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_ A{~C,j --'::-0------.~------.------MEMB/';R ~1H. A,JMl\.L II. AIlMlo.D HEAD, lJBPAR'l'Mt':N'[' OF UJWlIN AND lj JU;UIONAL PI.ANNING, JIm:'!', DI1!\KJ\. ---~~------MEMIJP:R mt. W.J\. MOIIJ'!' .1 ASSOCIATE PROFF:SSOR 'I IlRPI\R'J'MBN'l' OF URBAN AND -11: REGiONAL PLl\NN1NG, BUET, ml1lK1\. -----~ .._------MEMBER ])R. S.l. KHAN r~XTERNi\L CHiHRMJ\N GRlIM llANGLA flIlNGS,llll. , 211./1 ELEPHANT ROAD, lJIJAKh. • lJEPARTHEN'l' OF URBAN AND REGIONAL PLANNING Bl\.NGLADElJlJ IJNIVERSrry OF r,;NGJNEERING AND 'I'ECHNOLOGY,• DHAKA III • ACKNOWLEDGEMENT 1'hj" 1'e50".1'"h paper ent..i U eel "Inr;ti tu Li anal Framewurk for eye lone Di5<1ster Man'lgement in {IilJl First of ,,11, I would like to th,l"k Dr. SarWiJ[ Juhan, A550(~iate Professor, Department o[ Urban awl RogiOllal Planning, whose I dm thankful tD Lhe Unit8[1 NatiollS Ccntpr [Ol Region'll Development (Nagoya, ,Japan) for prQvjdilllj me wH.h tile linanci"J Cl5sistance to carry Ollt tile rcsearch work. Thanks iI,e also due to Dr. S.I. Kh"n, fO('mel Environmentil.l Pldnner, lINCRDdnd Chairmiln, Gram lJang.1il,for his valuablp COlliments at di(rereut stages of ULe work. I ilm alsu thankful Lu Mr. Ajm,,] Il"yaL Ahmad, 1l",,,1, Department of Urban and Reg.innill Planning, DUP.'[', Dhaka, Dr. M.A. ~lohit, A[lsociilte Professor, and Mrs. R"zia S. Ahmad, Assistant Prof"ssor of the Silme depal-tment for their kind af'[li"t"""e dnd mot.iv,ltioTl to compJpte this research >lork. I also WqJ'-"SS my grilt.1 tude to Dr. Ainu" Nishat, Pro[c,,(;or, lJepartm8llL of Watf>r ReSOULC"" Eng.in"erillg, SUET. Dllaka, for his val"alJlE' commr>nts. 1 thankfully rememher Mr. Harun-al-Rilshid, Deputy Director, Mr. Asauduzzaman, n<,vpJopmellt Officr>r, KlJtubdla and ~Jr. i\tJdlJ.l ll"q, Development Officer, Cilakaria of Cyclonp !'repa,'C,ll1css Programme lor their enormous help I express my grati l:ude 'Lo Mr. f>yed Ahmed and Mr. Martin Gill h"m from thE' I),i"""ter ~Jandgement FlUl;eilu (DMB) for their ildvice rpgarding the trend of inGtitu~.io"ill development at th" qoveI"nment level and also for helpinq me Idth sevc'ral rlOClJments lela'Lcd with this study. 111 1 am thankful to Mr. Iqbal Shaila and ~Jr. Piuimol Kumar Roy from the Associatiun ot Development Agenc.tes of fJangl"rl",,,h (AIJAIJ)for i111 the support and advice they gave me from til" beginnjng of this resear-dl work. I am also thankful to thE' authQr.ity for a.1.1ow,Lngme to use tile library. Lastly, J w"nl: to 'l:hank Mr. A. Majed amI Mr. M.A. Baten for typing the contenL and tile computer firm" CARES" for their service. Fjn,l.11y I wanL to thallk Mr. Anwar-Karim for- trw labourious job he hils done for pr"p"ring Lhe graphics anr1 uverall designing of this repurt. DIL ROloIllHAN j -"'•.' . ABSTRACT The repeated occurrence of d",Vil5~5tiJlg natur,'] ,,,,lamitlE)s has become a major con"ern for the poli(~.v maken:: ancl pJ "fl"ers. Tho impact of such phetlOmena arc ext.ens",ve anu the recovery pl"OCeSS is lengthy. Cyclone is one of the major disast.ers uccuring in Ball\lladesh. The present study attempts to deal wi.th the institutional aspect of cyeIon" disast.Pl" managoment, The main objectivf's of the stud~' were (j) to understand the n"ture of functional co-ordination among the national, regional ilnd 10"al level government, ""mi.-qovernment and non~(jovernment agencies in cyclone disaster milllagemenl, (ill to invesligate the ,,,,lure of institutional support available at the \Jrar;sroots level ill ,nJar-eneSS gcncration, w~r"in The questionn"ire Slit V,JY for the st.uc1y",,"s conducted in twa Thana (Kutubdi" "nd C1wkaria) unclE'TCox's Bazar cliGtr.ict. Two sets of questionll"ire were prepared for t.his survey, ono for the households and the ol:llel oue for tho institut.joIls "resent in the are,~ which are involved with variouG stage~ of cyclune disaster manag"'ment. The househollls were ChO£:C'1lfromtwo WUTS"Laffectod areas of thr"e unions under e1Jch or the forement.ioned TIJ1Jna. In total 300 houselJOld~ were GUJ:'veyedunder ~y~tematic random s"mpliny process. The two GetG of 'luestionnaire helped in identify,ing tile problems encounter",d by the restJonllent G during di fferent stageG of the cyclone. It has boon learned thilt people's geuer"l awarcncc;s about various issu8s relat<"c1 with cyclone is lacking which result .in widespread uon-re£:(lon"e to the institutiunal support. Besides this, lack of well organis",d jn"ti l,u'tion1Jl support alGo caused geneT~l disbelief in cyclone warningG and Jlon-ev""",,tion ill 1991. The grave memory of this "YO'jone rlr~milti"i111y challyecl people'£: attitude towaJ:'ds in~titutjon"l 5upport which h'a~ relatively strength",ned or improved after the devastaLion o[ 1991 cyclone. , On the basis of tile findings from the inGt.itutjon~l survey, tile 1 problems that are encoulltel"ed by v"r ious local levc!l ilwt i tutj 011" at diffeJ:'ent stages of cy"lone di~a~ter Jn1JIl1Jejementarecategori.sed I, • ~' . , into following five' groups: organJsationaJ, [in"",,1.Lll, legal, inlrastructural and c:ocial or peop,le oLif'nteo. ~lajorJty of the .identitied problemc: and their c:uggesteClsolut.ions at.e org The mOGtfrequf'"tly 1.rlf'nt1.fif'Ciprohlp,"s "onfront'pd by llle I.JIesently invol vcd ins ti tut ions are lack of co-onJi"a l:jon, traj lled man-powpr and training rnatorialG, planning offort at tho higher level and Infraslrilctural facility. C:ons,ideriny lile prolJlBms aml t1leir solutions identifiod by the general population and th" .instil.ul.:iolls, and after reviewIng the preGclJt trend of institutionil] d"v"lopm"nt ilt t.he governm""t "nd non-government 1"v",15, a new inst.it.llt.ional set.llp has been proposed which iR p("imilriJy baspd upon the "xisting admin.l.Rtratjve structur" but g("ildually develops in tprms of inRt,itulio"al componenl anrl Functional co-ordinat.ion. The iuslll'ullolliil [ldmewur]( dS (ll'u(lusel1leaches .its (iual slaye o( developmeul tilt uw,)J,three phases. A SJWIt term appruad, is pI uposed allhe first s'taye. Nu miljor change is brulIgh1: in the institui.;onil] (l'amewurJ, Lll lhis st"ge exceptinq lhe ",-ealian o( disaster management commitlees at various aclminis'tralive urders. The Sf'corJd phase is il1,mti(ied dS a mid 'term approiiLll, wl,ere some new oomponents are added ill U,e iliSliLuLionill framewurk at the national level. These new components will of culIrse be replica'led at t.hf' lower levols of admini,;tralive hierarohy lhruu 11. model re<,JardiJl\J proper warning Ciissomination and planned evacuation ha,:,been develuped provided tllat )lropORf'd inst. __it.utional setup of t,he finai Gtage is pruperly implemented <'Ind shelter Lwility is ade'luatf'Jy im)11:ovcda,:,per plan alld 1-'rop05als. • TAU),E OF CONTEN'I'S PAGt~ NO. CHAPTER-l 1 NTRODUCTION , 1.1 Disasters and Ililllgiadesh , 1.2 Disaster ilnd Glohal Concern 1.3 Rationale ot the Pres,mL Study e 1.4 Objective of the Dtudy 9 9 1.5 Methodology 1.6 Limitations of th", SLudy 16 CHl\P'I'ER-2 CYCLONES IN BANGLADESH . \/2.1/yclOllCG J n BangJ ildesh ,~ The Super Cyc:lone 01 1991 "16 ~.2.1 First llpi.ection 16 2.2.2 Bulletins 10 2.2.1 Prcp CONCEPTS, ISSUES ANn COUN'I'RY EXPERTENCE 3.1 Introc1u"Lioll 29 3.2 What is DiGaster 29 3.3 Disas tel' ~Jan,lgel1l('nt 10 3.3.1 Preparedness 31 3.3. 3.4 Organisational Struclure 44 3.4.1 lusti tul- ion Development 46 [or Disa~ter Management , 3 .. 7, Organisational Cumponent 47 3.5~ DIsaster Management in Different Countries 50 3.5.1 The Caribbean Lslands 51 3.5.2 India 51 3.5.3 Philippines 53 3.5.4 sri Janka 3.5.5 Bangl"desh "55 3.6 Summary 67 CHAP'J'F:R-4 DESCRIPTION OF THE STUDY ARRAS AND 7'HE IMPACT OF 1991 CYCLONE Intl"o(]uction 69 Physical Condition 69 Demographic Characteristics 73 4.3.1 Age Composition 73 4.3.2 Educalion 75 4.3.3 Occupalion 76 • 4.3.4 Yearly Income Distribution 77 4.3.5 Housing Condilion '" Effects of. J991 Cyclo]]e eo 4.4.1 Human Deiltil 66 4.4.7, Human Survival on Trees 4.4.3 Los[; of Dumestic Animals " 4.4.4 Effect on Tn""s "53 4.4.5 Effect on HOUResand type of assistance received fOT house reconstruction "' 4.4.6 c.inaneial 1,055 of Different .- .-- Income GroLlps / " / 4.5 Summary " CIIAPTER-5 PEOPI,E'S AWARENESS ABOUT C,YCLONE DISASTER !'1ANAGEMENT ";~ 92 5.1 Introduction , 5.2 Awareness about Warning Signals " ,, , VIII PAGE NO ,., Perception about Per iod of I'vdcuatioIJ 5.4 Idea about Safe Place 5.5 Suggestion on 'rrainlng Module (or Disaster Management 5.6 Suggested ApPl'opriatc l'la,"e for Training n PeopI'" 5 Opin.ton about 'l'raining Module n 5.' n '.8 People'(; Willingness to Participate HI Grassroots Level Organisation 108 5.9 Peopl,,'s Idea About He.igltL 5.10 People's Idea About nistance 108 5.11 Summary 101 CIlAI'TER-6 WARNING DISSEMINATION 0.1 Introduction 6.2 People's Awareness about Cyclone Warnings in 1991 and 1992 U sources of Informiltion 104 6.8 People' 5 Rea" lion Aft8r Heari ng the W CIJAP'l'ER-'1 EVACUATION I '1.1 Introduction in 7.2 Reaction After Hearing the Evacuation Order in U Reason for Not Goin\! to a Safe Place 114 -/ • 4 Reason for Going to a Safe Place 115 Period af Cvaeuatian...___- 117 7 . " Place uf Shelterin\! 118 '" Selection uf a SMfe Plaee 120 '" Transport Medin Used for Cv,~cuation 1'1 '" Problems Faced on the Way in '"7.10 Assistance Received During Evac""tion 123 7.11 Problems FFlced in thc Shelter 124 7.12 Evacuat;oll uf Domf'stic AnimM1R 126 7 .13 Summary m , • CHAPTER-B PRESENT INSTITUTIONAL INVOLVEMENT AT LOCAL LEVEl, 8.1 Introduction 130 B.2 Tile Nature of Problems ,lod ~[,heJ.r ~oJutions 131 8.3 Institutional Involvement in ll.\Jareness Generat10n 133 8.4 Institutiona,] Involvement in Warning 135 Dissemination 8.5 Institutional Involvement in Evacuatiun 142 8.6 lnstitutional JnvolvemE'nt in RE'scue and 148 Relief Operation 8.7 Summary ] 55 CHll.PTER-9 PROPOSED INSTITUTIONAL FRAMEWORK FOR CYCUJNF: DISASTfJ'R MANAGEMENT 9.1 l'ntroduct.ion 1 57 9.2 Recent Development in the GOV"J:11mE'ntSector 159 9.3 Trend of Developmcnt at tile NGOLevel J 66 9.4 Proposed Institut,ional Setup for Cyclone Disaster Managcmcnt "" 9.4.1 RationalisaLion o( the Approaches 9.4.2 Short Term Approach 9.4.3 The Medium Term Approach 9.4.4 The Lony Term Approach 9.5 SummLiry CIIAPTER-)0 A MODEL FOR WAHN1NG D.1SSEMINATION AND PLANNED EVACUATiON 10.1 Introduction 191 10./. Population and Shelter Facility After 182 2000 AD 10.3 Determi.nation of Pilysica1 LocLition and Cat"tJJnent Area of the CyclolJe ShelLels 10.4 Planni.ng Area SuLdivision m 10.5 Assigning Jious"holds and Planning Aleas 196 10.6 Warning D.isr;cUlinaLion and -"vLlcu,~tjon m 10.7 Summary '" ClIAP'l'P.R-ll SUHMARY AND CONCLUSION REFt<:RF:CSES 211 QUESTIONNAIRE 216 LIST Of' 'I'ABLES CHAPTER 1 PAGH NO 1.1 Time schedu.le ot the s'tudy 11 1.2 Study area 11 CHAPTER :2 2.1 Types of cyclones occurring since 1960 in three ,-,oast,~1 region 2.2 Extent of damage of 199:1 cyelon" 2.3 Estima~ed mortality "24 2.4 District level casualty figures 24 2.5 District wis" loss of houses 2.6 Distribution of re.lief goods "27 after 1991 cyclone CHAPTER 3 3.1 Present insti'tutional involvement oc 3.2 Coastal and sub-coastal community 63 centres in coastal districts 3.3 Distribut.ion ot cyclone centres in lIangladcsh 3.4 Killas in co"stal district!:; "66 3.5 Inventory of cyclone shelters 66 CHAPTER 4 4.1 Basic demegraphic characteristics of 14 Kutubdia "nd Chakal'ia Than" 4.? Popu.latiun distribution Perception about total numver of cyclone ~arnings Perception about period of evacuation Ide" about safe place Organisations providing tra.inin<]/ad,"ice about prep"redlless dnd managemf'llt 5. 5 Suggested appropriate place fot shf'ltering 5.' Suggested train)lIg module 5.7 People's ~jllingness to participate in di~aster mana CHAPTER 6 10< 6.1 Period of rC"f'iving first warniny Source of ,infurmat.lon 105 '-'6.3 People's response to first warning 106 H Period of receiving evacuation order 100 (on t.hat day) Cyclone warnings i~~U(,d during 1991 and 1992 cyC'.1011e "0 100 6.6 Source o[ inform"tion Time requirement for e"aCllation 110 '-"'-' Suggested media for warning dissemInation 110 CHhPTBR 7 Reaction after hf'arin CHhPTF.R 8 134 "•J Problems relat<>d with awareness generatlon and llleir solutionn Problems related ",ith wilrning disseminatioJ] and their solution Problems related witil evacuiltioll 143 ilnd pOiJsible solution e.' Provlems related with rescue anrl relief '" PAGE NO CHAPTER9 9.1 Proposed institutional frHmework (Government) (Nat:i01J1l1 ]ev",]) 9.2 Proposed institutional framework (Government) (Field level) 162 9.9 Of[:icial responsibilities o[ the key organis"tions dt the !liltion"] level 9.4A Official respons:ibj]it:ies of the key organisat:ions at tile regional and local levei Thilna disaster manayomenl comm:it.tee "4 9.4B J" 9.4C Union disaster manag",ment commjttea 9.5 Programme orgauogr,~", of d:iGaster '" management project (NGO's) m 9.' Approach 1 m 9.' Approilch 2 9." Approach 3 '"' CHAPTER10 10.1 Desigu of the cy~ione shelter '" LIS1' OF MAPS CHAPTERI lolA Areas affected by floods and riverbank erosion 1 LIB Areas affected by cy~lone Delineation of '-'YClOIl8pl;O!le arellG 1.2 U L3 Effects of 199) cydone " CHAPTER2 Cy~lone trilcks of the count! y Delineation of dr8ilS )Jased on the extent of 105s of Ijves 2.3 Delineation ot i1reaS bas('d oil the extent o[ 110use damilge CHAP'rERJ National communication net"ork Communication network under cpr CHAl"rER4 4.1A Study are"s in regional settiny 4.1B Kutubdia Thilna 4.1C Chilkaria Thall" CHAPTER10 10.1 Proposed shelter facility :in Kutubdia Th"na 19'1 10.2 Proposed shelter facility in littilr DhurulIg Union (Kutuboia Tilanil) "" XIII LIS'f OF nCURES CHAPTER 1 Pi\GS NO 1.1 Nature of disasters and their _i.mp~cts , U Research organisation 10 CHAPTER 2 2 . 1 Monthly distribution of cyclones CH1\.P'£ER3 Disastor management cycle 31 ,.,'-l Stages related with disaster management 32 Models of government administration for '-' risk reduction " 3.4 Natural hazards occurring in Asia and Pacific 3.5A Cyclone warnings issued al maritime ports in Ban CHAPTER 4 4.1 Ago distribution of the study population 75 .., Distribution of households accoluing to major 77 soUrce o( (amily lllcome 4.3A Hnman shelter.ing on roof t.ops 81 -4.38 Human sheltering on upper chamber of the house 81 4A Nature of human death .in1991 cyclone 4 .• , TI'lmanslJrviv,,]on trees "'B4 CHAPTER 6 6.1 People's awarenoss about cyclone warnings 6.2 People.s awareness about. evacuation order CHAPTER 7 7.1 Nature of evacuation in 1991 and 1992 117 CHAPTBR 8 0.1 Nature of problems of aWareneSs generation and their solutions 8.2 Nature o( problems of warning dissemination and t.heir so.1ut.ions 8.3 Nature of problems of evacuation and their solutions 8.4 Nature of problems of roseuo and reliof operation and their solutions. Stand by distressed unitl'(lly: Khale TNTRODUCTTON •I Massive relicf w_orkb} tons goods dr "..".,. , CHlIl'TER - 1 1.1 DISASTERS AND BANGLADESH Tile physical characteristics of the landmass largely contribute in shaping up the socia-economic scenario of a coun'try. Bangladesh is in a ullique geographic position in terms of its relative location, climate and topography. Three of tho major river syst"ms of the world, n Apart from these catastroph.ic disasters, there are some diastrophic calamities wllich includo river bank eroGion, deforestation, imbalance creation by excessive une of ground water for irrigiltion etc. M Needl ess to S'lY that the economic i ",pact of these disasters are not only evident at the household level but also at the national level. Huge amount at nationdl and international resources are diversified towdrds relJef and rehabilitiltloll sector after each dev 1 -- '1 , ,,- ,,- AREAS AFFECTED BY FLOODS AND RIVERBANK EROSION , , '.'1,1' 't "'" ","" '" " '"'" ~.. 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CYCI.(" [~ " OR'" wi '" "" RRIC'N' , ••• ,~. wi" , ••••• ofR ••• '" ",,,ot: CUR''" '''C'-'T """' ' 0.,""",,1 .,," '•• "••• " •••• ~•• " "",l~m""".S"',,, ,.. "ft"c,,-"'.",__ ""'••••'"of""•• WI,',!,,_L J1.~ •• •._.q....,_~ H."••..•F_.Cw' c,.""k'~,_.," '"'' '''1-1'''' ''''.,.., ,."., ••• """ ••H.,•••••• "."". "..•" ,., ,"' , , 0 000 ),00:' 0 0 n"",- ,- '" " , , ,, 0 OW <0<"', ,- " 5,14> , 0 0 , " ",'" ,,"- , ,, 0"' >l" OJ. I'~,I ", '4-'0 II,,,"' " ," I',,",' 1I,'" " ",''". " -' L , , ", ", ." ",> OJ. I'~' -', ,,~,,' ," " ", 0 0 " '".00 00/,' -'" 'Coo m •, , 0 , oro •, , , , (~"',''''". ,- " "c, ., _,~,m '" «, ., 'luun , " , ", '" " ", " ", ", , '" >r"y>S, '00 " '''0 ",,". m" '" "w" ,. I'" ••• ,,,' m '''" "" '""~I~.""'" '"" '"" '"" ,," "",," '" '0 '",~" '-,,' ,~.•.",'- .""" ~'",~",''-',"""'0 , ,..,.."-~"~'''"'''''~', Disastei:'--Management Bureau M,p 1.18 .- ,."U"--''":.-:''i'~'' q~""'-""~' I Settlement I I Disas[e: I I Effect I I Consequence I I Flood Plain Area I •. I Flood I •. I Loss of Lives, Damage I •. Migra[ion to Urban Infrasrructure House, Crops Slu~ms!Newh emerging jands I Coastal Region i •.I Cyclone I' • Loss of Lives Houses, Migra[)on to U,ban • Crops. Other Properties SlumslNewly emerging Trees. Damage 10 lands Infrasrruclure D'$lilUtes I Flood Plain Area I •.. River Bank Erosion ___ 1-L~o~"~o~f~LL;'"~dd;'~d~=1-Propeny. House etc. .11Nf:Ii~g~"::'~io::"~'~O~U~'~b:'":::=-SlumslNewlyemergmg --'---'----- lands North-Western Pan 1 --I Drought I --I Loss of Fertlllly I •. Migration to Urban I of the Country ,------of Land SlumsIKewlyemerging lands Figure: U Nature of Disaster- and Their Impact ].2 DISASTERS AND GLOBAL CONCERN The occurrence of such deva~tating calamities in othel" parts of the world and cOll'Linued global environmental degradation has no'" become an high-ranking issue of international concern. The "I;:ilrth Summit" of 1992 waS the first, con~olidated effort towards world recognition to the envil'unmental issues. Later on, the General Assembly of the United Nations adopted a resolution 144/236) on 22nd December (1992) and proclaimed the International Decade for Natural Disaster Reduction. The prime objective of the decade is to reduce through concerted international action, especially in developing countries, Lhe loss of life, property damage ilnd sociill and econOffilC disruption caused by natural di~asters such as earthquakes, winds torms, tsunamis, floods, landslides, va] callie eruptions, wildfire, grasshopper ann locust infestations, drought and decertificatiun and other calamities of natural origin. The Goals of thE' Dew"de "re: • To improve the capacity of each country to mJligate the effects of natural disasters expeditiously and effectively, paying special attention to as,>isting developing cuuntries in the asses~ment of disaster damage potential and in 'the establishment of early warning systems and di"astel: resistanL slruetures ",hen and where needed; 1'0 dev.l"e appropriate guidelines and strategy for applying existing scientific and technical kno",ledge, taking into account the cu.lj:llr,~.l and economJc diversity among nations; To foster scienLific and engineering endeavor-s aimed at closing critical gap in ) To di::;seminate existing and new technical information related to measures for the assessment, predJcLion and mJt Lgation of natlJ! al disaster s; 'fo d",veJop mf'aSlJr"." for the assessment, prediction, prevention and mitigation of natural disast.ers through programmes of tedmi"a1 "5sistance and technology transfer, demonstration projects and "ducaL ion and training, tailored to specific disaster and locations, ) and to evaluate the effectiveness of those programmes. The Government of the member countries are culled Lipan to prepare national development plans incorporating disaster mitigation programmes and to rlevelop economic, land Use and insurance policies accordingly. Special emphasis ha" been viven upon mobilization of public and private sector support at the lucal level. Higher level scientific and technological committeos may be setup to guide the nece56ary actions to be taken for disaster management. Int"rnational co-operation for exchanqe o[ inform"tion and co-ordination of internatio""l efforts shou.1d be encouraged wlIicll would enable each state to benefit from 'the experience of other countries. It is also suggested that special programmes should be taken for aWflreness generation, prepflredness, prevention, reli,ef and short term recovery. Duo at.tentioll shou,ld be given to health centres, food storage f"cilities, human shelter and other socia-economic infrastructure which flre required for disaster management, Infrastructure shoul Scientific and technological institutions, financi"l institutions, including banks and insurance eompanies aIld industri"l enterprises and other related non-governmental organisations are encouraged to support and participate fully in the progrllmllles and activities of the decade prepared and implement.ed by the international community, including governmetlts, inteI""tional organisations and non-governmenta 1 oI\janisations (IDNDR,1992). 1.3 RATIONhLE DE' TIlE PRESENT STUDY fiistorical documents and official reports give evidence in favour of occurrence of devastati.ng natural calamiti"s in this country from a distant past. Poople learned to survive through th"se disasters w.ith the help of their own expelionc". The recent experience of dev"stating natural disasters in01ud"s the [loods of 1987 and 1988 and before it could milk" up for tile 1055 that ",as incurred during those t",o floods. the country had Lo face up to the super cycJon" of 1991 tllat a,-,tounded not only the citizens but also , tile people around this world. The ~yclone of 1991 has l"ft it's marks of devasta'tion in ev"ry a"pect of e~onomywh.ich will require a prolonged effort to recover. Managemento[ any kind o[ dis"ster requires sound governm"nt policies and practice. On the ot.her h"nd institutional st.rellgthening is " pre-requisite for disaster management (World Dank,1992). But lack of appropriate organis"tions at different administrative levels and coordination among various agencies and absence of functional support and feedback to one another are major drawbacks of existing institutional setup (Jahan, 1991) . In Bangladesh, the organisations, th,~t are involved in disaster management, specially, the cyclone disaster, are not properly co-ordin,,-Led, nor ar" they well -repres"nted at low"r levels of administrative hierarchy, !lbsence of an apex body for disaster management has Ion,=,heell felt I.JUtno su,-.h organisation ~oll.ld be developed till recenLly. TIle Disastf'r Management Bureau has been set up by the GOVf'rJllllentof BangladeSh in ordp.r to foster integrated effort for disastel management. Th" institutions for disaster managemf'ntat the lower level of administration is either absent or inadequately equippp.d with to take "xLensive and effective m('asure,~ for disaster management. On Uw ot/ler hand, gradual increase ot deuse settlements in th" coastal area is bringing increasing number of people under the threat of severe cyclones and storm surGes. Majority of the landmass along the coastal belt fall within the boundary of "ll.1.gllRisk Zan"" (Map 1.2), Awareness generation, warning dissemination and planned evacuation is therefore has become a prime necessity [or the survival of people .living in the coastal districts, 1'he present study is therefore aims to invp.stigatp. the nature of services availed by the general p""ople in regard to t_he issues related wjth preparedness and response nnd the problems encountered by t.he organisati.ons who are working at tile grassroots level at present, in the field of cyclone disaster management. Basing on the findings, a neW approach for institutional dp.velopment for effectivp. cyclone disast"r managementwould be pruposed Wllichwould insur-e effectIve awareness generation programm"s, timely warning dissemination and planned evacuation. DELINEATION OF CYCLONE PRONE AREAS ", "" '\ B 0102030 I LEGEND Delineation Jly RDRCfl(A) Delineation By MCSP(B) lligh Risk Are" td:$ High Risk Area k---.I Risk Area ~ Risk Area E:J Source: BU8T,BJDS,1993. Map 1. This study "ims to unnf'rsl:and Llle n"l:ure of institution"l facilit.ies that exist ill the counLry for cyclone ni.sastcr management and at the sam" Lime peopJp'5 parl:ivipat.ion in the process of this disilster management. 'I'he rna';" ernph"5is wi]l be given on the issues reJ."ted with pre-dj~aster dnd i.mmediately post disaster phase, AS such, Lhc follo,,;jng objecLivE's llave been selecLed for this sLudy. To understand ti,e tunctions anel co-urdin"tiuJ1 "mong Ilill:ional, t-egiunal and local lev~l government, semi.-qovernme"L ancl nOIl-governmcnt "gencj~s in awareuoss g~nE'rati.on, informa Lion di5sem.i nation, pJ armcd p.vacuat j on. 1'0 illvestigdte, the nature of i.llstjtution~l support availahle in tile coasLal arE'a" t.o help rural people in awareness gencr 1'0 invcsti.gate peo1Jlc's perceptIon and respon5e to torementioned act i vi LIe". To proposc a deLail insLitutional fr,~mework whIch would facilitate mure efficient manag",ment of cyclonp. disaster incorpura t.ing peuple' s parti" ilJa tion. 1.5 METIlODOLOGY The meLhodology that has lJeen fullow"d "ud a schedule, of time taken for this "tudy is prC'f;ented here (Figure ).2) (Table 1.1). A. Selection ot t.ll" Study i\re" Selectioll uf thE' study are" \-las on~ o[ tlw crItical parLs of this r;tudy. The bl"ok~ll r;llOl"ellne ot the vountry dIvides the coastal arE'a into t<.'o maIn c"teqol ics J .e. tll€' o[f-r;l1orE' Islanrls and tlw maLn laud. Since it was nuL pos5i1>18 to survey th~ entire coaslal helt dllC to lIr"itatiolJ of time and rer;ources, ullly one Of[-f;horp. island (represcnting une 1'l1ana) '"" , , Stage Functions I Selection orthe Research Topic I Dev'eJopmem ofinstituliOllal Framework fin Cydnne Disaster Management j I ObjectiveDetennination Meol; llcatjnn of Present Institutional Iinlloewol'k, ldcotification ofInstitutiollal Support Provided, Identification of Pe'JPie's Perception About Various Issues, Iden!; Jkation or Instirutiolllll Problems, Prup"..al for New Institutional Framework I Literature Survey Infonnatlon Collection on Disasler Management System and Countl)' Experience j I Reconai!>31lceSmvey Identification fo Problems and Related Issues at Household I ModHia Questionnaire Slirve.l' for the Households I Field Survey Questionnaire Smvey for the Institutions I l)-••ta Analysis Problem Identification Regarding Awareness Generation, W~rni[lg Di~semi[latio[\ and Evacuation at the Household alld Instilutioll Level Identification of Recent IdelltHjeati Proposal for New Institutional Proposal fora !'lew Institutional Framework Framev..'"rk j Model Development fm hlentifkation of Shelter facility EfTecienl Cyclone Disaster and Working out "Plan for EfTecient Management Warning Dissemination and evacuation basing on the Proposed Instiluti"",,! hHmeW"rk Figure: 1.2 Research Orgarrisation and a Thana from the main land ,"'ere chosen fer the study. The off-shore island inclllrl"s Klltubrlia and the main land area includes Chakaria. [loth th" areas ar" under Cox's Baza.r dis'trict, which is highly vulnerable to severe cyclones "nd storm surges and not to mention flash flood (1'able 1.2). Table 1.1 Timeschedule ot the stud 1- Preliminary literature and reconnaissance November,1992 sune 2. Klabo~ate ~i:e~~;~~e survey "od December,199. ueStlOunalre re Table 1.2: Stud Area , Thana Cate " Union Locali t , Kaiyarbil Mi~~~~Pal:"a Mad e1' Para Kutubdia , Ali Akbar Dell 'l'obdler Chal:" Para , Uttar Dhurung Ajimuddin'" Shikder Para Killar Para W Badarkhali I ~~tdaJia Para Chakaria nama Par , Peklla Chiradia Nandir Para , Chirillga Buri pukur Charondi Note: • Category in terms of extent of cyclone effecL (ZRC, 1991) W - Worst Affected ,- Badl A[[ected. _B. Justi[ication of Selection: Kutubdia and Chakaria Thana. were tile worst affected areas o[ Cox's nazar Distrj,ct. All tll0 six unions of Kut.ubdia and six unions out of sevenLeen unions of C"hakaria w"re designated as worst affected (Z.R.C .• 1991), six of the r"st were badly affected while five unions Wf!re partially affected (mainly because of their location and topography) (Map 1.3). EFFECTS OF 1991 CYCLONE N ~, IA) , =" ,=,' " "0" ,- " " "-'" '"'" B , • ',0 ,5 20~"'- , • , T LEGEND Worst Affected Badly Affected Partially Affected Source: ZRC,1991. Map 1. 3 The selection of the un.ions wer" based UDallt,heir relative location. Out of thr",e uIJions, one was chORen from the close vicinity of the thalia he"dquarter and the other two form distant parts. Twoworst affected loca,lity wer€"chosen from each union where questiOllllaire survey WaS "onduct"d. These localities were selected after consultation with the Thana level officers of Cyclone Preparennes5 Programme and some NGOworkers. C. Data Collection Data was collected in three WilYS (i I Literature survey, (il ) Reconna.issallce Survey, (iii) Ouestionuair'" Survey. jJ Literature Survey' 'I'he reports, i1rticl,)s and other do"umelltG on disilster management, the origin and disseminaLion of cyclone warning, existing organisational setup to assist the coastal people at the Lime o[ dir.aster, nilturu of cyclone shelter facility available and people's co-operation with tile government. anu non-government ageIJcies ~n thC' preparation, sh,>j,tering and rehabilitation "cLiv,ities were sLudi"rl to collecL La,;ic and relevant information fur the study. ii} Reconnaissance SurvC'y' A reconnaissance survey was conducted .in Jelepal'a villag" under Cox's Bazar Sadar. Thirty households were studied through a stru"tured questionn"ire. This qu""sLionnaire incorporated various a,;pects on prep"raLory measure,;, evacuation prucess, problems 01 evacuation etc. Informal dir.cussion "'as conducted with some guvernmenL offici"ls and NGOworkers. iii) Questionndirc Survey: The final questionna.ire was prepared after careful analys,is of tllC t.indings from the reconna.isliance "urvey. '1',10 sets of questionna.ire were prep"red [or this study. One for the hom::ehold survcy and the other on" for the iflstitut.ions tllat are present in the area and are related with cyclone disaster managem,mt. a. Sampling: For hO\lseholtl Gurvey 300 Gtructur"d questionnaire were adm.in.istered in two Thanas. Fifty hous"holtls were surveyed in each union, i.e. 25 hou"es >J"re chosen from cach locality. The record of union parishad sllO For the insti tutiolls, interv.iewers of the Thana NitlJahi Officer, Thana Level lJevelopmE'nt Officer of the Cyclone Preparetlness Proqrllmme (CPP) , reptesentatives of the existent NGO's Wet"e taken. b. Questionnaire for L1le householtls: This questionna.ixe ",as prepared to investigate the following aspects: Household size, age-sex composition, occupation, • Peoples percept.ion, attj tude and response cy,...,lone warning, , Nature of evaClJat.io1J and shelteriny, Nature of casualties antl eeonomi closs incurren in a family, Nflture of relief and rehabili tflt,i on assistance receiv(>d "tc. Objective 2 and 3 w.ill be tuH.i.J led through th" collection of these .information. c. Questionnail"e for the ;o,.gencies: This que,;tionuaire waS designed to investigate the functional eo-on'lination amon\)various a',eneie,; in ..:yclone .warning dissemination, evaeuatj.on and Gheltering, relief ~ distribution and rehobilitation. Apart frum this, problems related wiLh each stage and Lhe possible way to resolve those problems were also identif.ied through this questionnaire. ObjectivE' 1 waSpartially fulfilled through the informatloIJ collected in this respect. Rest of the information neeessary to ful fill this objective was collected thruugh literature sm:vey. D. Oata Analysis Collected information was computed by using computer. Necessary staListical techniquE''; were applied [or analysis of data. E. Problem Identifieation: The questionnaire [or the house/lOlds identified the prublems encountered by the population in regard to Lhe cyclone of 1991 and the one L11atwas about to hit the coastal belt in Novembp.r.1992.. Informat.ion on people. R a,",."renORSabout and participation in diffp.rent aGpect.s of cyclone disaster managementhelped in identifying the aspects that need 'tu 1.>e dealt with a !lewapproach .for effect.ive disaster management. An inventory WaS prepared on the problemR that are can[ron ted wjth by institutions wurking at the grassroots level during the period o[ cyclonp. and off-cyclone period, and at the s"mp.time possiblp. short and long term measures to overcome tho prabl ems weI''' a.Jso identif ip.d. F. Strategy Furmulation' Field inv€"stigation provjd€"d an insight on the weaknesses of the existill\J iasti,tutional t;ctup. This was further supported by tile literature sUlvey. After a careful study of recent 15 trend of institutional development at the government and NGO levels. three approaches have been proposel!. It should be mentioned hele that these th,,,,, ilpproadles do not repres"nt three different institutional setup, ratJl0r, they represent gradual development of one final instj.tut;onal framework in course of time. They are based upon the Same structural frame"lOrk but 1.6 Limitations of the Study: Following limitations hav" been identified: 1. Manyorqilnisiltions workeu ill the area after the cyclone on a temporary basis. No system of documentation exist to invest,igate the nature of assistance prov.tded to the local peuple l>ythem, nor was i,t possible Lu identify the problems they faced in 1991 or during previous devastilting "y"lones. ii. Chanqe of officials/workfJu' hoth in the government and NGOoffices is a commonphenomenon.In several cases it was found that respective officials, WllOwore to be interviewed Were not present there during the cyclone or did not have any experience regarding SUellemergency situaLiolJ. They felt the need of documentation of the experiences, le""ons learnt hy the existent offioials at t,he fie.1d J"vel. These new, inexperienced pen;onnel som"times faiied to answer certaIn qUestiOllS, and in such oa&('s. people had to give the answers which were based upon Lhe experience of other Official who was/were prosent there dur.ing the cyclone. iii. The field investigation was conducted almost t<-.'oy"ars after 1991 cyclone. It was diffioult for people to recollect ~'arlous issues relaLecl Witll lYYI cyclone. 16 Stand by distressed unitedly: Khnle ,,,-."._,"•.••,"." 'c' """''',~ "" ,., .,.,,,". "," "., ",. ::::',.~;::~,:;;-;:;:,::~::, ~ :'J;~:;;~:,:;:;t'~~'~".,'" ','""_"" .... ,,.,~.., .,-","" '""".~',-,."",., """ •••.-", "" ,•••. ""'"''e' .• ,,'.""', •.. __ .,""'" , "'e, '" __". "'~. ,.•-'", _. ",,", ".••• ", ..,. ", .,. "'. >". ~:;,':I::',:~,':',;:~;'.~,~::: ~,,;'~. ~,-;::,•. , .- ~ 0~:.::f:~~~:~:::,~~:~~:':~~i{~E:L0:: "", ,._' ,",~ cn:WI'fES IN BlING.Ll\J)ESIl Massive relief Work b) tons goods dr ,!!#,,,l.., ,_ '''" . CJIAPTER ~ 2 CY<:L(MS IN BANGLADEmi 2.1 CYCI,ONES IN BANGLlIDlISlf The account of cyclones occurring in the CQunt,ry call be obtained from various historic dOCllrnents like Ain-E-Akhari, Bengal D.istrict Gazettes, Report of the Vizagapattam ilnd [rom the reporl of Sir Richard Temples to tho Gove-.:nment of India. 'l'he earliest recorded cyclone of 15B4 hit the d.istrict of Baci.s,,1 and killed about 2,00,000 people. Since then, cyclones ",ith variau::; int. Table 2. 1 : Types of Cyclones Occurring Siuce 1960 ,. 1'hree Coastal Re ions Intensity of ions Total I Cyclone Chittagong-Cox' s Meghna'" Delta B'lfgllna - Khulna , • Coast Coas C clonic St rm , J , JO Severe , 5 , C clonic " Severe Cyclone , 0 J 15 with hurricane intensit Total J Source: BUETBIDS Part 4 1993."" " The intensity of cyclone is also influonced by the period of occur('ence. The analysis of annual distribution of cyclones reveals that majority of the sevoro cycjoniC' storms appearE'd dur.i.ng th" month of May, .June awl Octoher (l'iyure 2.1). .~. • 5"". <,< "0" ""'0' 0 c ,,,,,,, ,Wm' '" , ," ,, 0 " ,, ,- •• h<~'MJJ~SO " " Figure 2.1 Monthly Distribution of Cyclones. .Source: BUET,BIDS, 1993.' The unique geographical location and the geomorphological condition of tile landm"ss make Bangladesh a favourable place for furLher development of cy,,]ones that originate in the !lay of Bengal. The cyclones forming in thiG region primarily move in north west direction and then curve in eastward direction. Although tile tracks are not always symmetrical (Map 2.1). 2.2 THE SUPERCYCLONEOF1991 ,- Occurrence of cyclone and storm surge is a common phenomenon for a counLry like Bangladesh. But the intensity ot the "yclone varies. Not ,,11 the cyclones c"use severe damage to the human and 2.2.1 First Detectl,on The cyclone was first llotccter1 on the 23nl April. It ,,"'as identified as a depression (wind "pef'd not exceeding 62 km/l1rJ. It turned into " "yclone on 25th i\prJI . .It moved towards north-west and then 18 ,[I Noll ~.=--. ,11, ,w •" "o , •o ~ ,w" " • I a fJ I westward. From ::Wth April it started moving in a north e"sterly direction "nd crossed the coast of norlh Chitta gong during the ni.ght of 29th April. The co"st"l islands of Nijhum Deep. Nanpura, Bhala, Sandwip stilted experiencing t.he impaet of cyclone from the evening of th"t day. 2.2.2 Bulletins The meteorology department jssued warning bulletins much ahead of th", stipulated time mentioned in the standing order for cyclone. 'I'he met.eoro10gy dep"rtment issued 29 speci"l weather bulleti.ns since the mornl.ng of 25th April til] the early morning of 30lt! April. The meteorology dep"rt.ment. is reqllired to issue warning messages minimum 24 hours in advance, danger messages minimum 10 hours in "dvance. But during the cyclone of 1991., the warning message was issued 37 hours in advance, danger message 27 hours in advance. This dopression turned into a deep depression at 6 P.M. and into a cyclonic storm at mid-night. On 27th in concentr"ted into a severe cyclonic storm "nd on 28th, it bec"me " severe cyclonic storm with hllrric~ne speed. Great danger signal no. 10 was issued on the 29th for C"IJittagong port "nd no 9 for Cox's Ua7.ar. The offici"l evacuation ord"r w<~sissueu at 1 p.m. of tllat day and the severo cyclonic storm hit the coast at 2 a.m. of 30th April. Needless to say that all tho weathel" bulletins were passed on to the CPP field workers. 2.2.3 Prep"redness Measures The Storm Warning Centre iSWc) of tile Meteorology Department started to issuo specia] "e"ther bulletllls immediately "fter the first detection of tile storm oil 25th April. Th"'se bulletins were passed on to the field officers of the Cyclone' Preparedness Prograrnme(CPP). On 28 A]Jril, a special meeting of the Implementation Board of the crr was held "lid following steps were taken ; 1. Contl"ol Rooms of the MinisLry of Relief and Cyclone Preparedness Proyranlme were activated and kept in operation round the clock. 2. InsLruetioll5 were given to respect.lve agencies in the following line: a. Coordination commitLees at Distrjot, '.I'hana and Union levels to hold meetings and to take preparedness mear;ures. lJ. Radio BanqJadesh and !langlildesh Television '.0 broadcast Special Weather Bulletins. c. Depending on Lhe local weather coudition, the Deputy Commissioners to shift people i1nd cattle, jf found necessary. d. i\ll Mi.nistries, Departments, Organisations to take ['teps as direcLed in the Standing Orders fOI' Cyclune. 3. In order to meet emergency situation some food-sLuff, and cash money were allocated fur the prohable Ulreatened areas. 4. i\dvised the Director General of Relief and Rehabilitatiun to send the relief materials and cash money tu the rE'spective Deputy CommissiUllers. 5. To arrange an Inter-Ministerial meeting on 29 i\pril, 1991 at twelve noon. 6. To arrange a meetinq with non-government organisations (NGO) representatives at 3 P.M. on 29 April. '1. The PresidenL and Prime Mjn.ister were appraised of the speciill situation arising out of the approaching cyclone. The Ministry of Defence, the Army, the N"vy and the Air Force were also informed "bout current development of thE' s.ituation (Choudhury, 199.1). 2.2.4 Economic Los" The rilvaging cyclolle vir tually destroyed every tiling on the landmass over which it pilssed. 1'118st.orm surge completely submerged the islands of Sonadia, ~lohesl1kl1al.i, M"tarbali, Ujantia, Korjardi", Kutubdia and 3andwip. It also sev('rely dilmaged Chittagong City a.long with lhe EX(Jort Processing ZOnE' {f:PZ), western part of Chak"ria, BansklJali, i\nwara and sit"kunda, and island>:: of lliltiya, Monpura and KatubiLi.a, majn.land "hars o[ Fp.lIl ami Noakhali District. Lateral waves resulted from Llle main storm surge caused heavy r 21 i damage in Patuakhali, I3ho]a and Barguna. TIle ti 'J'able 2.2 Extent of Damane of 1991 Cvclone Total Affected District Tot~l ~ffe,,'-o" ')'hana 102" Total Affected Munici alit 0 "'O~~l"~ ~~ Affected Po ulation 107 98 278 05. No. of Peo Ie Missin 1 m Dam"ge to Aqrlculture ser.tor (Estim 2.2.5 Loss of Human I,ives The storm surge that accompanied Lhe cyclone tool\ thousands of lives. Although there is dittorence of opinioll aboul tile actual number of deatll toll. The official figuro is 1,38,882. Chitt"qong and Cox's Bazar were the worst affected d.istrictfo in tarms o[ llUmall death. Children and older womcn were til€' pdme v.icL.ims (']'ablc 2.3). Field investigation of other ,,1-udicfo ac(;onl willI tllis view. (Adn"", 1992}. 22 DELINEATION OF AREAS BASED ON THE EXTENT OF LOSS OF LIVES BAY Of IlENG.'\!. l" 'j 'f jKILES III I I r i I E8- " 0 ~ w "" '" ,0 " W.JJKETRE i "- __mIUTM~ -,) REFE~ENCE --' r\" -0,,-,,~ o VERY LOW "~~ {.~ __~.D~A~ ,~r -l D LOW (, lWIGWlEOI .;' " lTIJ NODERATE • nIGIl • VERY HIGH • EXTRE~lI'.LY IIIGH Source~ Jahan, 1992. Map 2.2 Table ::1.3: Estimated Mortalitv. l' e l'en:enta e Chi1dr " 40-50% Women '15-30% mo 'co 1, 20' Source , Haider (et.al) 1992 " Table 2.4: District Level C"sualt Fi ures. District Total f,~mil Affected Death m '16 805 Cox's Bazar U3 '136 ",0'" Noakh"li 120 0'" 0:'0 01 xmi "' '"' I", Feni " m , " 6 " 19 "3' I~n"amati 10 on Ie r"chhar i 10 17 , '" '"Source: ZRC 1991. The rate of casuaiticG is higher in the villages exposed to tho sea shores. Alloth"r vuln"r 2.2.6 Lo""",, of lIous"",, Majority (95%) of the houses in rural areaS are temporary in nature i.e. mud or bamboo walled with roofs made of bambo%r thatclJing grass. 'l'in roofed houses are lew in number and brick-walled houses are rare. The tirst blow of cyclonic wind shuddered the kutch a houses and lhe tidal eurrellt staged the tinal shol,'-dowll. .Tn addition to these t"mporary hOllses, the cyclone damaged or destroyed maIlY(Jerlllaneuthouses, sIJO(Js,se1l001s, offices etc ('rable 2.5). The concrete structures of Chittagong City Wel"edf'stroyed too. DELINEATION OF AREAS BASED ON THE EXTENT OF HOUSE DAMAGE -'.' ' :: : '-' , BAY or nE~GAL REFERENCE D LOW 'J () VERY LaW []] NOIJERATE HIGH •l1li VEIlY 111(;11 • EXTREIrTELY 111<;11 Source: .Jahan, 1992. Map 2.3 Approximately 10.36 percent of the affected tilanas suffered moderate damage wllile 39.7B perc,mt than"s experienced high to extremely higlJ damage (Jahan, 1991) (Map 2.3). Table 2.5: District-wise Loss of lJouses. District I"ully Damilged Partially Damaed rhi,ttanon 38 >SO 254 126 ,go Cox's R, U He 106 Noalrhali 150 m 81" 355 Laxmi 302 23 033 " " OCO 'eo " 1'3 Banda '0 "14 'll9 861 amati 49 27'" m -; "" no '", rachh 36 m 33 Source: ZRC, 1991. :1.2.7 Evacuation The official evacuation Orner was issued at 1 P.M. on 29 April. This order w"s passed on to the cpr Field OfLlcers and volunteers. Thes" people as"j ste<.l local citizens to t.ake blwlter in bafe ]. During the cyclone of 1991. there were only 300 cyclone shelLers in the entire coastal area wllich accommodated 350,000 poople. A study conducted by the Red Crescent Society revealed that if tlleir had been 40 mOre cyclone shelters in Cox's Bil""r, more live" could bc saved (Jahan,1991). Apart from lilck o[ adequate number of cyclone shelten), people's tear of loosing househol<.l prop"rty and land largely contributed to low rate of evacuation. J,~ck of good ilcceSs to the cyclone slJelters posp.d as a hindrance [or evacu"tion in some areas. Manypeopl" failed to re"ch safer plilces due to submergence of access roa<.ls. On the other hand the scaLtered nature of rurill seLtlemont, ,,150 inhibit quiek response to emergency situaLion. People living in isolaLed locat.ions can neither be proper Iv wal'lled "haut the approaching cyclone nor can th"y be taken t.o a safe plilce with in a short not.tef'. 2.2.8 Relief and Rehabilitation Emergency relief and rehabilitatioll began as soon a~ possible although getting a,-,CeS~es to the off-shore :islands was difficult and impossible during the first few days due to ocean current. Emergency relief di~tribution was continued till th", end of May. The relief operations were conducted through the Government agencies, NGO's During the emergency philse, water and dry food was distributed among the affected people. Several NGO's helped in disposition of COJ:ps and carcasseR, cleaning/de-watering/ repairing of ponds and Lube-wells. Spontaneous public respOllse was mobilized by the Association of Developmenl: Agencies .in Bangladesh (D). They collected food, clothing, utens.ils, medicines and otller materials through their collection centers. Relief operations of the government and NOO's were further expedited through the transportiltioll support of th", US Task Force. After tile emergency relief phase, government and NOO's took rehabilitation programmes in the coastal areas. Table 2.6: Distribution Relief Goods Relief"" Ma~ef~aIs (in 61,210 11,444 19,542 MillIon US ) """ For Recon~t~vction(in 328,3'19 1,~l6 -- 329,I'l5 Million US ,. Wheat, f' - Fruit , Tin food, ,-r:dible Oil Note: , R - Rice, - Source: Compiledfrom va~ious sources. :;1.3 SUMMARY The occurrence of cyclones .1.6pllrely natural phenomenon, there are no measures which can be used to prevent their development. Mencan only take some meaRllres which can assIst in reducing the devastations of cyclones. Bangladesh, being a tropIcal counLry with a coastal topography highly favourable for the development of depressions has a long history of devastaLing cyclones. The most devastating cyclone of the country, probubly it wes the most destructive CYC,loneof the world too, OCC1HTedin 199.l. The maximumwind speed of this cyclone was 240 km/hr and Lhe surge height was 20-25 feet. The special weather bulletins WE)re.issued immedi,,'tely after tho firsL detection of the storm by the Meteorology Department. People were evacuaLed to the shel ter S which we!e avai.1able in the concerned area, The tota] economic loss was esLimated to be us:;; 4,329 (Mi.l.lion). Th" official figurE) of human death wan :I ,38,000. Thuusands of houses, domestie an:ima1s, trees were destroyed by the wind and storm surge. This extensive loss of (>rop0rty .largely resulLed f.1:omneglig"nce of the autilOrity and the popul"tioll to cyelon" warnings. Evacuation rate was rather .low in 1991. Limil:el! shelter facility anl! lack of org"nisat:ional support .led to the destruction of hnman lives and properties. Government and semi-government 017g"nisations took extensive relief "nd rehabi.litat-Lon programmes after 1991 cyclone w!l-Lchindicate nature of resource mohilisation tha'L has to be done by the Government after each devastating c,'clone. Although iL must be admitted that a cyclone lH:e the one 'Ulat appeared in 1991 does not come ev"ry year. But the ('epeaLed occurrence of .less severe eycJones in various (>arts of the coastal be.lt as wel.l an ,in, the interior part of the country cause economic loss to the country. Snch issues n"ed special attE)ntion and consideration III ithe development plans. l\ new approach of the coping mechanism has become necessary to attain a sustainahle trend of economic, developmelJt. ;)8 '\ • Stand by lIislressed lInitr.dl.r: Khale ,,, •••• ,._ ••••••• ,,~" '",' " ._ < •• 'e' ,,_,,_ " .• n.",,,, ••••• ,>. ,. ','" "•.." , ...•,.,,'_ :,::.:\t::,;;~.:;::It':,:~':::~:;':':~::~:':;',~';.~' , ..., ",," '"'- .". '" .. " "-"-',,, ...-,- r.':'.'~'.',,,,,,,""'_ .,. ,;;: '.;",,::::~'::,,~ ,I:':',: '" , '".. " ...•..~".,,- '..... "'" .", :';;::1;;".•... ;','~;:~;';" :::,': ~.;:;'" r..;;~.">-. ,.. "'_ .,.-." ,'''.,~ •.•.""...'m"" .~., ;:,.:'~;;""',- ..... ~'~ ;;~,::::~;;;;,':, ,,~' .,,~... ,." -' "', "" ..'" ,,, ...,, ~...."., ~,_ ...•.•...... ""--""" '."" "".'.' ... """., CONCEPTS, ISSUES AND COlIW1'RY EXPERIENCE ., Massive rcli~f work-E) tons goods dr ""'''0"" ffi\lCIlPI'S, ISSUES ANDmuNIRY EXPERIENCE 3.1 INTRODUCTJON Disaster, catastrophe, calamlty, cataclysm, della"le Or act of Gou- what ever one e,,1.15 it, the incidencos as;;(Jciatell wiLIJ 5u["'h exprc[;sions ale (jelle'i11Jy phYGical plwnoffi8na. Tlley are tile concern Or"fj.eld of int8r"st 01 pl1ys)calscientists. But, llOw-a-llays it has become a major COllCerll of pol icy makerc and planners. The yrowlllq awarcncs» abollt thp <>Ilvironmental iGGues and their j".rluencp on national developm"nt havl) mado such evenLs an integrilJ part of r1pvP,iopmcnt plans "!lei pol ,ei",,;. A clear unael'l;tcmdinq of vilr,lo"" ""pects r",lated "'lUI cllsasLel; management is therefore necessary in OlriP'" to shape up LlJe !JIans wilich axe illJl;Ociated with or :inf]upncen by eJlv.irQ)lmental issues. 3.~ What i~ DisasLer GeIJera.llv speaking, disilsLers arp natural or man made pJlenOJllena causes UJJj.Heeli" Lah1" disturbance,; thE' general mode o( OJ.Jerat,ion and eCOJlomy of iI country well ilR i noj vidual households. PIiYRic"l di"aGti?rs i""J ude typhoonG or cyclones, storm surgeG, tloods, 1andsJ.idC'G, earth qU1lJ,.eH, wi 1d fire, drought IdACArt.i f ication, river hanl; erosion et,e. Man m.lde disaGterr; may include ".i.vil unresL, l1eforeRt"tion, over exploitation of natural reSOllrcE'!; etc. 'I'll" concept o[ (1.1sastel" can be deLi "",d in various waYR,-,j th rcgard to the point of ;;ic'" tl](>y 1lre dA.l.lt l-Jith, but ill (jenAcaI, all elisaRter have SOJileC"DmmDncharacter is1.i"H. 'l'hey are as follows: Pjn::1.1y, LIley ""ur.C disruption of regular HIDdeof .life. Tile cffccts oI s,,,...11disruptions can he very sudden and widesjlread. '- ,,~. SeCOl)o]y, I-lwy '''Ill have extensive-negative impacts on .living beinqs. They ,,all result large scale death of human brlinqs and animals and plants. Apart from thi s, therp Ciln illso be solne negalive effects on the living beings ",'ho survive, ,,[lel llJe "nd of an catastrophic disaster. TlJiedly, the disasters arc accompanied by damage too thp social infrilslluclure. The extont of damage depends on tile sevpri ly of disilster. Disruption of communication and tr.11lfipor!..,tioTl network is also common. * Fourtt!ly, t11e1'eis an immediate need of institutjonill and social assistanco to tho victims. The nee,1 f.or shelter, food, clothing and medical Cill"e ,,'auld depend upon the nature and Goverity of disa"ter. The [,pague of R"d Cross ,'I)d Red Crescent Societies has defined the term" Disaster" in t_he fol] owing WilY- "A disaster is a catastrophic "jtuation in which t_he d"y- too -d"y pilt1:erns o[ ]i[e are -.HI many iU5tllrWeS - suddenly disrupted and, as a 1"esuI't, people need protection, fuud, cloLbiny, shelter, medical and social care, and other necessities at lite." (Hagman (et aU, 19B4). 3.3 DISAS'.1'r::R MANACEMENT Tt sllOulll be remembered that disaster management is a continuous process requirinq modiLicaLions and adjustments. Each c;tage involves different kind of functions. A formilJ definition of disilster manaqement .'" glven he]ow. "lUl applied science widell s"ek!';, hy the , systematic observation and ana.lys';s or: , disasters, to improve meaSllr"S, relilting to prevention, mit.igatj on, preparedness, emergency respono;e and recovery." (Carter, 1992). • Disaster management is a cyclic process-which means the functions related with it do nol start and stop with each occruurence of disaster, rather it con'tinues with gradual adjustments and improvements (Figure 3.1). Th"r" are various components of disaster management and each component incorporate different types of activities (Figure 3.2). 80.1. 'onnol .r " ••• r,""..- m'''""",n' <)<1, -~ """""" Figure 3.1 Disaster management cycle. 3.3.1 Preparedness: 1'he term "Preparedness" can be defined in the following way- "Measures which enable governments,organisations, cOl1llllunitiesandindividuals t:o respond rapidly and effect:ively to disaster situations. Preparedness /1/eaSUres .include the formulation or v,iable disast:er plans, the maintenance of resources and training of personnel." (Carter, 1992). l'he duration of stag",s involved in disaster management depend!> upon the nature of threat imposed by the disaster and economy of the country. The main components of disaster preparedness are discussed below. , • • Prop.rodnn". '.,,-,"'.~~"., i Source: Carter, 199:<. Figure 3.2 StaqeR Relate-cl will] DisClster MilllagcmenL 32 i) National Disaster MalJagementPolicy; Nilt.ional level recognition to disas'ter related issues can come out through 'the policy and pl"ns. It provides guidelines "hout actions that have t.o he taken for the prepariltion and other activities of ,;uccessive stages ii) Disaster Legislation: LegIslative support ,15 rel/uired to strengthen the policy framework. Individual or organisational participation can be ensured through disaster legisla'tion. iii) Institution: Appropriate organi5ational structure i,; the key to the successful impleffiAn'tation of disaster ffidlJagement policy. Preparedness at, all leveis of adm.inj,;1:riltion depends upon institutional ,;truc\:ures. iv} Nationa} Disaster Management A,~thor.jty: 11 national level authority 15 re'lujred to maintain and co-ordinate the [unctions related to various stages of disaster management. Con\..inuousmonitoring and modifi""tion of the management plan a!.Jdprocedure, is also id"'nt.,if.ied by them. v} Co-ordination: Co-ordination amongrelated agencies is neceSGary to mflintain equal standard of preparedness at all lev",1,; as well as other ilctivi'ties of successive stages. vi} Equipment and Supplies: Equipment and supplies necessary for prep"rf'dne,;s must be kept readily available. This ncods nfltionfll, r"gional and looal level support. vii) Training: Training facility is required for government, non-government officials as well as local volunteers who are directly or indirectly associated wit.h disaster management. A permanent training centre for all or separate cells in respective organisa'tions can be created. viii) Public Awa:r:eness/Educat;ion: Public awareness and education programmes are important for disaster preparedness. Inclusion of the concept in primary, secondary and adult education curricula can facilitate wider coverage of preparedness programmes. ix) Warning: Warning is the link between preparedness me"sures and response ar.:tiolls. It should be clearly defined and well understood by general population. All facilities associated with warning must be kept in ready i1nd alJpropriate state to respond to emergenr.:y situlltiollS. 3.3.2 Response: Response to the natural disaster can be defined in the following way: NResponse measures are t;hose which are f;aken iJlllllediately. prior to and following a disaster. Such measures are directed t;owards saving life and protecting properf;y and to dealing with the immediate damage caused by the disaster. n (Cart;er, 1992) The nature of respODse depends upon the type of disaster "0' intensity of t.hreat. General .i "sues related wi th response discussed below. i) Information: Information on disaster impact is the preliminary step towards response. Extent and speed of reSOUrCe mobilization would depend upon the information "bout nature of destruction .in the affected areas. iil Readiness of ReSOUL~e Organisations: Readiness of government and non-government organisations to respond to disilster situatiolJ is important be"ause failure in timely resP:>llse can cause further deterloration of post disaster situation. iii} Co-ordination of Response Operation: This is required to avoid gaps or duplication in operational tasks. Therefore, disaster management committees are necessary at different administrative levels to ensure overall co-ordination in decision m,~ldrJgand allocation of tasks. iv) Communications: The entire communication syst.em may collapse due to disaster impact. Therefore, reverse communication facility must be developed to ensure adequate response undf'r severe situations. On the other hand this also helps in informing affected people about precautions to be taken and also to prev"nt speculations and rumor. vI Evacuat,ior,: Evacuat.ion may be needed before or after the final attack of disaster. It depends upon the type of disaster. For calamities like flood, cyclone etc. p"ople are needed to evacua!." before the final onset of the disaster but in cases like earth quake or volcanic eruptions, evacuation is a post disaster activity. In either case a proper institutional structure and shelter facility is esseutial. vi) Shelter: Shelter facility call be provided by constructing formal shelters or by turning public OJ: commercial buildings into ".mergency shelters. Under the first condition maintenance is a major issue - because this call turn the shelter facility into a burnen for the society. Temporary shelters like tents can also help. vii) Rescue: Rescue operations conducted immediately after the disaster can help reducing casualties and further damage to personal wealth. Rescuo operation depends upon communication, transport ation and m,111-pOWer. viii} Treat.ent and Care of Victims: Treat.ment and care of the victims include burial of the rlead, provision of first fl,in, assessing requiulmcnt" of medical treatment, hospital isation etc. It can also prevent spread of post disaster disease which can turn into epidemics. ix) Emergency Relief Supply: Food supply for victims and emergency field workers W.l11 have to be ensured. Estimation of food re"erves and assessment of food requirement dUJ:ing emergency period would d~teJ:mlne the extent of assis'lance required from international and 10Gal organisations, speciaJ.1y in the caGe of third world countries. Apart from emergency food, people may require clothing, cooking utensils, plastic shep.t~s etc. x, Restoration of Transportation, Water and Puwer supply, FaD.i.lity: Sometimes the affected area may be cut off from the rest of the country if the entire trilllsporti on netwurk and national communication facilities collapse. Similar things can happen in water and power supply system. Under such situation temporary re-estah]ishment and quick repairing and reconstruction of these sectors are necessary. xi} Health and SanitiJtion: Proper measures will have to be taken to prevent spread of any kind of <'Iisea58. Sanitation facilities should be fixed up as soon as possible. Otherwise it can lead to another disastrous state. xii) Security and Maintenance of Public Morale: MaintenanGe of Jaw and order to prevent looting and harassment of victims is mos't essential in the post disastQr poriod. Assistance from religious organisations or other welfare agencies can be provided in the d.isaRter stricken area for this purpose. xiii) Disaster Welfare Enquiry; A preliminary enquiry about the devastation is useful for disaster management. Su~h enquiry can be done by surveying from air, field teams or reporting from disaster management or related officials working in or around the affected area • • xiv) Reconstruction: Reconstruc;tJ,on of buildings and other facilities should begin before further deterioration. However, it largely depends upon resource mobilization. Resources should be mobilized from internal and external sources for reconstruction of infrastructuraJ facilit.ies on priority nases. 3.3 _3 Recovery Recovery can be defined in the following way- DRecoveryis "the process by which communi"ties and "the nation are assisted in returning to their proper level of functioning following a disaster." (Carter, .1992) Key points of recovery stage are discussed below: i) Recovery and National Development: The recovery projects involve huge amount of re"ources, as such, they ar" generally incorporat"d with national development plans. ii) Recovery Information Base: Information on response operations, development programmes, post disaster review by special teams and comparative analysis of previous disasters is useful for preparation of recovery strategy. iii) Recovery S"tra"tegyand Progra1l1l1Jcs: A Technical Advisory Terlm can b" created to evaluate post disas'ter requirement". Basing U(lon their suggestion6, a strategy should be formulated indicating major areas of recovery, envisaged time frame for recovery, interlinking recovery with na'tional development programmes, asses6ment of reSOUrCe availability, major re"ponsilJility and progrrlmmes for recovery action and system of monitoring. iv) Resource Allocation: The Gize A good number of Droj~cts may be initiated in recovery stage, therefore prop~r management and monitoring facility may become crucial. Sometimes special ministries/offices are entrusted with this responsibility. 3.3.4. Prevention: Prevention of occurrenc" of natural disrlster is practically impossible, but we can take some measures which can reduce the intensity of devastation. As :;uch, following defin.ition can be used ~It covers those measures which are aimed Construction of oam to control floods or tidal upsurge or construction of houses above the normrll flood level or surge height are examples of prevent.ive merlsure:;. Preventive measures will have to be designed in the context of National Development Plan, National Disaster Management Policy, Disaster Lcg.islation, Counter Disaster Plan etc. On the other hand people may become hostile about preventive measures if they do not match with traditional norms and values or not properly designed and have n"gative impacts. Cost o[ implementation and other nat.ional priorities can also influence such issues. Sometimes government or state authorities may fail to take effective preventive measures out of fear of loosing populadty and public support. If other development works do not comply with preventive measures, it can increase the potent initial threat. 'I'he aspects related to prevention have been discussed here. 39 i) Prevention and Nat.ional Policy: A comprehensive nation,,1 disaster management policy should outline the preventive measures including the authority who would execute the implementation process. ii) Legislation; Legal support is required to backup the implementation process. Mandatory building codes can be cited as an example which can enhance the preventive mea,mres taken against flood or cyclone. iii) Assessment and Monitoring: Cost-benefit analysis of preventive measures and continuous monitoring of disasler hazards and vulnerabilities are required to formulate well-judged preventive measures. vi) Planning and Organisation: Preventive measures are brought under the National Development Plans and i't is convenient to have a separate section or centre for disaster management if it does not already exist. It can facilitate co-ordin"tion, review and "dvisory assistance. v) Public Awareness and education: Public awareneSS and educat.ion programmes can improve prepareune(;s programmes and at the same ti.me can associate people with preventive measures. vi) International Assistance: International Assistance (in terms of financial and technical assistance) may he required for adoption "nd implementation of preventive measures. 3.3.5. Mitigation: The concept of prevention ,,,,,} mitigation are some what confusing. Prevention implies that the uccurrence uf certilin disastrous phenomena can be controlled while there are still 130m"events whj('h can not be controlled but their impilct can be minimized. Thus mitigation can be defined in the following WilY- ~Measures aimed at reducing the impact of a natural or man-made disaster on a nation or eCOlwmy", (Carter, 1992). Like any other stage of disaster management., this stage needs initiation, manayement, p-.:io-.:itization, munitoring, evaluat.ion (llJd institutionalisation. Mitigation can be done in two ways. Detail discussion about them has been presented here. A. Non-Structural Mitigation: il Legal Framework: lf existing legislation can not prov,ide enough support to the implementation of mitigat.ion measures, then special legal framework may be introduced. Although effectiveness of the legal support would depend upon the rigidity of enforcement. iiI Incentive: Incentive "an be offered to fill up the qaps which can not be , covered by legal framework. Specia.1 tax evasion~ or reduced insurance premium or grants "nd subsidies eil!! be effeet.ive where adoption of mitigation measures can not be forced. , iiil 7Taining and Education: In order to make mitigation programmes widely known and well understood, special training programmes for officials or construction specialist,s and education ano awareness generatioll programmes for general population can beoome useful. Four groups are import'Hlt for this purpose (i) the Public Officials, (jj) Lechnical students whose professional education should include disaster mitiga'tiol\ courses, (iii) the small builders and (iv) craftsmen and general s'tudents. ivl .Tnstitution Building: Disaster mitigation capacity of a nation depends upon the social structure and organisational capacity to deal with the aspects related ",iUI disaster management. A country have to develop this quality through following ways: Through institution building. Planned initiatives can be taken to strengthen the organisations serving to develop coping mechanism and increase their ins'titutional capacity and skills. • Through increasing the number of cop.ing mechanism within the country or community. • Through encouragIng various meaSUres which can increase co-operation among different groups wi'Lhin the society. vI Warning System: Better warning system can effectively improve disaster management and mitigation system., Evacuation and mobilination of emergency Sf'rv.iCf'S and resOU,ce,; can be done appropriately if timely warning of impending disaster if:; received by the community and organisatjons involved. .' B. Structural Mitigation Structural mitigation involve construction of specially planned and designed structures. Structural mitigation can be accomplished by adopting engineered structures and non-engineered structures. i) Engineered Structures: Such structures are specially planned, designed and constructed with the help of engineers and architects. They may include simple dwellings or multi story office blocks, dams, embankments, transportation facilities etc. For this, following aspects will have to be considered. * Site planning, * Assessment of forces created by the natural phenomena, • The planning and analysis of structural measures to resist such forces, • The design and proper detailing of structural components, • Construction with suitable materials, • Good workmanship. The general code of construction and technique existent in the country can never be elaborat,e enough to cope with the requirements of disaster mitigation. Therefore, a new set of codes and techniques would be needed if engineered structures are to be constructed. ii) Non-Engineered Structures: Majority of building in a community or country are build by local contractor. Only a few can afford to engage engineers and architects and even if they do, can hardly comply with the requirements of disaster mitigation codes and techniques. But unfortunately such structures can increase the threat of danger. For such cases incentives or new building codes can be introduced. , 3.1 ORGANISATIONAL STR\JC'l'{JRE The actual orgaT,isationa1 structure for disast<~,- management would depend upon the economy and administrative hicral"c11Y, the nature and extent of natural calamity etc. The most important issue here is the s-Lructun' of the key government body. The sLatus or importance of the I(ey disaster mClllagcment organisation among relevClnt ministries and departments wi]l determine how effect,ively Clne1efficiently can it work. Some alternative approaches to the development of this key organisal-,ion ill presented here (UNDRO, 1991) . i) Modell: The organisation is embodied in the Chief/Prime minister's office and other concerned ministries and department:; are represented by high level officials and executives. The lluccess of this approach depends upon the nature o[ support and importance it receives from the Chief Minister (Fi\lllrc-).3). ii} Model 2: A separate ministLY can be created [or disaster management which "lOulct also carry out reconstruction ~nd rehabilitation works. This appruach gives utmusL importance to the iRHue but confines responsibility within a limited extent. iii} Model 3: -Disast"r Preparedness and Mitigation Unit can be created in each ministry. Each unit would be represented on a co-ordinating committe", ",ltieh woulCl be head",r) by' concerned minister. Jlut the relative importanc" 01 tho milli,;Ler can result undesi{"alJle eompeti tion or negliqence. 44 MODEL 1 P",-D'",,,, P'.ooin~ within Cni,f M,"~",.,orf,," Mlo~t", M;ni",y 01 of W••• , U,b,n PI,nnlog M'""", 01 M;ol<1", 0' O'h" R.",",eo, & p"~I", Wo,k, Ag"'"""" lI"I,~ M'oi"d •• MODEL 2 Min'''", 01 M;"''''y 01 D,..,,,,, U,t>,o "',"",ng Min'''''101 M'""'''I0f 0'1>" Ag'; Moon J ~ M;ni,,"1 M,n"',,, " of War•• U,b,o M'"".y 0' Mio'''", " 0,1>" 11<>"', M,ni,,,,,, no""",",, ,Pob'""''''''''Il Wo'" AO''''''''''. Oi""" Oi""" (l",,,•• 0,,.,••, PI"."i"g PI,""'ng P"ooioO PI'no;"" Uo" Unit Un;' Uo" Moon 4 M;n"''l' of War•• Mlo;"", 0' M'ol",y 01 O'h" fio,o",eo, U,b'n N."niog AO"'u',"" Min;",'" Pro-DI,,,,,, , Sou~ce: UNDRO, 1991. Fi'Ju~e 3.3 45 iv) Hodel 4: A semi-autonomoul; body like UiRaster ReRpollse Councilor Counter- Disaster Assistance Organisat.ioll can be establiRhed which would report to the Prime/Ch.ief Minister through the Annual Reports and other emergency reports. Nomatter which approach il; adopted, some basic requirement!' should be met, which are - • Political wills must be reflected through the structure, • Should have permanent staff, • Co-ordination throughout government departments must be ensured, • Should comply with existing government structure, • 'rhe organisational setup should refle<.:t the t,.rms ""d references and political will for continuity of leadership and direction. 3.4.1 Institutional Development for Disaster Management: Occurrence of di.saster is " continuous, dynamic and uncertain process. Almost every cit.17.en, agency, voluntary group, government departments and economic sectors 01 a disaster prone area arc threatened by one kind of di!'aster or other and at the same time all these parties can effectivelY contribute to disaRter management procedure and thereby become 1'here are certain factors which inf.luellce the institution • The key objectivclJ, • Tile nature of disaGter threat, • Government Policy, • Operational requ.irements (e.g. vehicleR for flood prone areas for rescue and relief) Availabil.ity of resources, 46 * Definition or responsibiJities and functions, * Utili::;ation of existing stn",lures and organiSiltions, * Requirements for direction and milnagement, * Incorporat,io!J of organisat.ional component.s, * Organisat.ionaJ stress fact.or am] finally, • Smoe compromise considerations. 3.4.2 Organisational Component The main components of counter disast"r organisations are discussed here in hrief- i) Facilities: Various facilities are needed to accommodate emerg~ncy operation cent.r"s, communicat.ion sections, conference rooms, equ.ipment stores etc. In many countries suitable office spaces are converted into emeT:gency operation centre. Permanent facilities can be establish"d if it proves to be cost effective. ii} Equipment and Supply: Requirement of "'lU.1pmellt will vary according to th~ type of di.saster but in g<;>n"ral every organ,isation would require vehicles, emergency equipments such as em"rgen(~y lighting set.s, tent", hlankets, communication and training equipments. Hi) Training: Needles" to "ay that disaster management would be meaningl"ss without the manager. The efficiency of system depends upon the swiftness of respOllS". Adequat.e training facility must be provided to all porsonn"l who are associated with disa"ter management. iv) Communication: R(lsponse to emergency situation dopends upon information and communication. Desp.ite the regular broadcasting system, supporting communication network "hould be developed. v) Warning System: Preparedness measures largely depend upon dinsemination of ~arning. Disasler management organisations at different administrative l€,vels must. be equipped with adequate facility to cover this aspect. The effectiv"ness of warning dissemination depends upon following issues. , ~arning, Capacity " recoive intornational • Capacity ini Uate in-country warn,ing, " national ond other • Capacity '0 transmit. warning from levels, , Capacity to disseminate warning at local community level, , act. upon it. Capacity " receive warning and vi) Information Managemerlt: Collectiun, storing and management of disilster r"lated information can speed up the response activity as well as preparillion of policy and plilns. Information management oper'ltions depend upon following aspects. • Emergency Operillion C"ntre wbic:h can collect all kind of disaster related information, Facilities to acquire, transmit, receive, di splay, assess, store and g,merally handle information whicb can provide really information for emergenc:y response and plan preparation, • Facility for survey Liaison maintenilnee among government., non-government Mid international ilgeneics j" esscntiill [or proper managf>ment.This can speed up rilpld inflow of internationill financial and technical assistance. 48 viii) Media and Publir. Relations: Mass media can contr.ib"te in reaching th •• disaster stricken population, it can bring Llle population and organisation into close contact. jx) Mobile Facilities: Mobile services .like medical facility or emergency food supply may be required. 'J'he organisations must be equipped with necessary mechanism to provine such services. x) Administrative Requirement: Administrative requirement during peace time, emergency time and recovery and mitigation time would be different in nature. It covers a wide range of activities starting from d"y to day management of disaster management related activities durinq off disaster period to prevision of training facility for concerned personnel and distrihlltion of relief materials and repairing of emergency services. Strong administrative support at all levels is a pre-requisite for an effer.tive counter disaster organisation. xi) Emergency Operiltion Centres (EOCs): It is the fOCill point through which counter disaster activities arc dire("'t.ed. Periouical checks of their serviceability and readiness mus-Lhe <1one. An EOCis the apex body which coordinates communication, information, warning dis"eminat.ioIl, situation assessment and monitoring, determinate" action priorities, allocates responsibi,Uties and maintain contact with media and general population. xii) International Assistance: The requirement of internatjonal assi"tance would depend upon the degree of dostruction and general economic condition of the country. It can come through the government or the NGO's or other agendes but it would be useful to distribule the funds though one apex bony. 49 The n"ture of key org"nisation would determine the nature of continuation of disaJJter managemenl authority at Ruccessivf' "dminiJJtr"tive JJt"qes. 3.5 IHSASTERHANAGEMP.NTINDIFFERENTCOUNTRIES: The status of a country in terms of' economi" development largely determine the '-lay a country or nalion celn respond lo or prepare for a natura] disaster. For a third '-Ior}d eountry, thiJJ "response" is mainly dependent upon the flo'-l of foreign aid since prep"ration and response requires a great de"} of re,,,,urce "llocation. When economic capacity to response" to the natur"l disasters is lacking CIt the individual j"ve1, th"", it becomes thc concern of the country to protect i,t's populil'Uon from the devastating ca1amitj"s. It has been .learned that the Asiil-Pacifi" region is threatened by almust all kinds of djsasters. LEG''''' ~ e,,, """"",ooNI5"'''" I In' ORO"'''' , fiIE'"""","N"-CANOll'NO",-'O' GJ >,o00 Figure 3.4 Natural hazards occurring in Asia and Pacific. Source: Gupta and Davis, ]992. Sixty percent of the rn"jor natur"l disast,ers reported in the '-Iorld occur in this regiun (ADB, 1992) (Figure 3.4) The countries belonging to this p"rt of the world have d<,"ve1oped some institutional setllp for disaster management. " few CasCJJtudies have been presented her". 50 3.5.1 The Caribbean Islands INSTITUTION: The Caribbean visaster Emergency Respons~ Agency .(CVERA)is responsible for the improvement. of warning, f'vacuat.ion, shelter management and as"ociated functions. The islands experiencing similar cyclonic disturbances have been brought under this organi:;ation. In fact t.his organi:;ation has been established to replace the Pan caribbean Disaster Preparedness Programme. police and fire service:;, the army, local government, the RdlOOls and health clinics join the awareness generation programmes undertaken at the beginning of each cyclone Reason. A progrllmme of face to face course i" carried out at village level which offers an indepth discussion on the nature of hurricanes, evacuation procedure, protection of dome"l.ic property and sheltering procedure. WARNING:Somecountries of the Caribbean use the simpl.ified version of Sarif S.impson system and others use a phrasal hierarchy to warn against the approaching cyclone. Navigational warnings are not broadcasted over local radio stations. Be"ides this, traditional method of forecasting (through the colour and f't"te of the se") has been incorporated with the scientific method which has enabled local people to apprel,end the cyclone warninqs properly. SHELTERPROGRAMME:TheCaribbean countries have taken a Vo;>signateo Shelter Programme through which speciaily the schools and sometimes the churches and hf'alth clinics Clre developeO as emergency shelters. 'fhe schools arc gf>tlerally storm resistant structures (required by the .1aw) ano is managed by the headma"ter. Construction of buildings to b" used exclusively as storm shelters has been proved to be economically not viable. 3.5.2 India INSTITUTION:The country consists of several states and not all the stat,as exper.ience the effects of cycione. That is why the states on the eastern COa(;t hLlve taken special programmes for cyclone dif'1>ster management and mitigation. Many NGOs have launched programmes of wind res.is'tant house con(;truction. Tn Andhrrl Pradesh many training centres iNirmiti Kendras) are working to assist people for disast"r preparedness and construction of stOrm proof 5] .'\ , , j buildings. These centres also org,:mise seminars and field level demonstrations and disaster preparedness training sessions for administrators. Since the devastating cyclone of 1977 in Andhra, the state governments have taken coastal re-rlfforestation programmes. WARNING:After the cyclone of 1977 in i\ndhra, public awareness and preparedness programmes by the government and co-ordination between the government and non-government agencie" have been strengthened. Cyclone Warning Centre of each coastal state issue warnings depending on the state of the coming cyclone. Cyclone bulletins include information on the location and expect.ed landfall of the cyclone and instructions to the local people about precautionE, evacuation and rescue. Police wireless system is used to convey warning to local police stations in the event of failure of the public broadcasting system (BUET, BIDS, 1993). SHELTERPROGRAMME:Prior to 1977 cyclone, shelt ••r facilit.y was very meager in nature. Many buildings collapsed during the storm surge in 1977 which Were used as shel'ters. International organisations, local NOOs and state governments' took shelter construction and cyclone preparodne"s programmes after 1977 cy(~lone which badly hit Andhra Pradesh. These she.l tel'S were constructed through the state "onstruction organisations and were alGo responsible for maintenance of the shel ter in some "ases. NGOs mainly constructed shelters in the areaG where they had ongoing programmes. Those shelters are used as schools, government and NGOoffices, community centres, vocational training centres, government guest house and warehouse. Shelters constructed by international organisations were handed over to the organisations which could use them, although maintenance of the buildings was a difficult job. The shape of the buildings have some bearing 011 the UEe. Traditionally shaped building" assumed normal u"" and received greater social acceptance than the unconventi.onally "haped buildings (DUET,BIDS, 1993). In Orissa, arti [icially raised mounds also serve as evacuation sites dur.ing tidal upsurge. 52 "'.[ "II j 3.5.3 Philippines INSTITUTION: In Philippines the apex bony for disaster management is the National Disaster Coordinating Council (NDCC). This organisation acts as a coordinator of relatad agencies and guides the activities related to pre-disaster preparation. The members of the council are the Secretaries of the Government Departments, Secretary-General of the Philippine National Red Cross (PNRC), Chief: of Staff of the Armeu ["orees, and the Administrator of tho Office of the Civil Defence (OCD). Secretary of the National Defence presides as Chairman. This organisation is replicated at the lower levels of the administrative structure through the Regional, Provincial, Municipal, City and Ilarang"y Disaster Coordinating Councils (Medina, 1993). ',I'here are Disaster OJ.Jeration Centre (DOCs) under all Disaster Coordinating CQunc:i,ls. These agencies are supported by the Disaster Action Teams, the DSWDand the 0'1'1. SHELTERPROGRlI.MM~~:The government lia" p"id more attention to develop preparedness programmes for the vu]m:rable population instead of building cyclone shelt",rs. The main emph""is has been given on organisation of population (Barangay), aWareness generation for the gene!;a] population and training of administrators and n"rang 3.5.4 SriJanka: INSTITUTION: Srilanka lies within the North Indian Ocean Cyclone Belt but the risk of cyclone is relatively low. But the seve~e cyclone of 1963 and 1978 made ttJem to t1liuk about neW ways of disaster preparedness and management. The aSj.Jelets related to natural disaster management dre dealt by the Djstrict/Prav.incial Administration, DeparLment of SOleial Services and the Ministry of -.\ Health. Other relevant departments and Armed Forces also get involved as per need. The response to the man-made disaster comes from the District/Provincial Government. Recently separate ministry has been created to handle relief, restoration, rehabilitation and reconstruction of infrastructures affected due to terrorists activities and riots. District/Provincial Reconstructionl Coordinating Committees (DRCC/PRCe)have been established te direct and guide the implementation of the programme. The Ministry of Rehabili'tation and Reconstruction (MRR) "'as created (State, Ministry) in 1989. This ministry aleng ",ith NRCS"''IS brought under the umbrella of the Minis'LJ-y of Finance due to the involvement of foreign aid corning into the country to support these programmes. The problems rela'ted with environmental degradation are handled by the Central Environmental Authority (CEA)and the National Aquatic Resource Authority (NARA).The Department of Coastal Conservation deals with the matters related with sea-erosion, the Fire Brigade deals ",ith fire hazards, the Land use Policy Planning unit and Mahawali Development takes care of the land use policy, the National Building Research Org'lllisation (NBRO)handle the problems created by earth slips and landslides ",hile Forest Department manage the reforestation progrilmmes. (Tennakoon ilnd Dissanayake, 1992) . WARNING:Different sets of organisation5 are responsible for alerting people in Lhe case of natural and man-made disaster. The Meteorological Departmell't and the Deparlment of Geological Survey deal with the warnings related to natural hazards while police and the Armed Forces alert people in the case of terrorism and likely attempts of sabotage, destruction of public property. Apart from all these formal institutions, informal organ,isations also playa vital role in disasler management in Srilanka. The following paragraph would confirm the statement. "During the cyclone in 1978, the Police in co- ordinat,ion with Grama Sevekas' were responsible for disseminating specific community information about precautions to be taken in preparation ror an approaf!hingcyclone. All possible means of reaching the public were carried out including notification 54 through school children. notices posted in markets etc. People wore encouraged to notify neighbours particularly those scattered residences in rural or remote areas about the impending disaster whi.1e pub.1ic addresses were used to notify the public. Persona.1inter family communicationplayed a vital role in disseminat.ing information about an .impending cyclone and encouraging precautionary W measures • (Tennakoonand Dissanayke, 1992). 3.5.5 Bangladesh INSTITUTION; The Standing Or-der (1985) .issued by the government requires almost all the ministries and related departments to assume the assigned responsibility al: the time of emergency like flood or cyclone. But In practice among all the government agencies, Ministry of Relief endeavour' maximumeffort to contribute in disaster management than any other ministries or departments. The Cyclone Preparedness Programme, jointly orgunised by the government of Bangladesh and BangladeSh Red Crescent Society is the only organisation which take active and effecl:ive part in warning dissemination and evacuution in the coastal areas. The nature of involvement 01 vurious ministries ilnd departments has been presented in Tuhlo 3.1. Although the functions of euch organisation has been pn~cisely described in the standing order for cyclone, but the performance of these organisations are not very convincing. The extent of damuge in 1991 cyclone is largely due to negligence at the official level. On the other-hand co-ordination among Government agencies and NGOs was and still is very inadequate. ~ Recently the government has renamed the Ministry of Relief as the Ministry of Disaster Management and Relief and has set up the Disaster Management Bureau (DMB) under this ministry with the assistance of UNDP.This organisation is expected to work as the coordinating agency as well as central policy making authority regarding any kind of disaster management. 55 • Table ] . 1 : Present Institutional Involvement. rtin.isLries Diroctor~tes Divisionsflocal Disaster ManaqelTffitand D.G. 01 Relief and Cyclooe l'rep~redrless PtUjrifllOO Relief Rohabilitatioo lnfQllT1iltim Radio Bangladesh. Bangladesh Television "",Hh Agriculture"'" D. of l,ivestock "'~, D. ,,1 Fisheries M~ Civil I\vi~tim and Tourisian Bangladesh Army Bangladesh Air Force HeLeorology Depat1JrEmt Ibne /\ffairs IJ. of AnBarS and VII' BangladesIJ Rifles D. of Fire Service and Bangladesh Police Civil Defence IJ::lmIIrricatioo Ra:llwilYlJivjsioo Ilrnds iIIld llDads Transport Social ilelfare and \ L.G.R.D.C. l. Irdgatirn, Water LOM>lcpoonL and Fiero CCt,lrol Forcil]lt Affairs Finance Finance Divisirn Extemal Resource Division Industries El:luC~tjCll Post-= and '!'ele Local GovetTfllellt lJivisirnal Ccmnissimer Deputy Ccmnissiooer Thana Parishad Utliw Olundl SaJroo: 1Hl.19'.n. 56 WARNING,In Banglallesh, reception and di::;semination of cyclone warnings involves very saphis'licated technology like satellite images as well as rUnner ••.•"ith"ymbolic flags. The stages of warning dissemination involve various organisationc; at diffen",t level". The vast coastal plain of 36,400 sq. km or one quarter of t.he landmass is physiologica].Jy Olle of Llle most vulnerable aroas of the world and at the sametime one of the densely populated areas. Therefore, warning f"cili'ty is one of tho most important issues which require special attention. The first informaUoll a!lout the formation of a cyclone is r"ceived by the storm warning ""ntre of Bangladesh Methodology Depa,tment (BMD) and the Space R"""ar"h and Remote Sensing Organisation (SPARSO) The satellite imageries are received by the SPARSOfrom US NOAA 10, NOAA- 11 and Japanese G~1S-4Satellite. Supporting climatic information is collected f,om radar stations o[ tile Meteorology Departmer!'!:. At present there arc 11 Gignals for the maritime ports and 4 "ignal" for Llle river ports (Figure 3.5 A, 3.5 B). Basing on tho information received by t.he BMDand SPARSO, weather forecastc; are broadcas'!:ed through radio and T. V. After tile cyclone of 1970, a preparedness prOgrilmme Wile;taken up which resulted in lunching of Cyclone Preparedness Programme (CPI'). This programme is jointly organised by the league of Rod Cross Societies, the Swiss RE'n Cro"" Society and the Bangladesh Governmont, and operatod through the Ministry of Disaster Management, Relief and the Banglarle"h R"rl Crl'scent Societjl''' (£lOReS). S,ince its establishment in 1972, cpp ha" b••••n re"ponc;ih]e for (i) Gpreading of warning signals abollt the approaching cyclone; (ii) helping people in taking shelter; (iii) rescuing people; (iv) providing first aid to tho injured personG; and (v) distribution of roliof materials in co-operation with local admini"tration and BORCS. CPP workG through ito; voluntel'rs. At present this programme is boing oporated in the distriot of Cox's Bazar, Chittagong, Fpni, Noal ,., • 57 " ~, Figure 3.5A: Cyclone warnings issued at marItime arts in Dan ladesh Distance Level \luning Description Si nals Distant Cautionuy 1 This indicates that ships may be exposed Signals to danger after they have left the harbour as there is a region at squally weal~er in the distant sea where a storm may form. Warning 2 This indicates that ships may be exposed to danger after they have left the harbour as a storm has formed in the distant sea. Local Cautionary 3 This indicates that the port itself and the ships therein may be threatened as the port is threatened by a squally weather . Warning Port is threatened by a storm but it • does not appear that the danger is as yet sufficiently g~eat to justify extreme measures of nrecautions. Danger 5-' Port .•ill expeJience severe weather from a storm of sliGht or moderate intensit . 5 Storm is expected to cross the coast to the south of the port in the case of Chittagong and Cox's Bazar and to the east of the art in the case of Man la. Storm is expected to cross the coast to the north of the port in the case of Chittagong and Cox's Bazar and to th~ west of the Dort in the case of Mon(Jla. , Storm is expected to cross the coast over or near the nort. Great 8-10 The port .•ill experience sever weather Danger from a storm of ureat intensit Storm is expected to cross the coast to " the south of the port in the case of Chittagong and Cox's Bazar and to tile east of the art in the case of Man lao 9 Storm is expected to cross the coast to the north of the port in the case of Chittagollgand Cox's Bazar and to th? east of the Dort in the case of Mongla. 10 Storm is expected to cross the coast over or near the Dort. Great Danger 11 Communication with the Failure of MOleorological Warning Center Communication have broken down. The local officials consider that a devastatina-cyclone is coming. -- - - J.5B , Figure :C clone/Iltorm warnin illsued "' river- arts Level W~~~ing Description Si nals Cautionary , H there i, , possibility for ,n, area face scattered Norwester or storms.'0 then A sub-project l'I'elecommunication sub-project: Coastal Area Rehabilitation "nd Cyclone Protection under IDA Credit 339 'DI was t"ken after 1970. (nUET,BIDS,1992). Under this project th" following telecommunication links were inslalled- • 960 chann"l M/Wfor Chittagong-Cox's Bazar • 300 channel M/Wfor Chittagong-Betbunia -Rangamati • 12 months 24-channel M/WCilittagong-BetllUnia Rangamati • 12 number 24-challnel UIIF system for linking the bases. • 12 VIWbase station (Fixern * 4 VIIFbas" statio" (Mobile) • 61 Fixed VIIFPublic Call Offices • 40 Maritime Mobile Public Call Offices (Map 3.1) .Another IIF/VIIF network has be,," instil lIed between the Off-shore islands and mainland station(; under Cyclone Preparedness Programme. The characteristics of this network are: Direct f1F link from 21 coastal stations with BDRCS Headquartpr "t Dhak". * 30 coastal stilt ions connected by VHFr"dio link with 15 VIIFbase stations which ilre directly ('onnected by HF link with Dhaka. * Communication links are independent of any other agencies which yive total ('ontrol by nDRCS. • Coastal Radio Stations arc manayed by HDRCSpersonnel. * Indep-endent Power Sources for supplying power to the stations. G"nerators, storage batteries are being replaced hy solar power sources gradually. * Standard rules and regulations are pr"scribed for use of VIII"and III"radio set.s. IIF aerial masts can be replaced by bamboo poles in case of emergency (Map 3.2). " "'" -~._." ," , " " f ~ ,! , z o H E-< , ~ !" 0, ~ " U , M H z " ,"" , " , 0 Z " " ~ :::> w " "" "" , " !," " , , ~t;" .~" , ~ ~ , '" , "0 51::" 0 ,, 8 " ,,- ," 0" 0'" , " " " " 0'" H d ,, , " o ~~ "", ,,0 , H ,~ " " " ,•, ~il "" " I:f j - ;; ".~ -" " .- COMMUNICATION, NETWORK UNDER Cpp ,~' " ',', , .•../ " " , " , , '--'d :i , , -', 1 ". , ,I ~;,",,"- -. ) , ~Y? - ",., , - ST. '''''". Map 3.2 /' Another five HF stations will b" insta.lled a't Anwara, Banshkahli, Borhanuddin, Swaranl{hoJa i1nd MuLhbaria. The HF r;tations are operated by BDl~CSp"rsonnels, I operator at each station. '['he VHF hases are operated by local volunteers (BUET, BIDS, 1993). SHELTERPROGRAMME:'I'h",first official programme to con"truct ,-,oastal community centre and single buildings sub-coastal community centre" WdStaken by the government in tile sixties. The proposed peace time use of these buildings was as Union Parish'ld offices anll dS cyclone shelters during emergency period. The actual target was ;WOO units but the project was abandoned after the construction of JOO units. Although a good numb"'r of buildings were constructed later, similar in design to those coastal and sub-coastal community centre (Table 3.2) . Table-3.2: Coastal ond Sub-coastal Community Centres .in Coastal D.istricts District Type Coastal Community Sub-Coast'll Community Centre Barguna 14 , PatUilkhali >5 , pirojpur 1 10 Bhula , Laxmipur 11 "13 Noakhali 12 13 Chittagong 38 J6 Cox's Bazar J6 18 Feni 7 " Total 132 138 Source: BUET, BIDS, J993. -::~ . ," o,..&;; •••••• District•••• Thana PWD/lilI [jDRCS NGO fa<:ilities Bhola Charldsson '7 '/ 0 , Lalmoltan l' 0 0 0 Tazumuddin '/ J 0 J lJoulat Khan 8 0 0 2 Burhonurldin 0 0 2 Sadar ! 0 0 1 J1anpura j\ 2 ; Patuakhali Galachipa JO , 0 Kala~a[a 2J 1 2 flaup al , 0 0 Gadar , 0 0 D~5mlna 7 1 0 Mnyagonj {, 2 0 Barg-una Sadar. 1 1 0 BetaRl , 0 0 l'atllOrghata 1 1 0 , I\mtali 1 2 Q , Pirojpur l1athhada 1 Q Q ! Feni sonaqaji J Q Q Lakshmipul' Bamgati 9 0 0 Rdpur 1 0 0 Sadar ,1, g 0 •• Noakhali Gadar U 6 9 Companigonj J 0 0 Hatlya 13 16 0 7'" J8 9 Cox's Bazar I'loheshkllali "7 '/ 0 Klltubdia 7 2 0 Ukhia 1 0 0 Sadar 1 0 0 J Cbakoda '/ J 0 'j'eknaf 1 J 0 Total 12 7J 0 Chi ttagoug Sandwip ., 6 7 Banskhali 4 0 0 Anowara 2 0 0 0 Bandar 2 0 0 Sita Kunda 1 0 0 I1Hsarai fa 0 9 • Grand Total 226(+12 62 " " u.. .~ On the otherhand, after l.i.beration many formal cyclone shelters were constructed in the coastal areq through Public Works Department, Bangladesh Red Crescent Society, Facilities Department and some NGOs (Table 3.3) 64 In tot;:,l there wen' 311 shelters exi.R'l:ent in the country during the cyclone of 1991. The Public Works Department (PWD) of the Government constructed 238 cyclone shelters between ]972-79 under the Coastal Are;:, Rehabilitation Programme and Cyclono Prot.ection Project funded by IDA (Credit No. 339-IIJJ). Eleven of the shelters were washed away or collapsed be [are 1991 cyclone. Bangladesh Red Crescent Society constructed 62 sholters a[ler tho cyclone of 1985. In addition to these, 13 cyclone shellers were constructed by Caritas, 1 shelt.er by DANIVA,Iiby Netherlands Government, 1 by the Government of India. 'l.he Swiss Disastpr Relief (SDR) const.ructed four one story building,;. The Facilities Department under the Mjnistry of Education, Government o[ Bangladesh constructed 37 school-cum-cyclonp ,;helters undor the Universal Prj.mary Education Programmes. Killas or raised eart,hen muunds Were conslructcd by the BDRCSfor the purpose of evacuati.on of domestic animals. Pri.marily 180 kill as were to be constructed but construction uf 7 killas were abandoned. Seventeen out of 173 kjJJas were eroded before 1991 cyclone. The Local Government Engineering Bureau t.ook a projcct of constructing 40 killas in differeot cuastal distd,cts (Table 3.4). After 1991 cyclone an extensivc project [or the con,;t.ruction of multipurpose cyclone shelters han been taken by the Government with internat.ional aid. After the complot.ion of these shelters, evacuation tacility would undoubtedly .improve. But if the population keep growing at the prPHent rate, it wou]rl never be possible to provide adequate shelter fLlcility to the rural people. At present, there are 114 .structure::; in t.he coastal area that. can be used 'IS emergency cyclone shel lers and another ),00 structures are undor constructiun and another :lfi7 units are propoHed lo be constructed (Table 3.5 ). 65 Table: 3.4: KiJ I,H' '" Coastal Districts. District Thana BDRCS LGElJ Patuakhali Kala m 23123) 1 , 19(19) 1 Galachi • Dosmina 7 (5) Bhola Char Fasson 18 (18) 1 Ta i umuddin 7 ( 5 ) 1 Man "e, 7 (6) 2 Daulatkhan 1 Lalmohan 1 Lakshmipur R NoakhalJ Sadar 1~ (20) 2 Bati , 21(10) , COlTlpanigonj , Chitta gong Sandwin ., (3) 2 MiL-sal di 1 Banshkh Cox's Bazar Kutubdia 'I ( ~) Moheshkhali 3 III , Chakaria 9 Feni SonaQa ii 1 •, Barguna Amtali 1 Patharohata 1 Gram} Tutal 156(146) 40 Source: BUET, BIDS, 1993. Note: The figures 10 parenthesis represent the present number. I Table 3.5: Inventory M Cyclone Shelters in the Coastal Belt. I Oraanisation ExistinCT Under Construction ProDose Disaster managment is a conLinuous PI"OCeSSinvolving preparedness, response, recovery, prevention and mitigation. Thc~e components or stilges are interlinke,1 awl the suceeRR of one stage r,~n expedite the implementation of l-'rojects of another stage. The organisational structure that can be developed for djRaster management depend largely upon the structure of admInistration and the locaLion of the key disa5ter managemfmt organisation in the administrative hierarchy. The country experiences presented in these chapter reveal that overall disaster manaqement process is determined by the strength of institutions, co-ordination and above all proper planning. Division of [unctions among the concerned agencies is the key to the suecesr;ful imp]ementation of d.isilster mdIlagementpolicy. It is learned from this part of disCURsion tllat in all the cases (other than !Jangladesh), a linkage L1mongtile organisations at different levels exist which ensUre active participaLion of off ..ic.ials as well aG people. 1n disaster managemenL related activities. The organisational Linkage extends from the national level to 'the grassroot level through regional organisations. UnfortunaLely Banglad",sh did not Ililve any national level organisation for disaster managementto deal with the policy issues or other related matterR until very recently. The major pre- disaster role was played by the offIcials aml volunteers of CPP. The Ministry of Relief and RehabiJit"tiun got invo,lved only with pORt-disaster act.ivities. Desides, lack of ileeonntability of and coordination among tile cuncerned bodies resulted in huge loss of public property in 1991.. On Lhe other hand there Wa5 no formal organisation at different adminiRtrative levels to deal with variollR issues relatod with ryclone disaster. On the other /land the shelter L~cility in the areaR which is normally vulnerLlb.le to cyclones and storm snrges was very limited rompared to the !lumber of populaLion it was inhabited by. For example, Sandwip island was one of the worst affected area~ of 1991 cyclone and tile existent shelters Ilad the capacity to accommodate only 5 porcent of its populaLion (Takahashi. 199J). ~lost of t.h" shel'tels that existed during tile cyclone of 1991 was in very bad shape, Gameof whieh evell cullapsed dur,lng the cyclone. , Needless to say th~t the shelter facility for the domestic ~nima1s ",as very inadequ~te too. 'I'his issue along wittl nome institutional negligence and socio-psychologi,,,,l limitations of the population caused extensive loss of lives and pl:operties in 1991 cyclone. In order to increase the efficiency and effecti.velless of the dis~ster management syr;tem of the country, one nation~l level coordinating and policy making organis~Lioll has been created after 1991. Apart from this. several government and Hon-government, ~ projects have been tak",n to increase the number of shelters in the coastal lJelt. The discussion of this <;hapter reveals that the country need some reorganisation in t.he field of :ln6titut,ional framework for efficient and effec'tivo cyclone disaster management. Reg~rdless of economic situation or technical ah.ility, a country that is vulnerable to any k.ind of disaster, must develop a strong, well co- ordinated institutional setup to minimize tile loss incurred by each ~ttack of natural calamity. Stand by distressed' unitedly: Khale ••• ,,,.~, •••• " ,,~,. "., "'._ "",., •• " N, " "",' ,. _," 0" ••• '.'" "" .' •••••••".,,'_ ';;~. ;~';~;~ .,~_":;::.",,:,"~~,:;~:: .__,••.":;: "":.:;' •..._,,,•.,,m,~:;':;;;:' ~'::.':"',,".• ,,. __ ,. ;~:~ ~:.",,:::~:.,:,,~,I:':;:' "''''''''., .. ~".".., ""' ._. " .., - ".~_.",~,,,•.,..k~""",.,.•,," ""'., ""',, """".,~.. ,., ..• ," •-:::.•.•::..;~;c.;~.;~~_~:..:;~:;:;:::::.::!l'~ ~;,:- .;;~:,,"n' •.• ::':::'''',':":;;~~:.~,';~~:. ~" .•.••• " " •••• ',_.... ••""~" e,... "."., ""''',, •• , DESCRIP'l'ION OF 'l'lIE S'l'UDY AREAS AND TfIE Il'lPACT OF 1991 CYCLONE • CJlAP'I'ER - 4 DESCRIPTION OF THE STUDY AREAS AND THE IMPACT OF 1991 CYCLONE 4.1 IN'I'ROUUCTION The questionnai['e survey was conducted in thanas '" Cox's Bazar district to idontify the nature of problems encount",red by people "nd institutions at the local level. Some of these problems have alreally been identified in various studies r'onducted after 1991 cyclone. This survey was condueted in order tu obtain more detail information on the issues related cyelone disaster management both from the population and organisations which can pinpoint tile areas where neWapproach is re(juired or institutional intervention can be introduced. The physical vulnerability of Cox's Bazar district to air borne calamit.ies has already been discussed in the previous chapter. The discussion of this Chilpter would shed sam" light on the physical, demographic and socia-economic condition of the study areas which make tllem more VUllleIable than the I est of the areaS. 4.2 PHYSICAL CONDITION Kutubdia and Chaka-.:iil ale two than"s (Local Lcvel admi"istrative unit) under Cox's B Chakaria thana IOCilte between 21134' ilnd 21°SS' north] atitudes and between 91°54' and ni13' east longitudes, Kutuhdia island locate botween 21143' and 21°56' north latitnde:; aorl hetween 91frSO' and 91~54' eas't longitudes (lI1IS, 1992) (Map 4.lA,4.1B,4.1Cl. The total area of chakaria is 643.46 SCI.I,III. includJng 3B.95 sq. km. river area and 17.77 sq. km. forest are". KuLubdi.athana compIisos an area of 215.BO sq. km. i.ncluding 65.37 sq. km. river area and 4.46 sq. km. forest area. 69 , STUDY AREAS IN REGIONAL SETTING \ N "-'. \ , t /'" ~ : ...••• Ii " "I, I " :-.,- BANGLADESH k.m Q 30 ~o 5,0 ~1ap 1+.1A " 70 KUTUBDIA THANA N .~ LEGEND Thana Boundary Union Boundary Study Area Man 4.1B CHAKARIA THANA 1 ~ 1 1 k_ •••• , N ~ LEGEND Thana Boundary Union Boundary - Study Area MaD 4.1C " I The island of Kutubdia is a palL of Ma1:.amuhurlDelta. The island is eighteen miles long and thre" mile!; broad in tile north and one mile broad in the south. (Rashid, 1977). The >lestern side of the island has a tell miles long beach. 'I'lle island is separated from the mainland by Kutubdia channel. A swift and danqerous current flow along the middle 01 this chanw'l (of 6-10 fathome depth) (Rashid, 19"/7). The landmass oI Chakaria thana fall into different physiographic sub~c"legory. The northern parL belong to the north coastal plain, the e"stern pal t to the western hills and the southern part to the Matamuhuri deltaic region. The land level (jradually decl"eases towards the sea and the general landmass lies within 5 feet fl"om the sea level. The nearneSS o[ the sea. the presence of hilly area on the cast, land level. clearan"e of mangrove forests ill Chak,~ria in recent years .and unplanned dense settlement combinedly turn these areaS naturally vulnerable to air and river borne caJ~mitics. 4.3 DEMOGRAPIIIC CHIIRAC'l'ERISTICS OF Tim SURVEYED POPULATION The demographic characteristics o[ the study areas are presented in the following section. 4.3.1 Age Co'nposjtion The bafiic nemographi" characteristics of Llle fituny areas have been presented in Table 1.1. It is learned [rom the table that Cilakaria ifi about 4.3 tjmes larger .in 'terms of papulation and about 3 times larger in terms ot area than Kutubdia. The age composiLion of t.he study population has beell presented in Tahl" 4.2. Th" papulation o[ the sample hous"holds havE' been categorised into different age groups at 10 yeur-s intE'rv"l. It is evident from Lhe Table that maximumconcentration lS in the "ge group oI below 10. and the numbE'r o[ popuJatioll gradua.lly decreases ill the higher age groups. ThIs LlistributioJl coincide with the Lrend of national population distribution .hl'Luvarious age groups (Figure 4.1). The distributioll of the household he"ds in this table show highest concentration in L1w age group of 30-10 in both the areas. III Kutubdia. seven household heads age between 17-20. Table 4,.1: Basic Demographi~ Chara~teriGtics of J(ulubdia and Chakar,;a Thana Lo~ation Character.i s tics Chakacia Kutubdia Area 'i . km. \ 315.80 &43.46 Po alation 95 0>' '"' '46 Den5i ' Acre 63' I ~~ ratio ""197 19. umber of u'useho1d5 19 463 63 6"11 Hous~hnlds Size 6.5 6.' Lite c Rate'7 ars ove~' 24.1 23.4 School tendance '" "a rs' 13 435 '191 " '"' . 32 .0 Po-u' "on ''o' 31.30 Union 6 19 l1auz 9 66 Vill e " 330 Source: '" 1992. Table 4.2: eo ulat.ion Distribution Accordino to A e Grou 5. Kutubdia Cltakaria IIqc Groups Total Head Tota1 Head , ". , '0. , '0. , ". Belol1 1Ii D4 .09 - -- m 42.97 -- 10-20 ,oe 29.39 7 4.67 '" 23.36 -- 20-30 '" 14.70 21.33 15'/ 14.32 26.00 30 4n 8.07 '9" 26.00 84 7.66 "J9 32.67 40 50 82"' 7.88 JJ 20.67 71 6.48 21.33 ~O-60 6 6.43 JJ 22.00 47 4.29 "25 g.q 60~10 19 . 0 5. 31 19 9. 1 2 5 3.33 1 .09 - - - - - '" 1 , Total 041 100 '" 100 100 '" 100 SQurce: Field Sur~ 1993. • ,,-II IBIII!" "" 0 '" :- _. "TO'" •••• ]oTOOO = \ 2OTO,", lOTO '" o D 51) '00 '''' "" "" 300 Jlo Fi ure 4.1 A e dilltribution of the stud o ulation. 4.3.2 Educiltiun The liter""y rate or tlle cOUIl'Lry is sLil1 low. III gen~ral a persoll who can wri-Le his/hp.I' name and can reild the headlines of the local newspapeI' is considered as literate. '['he rat" of dropouts from the school at the primary level is " majol: problem. on the oLherhand adult educ,,'tion programmes are not very ex'tenlJive. Literacy rate is relatively lligh in KutulJdia and Chakaria compared Lo other areas of the country (Table 4.3). The stUlly popu.1"Uon has been cat"gorised into five groups according to their educational i1tLainment. In Kutubdiil 52.74 percent of the study populaLion and 47.26 percent of that of Chakaria are literate I.'hil", this rate a'L the thana levels arc 24.1 and 23.4 lJercent according.ly.Nearly half of the household heads (48.&'1 percent) of J Table 4.3: Educ"tioll Level "' the stud Population. Kutubd"la Cllakaria Level of Education Total Head ,, Total ,, /lead , "" , '", Il'iterate m 47.26 "I') 51.33 5"18 52.71 63.33 41.60 32.67 39.60 " 24.67 Seeondar 'n 7.01 15'" 1.00 "05 5.93 " B.OO Intermediate 2.11 1 2. 00 1.09 ", 2.67 Graduate " 2.02 , 2.67 "1 0.64 , 1.33 Total 1041" '"0 ISO 100 1096 100 150 100 Source: field Surve • 1993 . 4.3.3 Occupalion The study population are engagod in different types of income earning activities which are classified into ten major groups. It is revealed from the Table 4.4 that agriculture and day labour are the predominant occup"tion among the household heads and other income earning members. The category of diiy 11lbour mainly includes construction workers. Tn boLh the areas, cOllstJ:"uction of cyclone shelters and embankmenLs provides ample employmenL opportunity for the people. Salt and Shrimp production is also a major SOllrce of income in hoth the areaS. femllle household heads are mainly engaged in trading of goods produced from horne-based cottage industry. Dependent population incorporate chil<.lren (under six) and old members. Table 4.4: General Oeeu 1'he number of student» in relation to the »ize of the study populatioll is qui te high. This section of the population Call effectively be used as ~ major media for illfQrmation dissemination and awareness generation about dis~sler preparedness and management if propor measures are takeu. Extension of non-formal education programmes of various NGO's in the coastal areas has facilitated • primary education service in the rural area:; in a Guite radical manner. It should be mentioned here that there are many case" where the household heads ar", en\Jaged in non-agricultural occupation although a major part of the (amily lucome com"''' [rom agriculture. The distribution of the households of tim thanas according to the major source of family .income is presented tn Figure 4.;1. .~,~ I "00 ~',~ ,,,,oJ , [ '''''',~ ,~ '00 • A"nrn"L~..,!mD'T'" "~,"m ,_'.~ c~.'"'-rn.••" a ""~.,_ D , Chak.". A,,".,,", "..,1~ Do,L,' "",,,-., ,,_"= CO~""T""" '~"" ""." ,. ""f.', m , Figure 4.2 Dist.r.ibution of the households accon'ling to major source of family .income (Thana [,evel). Source: [\05,1993. 4.3.4 Yearly Income Di:;tributiul1 The income of the individuill hou:;ehold heads includes the income earned from the primary occupation. '1'he family .income i:; the lotal sum of tile inr.ome earned by e"ch earning member and Llle income e"rned from the family assels, such as "yricultlJral field, ""It or shrimp cultivation, by-product" of dOJneGti" "nirna1G OJ:" business. Ma.jority of the hOUSe!lOldhe"ds ('19.33 percent In Kutubdia and 71.34 percent in ch"k"ria) earn 'rk 20,000 or less annually. The households !leads individually earninQ more thaJJ Ollela" are engag",d .in salt or shrimp "ultivation. 1n terms of total family income, about 48 percent houGeholds of Kutubdia and 46.G7 per"enl households of Chakaria earn Tk. 30,000 or less annually, which means nearly half uf Ule study households earn less than Tk. 3000 per month ('I'able 4.5). It should be men1:ioned here that the valuation uf crop annually produced from the agricultural land which is owned by individual household has been incorporated in the f"mily income altllOugh miljOr shilre of the crop/c-ereal (specially where amount of land is relatively low) ls consumed by the household. It is worth mentioning here that the major sources of higher income arC larger agricultural farllls, or salt ilnd shrimp I-'roduction which are highly susceptible to be affected by natural calamities. Table 4.5: Yearlv Income Distribution. KuLubdia Cltakaria Income'>0 Head Fam;lv Head thousalld) 'a~lil , , , "". , ". "". ". 17.33 , 4.67 n 6.67 lln to- 10 5 3.33 " 21.3 62.67 10-20 39 26.0 62.00 0 " " J "' )J 20.6 JO 12.00 20-30 IB.6 JO 12.00 J' I , 11. 3 9 6.00 30-40 2'1 16.0 ) t.. OO n 0 3 ) 9.33 4 2. "7 40-'0 H 9.33 2.6'1 J4 8 5.33 3 2.00 50~ 0 10 6.67 ) 2.00 ~ 9 .00 1 0.67 60 ( 4.67 4.00 4 2.67 70-80 5 3.33 1 0.6'1 6 ~ ~ - nO-90 2 1. 33 ~ J 1.33 ~ ?6" , .D 9,-100 1 O.f,' 9 8.00 2 ,.33 20 13.3 2 1.33 100+ 12 ) 15~ 100 1>0 M 120 '00 >0 100 ~ Source: Field Sune 1993. 4.3.5 Housing Condition Majority of the house::: in rUl',,1 areas of our country are temporary in nature. Few can afford to construct permanent/pucca houses. There are 150 householrls in ",ach study are who possess 185 units (houses) in Kutubdia and 169 units (houses) ill Chakari". Majority of the people .1iv" in single roomed (;tructur"s which are separilt.ed in different s()ctions. Only a few can afford to erect more than one unit/house Lo accommodate surplus populalioll or to be used for cooking. Table 4.6 shows that 76.67 percent lJOuscholds in Kutubdia and 87.34 percenl uf lJOuseholds in Chakaria passeRs unly a single structuLe Lu live in. Which means ;n.3] percenL IJOuseholds in Kutubdia and 12.66 p"IcenL households in ChakaJ.-j". can afforLl to have more Lhan Olle structures to live in. Table 4.6: NUII1berof Units P"r Family. Numberof Units Per family KuLubdia Chakado , "'. , 8o. On]y One UniL US '16.6'1 m 67.34 T1ioUnits '9 19.33 n 11.33 Three Units • 4.00 2 1. 33 'foLal 150 100 "'0 100 Source: Field Survey. 1993. 'J'able '-' Construction Material of 4.4 l':i"FECTS OF 1991 CYCLON~: ~he effects of the 1991 cyclone on various socia-economic aspects of the country are 4.4.1 HumanDeath ~he country experienced a nightmare on tile night of 29th April, 1991. Thousands of people died in OIle night. 'fable 4.8 shows the age and sex specific deaLh tolls in 'two areas. The casu Onthe other hand many f,,",11ies lost tlleir children among the crowd on their way to the shelt"r. People running in panic, ,lost their contact wi1.h children and their bodies were nev",r found. Many people tried to Silve their lives by climbing on th", trees but unfortunately many of them were washed Figure 4.3B: Human sheltering on the upper chamber of a house. 81 Table: 4.8 Loss of Lives Ku'ubdia Chaka , Grand Groups 'I'utal ". Female Male Total female Male Total o • , 5' 53 HO , I' 128 0-10 , 58.89 56.99 53.66 38.99 50.00 45.00 52.24 80 15 16 31 j 5 8 J9 10 15 , 0' 15 "' 16.61 '2."13 on.oo ." . 1 35 '0 ); 13 29 1 4 6 15-45 , "4.29 . '3.98 14.'5 11.11 18.18 15.00 14.29 15 0 1 - 1 25 45 60 " 11.71" 5.55 1.5 10.20 • 13.39 9.68 , 5 1 , " 5 " '" ". • 8.04 2.15 5.36 27.78 9.09 17.5 7.35 8 H1 93 305 Ie 40 "5 Total .. " 100 , 100' '"0 140 140 100 100 Source: Field Surve 1993. 120 - [j KutubdiA 0 Clwkaria '00 ," o ~60 , •"•• '10 n __ , __ .,--1, o "--~I. OTo 10 10T"I) 15 TO 4.\ Age Group Figure 4.4 Nature ot: human death in 1991 cyclone. " 4.4.2 Human Survival On Trees Trees played an important role in Gaving human] ives during 1991 cyclone. Gradual Increase of water level compelled people (01100did nut evacuate) to take refuge on the roof or upper chilmber of the house. Unfortunately many people 10Iere 10Iasheu away from the roof tops and many were dro"med when the en Lire loof was ,,"'ashed away (specially Lhose roofs which were mad•• of hay). Many of these people climbed up the trees which \"ere still standing and tree trunks 10Ihich 10Iere floaLing around. ThiG opportunity 10Ias mainly availeu by the population who had the strength to struggle through the tidal current .. Children 10Iere generally accompanied by older members 10Ihenthey took shelter on trees. It was basically eilSY for the population ageing between 15 to 45 to survive in this manner (Table 4.9) (Figure 4.5). It 10Iasextremely difficult for tho adult, old and pregnant females to climb up the trees and rema.1n there for huurs. ~lay people fainted while staying on trees but fortunately managed to cling to the tree. Human Iiurvival raLe Oll trees is higher in Kutubdia then Chakaria. HomcGtead trees Gaved a large number of populilUon in this area. Table 4.9: Human Survival on 'I'rees Kutubdia Chakaria Grand Groups 'l'otal '" Female Hale ToLal Female Male Total 47 106 9 25 1<9 0-10 '", 3"/.11" 22.1"1 28.5"1 20.45 48.08 35.42" 29.98 n 25 4 7 11 74 10-15 ", 16.98 16.98 16.90" 9.09 13.46 11.46 15.05 60 121 181 16 1< ;0 m 15-45 '", }"/."/3 '"/.08 48../9 3&.36 26.92 31.25 45.18 19 - 10 U 6 47 47 45-60 ", 6.29 - 2.69 29.55 11.54 19.19 6.21 1 8 11 1 - 1 U 60. '", 1.89 3.11 2.91 4.55 - 2.08 2.18 157 212 J71 44 52 96 467 Total '", 109 109 199 100 190 100 190 Source: Field Survey,1993. Unfortunately large number of trees WPTedestroyed in 1991 cyclone but not much effort har. been taken to encourage homestead forestry which was the major sour"e of greenery in the rura.J areas. '00 I 'w m Kuwbdl. 0 Cha! 4.4.3 1,055 of Domestic Animals Domestic animals are not only usod for cultivation of agricultural fields hut ilre a major sour"e of im~ome too. Lack of evacuation facility for domestic animals, last moment evacuat.ion of household members and peop) e' s reluctance towards evacuation led to large sc~le death of domestic animals. 1 I"'" Table 4.10 , l.oss of Domestic Animals 'rype PerC.nta " of Loss Total I' 75 100 , ,I 0% 1-25 , 25-50 % 51-75 % .I Bull/Oxen " 5 10 19 192 m '", 3.42 2.13 4.27 8.12 82.05 100 V 'I 16; CO' 0 0 7 143 -". 4.85 - 4. ~4 4. 86.61 10" Goat/Sheep • 0 0 3 132 130 ", 0.'13 - - 2.20 9? .6 10" Poultry 0 'I 0 5 m Birds " "" , - 0.67 1.G8 9'1.65 100 Source , Field surve 1993. In tot,,) there ,"8re 942 bu)ls/oxeG IOl-meLlby214 huus()ho]rls). 377 cows oWlled hy 165 householdGI. 741 goats (uwned hy 163 households I anti UO~9 poultry hlnl~ (own"d by 29B huuseholds). It is learnerl [rom th" survoy th"L major-' Ly ot the llUuseholds (82 p8rc"nt of the IJOuc;eholds owning bulls! oxell. 86.67 percent of the hOUS8holus owni"<1cows. 80 ].Jercent o[ til(! houselJOldc; possessing goats and sheep anel 97.65 percent of the househohls possessing poultry birds) experien"ed 76 to 100 porcent lOGS of domestic ilnimals during th,. "yc;lone of 1991. 4.4.4 Elfect on Trees Trees WE'r8severely ,,[[ected during and iliter 1991 cyclonf'. ~'irst of all they wer" up1.()oted. the leaveG were burnt lJy the hot air, and the major-' ty of the surviving uneS di"rt due to ex"essive salinity in the >;oil. Trecs It is learned (rom th" 'J'able 4.11A t,hat about 80 percent households of Kutubdia and about 57 percent households of Chakaria experienc"d nearly 100 percent Joss o[ domest;ic plantation. TJlCrat" of thL; • Joss is qujte iligh in KutulJdia since L1lis off-shure island eJJdured the first '1.ttack of t.h" storlll surge and Table 4.11A: Loss of 'frees Areas Percentageof I,OS5 0- 1-25 , '0 , I 51-75 % 76-100 % Total " 110 Kutub 85 The surveyed IJOuselwlds "all be groupf'd ill to fivc groups according to the numiJer of homesteaCl trees. There were 225 houscholds posses,dng about 100 treeG, 17 household" with about ;)00 trees, 10 households with 100 trees, 2 households "iUt 400 trees and fi households witl, morl) than 400 lrees. [ 'l'here "er e 20 householus from Kutubdia ancl 19 from Chili,aria) ",ith no trees at all. Tlle only such (',~se evident in Kutubdia, was ,. a member of an extendell fami ly. Therefor" 'LIli£:particular family availed it.self of the henefits rend"rell by t.he tr"e~ COlnmolJlyowned by th" famiJy as a whole. 'l'he ca"es falliIl\J into Lhis caLegory in Chakaria where found in Cllarandip area under ('hiringa uniou. In this are" the houschollls WE'rethe first generation settlers, who were brought. from oth"r areas under the "Cluster village Programme.n The"e people were found 'Lo be leGs interes Led in planting trees ~roulld their houses. The reasonG il'ttriblltable for sllch behaviour are fi.rstly, l;elativ"ly inferLile nature of soil due 'to salinity which a\jain JesuIts from nearness of the sea and secondly due to com[Jarat.ively !lew habit.at condition wlJich has not yet been able to establish a bond bell-Ieen people and the land. Majori t.y of the !lOUR"holdr; (56.00 per cent in KutulJdia ~nd 48.00 pcrr.ent in Chakar,i,,) had five' t,o eight type" of trees around the house, UIltortunatE',ly psing I"Ore on roall side plantation or fon,stry programmes on embankment.s or in inst iLutional bui Jdings ('fable 4.11B) . Table 4.11B: Number "' No" Saplings Planted Study Areas Number of Saplin " Total 0 1-10 11-;)0 21-30 31-40 41-50 Kut.ubdia No. m B , , , , 150 , 84.66 9.33 4.00 00.61 00.67 00.67 fOO , , , - Chakaria No. ne '" " - fOO , 86.67. 5.34 3.33 3.33 1.33 Source' field Survey, 1993. 4.4.5 Imp;:l"t on HOWlesand Type of A>;sistance Received for !louse Reconstruction. Th" rural houseG ar" 1>asici'd.ly tcmpol""ry in nature. Permanent strucLure" for rcs!d"ntial purpose ar" very rare cases. It is easily apprehendahle how easi.ly "uch houses can 1>eshat.tered by the lstrong wind ,md gradually ;,'iped out ;,'ith Ute incr""se of ,,"'ater. The p.lat[orm of the house is mao" of mud, tlwrefOJ;e when th"y were loosened by the stanr'!lng wat"r, the whoIe strtwt.ure practically collapsed "nd peop.le who took shelt"I' on the roof ,"'ere either II drowned or floated away with Lhe Cllrrellt with the entire roof. It was reported that mdrlYfloating roofs were preveated from being carriel! away with the slrung Cllrrent by the trecs whidl were still standing on the ground or by the f"llen ones which created a barri"r. Almost cent perc"nt hous"s were affecled. Manypeople were able to retain the tin of the 1:00£Sby taking 1:efuge on them. The nature of damage caused to the houses is present,,<'l in Table 4.l2A. The hou5es which collapsed entire].y a1:e d"sivnated a5 totally damaged and the r;ases whC'n~roof or wall mater.ials could he saved are designated as partia.l.1y damaged.. The Cilse5 regaroed as "not, damag"d" arc concretc houses. It waS impossible to cover all the households through house recollstruction programmes adopted hy the government and non government org"aisation5. HOU5e reconstruclion ils5istance waS provided though Union Per ished. Chairman and NGO'smainly. Less than 50 percent households recei.ved any kiild of ilssistance for house reconstruction. The rule of various orqanisations in house reconstrucLion hilS been presented in Table. 4.12B in Kutubdj", Union Parishad Chairman played an importanl role huL their role in Chakaria was less significant. Tin was the most widely distributed component, majority of which waGdistributed hy llw Union l'"rishad Chairman .in Kutubdia. On the oth"rh"nd in Cilakar.i.a, NGO's were the main distributor of ',1'i". In Kutubdia one household rer.eived onp tent and another family a pjece of land from the Union Parlshad Cha.irman, One interesting issue here is, many households who received tin for reconstruct.lon of their huuses, did not use it for the expected purpose, Manyof them sold it to huy the neCessary goods, besides, there is " peculiar teadency of people to hidp the truth about relief materials. People think thilt, sinc" tin roofed house is a symbol of good statu5, it ;,'ould creflt" obstacle lor the f"mily to get relief goods if another diGaster strikes the area. Table 4.l2A: Nature of Dama e CaufJed to the HoufJe Total study Areas T {' nf" Dama e Tutal1' DamaeO Part' all' Dama,0 Not Damaed 150 Kutuhdia I "0 H3 7 , 95.33 4.67 100 Chakaria 00 m 1 150 , 83.33 16.00" 00.67 100 'rotal 00 26. 1 300 , 89.33 10.33" 00.33 100 Source: Field survev. 1993. Table 4.12B: Type of Assistance Received for House Reconstruction 1'ota1 Type of Stlldy j\reas Sources A&&l.stance "0' " ", '" Tin & MonetaI}' ""'3d 5 1 - 45 Assistance Kutubdia '", B1.4 11.11 2. A2 2.22 - 100 62 Chakada 00 14 37 1 1 9 , 22.58 59.68 1.61 1. 61 14.52 100 26 Bamboo& Hay Kutubdia 00 7 - - 5 7.59 °2.31" - 100 Cl1akalia 00 - , - Others Kutubdia 00 "5 26 , 100 100 Chakaria 00 - - - - 5 - - 'l'ota! Kutubdia 00 1 1 7J 5 57.53" 39.73" 1. 37 1.37 - 100 Cltakarja 14 37 1 1 , 62 '", 22.58 59.G8 1.61 1.61 14.52 100 Note: UPC~ Union Pari shall Chairman, NGO~000 Government Organisation. rp~ Political Party, NB~ Neighbours, ORT= outside Relief Team. Source: neld Surve , 1993 It if) revealed thai: 3B familie>:; in Kutubdia have tin roofed houses and these famil.i"s utilized the Un they received from various sources, althou<;J11 the total number of families who received tin was 45 (Table 4.l2C). It should be mentiuned here that, the CT sheets diGtributed to the people were Gupposed ta provide roofing material for one house only, but if wc consider the total number of houseG that are owned by these families D8l, then it is le,uned froln Table 4.12C that around 16 percent families did not use them for roofing purpose. On the other hand, in Chakaria 44 families uGed Un for the expected purpose where <:15a totill of 62 families received tin [rom vilrious sources.The peJ:centagp. uf non-utilizatiun is ilbuut 29 percent here. Obviously the percentilg8 of non-utilization would become much higher if second and third units are not considered. People sell such items in order to buy more urgent items. The Not i\pplicablp. cases include those families who did not receive any aGGistance for house reconstruction but were ahle to construct tin roofed houses on their own. Table 4.12C: Roof Mater]ill ,"d Type Assistilnce Recei veel by the Family "' Relief House1 HO\lse, Huuse1 Total Materials K C Received , C , C K C , , , 1 Tin ". JJ 41 '" , 86. B~ 93.18 7.69 5.26 100 100" -- 5 - ilamboo/Hay ". 1 -- I 1 , 60.00 -- 20.00 -- 20.00 - 100 Others No. 1 -- -- I -- , 100 ------100 , -- 17 OK No. 16 1 1 " , 89.66" 94.12 6.90 3.45 -- 100 100 Note , ,- Kutubdia, C Chakaria Source , Field survei', 1993. 4.4.6 Financial Loss of Different Income Groups The cyclone of 1991 was a cill<:llllity w.i.th short duration hut it left its marks in the economy of the country ilS well ilS on the households, which would rf'qUl.re a long poriod to recover. The households living in the coastal ilreaS experienced different degrees of financ.lill lor;::; ilepending on lhe nat.ure of economic condition. 89 • Tab}" 4.1311: Fin~ncial Loss of Various Income Grou ~ in Kutubdi~ Ye~rly Income Ranffc of Pinancial J,o~s (Tk. i, ' 000) 'j'otal 11*vels ~'k.in .0'" ,50 50-100 100-150 150-200 200'" 1-10 '0. S , - - 5 , 80.00 20.00 - '"0 10-30 ". >5 6 J 5 , 56. n'" 22.39 B.96 4.47 7.46 '00" 30-50 , >5 , - U , 34.39'" 36.59 34.39'" 14.63 '00 , 50~70 ". 2 • 2 n , 11.76 4"1.06" 12.90 6.45 5.88 '"0 10-90 ". 5 2 1 , - 71.53, 68.51 '"0 90-110'" '0, - , , , 7.69 1.96 1.69 76.93'" '"0" Total ". 54 40 n >50 , 36.00 26.67 14.00" 11.33 12.00'" '"0 Source: field Survey 1993. Table L13B: Financial Loss of various Income GrOll ~ in Chakaria Yearly Income Ran e of l'inancia1 Loss (1'k. io '000) Total Leyels , '000' 1-50 50 100 '00 150 150-200 200'" 1-10 '0. 1 - - 1 . 5 '"0 - - , '"0 10 30 '0, S; 1 J " 5 84.13 11.11 J .17 1.59 - '"0 30 50 0. 19 9 - - J " , 61.29 29.03 - 9.68 '"0 - 2 2 n 50 70 '0. 9 • 5 ~2.95 23.03 - 11.76 11. '/6 '00 10-90 ". 2 2 2 - 2 0 , 25.00 25.00 35.00 25.00 '00 90 110+ '0, J 0 2 2 9 , 12.50 33.34 8,33 8.33 37.50 '"0" Total , 9J 30 6 5 >5' 5 62.00 20.00 4.00 3. J3 10.67" '"0 Source: Field SurveY, 1993. '" Need less to say that the luss incurred lu the fam.ilies having larger amount of landed property and other re[;our["'es was quite higher th"n the poor f"milies. 1I1thouqh the amount of loss for higher income families was relatively low compared to their annual income level. On the olher hand t,he luwer income families had to cope wilh such an amollllt of loss ",hid, waG "everal times gre"ter than tile annual income of thpse families. 'I'he financial loss of a household in 1991 hils been calcul"ted on the b"sis of market value of tile domestic animals, trees and fruits, house, standing crop, salt or shrimp producti.on thal was destroyed, boats and trawlers which were lost and household valuables,Table 4.1JA and 4.13B shows us the distribution of economic lass incurred in il family according to the yearly jncome. 4.5 SUMMARY Physical characteri"tics iIl"l geographic location can influence the disaster vulnerability of an area. iJangladesh has iln exceptional physical setting in thls regard. This n"t.ural exposure to disasters like flood,cycloll" and river bank pros ion is further aggravated by some socio-political aspects. High population density, low income and illiteracy jointly make people who "re living in the coastal areas more vulnerabl" to cyclone. The analysis of effects of 1991 cyclone Ghowsthat L1,echildr"n "Ie the principal victims of such calamities. Ne"rly fifty p"rcent of death reported by tlle study population was to the chil This scenario giveG us some inuications about L1le fields where authoritative inlervuntion is required to minimize the adverse effects of natural calamities and th"reby prepar" the policy guidelines. 91 Stand by distressed' unih'dly: Klnlie "", """,' ",~ """, ", ,,_ ",,0> " ••• , ";.:::;r:;'~,,:~:~:.c::\,:':.:;':';';;::;:,;~"~.:.": • ,~, '" "I:' e" •• - •• ''"''"''- ~,"'"_ "",...." .e,", _ '"e '••"__ .,~~., """•• ". "" .'" ,'.--"-." '" '''~, '"""".•'~.,•.~••,,,".-'"''•.."'"". '" -'" ,." ...,., -'.' ,,,..">~••,"',,~~". :,'~':C:',;'<'!.::::;•.,:,~~: ;:":::,, ~::::~ ." .- ~ ;~~F:.~::':".;-:-.•••.'., -",~:t",,,.".,,',,''','-,.••.'~.::::'::;~:s:~~:~t:~! ~"- .. " ",,"- , .'-'" "'~"-'.' - '"...- ,",~ PEOPLE'S AWARENESS ABOlJ'l' CYCLONE DISASTER :MANAGmEWl' 'Massive relief work b) tons goods dI ,-"'~. PEOPLE'S AWARENESS DISlISTEll. MANAGEMENr 5.1 INTRODUCTION People'" perception or awarenesS about disaster preparedness, management ilnd prevention in all important component of niltiona.l disaster management. 1'he nature of preparedness and awareness required for disaster management nelJends upon the type of disaster, but requirement of people's p"rticipatioll in these processes remains conr;tant. Community part.icipation develOp a linkilge bet People's underst"nding about the warning signals is important when the thre"t imposed by the calamity is high. Illiteracy "ccompanied by lack of training or aWareness generation programme J e The first thing there is to know about the warning signals is the total number. Because each level of warning signal indicate the status of cyclone in terms of development and location. Since there is no other warning system to warn general population, people have to assume thei I' expected reSlJOllse from these warnings which are actually issued for the sea going vossels. It is evident from tile 'I'ahle 5,1 that abou!: J2 percent people do not h Table 5.1: Perception Abou:,,;~tal Numher of c clone Warnin s. Thana~ 'fotal Number Warnins <10 0 >10 "' DoNot 'fo'al Kutubdia """ ,". 9 ") 10 18 100 G.OO 75.33 6.67., 12.00 100 Chakada ". 1\ )" 17 1;0 , 10.00 7'. ~O 4.67 11.33 100 Total NO. H 224 17 J5 100 , 8.00 "/4.6"1 5.6"/ 11.66 100 Source: Field Surve 1993. 93 5.3 PERCEPTIONABOUTPERIODOF EVACUATION In general 6ignal no. 7 i6 regarded as the first level of warning for emergency evacuat,ioll. But majority of the respondents are not aware of this concept. Only 24 percent of total population think that evacuation should be done when warning number 7 is issued. Gener"l tendency is to wait until the situation becomes worse. But by that t.ime t1wrc may not be any scope [or evacuation. Although the aetivities of volunteers of the Cyclone Preparedness Programme is quite extens.ive in these t Table 5.2: Perception About Period of Evacuation Study IIreas Signal Signal Signal Signal S.i.gnal Donot Total NO.3-6 NO.7 No.8 No.9 No.lO Kno1o' Kutubdia ". JJ J< 20 40 U 150 , 24.67 22.67 13.33 5.33" 26.67 7.33 100 ChakaIia ". " J9 n 27 27 12 100 , 14.00 26.00 14.67 18.00 19.33 8.00 ,"0 'fotal n J5 59 2J 100 ~ , 19.33'" 24.33 14.00" 11.67 23.00 7.67 100 Source: Field Survey, 1993. There are some people (7.67 percent of the tot,d) who do not have any idea about tile level of signal indicating the necessity of evacuation. If the r-esponses included in 'tile first cat",gory (Signal 3-6) are included with these cases since those answerS are incorrect, 27 percent households (32 percent of Kutubdia, 22 percent of Chakaria) b"'COlne ignorant about the signal number indicating the necessity of evacuation. It is alarming to have this pruportion of una When warnings are disGeminaled for evacualiun, peoplo instructed tu go to a safer plilce in and around the community. People's perception a!luut this sate place is important here because it determinos their destinatioll. Miljority of the respondents suggested lhat th! s safe pla"e means any pormanent building and in general thi s means lJermanent buildings available ill Thana !lead Qua,tel'. The population living in the al'eaS located away from the Thana Head Qua,ters prefer to accommodale themselves in the pucca stl'uc:tures available in and al'OIlIHl lhe locality. Under such Cil'ClllTIstances, cyclune sheltel'S are only pel'manent structures othel' than a few private pucca buildings and public offices including Union Par ishad office and schools. The option "otliers includes embankments and hills. Pekua is lliainly a hilly area anfl here, hills are considered as a safe pia"e to tako refuge during cyclone Crable 5.3). Table 5.3: Idea Abuut Safe Place. Unions ~l~fone lInyPucca IInyHigh Others Total S ter Stt'uct " Place Kayarbil NO. 8 , 2 , 6.00 74.00" 6.00 4.00 100"" IIli AkbarDell ". n 8 - 50 , 26.00 56.00'" 18.00 - 100 Uttar D!lurunq '0. " 1 50 , 50.00 48.00'" 2.00 100 Badarkha.li '0. 10 10 5 "" , 0.00 50.00'" 20.00 10.00 100 Pekua ". '" 10 2 14 , 48.00 20.00 4.00 28.00 100"" Chlringa ". 12 28 5 50 • , 24.00 48.00 10.00 10.00 100 n m 28 Total ". 26 300 , 30.61 50.61 10.00 8.66 100 Source: Field Surve J993. 5.5 PROVISION OF TRAINING ON CYCLONE DISASTER MANAGMENT I t has already been mentioned that, programmes lor training up the coastal people for di,;aster l-'reparedness and management are still lacking. No consolidated steps Ilave been taken even after 1991 cyclone. There lS only one NCO [Uunayan Shahojogi Team lUST)] working in Ali l\.kbar upil union of KuLubdia, which i!; engaged in providing training facj I j ty to the local people about how to storc emergency food under- groUlld, how to climb trees and how to tie themselves with the tree, how to maIlagechildren during evacuation, etc. Undoubtedly 1Ilis attempt lS highly praisE' worthy buL the coverage of populat.iun 15 very l.imited. Advising people about such issues by the Volunteers of Lbe CPP or representatives of: Lhe local government are very uncommon. No such programmes were taken in Chakari". Presence of adult family members in such programmes is an important issue. All memberl;were present in the training programmes provided by the UST while in ot_her cases only houselwld head,; were contacted. Unfortunately such isolated and localized efforts can 'not bring much good for the ,;o"iety. On the other Iland, the forementioned NGOcannot extend its programme in other areas due to limitalion of reRourees. In'Ley-rated effort is t1wrcfore required for the improvement of general awareness 11'able 5.4). Table 5.4 Organisations Providing,~~;aining/Advjce "bout Pre aredne6s and Mana ement , b", Areas Crescent'Chairman " Total Kutubdia ". 8 J U9 150 , 5.33 ,.00 92.67 WO Chakaria ". - '50 150 , -- wo WO 8 J 289 W Total , 2.67 1.00 96.33 Source: Field Survey, B93. '"" 5.6 SUGGES','ED APPROPRIATE PLACE FOR '{'RAINING A convenient place for having a group di.scussion or conducting a training on disasLer manaqement in the rural area lS difficult to select, mostly because of the scattered nature of distribution of the homesteads. Commuting distance to such training centres and familiarity with the locality would influence people's participation in the programme, specially women's participation. Local primary schools are most preferred alternative in both the areas. House to house discussion is second preferred alternative, mainly because of the cOllservative attitude of villagers about female participation in any kind of activity other than domestic works. But this alternative does not seem t.ime or cost effective. Private houses milYalso be select.ed for this purpose, such as the Union Parish ad Chairman's house or cpr volunteers house. This alternative seems reasonable if adequate open space is availablp. {Table 5.5J. Table 5.5; '" cstp.d A ronrlate Place foe 1'rainin . Study Areas Possible Places IlJuseto illlySe~ected Ne 5.7 PEOPLB' S OJ'INION ABOUT TRAINING MODUJ,ll Many issues are involvod in dir;astf'r managf'ment which require " special technical knowledge or training. Major issues have been idellt.ified ill Table 5.6 92 from this taule, it iii revealed thllt the "Olit important illliues in disaster mannQl'Jm()ntarc quick diBsemination of cycione \lilrninqs, protection of houlI(!hoid vllluilulell, quick Ilhelterinq, firllt aid lind POllt dilillllter disellGe trentment etc. People we!"e eaqer to take part in tlillllemlnat10n of cyclone warnin9G at the neighborhood level. But their IIH:k of technical kno\lledge inhibit them to tal;e part in such llctivit1es. Taule 5.6: Bu ellted Train!n Module Subjects 6. First Aid and POllt Disllster Disease v " Source: Field Surve 1993. 5.8 PEOPI,F.'S W1LLINGNP.SS TO PART,ICll'ATE IN GRASSROOTS I,EVEL ORGANISA1'JON Active participation of vulnernble people in diaastel" manllgelllent ill one or the prc-!"eQuisitl!l; [o!" llucc()Gufu.1 dislIGter mnnar;rement. People can be encouraged to take part in this p,"oceuu in variouu ways i.e in disllclllinntion of wllrnings, evacuntion of old " Most of the respondents (41 percent) mentiened that both male and female memb"rs of the family would lJe wilJ.ing to worl, (Table 5.7). Nearly same percontage or respondentr; said L1Jat it would be easier for female members to \Yurk for such an organisation, because adult male members are generally engaged in income earning activities, it would be impossible for them to get back from their place of employment and resume their responsibility in disaster management programmes. Th"reforc, if any orgilnisation is Lo be set up at this level, female members should get privilege in getting the 'training on disaster mallagement since they are the onel:' remaining in the locality w1th the chi Idren and old. rew respondents suggested that it would be impossible for female members to go out of the house and take part )n any of such activities because uf religiuus barrier. Therefore, only L1Jemale members can coatribute if they are noL at work. Respondents who gave negative anS"'"r about their willingness to work for any disaster management organisation are the Iemale respondents who refused to t"ke part in any of such activities because of social barrier. Table 5.1: People's Willingness Participate In weather bulletins issued by the ~leteorology Depilrtment, forec"sts are made ahout the surge heighL. The possible surge height is predicted in terms of meters or feet. But unfortunately majority of the population do not unders'tand this measurement system. Therefore, the weather forecast,; about the surge height become practically meaningless to these people. But this aspect of warning is particularly important for t1JOse who are engaged in fishing business, not to mention people wlJOare living in the coastal areas. People's awareness about t.his aspect was verified through the investigation of their knowledge abouL their height (in feet )'. Respondents from Kutuhdia seemed to have relatively more correct 01: nearly COl-rect idea about height in terms of feet than the people of ChakaJ:),,~(Table 5.8). About 55 percent population have correct or nearly correct idea about height. 'rable 5.8: '"0 Ie's Idea About Jleinht. Study Areas ReS onse 0" M Total Know Correct Nearly Wrong Correct Kutubdia " " 'I 35 ISO % 33.33 31.33 2.00'" 23.33 100 Chakaria '0. 36 31 D 00 100 , 2'.00 20.67 8.67 46.66 100 Total '0. 86 78 31 100 100 , 28.67 26.00 10.33 35.00 100 Source: Field Survey, 1993. 5.10 peOPLE'S IDEAABOUTDISTANCE Clear idea "bout dist,~n~e is alsu necessary in or-del' to have a clear perception about the location of the cyclone in relation to the land. Besides, it is also important in mdking decision about where to go and when to go. The idea ahout distance is generally very poor among the rural people. 100 Usually lhe places and buildings siluated within the familiar locally are cons.idered to be located within a short dis lance while those located in the unf"miliar "rea arE' believed to be far away from the homesLead. This iliusive idea about distance inf.luence them lo make very late evacuatiun which sometimes become very risky. People's idea about dis'lance waS verif:ied by assessing the respondent's response about tIlE' distance of two objects. Jt is learned from 1'able 5.9 that abouL 55 percent population have correct or nearly currect idea about distance. Table 5.9: People's Awareness About Distance Study Areas Response Do Nol Total Know Correct Nearly Wrong Correct Kutubdia 'o. '" 73 33 34 150 , 6.67 46.67 22.00 22.67 ,"0 Chakaria '0. 11 '" 11 58 150 , 7.33 46.67 7.33 38.67 ,"0 Total '0. n 143 " n 150 , 7.00 47.67 14.67 30.66 '"0 j Source: Field Survey, 1993. 5.5. SUMMARY Increasing awareness about the preparednesR _and response is the primary step to"'ards efficient disaster management. People as ",ell as organisations must be aware of the rE'RponsihiUties they are expected to carry out al pre disaster during disaster and post disaster period. Cyclone is a rather sudden phenomenon, people are given rel It is accepted that evacuation order would be announ"ed when signal number seven would be .issued. People's awareneSS about this issue is also lacking. Only twenty four percent population possess correct knowledge about this aspeet. People's idea about distance and height are not much cloar ei ther, This aspel"'t influence people's timing of evacuation and selectJon of destination. Although majority of. the population are illiterate but their awareness about training needs seem to be quite clear which they have developed t.hrouqh their experien"e. Major emphasis was given on provision of training on quick warning d.i.ssemination, protection of household belongings and quick sheltering. People <1150showed keen "interest in taking paLt in grassroots level organisations for disaster management. This enthusiasm can be properly utilized through concerted effort and planning. It is learned from the discussion that people at the qrassroots level are prepared to take part in any kind of disaster management t activi'ties, all they need is proper institutional support and planning. • " SI.llId by dislrcsscd unitedly: Klmle " .., ,,- '" '''- ,,< ". ",.' """ '-'" ,",," .,., ,,,,,',, '/" ~.-'."".'--" ..","- ::.::;:1:,~;~:"r,:;~:;.: ;;':.:;' ~,:.;;::"::"::;,':.";'." , ," ~",''"'"' "'"" ".", ....,.,.," """" ''''•.."" c'". ","".•,..,."'''''' .".. '".,,,"' "",.'-" '.."~,"",~, ,. ",,"""." " .... .,.. ' ,., '" '" ,,' .",,' •... ..",.""",,,.,,." ,.."" ".," -- .,' "'. ""'""'''-'''--,''""" .'.. ~"."'I"," ,"""""""" .,•.•",,,,,,,,,,,",••.• ~:~t0~;,:~;::~:,:~".;'~;~CfE~1!::,~~0 WARNTNG DIflflEl'1INATTON , I CilliP,[rrru. ~ 6 WlIRN]N; DISSEMINATIaI 6.1 INTRODUCTION We all kno>l tllat the cycloJJ() of 1991 waGa seve:re ulle emu another cyclone with almost Gimilar severity waRljoing to hit Bangladec:h oll 21»t November, 1992. But fortunately th.is low pro[:sure finally weakeneu and "rossed the "ountry I-'ithout c"using much trouble or d"mage. TIl()dise\ws.ion of the fO,llUl..'ing two ch"pters would include tl-'O events [or cump"'T,,'tive disclJssion on peo!-,les response to warn.in\J d,iRsemination ",nd evacu1Jtion. 6.2 PI':OPLE.S AWARF:NESS ABOUT CYCLONJ> WARN.lNG IN 1991 AND 1992 People's awareness about the coming cyclone determinE' the ll"ture of preparation aud ev""nation. During t.he 1991 cyrlone .13 percent f (4 percent in Kutubdiil and 22 percent ,ill Ch",kdria) of the totid pepulation were completely ignordnt "bout tile cyrlone (F'i<]ur••6.1). CI"I""',91 KulUbo,",n Ch,kBrla,92 ----- l'.iqure 6.1 P('op1e'~ awareness about cyclone warnIngs Obviously the warning facility in 1992 was further strengthened and the warning dissemi"'I'tioll was done more frequently which increased the total coverage. Percentage of population not being warned in 1992 was only 1.33. In 1991, majority of 'the households (75 percent of Kutubdia and 64 percent of Chakaria) were informed on 29th April while the cyclone hit the country after the mid night of thilt day. In 1992, about 41 percent of the total households came to know about the cyclone on November 19 which means 59 percent households who were informed before November 19, had adequate time to take necessary preparatioll [or evacuation. Table 6.1 Period of Receivin First Warnino. Period Kutubdia Chakaria , n 1992 1991 , ". , ". , ". , '0. , OnThat da '08 75.r10 66 45.95 ." 64.10 53 35.61 The da before JO 20.63 56 37.64 40 34.19 6J 45.27 T)/odavs a -- 16 12.16 18.92 Three davs aao 6 4.11 6 '.0 .J "-- Total 100 100 HJ 100 "8 100 Source: Field Survev,'" 1993. "" 6.3 SOURCEOFINFORMATION Mass media is expected to be most convenient and useful way of communication. But in our country the rate of possession of a radio at the household level is rathor low. Therefore, volunteers of the CPP are the major agents for warning disseminatioll. Although their performallce in the nlainland (Chakaria) was however rolatively poor in 1991. Only 58 percent famil ies ,"'ere informed by CPP. volunteers, where as about 90 percent families of Kutubdia were informed by them in the same year. Similar difference ;s evident ill 1992. Radio broadcasting covered a larger population in Chakaria in 1992 than Kutubdia. Although the local government is expected to play an important role in warning dissemination but they did not do so in 1991. In 1992, the union level authority took some steps to warn people within their jurisdiction, but their coverage was not very satisfactory, specially in Kutubdia. 10' NGO's played an important role in diRseminating preliminary warning in 1992 in Kutubdia, although t1ley did it, on their own, i.e. no collaboration or consultation was done with the CPP workers (~['able 6.2J. Table 6.' Source of' Inforrniltion (Multinle '"0 onsel Period Kulubdia Chakaria '"" 199' 1992 ,. , '0. , No. , ". , Radio n Ail. '1 84 56.76 90 76.92 m 79.05 DO 90.28 846 98.65 68 58.12 '" 83.78 Local'" Govt. - , 3.38 - 16.22 Lo.s welfare 00.69 J 2.03 , 1.71 ", 1. 35 Hei hbor 11.81 16 10.81 12 10.26 12 8.78 I ,. J, children "•6 11.11 • 00.68 1 00.85 1 00.68 Worker - 12 15.54 - 1 00.68 Tota Res ondent 100 146 100 m 100 84. 100 Source: Field Surve'" 1993, 6.4 PEOPLE'S REACTIONAF'l'ERHEARINGTIlEt>lRSTWARNING People did not Te"l.ly believo that a cyclone appearing in the month of Bai.shakh (the first month of Benga.li Solar Calendar) could really bring such a devastiltion. It was the dlsbolief of people in the rural and urban areas, which led to so much lOGS of lives and assets. The warnings that were broadcasted over radio and T.V. faIled to influence the illitera'te rural people and at the Silme time the educat.ed decision makers in the urban areas, It is evident from the Table 6.3 lhat Inore than 75 percent households took no preparatory measure in 1991 ~J.nce tlley did not believe that the cyclone would be so s~vere. People learnt a 10sson in 1991, which is why, their reGponse to preliminary warning changed within a year. Twenty rive percent families (of the total) took refuge immediately after t.he preliminary warning. While 73 percent (of tile total) famili~s took preparations to tilke refuge at any moment. Obviously the rate of ~ disbelief became almost nil in 1992. 10~ • Table 6.3 Peoples Response to First Warning Response Kutubdia Chakaria 1991 1992 1991 1992 ". , ". , ". , ". , Tookrefuge , 2.67 22.6'1 - - 22.67 immediately " '" Prepared to take n 14.6"1 113 ?5.JJ 5.J3 "6 70.67 refuge " Nothing because did 118 78.66 , 00.67 109 12.67 J 1. JJ uot believe cyclone ~ould be so severe Nothing because 6 4.00 J l.JJ JJ 22.00 J 1. JJ didn't hear any ~arning Total 100 100 310 100 100 100 100 100 Source: Field Survey, 1993. 6.5 PERIOD OF RECEIVING EVACUATION ORDER EVilcuation order j s issued when the low pressure begins to intensify. H i, important '00 people to know about this evacuiltion order. '0 1991, 25 percent of total households did not know anything about the evacuation order. Tile percentage woo relatively IJigher io Chakaria <32.57 percent) • Many people heard the evacuation order after the sunset in 1991 which gave them very short time to eVilcuate. In 1992 13 households from Kutubdia (8.57 percent) ilnd 26 households from Chakdria (17.33 percent) evacuated before rece.iving any evacilation order (Figure 6.2). 306 14. '20 ". ,• •• rO Received Warning , • Did Not R~dveWarning ," 60 " IllS'Len Arter Finl WlrtUng 40- ~ 20- - KUlllbdla,91 CI1"br1~.qJ KllluiJdia,n Cha);arin,n Figure 6.2 reop3e's awareneSS about evacuation order. Table 6.4: Period of Receiving Evacuation Order (On that Day) Period 1991 1992 Kutubdia Chakaria Kutubdia Chakaria '0. , '0. , '". , '0. , 0 , 1. 98 " • H. 4.10 • 2.92 4 3.25 6-9 A.M. 1"1.21 15 14.85 S1.8~ 60 53.66 9-12 A.M. 20" 16.39 3 2.9'1 20" 14.59 6 4.88 12-3 P.M. 31 25.41 20.79 20.45 13 10.57 ]-6 P.M. 30 24.59 45" 44.56 '" 8. '16 30 24.39 6-9 P.M. 14.85 " 1.46 15 12.30 15 2 • 3.25 Total 122 100 101 10. 13'1 100 12"/ 10. Res ondent Source: Field Surve 1993. The figures in Table 6.4 include Umse caseS who gave affirmative answer about receiving evacuaLion order in 1991 and 1992.It should be mentioned here that generally cyclone warnings arc disseminated by cpp volunteers when s:ignal NO.4 :is given. Signal NO.4 was issued in 1991 on 28th April at 12 A.M and in 1992, on 19th November at 3 P.M. Ou Lhe other hand evacuation urder :is generally :issued when signal NO.7 is broadcasted. , It is understandable that it 'Lakes quite a long time to make contact with tile volunteers in Iural are"s, buL it lJhou]ct not be auy excuse to disseminate "'"rning so late thaL people f,1il to respond to it or take proper prepal'aLory measures. Majority of the households received the first warning on 28th April in J 991 and 20th November in 1992 when the cyclone almost reached its climax period. Majority of the households could not remember whether they received "ny warning prior to the evacuation order or nolo On the other hand signal NO.9 was issued on 29th April, 1991, and people received evacuation order on the same day. But in 1992 signal No. 9 waS issued on 20th November at 9 A.Mand this year people claimed to receive instructiuns to evacu Table 6.5 £:£lone Warnin 5 Issued Durlno 1991 and 1992 C clone 1991 1992 Date HOUI nal Level Date HOUI nal level (BSTJ (CST) Co"' C" M Co""' Co, M 25 04 09 A.M. 1 1 1 17 11 09 A.M. 1 1 1 25-04 12 P.M. , , 17-11 06 P.M. , , , 26-04 06 P.M. , , , 18-11 P.M. 1 , 2 27-()4 , ,, 19 11 "' P.M. J J J 09 P.M. "' 28 04 09 A.M. J J 3 19 11 03 P.M. ,,• •• 28 04 12 A.~t. • •• 20-11 OJ A.M. 5 28-04 , 5 5 2(}-1l A.M. 10 9 ; 12 P.M. '" 29-04 06 A.M 10 , 8 20-11 05 P.M. 8 10 • 30-04 ()4 A.M. 21 11 04 A.M. 8 10 Crossedctg. Q:last weakenedafter tllat• Source: Coq>ilediron data wHeeled flUllBangladeshI1eteorol irnl Department. 6.6 SOURCEOFINFORMATION As ment.loned earlier cpp vol1Jnt~~rs are the major agents warning dissemination. In 1992 other agencies got involved too. 'I'his time NGOworkers and ".'Orkforce hired by the local government largely contributed in wider dissemination of evacuation order. Involvement of thes •• two bodies in 1992 ma Table 6. 6 : Sourceof Information { Multiple Res "'0 , Source Kutubdia C"-kHia 1991 1992 1991, 1992, ". , '0. , ". " 56.56 00 65,69 00 ; ." U2 9l.0~ C P Volunteer 117 95.40 1'0 94.89 ;0 59.31 120 97.56 Loca] • - U 8.02 , 1.96 " 7,64 Local s cia1 worker { 0.08 J 2.19 J 2.97 - - - 00,99 1.62 ~~?~~1going , 1.46 1 , dren Nei , 6 •. 92 9 6.57 1 3.96 6 4.67 0 Worker J 2.46 J2 23.36 1 00.99 1 00.61 Total Res 0 { 122 10" m 100 10' 100 l2J ,"0 Source: Field Surve 1993. 6.7 SUGGESTED TIME REQU1REMENT FOR EVACUATION • Time requirement of the households to evacuate varies greatly according to the location of the homestead in relation to the loc Period Kutubdia Chakaria '0. , '0. , A< 1ea,;t 6 houre: " 35.33 n 48.00 6-12 hours " 16.00 14 9.33 12-18 hour,; D 8.00 9 6.00 18-24 hour,; 40 26.67 43 28.67 More than hours n 14.00 D 8.00 Total " m 106 m 106 Source: Field Survey, 1993. 6.8 SUGGESTED MEDIh FOR WhRNING Dls!n:MlNh'rION People'e: response to the cyclone warning larg",ly depend upon their faith on the warningG ie:e:ued by the authorily. The social status or importance of th", agents who disseminate the warnings can influence peoples reaction and response. Information was collected on peoplo's pnlterence for informa'Lioti media through which cyclone warnings can be disseminated. Table 6.8 '0 ested Mediafor Warnin Dissemination {Multin!e Res onse1 Area Sources M d 1 1 3 4 , 6 7 Kutuhdia 103 85 129 97 76 141 "' '", 6e.67 56.67 86.00 64.67 50.67 94.00 59.33 '"0 Chakaria '" 118 105 110 109 89 136 70 150 , 78.6, ,0.00 73.33 73.61 59.33 90.67 46.67 '"0 Note: 1- Radio/T.\' 2- Local Govemment 3" Imams 4'" Local Social/ Political \lorker 5= NGOWorker6= Red Crescent ,= Choukider Source: Field Surve 1993. It is reve"led from 'l'"ble 6.0 that the volunteers of the CPP are the most desired source of information in both the areas. The emphasis given on the rolo of Imams here, can open up a new way for warning dissemination in the rural are"s. The importaIl(ce of the local social/political workers can be utilised in this regard if proper planning is done. It is intercsting to knowthat pcople have given relatively less importance on the local government in this respect. Unfortunately it is t~'ue that the role of elected people's representatives at the local level is nol very encouraging in the field of pre or post-disaster management.. \\lith proper planning and training these sections of the sodety can take part in pre- disaster as weU as post disaster activities at the grassroots level. 6.9 SUMMARY Warning Dissemination is the preliminary step towards efficient disaster manayement. The general tendency of rural people of our country is to depend more upon traditional forecasting method which is based on colour of the sky and wave pattern. The discussion of this chapter provides a vi"w avout th" nature of people's awareness' about cyclone warnings that !"ere disseminated before the cyclone of 1991 and 1992. It is learned that majority of the population (95 percent in Kutubdia and 78 percent in Chakaria) were awar", of the coming cyclone in 1991. Obviously t.his awareness level was maintained in 1992 also, in fact in t.his year the awareness level inc:reased in Chakaria from 76 percent to 96.67 percent.. Unfortunately p"ople' s una!"areness about. tile evac:uatiun order .. in 1991 was quite alarming (16 percent .in Ku'tubdia and 32.6'1 percent in ChakariaJ. This situation changed in 1992 since wider warning dissemination programme was adopted jointly by the cpp volunteers, local government and NGOworkers. Vohlllteen; of the Cyclone Pn"paredn€ss Programme play ••d the most important role j,n dissemination of cyclone warnings. Delayed announcemenl of evacuatioll order in 1991 resulted in large scale non-evacuation in 1991. Besides this people's disbelief on cyclone warnings was a.lso responsible for this situation. 'rhe lesson tha't was learned in 1991 induced people to take necessary , preparatioll in 1992, when another seVQre cyclone was about to " strike the coast.al bf'lt. People's openiol1 on time requirement for emergency evacuation and suggested media for dissemination of cyclone warnings can be useful in future disaster management planning. It is understood from the discussion that people's response to the cyclone warnings is largely influencfld by tileir own experience which finally resulted in full co-operation with thc authority. If there are repeated inci.dence of non-occurrence of cyclone after massive evacuation, then i.t would create problem for the authority to take proper preparatory measures-since under such circumstances, people might loose their faith on cyclone "'iH'nings. The only solution to such problem is to increase people's a,wareness aboot the general characteristics of cyclone and ensure people's co-operation with cyclone disaster management programmes by incorporat_ing them in mass awareness generfltion programmes. 112 Stand by distressed' unitedly: Khale c•• ' ".,," "'_ ,~," 'C" _.,. _,,, ," __ • :::: '~';; :1':,;:-'::;,';; ~.~':::;;;~. ~:,;';::",,';;. ,".,':1;"",,"" n' ~"' " •.k_. • ,"" ,•.•.•" ." " •• , ,"",", "'~.""' ".,.,. "''',"' .".•.."k.~ ,"",_,..'"".••"".. '"'••,,",',,~~._,,""''',~.•-'~' ,~_,"~_,"',~,",,," ""m'. '"0.'." .". ~;;;:r.~',:';',:;:~';.:,~~.'~,,:~,~:;:.~ .,' ,., ~ ,~~~,..::,.'.:':::'::1.:'::':;'":~:':;;',~:,;.'r"': :~;.t,;;.."_, ~,..::"~:"'::";;;;~':_':;,;~:, -""..-, .. " "" -•..:;:;;--;::,~,'~~,~,""".' el '~.~GO;:;~~:tt~! P" help sUrpkmC!lt _ rclie work: • ,',I'"'' ".,~, '''rm ••••••• , ~,,, ~ ",.','" h ,_,_'.""'"~ "",~",~, <",e'l,- 'j,''. """""-".,.,,,,,.,", "~. ,1" ;:';:~,;r,;'~:,••..,"'""'"""_':f:::lt,'~~1"~,.9' ,"I,,,",.,~'"O<~,,~.,"I ,."" ,"'" ,",," ..-",,~ ~~'!1:ll7.,~.. ~:,',,;'~o.:;:::: ••• , ~, '" ,,. •• ,, •• ,, ,,_ •• ,I _ ~"",,"".",,' ""","'"'"''' '- EIlACUATTON Massive rc1icfwork O} tons goods dr """~"''"'' CillU".PKR - 7 EVACUATION 1 .1 INTRODUCTION Evacuation proce55 is comli tioncd hy ,~ combination of [actors. It depends upon early warning rLisseminatioll, sh,,-lter facility in the area. tr;;lHsportation facility, peop] e' 5 willingness to evacuate and influence of motivation provideu to the population by the authQri ty. People' s responses to v"riolls aspects r elated wi til evacuation an' presented in thiR chapter. 7.2 REACTION i\f'''J'ER HEARING TilE I':VACOATION ORD~:R People' 5 response to cyclone '-'araing was totally different j n 1992 from that of 1991.Ill 1991 majority of population (70.67 percelit) remained at horne eVen after heilrin',j Lhe ovacIl"tion order. nut in 1992 peopie became very al"rt when Utey received tlle f.i.rst warning and prepilred to take refug". Majority of the POPllliltion 1'1: 113 Table 7.1 Reaction After lIearlng the Evacuation Order Reactions , Chak; , '"' 45' 1992 '"', , "~ , , " " All family members H 2},.61 116 11.33 "11 20.61 11. 16.00 took shelter in oUe la e. All family members 65.33 6 4.00 11' 16.00 18 12.00 remainedat home. " 00.61 2. 6'/ a fell members , 00.61 J 2.00 , I~too hel te • The female aud the 18 10.66 H 16.00 4 2.66 ,. 9.33 children took shelter. Different members , 00.61 , 00.6"1 - - - - ~~~t to different aces. Total 450 400 450 400 450 400 450 '00 Source: field SU1"Ve 1993. 7.3 REASONfORNOTGOTNGTOA SAFEPLACE In 1991 cyclone, major reason for large sCille casualties was people's disbelief in ""arnings. The intensity at which the cyclone hit the country was entirely uncxp<,cted. People hild survived thl"ough eal"lier natural calamities without having to evacuate on a lal"ge scale. Therefure, majority o[ the population did not evacuate in 1991. People who did nol receive any evacuation order did not evacuate either. On the othel" hand people had experienced stealing of domestic goods and animals during priol" evacuation. This insecurity of house ilnd domestic animals also inhibited people from evacuation in 1991 and 1992. Apart from this, people were not much aWare of the cyclone shelters locating "ear or around the community before 1991 cyclone. Above all, shelter facility ~as limited. Not only that, the killas which were built as emergency shelters for domestic animals were alsO limited in number (1'able 1.2). '" Table 1.2: Reason for Not Going to a Safe Place (Multiple Response). Reasons Kutubdia Chakaria 1991 n 1991 199~ , , , 0 , " Did not expect that 8~.22 "-- "101 84.87 - - the cyclone wouldbe so severe. '" Did ~~}.receive any 23.48 -- 49 41.17 1 2.18 evacua 'on order. " Did not knolltlle 10 8.69 - - 41 J4.4~ - - location of Ute c clone slle Old and disabled 6.95 - - , 2.52 -- ersons were at home. " Couldnot leave 5 4.35 - - , 2.52 -- ~~!~out domestic a mals. ear of theft " 32.'7 100 D 10.92 100 Others - " --- '"6 16.61 TOb1 1 '15 100 I" 100 no 100 36 Source: Field Survey, 1993. Note , The numbe~"of total respondent is obtained b, adding u cate or 2 , "d 4 from Table 7.1. 7.4 REASON FOR GOING '{'O A SAFE PLACE In 1991. people tried not to loave their houses and waited till the last moment. But tile rapid increase of water level frightened the people and this was the majn reason 01 large scale evacuation in 1991. Increase in the water level due to tidal current and heavy downfall mainly stared after sunset of 28th April, 1991. The volunteers of CPP had a major role in encouraging people to evacuate in Kutubdia but they failed Co do so in Chakaria during 1991 cyclone. But their influence dramatically changed during the low pressure created in November 199?-. People readily reacted to their announcement and took shelter in safe places. " Place. Tab] " .,•3: Reason for Going Co 0 Safe Reasons Klltllbdia Ch"karia 1991 19q2 1991 1992 >0 , >0 , 0" , >0 , - - - n 12.B8 L 11l5tructioll of - , 2.08 the local "" ~2.JG , 2.78 3~.39 ," crr volunteer's Ie 25.00 aunouncement. " " Radio bJ1'1etin. 4 7.&9 "I 9.03 , 13 9.85 91.67"" - 4 " Alter seeing the 35 67.31 - - 3J - ,,-atel lev"l to rise. 5. r.mil d, sion. 9.62 1 00.69 - - - - - NGO,'Qrk"r's - - 1 1. 39 - - '" advice. - - 96.53 - - 11J 97.1 ~ 3" Experienl"e of the m last c done. - - Washed away from - - - - 1 2.7B e" orne. Talal Resnorrdent 100 144 100 100 132 100 " " Source: Field Survey," 1993. by Note , Total numlJer respondents are olJtaineu adding 0' 7.1. cate o. 1,3,4 ""' 5 tram Table The frequent iIfillOUncements made by CPP volu"Leers ,,111<:h Wf're furLlwr sUPlJortcd by radio bulletins and annOUl1Cflm",nts mad" by the rep('esentative5 of Union P.~riGhad Cllainnan and NGO wo('kers encouragen people co take [:hplter in .1992. II.lthough the involvement of Union ParilJhad in "'arning dilJsemination ",as not very encouraging in Kulubdia. But the maIn re,~son attributable to large sca.le evacuation in 1992 was th" experience of last cyclone. And it can hav" a negative impact on peopJe's evacu"t.iol1 attituue. B""ause it ",as reporteu that repoated incidence of large scale evacuiltion followed hy less intell~il'e C}'CIOll" storm would [ina,lly indure people to stdY at home ITable 7.3). 116 7.5 rr:RIODOF EVACUATION Recollection or determination of evacuatiun period is a difficult job for people \ 140- 120. 100------, D Evaoualcd That Dny ,0 80- ' I:] Did Not Evacunle 60- .. •" .. 19 len After FIrst Warning '" 20- . Chrrknria,92 Figun' 7.1 Nature ot evacuatiun in 1991 and 1992. Out of 52 families of Kutubdia who ev"cuated in 1991 only one family pvacuat.ed on ?7Lh April. About 8~.5 perrent families of the rest, evacllated after "Magrib" prayer (tile prayer offered during Run set). The l"est of the f"milies made their derision to evacuate when it seemed dangel"ous fer L1wmto stay at home. Obviuusly it was most difficult for Lhem LOevacuate in uark UIluer heavy rainfall, risin\J water level and a))OVe al.l by rural klltclla roaus. The experi,,,,,ce of last cyclone was Gtill i'n"sh in the mind of coa6Lal people which r"sulted ill relatively earlier evar-uation during the depressiun of 1992. Abuut ee pcrr-ent reRPOIHknts of Kutunoia awl 75 pel"cent of 'that o[ Chil.kilria evacuated by noOn .i.n 199?( Tahle 7.1). 11'7 'I'able 7.4-: Period of Evacuatif"nvl ( Those who eva,:uated on that da I. Period Kutubdia Chakaria 1991, 1992, 1991, 1992, " '0 '0 " l. Between6 9 A.M. - - - - , 4.72 , . Between~-12 A.M. 1.96 11.4 - 4 3.11 . 12-3 P.~1. , 1.96 " 16.03 - 13.21 , Betwee -', eo" , " 52.~- 4 Retween, '.M. 13.'J3 61.07 2.18 " I~.Between6-0 P.M. 50.96 9.16 4-4.44- 25.47 ", 2.29 " 52.78 " - ,. Between9-12 P.M. '" 31.37 '" TO~5 onden!- '" m ,eo '"' "C 'eo Source: Field Survey," 1993. " Note: Tho number of total respondent- Total respondent (150) - Non-evacuees • Earl evacuees. 7.6 PLACEOF SHEW'ERING People'S nature of sheltering during 91 and 92 cyclone has been presented in Table 7.5. Location, physical characteristics, availability of Rhelter facility are the main factors influoncing the decision of evacuatioll. Union wise information is presented in this Table, because vilriablc location of the unious iii. relaLion to the Than,~ Head Quarter has some bearing on the. nature of sheltering. Poople's attitude towards going to cyclone shelter has not changed much excepting the ""ses at Uttar Dhurung of Kutubdia and Pekua of Chakaria. The,;e arC'as are locatod ",liltively away from the Thana !lead Quarters. As such, people tried to avail themselves the pOSl::ible sheltering opportunities within the short distance, since majority of the population evacua'ted at the last hour in 1991. Neighbours PUCCi!houses or Il"wly built kutcha houses were best possible alternatives oth"r than local Union Parish ad Offices and commercial buildings and schools. 0 •" 0 m m 1 ~ ~ 0 • •0 •• • , 0 , , , , , , 0 ~l0 m 0 0 ,, , ,,, 0 , I" ~ 0 , 0 , , 0 I~~ j " ~ I~ 0• Ji ,, • 0 , 0 11 ~ , I~ • '11 ~ 0 ,, , , 0 " •, I ~ ~ I~ 0 0 , , , , , , 0 0 ,, • 0 I~~ • • ,, 0 , , •0 0 • H • , ,0• • 0 , , ,, , , ,, • 0 0 , I~ ,, , , 0 0 , , , , , • ,0 • rlfl " , , , , , • 0 0 , • 0 • • m 'IH •0 , , , ,, • 0 0 ,, , • • '11. • • ,• , , • 0 , ,,, 0 • " • •• •0 • • , , , ,,, • 0 • , 0 •~ • • ~;:; o• ,• :~ 0• 0• ,0 • 0 0 , • • •• 0 '.• •• • • • • • • 0 .- • • • • • OM•• , • • • •, • • • • 0 o'• 0• 0 o.• 0' • • 0 ,. 0' • '" • _. o. 0• 0 0 O- M ., -0•• o. 0 • • .' •• O'• ••o• • ~'" • .0. ••0 o• • • • 0 • ., o• 0 C" o' o' M O• • o~.-••• •• o• • o' 0 o. • •• 0 oo o. ,'" W , ."o. • 0 0' 0• . •••0>' •• 00•• ••• 0,'•• 0• o. ~6 • • •• • , , •> •• , 00•• 0"' • • '"• •• - • • Such places played an import~nt role in 1992 too. On the otherh~nd, 31 percent of eVaCUeeSof Kutub 7.7 SELECTIONOFSAFEPLACE This part was incorporated 'to underst~nd people's nature about de"ision making regarding the selection of shelter. During 1991 cyclone other ayencies had very litt.le to "ontribute in this respect. People mad" their own choices or decisions about their deGtination during emergency evacuation. People had no s"ope to think about the altcrnatives since they simply followed other people whi"h led to gathering ot large number of people in onc place. 'l'he figures in the 'rable 7.6 indicate that people's decision can be influenced which "an iwlp in making formal local level pians for evacuation. Many people responded to the instructions of CPP volunteers. In 1992 NGOworkers took part in warning disseminat.ion aud during that time they invit.ed people to come to the cyclone shelters specially to those which were constructed by the respective NGO's. The role of local government was limited here but still it showed somewhat improvemellL over 199.1.situation. In 1992 about 55 percent of the evacUeeS of Kutubdia and 7'1 pcrcent of 'that of Ch'lkaria made t.heir own deciGion (alternate 5 and 6 combined) about the selection of the safe place. , '.rable 7.6: Reasons fm ChooRing Place. Reasons Kutubdia Chakada 1992 1991, 1992 , 1991 , , 0' " " " - - , 4.55 L Instruction of the - - , 2.08 local overnmeut. JO 7.58 2. Instruction ,f CPP 2 13.46 18.06 - - vol nLeers. " - - ,. Instruction of 000 - - 12 11.81 - - " rkers. 55.56 10.60 4 • follo1icd, other 22 42.32 12 13.19 '" " ". 13.33 9 '1S.0A Olin ~. cisio I" ". 0 69 4"1.92 , 1').31 , 6.25 " 11.11 , 2.27 6. Nearest safe lace • m 100 Total Resnondent 52 100 ". 100 " 100 Source: Field Surve 1993. People's response to the instruction o[ other agE't1cies is still very lu\,/, but with planning and practice, larger number of populatIon can be influenced about making thE' decision reg"rding this issue. which can help in planning the lJaianceu distributIon of population in various places used as shelters. 7.8 TRMISPORT MEDIA USP.]) FOR EVACUiWION LimitaLion of transport filcility and financial limitation compel rural people t.o travel on loot. In 1991 abouL 96 percent families evacuated on foot. In Kutubdia all the fami.Jies (excepting one) went to the sh(,Jter on foot in 1991 and 1992 ('I'a1>1e7.7). In 1992, manypeople trilvelled by boat and these people mainly went to Moheshkha1i. ilnother oIf-shore island from lladarkhali union. It is worth mentioning here that only one Union Parishad Chairman (Ch.iringa union under Chakaria Thana) was able to sent truck and jeep to 1'011ecLpeople [rom the areilS under his jurisdiction. This facility was also availed hy the people living in neighbouring areaS outside his jurisdiction. 121 Table 7.7: TransDort Media Used for Evacuation. Reasons Kutubdia Ch, aria 1991 1992 1991 1992 , , No , 00 , " " 94.44 68.94 L On foot 5' 98.08 143 99.31 ", ,. Truck/Jee~ ", 5.56 5.30 '.B.n~t 1.9" 1 00.69 - - " 25"" 4. Ric" ho'll - - 1 00.76 132 100 10 ,,. o-'-nt '00 ~ 100 Source: Field Surve"" 1993. " 7.9 PROBLEMSFACEDONTHE WAY People ment.ioned about different types of problems which they faced during evacuation. These problems are closelY related with weather conditions. Rainfall. strong wind, tidal current are associated witll low pressure whidl ha"e direct impact on rural roads and rivers. Tile water level rap.idly rose in 1991 and people who evacuated at last hours had to gu through strong tidal current and in 1992 people who evacuated by boat had to face large waves in the river or Channel (Table 7.Bl. Response) • Table 7.8: Problems Faced on the ••Y (Mult.iple Problems Kutubdia Chakada 1991 1992 1991 1992 , , , No , 00 No " 39.39 L Bad road condition. 43 18.85 " 16.67 " 63.09 " ,. R,ainv/storm wind. 46 80.46 5'/.63 " 80.56 1Jl 99.24 ,. Tidal current JO 73.08 "1 00.69 94.44 25 18.94 4 . Lack of vehicle~ 1 1.92 29 20.14 "- - 48 36.36 , n.72 ,. Distance of shelter -'l 51.92 26.39 19.44 '" Attack of the - - '", 4.86 - - 4 3.03 •• mi~creants. ,. Non,oblem - n 7.64 16 12.12 Total Rc~nondent 1"" 144 "0 " "" U2 100 Source: Field Surve ", 1993. 122 , Lack of rickshaws or other mode of tJ:ansportd'tiolJ forced people to evacuate on foot and rural kutcha roads practically turn into death traps alter continuous rainfall. Respondents mentioned that it was extremely difficult for them to ,,,,]k to Lhe distant r;iJelten; or safe places with their children through thes" roads. Attacks of miscl'eants Was a new phenomenon add"d in 1992. Miscreants attacked many people on their way to the shelter and took money and other valuables which they had with them. People who made early evacuation during 1992 depn,ssion were the only ones who faced no problem during evacuatioll. 7.10 ASSISTANCE RECEIVED DURING EVACUATION The scope or "",,,reness of providing assistance to the rural people by the authority during evacuation was very narrow or absolutely nil because of the late evacuation of people. In 1992 people and organisiltions became more active and extended their help in all possible ways. Although the percentage of positive response is very low (20 p\lrcent in Kutubdia ilnd about .16.67 percent in Chakaria of those who evacuated). NGOworkers adviced people about where to take shelter. They sp"cia.1ly encouraged them to go to nearby cyclone shelters (Table 7.9). CPPvolunteers and oth"r gov"rnment officials escorted some people to safe places. Provision of transport f.acility requires financial involvement of the autiJOrity. This assistance was provided by th" local authority of Chiringa union (although it should be mentioned here that the entire effort was made by the Chairman of tile Union P"rishad "nd he himself was responsible for the cost of transportat.ion). Such efforts are higilly appreciable but cannot be expected on iI large scale. People having pucca /louses allowed other people to take shelter in their houses under emergency situation. In 1992 SllCllpeople voluntarily carne forward and asked people to take shelter in thei r houses. 123 Table 7.9: AGsistance Received During Evacuatiun in 1992. O,ganisatlons Kutubdia Chakarla Assistance Assistance 1 , J J 1 . , J 4 1. Local - - - 7 -- Government "'., - - 100 - 2. m - J - - - - Volunteer "'. , - 20.00 ------J• ,eo lIorkers '". 12 - - - , 100 - - - - - 4. Other Govt. - 12 - - - officials. 'c. , - 80.00 - - - 5. Neighbour. "'. - - 2 - 10 , 100 - - 100 , - 7 - 15 Total "'. 12 - 15 Respondent , - - - Source: Field Survey, 1993. Note: 1.Advising people about where to go 2. Provision of transport facili ty 3. Escorting people to a sate place 4.A110wi~;;YD;;oPle to take lefuge inside the house 7.11 PROBLEMSFACEDTN~HE SHELTER We have already come to kilO""that the rate of evacuaLion in 1991 was relatively low compared to thilt o[ 1992. Obviously the acut.eness of the problems related ",iUl the sh"lters were more vigorous in nature in 19911. In 1991, thp. major iSGu~s identified 'Problems' were lack of lJrivacy of women, toilet and accommodation"' prohlem, eLc {Tabl" 7.10 A; '1.10 R). Prier to 1991 cyclone, the people. specially the women did nut have much experience of sLaying with unknol.'lI peopJ e in the same ,oom. The conservative /:ur"l suciety was shaken up by t.his experience in 1991. Many people of Chakaria took shelter on Llle local embankments during the last hOllIS, and sudden rush of people these embankments cau~ed problem. 124 =-=,,===-, o I--- L- t I' -- g ~ --- , ---I--- - " 11 ,_ ." 0 •• o ~••c"''" o . " "~ " 0 "c-< ••" " - o 'H • 'n 0 '" " ."' L L " - -- 'U .• 0 .." t. C <: _ ••0 o -- "''':>'" ....•. '", ! CI ~ ~ -e-~0 -- .00"•. ,•. «-" •. -. _.L .- "'n ••• •••• C o ,.'- _0_. 'n'n-' -~_C _0 o.-- ., •• .. II t' CrL alq~l ~" 8W~SsUl~,qO~d '''~ON Ii .:100; i _ i ~-",81_ !~'e£ 1_ 'I T~'S I ~ S/:"J> 1- 1£9"011- I L"-6'i 1- % uOlun J"~lO II ~I L III r jD""",o111H"H ::I,~ I I:" I 19\ 1- II' 1- Il is '3l I ,'ON I' I! 00' , OOT' l~-, I ~;'<;"• ,,"9L 16,'OL ; '9"'T OJ>q; - cO'il' (;ii"SS 90"89 ,8["9 ,~ I, I I I . I ' I. I I ,i,: -i " ~!"~;t,r-- 10' In 191: , I,j"l" !B ,Ol :1:£ I" 1'~NI".,,,nopNH """"1 !: OOL I DO; " _ ; orJ'~; 100-" ,- I oo'<;z,' 100'0; I 1000, t .1 I 'I 1- I-I, "l])~ ]OOOl .911 !i . i r : - I (; I - _ I £ - I-- 1 I Ie! <: -ON I ! ~0, .' OOT _ 108"0S lor, 01 i OOT I- CQ"a 100"0; '000. 100' 1- - l I I, I I, ,,' , I ; • ON .s."'~ Jnoc~"l'N q IIOL I' i-I T i ( i.l :- 1- : ' , I' , ':. GOT 1001' W99 ~~-I:" 001 I (,"9' 00'0; '9"9T COT ,'; - ';:8 , '" i-I I I oc cs I-I ! I 1 UO"Jn.u, I' , I' - OK t,- "!~l'" lC'W;.""qw, " I', , i I I;; !e i IT I IT ! i.:. I' ------,; !; 00;' T~~.I I 1_ I,{"" loZ"',: I LS'S':I "'-IL , II ! II I, T i ~ U~!U,1 ~c:, .~ ,IZ -,- "".,'n" ""Ii,O 0,'" !' ;L: iL:l 9 I I1 I ! l I 3 , ' -"" 1 T T, - ; j , ". ;, 00T ! 'lor ;;= ~~ i ,;-ro i 0,'08 i 0.- 10C"! ;,'" 1'9"" ! 9,'8: ! "' -,T I "- - Fl 'JlU' 'c;:n .:i: , -o~ll",OJ.~:";_~;'~l~~1r'o, .' :~_.C", ,., I" ! c . ' ~, , "" .. I" 1' ------~._,,---.-'-',-".-,-;,-,,_,,,_,~'i-:," Sc I 19',L ) L 6 "0(,- "'0' COS,. __ I I I 0," ,T i ,: -"0 I )0 -;'); I S9' is 'ee's, , I M"Sc , 'UO'O,(~.;l.~S , i CT , iT , I-o~ i • u ','"Ol , i .ri-~;': : Te ;: :' \ 61 J i O~)i I:, I 1 ", 1 , 1 " :I' 1 , l " Ii II ,L , £ , M!J.~la4S jO a~Rld Iir-:ll.15U0~~~S_ ~ n-~i ~ I .----- c II 1 I I' F:~o 1- S ----'-'-IB"O"'C'_ _ , I I - (aSiJod""B "(dHIMlJ __ Uj '"~[' qs .Q~.~t. p;~.jS~oJd .8 ot L I'I ale " Several old or dilapidated cyclone shelters and weakly constructed private buildings collapsed during the storm 5urge and caused human deaths.People suffer"d from rain and gusty \.'ind when roofs of the cyclone sh"lters or public buildings and embankm"nts wer" used as place of last refuge. People learned a good lessun in 1991, as a consequence, more peuple took shelter when warnings were djsseminated in 1992. Cyclone shelters, Public buildings specially those of Thana Head Quarters, NGOoffices, private permanent houses became packed with people. Overcruwding of population led to a suIfo"atillg situation - which resulted in loss o( lives of children and uld people in many cyclone shelters in Kutubdia. In several cases it was reported that the rooms were 50 paek"d thaL it was impossible for the people to go out for defecation and that people had to defecate right where they were sitting. Many people had to stand still through out the night sine" th"re Io'as no room to sit. Several househoJ ds returned to their hemes since there Io'asno room in the local cyclone shelter. Somepeople denied the need (or water during such emergency period but it was reported that many people, spe"ially the old, died in some places where thpy took re£uQe because o( tlJirst of watcr.This problem was common in the plaC'es which were ovennowded. The unmilnageable situation increased people's insecurity and worries. Manypeople from Chakilria went to hilly areas of the surrounding unions and remained under the open sky tin oughout Lhe night. These people were totally insecured with their family members and personal belongings. Lack of privacy of \.iomenwas "till a major problem in 199:<. Apart (['om this, isolated and distant location of toilets with the exist:ing cyclone shelters made it difficult for people Lo use Lhem under stormy weather. Toilet facjLity jn other public or instltutiolJal bulldillYS is very inadequate too. 7.12 EVACUATIONOFDOMESTICANIMAl,S It is easily under-standable tlldt people's attitude to"'ards evacuation of domestic animals was not very encouraging in 1991 siuce they themselves did not bother much to evacuate. lJes.ides this, the evacuation facility for til'" domesti" animals ",as very inadequate. Table 7.11: Evacuation "' Domestic Animals ia 1992. Places Kutllbdia, Chakar ia , '" '0 1. Moved them with family members. " 5.33 " 12.00 ,. Local killa/embankments , 2.67 , 6.00 ,. Near-by hilly aLea. 1 00.67 4 2.67 <- Could aoC C, evacuated. " 54.67 56 37.33 5. A licablc. 55 36.66 42.00 'rotal'"' m 100 m" 100 Source: Field Surve • 1993. Only one n:.spondent from each thana took their domestic animals to a nat"rally elevated ,~rea In 1991. Aft.er 199.1 "yclone, the government took a proje"t to "onstruct a good number of. killa (artificially raised earth mounds) where domestic animals can take shelter, but the process is still incomplete. Therefore, people who managed to evacuate their dornesti" animals in 199?, mainly took tllern to the places ".here they themselves took shelter. Somehowthey managed to accommodate their domesti" animals in and around the places. A large section of the respondents (39.33 percent) did not have any domestic animal in 1992. They lost them in 1991 cyclone and could not afford to repl",," them. On the other hand many households (46 percent) who had domestic animals, left them in the house because it Was too difficult to mov" w1th them. Present cyclone shelters do not offer any facility fOl the evacuation of domestic anima.1s. Peap.1" who had manpower to move with the animals, had only 128 taken their farm animals or poultry birds 'to a safe place (Table 7.11). 7.13 SUMMARY EmergenCY evacuation process which requJ re proper institutional support, infra structural facilities and people's participation. None o[ these components are yet strong onough in our country to ensure easy evacuatioIl. This situatioIl, along with general disbelief of population oIl warninq dissemination resulted in larqe scale non-,wacuation in 1991. The de(Jression of 1992 showed complete opposite reaction towards this issue sinco people suffered extensively In 1991. [or not taking Lefuge In proper places. People's disbeliof on the cyclone warningG Wi'Sthe main reason 01 large scale non-evacuation in 1991, while lear of theft led many people to remain at horne in 1992. Thjs issue is a major urawback in evacuation process of our country which is also supported by other studies (BII8'1',BIDS;PART6, 1993). Late evacuatiun of 1991 resulted in gat!wrillg of population in neiqhbours houses and 10cil.1 public buildings which were easily accessible. Early evacuation of 1992 resulted ill crowding of population in Thana Head Quarters ~nd local cyclone shelters. This led to severe ~C(~ommodationproblem in permanent buildings which are used aR shelters. Over crowding and problem of drinking water and sanitation have been commonproblems in both the years. Similar findings are evident. in other studies (BUET/BI/)8, PART6, 1993). Besides this, people encountered different t.ypes of pl-olJlems on their way -to shelters lJoth in 19n and 1992 which emerged mainly due to bad weather condition and distance of sllelters. Unfortunately no organisational assiGtance eould be provided to people during evacuation of people in 1991. Some institutional assistance was providcd in 1992 but tile rate was st.ill low. The facility for ev~cllLltiun of domestic animals is still Jacking. It. is revealed frum the discussion thdt lack or absence of planning in evacuation, both from the point of view of institutions and hOUSE'holdscan lead to anotiJer disil.strous r..itllation. Therefore, proper preparations should lJe taken from bot.h sides to facilitat.e easy and smooth sheltering proeesr;. Strllld by distressed unitedly: Klmle .,,,.,,,.",,.m.,,~, "~ ",_' ,,,' '..•. ",. ,.,,," "" ."'.,. , ''' ..., ~...• :;:::r,;;~::,;;~;~',:' ::;:.:;'l',:';;';:;:';-::~',~';;'- ".,~....._" ,-. ,_.,,_._-," ,,,..,. C'" ,... e,_"_ .._,,_ '" .".". '" '" _,,~'. '" •• ~ ""' •• ,_~, _ •••• 00 ''',_ ~;.~r.;:;,~:',;:;';.:,,::::.'~~:~,'~:;;;'"•.'.m"',,, .., "'~, .,,_' ,," "'" <>,.~,_ "'._"' •• '" ,_ .7,:".: :..;~,;r:':;';':'J: "~. ;'_~:;:~:::',:::::~.~ 0':£ :T::~.:'" ~',:' ;~~:~:.'~';:~'i\:::'::h:;:;:'..._.. " el .\NGO;:;;~~": P" help surplemc~t! , -",relic work. - • ' ""~""'~".~ '''' ,h ~ ,,,'~n.oJ~,,,",,,""_••.••_. "•.•.. ,~.... ,"00" .".' • ",•••.••~ .,,.~,,.,"' ""'" .1" ;:'~"r,':~,":'"~.,",:'-"''''~'r,:",,,.,,.,,•.,,ei" .•....,'~-.""",,,_" .. ''''"""-.' ",'".•.,,•..." ~,"'~,,~.,-~,' -"", ",,.,•... .. ",.",,,,,~,,,",,~",.."'-'" -0...... ,'" "" "",,"'~,~,".."" '- PRESEWl' INSTTTO'UONAL TNVOLVEI'lEN'l' A'l' LOCAL LEVEL C1ll\PTJill - B PRESENl' INSTITUITCMIL INVOLVEMENTAT LOCAL LEVEL 6.1 INTRODUCTION Tile natUI:e of institutional involvement in cyclone disaster management at the national Iev('-} hilS bElen discussed in the previous chapter. This chapter would include ctisCUSGioll Oil the problems ann pr06pects of existing <,jovernrnent and non-government organisations who are working in the field of disaster management at tho loc1l1 level. Generally Ol'qanisatioll5 call be categorized ,inLo two major group". They are: Formal and Informal. Formal organisations are those wlJiell have formal functional arJ;'angemellts "nd are required by the government's standing order to take part in the cyclone disaster management. Informal organisations are those whleb are not egselJtially required by the standing order to take part in fo:rementioned acLivities but are generally found to take part in pOGt cyc] all€' rCGcue aw] relief. After 1991 cyclone innumerable formal and informal organisations got involved with post cyclone relief dnd rehabilitation works. But unfortunately no officia.1 documents are maintained about the over all activities of t.hese organisations. As such, it was impossible to trace out all the organisiltiuns who took part in the pOGt cyclone disaster management in 199.1. However, interviews were taken of the Thana NirlJahi Officers, Chairman of Union Parisl",,]s, Development Officers of Cyclone Preparedness Programme (Thuna Level) and representatives uf existinq NGOGonly. It should be mentioned here that not all the organisations ",ho were intervie",ed, take part in the activit,ies related with different phases of cyclone disaster malla\lement, although they are required by the standing order- of cyclone. As such they were asked to identify the possil.Jle problems they would generally encounter if or when they would he bound to take part in the cyclone disaster managementproccss. The prospects or suggestions to overcome the problems reflect the opinion of concerned government and non-government organisations. 8.2 TilE NATURE 0Ji' PROBLEMS AND TtiEIR SOLUTION The discussion with the organizations involved in cyclone disaster m"nagement at the grass root level has faei I i tated the identification of various pI"oblems encountered by them. The catalogin\l of the problems and their solutions hilS been done on the basis of their origin. These problems dwl solutions have been grouped into f.ive major cate\lories which are discussed below. 1. Tile Organisational Problems and Tlleir Solutions: The vroblems which are aSGociated with the organisational structure, capability and co-ordina'tion fall into this category. Like",ise the solutions that are to bn implemented with in the organisation throu\lh changeGbroughL into the trend of general functional &ystem, development or ,improvementof attributes of the personnel involved etc.are .included here. In simple words, the problems and solutions that directly related with the organisational policy are brougllt und"r this heading. 2. The Financial Problems and Their Solutions: The finilncial problems ohviously include those issues which are related with the financial limitations directly or indirectly. As for example, adoption of awareness generation programmes are hindered due to laGk of appropriate training materials which again results from financial limitation of the organisation. Development of necessary & related facilities associated with various stages of cyclone disaster management are also conditioned by the availability of resources. In fact finanei"l limitation is directly or indirectly related with all other problems. 3. The Legal Problems and Their Solutions: The aspects that require legal suppo.t or change are categorised in this group. It is worth mentioning here that no problem has been designated as legal problem, which means problems originating from othe. sources can be .esolved or minimised through legal support or inst.uments. Such as, lack of transpo.tation facility pose as a major problem in emergency evacuation. Since the numbe. of vehir.:leH Gannot be .e"dily increased, legal instruments can be developed to minimise this problem, such as giving the power to the concerned authority for special requisition of vehicles during such periods. 4. The Infrastructural Problems and Their Solutions: The problems 'lIld solutions related with infrastructural facilities are grouped under this category. Although the origin of such problems are rooted in financial limitations. Infrast.uctural problems are m"inly encountered during evacuation and post cyclone periods. The solutions that are identified as infra structural are mainly long term measures. 5. People Oriented Problems and Their Solutions: There are some problems which are purely social in nature, i.e. dependent upon people's perception and atti tude. Although this section of the paper mainly aims to shed light on institutional problems and their solutions, s'till, these "spects have been included here as they create a great deal of problem in proper functioning of the organisations involved. • 8.3 INSTITUTIONAL INVOLVBMENT IN AWARENESS G"NERATION PROGRAMME Awal'eness generation progl'ammeS al'e ess"ntial for diGaster preparedneGG. Although the coastal belt of the country is (Jrone to various types of natural calamitieG, but still no effort was taken to promote "wareness generation programmes for the people. The main factor identified as tho cause of such a situation ill lack of training materials which can be ulleo [or awareness generation programmes, wldeh intern i" a result, of lack of initJ.a'tives regarding t.his iSllue at the nat.ional level. Trained manpower to conduct awareneSS generation programmes is also lacking. In case of represent"tives of the union perished, i't was found that half of them were t.otally ignorant about their official responsibly regarding cyclone disilster management {Table 8.1). It has been found that only one NOD (UnnayelJ]Shoho]ogi Team or Development Assistance Team) launched an awareness generation programme in Ali Akbar Dail Union of Kutubdia after 1991. This organisation arrange group meetings and try to ~ncrease people's aWilreneSGabout how to protect themselves, how to preserve domestic goods and emergency food in underground holes, how to climb a tree and tie oneself with it, how to manage monoy and children during evacuation etc. !Jut the exl:eut of this programmes is .in its juvenile s1.1Ige, NGOs,lUrking in the coastal areas c~n be encouraged or instructed to incorporate such programmes with their regul The volunteerG of CPP can play an important and effective role in this regard. Such efforts would not only help in reducing loss of lives but can also contract the economic 10"5 incurred by the disilster at household ievel. Needless to say that the suggestions made by the institutions are very import.ilnt but "orne what time consuming. Preparation and publication of training m Problems PossIble :0 Ullon -----r- Name of the Or anisation I 2 3 4 , 1 2 3 4 , l. Thana Nirbahi Of Iccr: KUlUbdia ! ! , , , ,, 2. Thana Nirbahi Officer: Chakaria , ,,,, , ,, 3. c.P.!'. Officer: Kutubdta , , ,, , 4. c.P.P. Of lcer; Chakaria ,, , ,, 5. Kaiyarbl U.P. , ,, , , . Ali Akbar Dail U.P. , , , , 7. Uttar ~rung U.P. , , , , 8. Badark all U.P. , , , , 9. Pekua U.P.' ,, , , 4 , 10. Chiringa U.P. ,, , ! , Ii. B C , ! , , 4 12. Unnayan Shohojogi Team , , , 4 , , I . PRISM (Kutubdia) , , , 14. Gonosashthya , , , 4 4 5. Badarkhali Co-operallye ociety , , , I6. ~,ono Gobeshona and Unnaya , 4 , 4 ! Foundation J7. SARPY-Bangladesh , , ,, , 4 18, UBINIG 4 , 4 4 , 19.1SDE , , 4 , ,, 20. CARE , , , 4 4 21. 'ARrI'AS , 4 , 4 4 22. PRI 'M- (Chakaria) , , 4 4 Total 6 9 14 7 II 15 17 13 10 6 Nature of Problems and Solll1ion:.: Organisational (0) l'inancial (F) Legal (1.) Infra,truetural (l) People Oriented (P) (il) Problems I, Lack of Awarene:.s about OWciaI Responsihility (0) 2. Lack of Initiatives by I-ligher Authority (0) 3. Lack ofTrilining MateriaI~ (F) 4. Lack of Trained Manpower (0) 5 . Financial Limitution to Adopt Awarcness Generating Progr (b) Soluation I. integrated Effort for Awarencss Generation (0) 2. Generation of Training Materials (F) 3. Inhouse Training (0) 4, Development of Supporting l-egislatioll (L) 5. Development of Co-ordination Among A&cncies lnvolved at the Gra~sr 134 It is learned from Table 8.1. that problems .identified in this field arc mainly financial In nature (53.19 Percent). Organisational problems are less emphasised. 1luL in the case of suggested solutions, majority (55.74 percent) arU organisational in nature. Financial and legal solutions dccount [or 27.S" pen;~nt and16.39 percent respectively (Figure S.ll Pr,bJ,m. - "'. - "'~ I 0 OrgOllI"~~on" I!l Fimmciol IlILegoi Figure 8.1 Nature of problems of awareness generation and their solutions. 8.4 INSTITUTiONAL INVOLVEMENT IN WARNING DISSEMiNATION Warning dissemination in the coar;taJ areaS at the household level is predominantly the job of CPP volunteers. The volunteers running with different types of red flags (corresponding with the signal number) . . ',. --,. .. • , .. j '~ ".,. .~ ',' --,. -~".,. .. .• .... -- ,. '7 . '.' -. ",. . .• • • -~ - • ,.'~'--~• After 1991 cyclone employees of mallY NGOs and local .level authorities came forward to take part in warning disseminati\'n. That is why, during the depression of 1992 people were warned not only by the radio and CPP volunteers but also by NGOworkers and representativell of Union Parishad. Dut it was reported that no co-ordination w"s maintained by the involved authorities which created some confusion among inhabi t"nts. The problems and possible solutions of warning dissemination have been identified in Table 6.2. 6.4.1 Problems of Existing Setup 1. Lack of t.rained manpo",er to disseminate cyclone warnings in the remote parts of the rural areas is a major problem since no inhouse training is provIded to create a skilled workforce for thj s pur-pose. Mostly, these organi sa'tions tend to rely upon the CPP volunteers. 2. Modern communication faci,li'ty at the individual level is necessary for effective warning dissemination system.The communication link of CPP is extended upto thana level. The union team leaders gather at the Thana Head Quarter to receive necessary instructions then got back to their respective unions and instruct volunteers to dissemin"te the warnings. This process is very timo consuming at the present status of transportation ~y~tem. The problem become more acute when the thana comprises a larger area. Under such circumstances communicating with Union Team Leaders become a serious problem during emergency period. 3. Bad road condition and lack of transportation facility inhibit quick exchange of .information with the Thana H.Q. and Union level organisations because these organisations still have to rely upon the Thana level offices for instructions regarding, this issue. One the othcrhand unpaved roads ",ithin the union and isolated s8ttlement pattern in the rural "reas make it extremely difficult for the individuals involved with warning dissemination to carry out tlleir jobs. 4. co-ordination problem with other orgilniHiltions results in confusion and misunderstanding. No sound approach has yet been taken to co-ordinate the efforts [or warning dissemination which can ensure active participation of all concerned government and non-governmfJnt organisations. Abl:;Gnce of co-ordination among crr and NGO workers results in communication gap between government and non-government effort. The involvement of NGOsin this field is still very limited. If larger number of simil'H- organisations come forward in this field, it would be wiser to con 5. Lack o[ proper planning at the nat.lonal level has al:;o been identified al; a prohlem. Al'thougll the country is freqoently attacked by n 6. Thana or Union Parisl1i1n 7. There are only two offIcial workers in the CPP office at the thana level- the Development Officer and iI Clerk. The Development Officer is the only person hilving aCCeSS to or technical knowledge of operating the V.lJ. F' SYHtem. During the period of a cyclone, the Development Officer has to attend the communicat.jon system at h,is disposal and at the Same lime be present at 'lhe frequent meetings held by the Thana Nirbahi Officer and ".Iso wit.h union team leaders uf CPP. At this moment a regular uperatur uf lhe V.H.F system becomes essential. 1]8 8. Safety measured for the people who are involved with warning dissemination at the field level is a major concern. Sometimes weather signal changes within the period taken by an individual messenger to commute to the assigned area. Situation becomes even worse when this is accompanied by disruption of radio broadcasting due to extreme weather condition. Under such condition. CPPvolunteers or NGOworkers face an uncertainty and personal insecurity since they can neither come bilck to their station without finishing their job nor can they take proper precautions about their own safety. 9. Lack of adequate number of mikes and megaphones also hinder rapid dissemination of warnings. Individual messenger has to make almost face to face contact to warn people living in scattered. isolated homesteads. 10. Many Union Parishad Chairman were not present in their respective areas during or after the cyclone of 1991. Generally they are expected to be present at their respective areas during emergency situation, but their absence created a number of problem. 6.4.2 Prospect of Overcoming the Problems A. Short Term 1. The problem of co-ordination must be solved within the shortest possible time before it reaches beyond tlle manageable state. The growing interest of the concerned agencies can lead to a chaotic situation, if proper steps regarding co-ordination of the authorities is not taken immediately. Provision of training facility for the workers who are expected to take part in warning dissemination is emphasised here. Warning dissemination require different types of technical knowledge and quick decision making under emergency s1tuat10n. It ~s• therefore necessilry to make concerned people• aware of the technica! and non-technical problems they might encounter through proper training facility. • 3. Development of a key organisation [ur disaster management at the local level i" necessary to take immediate steps without having t.o ,"ait for th", instructions from the higher level. Interruption of the communication network or nature of existing situation may demand emergency decision and action for which a strong arid well organised hody is required at the local level. 4. Sometimes people who are involv",d in warning dissemination need in [ormation on current development of the cyclone. But due to the lack of possation of radio or other communication facility in the remote parts, people lose contact with their main station. As such information feedback system can be developed which would help in providing necessary information to the pcrsonnel invulved. For this purpose some institutional buildings can be used which would beequipped with modern communication facility and thereby be used as local level information centre. The workers can update/verify the information/warning they are disseminating [rom such places. 11_ Long Term 1. V.H.F. COmmunlCiltiOnfacility of the CPP should be extended upto union level. 'l'his will reduce the tlCansportation and communication prohlem with the Thana Head QUilrter ilnd thereby speed up the necessary actions. 2. The feeder ruads at the local level ilre kutcha type (unpaved). Thesc roads has to be improved upto a certain extent or key lociltions. 'flCavelliny with motorbike, other mechanised or non-mechanised vehicles or even on foot through such roads become extremely dangerous under bad weather condition. On the otherhand after a heavy rainfall some parts within the union become disconnected due to submersion of rural roarls. This situation inhibit quick communication and warning disseminatiolJ. Improvemont of local roads is essential for not only prompt communication but also for easy evacuation. Brick suling of the access roads of the cyclone shelters should be given priority in road development projects. 140 3. Wireless communication facility amongthe cyclone shelters can facilitate better warning dissemin~tion, because there exist a Disaster Preparedness and Management Committee with each cyclone shelters (specially in those which are built by Caritas). This committee can w~rn people living within the immediate catchment area of the cyclone shelters and can also exchange necessary information among them. 4. The number of volunteers of crr is still small compared to the number of population they have to serve. 1'his number should be increased gradually. 5. It was reported that people became panicked after broadcasting of cyclone warnings by various agencies in 1992. This situation can be avoided only through proper planning- the plan which would assign specific areilS to definite organisations. This plan preparation would require detail study and absolute co-operation among concerned agencies. 6. E:nsuring personal securi'ty of the individual messenger is a difficult task. Provision of rain coat and highboots, torchlight and other necessary communication facility to individual worker may seem impossible at the moment but this matter should be taken under special consideration since the efficiency of thilt person. is largely dependent upon these items. It is learned from this discussion that majority of (57.75 percent) of the problems are organisational in nature (Figure 8.2). Financial and structurill problems account for 19.72 and 22.54 percent accordingly. Likewise, suggested solutions are mainly orgilnisiltional in nature \52.94 percent) while finaneiill and infra structural solutions account for 28.24 percent and 18.82 percent respectively (Figure 8.2). I~obl,m" Sol",,""" I 0 Or9Brlia~tional IIIFinBrldal s:;J InfrawuclUrol I Figure 8.2 Problems of warning dissemination and 'Lheir :;oluti,ons. 8.5 INgTITUTIONAL HlVOLVEHENT IN EVACUA'l'ION The responsibil.ity of cur",erned agencies does not end IIp with simple dir,>::emination or cyclone warning or evacllation order, rather it includes pLovision ot all possible assistanco to the population to (>vacuat",. This assistance may b", given ill the from of transport facility, accommodation f""tIity in Lile cyclone centers or other permanent public buildings, escorting or guidlng peopJe to safe pl'lees etc. But the most critical issue here 1S 'Lopersuade people to evacuate, people's willingnes.G to evacuate 1S mainly conditioned by the household securiLy, shelter faciJ.it.y ilnd perception about the thl;e 14:J , < . , 0 , ,, "0_ 0 0 0' 0 0 '. '- '. - " - . " . . . , , , 0 E " 0 • • 0 ~. '. 0 0 , 0 , 0' 0 3 ~ • 0 0 '. '. - 0 . 0 '0 0 0 0 N 0 0 •• " • 0 • '. - 0 '. ~- . , . . . . ~ 0 • -,> • • • , "~ - • - • - • • - ", - - - . , , 0 0 0 0 0 '0 • • • • " • " 0- - " - - 0 ., • • , . E " '. - . ~ 0 0 , 0 0 e 0 • • • • - •• • 0 - - - - , " 0 0 0 0 0 0 0 , 0 0 - N • • '. '. - . 0 0 " --~ " , - 0 '. • 0 • 0 • • 0 '. '. 0 - 0 , 0 0 , , 0 0 0 " 00 - - " • •• '. '. • , 0 , ' ,, 0 - '. 0 '-.- • . 0 • 0 '.'. 0 0 0 0 '. ~ , 0 ' . 0 0 0 - • • " '. " '. '. " . . . . , . . . , -E '. 0 • • • • • •• • • • " , ~ - - 0 , . , 0 0 • • • - "" "" - - - '. 0 • 0 - . " 0 0' 0 0 ' 0 0 0 0 " '. " '. • . • '. • , • , . , 0 0 ... ~ N '. 0' • • '. " • •••• - . . . , . , 0 0 0 0 - • • • - '. • '.'. 0 0 - , , ~, , -, , , 0 ."0 -0 N D - " ,- , , D D I 8 E D- , -,-, , u s - " 0 .~ , 0 0is 0 - D , " U 0 , ~ " D ,," ~ • 0 0 . , " i 0 " . ,- - - D D 0 0 , s " ,- , , 0-;0 - - D - " - D - - .~ - :i3 - 0 c B Z B 0 Z 0 0 , z ~ B 0 " - U .D - ~ -C - - u •0 oZ , I ~ • , , < '"- - ~ -! - , - 0 ~2 , E z - . 0 ,,,',,~~ 0 < ~ •< z D u " - u u 0 0 0- 0 ~ u u - " ~~- - u" B 0 & • N 0 - - " - FU b " , - - -- 0 . N 0 z " , d , , 0 - 0 "-, 0 -. " - - N NN- ~ - " -- - " - - .' 8.5.1 Problems of Evacuation Operation 1. The most critical problom is, people's disbelief on evacuation' order. The genera] habit of the population is to rely UPOll the traditiona! or non-technical method of weather prediction which is based upon colour of the sky and nature of wave of the Ocean.On the otherhand, since the security of the homestead or household goods are not ensured, people tend to remain in the house, as long as possihle. This type of non-cooperaUng attitude reduce the efficiency of the organisations involved. 2. Lack of access roads to the cyclone shelters and bad road condition after a heavy rainfall create problem for easy movement. People gen,,"rally tend to move to the Thana Head Quarter if it is a small area. Muddyroad condition makes the evacuation proc,"ss extremely risky and time consuming and lead the situ1l'tion to an unmanageahle state for the organisations involved. 3. The need for vehicular transportation facility is felt during , evacuation period. The number of vehicles is extremely limited eVen a't the Thana lev,"],. Large number of trucks or jeeps can facilitate quick evacuation of people from remote areas although effectiv,,"w,ss of this facility largely depend upon improvement of rural roads. 4. The number of volunteers and workers who are working in this field is still very small compared to the number of popu.1ation they are expected to support. As such it becomes difficult for these people to provide adequate assistance to the people who are evacuating unuer panic and stress. 5. Lack of emergency fund to be used to hire v,"hicles to transport people from relatively remote areaS or to provide dry food on emergency basis. 6. Inadequacy of permanent. buildings t-o be u~ed as cyclone shelters result in gathering of innumerable people in one place which become unmanageable [or the authority. This problem was specially felt during Lhe depression of 1992 \ 8.5.2 Prospects of Overcoming the Problems A. Short Term 1. Immediate steps should be taken to provide training facility to the concerned people on emergency evacuation operation. The training manual of the Cyclone Preparedness Program can be followed and further developmonts can be made to prepare a detail training manual for t.his purpose. 2. 'l'he problem of vehicular transport filcility can be solved through ilJlowing requisition or hiring of locally available vehicles. Proper legal and finilncial support will be necessary to resolve this problem. ). 'l'he number of cpp volunteers ilnd NGO workers is still inadequate. Further suppurt C'In be provilled during evacuat.ion if other groupG of the society (the teachers, students of the colleges or secondary schoOlS) are integrated with the overall system. 4. Introduction of some remuneration tu the best volunteers or workers would motivate people La take part in the activities related with disaster management. The service rendered by the volunteers and NCOworkers are crucial for the coastal people. After e"ch disaster some remuneriltion can be given to the workers involved in this field, baGing on their service or on the basis of people's openion. 145 5. There is no legal instrument to force people to evacuate during emergency period and no such attempt can be successful.ly implemented until or unless security of the household can be assured. Under such circumst.ance. the best alterative i~ to increase people's awareness and remove the obstarles of eV 6. Shelter facility within each ullion cannot be readily increased. Tilerefore, other mea~ures have to be taken to ensure safe evacuation of people to the distant places. As such, VDPand Ansars can be employed on the roads to provide personal security. Assistance for evacuation of children or old and disabled can be given if training facility is provided te the people to cooperilte at tile community level. 7. Each level of weather bulletin must be supplemented by general instructions to the popula'tion. People will have to be made familiar with these instructions through aWilreness generation programmes or mass media. B. Long Terl1J 1. Improvement of rural roads is essential. Community partici(.Jation and awareness generation for creation of local fund for improvement of ruads can be initiated. This sector is largely dependent on foreign aids, creation of local fund would not only speed up the road development works but would also reduce the dependency on 'Ji,tional budget. ,6& 2. There is no definite planning authority ",ho can take steps for planned evacuation. It is not possible for the higher level authority to plan for such micro level areas. Therefore a local level authority, headed the by Th,lna Nirbahi Officer can be created to formulate plans for proper and balanced evacuation. 3. More shelters will have to be constructed in order to provide adequate shelter facility for the people. Management of the existing shelters and permanent buildings will have to be ensured at the same time. 4. Equipments necessary for the safety of the people ",ho are engaged in evacuation activity may require l"r'1e amount of financial involvement, but still it is essential if proper service is expected from a large number of volunteers and workers. The nature of equipment required at this stage would Cldd-uponly a small extra amount to the total budget allocated for each worker. 5. Creation of emergency fund for disaster management at the institutional and personal level will have to be initiated. The scope of affluent supply of fund at the institutional level is limited. Creation of emergency fund at the personal level can be initiated through NGO's since they have direct and regular access to the people. The analysill of Table 8.3 reveals t.hat the identified problems are ffiilinly organisational in nature (40.94 percent). Next comes infralltructural problems (23.52 percent). financial and people oriented problems account for 22.83 percent and 12.60 percent respectively (Figure 8.3). Sugge"tecJ solutions are also milinly organisational in nature (46.21 percent). Infr'lstructural solutions account for 22.73 percent. financial and legal solutions account for 19.70 and 11.36 percent respectively. 147 r'rol>l,m" Solu',"", 2~ 73% 46,0.''1'. IJ Organi.alio !iii Financial ~ Infraalruelu fll People III LCjjal ,m ral Oriented Figure 8.3 Problell1~related with evaeuatioll and their soJuLions 8.6 INS'J'.I'rUTIONAL INVO[,VEMENT IN RESCUE hND RELIEF OPERATIONS Post cyclone rescue anll relief operat~on~ require an efticieut work force. Prt:'vention of further deterioration or the situat:ion entirely depend upon institutional support. Although LIten""essity of rescue, relicf and rehahilitation servi"es is not always the samebut the concerned author.ities must remain alert at the highest level (Table 8.4). 8.6.1 Prohlems Related with Reseue and Relief OperaUolls 1. Lack of cu-ordin"Uon among the agencies involved in relief oporations is the most imporLaut issue. There is no systematic wayof assigning "reaS to dif[ert:'nt agencips, which results in lluplicat.ioll or total absence ot reli"f opera Lion in some areas. 118 Tahle 8A: Problems Related with Rescue and Relief Operlltion and Their Solutions Problem~ Possible Solution Short Term Lone Term Name of the Organisanon , , 3 4 , , 3 3 4 , 3 3 4 3 1. Thana Nirbah, Officer: Klltulxha , i i i i ,I i i , , 4 'I i 2. fhana Nlrbah; Ofticer: Choknna " 4 ! i I I i 4 I i i ,I i , , 3. c.P,P, Offlcer: Kmubd13 i ,, , , , , " i " i i 4 C P p. Ot!icer : Chokona , i , ,, i " i i , i i i , 5, K~lV'trbil U P " , , , i , " 6, Ah Akbar Dail U P , , , ,I , , 7 Uttar Dhurung U.P, , I , I , i i , 8, Baul\rkhali U P. ',; I 9. Pekua U.P. ,I , .i i I I 4 , I 4 i , 10. Chinnga [j.P. " i , , 'I , ,, , i , 11 BRAC , 12, Unnayan ~hnhoJog, Te"m (KulUbdLa) , 'I I i , , ',; , , I ,, ! 13 PRISM .,; , 4 i I i , i , 14, Gono,a~h[hya i ,I , , 'I , , i e • 15. Badarkhali Co-opemove Soc'e,y .,; , , • 16, Gono Gol:>eshona and Unnaya , ! , i , i Foundatiun 17, SARf'Y.Bang:ladesh , I i " 18. UBIN1(j I i , I , , , i i 19,1SDE i , ,I i , ',; 20. CARE " 4 ! I " , i " 21, CARlTAS " i i i , i , ! --.::...: 22. PRISM- Bang:ladesh I i 4 i i , i 'I i i Toml n '" " 4 n n "" '" n '" " n JI I" Problems Ibl Shon Torm Solutions :0) Long Term SolutiO" 1, lack of VOnlclo. (F) 1. Tlalnlng on Roscue and ROllslOperallOn(O) 1,' I"cleaslng the Number of Road and Wale, 2 Bad Road Concltl"nsll) 2. Co_ordlna"on In Rescue & Relief Veh,c1e. (F) 3, lack 01CQ-ordination(0) Oo.'OI;onIO) 2 DevolopmenTol Rural Road (I) 4 Lack 01 3torog~ Facility a"d Unloading 3. Prop.r P!ano;ng (0) 3 DevelopmenTof Storage Facility (I) Facliily of RollefGoodS111 4. C,.atlon 01a Data Base (OJ 4 Development 01 Emer<;;ercy Fund al the s, UnrulyPopulation (PI Local Level iF) 5, Cr.allon 01G,assroot Level O,ganlSa';Qn 101 Rescue & Roli~1Opera'ion(O) 2. Here too, transportat.ion problem iG an important issue. After a severe disaster (cyclone-or flood) road connection is disrupted, the dlstant parts become inaccessible for both the authority and the population in order to provide or receive services. Whena cyclone is accompanied by tidal upsurge, the affected area generally remain under water for a considerable period of time. During this p~riod. boats are only m~ans of transportation. But there is no system or provision which can ensure immediate availability of boats for rescue operations. Besides, it is almost impossible to use non-mechanised, manuillly operated boats through the current. 3. Rural Kutcha roads ilre inundated after rainfall and tidal upsurge which inhibit road communication with the affected parts. Improvement of J;urill roads would not only filcilitate easy rescu~ and relief operation but also improve warning dissemination and evacuation system. 4. The Disaster rr~pilr~dness Programme (DPP) and Cyclone Preparedness Programme (CPP) of Bangladesh Red Crescent Society are two major authorities for rescue and relief operations. The r~lief goods are rec~ived by DPP and distributed through CPPThe administrative and d~cision making complicacy between these two ag~ncies sometimes create problem in relief distribution. 5. Storage facility is very limited in the rural areas. Sudden influx of food stuff and other commodities create a serious problem for the authoriticw involved. When tr'lnsportation system is disrupted due to Gevere situation and the local level institutions fail to provide adequat~ storag~ f'lcility, reli~f goods are dropped from the helicopters in the midst of brackish water which leads to SpreOlO of post disilster diseases. 6. Manychairman of the Union PariGhadfi of the coastal areas were absent from their respective areas, specially In 1991. Such irresponsible belJaviour not only create obs1:acles in relief distribution but also in overall disaster management. 7. Somechairman of the Union Parishads complained that the NGO's and other agencies who take part in the re.Uef distribution activities do not inform anything ahout their operations to the Union Parishad Office. This lack of communication result in duplication of relief operations. They "IUphasised that all relief goods should be distrjhuted throuyh Union Parishad Chairman. 8. In manycases, the relief goods pouci,ny into th •• region do not match with the type of th •• local needs. People are found selling many items in order to buy the commodities they need from the Opell market. 9. No record or report is prepared at the local government level ('J'hana or Union Parishad) which Call be used as a guideline for the suecessive 'rhaua Nirbahi Officer or Chairman of the Union Parishad. 10. It takes time to organise rellef operat.ions from the capital, mean tim", there is liD fund which can be used by the local level authurity to supply dry food, drinking wat"r and medicine to the victims. 11. There is nO systematic way for relief distribution. Sudden onrush of people to t.he relief camps create serious management problems. 8.6.2 Prospects of Overcoming the Problems A) Shori Term 1. It has already been suggested that the problem of co-ordination must be rE'solved within a short period i.e. within the c:oming cyclone prone season if possible. Plans can be prepared to enSUre proper co-ordination and co-operation among government and non-government agencies. 2. Training for tile volunt.eers regarding proper rescue and relief operation must be arr"nyed which would help jn reducing further det<"rioration of the situat.ion. Many lives can be saved if proper 'training is offered. I Obviously proper transportation facility will have 'Lo be provided too. Thana level authority can resolve this problem by taking a co-ordinated effort. Representat.ives from th" NGO's. educational inHtitutions and other possible agencieH call get involved in the preparation of such plans. 3. Lack of information sometimes hinder proper rescu" and relief operations. Steps should be taken to create a database at least at the thana level. The team leader of each government 4. Other voluntary organisations will have to be created at the grassroots level who wuuld work H.ide by side w,ith the CPP volunt.eers and NGOworkers. B. Long Term 1. Improvement of road transport network call facilitate to and fro movem"nt to the relief camps. Since the scope for improvement is vory time consuming and cos'Lly, it is Huggested that the location of the relief camps should be pre-planned and botter be lucated at places accessible by feeder roads. Cyclone nhelters and primary schools can be used as relief camps - since people are familiar with the location of such buildings. Of course these buildings have their normal use and above all are used for evacuation. It is suggested that the pre-selected buildings should he cleared up as quickly as possible to be used for emergency relief oper;,tions. 2. The number of mechanised vehicles and boat.s will have to increased gradually. Technolog.ical innovation will have to be motivated for this purpose. 15? I ,) 3. stor'lge facility at. the '1'l1ao 1. Government and NGOlevel co-ordination with the dOllor-agencies is required to find out a solution of tho problem created by the inappropriate goods distribution. 5. Thana and union level fund should be created for emergency relief operations. ~'hi5 fund can be used to provide food for the period whidl is taken to urganise relief operations from the capital or district Head Quarter. 6. A group including repr"sentatives from the exis'tiny NGO's and government agencies should be formed who would create a database nece"siI('Y for eff.ic.ient <'I.i"il"t:el- man"gement. Informiltion on basic household chilrilcteristics, lociltion of the household in relation to cyclone shelters or other safe places, killas, probable relief camps, location and capacity of cyclone slJelters, primary s 7. After cre"tj ng il datahase and plilllning proper relief camps within the union, il n"w technil]ue to minimize the cost and confu",ion in relief illld r"hahilitation programmes should be chalked out. C"l'd system for individual households can be introduced to collect relief goods from specific relief Cilmp". B. It WilSlearned through the survey that tile ]Jecple's reliilllce on Union Parishad Chairman is quite low. 'l'he general educational qualifiea'Lioll illld morill StiltW:; of such persons discourage people to grow a faithful functional relationship. Representatives of various in"t,it.utions refused to work under the Chairmanship of such people.But the Chairman of the Union Parishad is expected La plilY a k"y role in disaster management in future. As such it is suggested that the government should take necessary steps to change the mInImum educational qualification for "lig.ib.i.1.ity of the candidates. 1'he ilccountability of the individual chilirman would depend upon the overall functional syst~m. Analysis of Table 8.4 ,eveals th ,""ohl'mo 21 ",1: 10.00'" o Orgllt\;.eli 0 lISF,n""dal ~ InlrQ.muclu 1'1'1Peopl~ om rQI Ori""le Fiqure 11.4 Problems -.:"lated wiLh ,""SCI]('and ,""lief opeLaLion and their soJut.iOIl5. J 54 8.7 SUMMARY Institutional involvement ill cyclone disaster management largely depend upon national policy and its implementation mechauir;m. The standing order for cyclone of 19B5 required all the relevant ministries and departments to take "ctive part in warning dissemination, evacuation and post cyclone disaster management activities. But in practice it has been found ttnough the survey, that the existing oryanir;ations do not properly take part in the activities related with different staqes of cyclone disaster management. The problems, that are identified throuY/1 the discussion can be categorised into five groups, they are organisation'll, finanei"l, legal,infrastructural and social or people urient.ed. Needless to say that financial problems actually slJread E'veIlly over all other problems. The solutions, that have bean suggested by the organisations are categorised jn the same manner. Awareness generating activi'ties have not properly df'velopod due lack of tr"ining materials and tra.lned people which aGain result from financial limitation. Intf'grated eHorL at thf' national, district and loc"l lovel governmf'nt and non-guvernment organisations can help in developing necessary manuals and training facility. Warning dir;r;em)nation require some techn)"al knowledge and training. Such f"ciIity is provided Ol,ly to the local voJunteers of Cyclone Preparedness Proqramme and this programme has successfully carried out its activities in this rer;pect since its establishment. As a result nO other organisations took part in warning dissemination at the grassroots level. Some orgilllisations caUle forward during the depression of 1992 to t"ke part 1n warning dissemination and f'vacuation. 'fheir experience along with that of the volunteers of Cyclone Prep"redness Programme indicate that lack of trained manpo<-Ier Similar type of problems ,~Te encountered (luring rescue and relief operations, for which extensi.ve organilJational improvements are suggested which include mainten"nce of co-ordination, training and proper planning, development of road transport and storage facility. The nature of problems and their possible solutions indicato that there are a good number drawbacks ill the existing organisational setup which has to be overcome by hringing some organisaLional c;hanges. The disc;ussion ufl tho following chapter therefore ilWludolJ some proposals regarding this orgilTIis"Lional change widell would ensure proper cyclone disaster management. Sbmd by disll'csscd 1I11iledly: Klmle ,,- ." •• ".- •••• ", "<," " "-,,. "., '"" •••• '~.::;;:::;',:T~',:::~~':~ :::::::,::,'~.~;'~:e;;::::: ,'- "" " ~ " ". ""~~,., _'e"".,'.. ".0'''.. ••,-. .... '",•..•..•~•..".,,_.~ ~:'::i:::::.:'1; :::;:;:;' :::, ~:::" ,:::.:~~.:~:I:;::: ".._,,"-.''" ....• "." .•..., ...... ,..... ," ..•.." •...... ,,,.,,-, ..•.,,'"~,- ~~r,'~.:::;.~'~',;:~~:~~]:::~,1,\:;1~i+;:f;f. PROPOSiID INBTITU'l'IONAL FRAl"lEIWRK FOR CYCLONE DT BABTER 1"1l\J'lhGf-:l'lENT ) I .'''''' ••,!u. '1. - I,. 'Massive rcJiefwork h} tOilS goods dr 9.1 INTRODUCTION Repeatell OCC\lr , "nee or C'iclone in ,-arious p,-ulr' of tile country bas long b""n il IDa.iar COll('e,'[] of LI'E! ruli,,\] go"-crrLl1l8nt. RuL th.1R i>;sue has !lei LlJer beeu t"I<,," j.llLo the cUllGidf'LdLioll lluring Ll18 ].Jtepariltioll of five yeilr plans, "or il.ny sLeps ""va cvpr b8cn t"kelJ Lo r;trE'JJgthell the institutiOlldl capacity to cope lJith Lhe situation. 'J'h" one ilncl ouly jnstitlltiull th"t liar; bPF'Il workiw] in this fiBld S';'''''8 its origin in J977. is tlw voJllntilry ~el-v_lce under Cyclone Prcpilrp(l11e~;f1 Pr()qrammF'. Devclo1"""'rtt of volunt"ry sorvlce in the rural areas to pur-sur' disselllinatiolJ of "yclone wanl1ngr; "t the gra"5root~ level if, 1.11"main "bjoct.iVR of tills program",,,. lInoULer project under UJ8 lJear];]]'] of Community nevelopment Programme was adopted mainly to "'''';''''' mi);ntellancp or cyclotL" silC'll."r:; aml I.u provide lllcume gelleraLillY activities for UJe people liv.illq in coa"L'll aredS, )Jall! tile j.Jrogramme5 werp Laken ell joitLL collabordl iun of ll!e Bang.ladgGh Red CresC'ellL SocieLy all'] 'J'l,e GovelJllnent 01 Bang],,,]es!J, 'T'he urY8ncy to uu"elop " "','" illsli'Luriollal lra,"ework I.or dis"r;tel' management has hee" r(,co(Il,ised thruugh tI,,, E'Gtal1] isllment. o[ Dil:'asteL Managem""L Bllre""" A lie""' orqanisarioYlill Gtnwtul"" hil" bpen proposed to replicate tI,js nation,,] lev"J orqanJs~I'l()n in th •. 101,er levels Df drlmin,i~I:l"'ltj(\n" 0" the oth"l ilancl, ,,['[orte; have been TII."le lJy the NGO'I:' t.o YNlcr"te an .lnt.eqlilt('d ~ppj"(\at'h rOJ c1iGilst"l' management. It mUl:'t b", admitted jehaL LlLl) jllsLiLutioni\l lrdi'le",orl, lor cl.isa~Let manag",mpnL BlJOUJrJ I", al:' such Sr) ttl"I: the ovel "II Gtnwt.ure can ci\sily aSf;jmi.1aLp it"clt wi LlJ the ('xistill<] aclminisLrat.lYA struct.ure and at the sallie t.Lln,' C,lrJ liln on i'L,; o,,""nrJevuid of ,""ell dcpendell"C2 on "xterna.1 [inanei,,] ur \.('chnj""l assistance, !I de,illitlon of dll insLituLion can be staLAU l1<:'re- 157 "Inst}tutions are established ways or doing things as well ill> organ}sation to do them. They are desirahle because among other things they offer effectivenc.<;s which comes from performing ,repeatcd.ly Lhe .<;ame or similar tasks, cumulative knOWledge of the lessons of experience can be used to improve the effecLs of action ,1n<1 identiliable entities to which specit-ic responsibilities or tasks can he assigned. Where a new need is perceived, it can either be mel; by an existing institution, by adapting or extending Lhe fUfWl;ioIls of the exist.iny institutions, or Imildinq a new institution. This ,liuds new ,institut.ions expensive hoth interms 0.1 staff, even j,f suitably trained stafr and financial resources are iJvailab.le. FurUJermore, unless they are clearly rooted in the existjnq management structures, they are likely to be largely ineffective." (BUET, BIOS, 199:J). Worldwid•• change in climatic cOIJ(lit.iolls IJas brought many unprecedenled calflmities in many developed countries who ale major donor eount.r)es of BangladeslJ. Political turmoil in cert"jn parts of the would hflR "Iso aff ••"teu the overall economi" as well .15 foreign aid situation of the coulltry. Under such ,,)rcumstance, it would be WiRer to dev,-,,1o]lil system whieh wouJd require m,lnimum finflncial involvement and institutionfl) change at t.he t>reliminflry stage, but, which would gradua.1.Jy lead to " mOre integrated, balanced and peopJ" oriented jnstitution"l framework. The content of this chapter would therefole mainly ,include the rljs!,ussion "pon a new institutional frilmework for cyclone d) Raster-management for the country. IS8 • 9.2 RECENT JJI~VELOPMI>NT IN TilE GOVI,RNMENT SECTOR With an illm to r"llnee JOG" o[ lives and \J0a]th in "iltural l'alam.Ltie'J, iI teehni"al il""i'JtalH'p projecl lJnn", thp Ilei'ldinq of IIsRistanee tu tl", Minist.ry of ReliE'f in Co-orc1iniltiun of Cyclonp Rellabi) i 'lation ~Jld I)i Sllster Mllnagem"llt, ",as ailopted in Milrcll, 1992 lJy the l-'re""ml goverument, Under tills projP"t an or(janis"t.ioll naming "Disastel; Co-orrJinat.ion aw] ~10Jljlot'in(j Unit IDC~lU) ,,-'a" "'Rtdbli"hed in jUlJe,l'l92,lat ••,. 011this orgalli~atioll \-laGtUll1"d into "Di"a",ter ~lan" developed lit the same time, a ",'," ill&titutional Irame\oJork has bl'cn eli "aster unc1"" the same projcct [or ",f[il;ient alld eifectlve mana(jement in DClnyladE's!l. Seyer",i k",y orgilIlisat i OIlS l1",-e Leen BurC'au is proposed at tlw natiOllal .1e"el. 'I'he Di~aster ~liln'''Jement cxpected to Iwrk as the co-orc1inating body at. the n"tional level. 'fh.is org"n.isation hi'l~. clwlkccl ""l a \Jell plil""ec1 work procedure \Jllich is divided into 'tllrcp pl,a"e,,- • Pre-Dl"Llster or lJeace time phuse , DULing DiGdst.el Phase * Post. Di"ilster Philse. lit presf'nt tllis orqa"isat.ion is en 'rhe tot"l ImplpmE'nl r,~~",i~;j" , Cobin" ".1 ,,,", G.l"I,,"i 1,,$,0,1_ -- --- N."'"" ""' ••, Nallo",1 01""., M,n'y,,",nl CQuncil •...,,'."",,' -"'"' Co,,,,,,,,,. •.• P,"'.m"",, ,,, Do,.,L" ,"~'ooyComm'l\", ••• 'M •••••••• ~~ •••• h.I,. PH"" "'0'"'' M",.,.mOOL ,to''""" ", mi.'''"" ••, "0, ""',,: Co"", ••"I,,~P'~"p~,,,",.", "'0,' Chi",,,,,," E1-- "n"',_S.~."" c••~" 5"" ,,;,IS'"'' "YDM" '"'or_Mlnl.',,I.1 DI•."" M'"'~'""J\' Co-o,dh'oLion Commm" "",,"1 ~~ 01,,', M"I.", or"',." " "',n.""",,, ",' A.';.' .,,_Ch.I,_Co.""., 5"" ,,,' 0"",b." ".rob,,"e .H0,"'''"'' "'" I."" MI"I",y 01 'SO. D G "GQ ."",' , OLher PI,nnlng DI •• "o, .'''"b",s.~""l'_ S","'"y OM"I MJ ,., OM MI"I'I,lo, Comml"IOil Mo"'~,mon' and _ Rell,r DMRI 0<"""t~"""I.,,_ ""."'" C•• ••• M,,,,O'''''"' ,..."" t:< •• "" roo~ ------I'''"'';'i'~'':o~(nU'""" (OMBI "",..,.'"." '''''' p,'o" 10 ",.'",0'00 IIELD f.£VEL PI,lricIOI, •• ,,, M,n,~ol),'"1 ","I~.•".I Commilioo ."."'''''"'-".,1" "I" ",. U"IIm" I DC? '.mh.", £I"", "1""'"'' 00"'.0".'I" '. "'",'"NC'" 01",." : '.m,",,""" DCI 0""07 "",,. Pi.gure 9.1 160 -,'I FJELD Lt;:IIEL "O~ -'i" 01,.10'_1 ••• 1 V,1un\'ry r-"',!,'"",:--,r-"""""""""',,,,,,""':-' o<~.,,!••I;on. Comml,sloner Managemenl COlllmi\la" I-- om"" 01 ,n' I .o.nd •• "'101",,,,I 00" Po,'n Ill. <;>;',m.n I DC'l poo,••• 10n.1 lOh,bm"u""Onloo'_ ,mo',,: l'I.ct.~ """,,n'. A•• O I \, Olllc.' M."ag.manICo,nmlll. olr;,,,,ol~". rT",,,c,,,,C+"""""'""-'I'~-1T:":':Mt:'~"i':':":'~:t-1:':';';"1'~";'~"j'i,n"" Oltell"npl'm'nl ." loce ,-""I,m.n I IN07 L'_"_"_'_'_'_' _ ~"""". El,oI,d "P"""'- 01"" 10on.0I11"'", ","m,n", _ 1 CPP, - 'go:•.~~."".,eones, BORGS "'moor.S",""'!' TNOIPI01 CPP, :,; ',;1, h,l" LI,lo. Ch,"rn' • ••••mboo"W"d M.rnb"., ~~'-lJo'"",I".1 ,;;cl:••• ,. "•• ". L,lI••• , ~ ~o,,,"m."1 ' ",",.moo' ''",.,,'' wom,"-, wo,'.,o: '0.0',...,"""n','I",, BDnes.c~p, ""h,•• •rnb".S Villago-lovel self-help group' 1'",I"dl"g kl",hlp ~'O"l") , I Irldividual households [ Figure 9.2 The official responsib.ilities of the key organisations have been presented in F.igure 9.3 and 9.4A,9.48 and 94C . Figure 9.3: Official Responsibilities of the Key Organi satiolll; ,f Che National Level. National Disaster Managemeot Couocil (NDMC) • Establishing policies ,od providing overall direction fot ,11 aspects of disaster management. • Defining Driorities and criteria fot the allocation of resources. Natiooal Disaster Haoagement Advisory Committee (NDHAC) Providing advice to the NDMC,and directely to MDMR • SOC;l.O- "d DM' 00 specific technical, managemen t "d economic aspects of disaster management, including vulnerability analysis ,od disaster-development Bnks. Inter-Ministerial Disaster Management Co-ordination Committee (IHDHCC) • Implementation of NOMC policies "d Decisions 00 '0 int.er - minis trial basis. • Co-ordination of actlons by ,J] government agencies ,od overall direction of the activities of OMD. • Responsibilities fot major operational decisions during emergency. " • Decision 00 allocation of relief resOUrCes through its Bub-committee, the Executive Emergency Relief Management Committee. Hioistry of Disaster Management aod Relief (MOHR) • Ministerial responsibility fot disas tel'management, including the convening of the IMDMCC. • l\ssuring tile eGtabl ishment, resourcing(budget) ,and satiBfactory functioning of the 11MB. • ,,, ervision of tho DRR. Disaster Management Bureau (DMB) • Provision of expert staff services to the NDMC ,,,d IMDMCC. • Promotion disaster prevention/mi tiga tion ""d preparedness"' within oU agencies "d levels of government. • Providing guidelines, organising training, "d promoting the preparation of disaster plans. • Operation of tilenatjonal Emergency Operation Centres (Control Room) of time of disaster. Directorate General of Relief and Rchabi Iitat ion (ORR) • At present with respect to: VGD,FFW,GR ,,,d TR, the management ,,,d delivery of relief supplier; ,,,d provision "' related services. Source: OMB,1992. 162 Figure 9.4A: Official Responsibilities of the Key Organisations at lhe Regional and Local levels. District Disaster Management Committee * Ensuring that Thana DMCs are formed and function effectively. * Ensuring that issues related with disaster management are considered in t.he district level planning and during impiementation of development projects. * Preparing a Disaster Action Plan which would ensure that cyclone and flood warnings are properly disseminated, and identify shelter facility at the thana level. , Ensure provision of potable water supply and other services to the thana level shelters when and if necessary. • Preparation of a contingency plan ensuring proper rescue and relief operations a)1('1communication facility with the thana and national EoeIDMB. , Operating an Emergency Operations Centre to co-ordinate support to evacuation, rescue, relief and initial rehabili tat ion operations throughout the distrJ ct and supervise and mobilise these activities. , Arranging lJUrveys to assess DOf't disaster needs and priorities following the guidelines {to bel provided by the DMB and other national authorities and informing the national EOe/DMB . • Preparation of post disaster rehabilitation plans . • Allocating and arranging the delivery of available resources for rescue, relief and rehabilitation to the affected thana on the basis of assessment of needs in the line with the general guidelines (to be) provided by the DMB and district authority. * Supervising the distribution and use of relief goods and accounting the national authorities-and contributing agencies for the use of the resources provided. Source: DMB,1993. 163 Figure 9.41\ Thana Disaster Manag , Ensuring that union DMCs m formed and function effectively. , E:nsuring that issues r",lated with disaster management m considered i" Source: DMB, 1993. 164 Committee Figure 9.4C;Union DiG,H,ter Management about Che , Ensuring that local population i, informed necessary pl'epal'ednessmeasures. union '0 ensure Preparing Di saster Action Plan foe Che • communi ties, ability" "od the readiness of Che local Che respond union authoritjes ood local Ol'ganisations to occurrerice of'" disaster. effectively <0 warnings "od " m prope,ly • Ensuring that cyclone "od flood warnings disseminated locally. should moVe • Identifying shelter facilities <0 ",hich people and individuals to be ,esponsible fo< organising particular services <0 those shelten;. ,od other • Ensure provision of potable water supply services to the shelters when ,od H necessary. proper rescue , Preparation of , contingency plan ensuring facility with Che eod relief opel'ations "od communicat,ion help thana head qua,ters, ,od foe local actions <0 'he WOl'st affected families '0 recover. practice OrganiEing periodic inforrn"tion carnp"igns, "od • rescue "od drills foe warning dissemin"t ion, evacuation, initial relief operations. ood , Arranging surveys <0 "ssess post disaster needs by priorities follo\ After 1991 cyclone many NGOshave expanded their proyrammes .in the field of disaster management ilud a new approach hilS heen adopted to integrate the.it efforts. The project is initiated thruugh the Association of Development Ag",rl(~ies in BCll1g1adesh("DAB) and being funded by PACT Banglade,;h (Private Associations Coll"borating Together)/PRIP (Private Rural Initiative Programme). Bangl A. Pl1asing of the Project. There are "bout 1400 registered NGOs in Bangladesh among >lhich about 720 NGO's ilre associated wiLh ADAIJ.Oui: of these 720 member organisations th" project aims to cover about 400 NGOsin the first phase. TlleS0 organisiI'Liuns arc either already >lorkiwJ in the fJeld of disilster management or have potential mflnpO>lerto (!xtend their programmes in t.h,is field. 'l'he country .is f1,ivided into J4 f1ivisions (or chilpten; - as termed by the o!,,,rational sy,;l"m of ADAB)atld a number of: districts are covered under each Chapter. About 25 NGOshilve been select"d [rom each chapter' to participate in the first phase of the training programme. Thus 350 NGOs (14x25) will be brDught under the programme in the first pllase. The number of NGOsmay be extended as p",r requirement or pot,enti"lity, and there by the final number of NGOs covered in the first phase m 166 Figure-9.5 : ::.ograme D!?aanogram of Disaster Mana ement Pro ect (NOD's) fundin A eno PACT'on ladesh/PRIP 'm lementinn Anenc" ADAB'BDPC Participants Directors of Local NGDsend Local Representatives of National nnd International NODs. 'm lementation Media '"0 Staff 'l'ar"et Beneficiaries Source: Comniled from data collected from JI.DAB1993. B. Training Module The training module would include discussion on definition, types and history of commonnatural disasters in Bangladesh, damages and implications of commondisasters in Bangladesh, social, economic and environmen tal con"equences of disasters, human and organisational behaviour, needs in terms of various disasters, elements of planning emergency preparedne"s and imp] ementation of disaster response programme, women and childre,{s perspective in disaster situations in Bangladesh, personnel management, leadership and coordination of oper"tlon, disaster preparedness information system, disaster rE'sponse tracking system, warning, standing orders, legal formalities and coordination with yovernment departments, community participation in disaster mitigation, preparedness response and shelter management, concepts relating to emergency relief, rehabilitation "nd development, financial control and accoun'ting requirements, monitor ing, report.ing and documentation, disaster specific preparedness-cyclone /flood /erosion / drought and management of health/medical activities. It is worth while to mention here that the training module will be continuously improved according to the suggestions or requirements. After the iJucce~sful completion Of the initia.1 phase, the project aims to assimilate target population with .tts training programme and developgrass,oots love I leadership for disaster management. C. Data Base Creatjon An attempt has been taken to prepare a data base on Disaster Information System lIns) , Dir;aster Preparedncsll Info,mation SystE'm (DPIS) and Disaster Response Tracking System (DRTS). 167 All the information un which organiuiltiun iR working in which an"', wjth whom and what kind of programmes ilre they running ana what step~ Ilave been taken by them for disaster prepilredneRs and HI response tu disasLer ille gathered under this system. 9.4 PROPOSrm INS'l'lTUTIONAL SP,'['UP FOR CYCl,ONE DISASTER MANAGEMENT The mai n objectiY" of tilis research W,15 to develop SOme alternative insti'Lutional setulJ for cyclone disaster management ",hich would be more appliCdbJe and acceptable in the cuntext of existing economic and lJolit.ical situation dnd more people oriented. This setup has been developed after evaluating thE' iS61)es and prolJlems identifiea in th" 1'1evi ous chapters. Both the alJproilcllefi adoptE'a by the government and non-government organisation rely heavi Jy upon foreign aid and empllasi 7.e mOre ull the development of higher level bodtes at tho initial stage. Needless to say t1lat these higher levol organisations are the backbones of the OVE',all SE'tup but lIIis t,ype of development reaches out for the gra5srootr, level oIganiRations 01 population at the final stage i.e. the target POpuliltloll are reached through the development af concerned bodies according Lo deRceuding order. The present research advocaLes for the immediate dev,dopment of local organi"atioIl~ and miljar key organi~ations at the lIiqher levf'l. 'rIle process will gr It .is worth mention.in\J here that the approaclH"~ propos",d !lerc do not attempt to devjate gr"ilLly from the approach that hilS bE'en adopted by the government. 'file natiunal level bodieG of this approach (e.g.NJ)MC,NDMilC,IMD~JC)are expected to meet only twice a year or during emergoncy period oms ,199?), wbi ch leave the mini str y of Disaster Managf'ment and ReJ i ef ana the D;saster Management Bureau being tile main body ,,'orking round the yedr in this fiel<1. Ar, such, the Disar,tel Management uureau has bE'en considered here as the main natiolJal If'vel orgilllisation Wllich will be workjng rouno the yei'll:"ill this field. 9.4.1 Ration 'I'he main objective ur purpose of thiH reGe 1. Problem of co-ord,ination 2. Lack of trained manpo>ler and trai.ning m"teriaJs 3. Planning ",roble," 4. Infrastructural problem A short discussion un how these problems are addressed in the proposed framework are presented in the following paragI:aphs. 1. Problem of co-ordination: Lack of co-ordination between the govor_nment and non-guvernment organisations and at the Harne time among the government and NGO's themselves hinder quiek functioning of the concerned bodies at the time of disaster. 1'he pro",osed framework consi:;t of a body ilt di fferent hierarchicill levels which would act as 'the co-ordinating body- these bodies wi.l.l ellSU." proper underHLanding and co-operiltion among the agencies a" well as dist, ibution of functions to avoid duplication of activities or lack of proper functional linkage. Each subordinate body will be accountable to its superior authori'ty. Besides, eilch of the proposed bodies would consist of representatives of various illstitutions that can effectively take part jn 'the cyclone disaster management. Thus the proper co-o;Jeration is ensured at every .level of the framework. 169 2. Lack of 7Talned Manpower and Training Materials: A distinct body has been proposed to facoilated proper training facility at the national level. Functional co-ordination of different bodies at different hierarchical levels would ensure proper diffusion of traini.ng facility amongthe personnel involved at various stages and levels. Special authority has also been proposed for the development o[ tra.ining materials for general population and workers and officials. 3. Prohlem of Planning: PI'Hllling at the national level is the pre-requisite for the successful implementation of any institut.ional framework. For the present study~planning at the local level is alsO necessary. The government has already setup the Disaster Management Bureau for this purpose. 'I'he planning at the other administrative levels will be gradually initiated through the co-orctinating bodies which have been proposed here. The grassroots level organisations can take part in the plann,lng process by contr.ibuting necessary support and information. 4. Infrastructural Problem: Infrastructural facility ill terms of shelter for the people and domestic animals are lacking in the coal>tal area. This problem waS severely encountered during the depression of 1992. Apart from this, transportation and communication problem also restricted easy warning dissemination and evacuation. The completion of shelter projects will "ssist )n reducing this problem at the preliminary st"ge. Proposals have been made to deal with this problem in the long run. Recommendations have been made to reduce the problems related with tranportation and communic"tion by adopting some technical and legal meaSUres. 9.4.2. Tile Short 'feTIDApproach The fin;t "pproach is propused for" short poriorl (2-3 yearR). '1'his approach iR basically bilsed upon th" "xi sting jnstitution,,] setup wi'th cert"in extension of respons:ibilitics. TI,e main purpose of this appro<:wh is to sl,ength('n the functionil.1 coordiniltJoll of the agencies which arE' jnvolved in LI,e cyclon" disaster miln1lgementat present. It SllOUld he mentioned here that t.he in!;ti.tut,i uns proposed here will be r"sponsible to carry oui. all the ""tivities relatod witl, pre-dosaster, durinq-disaster and post-disaster phas". Since this study mainly foC'uses on awareness genOC'ra'tion,wilrning dissemination and evacuation, therefo,,,, detail discussion will be confined on institutional reseponsibility in these thl:'"e stages only. A. The Institutiunal Setup The proposerl institution"l setup is shuwn in rigure 9.6. It should be mentioneu here that thl:'ee types of ififiueR 1Ire involved here awaJ;"eness generilLion, warning dissemination and evacuation. Awareness gen"rdtien is a peacetime fun"Lion \olhi.1ethe othel:' two are emel:'gerrcy opcratior,s. The present setup call carry au'L the functions involved with theRe three issues if proper clJordinat.ian • ,t is maintained. Nat:i.pnal Leve.l: The PJ;".i.meMinir;ter would be the supreme authurity. Th" Par.liamentarians and the Minist.ers would b" wurking under the Prime Minis~OC'r:.Theministry oJ Disaster Management and Re.lief along willI other re.l"vilIl't mini~tries will guide the [urretions related with the issu"", fer this pill'Lieular purpose, the issue!; related with cyclone disastEJr man,lqement. The new.ly est.i1blished Disast"r Management Bureau would ilet as the coordinating illld policy m,~k.iIlq!Jody at the national level. Regional and Local Level: In ordor to opelate awareness generation pl:'ogr-ammosdur.ing off-cyc.1one period,rapid wdrnina dissemination and eV1l"uatien 17.1 Approach. 1 I Prime Minisler I I P"liarnent I I Cabmet I , I ),1jni,,"y or uo, Mim,rry of Di"""," Mirn,1r)' 0" Mini,,,,, of BDRCS ~GO ADAB Defor.ce M;ni'OIe, M,nagernen' &; Rdicl Jr.formadon Education Bereau '" NATIONAI, LEVEL ~• >.1e,eQ:'Ology D"",cr Mar.agemen: " Department 3meau I RadiOiT V I C,oLoorr.en' I II NOO, BOGI<1 ------Di,rnct Di""er Dismc, REGIONAL LEVEL Managemen' Bcd)' Offic. I ;-JOO, I ------T------Su~-REGIONAL LEVEL Thana Di"".r I To,na Mar•••• m.", Bocy Office II NOO, I ------Union Level Co-m-d1nanon Body Union Team LOCAL LEVEL Loade, a.1d II :-iOo0- ;I Vol"n,em IANSAR '~', 1 'I sC~~lo~ste~~~' ~';';;;'~~:e"~Mang. Commt'- I • Populanon Pop"lanon Bondicla."lO' r Population I Populauon I , Flg-ure 9.6 "J and reSCUe durin<,j emcrgfmcy period arlo pOGt "yclone relief and rehabil.itatlu!l, diRaster manaqement bodies Ghould be created at the dish-ict and Lllana level, which will be headed by t.he Deputy CommiGGioner lind the 'I'IJlInaNi~balJi Officer accordingly. Mf'mben; of Zila ani! 'l'hdna Parislllld and repreGentaliveG f~om BDRCS,Ci'I', NGO's am] propoRf'd lnst j tutions wi) 1 be the members of the L'ommitteeG at these two leve]". Dlstri."t and Thana level officerG with different reGponsibi1it)es will "uperviG'" the acUvitieR related with ~elevent fields,i.e, Education Officer will organise anrl monitor awareness generalion programmes anrl local training a"tivitieG. The main function of these bodieR would be to enGu~e proper functiuning ami coordination of activitie" ~elated with forementiol1ed .issues and plan preparation for "he implementation of the policies. Union level diGa"ter coorrlinllLion hody, which will be "haired by the Union !'dri£:had Chairman and have members of union p"rishad, represent"tives from local school, madrasha, mosque "nd cyclone she 1ter management commilLeeG, NGO.s, village defense part_y and Un.iOll leam leader of CPl', would be Llle key orgllnisation at the grassroots level. \','itll tuture del'clopmenl, female representat i ves from nei<]llbourhood lev"'] disaster manllgement organi""tions woulll be"ome members of this eommittfle. This body will org"ni"" quick djsr,emin"t.ion of cyclone warning and casy evacuation LllrolJqh Lhe imamR of the mosques, teachers of the schoo] sand madr"shas, cyclone shelter management ro",mittees, VDP, NGO staff and CPP volunteflrs. D. Awareness Generation The awa~erWs£: gene~ation proqramHieG should have a qeneral guidelino whicl) would be fol]owed simu.1taneouGly by Lho gove~nTIlent and non-yuvernmfmt agcne-ies. Ministry uf Edu,,;:rLioll shoulll be responsible for the overall coordination of tile programmes taken hy the government "'Ill non-goverJJment flgfmcies lit this sLlIge. The main issues of booklets or tralning material" provided for aw"reneG" gcner"tio!l ot the trlliner" (or urfic.i.als and ::;taffJ and tnd_llees (or populati.on) should be similar in nature so that communication 1"13 gap between the appro"che,; followed by the yovernment and non-government hollies can be avoided. NGO's can be coordinatell through tile NGO Bureau and ADlI.B(Association of Development Agencies in Bangladesh). NGOBureau.is d government department and mainly deals with reyistration and fund approval while 1\.I)ABis an organisation involved in NGOcoorllinatioll, representation, GO-NGO collaboration, NGO-NGOtagging, collaboration with UN agencies, training and orgimise rapid re[)ponse to naLural calamit.ies. These two organisations can work simultalleou~ly tor NGOcoordination. 'I'he awareness generation programme of Lhe government can be diffused through the respective off.icials of di fferent administrative levels to Lhe School/Madrasa Tf"acher's Committees and Cyclone Shelter Management Commit.tees. This way tile problem of lack of training matedal and t.rained manpower can be gradually solved. The teachers can reach their students by arranging special classes on disaster management as long as iJlclus.ion of the related aspect.s are not formally introduced jn tlJe general educaLiona] curricula. ~laJlYNGO'shave non-formal ed'leatjon programmes, and t.helr [)tudents can also be reached throuyh the"e programmes. Su"h lIiscussion on awarenes" generation about cyclone preparedness should be made compulGory [[am class III, because the student. drop-out late .is quite hiyll after primary level. The c.pp volunteer call also contribut.e in aWClrene"" generation programmes. 'l'hese vo.lunleers C The awareness gfmerdting pro[Jrammor;can be conducteu in t.he local [)chools, NGOoffices or any solected house in the community as "uggested by the survey"d populat.ion (Table :'.5). On the otiler hand tlJe cyclone Bhelter~ can al[)o be used for this .purpose, This WOUld,""\ also establlsh a contact beLween t.he lJopulatJ.oll and the cyclone , , : j I, \..~ shelter. Familiarisation ",ith the area and L110facility ",ill in the long run llelp in easy and timely evacuation. C. Warning Dissemination am1 Evacuation Cyclone ",arnings arc primarily rcc"ived by the Meteorology Department and SP/IRSO (Spilce Rpseilrch and Remute s"nsing OJ;"ganisation). The inforJllation '" impending cyclone is disseminated through- i. The maSSmedia and ii. Prim() ~1illist()r's office lind respectjve ministries and successiv" auministrativ" stages. The main job uf ",aJ;"ningdissemination at t.he grassJ;"oots l"vel is accomplished by the volunteers of the CPP. Recently field level offic"rs som" NGOhave also got involved in this field. It is very difficult for the CPP volunteers to COver all the arE'as they are expected to s"rve. !Is such, j.t is sugg"sted that the respoIlsibjlity should be shared by the NGOstaff. Villag<' Defense Party (VDPl and Ansar, School/Madrasa Teaclwrs (",ho can reach t.he goneJ;"i11 population through their "tudents) and Imams of the local ~losques. I t is worth mentioning her e that many of the Mosque's have mikes to call genE,,"alpopulation fOJ;"daily prayer. Tilis facility caIl be used for warning disscmination. The same a<,Jencies call help people in evacuation. The aJ;"medforce can be involved at this stage though th"y are generally called for rescu" and relief opeJ;"a'tions. But thj.R well-traiuecl work• force can contribute extensively in evacuation of local people. Local level authority should chalk out a rough plan on evacuation of people basing on 'thc jdentified places ",hich call be used as (Jhelters during emeJ;"yencyp"J;"iod.W"ll perceived planning can miuimize L1w problems relat()d with inadequate shel'ter facility at t.his initial stag". It is found from the survey that many households receive the preliminary warning on the final day ('table 6.1). AI::a result such families fail. to take proper precautionary m"asures. The local level disaster management authority "hould take care of this asp<,ct and make sur" in futuJ;"e that each and every household in the commun.ity receive the pr"liminary wllrning prior to lhe findl approach of the cyclonp. Oll the other hand evacuatioll orders wiil have to be disseminated immed.iately after it is officially decided. Late dissemination of 175 evacuation order in 1991 W,lS one o[ the major reaSOnS o[ non- evacuation and loss of lives. This evacuat.ion order can be dis~",minatcd through llJe proposed institution,; in order to etJGure wider coveralle and timely di~Geminiition. De~tination of different househollll3 can be influenced by the conc"rneu authurity (Tabl" '1.6). This way a hdlanced diGtribution uf people in differ"nt structures can be initiated. Furth"r impl:ovement of "helter facility in term~ of !lumber and quality will reduce th" probl"ms arisinq at present during emergency evacuation (Tahle 7.10 A; 7.10B). D. IS[HH'S Lo be Reconsidered The discussiun of the previouG (ClJil1Jtcrshas pointed out somE'basic requirementG from both j.Jeople anu in"titutional £'ide. The following issues will hdve to be consillered during the implemontaliun of the inslitutioJldl l;et.U1Jin th" first plJar;c . 01. A "Na'tiona.1 Disa~ter Manag"ment Day" should be ohserved every year in r"cognitjon ot the issue a~ the national level as well as to promote popular illlerest in th,is £i<:.1d, This day can be observ"d un 29 April, in memoryof tlJe devastatin<,j cyclone of 1991. Seminars, photographic SIIOWS,special programmes on mass media and supplements in the newS papers, documentary film shows in 01J8]]air) for general population etc, can be arranged on this day. 02. Politioal workers at ~lJe loca.l level shuuld b" enoouraqed to take p"rt in disaster preparedne5s and response aotivit,ies. It is oasier for t.hem to organise parl'y workers ano motivat." rur"l peop] e lu take par t in different. "c tivit.i es deG.igned to improve people's oopinq oapacjty, 03. Imams of th" mosques c"11 be used aG a powerful media for awarenes,; gener"lin<] programmos. The .socjal prestige ano value of the Imam£'jn lhe rural sooiety is almost unparallel. This powerful 50ULOOcaneonlribute in awareness generatiull of people, specially the male members of tIle ~ociety. They call have special disOUGsion on th •• "oilcerned matters before OJ: a[ler Jllmmaprayer when majority of t.he relig.ious people are present. And for t))js reason "peeia1 training [or the Irnam~ shou.1d be organi sed. 04. Special signLllling Rys'tem \oIjth light I-"ill hLlve to be jn-Lroduced in orde-.: tu <.liss"minate cyclone \oI,,-.:nin\15at night. Differ"nt eolou,,' Cull be used to indicate d.ifferent levels of signals. 05. It has b"en learned [rom the study thaL the g"neral a\olareness level of the population is not v"rr encouraging. ')'herefore, immediate steps should be Laken t.o lallnch programmes regarding this issue -through qovernment, semi-government and non- government org~n iSations. Amongother issues. emphas.i,sshould be given on safe el'acu~tion of childrell since tIl'" number of infantile LInd juv"nile popu.1,-,tiun is higher ('l'able 4.2) and the.i.r death rat" in the cyclone of 1991 "'a" Ll150higher (Tabl" 4.8) than uther age 06. People's aw"rene;:;S ~bout "eight and distanc" has been found to be very vague .in nature ('rable ~.8; 5.9]. People must und"rs tilfld tlws" "spoets when expcct"d surge height or loe"tion of the cyclone is broad"asted over mass media. 'I'he e"siest way t.O make people "ware about the he.i.ght is to mark height scale on a permanent building - Lllis can be a primary school. pilldr of a mosque or cyclone cilelt"r wlJicli is within commut.ingdict.a)]"e "ml familiar. Onthe otherlldnc1 th" distance betwe"n some lilnn marks or places cull be pointeu out on a board beside tile height scale. This would improve people's idea about distance and at the same time abollt locat.ion of the cyclone in r".lation to th" lal1dllla~G.It would also h"lp people to "st.imate the possible trav ••l tim" distance bet\oleen two places. 07. Majorit.y of the surveyed households belong t.o t.he IO\olerincome group (earning Tk 30,000 or 18SS annuillly) {Tabl" 4.51 On the other- hand the "conomicloss ut these households is more seve-.:e tllan th" higlJer income yroupG I 'l'ilble 4.13A; 4.13BJ. 17"1 Awareness among these people along "iLh other sections o[ the Gociety will IJave to be incre OB. Preservation of em8rgency rood ann drinking water is an essential aspect. A sim]Jle ann inexpensive altern 09. It is learned throuqh the study tlJat majori'ty of the houseG are temporary in nature (Table 4.7) and t.hese arc the structures which ilre destroyed by the first. attack of strong "ind and tidal current (Table 4.J2A). Aft".r e"ch devastating caJ"mity, such IwuseholdR ,.et assistance for house reconstruct ion from government. II. Thana administration do not at can not maintain any file on NGOactiviti"s or programmeareas. It shuuld he mad" mandatory to inform the thana l"wel authority about the basic characteristics of the programmes operated, field area, number of benefi ciaries in each programme. Ule natur e of response to natural disast.er etc. ,\n account of the acti,vities o[ oth"r volunt"ry or informal urgnnisati.ons dur.ing the off-cyclone and post-cyclone per.iod should also be maintained. This killd of dilt.a cell can help ill preparing plans for warning dissemination anll evacuation. 12. The personal securiLy of tile CPt' volunteers and proposed other parties who w.i11 be involved in "",rning dissemination and evacuation would have to be "nsurcd. The national and international voluntary organ.lsalions can come foreword for- this purpose. They can provide ncC"essary equipmenLs(c. g. raincoats, boot.s and t.orch l.iglJts) for the easy operations of tllese workers. 13. Governm"nt initiatives should be taken to develop some leg;,l instrument in favour of mandatory conslructioIl of storage facili'ty with tIl<' permanent institutional buildings at the local level which can be used for oth"r purposes duri 119 the normal tim". Besides this illl such struct.ures should be connected wiUI tel"pilOne network 1n order La facilitate easy communication witil the J ocal as well as regional and nat ional level organiRiltiuns. 14. Fund should be provided for emergency, dry food supply to the evacuees. Th.i,; would reduce the neou tor evacuation with food staff by th •• households. Th.15 fund should corne from the revenue collected at the local l"vel. The union pLirishad receive relatively iusigni[icant ,lmuunt of grant [rom the government.. As such, the t"x levying cap"city of tile union par-ishad will have to be improved. the Cyclone A slJOrt training CO" bo arrang"d und"r Pr epar"dness Programme for UJO \lnion P"ri~had C1Jairman on Disaster Management. 1&. Manyhouseholds do not evacuate due Lo f""r of theft I'rable 7.2). Provis.ion of s"curity of th" households is a cr.itical issue because it is impossible to provide thi" facility at the present na'ture of rural settlement pattern. ll"sid"s, even if VDP and Ansars are employed for "LIJis purpose, no one can ensure persuna] security of these p"ople. Therefore at the present situation, it woulll be wiser to provide other alternatives which would reouc" the uemand tor security service of the hOHIeste"ds. Generally UlC householo belongings of rural peuple are simple ann small in number, the major concern is for their domestic animals and ill some car;es fur the jewell"ry and money. other alternatives are suygested for this purpose in the fo.1lowing section. 17. Manyhouseholrls "ad to take ~helter in inappropriate places duriny the depression of 1992 (Table 7.51 and majority had to leave their domesti" Llnimal~ behino due to lack of shelter f"cility for them ITahle 7.11). Tile surveyed huuseholds as well as institutions emphasized on increasiny the number of cyclone shelters dnd killas. 'J'''e completion of th" ongoing eye.1one shelter and killa consLructioli projects might reduee th"t problem to a certain extent but even then it. would never match with the demand. The solution to this problem can be attained in either bv reducing population qrowth or by inducing people to construct permanent strlleture~ where possible. 18. Immediate steps should be taken tu reorg>1l1ise the warning ~ystem whi"h will be easy to understand and ror;pond to. Instructions for UlC population will have to be incorporated with it. 19. It has been found t1lat the t.rees contrihute largely in r;aving human lives ITable 4.9). As such, it should bo made lJart of official responsibility of the District, Tilana and Union level Disaster Management organisations to plan, implement and monitor tree plantcltion proyramme~ in the ('ommunity. Different appruaehes SllOUld be taken to en"uurage huu~eholds and institutions to plant trees. Ne",lless to say that separate study is need"d to find uut the meanS anu constraintfi of this issue. 9.4.3 The Medium 1'erm Approach '1'1Iis approach woulll be basAd upon the preparatiolls taken in the first phase. This phase should he compl"ted within 3-4 years after the completion of the first phase. ~oJLIenewins'titutions have heen introduced herE' to contribute l!l efficieut cyclone di"aster managemen't (Figure 'l.7). A. 1'heInstitutional Setup The main structure remfl,ins all the same. Four neWinstitutiolls are proposed at the nationai lAvel - Disaster Management Training Cell, Disaster Manag"ment Education Cell, Disa"ter Management Tnformation Cell and Iufrastructural Planni ng Ce.11. These organisations would remain under Disaster Management Bureau but would worl, in association with othAr relevdllt ministries (lnd governmAn't and non- government agencies. These cells 1,1.111have to he replicated in the (lisaster mimagAment committees at lower levels of administrative hieraI"chy through separate sl1b-committ~es. Disaster Management Training Cell (D~lTC) would assUme the responsibility of training government officials who would require to takA active participation in disaster m"nagAment- specially the officials in the adm.inistralivc jobs. 'j'raining facility should also be given to rcspeotive officials ill d.ifferAnt m.inistrie5 and department.s. This r::ervice call alsO bA availed hy the NGOstaft dIrectly or indirect'ly. TIl" problem of l"ck of trained manpower [1'able 8.1; 8.2; 0.3, 8.4) will be yradually solved 'lhrough the opAration of this cell Disaster ManagAment Educat,ion Cell (D~lI':C)would be involved in public awareness generatioll programmes in collaboration with the Min.istry of Education, NGOBureau and lIDAB. The main function of this body would be the preparation of general guidelines for education programmes relatIng to awarenes!; gAneration and cyclone disClster prepar~dness. ]1. would also need to work as a coordinator of government anll non- Disa~ter Management Jnformation Cell (D~HCI would he engagell .in collection of information related with disaster managoment whicll r::hould be readily available prior to or after any llisaster. Information all general cyclone track, climatic data, affected 181 Approach- 2 Prime yjinisler Parli_o~t Cabinet Mm:srry of Line Mini,rrv of Di,""er lvhnlStI)' of M;nisrry of NOO Defeoee Mini,tries Manage""ot & Rdief lnformanon Edocauon Bu",," I Mote=logy Dtsa'le:r M,nag.mrnt Dop2..'"1lOlent Bureau ~ATIONAL LBVEL Canmnmom >:awoif.V. >• " Boa", . DMTC I O~C I Do-UC we ....L.....------~------... ------.- Di,r:ic< Disast •• ),lan,gem"".' Com~1l1:ee REGIONAL LEVEL ------Thana Disa"er SllB-REGIONAL LEVEL Ma~ag=eot Comr::tm'ee, Thana Shd"'riKil1a Mhnagerr.enl Body ------Union Level Co-ordination------Body ffin C~O I Figure 9.7 stored here. The population. agencieG involved etc. would De and union level feedback would cume from Uw district,th,mi'i oHi,"e,;. InIri'istructural PlilTlninq relJ (Il'C) would bo responsible for initiating proper infrast1uct.ural d("velopmenLin the cyclone prone area. This would include monitoring Draper maintenance of cyclone shelters, roads. communi cation network and guide and promoLe the eXDansion of thes"" facilities gr,~dually in the area. This c".ll would be a permanent budy which would guide the design criteria of the infrastructural facilities in 'Lh" coastal area conGi,dering tlte specific physical and ecunomic situation. The Disaster Management Conllnittee" of Oistrict and Thana level call become mOre well-organised at tlds level and can avail themselves of the tra.ining facility pruvided by the DMTC. The voluntary avencie" of the country should be burouqh under one ulllbrella and can be encouraged to form i'lI1l\.Rsociation of Volunt,ary Orqanisations in tlangladesh (AVOIl).'rltese voluntary organisations can and do contribute a Jut after a disas'ter. The internatiunal voluntary orqanisatiollS can contrihute in tile provision of better facilities fur tile people who ate directly il,,'olved in cyclone warning dis5"mination and evacuatiun. On tile oth"r hand, if local level voJuntary organisat.ions can be developed properly then they can work side by side with the CPl' volunt,eers and ot.hers wilo ar" involved in this f.i.eld. There "houJd be a 'I'llana Shelter/Kill Management nody 'to enGure proper maintenance of shelters and ki11as. It should be mentioned here that,. the word shelter in this respect include not only the cyclone she IterG but also Lhe schools. mosques, publi c buildi ngs, commercial Gtructures et". The main responsi.hility of this body will be to inspect the general condition of these places which are used as shelLer during severe cyclones and maintain a minimum standard of liveability. This body (,hould be headed by the principal of a locill educatiollFll institution dnd lJo account.able to the Thana Oisaster Mani'iqemenLcommitte"s. B. Issues to he Reconsidercd 01. Disaster Mallagcmellt EducaLion Cell Celn speed up 'the a>larCnE'SS generation programmes and through it, manda'tory courses oil various aspectr; J ike gcn"ral IlnOl.•.ledg'" aLout L118 cyclone, preparatory m"elsurcs, >larniny dissemination within the neighbourhood, ar;sisLing peo[Jle in emergf'mcy eVelcuation, post cyclone emerg",ncy treilLment dnd first aid otc. can be introdul'ed in genc",l educ"tional curricula. 02. The r;urveyec1 populati,on emph"sizcd on th" provision of trainillg facilIty on varjous aGP"cts relaLed with cyclone disaster mdnagement. The d>lareneSG gen"ratinq aspccts can be covered up by the NGO'5, CPP worken:; i1fld other ag"ncies mentioned carlier. Training f"cility oil "technical aspectr; or skill development progrelmmes ~houl11 com" through Ll10 DMTCat thaniJ level. selcct.ion of the prospective trainees will lw carrieo out by the Thana Disa~ter Manag<,m,,"t Committee hasing on the propos"ls pr"pared hy the union level coordination body. 03. Locill icv"l leadership dov",lopment programme cdll be .initiated by the NGO'G or voluntary orgaIli~at:i.ons. !ldlll L educated personG from tile r;ommunity level can be seIer-ted and provided with n"Ce~Gary L1,"'dreneS5gencreltin\J training. Sur;h perr;ons, in the long run ean he u~ed to creatc ('omlllunity level ~".lf help groups. 04, Warning di~RemilJation afLer sunset becomes impoBsil>10.~jnce major p"rt is carried out hy lhe CPP v()lunteers oil foot. lL if; impossible t.o tril"cl at night spe"ial1y whell the weather c[)lldit.ion is bad. As sueh it is proposed that some major key loc"tiolls (".g "YCiOll<' sl,elters or primelry schools) bc conn"cted "•.ith qeneral elecLrificiltioll and Gommun.lcatioll network. 'fhis would reducn the communication problem w,ith Thana Head Quarter and remot" rurdl ar"as. O~. The union level ('oordinati.on bolly eeln iJrrangc a preparat.ory eV;lcuat.ion training for Lhe local pcopJ" .1ndcr the local leader~hip. Security ["eility of the hous"I.Qld~ wUl have to be ensured by the VDPur i\nSiJ!"du:ring the [:raining. Su"h drill practjr;e 01 eV 06. Higher level techn;cal educat;o" at the ""iversity .level will bel'ome essential fOT efficient disaster management. Preparations should he 'taken in the first phLlse {Approal'h 1) so that regular under graduilte and post graduate courses can be introduced ill techn.icill or general univcn;ities during the second phLlse. Besides this, trLlining on CIS wiil illso be requireu for effective responsos. ~hort COUTses on Cl~ operations can be introduced at the Univors.i ties having GIS [acili.ties. This would fost(,T quicl( assessment and response capLlbility as "'ell as proper plLlJlnilJg capLlcity of. the concerned bodies ill futUrE'. 07. Mass media (Radio/'J'V) can act. ilS a strong aud effect,ive source for awareness goneration about cyclone dilHIst.er management. DMEC in collaboriltiull w.ith t.he NCOBureLluand ADAncan use up some broad(;astillg/teleeasting period for special prugramme on d__Lsastermanagement. Hlghlighting on Government/Non-Government opcrat.i.ons, speei.al interviews of pelsollal experiences of responsible officers or staff ilnd victims, innovative local technology etc. would not. only enrich t.he knowledge bLlse but would also assist other people in sharing t.he vast knowledge that would nut be otherwise utilispd. 08. Lack of t.rilnsport facility ilinder swift evacuation of peuple [rom distant. localities {Table 8.]). Special Iund for hirinq vehicles [or collpct..inq !-,eople from remote rural ,~reas will h"ve Lo be created at the thana level. Legal .instruments can also be used [ur requjr..it.ion oI vehicles. 09. Special locker facility call be provided within the mosques {pormanent ones) w'here p('op]e coulll leave their guld, money or other valuables beIore evacuation. The Mosque Commit.t.eewould proville securit.y for tlle guods. If people arc allowed tu tako shelt.er insido the mOiH'lues,it would rAGUCethe probability of attack of the lJOudlums on these valuab.1es. Peuple can be motivated to creilt.e a local fund t.o construct such added facility wit.h the mosques. Simij,u facilities can be provided with .in primary schools and cyclone shelters. lB5 9.4.4 The Long Term lI.pproaeh This philse will he based upOIl the preparilLions taken in the first two stages. Some new instituLions have been inLroduced "t thi~ level. This Flpproach is somewllat di.fferent froln the first two approaches. PreviouG two i1l-Jpn)iI~hesemphaGjzed more on tdking people to the shelter, The present approach would advocate for taking Ghelter fac.ility to the people, i,f". encourFlqing peop.1e to erect houses which ,-,an offer a safe shelter for the household and their domestic ilnimals (Fiqure 9.61. A. The Institutiona.l Setup The institution"l r;f'tup of this approach is similar to the first two ilpproaches. One new org'"1ir;ation iG proposed ullder D~IB,that is Disaster Nilllagement, Leg.islat,iu!l Cell. The main [unction of thiG cell will be to develop proper legislations through th" parliament Lo support cffective impleID"ntation of disilster manilgem",nLpl'lllS. At. Lhe sametime it CiHlalsO ('halk out ,~ regulatory meilsure which should b" implied ilL th" violation of allY of r;uch legisliltion. Housing Authority for Coasta.1 Belt {HACB)will jnLroduce applicable and affurdillJle technology for house cOllst,uction with local technical know~llOW.The authority will operate in ~ollaboratioJ1 with House Building Rel:'"arch Institute (aln'ady existing) and NGO's who are involved iH proviGioIJ of housing assistance in rural areaS. It can initiate appropriat" hOllSe construcLion through NGO's ur separate government progl;amm"s, It is ,impu(;sib10 fur any governmenL to construct emergency Gh"lters by keepin',J pace wit.h the population growth. It would be neithcr feasilll" Hur would it be mallilgeable. Therefor(), this alternative "all Iwlp in redu"ing <,jovernment reGponsib.ility in evaC'uation and 5l1eltel: manil<,jemf"uLprocess. Initially the cosL of such "yclone re~istaI1t hOUGeRmayseem high with regard to the "cOllomic condition of the rural households. Ilut .if the recurring reconstru"tion awl r"pdirin'-J cosLG al:e considered, it would become quite clear that the construction of su"h disaGt.er proof houseG is most CO!;t ef[e"Live Ulan Lhe present ones. G1S cell under ",aell DistricL Di"astel- Mana<,jewmtCommittee will be introduced at this sta<,jcwhich wuuld pr()vide information on slwlte[" facility, their a~cojQIDodati(lncapil"ity, transport and communic •• Approach- 3 r Prime Minislec Pariiamen'l r C'bmetl , Mini,rry of ill, Min;,,,,, of Di,."er r Mini,,,,,, of Mini,trY of ~GO :3DRCS ~,"Avon Defene, "lim,,,,., Ma""gem.m &: ".ho:' ~duc",ion lofQrmancn Bu",au ~, ),1e:wroIQg}' Di •• "o, ),1ar.agemen, D.;>,-""enl HAC~t Buroau ~ ~m"m,", I NATIONAL LEVE;L ~> "ow l DMTC DMEC D~1LC -:r::.----!- --..;:;T------I i ----b-- + ---:1------1 Di"nCl D: >- ~e :'IGO II AVOS l ),1,n,.,' ."-'le, L L _ rn~ntComr."lL"ee ' I REGIO: SUE-REGIONAL LEVEL Conyo~uonal ThllnaSheherlKili. ~e 1';(,;0 AVOB T Tile uniun If'vel DiRiI,,'Ler~lilna Conventional Techn,ical ASRistance Body ",ill I NeighbourllOod level self help group ",auld alJ"ist each other in ",arning dissemi niltion, evacuati on. hou"e reconstruct ion. rel::cne etc. lJ. The .rssues to be Reconsideren 01. The populat.ion'yro",th rate (2.17 percent) (BBS,1991) is quite high in Banglildesll ano it il:: impossible to provide adequate shelter f"dlity for all the people. The misi.nterpretation of the religious veliefs (~pecjally by t.he ill-educated local preacher5/moulilvles) .inhibit proper adoption of fam.i.1y planninq meaSUrP5. TIle insignificant drop of growth rale has larqely re""lted from Lhe a{'cepLance of tho concept by urban population. It is easily aplJrehenoed that the more t.hey gro'" in number, the mort:'they reach beyond manageahle stage. It WaS learnt during the field ""rvey of this re!learch that people inlend to have more children becaURe soma ".ill invariably die in climatic calamities - the reRt ••.•'ouldcuntinue Lhe family "" tree. The a>lareneSS generation programmes should also incorporate such issues in their education"l curricula. Apdrt from this, the Government should take some strong and bold sLeps towards proper ut ilisat.ioIl and applic"tion of religious concepts to avoid iJuch misinterpreta'tions. 02. Wehave learned after 1991 cyclone that i\]nor.ing the cyclone warning waiJnot only commOnamoll\]general population, but also among high level guvernment off.i"ials >lhich c"used heavy economic loss that could othendse be avoided. The Disaster Management [,egislat,ion Committee would ensure th"t proper preparatory measu:res are t"ken by Lhe respective "uthority and would also fmSUre th"t conc"rned offi"ials "re presenL in the respectlve fields or st,,'Lions. OJ. Housing Authority for the Coast"l BeJt can only provide new technology f.or !lOus.ing in coastal belt but in can not enforce coastal people tu adopt thelr technology. As such the government can in.lti"te a housing gIant "nd housing loan proy-ramme.The housing grant programme w.ill incorporate those hou6eholds who ale absolutely unable to repay the loan (i.e female headed families with only one earning member) and lo"n programmes tor those "ho can af.ford to pay back the .loans. r.onstruction ot houses aCGordillg to proper technology can be enforced by introuuci,ng seme !legativ" OI posit.ive measures, SUell as, introducing sp"cial income tax on those who are engag"d in high incoJn" "arning professions in t,he rura.l area or have specific amouut of land. Such IJouseholds can be given the alternat.ive of c()lJstructing houses according to proper technology or pay the t"x. Such projects "all be implement"d through the NGO's who have housing programmes. The government can take initiatives to provide housing loans to some particuJar family in the cluster v.illages which can serve as a shelter during emergency p"riod. 04. Local .level funn creation for disaster management will have to be emphasized by the authori ty. 9.5 SUMMARY The efficiency of disaster management system is dependent upon the institutional support, infrastr1Jctural facility and co-orClination of functions. Absence or ineffectiveness of any of these components can hamper th" managem"n-Lsystem. The new trend of ins-Litutional development for disast"r manag"ment at the government and non-government agencies have two things in common and they are (j) dependency on foreign fund and (iil reaching out for the people at the grassroots l"vel at the final stage. Th" need for various adminislrative bodies at different levels is und",niable. nut inclusion of people in the pro<:ess of di.saster management become uncertain under such top down approach. The proposed institutional setups mainly attempts to utilise the existing administrative structure at the initial stage and gradually dev"lop other relevant organisations in successIve stages. The success of tll0 approaches would definitely resL upon the proper functionill linkage and infrastructural development in the coastal areil. 190 Slalld b)' dislressed" unitedl)': Khale '- """ ,- ,..,,", "" ",.,", ,,, ,," "".- -~: ''"':'::',;r:,~~,.. ':. ::i,e.';::,':: .~~.":. ;:::: "",~"",",""~,,- " " _, ",~. , ,., 0' ,," ,"",. ,. ~ " •••••• ,_' ••••• "~ "-~.,;;",, '" ~ ""."" ~;;:' ~:" ,:.::-::,,~ ,I:"::: '"_'.""", w'""",," ,,",,_ '•..•• "" >,_ :;;::r:',~;,:~::':':;:,::,~'::,,~":"~';;;"".". ,., ,,",;:".:,:-•.:",,;::t::::1 '":~ ~..r,:~~,:;~~:..:!i:~ ,....." '., ",-"", .., , ""'j ,•."" .., ."••C'"'' ", '"." •. ~.. •.•" ~'"". " " •. ". _. '""""_,•..",~,,- "".""'.,"' •."",., c' A :l'lODEL FOR WARNTNG DIBSE:I'JINATTON AND PLANNED EVACUATION 'Massive rc1ief work hj tons goods dr "~',~,~,..•,."", "" '"'' ••e''' CHAPTER-10 A rfllEL Fffi WARN:[I'K;DISSEMINATIai AND EVACUATIai -10.1 INTRODUCTION It can be concluded frOID the dj5cll~Gjon of the pnwious chapters th"t people can nut prevent the occurrence of cyclone or any other disaster but, they c"n definitely reduce and sometimes prevent (upto a certain extent) tile devastation by developin<,J proper institutional framework and shelter 1a"ility. '1'119term "shelter" refers to the stru"tures which can be used dB sille places to take refuge in, during emergency period and this may include pr.ivate homesteads and other organisation,,1 buildings "hich are fonnally constructed ;'5 shelter or t:urned into" shelter under emeryency situation. Prior to 1991, the number of such formal shelter>; was very few compared 'to the density of populat.ion. After 1991 cyclone extensive programmes have been taken to • construct cyclone shelten, in the coastal helt hy various government and non-government organi sations. On the other hand a study has been eonducLed by a multi- disciplinary team o( national experts ( mainly (rom the Bangladesh University of Enqineering and Technology and the Bangladesh Institute o( Development Studies) to prepare a Mas'ter Plan for Multipurpose Cyclone Shelt"rs in the coastal be] t. The main purpose of th" sLudy is to develop a Master Plan which can be used as a guideline for 'Lhe establishment of a network of ["'yclone shelters in the coastal area. The study has outlined the bdSic concept", strategy and location that can be £01101,'0<'1 in the fut.ure development of sllelters in the concerned area.The location, size and design criteria of these cyclone shelters have been formulated in this study_ Basing on the population projecLions ill'Hle in this study and assuming that t.he cyclone shelters are construe Led ilccording to the plan and the institutional setup proposed in this research work is properly imDlemented, a model for ef[ic:ient '-Iarning dissemination and evacuation is developed and presonLed here. one unIon of Kutubdla Thana, i.e, Uttar Dhuruny has been chosen [or the development of this conceptual framework. 10.2 POPULATION PROJECTJON AND SIlELTr.R PACILI'fY AFTER :WOO The population projection lin the report of MCSP)for each union in the cOilstal belt hilS heen made basing upon the following aspects, (ill The pODulation of each unron has been ohLained by adjusting the figures for the assumed under-enumeration o[ 6.36% in the 1991 consus count. (bl The growth o[ POpuliltien in each union for the Deriod from March 12. 1991 (1991 census reference date) to July 1. 1992 (base year population reference date) has been estimated by applying t.he yearly growth rates of the adjusted union population between 1ge1 and 1991 census. The lJrojections were made by considering the followi,ng factors I,I Base y€'ar population year and for each five I bI FertiIi ty schedul"s 1oc ttle base year tim" interval year and Ie' each lei Maltal ity schedules for the bilse projected five year 'time interval bilse yeilr ilnd <0, each Idl Nee migrilLlon estimate loe t.he projected five yeilr time interval. , The information on populiltion projection and proposed shelter facility for this union after the year 2002 are presented in Table 10.1 and 10.2. Table 10.1 Estimation Population ond Shelter Facility in Utter Dhurun0' Union by the Year 2002 1. Total estimated population 27,243 ,. Population that m,y be accommodated ;n 3,010 existing sheltel:s ,. Population that may be accommo~~~ed in 650 existin ublic/ rivate buildin s ,. Population that m,y be accommodated in 2,576 educational institutions 5. Population tha~um~~n~~ accommodated in 24,740 shelters alread ro osed 6. Population that may be accommodated in 1,362 private/public buildings likely to be built 7. Total capacity 33,038 8. Extra shelter ca aci t available 5,795 Source: BUET,BIos,1993. Table 10.2 Estillation of Population and shelter Facility in Uttar Dhurun Union b the Year 1017 1. Total ulation '45 ,. ~~tal'" Shelter Capacity (b vado~~ types" 33,038 a structures that would e built ,. Additional Shelter Capacity likely to be 2,372 Rrn,id~~, by new private and commercial Ul. dl.n II ,. No. of persons whom additional 1,935 shelter f"cilit '0.would be necessal: Source: BUET BIDS 1993 Table 10.1 and 10.2 represent the estimated population projection, and availability of shelter facility by the year 2002 and 2017. It is learned from Table 10.1 that the entire population of Uttar Dhurung union can be provided with shelter facility, within the union, if the proposed and on going shelter construction projects are properly implemented. -.i ~ , _~---_]'-f~_'-I }~[- "\~." ~~~~,-,;---,)'::" -..,;-~"- "~,';~~'- '", ':'.'-- ~ <- _'~¥$~j~;;';-4";;''''':-'P:_-c~~-W' '.c ,_.,.r.< ':.W~~4:,<"--: -,,-" . ~ , >~ ',' < , , . • -- Fig. I"J Pc"p",i,-,' "f Shelier Oil SiiliS Fig. (a) P,r,p"ciive of Sheller Oil Killa C,~, . ,~ , - - "- =-----':.< ~-=.:...-I----;r , '. ~~_...•l~ rA_~~t: [If'": ~J~" 1 I ,I 1 ,I ';,;I~ ~ .. 1, t::1', -' I I ~_ .. ..:J.-i- __ -,i ... ", I " -JJL .. @-"""''"~-'" • T\""IC."- ",,,,,, Pc,," • :Ie? Figure 10.1 De~i~n of the Cyolone Shelter (MCSP). If the years beyond 2002 i~ considered, then it is found from 'rable 10.2 that the populat.ion ot t!liG union by th •• year 2017 would be 37,345. The shelter facility av"ilabl" in the area would bE' [or 33,038. If shelter facility lS provided for 2,372 persons by private and commercial buildings. then shelter f 10.3 DET8RMINl\'UON 01' PHYSTl'AL T,OCATION AND CATCHMENT AREA rrhe location and distribution o[ cyclune shelters has been determined by considering the uiGtribution of population, settlement patterns and tranGportatiol1 networks (BUET,BIDS,1993/ . litter consider.ing th" location of exio.::ting cyclone shelters, the numb"r and locatJOIl of Uw cyclonE" ~llelters proposed by various organio.::ations anu mu.lti-o.::toried public auu pcivate huildings are determined. The area from which people and their domestic animals can commute to a specific cyclone shelVer (or killal is considered as the catchment area of that shelter. As such, the size and sh"pe of the catchment area of the <.:yclone shelters are determined 011the basis of following fLlcton;. (al 'J'he distallce which ITIL1jorityof the hOU5el1Old5would be willing to commute. (b) The density and pattern ot settlement have be Ic I The number uf population that will accommoc1ilt"cIin e (dl Communication fLlcility to the shelter 10.4 PLANNING ARf';A SUIllJJ'lISION The entire area o[ Uttar Dhurung has been suhdivided into [our sections. The bouada:ry uf these »ectiuns In total ther" ",ill be 19 structures including Lhe Union Parishad office, ,,'hidl will bc "sed as shelter. Eadl area is furtller subdivided into smaller sections, which can be considered as the catchment area (Althouyh theuretically hexagonal areaS are regarded as best shape for th" service area but establishing such areas on th" actuill land is diffieult.lloundaries of these small seetions ean be drawn on the basis of plot boundaries). The distribution of cyclone shelters in planning area is shown in Tabl" 10.1. The lociltion of tiles" shelters are shown in Map 10.lA and lO.lB. ~:::::::;e;e;,:' ,;;,.;O;";::::::::~;";';';.;b;e;';:;O;f:e;;;h;e;';,:;e;,:e;:A~V:.;,;';,;.;";,;,;.: ,1 4' , 3 4 6 10.5 ASS]GNING PLANNING AREAS under Needless '" that t.his area would mainly work thE' disaster managment committee at the union level. There ilre 9 ward members in eacll union, every two ward members will be responsible for each planning area and the one left would supervise the overall activities. There are iI !lumberof neighbuurhoods (Para I in each planniny area. These neighbourhoods will have to be iden'Lified and plan will have to be prepared to assign tlifferent households to different cyclone shelters and utlwr public buildings. For this purpose, a drill warning disseminaLion and evacuation will be required which may be done during off cyclone period. \ KUTUBDIA , ~--~ • • o ••• • .-,.-, ;~:"':>--,-- • ••• uu 8600'" / • • ';, ( , ! " -- Map lO.lA m UTTAR DHURUNG DISTRIBUTION OF CYCLONE SHELTERS IN PLANNING AREAS LEGEND Union Boundary Existing Shelter • Feeder Road Type A ' == ProposedShelter 0 Feeder Road Type B __< __ 1l.P Office ••• Bridge/Culvert/SluiGe ~ Proposed Market (Building) 0 Embankment -rr- pianning Area Boundal"Y ..•...•••••_ MilP 10 • .13 m The mai" function of the weird members would be to supervise the functions thelt the grass rooL level organisations are expected to perform uuder emergency situilLion (A~ suggested in Chilpter- 9). 10.6 WARNING IHSSEMINlI.'1'LON AND EVACUlI.T.LON A short descriptio" on the plocess of warning dissemination and plilrmed evacuation ha~ been pre~ented here. A. Infantile Stage: InfanLile stagp will previlil during the ppriod wilen signal No. 1-3 is issued. If any Thana Nirbahi Officer Or Union Pilrishad Chainnan is i11Jscnt from their respect,ive stations, 'the prel iminar'y fUrl.ction of the disaster managment committees of the Thanil ann Union level would be to inform him/her officially. Members of the sub-committees will also be called upon to remain stillld by for turther instructions. It is expe.cted at this stago that tile .communication between Thana He"d QUelrters anrl the Uniorl Pill ishilds will be more sophisticated and lel::s time consuming. Team learlerl:: of the neighhourhood level s",lf hel., groups will be informed hy the representatives of. the union disaster management committee. D. Juvenile Stage: Tllis pllal::e wlll hegin ",iLh issuing uf signal No.4 and prevail till signal No. G 'l'lJdna Disaster Milnagement Committee ",.ill insLruct Union Disaster ManilgemenL: Committee to begin dissemination of wilrning through mike and megaphones by the CPP volunteers. NGOstaff, ward members of union parishad. 1,0cal scllool. madrilsha, cyclon", shelter management committees elnd 10"i11 mosque committee at one hour int"rval. The practice of warning dissemination throngll this media during off-cyclone period ",ill help in identifying remote areaS which can not be reached in this way. CPP volunteers would intorvene in these areaS. Team leaders of neighbourhoorl .Level self help groups would also dissem.inate wilrnings among the group members. Killa Management Committ.ees will l::t.lrt functioning and mak•• sure that required f,wilit.les w.ithin the k,illa are :in order. Members of the voluntary organisiltions can help in taking preparatory measures a't the llOUl::ehold level. On the other hand 199 'rhana Shelter Manilejement Committee will make sure that necessary preparatioTls are taken for the evacuation of people in the shelters through the respective sub-committeer; at the union level. c. Mature stage: The prev,iour; two stagE's tak" relativ"ly 10nge1:" period to pass on to the successive stage. Cut tllis stage beginning with issuing of signal no ., milY redch the final stage within a short period of time. Evacuation notice should be dil:;serninated at: 'this stage. With the expect"d development of communication network, it ,,"'Guldbe possible for the authority to disseminate warnings at night. And if the volunt.eel's of CPP 0, any other organisations fail to reach the remote areas, contact should be made through siren. Pril D. Final Stage: This stage >lill begin with the issuing of signal No. 10, which indicate final arrival of the cyclone eye over the concerned landmass. Miljority of the households should be evacuated before this stage. The (lownpour generally increases at tlJis stage and rural roads becume muddy. Evacueos shou.ld b", specially >lilrned al: this stage about the destination and road conrlitions. If r<'latively longer period is taken to reach this stage, the loc"l level authority would provide dry rood and drinking >later in th" she.ll:ers. 200 - The volunteers, membe,s of the sUD-committees and voluntary organisations slwuld take ::;he.lter immf'diu'tely after making final rounds of warning dissemination. 10.7 SUMMARY People's p'Hticip"tioll awl in~titutiolldl Guppart can effectively reduce the threat of danger imposed by a disaster. The model presented here would demand l'o-operil"Lioll "mollg government and non-govelnment organisiltiOllf; "",1 bet,,'een people and institution5.At the Initial stage, the [Jrocess may filiI to work propel"1y. but continuous practice of "'arning disseminatioJl and drill evacua'tion can only h,,]p in identifying the problems related with such issues. Of course, tIle problems will differ from place to place. The nature of local physical chaJ:"eteristics and transportation facility will influence this procE'SS to a great extent . .1'hese problems C • - Stand by distressed unill'(lIy: Klmle "'" ""~,",,". ,,~. "'," '--" , "' ",,",. "'., ,,"',.. '<0"""'"',., ".''''-", •..',_... :;: :~,::"~:,:; ~~ '::: ;:':.:' t',:';.;::::,;: '~e:.": "~." .•• '''_ •••• , ".,,~~._""' "'''0'' ",,"" ". ",,""."'- '-,,,',, '_"''''''"'',. - .,,~'. '" .'M' ••• " ",,' ,", •• '" ,' ."'" "., -,." •••". ,'"- ,~" '< .". '" :;;"r.;:;,'~;:~.:.:":::,':,:',,;';,~:;;:.--' ,,~ .':::'~.;",'~;~':~.::).,,:':':'.~',,:~::';:',~',.-:;-,: ~':.~:~:;,~,~'.':: ; :'::~:~::t2:;:::.:;':;;;:' """c_ ",,~ BUJ'1i'lARY AND CONCLUBTON - CHlll''l'.KR - 11 SUMMARY AND CONCLUSION BangladcGh, j-,ping one uf U"" mor;t densely populated and hazard prone countries or the wor]cl enGouuter heavy ""OIlOmic loss almost every ycar either uue to Gcvere flood u1 ey-clone. The trend 01 econumic growth is dislupted sinC''' a huge "",ouut from tIlE' natlmldl budget and international "id have La be c1jver>;i.fieu [or pOGt disaster relicf and rehabiliLation. Inst)tution"l strengthening is thp firs'L sLep towards an impruved and ('ff""t.,ive approach for disaster management. 'I'he (Jlesent c;tlldy on "'[nstl Lutiu!l The m"in ohjective5 oJ the sLudy I,'ere • To und")"5t"nd the [,,,,,,tiuus and coordination "mong nation,,], r"g.iona] and IUUdl level gov(>rnm"nt, .~emi-governm('nt and non -goVel'lJmellt agencies .in ""'aren"55 geueration, warning di55<'minat,ion, planned evacuation aad relief and rehab,i.1 i t"t i on, 1'0 investigate the nature of institutional support aV;;lilahle in the coastal areas to rural people in awareness generation,receiving cyclone warnings and emergency evacuation. * To investigate people's perception "nd response to forementioned activities. * To propose a detail institutional framework ",hich would facilitate more efficient management of cyclone disaster incorporating people's participation. The study is based upon information collected from primary and secondary sources. Two areas of different physiographic characteristics were ellasen to conduct questionnaire survey. These areas are Kutubdi a Thana and Chakaria Thana. Kutubdia is an off-shore island and Chakaria is a deltaic region. Both are within Cox's Bazar district the southern most part of the country which is easily vulnerable to climatic disturbances, specially the tropical cyclones. '.rhree unions from each Thana ",ere chosen on the basis of the relative distance from the Thana Headquarter. One union was selected from the close vicinj'ty of the Thana Head Quarters and the other two were chosen form relatively distant parts from Thana Head Quarter. All these unions were designated as worst affected areas after 1991 cyclone. Primary information for the study ",as collected through the questionnaire survey conducted at the local level on the households and institutions involved in cyclone disaster management. The questionnaire for tile households incorporated issues related ",ith people's awareness about cyclone ",arnings and training needs, attitude towards self help group formation, period and source of receiving cyclone ",arllings and evacuation order, nature o~ shelter selectIon, problems faced on the way to the shelters anG in the shelters, type of assistance received during evacuation and post cyclone period etc. General Information on the households were also incorporated. This questiounaire survey was conducted on 300 households (50 households from each union). These households were 203 chosen from the two WOl'st affected localities of the selected unions. Each o[ these localities housed about 225-300 families. As such, a systematic l'andom sampling procedul'e was followed for the selection of the 11Ousehoids from the forementioned localities. The Questionnaire for the institutions included issues like natul'e of involvement of the organisation in cyclone disaster management, pl'oblems faced during warning dissemination, evacuation and post cyclone situation management. Suggestions on short and long term measures tu overcome these pl'oblems wel'e also incorporated in the Questionnaire. Information waS also collected fl'om the secondal'Y sources whi.ch include the Meteol'ology Dopartment, the Disastel' ManagementBureau, the Ministl'Y of Disastel' Managementand Relief, the Project office of the Multi PUI'POSeCyclone Sheltel' Programme, Cyclone Preparedness Progl'amme, the Association of Development Agencies in ]Jangladesh, and oLher organisations who published reports on 1991 cyclone. The major findings of this research have been presented here. 1. At pl'esent thel'e are two sets of signals for cyclone warning one fol' the river going vessels and the other one for sea going vessels. There are four signals for river ports and eleven signals [or sea ports. Needless to say that the warnings issued in the area to which the study areas belong to, fall in the second category. The usual standard procedure is to disseminate evacuation order whensignal no 7 is issued, and it is expected that people, specially those who are living in the coastal al'ea should be aWare of it. But is was learned from the study that majority of the population (about 75 percent) do not have any idea about this aspect. People's aWareneSS about total number of signals used for maritime ports is also lacking. These people al'e expected at least to be aware of these two aspects since (i) no other Wilrning 204 t system prevail in the country to w~rn general people and (ii) pre cyclone preparedness and emergency evacuation are largely dependent upon the awareness of these aspects. 2. People emphasized on provision of trilining facility on quick dissemination of warning (73.67 percent), preservation of household goods (70.33 percent) and quick sheltering (69.33 percent). LOC'lI primary school has been suggested by the majority (44.33 percent) to be more suitable place for conducting such training programmes. 3. People 'lre willing to organise themselves for a self help group at the grassroots level and suggested that both mille and female memhers of the households will be willing to work for such organisations (42 percent) .It was also pointed out that since mille adults are mainly engaged in income earning activities, it would be easier for the female members of the households to take part in grassroots level organisations for cyclone disaster management. 4. Cyclone wilrnings ilre broadcasted through mass media hut in the rural areas, the volunteers of the Cyclone Preparedness Programme are the main agents of w'lrning (lis semination. In 1991, the low pressure formed in the Bay of Bengal on the 25 April ilnd majority (61 percent) came to know about it on 29 April, while 13 percent of the total households did not receive any preliminary warning. The warning dissemination facility was strengthened after 1991 ilnd preliminary warnings were more frequently disseminated which enabled people to tilke adequate preparatory measures. The CPP volunteers play more active role in warning dissemination in Kutubdia the off-Bhore island than in Chakaria - which belongs to the main landmass. Evacuation order was officially issued on the 29th April in 1991 which resulted in very late diSBemination of evacuation order in rural areas. But ill 1992 majority of the households 200 received evacuation order during the first hours of 20th November which enabled them to take preparations to evacuate. Although it should be mentioned here that some households (13 percent) took shelter immedia'tely after receiving the preliminary warning. 5. People were reluctant about leaving their own houses in 1991, as a consequence majo['ity of the households ( 65 percent in Kutubdia and 16 percent in Chakarial remained at home. The situation ['ever sed in 1992. Only about 24 pe['cent households did not evacuate during the depression created in the month of November. Although this is also an alarming rate. People's disbelief on cyclone warning was the main ['eason (66.33 pe['cent) for not going to a safe place in 1991, while fear of theft was the major ['eason (100 percent in Kutubdia 111.22 pe['cent in ehakar-ia) [0[' not taking refuge in 19911. 6. The terrible experience of the 1991 cyclone induced people to take shelter much ahead of danger period in 1992. It h"s already been mentioned that the rate of evacuation was relatively low and majority of the households evacuated after sunset (60.76 percent in Kutubdia and 97.22 percent in Chakaria) in 1991. As such people went to the places within the close vicinity of the homestead which mainly included local cyclone sllelten;, public or corrlIner-cial buildings or neighbours houses. But in 1992 people had ample time to commute to distant places. In Kutubdia people commuted to the Thana Head Quartel" fl"om all the thl"ee unions, althouqh the numbel" was l"elatively low in Uttal" Dhul"ung Union which is l"elatively away from the 'l'hana nead Quartel". Similar tend.mcy is evident in Chakaria, whel"e people moved to Moheshkh"li (anothel" off-shol"e islandl from Badarkhali (30 percent), to other hilly areas of th •• adjoining unions from Pekua (4B percent). These two unions are located aWilYfrom the Chak B. Since the rate of evacuation was higher in 1992, the acuteness of problems confronted within the shelter was greater too. Lack of prj,vacy of womenwaS a miljor problem in 1991. In 1992, problem of accommodation, drinking Wilter and toilet became more critj(lal. It was reported that severill people died duo to suffocation i1nd out of thirst in 1992. These people took refuge in cyclone shelters and other public buildings. Above all, the rooms were so crowded that it was impossible for people to go out to defecate and as suoh people had to defecate right where they were soating. Provision of toilet facility within the cyclone shelters and other public buildings is not properly planned which also increased acuteness of this problem. 9. The marks of ravager. of 1991 cyclone is evident in every aspect of life. People lost their families, thei.r assets, their houses and in many cases 'Lheir "land". I,arge areas were simply washed away from west coast of Kutubdia. Children are the main vic'Lims of the cyclonic at.tack. 'rhe death rate is relatively high among the age group of 10 year or he low (50 percent). Trees played a vital role in saving human lives in 1991. Many people saved their lives by climbing up the t.rees or by riding on the floating tree trunks which were uprooted by the first blow of wind. 10. The problems of the counterpart, i.e, the insti.tutions are quite extensive and need immediate attention. Lack of co-ordination amollg the government, semi-government and non-government organisation!; has been id,,,,ntlfied as the first and prime obstacle. Althollgh, all the government department and members of the local government are required by the standing order for the cyclone to take part in warning dissemination, evacuation, and other post cyclone activitIes, but in practice the volunteers of Cyclone Prep'lredness Programme (CPP) are the sole emissary of warning dissemination. Evacuation is a self help opera'tion which is not regulated or planned by any authority. 11. The communication network in the rural areas is still in under-developed condition. Pace to face contact become essential in order to convey milSsages or officiill instructions. The VHfcommunication network of CPP is extended upto Thana level. It becomes extremely difficult for the union team leaders to communicate with the Thana Level Officer in bad weather conditioll. Besides inadequate safety measures and equipments for the CPP volunteers reduce the efficiency of the work force to a great extent. Lack of experience or training on disaster management is also designated as a major problem. On the other hand limited number of evacuation facility for people and domestic animals also hinder spontaneous evacuation. 12. Considering all the problems encountered by the households and institutions, a new institutional setup has been proposed which would primarily base upon the existing organis ••tional setup but gradually would expand in terms institutional component and responsibility. In this paper a bottom-up approach is emphasized for cyclone disaster management which would utilize all possible potential groups at the grassroots level. including school teachers. NGOworkers, CPP volunteers, Union Parish ad Chairman and Ward Members, local Imams (persons who lead the prayer in the Mosque). These agencies are expected to ",ark under the Union, Thana and District .level Disaster Management Committees. The aWilL"eneSSgeneration programmes would be managed by the Ministry of Education at national level in the preliminary stage. Gradually separate bodies would be developed for Disaster Management Training, Disaster Management Education, Disaster Management Information, Infrastructural Planning and Leginlation under the Di~aster Management Bureau. 13. Bangladesh Army produces a group of well trained work force who are generally employed after a devastating natural calamity. But this s'tudy sugge~'ts that this vast work force should be employed in the field when ever the evacuation order is issued by the Government. Neighbourhood level self help groups can be formed with adequate development in other levels who would take part in warning dissemination and planning for evacuation. 14. The final stage of proposed institutional development attempts to deal with the problem of evacuation in a different way. It is never possible to provide adequate shelter facility to the population with a growth rate of 2.17 BBS,1992). Therefore, j t is suggested that separate housing programme should be adopted for the coastal areas which would encourage people to erect durable houses. In some cases local 'technology ha~ been proved to be effective to construct cyclone proof houses. Acombinalion of local and internotional technological know how can be offered to prepare housing programmes for the coastal areas. Side by side technical education on disaster management would become essential for efficient disaster management. 15. Finally a systematic warning dissemination and evacuation system has been suggested for one union of Kutubdia island which can be used as a guideline for such act.ivities in other areaS. Needless to say th"t, the success of the proposed approaches is largely dependent upon the political stability and will of the government. Frequent change in the government structure result in swift changes in policy f,'amework. The IJ"tional interest of the country should be kept above the political issnes. A general "wareness about the need for di~aster management should be created among people specially among the bureaucrats and policy makers which would provide incentive to the successful implementation of tile strong and competent institutional setup for cyclone disaster management. 209 • Active participation of people at illl levels of such initiatives is a prerequisite of the final implementation of the relevant programmes. The social acceptance of the measures taken for efficient and effective cyclone disaster management would determine the extent modification of plans and programmes. The limitations of any institutional framework or the problems arising from any change in the usual mode of operation will have to be overcome by continuous planning and by encouraging popular participation in every respect. Thus it can be concluded from the discussion that owing to the very geographic location and physical characteristics, Bangladesh will have to face frequent attacks of devastating calamities. The economic loss that incur to the country can be minimized if proper precautions are taken. Ins'titutional strengthening is the first step towards such an attempt. The co-ordination among the involved agencies and between people and institutions can only give us an opportunity to ilvoid the loss of lives and resources, which would otherwise be impossible. 210 APPENDICES • REFERENCES Articles 1. AhmedSalehuddin (1992): "Disaster Management: Socia-Economic Perspective." in Development of Modules for Training on Integrated Approach to Disaster Management and Regional/Rural Development Planning. UNCRD,CIRDAP, Dhaka, P.231-244. 2. Anwar Jamal (1991). "Coastal Hazards in Bangladesh 1991." The Bangladesh Observer. May 22. 3. Choudhury A. M. (1993). "Tile Role of SPARSOin Meteorological Research in Bangladesh." Paper presented at 10th session of WMo/ESCAPPanel on Tropical Cyclones, held ,in Dhaka, Marcil 22- ". 4. Choudhury 7\. M. (1991). "Cyclo[]es in Bangladesh," Space Research and Remote Sensing Organisation, Dhaka. 5. Choudhury, M.Il.Khan (et.all (1991); "J\. Case Study on April Cyclone in Bangladesh." Paper presented in the workshOp on Improving Cyclone Warning Response and Mitigation, Organised by Asian Disaster Preparedness Centre, Bangkok. 6. Gupta S.P. (1992), "Shelter for Disaster victims: A Philippine Experience." The Daily Star, January 31. 7. Gupta, Satyendra, P; Davis Ian(1992): "Technical Background Paper." in Disaster Mitigation in Asia and Pacific. Asian Development Bank, Manila. 8. Hamid Abdul (1991), "Reconstruction of Cyclone-Prone Coastal lIr",as." AD~!3Nelols - A Development Journal, Vol-XIX, No.2, April-June, P.4 13. 9. Hussain S.A. (1991) "Coastal Calamity; Protection and Rehabilitation." 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