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ORF Issue Brief 207 BIMSTEC-HADR.Pdf NOVEMBER 2017 ISSUE NO. 207 BIMSTEC @ 20 Disasters Without Borders: Strengthening BIMSTEC Cooperation in Humanitarian Assistance ANASUA BASU RAY CHAUDHURY SOHINI BOSE ABSTRACT This brief seeks to understand the importance of Humanitarian Aid and Disaster Relief (HADR) initiatives in the Bay of Bengal undertaken by the BIMSTEC countries individually, and the dynamics of their collaboration as a subregional forum. It opens with an analysis of the turbulent nature of the Bay of Bengal, because of which disaster management gains paramount importance for the littoral states. The aim is to understand the BIMSTEC countries’ individual HADR mechanisms, their varied approaches to the principles of HADR, and the avenues for cooperation they have explored in the recent past. The brief then examines the potential for greater collaboration amongst the BIMSTEC countries in the context of HADR, and offers recommendations to strengthen these efforts. INTRODUCTION The Bay of Bengal bridges the two regions of Natural calamities strike nations without South Asia and Southeast Asia. It is one of the discrimination based on political borders and world’s most turbulent water bodies; often- thus foster bonds of unity amongst those that are violent cyclones frequently develop in the bay, affected. As a natural corollary, HADR has become causing disasters in the surrounding areas. one of the core areas of cooperation for the Bay of Therefore, Humanitarian Assistance and Bengal littoral states, which together form the Disaster Relief (HADR) mechanisms are highly Bay of Bengal Initiative for Multi-Sectoral important. Technical and Economic Cooperation (BIMSTEC). Observer Research Foundation (ORF) is a public policy think-tank that aims to influence formulation of policies for building a strong and prosperous India. ORF pursues these goals by providing informed and productive inputs, in-depth research, and stimulating discussions. ISBN 978-93-87407-07-7 © 2017 Observer Research Foundation. All rights reserved. No part of this publication may be reproduced, copied, archived, retained or transmitted through print, speech or electronic media without prior written approval from ORF. Disasters Without Borders: Strengthening BIMSTEC Cooperation in Humanitarian Assistance All the member states—India, Bangladesh, Sri extremely prone to natural disasters originating Lanka, Myanmar, Thailand, Nepal and in the Bay. India’s HADR conforms to the Bhutan—are equipped with varying degrees of “typically Asian view” being “apolitical”, military and civilian HADR capabilities. India, “decentralised”, and most often taking a with the largest HADR force amongst the Bay “government-to-government approach.”3 Only littoral states, leads the BIMSTEC in the areas of on one occasion did India extend aid in a post- environment and disaster management. conflict scenario, i.e., in 2008-2009 in Sri Lanka, Against this backdrop, this brief undertakes when regional stability and ensuring harmony an analysis of the HADR efforts of the BIMSTEC in the region gained precedence over its own 4 members individually, and their potential to make Non-Aligned principles. BIMSTEC a functional subregional organisation In 2005 the Disaster Management Act was through mutual cooperation in times of natural adopted by the Indian government, leading to crisis. It emphasises on the role of India as a major the formation of two bodies—the National stakeholder in the context of 10 recent HADR Disaster Response Force (NDRF), equipped to operations conducted in the Bay of Bengal. train people to handle disasters; and the BAY LITTORALS AND HADR MECHANISMS National Disaster Management Authority, headed by the prime minister and the State The 1994 Oslo guidelines on “The Use of Foreign Disaster Management Authorities under the Military and Civil Defence Assets in Disaster respective chief ministers—”to spearhead and Relief” state that “humanitarian assistance implement a holistic and integrated approach to must be provided with the core principles of Disaster Management in India.”5 humanity, impartiality and neutrality and must also fully respect the sovereignty of states.”1 India, through its HADR activities, seeks to Western and Asian countries differ in their establish harmonious ties with its neighbours approaches to providing aid during HADR and conceives the idea of rendering assistance operations. For Western nations, providing or as “extending sympathy” to the disaster- receiving relief in the aftermath of a affected regions or as a “goodwill gesture.”6 For humanitarian crisis does not pose threat to their India’s policymakers, “building capabilities, national sovereignty, as they are economically interoperability and a conceptual framework for strong, to begin with. Asian countries like India, participation in these operations is gaining meanwhile, are more cautious and protective increasing urgency.”7 India is cautious in its about their sovereignty and may be reluctant in HADR approach as it believes that the engaging in such HADR operations where there responsibility to protect should not provide a exists a possibility of violating their own or pretext for humanitarian intervention or 2 another country’s sovereignty. unilateral action.8 During the first BIMSTEC Summit in 2004, India proposed cooperation in South Asian Members the area of information-sharing and remote India sensing for catastrophe management. India also put forward a plan to establish the BIMSTEC India has the longest coastline, and several small Centre on Weather and Climate, which has been islands, in the Bay of Bengal. These islands are operational since August 2004.9 2 ORF ISSUE BRIEF No. 207 l NOVEMBER 2017 Disasters Without Borders: Strengthening BIMSTEC Cooperation in Humanitarian Assistance While both military and civilian authorities make the fastest response in the hour of need.14 engage in India’s HADR initiatives, it is the The Ministry of Food and Disaster Management Army that is more active in disaster is the main government organ under which the management operations.10 India engages in a Armed Forces Division works along with civilian number of joint HADR exercises, such as authorities to address crisis situations.15 “Jalrahat”, “Prakampana” and “Sahayata”. The first was undertaken by the Indian Army, the However, the problem is one of lack of second by the Navy, and the third, started in coordination and resource allocation amongst September 2016, was undertaken by the Air the different ministry-controlled agencies. The 11 disaster management apparatus is not very Force. To nurture a more effective and 16 integrated HADR apparatus, India must not effective at the grassroots level. Moreover, the only engage in technologically advancing its resources and funds are spent more on disaster armed forces but also devise a methodology by response than on disaster preparedness. which its civilian authorities and armed forces Therefore, the National Plan for Disaster can work in harmony. Management was framed to bring a paradigm shift in disaster management from conventional Bangladesh response and relief practice to a more comprehensive risk reduction culture.17 Bangladesh is highly vulnerable to the frequent Bangladesh must empower local communities: natural calamities occurring in the Bay. Unlike with their local knowledge, they can take India, where HADR operations are based on immediate measures to lessen the consequences direct government-to-government interaction, should disaster strike. As a BIMSTEC member, in Bangladesh, NGOs play a significant role in Bangladesh contributes in joint HADR disaster relief activities along with the operations but can be more effective if it government. integrates its internal HADR mechanisms. Headed by the prime minister, the National Sri Lanka Disaster Management Council was established when Bangladesh passed the Disaster Sri Lanka often suffers from the natural Management Act in 2012. The task of the calamities raging over the Bay of Bengal. The Sri council is to review disaster-affected areas and Lankan Ministry of Disaster Management seeks respond effectively with policies and directives.12 to protect human life through effective Under the council are numerous nodal agencies. prevention and management of disasters.18 The The Disaster Management and Relief Division government adopted the Sri Lanka Disaster under the Ministry of Food and Disaster Management, Government of Bangladesh is Management Act No. 13 in 2005 and responsible for coordinating national disaster established the National Council for Disaster management efforts across all agencies in Management (NCDM) as the supreme body for accordance with the Standing Order on disaster management in Sri Lanka, under the Disasters of 1997.13 Ministry of Disaster Management and Human Rights, led by the president. Unlike in other Bangladesh’s armed forces—for its BIMSTEC countries, in Sri Lanka, some leaders command structure, trained manpower and of the opposition are part of the council along capabilities—is always in a good position to with some ministers from the central ORF ISSUE BRIEF No. 207 l NOVEMBER 2017 3 Disasters Without Borders: Strengthening BIMSTEC Cooperation in Humanitarian Assistance government and chief ministers of every the Ministry of Home and Cultural Affairs. provincial council.19 This body formulated Bhutan’s Disaster Management Strategic Policy Framework and It has been argued that although the NCDM approved the National Disaster Management is efficient and works without unnecessary and Contingency
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