This leads to a cycle of debt and poverty. Rice and fish are
the staple diet of Cambodia (Ramage, 2003). Flood and drought ensure that
vulnerable groups continue to suffer poverty and food insecurity (NPRS, 2002).
Flooding
of the Mekong River is a recurrent event. The Royal Government of Cambodia (RGC)
prioritizes disaster management as one of the major strategies for
poverty reduction in Cambodia (NPRS, 2002). Better intervention and a more
effective approach will increase environmental sustainability and improve
resource management, reducing the vulnerability of Cambodian people who are
living on flood plains (ECHO, 2003). Therefore,
different disaster management interventions are recommended (ECHO, 2003). In
addition to natural disasters, manmade problems have had significant impacts on
these vulnerable communities.
Strengths
Circulars No 01 and 02 S.R of Samdech Prime Minister
have outlined a delegation in disaster prevention through Line Authorities,
Ministries, and Provincial Committees for Disaster Management (PCDM),
District Committees for Disaster Management (DCDM) and Commune Disaster
Management Groups. This structure assists the existing committees at village
and commune levels in the implementation of disaster management activities.
Funding received from international organisations (IOs)
for training on disaster preparedness and mitigation is at all levels from
national, provincial, district and commune. (NCDM statement on disaster
status in 2003)
With the consent of Samdech Prime Minister, the NCDM
has formed a partnership with the larger IOs in becoming a member of an
ASEAN disaster reduction and management planning programme and centre, which
is being constructed (NCDM statement on disaster status in 2003: 3)
The Humanitarian Accountability Project (HAP) conducted
humanitarian assessments with organizations working on disaster management
in Cambodia. The recommendations from these findings have led to the
establishment of the Cambodian Humanitarian Accountability Network “HANet”.
These findings are now being incorporated into a training and action
plan programme.
There is a greater participatory role of NGOs working
in poverty reduction (AusAID paper - NGOs ‘good practice principles” in
Cambodia 2003).
ADB and WB have established emergency flood control and
irrigation rehabilitation projects supporting vulnerable communities from
the effects of flooding.
The Royal Government of Cambodia (RGC) has taken a
proactive approach to flood relief operations by understanding the need for
a long-term strategy in addition to the distribution of emergency food and
shelter.
Many NGOs are now integrating this initiative for
Disaster Preparedness into their project and programme strategies as well as
at village/commune levels.
Opportunities
Samdech Prime Minister Hun Sen is Chair of NCDM. This
enhances good cooperation between IO’s and national government
institutions. This collaboration can assist in the process of legal reform
and attract funding for both NCDM/government institutions,
international/local organizations.
Mekong Basin Countries and Ministry of Water Resource
and Meteorology (MOWRAM) will develop a comprehensive, long-term flood
management and mitigation strategy. MOWRAM will appraise the possible
impacts of climate variability.
MOWRAM will conduct a flood assessment of the
communities and evaluate the assets at risk along with realistic costs of
flood damage.
Capacity building programmes within NCDM, MOWRAM and
relevant institutions will assist with appropriate interventions in
Cambodia.
The Humanitarian Charter and Minimum Standards of the
Sphere Project incorporate links between the existing laws and specific
levels of material assistance for people suffering disaster. These standards also represent extensive reviews of good
practice to assure the continuing quality of humanitarian assistance in
Cambodia.
The Mekong River Commission (MRC) Council has approved
a five year Flood Management Programme to prevent, minimize and mitigate
personal losses due to floods, while preserving the benefits of flooding.
The programme addresses Flood Early Warning as one of the top
priorities.
Weaknesses
At national level, low capacity and resources among
staff have impacted on the implementation of this programme at community
level.
An unclear long-term strategy plan for disaster
management exists within the NCDM at all levels. Due to limited resources,
there is an absence of existing counter plans for disaster preparedness and
mitigation.
Capacity of local district and commune disaster
management committees needs to be considered. There is often an absence or
ineffectiveness of the feedback committee (FBC). Capacity of those to
identify, implement and monitor appropriate forms of disaster mitigation and
preparedness measures need to be further developed.
There is often relief focused projects rather than an
integration of development and relief.
A strengthened accountability and transparency network
is required at all levels.
The coordination role of NCDM is often ineffective and
requires improvement
Findings from a recent HAP research highlight a number
of issues raised at community level:
Favouritism
along party lines
Lack
of village committees in imparting knowledge on disaster preparedness to the
community leads to a low level of understanding on these issues among the
village people
(ii)
Key Issues
Lack of disaster information and dissemination.
The alert and warning system is still limited with unclear roles and
responsibilities within the existing structure on the disaster response
process.
Limited human and financial resources in responding to
disasters
Impact of flooding -
There is a lack of reserved funds for disaster action plans.
This results in physical illness, loss of food stock, disease/injury
(malnutrition to women and children), social change and financial
instability, (health care, shelter, transportation, reconstruction and
farming needs) among vulnerable communities.
While there are international agencies and an
increasing number of local Cambodian NGOs working towards poverty reduction,
they frequently focus on the establishment of programme activities and there
is little attention paid to quality, accountability, reporting and
monitoring requirements.
Women in rural Cambodia who head families have the
responsibility of household workload and worries about income generation and
are among the most vulnerable groups within the community (WFP, 2000:5).
Stories
Ms. NP is a lady living in Prey Veng
province. She says that
“because of the flood-drought disaster in my village, I no longer have
enough rice to meet my family’s needs. As a result I may need to sell my
draught animals and land to get money to migrate”.
Ref: DIPECHO, 2002
(iii)
Recommendations
That
development and poverty alleviation initiatives be encouraged, as they can
result in increasing family assets and agricultural productivity.
This may be through rehabilitation of infrastructure and emphasizing
multiple livelihood components such as managing natural resources and accessing
credit.
Recommendations
for the Government:
That all government institutions be
encouraged to participate in disaster preparedness and mitigation at grass
root level.
That the NCDM continue to play an effective
coordination role in strengthening collaboration between all local disaster
management institutions and ministries to carry out agreed action plans.
That there be a commitment to
accountability and transparency among government institutions.
That NCDM coordination skills be
strengthened. The RGC should consider placing project management experts in
NCDM, with the aim of creating a pro-active effective response capacity.
Management skills need to be developed in negotiation, management of
meetings to create agreed action plans, coordination of diverse and
geographically separate groups. A common understanding of accountability
needs to be processed through all emergency response agencies.
Recommendations
for the Donors:
That funds be made available to support the
disaster management programme in Cambodia through training and strengthened
disaster preparedness action plans at village and communes levels where
floods may occur.
Recommendations
for the NGOs:
That technical support be provided to all
levels of ministries and local authorities in developing a clear strategy
for disaster preparedness, relief, mitigation and rehabilitation under
coordination from NCDM.
That a counter plan be developed for
disaster preparedness and mitigation response and integrated into the
long-term programme strategy.
References
1-
Ramage, I et al, (2003): Final Evaluation Report:
Disaster preparedness action planning in Prey Veng. CARE Cambodia Project. Phnom
Penh.
2-
MoP/Council for Social Development (2002): National
Poverty Reduction Strategy 2003-2005. Phnom Penh Kingdom of Cambodia, 20
December 2002.
3-
ECHO (2003): CARE, NCDM and WFP 2002 Joint Food
Security Assessment. Phnom Penh. ECHO and CARE Cambodia April 2003.
4-
HAP evaluation report
For more information on the issues raised in this paper, please contact the
Humanitarian Accountability Network in Cambodia:
1. Hourt Khieu, CARE, Tel: 023 215 267/8/9, Email: khieu@care-cambodia.org
2. Kien Vaddanak, Cambodia Red Cross, Tel: 023 212 878, Email: vaddanakkien@yahoo.com
3. Mot Sana, World Vision International, Tel: 023 216 052, Email: sana_mot@wvi.org
4. Neup Ly, Urban Sector Group, Tel: 023 360 568, Email: admin.usg@forum.org.kh
5. Phoeuk Sok, Oxfam GB, Tel: 023 720 036, Email: psok@oxfam.org.kh
6. Savun Sam Ol, NAS, Tel: 012 579 048, Email: 012897103@mobitel.com.kh
7. Tan Bun Leng, CONCERN, Tel: 023 214 879, Email: bunleng.tan@concerncambodia.net