Community Preparedness in Bangladesh
Learning from Gaibandha, Bogra, Sirajganj districts following the floods of 2007
COMMUNITY organizational capacity further handicap their efforts to effectively deal with the PREPAREDNESS IN impacts of recurrent disasters. The negative impact of natural disasters BANGLADESH exacerbates their poverty and vulnerability.
But it is not only "big" disasters that Almost every year millions of people are destroy lives and livelihoods; accumulated affected and lives and properties are lost losses from a succession of small floods, to floods and river bank erosion, especially droughts and gradual riverbank erosion can in the northern part of Bangladesh. Forty exceed the losses from big disasters and four percent of rural people live below the contribute significantly to increased poverty line and 5.27% have no land at vulnerability at the local level. These all. disasters attract little media attention and communities are often left on their own to The “Mainstreaming livelihood-centred cope with their aftermath. approaches to disaster management” (DRR) project is working The annual monsoon floods of July and with communities exposed to floods and August have impact on everyone in the river erosion in five Unions (smallest local area. Even those who are able to cope and government unit) of Gaibandha Sadar recover suffer damage to their few assets, Upazila (Kamarjani Union) in Gaibandha including their crops and their means of District, Sariakandi Upazila (Sadar and earning a living. They struggle to regain Narshi Unions) in Bogra District and control of their livelihoods. The poorest, Kazipur Upazila (Sadar and Maizbari with very few assets, are worst affected, Unions) in Sirajganj District. All three each shock driving them further into Upazilas (lowest administrative unit in poverty. Bangladesh) are on the floodplain and situated on the western bank of the mighty Brahmaputra-Jamuna River.
These three districts are among the most disaster-prone areas in Bangladesh. Vulnerable people living along the riverbank regularly face devastating floods and severe river erosion. Inhabitants of these frequently flooded zones suffer from extreme poverty, poor health, nutrition and little education. They have little access to government services and information and their lack of economic opportunity, poor A woman sitting outside her flooded house infrastructure and absence of Poor people living in exposed situations are not helpless victims waiting for inevitable disaster to strike. Flooding and erosion are annual on-going events for which people have evolved strategies to cope and recover. Avoiding disaster is part of their livelihood strategy. However all too often their coping strategies are inadequate and their livelihoods are overwhelmed by the strength and severity of floods or the extent of erosion. Community based disaster Preparedness (CBDP) must therefore take account of Flooded settlement how people make their living and must
2 involve the people themselves in identifying asked “Did your household experience any the constraints under which they live and crises during the last twelve months?” All the measures which can be implemented to the respondents answered that they had. reduce their vulnerability. 92% named flood, 4.1% identified river erosion, illness had affected 2.1% and 1% Traditional coping with crises – reported crop loss as having disrupted their before project interventions lives.
In order to cope with these crises, a range Rural households in Bangladesh especially of strategies were employed. Migration in in Gaibandha, Sirajganj and Bogra districts search of work was a commonly chosen routinely plan for and manage the option. Other options included distress sale uncertainty associated with periodic floods, of labour (22.7%), borrowing from family or river erosion, storms, and drought related friends (22%), borrowing from an NGO crises. Flood related activities take place (31%), borrowing from a traditional money every year. From April to December lender (9.3%), distress sale of crops livelihood activities such as growing crops (4.1%), depleting household savings or fodder are severely disrupted by the (36.8%), selling animals (1%) and selling floods as people prepare for, cope with and household items (1%). then rebuild their lives. 87% of respondents stated that during and Uncertainties pose particular hardships for after times of stress, women are often worst the poor who are chronically vulnerable in affected and have to carry many extra terms of their access to resources. Rural responsibilities in addition to their normal households have developed a range of roles of cooking and caring for children and strategies and livelihood choices to deal animals. Despite their difficulties, women with local seasonal stresses that are come up with ingenious solutions for endemic, even in “normal” years. These obtaining water, animal fodder and strategies include various methods of whatever food they could manage to income generation, food consumption acquire for their families. habits, savings and social or kinship relations which help them to ride out and During times of stress citizens tend to cling recover from shocks and stresses. together and provide support to one another. Some better-off families distribute Generally the floods cause havoc. People cooked food and other materials to poor resort to desperate strategies in order to neighbours. Feelings of community and cope, selling their limited assets including fraternity are strengthened. Those who have cows, goats, chickens, tools and utensils, access to a boat share it with neighbours ornaments and even their clothing and food for transporting them to a safe place. These reserves. Houses are damaged and crops behaviours reinforce community solidarity; and agricultural land are often swept away. differences are repressed and similarities People are unable to engage in economic are accentuated. According to the activities, mobility is restricted confining respondents, this helps people cope with people to their immediate locality. The poor crises. are exploited by money lenders providing loans at exorbitant rates of interest. Cattle which have been reared for sale, at times of hardship decline in value, often by as much as 40% due to supply outstripping demand. People commonly have to move from their homes and take refuge on the embankments, on hillocks, in school buildings, pucca houses and in Union buildings.
During the baseline study, conducted in July 2006, community members were Volunteers moving household assets to safety 3 Humanitarian assistance
Sometimes the extent and severity of the floods completely overwhelms the ability of communities to cope on their own. In emergency situations such as these, access to humanitarian assistance is essential. Emergency relief is the aid and action needed to save lives and alleviate suffering that is provided by agencies outside of the community. Sources of emergency aid include NGOs, international NGOs and government agencies. Food is often the major requirement of affected communities, followed by clean drinking water, access to medical services, shelter and clothing. Community VCA Meeting During widespread or complex emergencies, humanitarian aid is often not readily Community participation is arguably the available. The establishment of linkages most important component of the project, between communities and local service ensuring commitment, ownership and providers and external humanitarian sustainability of the activities undertaken. agencies in advance of the onset of It is vital to ensure “buy-in” from all disasters can influence the speed at which sections of communities, local authorities emergency aid is delivered thereby reducing and service providers. The implementation suffering. of the project in partnership with local NGOs goes some way to ensure that DRR project interventions impacts are sustained beyond the life-time of the project and that a reservoir of The practical application of a livelihoods expertise is locally available. In all the approach to risk reduction work helps to targeted communities, people have come identify the extent and nature of the full together voluntarily to form Community range of peoples’ livelihood assets and their Based Organisations (CBOs) who provide a vulnerability to hazards and other external lead for the identification and forces. This makes it possible to identify implementation of local development entry points to protect the assets that are activities. most at risk or most valuable in times of crisis. It gives insights into peoples’ choice The project interventions focus on both of strategies – why they live in fragile and strengthening individual livelihoods and potentially risky situations and how they increasing their preparedness for dealing cope in “normal” circumstances. Activities with hazards. The over-arching goal which strengthen livelihoods and increase of this project is a reduction in resilience can help reduce their disaster risks (DRR) which contribute vulnerability. towards sustainable development and poverty reduction. The situation existing in the target communities was assessed using Community based disaster participatory vulnerability and capacity preparedness analysis (VCA or V2R). Communities were facilitated to identify local hazards, their Disaster preparedness refers to measures assets and deficiencies as well as activities taken in advance to prepare for and reduce which build on their existing coping the effects of hazardous events which strategies, resources and skills. Based on threaten to become a disaster. the VCA findings, local development plans Preparedness activities are designed to, which incorporate risk reduction, increase where possible, reduce social disruption resilience and the diversity and and losses to existing assets while helping sustainability of livelihood strategies were affected populations to respond to and cope formulated.
4 with the consequences of a disaster. Capacity building and training on DRR Although these activities can serve, in the issues, including preparedness has been absence of more permanent mitigation provided to Community based measures, to reduce the threat to loss of organizations (CBOs), community and life and property, they are most effective youth volunteers, school students and when employed as a component of a teachers, religious leaders and Union and comprehensive, overall disaster risk Upazila Disaster Management Committees reduction plan. in all the target areas. 300 community members and 300 youths (school Community Based Disaster Preparedness children), half of whom are women, were (CBDP) recognizes that people in high risk motivated to volunteer for training on areas, have used local knowledge to disaster risk reduction strategies at family develop their own coping mechanisms and and community level. Training included strategies to reduce the impacts of search and rescue, first aid and the disasters. This knowledge should not be dissemination of early warning messages. ignored but rather strengthened. The The volunteers were trained to carry out inhabitants of exposed communities are specific roles before and during disasters. always the first to respond to a disaster. They also took part in public dramas, folk They are usually involved in search and songs, rallies and school-based campaigns rescue activities as well as providing to raise DRR awareness throughout the treatment and relief to their families, year. They have organized community friends and neighbours. CBDP seeks to meetings to demonstrate mitigation works augment and improve these skills through (such as raising house plinths and training in preparedness measures, rescue planting trees) and carried out simulations techniques and first aid. on what to do at the onset of floods. Examples of two preparedness plans Preparedness includes mitigation designed by CBOs and volunteers as well activities designed to reduce the as a UDMC are provided at the end of the damaging impact of floods. Raising the report. plinths of houses above previously recorded flood levels has been promoted, low cost cluster housing has been developed, flood-proof sanitation and elevated hand pumps for clean drinking water have been installed. Floating seed beds and vegetable gardens enable crops to be grown during periods of inundation. Fodder production and preservation for feeding livestock during floods has been promoted, while seed banks provide a vital post-flood resource. Households have been encouraged to store valuables and food stocks above flood levels and to use UDMC creating a disaster preparedness plan portable ovens. Community volunteers have also conducted courtyard meetings. These community meetings have been shown to be an effective tool for building a culture of safety; raising awareness and providing appropriate information on how to reduce individual and community vulnerability to locally prevalent disasters. The volunteers also perform social welfare activities with the help of the local administrations, NGOs, Union Disaster Management Committees, educational and religious institutions and other agencies. A hand pump raised above flood waters 5 Information, education and communication Floods of 2007 (IEC) materials such as posters, leaflets, brochures, rickshaw tinplates, festoons and During July and August 2007, extensive bill boards have been produced in Bengali. flooding inundated large tracts of These convey vital life-saving messages on Bangladesh, including the three project how to prepare for and survive natural locations. This provided an opportunity to hazards. Together with the community risk assess the effectiveness of the community- and resources map, the seasonal calendar, based disaster preparedness plans contingency plan and community based developed over the previous year. A survey disaster preparedness plan developed was designed to answer the question “Were through the vulnerability and capacity communities that had preparedness plans assessment (VCA) with community and and more diversified livelihoods better able stakeholder participation, the knowledge to cope with and recover from the extreme and confidence of communities to respond floods they experienced?”
appropriately to disasters has been enhanced. A random selection of 102 households was selected for individual interview The project has facilitated the formation of (representing one interview for every 14 Community Based Organizations (CBOs) in households) over a period of 12 days at the the targeted communities. The mobilization three project locations at the end of 2007. of communities around disaster Nine focus group discussions involving 72 preparedness activities has reinforced household heads, (including 26 female community cohesion and stressed the value headed households) were also held. In of collective action during times of addition eight key informants, (including adversity. Training, together with local government officials, Union Parishad equipment such as rescue boats, life-belts members and local opinion leaders) were and other necessary aids has been provided interviewed. to the CBO members. Megaphones have been provided for the dissemination of early The interviewees represented a cross- warning messages. The community capacity section of the communities, were mostly and awareness building activities mobilize poor and included house-wives (41.4%), all sections of the community in working day labourers (6.1%), agricultural labourers together towards the long-term well being (25.3%), rickshaw pullers (5.1%), small of the community. traders (6.1%), boatmen (1.5%) and other professional groups (15%). More than half Union Committee members and Upazila the respondents were women. officials have been involved in the project from its inception. Their support and interest in the process and outcomes of the Project impacts in the light of the community-based activities has influenced 2007 floods the course and impact of the project. Through exposure to the community based Preparedness encompasses the ability to planning process and other project predict and, wherever possible, prevent activities, the local government disaster disasters, lessen their impact as well as management committees (UDMC) have facilitate response and handling of their been motivated to move from focusing on consequences. In the project working area, relief to a preparedness approach. Capacity the project had increased the preparedness building has resulted in their adoption of a of the communities through the activities comprehensive DRR plan which includes described above. specific measures including provisions to evacuate the most vulnerable such as 81% of the respondents reported that they children, the elderly, people with were prepared for future disasters, because disabilities and pregnant women during they had a disaster preparedness plan and disasters, and the promotion of flood- as a result of the training that they had resistant WATSAN facilities in the flood received, they were able to follow the plan. and erosion-prone river bank areas. Questioned on their ability to prepare food during floods, 82% of respondents said
6 that they had arranged portable cooking the participants, and preparation of an stoves, while additionally, 38% said that action plan had specially preserved rice and other dry · Following the trainings, the community foods. volunteers and youth volunteers prepared an action plan for disseminating messages on disaster risk reduction to households in their respective communities. · Stakeholders of prepared communities have higher level of awareness on disaster issues than the unprepared communities · Stakeholders of prepared communities are well trained in terms of community disaster management. · They have more knowledge about coping strategies and are able to put into practice appropriate coping
A woman with a portable cooking stove is able to strategies. cook after a flood · They are able to recover quickly · They are moving toward secure However, only 48% of those interviewed livelihoods had thought it necessary to move their · Hardcore poor, especially the female livestock from their homes to the headed household members, know embankment. about preparedness, including family level coping strategies and their roles 89% of individual respondents reported and responsibilities before, during and that they felt better informed about after disasters. preparedness then the unprepared communities. The question, “Are the Unprepared communities were described communities with disaster management as:- committees and preparedness plans better · Not aware about disaster management. able to cope than unprepared · Not having received any training on communities?” received unanimous disaster management. agreement from focus group members. · Not knowing about strategies for coping with disaster Specific components of preparedness · Recovering slowly which were identified as being of particular significance to them included:- Early Warning · Beneficiaries of prepared communities have themselves identified and Given sufficient warning people are more prioritized the problems of the area. likely to be able to respond appropriately to Community based disaster the imminent onslaught of a hazard. The preparedness plans were then greater the time communities have to formulated to address these problems. prepare, the greater the savings in human life, household assets, livestock and stored · Beneficiaries of prepared communities provisions. An appropriate Early Warning received training to create mass System (EWS) is therefore an essential awareness and develop understanding component of any preparedness plan. of disaster risk reduction. · Beneficiaries of prepared communities To be effective the EWS must reach to and are more aware about the basic be understood by those most at risk. concepts of disasters, causes of Equally important, they must know what to disasters, preparedness, risk do when the message reaches them. To management, family level coping reinforce the flood warning messages strategies, roles and responsibilities of carried on national and local TV and radio
7 networks and to ensure the warning reaches How they benefitted by Percentage of local communities, the mosque loud- the rescue and Evacua- respondents %* speakers broadcast warnings of rising river tion plan levels. The community and youth volunteers are each responsible for ensuring that 10 Save their assets and 32 households are informed. Based on the houses predicted severity of the approaching Migrated safely 19.4 hazard, the preparedness and contingency plan specifies what action needs to be Using boat for migration 19.4 taken. People have time to move their during flood assets and valuable belongings above flood Saving life and livestock 67.4 levels and if thought necessary, to evacuate themselves and their livestock to pre- Disseminate ideas to oth- 54.9 ers designated safe places. * Multiple responses considered.
According to the respondents, the contingency plan was very useful to them. 69% of respondents had carried out mitigation activities as specified in the plan, such as planting trees and herbs around their homesteads, raising their homestead plinths, raising tube well platforms and preparing boats. 82% of the respondents thought that the disaster A volunteer search and rescue team preparedness plan and contingency plan were implemented well. Contingency plan When asked how they had benefitted from
the plan, one person replied The contingency plan details steps to be taken following the onset of flooding. “Without preparedness it was not possible Search and rescue and evacuation to save our livestock, lives and utensils. We procedures have been taught to members of moved from one place to another place community disaster management easily. The preparedness plan guided us to committees and CBOs. Boats, lifejackets safe sheltering”. and other equipment have been supplied. The community is aware of the plan and has implemented many of its elements. Recovery
The rescue and evacuation plan proved very In order to survive interruptions in income, useful to the community as it provided reduce losses to their homes or businesses, operational guidelines and clarified roles evacuate or relocate, rebuild homes and and responsibilities before, during and after businesses, and replace needed work the flood. The plan helped community space, tools, livestock, or equipment, members to identify activities to be people living in hazard-prone regions undertaken to address vulnerabilities identified several key resources. These before, during and after the disaster. The included secure sources of income, access community leaders were able to identify to savings or credit, employment with social available local resources and to mobilize protection, marketable job skills, education resources from outside the community and training, and control over productive (fishing boats, communication equipment, resources. Other key resources include evacuation site and volunteers). mobility, health, social support systems, and safe and secure housing. The table below illustrates how community When asked “What did you do to recover members feel they have benefitted from the from the floods?”, beneficiaries of the plan. project interventions described how they
8 initiated various agricultural activities such recovery that included access to as vegetable cultivation (44%), nursery appropriate external support. The value of a development (21.6%), preparing fodder comprehensive plan that has been (5.6%), tree plantation (56%), livestock formulated and is understood by the rearing and fish cultivation (14.4%). Other community and local service providers is strategies included small enterprise clearly advantageous. development (19.9%), loans from NGOs (65%), loans from landlords (2.6%) and Conclusions friends and relatives (17.9%) (multiple responses considered). Others had sold Working at the individual, household and their livestock (5.4%), were involved in community level, the Practical Action DRR daily labour (67%) or had sold their labour project in Bangladesh has demonstrated in advance to their land lord (5.4%). that more secure and sustainable livelihood strategies, coupled with preparedness and In general the interviewees felt that they contingency planning has enabled were now capable of facing the challenges communities to efficiently manage of disasters. According to them they are hazardous situations and recover more now much more aware about disaster quickly. Losses of lives and livelihoods have preparedness, disaster management and been reduced. While the comprehensive recovery. They are now capable of restoring control of water-related natural hazards is their livelihoods by initiating floating not entirely possible and vulnerable gardens and nurseries, fisheries in flood populations will have to continue to live water and small enterprises as alternative with the associated disasters which they income generating activities. Most of them bring, continuing effort is required in the reckoned it took 6 to 12 months to recover development of a national disaster after severe floods. It was acknowledged management plan that takes account of the that people with disabilities, widows and needs of exposed rural communities. single parent households were often unable to recover at all. Wealthier people with While the preparedness and response access to more money or assets were able capacity of local communities has been to recover quickest. stressed, not all disasters can be managed at local level; sometimes the extent of the It was widely recognised that flood affected devastation is just too great. This is when a people who had not received training on national disaster response system, backed disaster preparedness, mitigation and up, if necessary, by regional and alternative options of livelihoods were not international support, comes into play. able to overcome the distress situations. Community preparedness and contingency Linkages established between CBOs, NGOs plans should include linkages with and the Union and Upazila Parishads appropriate humanitarian agencies to which facilitated an effective and coordinated they can appeal for assistance when necessary.
DRR Volunteers preparing their action plan 9 Example
Weekly Weekly saving collection for CBO strengthening nutrition Courtyard meeting on pregnant mother and child social violence by volunteers Courtyard meeting on early marriage, dowry and volunteers Courtyard meeting on disaster preparedness by Fund collection for critical flood situation address lection by volunteers Awareness building on seeds preservation & col- by Community volunteers Shelter arrangement for livestock during disaster tion Linkage with Govt. & Non Committee Coordination with Union Disaster Management Emergency information centre operation disaster Ensure water and sanitation situation during sion) Day observance (Rally, cultural show and discus- teerism (after flood) Minor renovation of village road through volun- massive awareness Posturing on disaster preparedness slogan for CBOs & volunteers Emergency relief collection & distribution by rescue volunteers Rescue, evacuation of flood affected people by paredness Courtyard meeting with community on flood pre- munity Provide Flood early warning message to the com- Monthly Coordination Meeting Particular of Activities
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1: Preparedness1: plan by CBOand Volunteers (Yearly Action Plan: April 2008
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Government Organiza-
Apr.
May
June
July
Aug.
Sept.
Oct.
Nov.
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March2009)
Dec.
Jan.
Feb.
Mar.
CBO CashierCBO Yesmin, Sabeda, Majida, Latifa Yesmin , Chan miah, Lalmiah Yesmin , Tapon, Rokeaya, Minu membersAll Raju , Chan miah, Kuddus Lalmiah, Sabu, Chan miah Sabu, miah,Lal Sabeda, Chan Lakl miah, Chan miah, Saddam As per responsible plan by volunteers volunteersAll As per responsible plan miah.Lal Tapon, Saddam CBOAll members & volunteers Sabu, Amirul, Chan , Raju Community volunteers Raju, Yesmin, Saddam membersAll Sohel, Tajul, Raju, miah,Lal Saddam
Persons responsible
10 inghealth camp, medicinedistribution etc. Ensureheath servicesduring post floodperiod by arrang- deadanimals and other contaminants Keeppollution freeenvironment throughcleaning of debris, death Arrangetransport of dead bodies andrelativesinform of stock Arrangevaccination camp, medicinaltreatment live-for initiativesTaken rehabilitationfor agriculture of activities duringsheltering Specialattention disabledfor and handicappedpeople Arrangerescue boat evacuationfor and rescue work betterfortee services Coordinationwith Upazilla Disaster Management Commit- Conductawareness sessionabout disaster mothersduring sheltering Providebetter services women,for elders and pregnant Preparinglista of losing households Repair/maintenanceroad communications after flooding Arrangedry foodand saline victimsfor Ensure securityof shelter camp Arrangesafe water and sanitation shelteringfor people andlands distress places Rescueand evacuation of floodaffected people from char people Floodearly warning dissemination among the community Monthlycoordination meeting
Example
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2: Preparedness 2: plan of Union Disaster Management Committee (UDMC),(Period January 2009to December
Activities
Jan.
Feb.
Mar.
Ap.
May
June
July
Aug.
Sep.
Oct.
Nov.
. Dec
Note:
andpregnant mothers. elderly,disabled, children takingspecial careof UDMCare responsible for Female membersof quired. asings and when re- meetingand special meet- ing monthlycoordination responsible is organiz-for UnionParishad secretary
11 Case Study test”, said a confident Sabu Mia.
A snapshot of a CBO’s activities: The CBO members felt that by performing Responding to the Floods of 2007 these activities in the community their social standing (dignity) had improved. They are now confident enough to To help address community vulnerability to communicate with external service floods in Kamargani Union of Gaibandha providers for their needs. “The Upazila District Bangladesh, a group of 17 people Executive Officer visited our community (11 male and 6 female) came together and observed our activities. He has assured voluntarily to form a Community-Based us of his support for our further Organisation (CBO) to serve their development”, said Md. Chan Mia. community. Members of “Ashar Alo Unnayan Sangstha” were trained in group “We will soon be able to involve other management and other skills and agencies in development activities in our encouraged to actively take the lead in community” confidently said the Chairman several community activities, including a of the CBO. Vulnerability and Capacity Assessment, the creation of awareness in the community regarding disaster preparedness, the preparation of a community-based risk reduction plan and the solution of various social conflicts.
The CBO has since arranged vaccination campaigns for livestock, motivated the community to carry out work to improve their water and sanitation facilities, repair culverts, bridges and the embankment and assisted government service providers to organize meetings and training workshops in the community. CBO members preparing temporary latrines following a flood. In the recent floods the CBO members performed several vital roles; monitoring Further reading on the project: the flood situation, raising community awareness, disseminating early warning Practical Action Bangladesh 2010. “Elements of messages using early warning equipment disaster resilience: lessons from supplied by Practical Action and rescuing Bangladesh”. Practical Action, Dhaka, flood marooned families. Bangladesh. Available on world wide web
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