GENDER SENSITIVITY IN DISASTER MANAGEMENT
A STUDY TO INFORM ‘BUILDING DISASTER RESILIENT COMMUNITIES II’ Gender Sensitivity in Disaster Management Page 1 of 92
TABLE OF CONTENTS
ACKNOWLEDGEMENTS ...... 3 LIST OF ACRONYMS ...... 4 EXECUTIVE SUMMARY ...... 5 INTRODUCTION ...... 5 METHODOLOGY OVERVIEW...... 5 NATIONAL LEVEL CONCLUSIONS: ADVOCACY AND JOINT WORKING ...... 6 SUB-NATIONAL LEVEL CONCLUSIONS ...... 7 FINAL WORDS ...... 8 SECTION 1: BACKGROUND...... 9 1.1 PURPOSE OF THE STUDY ...... 9 1.2 CONTEXT ...... 10 1.3 STUDY OBJECTIVES...... 10 1.4 METHODOLOGY ...... 11 1.5 STUDY SCOPE ...... 12 SECTION 2: GENDER AUDIT...... 13 2.1 NATIONAL STAKEHOLDERS, LAW AND POLICY ...... 13 2.1.1 DISASTER MANAGEMENT LAW (2015) ...... 14 2.1.2 NATIONAL ACTON PLAN FOR DISASTER RISK REDUCTION (NAP-DRR) 2014-2018 – NCDM ...... 14 2.1.3 CAMBODIA CLIMATE CHANGE STRATEGIC PLAN 2014-2023 (CCCSP) – NCCC ...... 16 2.1.4 GENDER AND CLIMATE CHANGE STRATEGIC PLAN (GCCSP) – MoWA ...... 16 2.2 LINKS WITH LOCAL-LEVEL PLANNING ...... 17 2.3 MINISTERIAL LEVEL SECTORAL PLANNING FOR DISASTER MANAGEMENT ...... 17 2.3 OTHER RELEVANT STAKEHOLDERS ...... 17 2.4 KEY FINDINGS AND RECOMMENDATIONS – NATIONAL AND MINISTERIAL LEVELS ...... 18 2.4.1. ENTRY POINTS FOR NATIONAL LEVEL ADVOCACY AND JOINT WORKING ...... 18 2.4.2 RECOMMENDATIONS ...... 19 2.5 GENDER SENSITIVITY OF DRR PLANNING AND PROCESSES AT THE SUB-NATIONAL LEVEL ...... 20 2.5.1 DRR PLANNING AND TRAINING PROCESSES ...... 20 2.5.2 THE DRR TRAINING PROCESS ...... 21 2.5.3 TRAINING MODULE FOR COMMUNITY-BASED DISASTER RISK REDUCTION TRAINING OF TRAINERS ...... 22 2.5.4 EMERGENCY PREPAREDNESS RESPONSE PLANS (EPRPS) ...... 24 SECTION 3: PARTICIPATORY ACTION RESEARCH (PAR) ...... 27 3.1 PAR PURPOSE, OBJECTIVES AND METHODOLOGY ...... 27 3.1.1 SPECIFIC OBJECTIVES ...... 27 3.1.2 PARTICIPANT TARGET GROUPS ...... 27 3.1.3 SELECTION OF GEOGRAPHIC AREAS ...... 28 3.1.4 FOCUS GROUP DISCUSSIONS (FGDS) ...... 29 3.1.5 KEY INFORMANT INTERVIEWS (KIIS)...... 30 3.2 GENDER ASPECTS OF DISASTER: UNDERSTANDING AND RESPONSES ...... 30 3.2.1 MOST VULNERABLE GROUPS ...... 30 3.1.2 CONTINUING CHALLENGES ...... 34 3.2 KEY RECOMMENDATIONS ...... 34 3.2.1 RECOMMENDATIONS BY CCDM AND VDMG PARTICIPANTS ...... 34 3.2.2 KEY FINDINGS...... 35 3.2.3 RECOMMENDATIONS ...... 35 3.3. LEADERSHIP AND PARTICIPATION IN DM AND DRR ...... 35 3.3.1. GENDER IMBALANCES IN DISASTER MANAGEMENT COMMITTEES ...... 35
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3.3.2 LINKS WITH GENDER-BASED VIOLENCE ...... 41 3.3.3 SAVING FOR CHANGE GROUPS...... 42 3.3.4 DM AND DRR AND THE PARTICIPATION OF DEPARTMENT OF WOMEN’S AFFAIRS ...... 45 3.3.5 KEY RECOMMENDATIONS BY FGD PARTICIPANTS ...... 45 3.3.6 SUMMARY OF KEY FINDINGS AND RECOMMENDATIONS ...... 46 SECTION 4: PAR REVIEW OF CONSORTIUM PARTNER TRAINING, GUIDELINES AND TOOLS .... 48 4.1 CBDRR TRAINING AND PARTICIPATION ...... 48 4.2 CBDRR TOOLS AND GENDER SENSITIVITY ...... 49 4.2.1 GENDER ROLE MAPPING TOOL ...... 49 4.3 QUANTITATIVE DATA COLLECTION AT VILLAGE AND COMMUNE LEVELS ...... 50 4.4 KEY FINDINGS AND RECOMMENDATIONS ...... 50 4.4.1 KEY FINDINGS...... 50 4.4.2 RECOMMENDATIONS ...... 51 SECTION 5: SUMMARY LIST OF FINDINGS AND RECOMMENDATIONS ...... 52 5.1 KEY FINDINGS – NATIONAL LEVEL ...... 52 5.1.1 MoWA ...... 52 5.1.2 LINKS BETWEEN CLIMATE CHANGE ADAPTATION AND DISASTER RISK REDUCTION .. 52 5.1.3 OTHER STAKEHOLDERS ...... 52 5.2 RECOMMENDATIONS – NATIONAL LEVEL...... 53 5.3 KEY FINDINGS–SUB-NATIONAL LEVEL ...... 54 5.3.1 GENDER AWARENESS ...... 54 5.3.2 SERVING THE MOST VULNERABLE AND STRENGTHENING RESILIENCE ...... 54 5.3.3 DISASTER MANAGEMENT COMMITTEES AND WOMEN’S LEADERSHIP/PARTICIPATION ...... 54 5.3.4 JOBS AND MIGRATION ...... 55 5.3.5 GENDER SENSITIVITY IN TRAINING AND TOOLS ...... 55 5.3.6 GENDER DISAGGREGATED DATA COLLECTION ...... 55 5.4 RECOMMENDATIONS - SUB-NATIONAL LEVEL ...... 56 5.4.1 GENDER AWARENESS ...... 56 5.4.4 JOBS AND MIGRATION ...... 57 5.4.5 GENDER SENSITIVITY IN TRAINING AND TOOLS ...... 57 SECTION 6: CONCLUSION ...... 58 7. REFERENCES, DOCUMENTS REVIEWED, FURTHER READING ...... 59 7.1REFERENCES ...... 59 7.2 DOCUMENTS REVIEWED ...... 60 7.2.1 NATIONAL LEVEL ...... 60 7.3 FURTHER READING ...... 60
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APPENDIX 1: ACCOMPANYING NOTES ON CBDRR AND EPRP TOOLS AND TRAINING ...... 61 PART 1: TRAINING MODULE FOR CBDRR ToT ...... 61 SECTION 1: GENERAL CONCEPT OF DISASTER AND DISASTER MANAGEMENT ...... 62 SECTION 2: RISK EVALUATION AND ANALYSIS ...... 62 SECTION 3: CONSEQUENCES OF ECONOMY, SOCIETY, AND POLITICS ...... 63 GENDER ROLE MAPPING TOOL ...... 64 SECTION 4: PLAN FOR DISASTER RISK REDUCTION ...... 66 SECTION 5: TRAINING OF TRAINERS ...... 66 PART 2: KAMPONG THOM NEW UPDATED PCDM FOR CONTINGENCY PLAN, 3RD JANUARY 2015 ...... 67 PART 3: EPRP KAMPONG SPEU PROVINCIAL DRR ACTION PLAN, SEPTEMBER 2013 ...... 68 EMERGENCY PREPAREDNESS RESPONSE PLAN FOR RISK 1 ...... 70 EMERGENCY PREPAREDNESS RESPONSE PLAN FOR RISK 2 ...... 71 APPENDIX 2: LIST OF KEY INFORMANTS (PAR) ...... 74 APPENDIX 3: EXAMPLE GENDER ANALYSIS TOOL – HAZARD, VULNERABILITY, CAPACITY MAPPING...... 76 APPENDIX 4 - COMPOSITION OF NATIONAL DISASTER MANAGEMENT COMMITTEE AND SUB- NATIONAL DM COMMITTEES ...... 78 COMPOSITION OF NCDM ...... 78 STRUCTURE OF MUNICIPAL/PROVINCIAL DISASTER MANAGEMENT COMMITTEE ...... 80 STRUCTURE OF DISTRICT/KHAN DISASTER MANAGEMENT COMMITTEE ...... 81 STRUCTURE OF COMMUNE/SANGKAT DISASTER MANAGEMENT COMMITTEE ...... 82 APPENDIX 5: GENDER DISAGGREGATED DATA ...... 83 KAMPONG THOM ...... 83 KAMPONG SPEU ...... 88
ACKNOWLEDGEMENTS
This study is a result of the commitment, time and energy of many individuals who have kindly contributed despite their existing commitments. In particular, gratitude is extended to members of the Disaster Management Committees in Kampong Speu and Kampong Thom who participated in the field research at the provincial, district, commune and village levels. Thanks are also given to the Saving for Change Groups in Kampong Thom, who shared their ideas and experiences with enthusiasm.
We are grateful for the assistance of partner organisations HOM, LWD, APA and AKA who gave generously of their time to assist our field researchers in arranging the participatory research sessions; and for accompanying them, often in remote areas. In addition, the direction of Loek Sothea and Khim Channy of Oxfam, and Kann Virak of LWD, has been valuable throughout.
Special thanks are given to Disaster Risk Reduction consortium members DanChurchAid/Christian Aid and Oxfam who sponsored and guided this study, especially Gertjan van Bruchem, Kristen Rasmussen and Aline Milev. Appreciation is also extended to Harald Guelker, DRR Consortium Coordinator, and the team for their technical support.
Last but not least, I thank my research partner Soksan Tem for his commitment throughout this project.
Janet Robinson, Gender Consultant Phnom Penh, 8 September 2015
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LIST OF ACRONYMS
ADB Asian Development Bank APA Angkar Ponleur Akpiwat BDRC II Building Disaster Resilient Communities II CBDRR Community-Based Disaster Risk Reduction CCCA Cambodia Climate Change Alliance CCA Climate Change Adaptation CCDM Commune Committee for Disaster Management CDP Commune Development Plan CCCSP Cambodian Climate Change Strategic Plan CCWC Commune Committee for Women and Children CIP Commune Investment Plan DCA/CA DanChurchAid/Christian Aid DCDM District Committee for Disaster Management DIPECHO ECHO Disaster Preparedness project DM Disaster Management DoWA Department of Women’s Affairs DRM Disaster Risk Management DRR Disaster Risk Reduction ECHO European Commission Humanitarian Aid and Civil Protection Office EPRP Emergency Preparedness and Response Plan FGD Focus Group Discussion GADC Gender and Development for Cambodia GBV Gender-Based Violence GCCC Gender and Climate Change Committee GCCSP Gender and Climate Change Strategic Plan GMAG Gender Mainstreaming Action Group HOM Old Age and Miserable People Help Organisation HRF Humanitarian Response Forum HVCA Hazard Vulnerability Capacity Assessment ILO International Labour Organisation JAG Joint Action Group on DRR KII Key Informant Interview LWD Life With Dignity MoWA Ministry of Women’s Affairs NAP-DRR National Action Plan for Disaster Risk Reduction NCCC National Committee for Climate Change NCDD National Committee for Democratic Development NCDD-S National Committee for Democratic Development - Secretariat NCDM National Committee for Disaster Management NSDP National Strategic Development Plan PAR Participatory Action Research PIN People in Need PCDM Provincial Committee for Disaster Management SCCSP Sector Climate Change Strategic Plans SfC Saving for Change SNAP Strategic National Action Plan UNDP United Nations Development Programme VDMG Village Disaster Management Group WCCC Women and Children’s Consultative Committee
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EXECUTIVE SUMMARY
INTRODUCTION
This study lies at the intersection of two major challenges in Cambodia today: disaster, experienced by many of the rural poor as drought, flood and storms; and the continuing issue of gender imbalances in many aspects of Cambodian society.
Research shows us that during time of disaster it is the most vulnerable who suffer the most, and worldwide women are one of the most vulnerable groups.1 Social factors such as age, ethnicity, mobility, access to information and access to resources contribute to differencing impacts on various social groups, especially women.
Effective planning for gender sensitivity in disaster management requires not only sex disaggregation of data but a deeper level of analysis. This study was undertaken to inform the ‘Building Disaster Resilient Communities II’ project. The project is delivered by a consortium consisting of DanChurchAid/Christian Aid (DCA/CA), Oxfam, People in Need (PIN), Save the Children and coordinated by ActionAid. It is implemented by local partners in four provinces in Cambodia: Pursat, Kampong Speu, Kampong Thom and Banteay Meanchey.
We focus on disaster management in Cambodia through a gender lens, through a gender audit of relevant legislation and guidelines and materials. The study used Participation Action Research (PAR) methods to engage with local level actors. Oxfam and DCA/CA took the lead in the gender audit and gender PAR initiative.
The study objectives are to measure project successes, document best practices and provide recommendations to improve gender sensitivity.
METHODOLOGY OVERVIEW
PHASE 1: Gender Audit. An initial gender audit was undertaken to assess the gender sensitivity of legislation and policy at the national level; and Disaster Risk Reduction (DRR) guidelines, models and other materials at the sub-national level.
PHASE 2: Participatory Action Research (PAR). Participatory research techniques were used to examine the current integration of gender and women’s participation into DRR and Disaster Management (DM) at the sub-national level. This involved female and male members of DM committees in Kampong Speu and Kampong Thom, plus implementing partners and other local stakeholders. Women participating in the Saving for Change (SfC) initiative2 were also included.
Areas were chosen for research against two selection criteria: to represent the various types of disaster experienced and to represent the types of geographic locations assisted by the project: remote rural areas, less remote areas, and close to an urban area.
• Focus Group Discussions (FGDs): A total of 18 FGDs were conducted; eight with Commune Committee for Disaster Management (CCDM) members; and 10 with Village Disaster Management Group (VDMG) members. The sample also included two FGDs comprising members of the Saving for Change project in Kampong Thom Province.
1 UNISDR, UNDP and IUCN. Making Disaster Risk Reduction Gender Sensitive: Policy and Practical Guidelines. (2009) 2 Oxfam. Study on Women’s Empowerment and Leadership in Saving for Change Groups in Cambodia. (July 2014)
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Participants from a total of 31 villages attended: 14 from Kampong Speu and 17 from Kampong Thom, representing 198 individuals. Women were encouraged to attend wherever possible, but due to the low number of women on local-level Disaster Management Committees (DMCs), only 24% were female.
• Key Informant Interviews (KIIs): A total of 19 interviews with key informants experienced in DM and DRR planning were conducted at the provincial, district and commune levels. These people were mainly leaders of the DM planning process or members of the relevant disaster committees. Representatives of MoWA and DoWA were also interviewed, as were NGO partner staff.
PHASE 3: Consolidation of findings and recommendations. The PAR phase is linked to the gender audit in Phase 1 in order to make final recommendations. The results of the research will be utilised to shape future programming and tools.
NATIONAL LEVEL CONCLUSIONS: ADVOCACY AND JOINT WORKING
The gender audit has revealed several key entry points for national level advocacy and potential joint working in DM and DRR.
The Ministry of Women’s Affairs is identified as a priority:
• To advocate for inter-ministerial mainstreaming of gender and DRR into sector strategic plans, and into the sector Emergency Response and Preparedness Plans (EPRPs) currently under development; • For linking with the recently formed Gender and Climate Change Committee within MoWA, which presides over implementation of the Gender and Climate Change Strategic Plan; and • To lobby for further engagement of DoWAs to assist in building gender-capacity at the sub-national level, including DRR training and encouraging more women to take leadership roles in DMCs.
Opportunities were also were identified for strengthening links with the National Committee for Climate Change (NCCC); plus the Cambodia Climate Change Alliance (CCCA);3 and various other processes to mainstream climate change adaptation, disaster response, and the gender and DRR aspects thereof.
Other key stakeholders, such as the Asian Development Bank (ADB) and UNDP also support large climate change initiatives, and the results of this study should be shared with them. Links should be strengthened in order to advocate for gender and DRR mainstreaming within wider climate change projects and programmes.
The study found much room for improving gender mainstreaming into disaster related policies. The Disaster Management Law4 identifies ‘women and children’ as among the most vulnerable people; and refers to the ‘acquired’ and ‘participatory’ rights of individuals to receive assistance in event of disaster. This gives the opportunity to advocate for gender aspects to be included in further sub-decrees, Prakas and future related policies.
The Joint Action Group on DRR (JAG) is a key forum linking international NGOs lobbying for policy change. There are opportunities for closer working with the National Committee for Democratic Development (NCDD) to improve gender mainstreaming in its activities within the timeframe of the new National Action Plan for Disaster Risk Reduction (NAP-DRR 2014-18); and to advocate for stronger gender mainstreaming in the next NAP-DRR (2019-2023) planning cycle.
3 The CCCA Programme Phase II 2014-19 is a multi-donor funded project, aiming to strengthen national systems and capacities supporting the implementation and coordination of Cambodia’s response to climate change. 4 October 2014 version. The final DM Law was publicly launched on 17 August 2015.
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SUB-NATIONAL LEVEL CONCLUSIONS
The study found that gender sensitivity in DM and DRR is improving within the research areas at the sub-national level. Stakeholders reported that much of this was influenced by project work, especially through trainings and the introduction of new tools with a gender aspect.
It is a slow process, however, which requires sustained effort if more significant change is to be achieved. Negative traditional beliefs surrounding females and a strong patriarchal society persist in Cambodia. A deeper understanding of gender concepts is still required amongst DMC members and the word ‘gender’ is still thought to refer to women and children, rather than including deeper social relations between males and females. For instance, endemic gender-based violence in Cambodia is often seen as a traditional norm, rather than society needing to address the underlying causes and engage both men and women in the quest for solutions.
Other issues in Cambodia, including high poverty rates, a lack of education (especially in females) and a lack of healthcare, were identified as continuing challenges impacting on vulnerable groups in disaster-prone areas. These undermine the resilience of poor communities, but Ministerial sector plans and forthcoming sector EPRPs are potential entry points to advocate for gender mainstreaming.
HCVA planning processes have assisted communities in identifying the most vulnerable people prior to disaster, resulting in the prioritisation of, for instance, pregnant women, female-headed households, the elderly and the sick. The resilience of vulnerable women and their families was reported as strengthened through Saving for Change programme. These have provided valuable social networks, which people are able to draw upon at all stages of DM/DRR.
This capacity-building of women has not yet, however, extended to those playing leadership roles in DM/DRR or wider civil society. PCDMs, DCDMs and CCDMs largely follow existing governmental structures at the sub-national level. As these structures are underpinned by patriarchy and a strong patronage system, most leadership roles are held by men. This represents a strong systemic and structural barrier to women’s leadership in DM.
However, the study identified some positive examples of women leaders encouraging other women to join DM committees. It is recommended that this is formalised, with the introduction of a database to centrally record: a) the names and genders of committee members; b) who is due to leave; and, c) with the help of DoWA and female DMC members, to identify and train women candidates for leadership roles.
The need to engage youth, especially young women, was identified. Incentives are needed to attract their interest in, for instance, volunteering in DM activities. However, barriers exist such as poor remuneration, resulting in young women reporting a preference to work for nearby garment factories or construction companies that offer better pay. The study recommends linking with women’s NGOs that are currently lobbying the government for increased female participation and leadership in local government; and to encourage them to include gender aspects of DM and DRR within their approaches. The issue of low pay is also a priority for advocating with government at the national level.
Migration patterns for both women and men vary according to local factors, resulting in changing demographics. This provides a challenge for project capacity building in DM and DRR as individuals move to and from locations and communities. Further training, and empowering DMCs to pass on their learning to returning community members, would help to bridge that knowledge gap. However, it could be more effective to identify and build the capacity of target groups that are less likely to migrate.
A gender audit of current training, materials and tools utilised in DM planning revealed that, while some focus on gender has been mainstreamed into CBDRR and EPRP guidelines tools, there is still room for improvement. The Community Based Disaster Risk Reduction (CBDRR) ‘Gender Role Mapping’ tool has brought a new focus on the differing experiences of women and men in the pre-, during and post-disaster periods. But more can be done to examine the barriers and constraints, and access to and ownership of
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resources. Gender should be mainstreamed throughout the guidelines and tools rather than ‘doing gender’ just in one or two specific modules/tools.
Low levels of literacy, and a lack of education and confidence (especially in women) requires a simplified participatory approach and more trainings were requested by participants.
Data collection processes were examined with a gender lens. Key quantitative data is collected monthly during general data collection for council planning purposes (in addition to DRR). This is gender disaggregated to a degree, but would benefit from further disaggregation: for example disaggregation of children into boys and girls. Qualitative data collection, which is valuable from a gender perspective, is undertaken once per year but requires specific skills and focus.
Further capacity building is required at all levels if a deeper level of gender sensitivity is to be achieved. The lack of women’s leadership on DMCs and a lack of women’s involvement in data collection may lead to a lack of gender focus and a lack of detailed community-level information, which women are well-placed to provide. The inclusion of women in data collection activities would increase women’s engagement and assist in building their confidence.
FINAL WORDS
‘Building Disaster Resilient Communities II’ has made a good start towards achieving a key indicator: ‘Women’s involvement in DRR planning and Disaster Recovery has increased by end of project (Result 3, Indicator 5).’
It is particularly valuable to improve the resilience of the poorest and most vulnerable, who are often identified as women and girls. The PAR within this study confirms this. Overall progress is slow, however. While gender awareness is improving, and the project is helping to identify vulnerable people for assistance (such as ID-poor women and their families), there is still room for improvement to further enhance gender aspects into project activities, trainings and tools.
As a result of structural and systemic challenges arising from Cambodia’s patriarchal bias, gender imbalances in favour of men persist. Disaster Management therefore operates within government structures where women’s opportunity for participation and leadership is limited and there are no quotas for women’s leadership of – or even inclusion in – DM committees.
As those in poor rural areas continue to experience the crippling challenges of disaster, worsened by the negative influence of climate change, the need to continue mainstreaming gender into DRR is more important than ever.
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SECTION 1: BACKGROUND
1.1 PURPOSE OF THE STUDY
This study was undertaken to assess the outcomes of the ‘Building Disaster Resilient Communities II’ project, funded by the European Commission Humanitarian Aid and Civil Protection Office (ECHO) and jointly co-funded by consortium members over the period April 2014-December 2015. Findings from this study will inform the work of all partners involved.
The current project continues from a previous phase, which has expanded geographically and added two more consortium members. The consortium now consists of DCA/CA, Oxfam, PIN, Save the Children and coordinated by Action Aid. It is implemented by local partners in four provinces in Cambodia: Pursat, Kampong Speu, Kampong Thom and Banteay Meanchey. At the national level, Save the Children is working closely with the Ministry of Education to address DRR in education.
Oxfam and DCA/CA took the lead in the gender audit and gender PAR initiative. This study focuses on disaster management in Cambodia through a gender lens using Participation Action Research (PAR) methods to engage with local level actors. It also includes a gender audit of key DRR guidelines, relevant policies and other key materials. To inform future planning and implementation, it brings together knowledge and expertise, records best practices, and reviews progress to date.
The study also examines the degree to which gender sensitivity is mainstreamed into current DRR guidelines, models and materials at both the government and the NGO levels. It considers the integration of the needs and concerns of women and men, in addition to any specific focus on redressing gender inequities.5
5 This approach is in line with the twin-track gender mainstreaming approach adapted from Moser (2005) and utilised by MoWA in their gender audit approach.
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1.2 CONTEXT
This study lies at the intersection of two major challenges in Cambodia today: disaster, experienced by many of the rural ‘Gender mainstreaming is a concept poor as drought, flood and storms; and the continuing issue of that most find easy to agree with, gender imbalances in many aspects of Cambodian society. but fewer consistently do well. The same can be said of disaster risk Women worldwide are one of the most vulnerable groups and reduction. When these two issues research shows us that during time of disaster it is the most 6 are brought together in efforts to vulnerable who suffer the most. mainstream gender into disaster risk reduction, governments and Social factors such as age, ethnicity, mobility, access to practitioners have found a gap in information and access to resources contribute to different policy and practical guidance. They impacts on various social groups. But while women, men, girls know why they should do it, but not and boys may experience disaster differently, it is women and always how. This is not because girls who often feel the impact most severely. For instance, they task is inherently difficult; rather, there is not enough women and girls may be less safe in emergency shelters, less precedent guidance and practical mobile to collect water and forage for firewood, and additionally understanding’.1 burdened by family responsibilities, giving them less opportunity to access education or earn income at this critical time.7
Effective planning for gender sensitivity in disaster management requires not only sex disaggregation of data, but a deeper level of gender analysis to explore, for instance, how women and men experience disaster differently. Why are social relations between women and men important? What roles and responsibilities do they hold? Who has access to and ownership of resources for coping? What are the gendered barriers and constraints?
1.3 STUDY OBJECTIVES
• Measure the project’s success in delivering the following key result of the project ‘Building Disaster in Resilient Communities in Cambodia II’: ‘Women’s involvement in DRR planning and Disaster Recovery has increased by end of project (Result 3, Indicator 5)’
• Document successful practices on gender integration and women’s participation in sub-national DRR and DM decision-making processes (ie. in VDMGs, CCDMs, DCDMs and PCDMs).
• Provide recommendations to improve the gender sensitivity of documents and tools to improve gender equity in women and men’s participation in DM and DRR.
6 UNISDR, UNDP and IUCN. Making Disaster Risk Reduction Gender Sensitive: Policy and Practical Guidelines. (2009) 7 Oxfam. Gender Equality and Women’s Rights in Emergencies: Oxfam Emergency Managers Network, Gender in Emergencies sub-group. (September 2011)
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The following key questions guided the gender audit:
• Have gender considerations been mainstreamed into key DM and DRR documents and the processes surrounding them? • If ‘yes’, how meaningful are they? • If ‘no’, what are the possible entry points? • Is gender mentioned or understood as ‘women only’ – or are both genders and the social relations between them included?
The following key questions informed the PAR:
• How does disaster affect women, men, girls and boys differently? Who is most at risk? • Do women and men participate equally and lead equally in the DM/DRR process? What are the barriers and constraints to achieving this? • Has the Saving for Change scheme improved women’s participation and leadership in DM/DRR? • Do the current CBDRR tools and processes reflect the challenges and needs in disaster for women, men, girls and boys? How can we improve our response planning? How can tools and training be more effective for both genders?
1.4 METHODOLOGY
PHASE 1: Gender Audit. An initial audit to assess the gender sensitivity of current DRR guidelines, models and other materials was conducted at the national and sub-national levels and with NGOs and CBOs. The methodology was informed by participatory methods previously adopted by the Ministry of Women’s Affairs/NCDD-S8 and ILO.9
The documents reviewed include national level government documents such as the National Strategic Development Plan (NSDP 2014-2018); Neary Rattanak IV (2014-2018) and relevant sector plans such as the Cambodia Climate Change Strategic Plan (CCCSP 2014-2023).
At the sub-national level, provincial Emergency Preparedness and Response Plans (EPRPs) were examined along with tools and processes for DRR planning at local level. This included Community Based Disaster Risk Reduction (CBDRR) models and related materials as developed under previous DIPECHO and other projects. The results of any earlier gender analysis of the documents are also taken into account.
PHASE 2: Participatory Action Research (PAR). Participatory research techniques were utilised to examine the current integration of gender and women’s participation in sub-national level DRR and DM. This involved male and female members of current DM committees, implementing partners and other local stakeholders. The results of an earlier study by Oxfam on the Women’s Leadership and Savings for Change initiative10 is also taken into account. The findings of the gender audit also informed the PAR methodology.
PHASE 3: Consolidation of findings and recommendations. The PAR phase is linked to the gender audit in Phase 1 in order to make recommendations on how to further promote gender integration, women’s participation and women’s inclusion in sub-national DRR and DM decision-making. The results of the research will be utilised to shape future programming and tools.
8 Urashima, C and Tong Soprach. Gender Audits for the IP3 Final Report. NCDD Secretariat and Ministry of Interior, Royal Government of Cambodia. (2014) 9 International Labour Organisation. A Manual for Gender Audit Facilitators: The ILO Participatory Gender Audit Methodology (2nd edition). (2012) 10 Oxfam. Study on Women’s Empowerment and Leadership in Saving for Change Groups in Cambodia. (July 2014)
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1.5 STUDY SCOPE
This study includes a brief gender audit of national and sub-national level documentation related to the successful delivery of the project. It is not intended as a comprehensive gender audit on DM and DRR in Cambodia, as it examines only the documents, tools and materials most relevant to the project.
Language Many of the tools and guidelines reviewed within this study were produced for local level guidance and exist in the Khmer language only. Sections relevant to gender issues were reviewed.
Timescale The PAR fieldwork to inform this study was undertaken during the period 15 June to 4 July 2015.
Geographic Area The PAR was conducted in two of the four focal provinces under the current project: Kampong Thom and Kampong Speu, the target areas of Oxfam and DCA/CA respectively. • In Kampong Thom, under the DIPECHO project 145 villages are covered in 27 communes from five districts. • In Kampong Speu, 109 villages are covered from eight districts.
For the purposes of this study, only a limited number of districts/khans, communes/sangkats and villages were selected for the PAR. Only tools relating to these specific areas (e.g. provincial EPRPs) have been included in the study. However, certain results may be extrapolated to other areas in Cambodia.
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SECTION 2: GENDER AUDIT
2.1 NATIONAL STAKEHOLDERS, LAW AND POLICY
At the highest level, national policies relating to gender, climate change, and DRR include the Rectangular Strategy for Growth, Employment, Equity and Efficiency, Phase III (2013), The Cambodia Millennium Development Goals, National Strategic Development Plan (NSDP 2014-2018) and Neary Rattanak IV (2014-18).
Key national stakeholders include:
NATIONAL COMMITTEE FOR DISASTER MANAGEMENT (NCDM) The NCDM was formed in 1995 to formulate specific plans to address disaster management. It is headed by the Prime Minister and includes 22 members from government Ministries, the Cambodian Red Cross, the Royal Cambodian Armed Forces and the Civil Aviation Authority.
NATIONAL COMMITTEE FOR CLIMATE CHANGE (NCCC) The (NCCC) is a mandated Government coordinating and policy support entity for all aspects of climate change.
MINISTRY OF WOMEN’S AFFAIRS (MoWA) The Ministry of Women’s Affairs has an inter-ministerial role regarding gender mainstreaming across the Royal Government of Cambodia. It coordinates gender mainstreaming of climate change through the Gender and Climate Change Committee, which links the line ministries, Gender Mainstreaming Action Groups and other relevant stakeholders.
The programme directions of MoWA relating to climate change include: • Implementation of the Gender and Climate Change Strategic Plan; • Increasing levels of awareness and women’s leadership in gender and climate change; • Strengthening capacity at its localised offices to address climate change adaptation, mitigation and disaster management delivery of interventions; for instance in food security, nutrition, water and waste management; and • Research, development and sharing of best practice on aspects of gender and climate change.
MoWA is therefore a key stakeholder in linking gender and climate change at the national and sub- national levels. It should also be noted that an initiative is currently being developed to encourage ‘gender responsive governance, leadership and decision making.’11
The link between the District Offices of Women’s Affairs (DoWAs) and sub-national level planning is explored in subsequent sections of this study.
Sections 2.1.3 and 2.1.4 draw on the recent MOWA Policy Brief 10, which provides an assessment of gender and climate change policy and planning in Cambodia.12
11 Draft Concept Note for MoWA Thematic Area and PBA. Gender Responsive Governance, Leadership and Decision Making. (25 March 2015). 12 Ministry of Women’s Affairs. Gender and Climate Change: Green Growth and Disaster Risk Management. Cambodia Gender Assessment - Policy Brief 10. Cambodia. (2014)
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2.1.1 DISASTER MANAGEMENT LAW (2015)
The Disaster Management Law has been some time in its conception and was approved in July 2015, and launched in August 2015.13 There is little legal stipulation in terms of gender. One article does, however, mention the most vulnerable including some gender dimensions:
CHAPTER 4: Governance Article 18 - Response of Competent Authorities at the Incident Area This includes the legal requirement: ‘In the case of any disaster event or incident occurred, the on-site competent authorities of the affected areas shall: Pay high attention to the needs of women, children, elderly, handicap, disable person.’
Chapter 6 enshrines the government’s legal obligation towards the individual and most vulnerable. While gender is not specifically mentioned, these articles are of interest to those working towards justice for the most vulnerable groups, including women and children in DM and DRR:
CHAPTER 6: Rights and Obligations Article 35 – Acquired Right; Article 36 - Participatory Right Article 35 refers to the Acquired Right for individuals to have: ‘The right to acquire the protection of life...; right to access information... methodologies and technologies...; right to obtain the resource for implementation the prevention measures, disaster risk reduction and the post- disaster livelihood restoration.’
Article 36 refers to the Participatory Right for individuals to: ‘participate in the disaster management activities and promote self-prevention, disaster risk reduction and ensure the sustainable livelihoods with safety and resilience to disaster.’
These new legal rights will be of interest in how they cascade down into future policy and implementation. In particular, advocacy opportunities may arise for gender aspects to be mainstreamed into future Sub- decrees and Prakas, likely to be developed under the Disaster Management Law.
2.1.2 NATIONAL ACTON PLAN FOR DISASTER RISK REDUCTION (NAP-DRR) 2014-2018 – NCDM
Produced by NCDM in line with the National Strategic Development Plan (NSDP) planning cycle, the NAP-DRR responds to the importance of DRR, climate change and sustainable development as outlined in the previous NSDP 2008-2013. It also builds on the previous Strategic National Action Plan (SNAP 2008-2013), and provides a roadmap for dealing with disaster in the long term. It aims to build capacity for prevention, preparedness and response, with the objective:
‘To pursue proactive and integrated ways to reduce risk to hazards, through sustainable, innovative and realistic strategies with stronger partnership of all stakeholders.’
The plan is cross-sectoral and designed to contribute to key sectors such as education, women’s affairs and agriculture. The plan notes that the sector climate change strategies are an important entry point to ‘build synergy between climate change adaptation and DRR.’
The NAP-DRR recognises progress in the form of a shift from emergency response to DRR during the last planning cycle. However, it outlines a general lack of progress in terms of resources allocated by government, lack of capacity, legal and budgetary commitment.
13 The version from October 2014 (unofficial translation in English) was analysed for the purpose of this study, as an updated version was not yet available in English at time of reporting.
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Regarding the impact of changing climate patterns, the women are mentioned along with other vulnerable groups. ‘Out migration is likely to increase with social and economic consequences on women, children, people with disabilities and the elderly in the poorest households’ (section 2.1.1.).14 However, there is no analysis of what the consequences of this may be.
There is little or no disaggregation of ‘children’ by boys and girls throughout this plan, as with many other plans examined in this study. This does not allow for understanding of gender- specific vulnerabilities. For instance the different experience of boys and girls who migrate with their families following disasters; girls being more vulnerable to sexual abuse in the process or being expected to take unsafe job offers.
Poverty is given as a root cause of vulnerability for those living within disaster prone areas of Cambodia; the incidence of disaster making those people more vulnerable and poorer still (section 2.1.4). The NAP- DRR acknowledges that ‘women and girls are affected by disasters (and climate change) more than men’, and recognises that more could be done to address inequalities: ‘While the RGC puts significant emphasis on gender, it received limited attention in the disaster related policies and actions’.15
The eight expected outcomes of the NAP-DRR include the following:
Outcome 2: Vulnerable men, women and children in rural, urban, coast and mountain regions are well-informed with capacity to understand current and future risks, and are capable of organising themselves to prepare for, respond to and be resilient to disaster.
There seems, however, to be little continuation of this gender focus in the Programme Framework, nor within the Strategic Component narratives or the accompanying Planning Matrix. There is opportunity, for instance, in ‘Strategic Component 4: Reduction of the underlying causes and risks’ (which mentions ‘mainstreaming of DRR in NSDP sectoral policies, Ministerial plans with resources for implementation’)16 to also mention mainstreaming of gender.
There are also lost opportunities in ‘Strategic Component 5: Enhancing emergency response and recovery capabilities at all levels’. For instance, there is specific mention of involving youth volunteers but youth are not disaggregated by boys and girls to ensure equal opportunities for both. There is therefore no consideration within the plan of their differing needs.
There is also no specific programme or activity within the Planning Matrix to focus on increasing participation of women and girls in DM and DRR at the sub-national level.
There is a little more emphasis on sex disaggregation in terms of the Monitoring, Review and Reporting process within the NAP-DRR monitoring and evaluation list of indicators , specifically:
Strategic Component 3: Primary school attendance of girls and boys during the flood time Strategic Component 5: Availability of gender disaggregated assessment information
Many of the broad activities throughout the plan have potential to address gender differentials and inequities as the NAP-DRR is translated into action, including the following:
1.3.3. Prepare annual plans and budget for DM - gender specific budgeting could be mentioned. 2.6.1 Conducting a study on risk and vulnerabilities to major cities and towns of Cambodia – a specific focus on women and girls could be included, as they are at specific risk of sexual violence and there are safety issues for women and girls in urban area. 2.6.3 Conducting risk assessment of current and future labour intensive industries – this could include a focus on women and girls, working in garment factories.
14 See Table 1 Implications of climate change on DRR (page 9) 15 MoWA (2008) 16 See C4P13
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2.7.3 Developing and implementing a plan to enhance early warning dissemination to the vulnerable communities and sub-national level disaster management institutions – this could include the need to ensure that men, women, boys and girls have equal access to early warning dissemination and are represented in DM institutions.
The new NAP-DRR contains the National Disaster Management Structure and it would be useful from a gender point of view to undertake an analysis of how many females/males hold positions in the NCDM Secretariat, DM Working Group of Ministries, and the various sub-national committees for Disaster Management (PCDMs, DCDMs, CCDMs, etc.) Within the scope of this study, the PAR phase will examine the gender composition of the sub-national DMCs in the target areas. However, this represents only a small sample of DMCs.
2.1.3 CAMBODIA CLIMATE CHANGE STRATEGIC PLAN 2014-2023 (CCCSP) – NCCC
There is recognition in this high-level plan for the need to address the increased vulnerability of women and children in climate change adaption:
‘Climate change is expected to compound and amplify development challenges, stresses and problems in Cambodia, further affecting poor and marginalised people, particularly women and children. Women have disproportionate access to financial resources, land, natural resources, education, health, rights and other development services that are essential for effective adaption to climate change.’
Gender is recognised as a cross-cutting issue which needs to be mainstreamed into the Sector Climate Change Strategic Plans (SCCSPs), policies and laws. Gender is mentioned specifically in Objective 2:
Reduce sectoral, regional, gender vulnerability and health risks to climate change impacts.
2.1.4 GENDER AND CLIMATE CHANGE STRATEGIC PLAN (GCCSP) – MOWA
MoWA launched the GCCSP in February 2013, facilitated by the Gender and Climate Change CORE ELEMENTS OF GCCSP Committee (GCCC) that advocates for the gender aspects of climate change, including disaster • Promote women in climate change adaptation management, to be fully integrated into policy and mitigation decision-making, and natural documents such as Neary Rattanak IV; ministry disaster management at all levels and domains. • sectoral plans; and the CCCSP. Increase awareness on gender and climate change, including natural disasters, within MoWA and its offices and stakeholders. Gender Mainstreaming Action Groups (GMAGs) • Increase the capacity of MoWA and its and Technical Working Groups (TWGs) are key decentralized offices and stakeholders on players in this process, as are community-level gender-integrated vulnerability and capacity Women’s and Children’s Consultative Committees assessment and planning methods for climate (WCCCs) and Commune/ Sangkat Committees for change adaptation and disaster management. Women and Children (CCWCs). • Deliver targeted interventions to empower highly vulnerable women to strengthen their However, there is no national representative climate change adaptation and mitigation data on gender and climate change. MoWA has capacities (e.g. food security). • Conduct research and development to increase identified this as an issue. There is also a need the availability of data and information on to link with sub-national actors to fill this gender and climate change. information gap, and this can be achieved • Elicit best practices and lessons on gender and through linking with Provincial EPRPS, fed climate change for scaling up, learning and upwards to national level. sharing.
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The GCCSP Vision is: ‘Women and men in Cambodia are equally empowered and resilient to climate change impacts, including natural disaster risks and impacts; they join in climate change adaption and mitigation equally; and participate in policy-making processes to transform economies into greener ones.’
2.2 LINKS WITH LOCAL-LEVEL PLANNING
Following the launch of the Strategic Framework for Decentralisation and Deconcentration (D&D) in 2005, mechanisms for DRR planning and other localised planning processes have been placed in the hands of communities. This has, in theory, provided the opportunity for both men and women to voice their needs and concerns at the local level and for these to be fed upwards through the village, commune/Khan and district/Sangkat levels to the provincial level.
Women, however, do not participate equally with men in these processes, nor do they hold the same number of leadership roles. Subsequently their specific needs and concerns are often under-represented throughout the planning process.
This study examines the barriers and constraints experienced by women in achieving equity in representation throughout the DRR planning cycle in the PAR phase (see Section 3). In addition, the Technical Manual on Mainstreaming of Climate Change Adaption and Disaster Risk Management into Commune/Sangkat Planning (2014) identified a range of barriers to integrating national policy at the sub- national level, especially within CDPs and CIPs.17 These are further explored with a gender lens in the PAR phase of this study.
2.3 MINISTERIAL LEVEL SECTORAL PLANNING FOR DISASTER MANAGEMENT
Sectoral Emergency Preparedness Response Plans (EPRPs) are currently under development. At the time of writing, only two ministerial level EPRPs were identified as completed: Emergency Preparedness and Response Plan for the Education Sector 2014 and the Emergency Preparedness and Response Plan for the Ministry of Health. The latter was not available at the time of writing.
The EPRP for the Education Sector does not include gender aspects within its context analysis. For instance, there is no mention of dropout rates in the event of disaster: families often have to choose which children can continue to go to school, and boys are often given priority. There is also scope to include risks to children following humanitarian disasters, such as the risk of trafficking.
It is within the brief of MoWA to ensure gender mainstreaming within sectoral plans. Recommendations therefore include advocating with MoWA to ensure mainstreaming of both DM and DRR into these plans.
18 2.3 OTHER RELEVANT STAKEHOLDERS
Sectoral action plans are included within the Humanitarian Response Forum (HRF) Contingency Plan Cambodia (April 2015). However, there is very little gender mainstreaming within these plans, with the notable exception of the ‘protection’ sector, which refers to child safety in general and also specifically within emergency shelter areas, safe sites etc.
Vulnerable groups are identified as: women and children in residential care; prisoners; the elderly; persons with disabilities. It also refers to engaging local capacities to address violence and exploitation through women’s groups and gender-based violence is mentioned as a related issue.
17 Richter, I. Technical Manual on Mainstreaming of Climate Change Adaptation and Disaster Risk Management into Commune/Sangkat Planning. (October 2014) 18
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The Joint Action Group on DRR is currently compiling a series of Cambodia DRR Position Papers19 to include:
1. DRR Policy and Budget 2. Disaster Management Legislation 3. Water Sanitation and Hygiene 4. Environmental Planning and Impact Assessment 5. Natural Resource Management
A position paper on Gender aspects of DRR is also planned for the near future and findings from this study will help inform the paper.
2.4 KEY FINDINGS AND RECOMMENDATIONS – NATIONAL AND MINISTERIAL LEVELS
2.4.1. ENTRY POINTS FOR NATIONAL LEVEL ADVOCACY AND JOINT WORKING
THE MINISTRY OF WOMEN’S AFFAIRS
• MoWA is a key entry point for influencing gender-related processes in DM and DRR. It has an inter-ministerial mandate of gender mainstreaming, including within sectoral plans, such as EPRPs for education and health. These are key to ensuring gender balance in planning and emergency response. Many of these ministerial level plans are currently under development, and should be linked to research and evidence of best practice at the local level. • MoWA is also working closely with the NCCC and CCCA and has influenced the development of the CCCSP. Regarding gender specifically, MoWA has established a Gender and Climate Change Strategic Plan and Gender and Climate Change Committee. Many of the core elements of the MoWA GCCSP such as promoting women in decision-making and targeting interventions towards vulnerable women are also highlighted in the PAR findings of this study. • Linking sub-national Disaster Management Committees and local DoWAs is valuable at all levels, and meets with the GCCSP objective: ‘Increase the level of capacity of MoWA and its decentralized offices and stakeholders on gender-integrated vulnerability and capacity assessment, planning methods for climate change.’
LINKS BETWEEN CLIMATE CHANGE ADAPTATION AND DISASTER RISK REDUCTION
• Climate change is a priority issue in Cambodia, led by the NCCC, CCCA and various other stakeholders with strong links with the UN and MoWA. However, the link between climate change and natural disaster is not always made clear in their plans and strategies; and there is often little synergy between their respective national and sub-national structures. • At the time of writing there are several new climate change initiatives, which may have potential to link to DM and DRR work of Cambodia. Gender aspects of these projects should also be explored.
19 Position Papers are undergoing finalisation during 2015.
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OTHER STAKEHOLDERS
• The Joint Action Group for DRR (JAG) is a key forum for international NGOs to lobby for gender integration in DRR and DM policy and practice, including through position papers. • The UN is also an important stakeholder. For instance, UNDP is involved in several climate change initiatives (e.g. CCCA), and the UN World Food Programme is the Chair of the HRF. • The Asian Development Bank has also recently granted funds through the Strategic Climate Fund of the Climate Investment Funds to enhance community resilience to climate change impacts.
2.4.2 RECOMMENDATIONS
• Strengthen links with NCCC, CCCA and climate change related vertical processes at all levels to identify opportunities for joint working, future funding, and implementation of gender mainstreaming in DRR and climate change. • Strengthen links with UNDP and ADB and explore opportunities for joint working, especially regarding integrating DRR and gender into climate change adaptation work. • Lobby line ministries for further mainstreaming of DRR and gender aspects into future policy and operational plans. • Work with MoWA to integrate gender into DM and DRR strategies and implementation, and to further involve DoWAs in planning, DM and DRR. Advocate for increased capacity building and budget allocation to support this. • Work with the JAG as a key forum for joint advocacy and lobbying for gender integration into DRR policy; and also with the UN. The UN is recognised as an important driver, particularly with respect to the HRF, and much of its work supports climate change projects in Cambodia. There are opportunities for international NGOs to lobby on gender integration into future policy. • Advocate for further gender mainstreaming within the implementation of the new NAP-DRR 2014- 2018 and continue this advocacy to ensure that gender is efficiently mainstreamed into the next NAP-DRR planning cycle (2019-2023). • Explore possibilities to fill the gap identified by MoWA for sex disaggregated data on disasters to flow from the sub-national to the national level upwards e.g. through PCDMs to MoWA.
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2.5 GENDER SENSITIVITY OF DRR PLANNING AND PROCESSES AT THE SUB- NATIONAL LEVEL
2.5.1 DRR PLANNING AND TRAINING PROCESSES
The DRR planning process is initiated by PCDMs and DCDMs convening a meeting with VDMGs and CCDMs. This provides a forum for villagers to discuss their concerns and priorities for disaster management and risk reduction in their areas, producing a Village Disaster Risk Reduction Plan.
This is first submitted to the CCDM and then submitted for prioritisation and input to the DCDM, which then passes it onto the PCDM. DCDM plans are then prioritised and integrated at the provincial level. The result of this is the conception of a Provincial Emergency Preparedness and Response Plan (EPRP).
Comprehensive information on the gender composition of these committees is not readily available centrally for monitoring purposes. This is further explored in the PAR (see Section 3).
Current studies reveal that much remains to be done to integrate disaster risk management, climate change and gender into sub-national planning processes (Richter 2014). In particular, the challenges surrounding the mainstreaming of CCA and DRR at the commune/Sangkat level are highlighted.
A report was undertaken by ActionAid Cambodia in January 2014, which examined gender-sensitive DRR planning with a specific view on the impacts of floods for women.20 This studied the experience of Banteay Meanchey and Svay Rieng communities in dealing with floods. The following summary outlines how the key concerns and workload of women changed throughout the pre-flood, during flood and post flood periods:
It was reported in the ActionAid study that NGOs have a much better understanding than local government actors at the village and commune levels ‘because of the limited level of gender sensitivity of the project’s outputs implemented by the commune office, in which women gained less benefit’.21
20 Sam Chanty and Hay Samchan for ActionAid Cambodia. Flood Impacts on Women: Exploring the Possibility of Gender Sensitive DRR Planning. (January 2014) 21 Ibid. See pg. 26-27
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The report published by ActionAid Cambodia in early 201422 maps the DRR Planning Process as per the table (left).
It should also be noted that the DRR planning cycle is in line with five-year Commune Development Plans (CDPs) and one-year Commune Investment Plans (CIPs). As DRR planning and CIP processes coincide, it has been noted that DRR planning may not always be given due priority.23 Ensuring that gender aspects are included may also not be viewed as a priority due to busy planning schedules.
2.5.2 THE DRR TRAINING PROCESS
PROVINCIAL/DISTRICT LEVEL Consortium partners and implementing partners have been providing refresher trainings to PCDMs and DCDMs, consisting of five-day ‘Training of Trainers’ on Community Based DRR (CBDRR) and Hazard Vulnerability and Capacity Assessments (HCVA). Training materials were developed under the previous DIPECHO-funded programme, (entitled ‘Building Disaster Resilient Communities I’ delivered by three of the current consortium members (Action Aid, DCA/CA and PIN). NCDM approved the materials.
COMMUNE/VILLAGE LEVEL Following the above, PCDMs and DCDMs provide training for the CCDMs and VDMGs, supported by consortium members and implementing partners. This comprises of a three-day training on CBDRR and HVCA. An additional three-day training on democratic leadership and integration of DRR measures into Planning Processes for VDMGs is also delivered.
Implementing partners working with CCDMs and VDMGs using other tools: for example, the Oxfam Minimum Standards for Gender in Emergencies as detailed in the Gender in Emergencies Handbook.24
A gender audit of participants attending trainings in the particular areas of Kampong Thom and Kampong Speu revealed that only 23% of attendees were female. This reflects the low percentage of women on sub-national disaster management committees; the reduced availability of women due to their reproductive/productive roles; and other factors explored in the PAR (see Section 3). This signals the need for sustained targeted efforts in engaging women in project activities. (Left) Number of CBDRR training participants in Kampong Thom and Kampong Speu areas of research, disaggregated by gender (12-month period 2014-2015).
22 ActionAid Cambodia. Flood Impacts on Women: Exploring the possibility of Gender Sensitive DRR Planning. (2014) 23 Ibid. This study cites one village/commune where statistics and priorities were collated and discussed amongst peers without any input from villagers, and without the use of any information gathering tools. It also reports that some commune officials felt DRR unnecessary as it is, in their view, already included in the CIP. 24 Oxfam Emergency Managers Network, Gender in Emergencies sub-group. Handbook: Gender Equality and Women’s Rights in Emergencies. p8. (Sept 2011)
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A gender audit of the CBDRR training tools, technical instructions and the EPRPs is detailed below.
2.5.3 TRAINING MODULE FOR COMMUNITY-BASED DISASTER RISK REDUCTION TRAINING OF TRAINERS
This is the key training tool at sub-national level. It consists of five sections:
1. Organization mechanism and management structure of Disaster Management Committee; 2. General concept of disaster and disaster management; 3. Risk evaluation and analysis; 4. Planning for risk and disaster reduction; 5. Training of Trainers.
Detailed analysis of this tool is found in Appendix 1. A summary is given below:
RECOMMENDATION: It is recommended that tools are revised to incorporate further gender aspects such as these where possible.
GENDER AUDIT: CBDRR GUIDELINES AND TOOLS - SUMMARY OF GENDER KEY FINDINGS
CBDRR GUIDELINES KEY FINDINGS
• It is not clear if NCDM members are male or female, but one Section 1: Organisation and member of MoWA must be seconded to each DMC [at least to Management of DMCs district level]. • No official quota given for numbers of women or men for DMCs.
• The conceptual framework regarding climate change impacts does not include impacts on women/men or barriers and constraints (e.g. access to resources) Section 2: Concepts of Disaster • The risk assessment does not have sufficient gender sensitivity, and DM especially regarding the social context of how women and men may experience disaster differently e.g. the lower status of women means they are less likely to have social networks to draw upon following disaster; and girls may have less priority with regards to education, food supplies etc.
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CBDRR GUIDELINES KEY FINDINGS
• Background section includes the negative impacts of disaster on the poorest of the poor: depression; personal losses; loss of assets; unemployment; migration for work etc., but these are not covered specifically in terms of gender. • Assessment risk sections on a) risky [sic] signals, b) vulnerabilities, c) competencies, do not have a specific gender focus such as the safety of women and girls at safe sites and increased risk of trafficking of children and women. • Risk Assessment Tools 1-8 do not have gender specifically mainstreamed, which would be useful in the following tools: Section 3: Risk evaluation and − Tool 1: Community history tool analysis − Tool 2: Mapping risky signals − Tool 4: Seasonal calendar − Tool 7: Gender roles exercise – This is useful to map the changing roles of women and men before/during/after disasters and helps understand the burden of roles and responsibilities. However, it does not highlight the barriers and constraints for women and men, nor address the issues they face during and after disaster which would be more useful for future planning. However, gender mainstreaming should be addressed through all tools so gender analysis is not restricted to Tool 7.
• The plan for DRR includes brief background paragraphs on gender-related goals: Section 4 − Goal No. 3 – Promotion of Gender Equalities and Women’s Planning for Disaster Risk Empowerment; Reduction − Goal No. 4 – Reduction of Child Mortality; − Goal 5 – Promotion of Mother’s Health. • However, these are brief descriptions and not specific goals.
• No quota for numbers of women/men trainers. • No quota for numbers of women/men participants • No mention of low literacy levels, especially in women, and the different learning capacities of women and men requiring women- Section 5 friendly participatory approaches and women-only spaces for Training of Trainers sharing. • The importance of engaging both women and men in every process of the risk assessment analysis and DM planning is not mentioned.
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2.5.4 EMERGENCY PREPAREDNESS RESPONSE PLANS (EPRPS)
This study examines three key documents in relation to DRR planning at provincial and district level, from a gender perspective:
A: Technical Instructions for Emergency Preparedness Response Plans (EPRPs). B: Kampong Thom PCDM Updated Contingency Plan (2015) C: EPRP Kampong Speu Provincial DRR Action Plan (2013)
A more in-depth gender analysis of these three documents can be found in Appendix 1.
A: TECHNICAL INSTRUCTIONS FOR EMERGENCY PREPAREDNESS RESPONSE PLANS (EPRPS).
This is the key document guiding all Provincial and District level Committees in their EPRP planning,25 available in the Khmer language only. There is little or no gender focus throughout this document , either in terms of exploring the needs and concerns of women and men, or in suggesting a specific focus or methodologies for women to readdress gender imbalances.
Specific areas for improvement are identified below:
Form for Emergency Preparedness Response Planning Data collection is an essential element of the DRR process, and information collected must be disaggregated by gender in order to inform ensure gender-sensitive planning and project design. This form is the main guideline for collation of data from the commune and village levels. It consists of, however, only a series of headings, each with the guideline:
‘All this information should be extracted from data books of City, Municipal, Province, District/Khan’
There are several areas where collection of data within the form would be more useful if gender disaggregated, including the following: Economics and Livelihood; Infrastructure and Safe Areas; Health Sectors, Education, Clean Water and Hygiene; Culture and Religion; and At Risk People.
A table format for information collection disaggregates persons by: Women, Children by Age, Elderly, Disabled, Chronic Patient, and Poor Family. The latter categories should also be gender disaggregated.
Another section summarises disaster history, and data on disasters occurring to date. It would be useful in future to mainstream sex-disaggregated information within that: for example, damage that affects women, men, boys and girls differently such as loss of rice fields managed by men; loss of vegetable production managed by women; schooling interrupted for boys or girls; damage to women’s health centres or birthing facilities.
A key section from a gender perspective is Structure, Mechanism and Strategic Activity of Disaster Management Committee of Municipal District/Khan and other Stakeholders on DM. This includes the following information which would be interesting from a gender perspective: Roles and Responsibilities; Management Structure; and People in Teams.
25Technical Instructions for Emergency Preparedness Response Plan, Municipal, Province District (Khan), Phnom Penh. (June 2013)
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Relevant topics from a gender point of view in the Planning Workshop for EPRPs include: • Topic 5: Impact from disaster to women, children and vulnerable groups. To share detailed information to participants on how the disasters impact to the women, children and vulnerable groups for each province. • Topic 6: Vulnerable Group Analysis: There is no tool for this, but it calls for an analysis at sub- national level on how disasters have impacted on different groups. However, there appears to be no requirement for sex disaggregation of data, losing the opportunity for gender-sensitive analysis and responses.
With respect to gender, the following steps required for developing EPRPs, are relevant: • Step 3 Plan a consultation workshop on the final draft. However, there is however no mention of inclusion of participants by gender. • Step 5 Dissemination Workshop and planning implementation. Again, there is no mention of inclusion of participants by gender.
RECOMMENDATION: It is recommended that tools are revised to incorporate these gender aspects wherever possible.
A summary of these findings is given below:
GENDER AUDIT: EMERGENCY PREPAREDNESS RESPONSE PLAN INSTRUCTIONS AND FORM
EPRP TECHNICAL KEY FINDINGS INSTRUCTIONS AND FORM
− Guidelines only suggest that all information is extracted from data books at various sub-national levels, without mention of context or the importance of sex-disaggregated data. − The following areas would benefit from sex-disaggregated information: Economics and Livelihood; Infrastructure and Safe 1. Data collection Areas; Health Sectors; Education; Clean Water and Hygiene;
Culture and Religion; At Risk People. − Table format disaggregates women but does not disaggregate the following groups of people: children; elderly; disabled; chronic patient. It would also be useful to disaggregate female-headed households.
2. Structure, mechanism and strategic activity of disaster − The following sub-sections would benefit from gender- management committee of disaggregated information and gender analysis: Roles and municipal, district/khan and responsibilities; Management structure; People in teams other stakeholders on disaster management.
− There are no quotas or recommendations for inclusion of women in planning workshops or for female/male facilitators. 3. EPRP planning workshop − Vulnerable Group Analysis (Topic 6) does not have specific
instructions for gender analysis of the most vulnerable and their needs.
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B: KAMPONG THOM PROVINCIAL COMMITTEE FOR DISASTER MANAGEMENT UPDATED CONTINGENCY PLAN (2015)
There is some gender sensitivity and gender disaggregated information in the contingency plan as follows:
History of Kampong Thom: This section includes what officials have to do before, during and after disaster to ensure security for people in emergency shelters, especially women and children who are at risk of rape and abuse. The need to protect the elderly is also mentioned. The section notes the need to identify problems and the impacts and needs of the community, especially on water hygiene, food and shelter, with a particular focus on women and children.
This does include the gender aspect, but could be improved by adding, as previously suggested, sex disaggregation of children, the sick, the elderly etc.
The Logframe on Post (Disaster) Assessment displays some analysis related to gender and specific gender needs but it is not comprehensive in its listings. For example, ‘drowning’ is given as a risk to children in contrast to the PAR research which informs us that boys are more prone to this than girls, as they tend to play away from home more. Additional risks to children in flood situations are not mentioned, such as the risk of trafficking or sexual abuse, especially for girls. Debt is given as an impact of drought but not mentioned for floods. ‘Lack of money causes domestic violence’ is an under-representation of the complex issues. Fuller descriptions should be included to give a more comprehensive picture of the different types of negative impacts and the estimated need to inform future planning purposes.
Within the sections on statistics within the various districts, the number of families affected include men, women and children (not disaggregated by boys and girls). The poor family types do, however, have a separate category for female headed households. General information is given, for example on affected districts, communes, at-risk villages, safe places, WASH facilities, emergency shelters, distance between districts, supply and transport companies etc.
Names of NGOs working in the area are given but from a gender analysis perspective, it would be useful to have women’s organisations or those representing other vulnerable groups quoted specifically.
C: EPRP KAMPONG SPEU PROVINCIAL DRR ACTION PLAN (2013)
The demographic information collected does have some sex-disaggregated categories, for example female-headed households and illiterate women. However, ‘children’ are not sex disaggregated. In future, to facilitate future gender analysis it would be useful to include whether families without water, wells, toilets etc. are headed by men or women.
The following sections within this EPRP do not include gender aspects: Livelihood and Economics; Safe places and infrastructure; Health, Education, Clean Water and Hygiene; Culture and Religion.
The Emergency Preparedness Response tables drawn up for various risks such as drought, flood etc. do demonstrate some particular gender focus, for example in the inclusion of DoWA in health awareness and disease prevention for women. However, they do not detail the specific emergency shelter priorities regarding women, girls and boys due to their vulnerabilities in disaster situations; such as the need to have private bathing facilities and a safe place from potential abuse. This EPRP is being currently being updated to take these findings into account.
In summary, the Provincial EPRPs have started to include sex disaggregation of data and some qualitative information, allowing for gender analysis regarding those affected by disaster, but there is still room for improvement as outlined in the Appendix 2 report. Improved gender focus within the EPRP guidelines and tools can be achieved. However, more resources and prioritization of gender-related training and data collection will be needed to help to shift this focus.
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SECTION 3: PARTICIPATORY ACTION RESEARCH (PAR)
3.1 PAR PURPOSE, OBJECTIVES AND METHODOLOGY
The purpose of the PAR research is to provide primary data examining the current integration of gender sensitivities within DRR and DM planning and implementation. This was achieved through involving male and female members of the current sub-national disaster management committees (DMCs) and other stakeholders at commune and village levels.
3.1.1 SPECIFIC OBJECTIVES
• To document successful practices on gender integration and women’s participation, particularly in decision-making in DRR and DM processes at sub-national levels; • To present practical guidelines/suggestions on how best to ensure gender integration and women’s participation in DRR and DM at sub-national levels (including in decision-making); • To provide recommendations to inform gender aspects of policy and processes as outlined in the Gender Audit.
3.1.2 PARTICIPANT TARGET GROUPS
• Sub-national DM Committees in Kampong Speu and Kampong Thom.
Participants were also selected from the following target groups, who are currently involved in the Building Disaster Resilient Communities II project: • Saving for Change groups o Kampong Thom - two Saving for Change groups in two villages • Partner NGOs: o DCA/CA partner: LWD in Kampong Speu o Oxfam partners: HOM and APA in Kampong Thom
Sample size of Participating Disaster Management Committees within DRC II Project.
PAR Sample Size PAR Sample Size Total BDRC II Project Kampong Speu Kampong Thom
PCDM x 1 PCDM x 1 PCDM x 2 provinces
DCDM x 2 districts DCDM x 2 districts DCDM x 8 districts (KPS) /5 districts (KPT)
CCDM x 8 communes CCDM x 8 communes CCDM x 42 communes (KPS) /27 communes (KPT)
VDMGs x 14 villages VDMGs x 17 villages VDMGs x 109 villages (KPS) /145 villages (KPT)
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3.1.3 SELECTION OF GEOGRAPHIC AREAS
Target areas were chosen against two selection criteria: a) to represent the different types of disaster experienced (flood, drought, storm); and b) to represent the types of geographic locations assisted by the DIPECHO project in remote rural areas, less remote areas and close to an urban area.
Communes and Villages Participating in PAR
PROVINCE District Commune(s) Village Krang Kantuot Tompor Meas Ou Neang Hing Tang Krouch Ou Koki Ou Ponhea Phnom Sruoch Prey Kdey Ka Haeng Prey Kampong Krang Ampil KAMPONG SPEU Ta Neang Trapaeng Kak Prey Rumduol Krang Rorluos Ou Rumduol Thmei Sambuo Samrong Tong Kirivon Tuol Srey Moha Sang Krang Sya Krang Chress Slaeng Kdey Doung Kdey Doung Trapaeng Kou Trapaeng Russei Paem Kreng Kampong Svay Tram Kla Lavea Cham Kampong Svay Ta Aim Kampong Kou Thnort Kampong Thom Trapaeng Thmor Toek Malaeng Chheur Teal Sandan Sandan Boeng Pra Chheul Sandan Ou Thnort Ngorn Veal Snay Mean Chey Trabaek Samphy
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3.1.4 FOCUS GROUP DISCUSSIONS (FGDS)
Participants from 31 villages participated in FGDs: 14 villages in Kampong Speu and 17 villages in Kampong Thom. A total of 18 FGDs were conducted; eight at the commune level with CCDM members; and 10 at the village level with VDMG members. Women were specifically encouraged to attend wherever possible.
The sample included two FGDs comprising members of Oxfam’s Saving for Change (SfC) project in Kampong Thom Province. The SfC sample reflected the female focus of this project: a total of 41 villagers, of whom 36 were female (88%) and 5 male (12%). Although only a small number of these participants were also members of VDMGs, the majority were active in the DM process as community representatives at the village level planning stage.
Despite this, the overall number of female attendees was relatively low at 74 out of 198 total attendees (24%), and this figure would have been even lower if women’s Saving for Change groups had not been included. The low percentage from CCDMs and VDMGs reflects the low number of women sitting on these DMCs.
Sex Disaggregation of FGD Participants
Originally separate FGDs were planned for women and men to give equal voice to both genders, but this was not possible due to the small number of women appointed to the CCDMs and VDMGs. Women were, however, fully encouraged to participate. In order to take into account the power relations at the local level, CCDM members were interviewed separately from VDMGs to ensure that those from the village level had an open opportunity to participate fully and express their opinions.
NUMBER AND GENDER OF FGD FEMALE MALE TOTAL % PARTICIPANTS
Commune Level 20 (10%) 61 (31%) 81 41%
Village Level 18 (9%) 58 (29%) 76 38%
Saving for Change 36 (18%) 5 (3%) 41 21%
Total 74 (37%) 124 (63%) 198 100%
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3.1.5 KEY INFORMANT INTERVIEWS (KIIS)
A total of 19 interviews were conducted at the provincial, district and commune levels with key informants experienced in DM and DRR planning. These were mainly members of DMCs, as well as from DoWA and NGOs. All informants were selected with the assistance of partner NGOs. Wherever possible, women were invited for interview. A full list of KII participants is given in Appendix 2.
Number and Gender of Key Informants
ORGANISATION FEMALE MALE
Provincial Committee for Disaster Management 0 2
District Committee for Disaster Management 1 3
Commune Committee for Disaster Management 1 2
Village Disaster Management Group 0 2
Departments of Women’s Affairs 2 0
National Level NGO Representatives 2 0
Local level NGO Representatives 2 2
Total 8 11
The following section summarizes the results of 18 FGDs and 19 KIIs conducted to inform this study. Throughout the research period, the primary research findings gained through the FDGs were triangulated through the key informant interviews and vice versa.
3.2 GENDER ASPECTS OF DISASTER: UNDERSTANDING AND RESPONSES
The FGDs at village and commune level each included an opening exercise and discussion to ascertain how members of CCDMs and VDMGs currently understood the gender aspects of disaster (detailed in Appendix 3 and Section 4). The FGDs explored who was most vulnerable in their communities from a gender point of view and why that was. They also examined whether current planning and projects address these priority target groups. Many of the issues raised in this opening exercise were explored further in the research findings.
3.2.1 MOST VULNERABLE GROUPS
Each FGD was asked to agree by consensus which gender group was the most vulnerable in times of disaster. All FGDs agreed that females were the most vulnerable and that males were the least vulnerable. Girls were agreed to be the most vulnerable; almost twice as vulnerable as any other group, and women scored second overall. Boys scored third most vulnerable and it was agreed by all FGDs that men were the least vulnerable group in times of disaster.
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Ranking of the most vulnerable gender groups in time of disaster
1 MOST 4 LEAST GENDER GROUP 2 3 VULNERABLE VULNERABLE
Girls 10 6 0 0
Women 6 6 4 0
Boys 0 4 12 0
Men 0 0 0 16
Total 16 16 16 16
Discussions evidenced a good level of awareness of the ways in which women, men, girls and boys experience disaster differently.
Participants also identified that gender categories are not homogenous groups and that the elderly, sick and the disabled experience additional challenges at times of disaster. Discussions surrounding the experience of boys and girls included both school-age children and youth up to the age of 21.
The following summarises the different vulnerabilities of women, men, boys and girls and the impact of disaster on them, as identified by the groups.
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GENDER SPECIFIC VULNERABILITIES IDENTIFIED BY FGDS: GROUP
• Poor health and nutrition; • At personal risk of sexual abuse in shelters with no privacy; • Vulnerable to poor hygiene generally, and in shelters after disaster; • Lack of physical strength and less ability to swim/escape from oncoming disaster; GIRLS: • Lack of education when resources are low; • Expectations that girls will share their mothers domestic/nurturing duties; • Less mobility when transport is limited; • Lack of emotional support from parents who are busy dealing with post-disaster tasks
• Burden of taking responsibility for the whole family in time of crisis such as healthcare, finding food, finding schooling, caring for sick and elderly; • Lack of access to health facilities especially affecting pregnant or breast-feeding women and those needing medication; • Lack of personal hygiene in limited facilities and risk of disease/infections; • Depression due to many family concerns; • Widows need to undertake tasks alone, inside and outside the house; • In the case where incomes is lost, have to help husband earn money so no self-care; WOMEN • Under pressure to migrate for work e.g. to garment factory to provide for the family; • Additional collecting and carrying of food/drinking water; • Inability to feed babies due to lack of food; • Increased incidence of domestic violence; • Limited mobility outside the home; • Lower levels of literacy and access to information; • Increased risk of rape and physical abuse if travelling further from the home resulting in limited mobility; • Increased risk of domestic violence;
• Increased workload, including working with father on the rice farm, helping with fishing, livestock, have to carry water, rebuild house etc.; • Risk of drowning as they play in water following floods; • Vulnerable to approach from gangsters; BOYS • Risk of lightning when caring for cattle; • Lack of food and nutrition; • Lack of emotional support from parents who are busy dealing with post-disaster tasks; • Less mobility when boats and roads are destroyed.
• Burden of undertaking heavy workload for the whole family e.g. house repairing, shelter building for livestock; • Worsening health due to heavy work; • Increased possibility of taking risks travelling to find materials, food etc. for the family; • No work to do and no income when rice fields destroyed; • Risk of accumulating debt; MEN • Inability to play a leadership role in the family as too much to do; • Depression and stress may lead to alcohol abuse and domestic violence; • Travelling after disaster poses risks of drowning, snakebites, lightning and road accidents; • Under pressure to migrate for work to provide for the family; • May give up job to return home and assist family following disasters.
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Identifying and Prioritising the Most Vulnerable
The following responses from FGD participants provide an indication of how the DRR planning processes initiated by the project help communities to prioritise assistance for the most vulnerable. Many of these responses have a gender dimension:
− ‘We learned to identify the differentiation of risk between men and women during disaster. It really helps us to be more focused on women, because they are much more at risk than others.’ − ‘Women are human’s breath; family members cannot live without women. They are the ones who cook for the family and take care of family members so they play a very important role in the family.’ − ‘It is difficult to help all people at once because the commune is very big. If there are too many victims, we will focus on pregnant women, small kids, and elders...’ − ‘We can help infants around 60% by giving food, medication and vaccinations for a period of time.’ − ‘We prioritize small kids and women in moving them to high ground, because they are weaker and cannot swim.’ − ‘Women are the most vulnerable, especially during pregnancy, so we are prioritise them in our DRR.’ − ‘We help all women... especially widows, they handle all work alone, it is really difficult for them.’
Understanding Concepts of Gender
As mentioned above, FGD participants were able to discuss the impacts of disaster on different gender groups in guided discussions, but it was observed that the concept of ‘gender’ was widely interpreted as relating to ‘women and children’. Discussions with PCDM, DCDM and DoWA representatives highlighted this misunderstanding as a barrier to gaining men’s participation and ownership to gender-related challenges in DM:
‘...concerning gender, the commune and village levels suggested we provide awareness raising on gender [to local people] because, in the communities, people are not really aware of it. Even at the higher levels, some officers would ask the women/female staff [to attend the meetings or workshops] whenever they heard about gender; they are not sure what gender is.’ DoWA Representative, Kampong Thom (Female)
Strengthening the Disaster Response Line
Both CCDM and VDMG members reported that the DIPECHO project had helped them to strengthen the response line in times of disaster. For instance they were better able to prepare for disaster by sharing information on who was most vulnerable within the community. Women and girls received health training on how to care for themselves during disaster; and infants received regular vaccinations.
During disaster, communities are able to utilise early warning systems; prepare boats and food in readiness. They reported quicker responses from the government and NGOs to emergency requests e.g. food and shelter.
− ‘After having LWD working with us, we have seen a lot of improvement in the CCDM. We have a good structure, the responsibilities are clearly divided, and trainings/workshops are helping us on DRR planning.’ − ‘We advise people to be careful with hygiene and sanitation, especially women, because women are more likely than men to get sick...Women are responsible for food and household chores in the family, they are very important for the family.’
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3.1.2 CONTINUING CHALLENGES
The following quotes highlight responses from respondents in the PAR.
Poverty − ‘We can help them during disaster but not so much after disaster. Most of their problems are long- term, for example: poverty, illiteracy and lacking irrigation systems.’ − ‘Poverty is one reason that people spend almost all their time earning income or finding food to support their families. People in poor families are powerless and don’t feel confident to be leaders or involve in DM.’
Education − ‘We also cannot help some boys and girls who have given up on class because they have to go with their parent to find jobs. It’s far beyond our capacity to help them. We really want to help every single child but it’s also quite a lot for us to do. We have a lot of things to do, like giving them enough food, education, vaccination, transportation etc… So we need a lot of time and resources.’
Health − ‘Last year, we could only help 20 families to deliver babies, get access to vaccination, access to healthcare, and helped around 100 disabled persons. Furthermore, we also help people access safe sites, clean water and some food, especially children.’
Norms and Culture − ‘If they have less food at home, parents tend to give it to both boys and girls; but for studying, they tend to give it to the boy.’ − ‘Women are very shy and they think men deserve to be leaders.’
3.2 KEY RECOMMENDATIONS
3.2.1 RECOMMENDATIONS BY CCDM AND VDMG PARTICIPANTS
The following summarizes some of the specific changes CCDM and VDMG members would like to see:
• CCDMs and VDMGs to recruit more women as they are thought to be knowledgeable about the community, willing to work and bring a local perspective; • Improve financial support for those on committees e.g. for transportation, as this is a barrier to many joining, especially women. • Provide more NGO trainings by NGOs on gender-disaggregated issues and needs relating to disaster; • Provide more training, especially for female DMC members who have low literacy, skills and confidence regarding data collection. • Continue to provide DR and DRR training to those in Saving for Change and home Garden initiatives as this strengthens women and their families in time of disaster.
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3.2.2 KEY FINDINGS
• Focus group discussions with CCDMs and VDMGs evidenced growing awareness of how women, men, girls and boys experience disaster differently. However, the word ‘gender’ is thought to refer to women and children; and gender-related issues are deemed to be the domain of females. • Priority is often given to women and children at times of disaster: girls and women are considered more vulnerable than boys and men. The disabled, elderly and sick are also prioritized. • Project training and activities have helped to strengthen the disaster response line at local levels, thereby improving support for the most vulnerable. • Major issues in Cambodia, including high rates of poverty, lack of education (especially in females) and lack of healthcare, were identified as continuing challenges impacting on the most vulnerable in disaster areas.
3.2.3 RECOMMENDATIONS
1. A deeper understanding of concepts of gender is needed amongst DMC members. Deeper social relations at family and community levels should be explored, while including both genders. 2. In CBDRR training sessions, a focus on the challenges males face at times of disaster could be included to redress the concept of ‘gender’ as a female topic. For instance, physical risks to men during the response stage, loss of income and identity, predisposition to alcohol abuse, and the negative impacts on the family. 3. The disaggregation of ‘children’ into boys and girls in the planning phase is also needed to improve gender aspects. 4. Link the most vulnerable, as identified through DM and DRR work, to other NGO/government assistance opportunities in the area to help strengthen women and their family’s disaster resilience. 5. To address the links between disaster management and the longer-term issues of poverty, health, education, and food security, stakeholders should lobby the national and sub-national government for the implementation of pro-poor policies. Regarding gender specifically, it is recommended to advocate with MoWA to push for further inclusion of gender and DM and DRR within sector plans. (See Recommendations in Gender Audit Section – Section 2.4)
3.3. LEADERSHIP AND PARTICIPATION IN DM AND DRR
3.3.1. GENDER IMBALANCES IN DISASTER MANAGEMENT COMMITTEES
Key informant interviews conducted confirmed the results of the Gender Audit – that government officials who sit on sub-national structures (e.g. provincial, district, commune and village councils) are often the same as those who sit on the Committees for Disaster Management. The gender composition of these committees is therefore largely restricted by representation on existing institutional structures.
At the Provincial level, only Directors of Departments are direct members of the PCDM and these are invariably men. As the numbers of women in sub-national government leadership positions are low, especially in the role of Director of Department, this represents a structural barrier at institutional level to achieving gender balance in sub-national DM leadership roles.
A gender audit of the DMCs participating in the PAR provides evidence of the gender imbalances within DM committee members in Kampong Thom and Kampong Speu. This is summarized below. The further detail shown in Appendix 5 provides useful baseline data for the future.
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Number of DMC members within study area, disaggregated by sex.
PCDM DCDM CCDM VDMG Total Province M F M F M F M F M F
Kampong Speu 41 5 46 7 199 20 78 18 364 50
Kampong Thom 48 4 53 9 122 36 73 51 296 100
No. 810 89 9 99 16 321 56 151 69 660 150 Total % 100% 11% 1% 12% 2% 40% 7% 19% 9% 81% 19%
The larger number of women on CCDMs and VDMGs compared to the DCDMs and PCDMs reflects the fact that VDMGs do not follow a set government structure. This provides more opportunity to increase women’s inclusion. It is also more convenient for women to attend local meetings close to home.
A recent study undertaken by USAID26 examines ‘Women’s leadership as a route to greater empowerment’ from a political and democratic perspective. This study concluded:
‘The main barriers to women’s political empowerment lie in several hard to change sources, including historical patriarchal social structures and culture that assigns public roles to men and household roles to women; patronage and vested interests that exclude women’.
Despite these endemic restrictions on achieving gender balance within governmental structures, the PAR research revealed examples of where the project activities and training have proved to be a successful agent for change for women leaders. Some good practice examples are described below:
26Management Systems International for USAID. Women’s leadership as a route to greater empowerment: Cambodia Case Study. (Dec 2014)
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BEST PRACTICE: Women Leaders in Disaster Management as Agents for Further Empowerment of Women
Kampong Speu The Building Disaster Resilient Communities (I and II) projects have provided an opportunity to promote women’s leadership at the sub-national level, through building the capacity of key women in government.
Ms Pok Setha has participated in the project for more than three years. Originally she was involved in disaster management in her role as a member of the secretariat for Kampong Speu PCDM. This is an administrative role that women are often traditionally assigned to within government, whilst more technical roles are deemed more appropriate for men, especially at the higher levels.
Her involvement on the PCDM exposed her to training on various aspects of disaster management, including data collection, gender awareness and leadership skills. Her growing experience led to extra responsibilities, such as organizing a provincial-level events on disaster management. In recognition of her expertise, she has now been appointed Head of the Secretariat of the DCDM, and her career has expanded further to gain the title of District Governor in Chbamorn District.
Mrs Yim Sovunthay, the Deputy District Governor and Deputy Head of the DCDM of Kong Pisey District in Kampong Speu, has also progressed in government and has been active in disaster management. She was previously a member of the DCDM Secretariat and received training from LWD, including training on EPRP development. In recognition of her new expertise, she was appointed focal person on the DCDM and became a ToT facilitator at commune and village levels. More recently, Mrs Sovunthay was promoted to Deputy District Governor and, in line with that role, she is now Deputy Chair of the DCDM.
Kampong Thom The Kampong Thom PCDM also provides a good example of encouraging women in leadership. The female Provincial Vice Governor is also Chair of the PCDM, and there are other women leaders: the Director of the Cambodian Red Cross sub-office; the Director of the Information Department; and the Director of Department of Women’s Affairs. The Provincial Vice Governor is a good female role model who has acted as an agent for change through appointing women into more positions of leadership.
An opportunity to address gender imbalances was highlighted when several members of DMCs at all levels reported that the elderly demographic and high turnover rate of committee members represents an opportunity to address the gender imbalances within committees:
‘In the government structure there are many older men and women at all levels. They will retire soon. Maybe we can replace them with strong and energetic women!’ - Member of PCDM, Kampong Speu Province (Male)
In general, there appears to be a growing recognition of the important role that women are able to play in positions of leadership within the government, and this was often reported as a result of gender awareness training:
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‘Women in meetings take notes, but they want to improve their capacity and participate more. Women staff are young and energetic; they use Facebook to learn to be strong in society. We know better now how to engage women’s understanding on how to do their job. I have learned a lot about gender equality and also how to improve myself. Few at the top level are women and there is no quota for women [in leadership], but it is changing.’ - Member of PCDM, Kampong Speu Province (Male).
Although there are no official quotas for women’s involvement in DMCs there appears to be a strong pattern in the positions within committees that are generally assigned to women at the various levels. See Appendix 5 for structure charts.
PCDMs: Following trends within local government structures, the leader of the committee is invariably male. However, there is a trend of appointing female deputy governors, and consequently the deputy leader of the PCDM may be a woman. Other positions of leadership and within the various sub- committees tend to be held by men, with the exception of the secretariat office, which traditionally employs more women.
Despite the low number of women in the PCDMs, it was reported that in Kampong Thom, most of the women PCDM members are sent out to assist in the event of a disaster, as women are well connected in the community and sensitive to the requirements of women and children. This relates to the belief that nurturing and caring is traditionally a woman’s role – here deemed useful in times of emergency – while positions of leadership remain the perceived domain of men.
DCDMs: At district level, women often sit on the Hygiene and Clean Water Team and on administration teams, but are not usually in positions of leadership. An official of the DoWA also sits on the Health and Hygiene Team.
Typically the Director of the DCDM is the District Governor (usually male) and the Deputy Director of the DCDM is the Deputy District Governor (usually female). Other women representatives are typically from various technical offices such as the Office of Women’s Affairs, the Office of Health and the Office of Social Affairs. However, they do not usually hold positions of leadership, as the heads of these offices are often male, with the notable exception of the Office of Women’s Affairs. The head of the health sub- group is often a Cambodian Red Cross Volunteer.
CCDMs: All leaders are usually men at commune level. However, there are more entry points for women’s participation on the Response and Information Team (e.g. female Cambodian Red Cross volunteers), the Secretariat Office and the Health and Hygiene Team. An official of the DoWA sits on the Health and Hygiene Team.
The project has enabled the expansion of CCDMs at commune council level, through the encouragement by partner NGOs and local government capacity building. However, from a gender perspective, the trend for CCDMs to mirror the government at provincial and district level continues to result in structural barriers to women’s participation at commune level. The following examples of the level of women’s lack of representation on CCDMs are typical of those reported in FGDs at Commune level:
− ‘The members were selected from the commune elections so far. Once they are voted in as commune councillors or commune chiefs, if they become CCDM members automatically. But most of VDMG members are volunteers and then they have to be voted for by the people from their village.’ − ‘There are 11 members in total working in the CCDMs in Kahaeng and Krang Ampil, but there are only two female members in Kahaeng Commune CCDM and three female members in Krang Ampil Commune. Most of them are members and volunteers, not leaders.’
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VDMGs: At the village level, there is more opportunity to achieve a gender balance on the VDMGs as these consist of volunteers and do not follow any existing government committee model.
‘Men always participate in the planning process much more than the women and they participate in almost every single meeting. Furthermore, they are very active in the planning/meetings, not like the women; some of them are very quiet.’ - Village Chief, Trapaeng Droleong, Kirivon Commune, Kampong Speu (Male).
There is some indication that women are becoming more engaged and leading on certain activities, although this tends to be on a practical level, rather than in a formal leadership role:
‘The female members from DCDMs, CCDMs and VDMGs are mostly in charge of health, sanitation, and raising awareness on women and children’s issues, while men are responsible mainly for search and responding to disaster, because women cannot travel far and [stay] late like the men do. On the other hand, there have been more men in the old structures...’ - HOM Representative (Female).
Several reasons were given for the lack of women’s representation on VDMGs and CCDMs, in addition to the structural barriers highlighted above:
1. Low levels of remuneration for Commune Councillors.
Poverty and lack of income among project target families means that women cannot afford to volunteer for commune council positions, even if they want to. One group of CCDM members in Kampong Speu reported:
‘Women cannot make a living by working for the committee. The CCDM members get paid only around 300,000 Riels ($75) per month so they would rather work for the garment factory than the committee because they can get paid twice which is around 800,000 Riels ($200)’ - CCDM Member, Kampong Speu (Female).
‘Regarding the concern that capable women do not participate in social development due to family restrictions and so on, young capable women need high pay, which we cannot afford. So if we really want capable women, we have to provide some incentive and some reasonable pay. Since they are capable, they will be able to get jobs fast.’ -DoWA Representative, Kampong Thom (Female).
2. Migration and Participation
The extent to which men and women are involved in DM and DRR at the local level is also determined to a degree by the migration patterns of those seeking work outside the village. As Cambodia continues to develop, members of poor rural families migrate to urban areas for work, sending back remittances to supplement family income.
The Ministry of Planning, for instance, reported that in 1998 only 1 in 20 Cambodians lived in the capital city of Phnom Penh, but this had doubled by 2012 to 1 in 10.27 Many women and men migrate to work at construction sites and garment factories. This poses an added dimension of vulnerability to young women as research indicates that violence against women in urban areas has almost doubled to that in rural areas.28
27Ministry of Planning.Migration in Cambodia: Report on Cambodia rural urban migration. (2012) 28See AusAid. Triple Jeopardy Research Working Paper Series.
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3. Lack of Capability and Confidence.
Both men and women in CCDMs shared the view that women are generally less well educated and therefore lack the skills required to sit on committees, especially in leadership positions. Even where women had adequate education, they themselves reported a gap in their skills and knowledge which often prevented them from stepping forward, even if they had an interest.
‘Women themselves are not qualified to be leaders because their knowledge and skills are still very limited compared to the men. They have very low education, and cannot cope well with the role of being a leader.’ - Commune Councillor, Kampong Speu (Female).
‘The Village Leader normally acts as VDMG leader, and all of them are men. Normally, men are leaders because they are stronger and have more education. Men can perform more work better than women. - Village Leader, Kampong Thom (Male).
One female DoWA representative in Kampong Thom suggested training was required to encourage women to take VDMG positions:
‘In order to encourage more women, training is needed. We also need to raise the awareness of any who we see as capable to do the job. We have to train them on particular skills such as gender roles, roles of the focal persons. When we provide regular capacity building, then they will be able to take the jobs.’ - DoWA Representative, Kampong Thom (Female.)
4. Low Awareness of the Important Role of Women in DM and DRR.
Key informants at the PCDM and DCDM level had good knowledge of the gender aspects of disasters and the contribution that women can make in DM and DRR. However, they reported that this has yet to be fully appreciated within communities – both by men and by women themselves. More could be done to spread this awareness and to encourage women interested in DM and DRR.
‘We can... guide women to persuade or explain to their husband that working for the committee is like helping their family as well, because we all live in the same commune and the same village. So, if the problems in our village are reduced, our family’s problems are also reduced. And I believe that the more women can explain that to their husbands, the more men will respect women’s rights and sooner or later they will allow their wives to work in the committee. -Vice Commune Chief, Kampong Thom (Female).
5. Traditional and Cultural Norms and Beliefs
Strong gender norms and beliefs in Cambodia serve to reinforce traditional roles and expectations of both men and women, and these are reflected throughout the findings of this research. Social constructions of masculinity include the stereotype of men as the head of the household, breadwinner, dominant over women, strong and brave.29
Women conversely are still bound by many of the traditional codes of conduct passed on through the generations; for instance, through Chbap Srey, a written code of conduct that reinforces women’s passive role and subservience to men in all aspects of life. A woman’s role is still largely seen as domestic, looking after the whole family including the elderly and the sick. These traditional beliefs hold that
29GADC. Deoum Troung Pram Hath in Modern Cambodia: A Qualitative Exploration of Gender Norms, Masculinity and Domestic Violence. (2010)
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women’s place is in the home, granting little scope for participation in public life, and eventless in positions of leadership.
Whilst this still remains a huge barrier to women’s participation in DM at all levels, there was an indication that attitudes are changing and some women are being recognized and rising to the challenge. The following example illustrates how, with some determination, negative beliefs surrounding women’s participation can be overcome:
GOOD PRACTICE: Challenging Negative Stereotypes Surrounding Women’s Participation
A couple of years ago, when I raised my ideas about the women’s needs that should be included to the commune disaster management plan, the committee members used to refuse to pick up my ideas because they thought that I was wrong. They didn’t even observe what the main needs of women were, and some of them said that it’s not important to include women’s needs in the plan.
But after many debates with them, I was given a chance to try, and that time they asked me what were the women’s needs that I wanted to include? And I saidthat we should consider vocational trainings, knowledge and experiences.
They said that they were afraid that these activities werenot going to be successful because women werenot going to come for meetings/trainings: then when the NGOs camewe were going to lose face. I replied that we must put it in the plan, because the women here needed these kinds of training. After trying, we were very successful. More women came for the meetings/workshopsthan men. - Vice Commune Chief, Kampong Svay District, Kampong Thom Province (Female)
3.3.2 LINKS WITH GENDER-BASED VIOLENCE
The prevalence of gender-based violence (GBV) in Cambodia is reflected within the findings of this study in several ways. Firstly, fear for the safety of women and girls restricts their mobility before, during and post disaster. This in turn impacts on their ability to fully engage with DM planning and disaster response:
‘Women cannot work as village chiefs because they cannot go out at night-time as something bad may happen such as rape or robbery. If women work outside their homes, their husbands may feel jealous because they may be surrounded by many men. Then there will be domestic violence. -VDMG Member, Kampong Thom
Secondly, the prevalence of men’s high alcohol consumption, which is often related to GBV, was cited in two FGDs in Kampong Thom as contributing factors in men’s lack of participation in DM activities:
‘About 90% of participants in meetings related to DRR are women because they have more time to join. Men are busy with drinking alcohol and also work far away from home.’
‘Men mostly do not care about the content of what we sayin the meetings, and they even come to meetings when they are drunk. Even if men are at home and not away, they like drinking alcohol rather joining any activities in community...’
This highlights the need for DRR and DM project work to be combined with wider programmatic approaches such as gender awareness and GBV awareness.
HOM provided an example of how DM/DRR work has been beneficial in addressing the issue of gender- based violence in poor communities:
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GOOD PRACTICE: Identifying and Assisting the Most Vulnerable Through HVCA Gender Role Mapping
In order to select families [for the HVCA Gender Role Mapping exercise] we had to meet with the CCDM and VDMG to identify families with the most severe domestic violence, and which CWCC had stopped working with. We invited them to the meeting: we named their families as model families and had them learn about Gender Aspects.
After the trainings, I saw 19 families among the 24 families had changed. They knew how to share roles [and responsibilities] in earning income, and they had stopped fighting with each other.
For example, the husband bought a tuk-tuk to drive for earning income, and the wife began doing home gardening for sale. When they had their own roles [and responsibilities] and occupations, their family improved economically. And after the economy ofthe family hadimproved, the stress which was the original cause of the fight was[automatically] cut down. -HOM Representative (Female)
3.3.3 SAVING FOR CHANGE GROUPS
Oxfam’s Saving for Change (SfC) initiative started in Cambodia in 2005 to encourage groups of mainly women in poor communities to save small amounts. As funds grow, the groups are able to grant small loans to their members for production, consumption and emergencies.
SfC goals include better resistance to crises, increased food security and overall improved livelihood options: therefore groups in disaster-prone areas provide an interesting dimension to this study. The ways in which the SfC initiative may have improved group member’s resilience to shocks and helped them withstand the impact of climate related disasters are of particular note.
A recent study undertaken by Oxfam America (2014)30 explored the challenges surrounding women’s leadership at the village level. This explored aspects of women’s participation and leadership with an emphasis on disaster management.
Two focus groups with SfC members from Kampong Thom province, where the SfC programme is facilitated by Oxfam partners Angkar Ponluer Akpiwat (APA), were also included in this study. Two communities were selected: • Peam Kreng village in Kdei Doung commune, which experiences flood as its main disaster, with periodic drought and storms including lightning; and • Tram Kla Village in Tbeng Commune which withstands three or four months of flooding every year, some drought and storms, including strong winds.
These FGDs varied from other FGD samples as they consisted of villagers who were SfC group members, rather than members of Village Disaster Management Groups. These two FGDs were also considerably larger in size, with more than double the number of villagers attending than in other FGDs. The reason given by group members was their wish to join together in opportunities for learning. This indicates a high level of member commitment to the project and to each other. The total sample of 41 represented 36 females (88%) and five males (12%). This gender disaggregation is in line with the male/female composition of SfC groups, as these are targeted more specifically towards the empowerment of women.
30Oxfam America. Study on Women’s Empowerment and Leadership in Saving for Change Groups in Cambodia. July 2014
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Current Involvement in Disaster Risk Management and Disaster Risk Reduction
In Peam Kreung, only one woman attending was also a member of the VDMG in her capacity as a Cambodian Red Cross volunteer. Three other women participants had some leadership experience through sitting on the SfC Savings Group Management Committee, but they were not actively involved in disaster management. Similarly, there only one woman participant in Tram Kla village sat on the VDMG, the position being linked to her role as Deputy Village Chief.
In both communities, most SfC members reported being involved at some point in annual village level disaster preparedness meetings.
Coping with Disaster - Expanding Groups and Linking Networks
Participants in both villages reported that, with the encouragement of APA, they have started other groups which have improved their food security and built their resilience to disasters. This includes improving nutrition, growing crops, raising livestock, sharing information and increased access to healthcare.
In addition, Tram Kla village had formed a valuable relationship with a local food security project, which group members thought was only possible due to the increased confidence, skills and networks they had gained through the SfC group.
Participants expressed a high level of satisfaction with the SfC group in general.
‘We feel stronger, not only related to our financial situation, but also because we can turn to the group leader for help. We have someone to talk to when we have a problem and we make a request.’ - SfC Member, Tram Kla Village (Female).
These additional benefits illustrate the importance of mutual support among SfC members and the increased assurance this brings. It provides a form of social capital, and a valuable network that would otherwise be difficult for women in poor families to access by other means. This is important in times of disaster when such support is difficult for poor women to access.
Participants found that, as members of SfC groups, they were better able to withstand the ‘shocks’ that their families may experience, including disaster-related events.
‘We share rice with each other in times of emergency, but it is important that we always pay it back afterwards!’ - SfC Member, Tram Kla Village (Female)
Group members reported being able to draw upon savings and loans to employ strategies in the pre- and post-disaster periods such as: • Purchasing soil to raise land to a safer level in order to mitigate the effects of future floods; • Paying for children’s education when schooling is interrupted following floods; • Buying new livestock to replace that destroyed by flood or drought; • Purchasing rice seeds or other seeds when crops are destroyed; • Purchasing a boat for transportation following floods, when other forms of mobility are unfeasible.
The following details how the Saving for Change initiative has become an important coping strategy for women and poor families in disaster areas:
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GOOD PRACTICE: Saving for Change
‘The committees with female members are active in every meeting related to their work. They attend trainings at all levels and share all the issues they encounter. They are more assertive. They also discuss gender and disaster.
‘Saving for Change could be counted as a goodpractice because membersare active and brave. They update information as well as share information on time with group members, people from other communitiesand journalists. They help each other when they encounter crisis.
‘In 2012, we had more than 30 groups. At that time, there was a disaster, which happens every year. So in order for them to survive the disaster, we formed Saving for Change because that could help them respond to their problems. Saving groups are very important to people who encounter disaster.
‘When they knew that the flood was going to be big, they borrowed money from saving for change to fill the soil at their house in order to not have huge damage during the flood. And they also borrowed money to run small business or livelihood activities.
‘We have 17 new groups underSaving for Change. Because we have our steps to follow, understanding as well as participation in the group is more active and regular compared to old
Saving for Change Groups: Participation and Leadership
SfC members in participating communities are often invited by village heads to contribute to annual disaster preparedness planning. Although women often manage SfC groups, they do not receive leadership training, nor do they generally take up leadership roles outside of the SfC groups. The SfC aim of enhancing women’s participation in wider civil society, and for more members to engage in leadership roles, is therefore proving to be a more difficult challenge.
As with other FGD groups, discussions on limitations to participation have centred on traditional roles, capacities, norms and beliefs. In one discussion, a male participant stated that women need motivation and emotional support to take up leadership roles. However, several women participants replied that it was their lack of skills which need to be addressed in the form of training. One VDMG member emphasized the importance of specific training in budgeting and report writing, because although this was part of her current leadership role in SfC, she was not confident in them.
It was also suggested that young single women should be targeted for involvement on DMCs as they have more time than women with families. Youth and young people living at home are therefore also good targets for recruitment to DMCs. Once women get married, however, they are expected to work in the home and care for children in line with traditional roles and responsibilities. Both men and women agreed that most single women would rather be employed as construction workers as they could earn 20,000 riels per day; this should be taken into account when targeting young women and youth.
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3.3.4 DM AND DRR AND THE PARTICIPATION OF DEPARTMENT OF WOMEN’S AFFAIRS
The role of the Department of Women’s Affairs in DM and DRR was acknowledged as valuable at all levels. Representatives from DoWA contribute through DMC meetings and by providing gender expertise in trainings at the various DMC levels. This includes highlighting women and children’s issues in training sessions on, for instance, sanitation, health and clean water. DoWA representatives also encourage women’s inclusion in DM and DRR activities at commune and village level.
‘There are always meetings. The meetings always probing, and ask what members could offer during disaster, such as means of transportation and communication to help victims when disaster takes place. For example, what can DoWA help with during disaster? So let’s say DoWA could offer cars [as means of transportation], then how can other departments help? And let’s say the Department of Water Resources has the armed forces and boats to rescue the victims. -Acting Director, DoWA, Kampong Thom Province
The importance of providing a women-only space for discussion was also valued:
‘They have much knowledge on women’s issues. If male staff work with women’s groups, both sides are shy to talk [about some particular issues]; so they are more comfortable and more open when female staff work with them. If they can train their peers to be leaders in DMCs, then it would be even greater. MOWA are also involved in EPRP preparation processes and with NCDD.’
3.3.5 KEY RECOMMENDATIONS BY FGD PARTICIPANTS
This section highlights key recommendations on redressing gender balance in leadership and participation at local level, as highlighted by the participants of the FGDs.
Throughout the research, FGD participants were asked what ideas they had for redressing the gender balance in local-level DM and DRR leadership and participation. Many of the responses centred around further support from the government: for instance, the need for financial support for VDMGs including proper salaries and incentives (transportation, expenses) for young people. The need for more family planning training for women and men was also raised, as too many children sustain poverty and women do not have time to engage with community work.
Further ideas included engaging women government employees in DM and DRR work, such as disaster response and encouraging them into leadership roles. Another was training on gender concepts in DRR, to both male and female villagers, to promote a deeper understanding of each other’s roles and how they could cooperate to lessen the burden of women. Participants also suggested a mentoring scheme for promising young women with assistance from DoWA and DMCs. Further income generation activities were requested to help families cope following the shock of a disaster.
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3.3.6 SUMMARY OF KEY FINDINGS AND RECOMMENDATIONS
KEY FINDINGS:
• The composition of PCDMs, DCDMs and CCDMs follow existing sub-national government council structures. As these structures are underpinned by patriarchy, leadership roles are mostly held by men. This represents a strong systemic and structural barrier to women’s leadership in DRR and DM. In the target research areas of Kampong Speu and Kampong Thom it was found that only 12% of PCDM and DCDM members, and 21% of CCDM and VDMG members, were women. • VDMGs are not subject to these prevailing structures, allowing more scope for women to join. • The elderly demographic composition of DMCs leads to opportunities for women to fill positions vacated by retiring committee members, especially at the lower levels. • Despite the low number of women in leadership within PCDMs and DCDMs, encouraging examples were found of several women in those positions subsequently appointing further women to DMCs. • Barriers for women’s participation at the CCDM level in particular were identified as insufficient salary, lack of capability and confidence (including low literacy rates), tradition, culture and beliefs, and a lack of appreciation of the importance of women’s roles. These are deep-seated challenges that require long-term strategies such as advocacy and awareness-raising. • Patterns of both men and women migrating for work vary greatly in both Kampong Speu and Kampong Thom. This affects the extent to which men and women are available for inclusion in DM and DRR structures. Most commonly, women migrate from Kampong Speu to work in garment factories and men migrate from Kampong Thom for various types of work. This is an opportunity to target men or women for participation in DM/DRR according to local gender imbalances. • Young women reported a preference for working in construction or garment factories, rather than serving on DMCs or taking low-paid government jobs. • The identification of the poorest and most vulnerable at DM planning stage (often women) may lead to the inclusion of vulnerable families in other project work, thereby strengthening their capacity to deal with future disaster. This includes, for example, families suffering domestic violence. • The Saving for Change project is successful in building resilience to disaster in women and their families, and helps build social capital. • Saving for Change female members are increasingly involved in the local-level DRR planning process and small numbers have been recruited to VDMGs. While this is an important step, they have yet to enter further community work or take up leadership roles. • Opportunities were identified to combine DRR and DM project work with wider programmatic approaches such as gender awareness and GBV awareness.
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RECOMMENDATIONS
• Identify and link with women in key leadership roles in PCDMs and DCDMs, with the assistance of DoWA and other stakeholders such as the UN in order to: o Produce local strategies for identification of potential young women leaders in DM, and mentor them for upcoming positions in DMCs. o Advocate at the sub-national level for women to be seconded to DM leadership positions out of government structure lines; or advocate for a new women’s leadership position within the structure. Alternatively, a separate committee for women in disasters could be established. • Link with women commune councillors to identify promising young women to engage in DM at the village and commune levels, mentor them and advocate for their inclusion on CCDMs as gaps arise. • Link with women’s NGOs that are currently advocating for an increase in women in sub-national leadership roles to mainstream DM committees and DM/DRR issues into their advocacy. • Where there is a lack of young male participation in DM and DRR e.g. in Kampong Thom, actively target men as identified above. • Establish a database of all members on DMCs, identify actual and forthcoming gaps, and advocate for new women members to fill these gaps. Advocate for government budget to be allocated through NCDM to establish and maintain the database. • Encourage SfC members to enter leadership roles in the wider community, as well as in DRR/DM roles, by providing leadership training/mentoring and linking them with female Commune Councillors (see above). • Extend SfC or home gardening initiatives in disaster-affected areas to build resilience in vulnerable communities and to increase participation in wider areas. • Target young men and women with DRR and DM messaging and encourage their engagement by attracting them with roadshows/concerts and social media. • Advocate for government budget provision for VDMG members to work in the community on DM and DRR, especially transportation for women so they can join consultation meetings.
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SECTION 4: PAR REVIEW OF CONSORTIUM PARTNER TRAINING, GUIDELINES AND TOOLS
This section of the PAR examines current DM and DRR planning materials utilised at the sub- national level, as reviewed previously in the Gender Audit (Section 2.5).These include provincial-and district-level EPRP guidelines and tools; and commune- and village-level CBDRR ToT guidelines and tools, including the Hazard, Vulnerability and Capacity Assessment (HVCA). While these were found to have introduced certain aspects of gender, opportunity exists for mainstreaming throughout all tools.
This PAR review explores if current training, guidelines and tools promote gender sensitivity in our planning and responses, and collects experiences and ideas for improvement. This was explored through both KIIs and FGDs, and through key research questions:
• What instructions and training exists, and were women/men equally included? • What was helpful for planning from a gender point of view, and did it promote a deeper understanding of the gender aspects of DM? • What tools were used, and what gender-sensitive information collected? • What gaps are there in gender-disaggregated information and how can we make improvements?
4.1 CBDRR TRAINING AND PARTICIPATION
ToT leaders were often reported as men, in line with the leadership structures of DMCs, although women trainers were also encouraged:
‘The village chief is the one who leads on the use of these tools, because he is the director of the VDMG...’ - VDMG Members, Kampong Speu
Key informants confirmed that training was carried out by both men and women, although there no quota for this is stipulated in the guidelines. The gender of participants depended on the factors mentioned in Section 3 regarding the gender composition of CCDMs and VDMGs, and the availability of men and women within that community.
This varied according to local demographics and work opportunities but there is a trend for older people to be involved both on DMCs and in disaster management and disaster risk reduction activities, including training. This is due largely to their availability. The quality of involvement was therefore thought to suffer due to illiteracy and lack of energy in older community members.
Interestingly, the gender of those migrating for work was generally different in Kampong Thom to Kampong Speu.
‘As Kampong Speu is more urban and closer to the city, women often migrate to nearby garment factories when they need work; but in Kampong Thom it is men who often look for work outside the village. It depends very much on the local area.’ -LWD Representative (Female).
Women are more available for village-level meetings held close to home but numerous demands on their time may restrict them from attending; or they may have to leave early to attend to children or chores.
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4.2 CBDRR TOOLS AND GENDER SENSITIVITY
Responses indicated that low literacy within these communities, especially among women, demands that training tools be visual, participatory and user-friendly, especially at commune and village level. Photos are often used, and this is particularly useful for women who are less able to read or write.
When asked how they collect information and what had been learned in trainings, the specifics of various tools and tasks were hard for FGD groups to recall. When prompted, all FGDs recalled quantitative data collection tools, including the HCVA form, including gender-disaggregated data.
There were mixed responses regarding how useful this was in planning for disaster and prioritising the most vulnerable with a gender lens:
‘We need more support in order to be able to do gender. We focus on poor families rather than focussing on men, women, boys and girls because they are related to each other. – VDMG Members, Kampong Thom’.
‘We do not know about gender tools. CCDM and VDMGs do not know how to do DRR planning. We just learnt that we need to share DRR information with VDMG (pre, during, and post disaster).’ - CCDM Members, Kampong Thom
4.2.1 GENDER ROLE MAPPING TOOL
The HVCA Guidelines include 12 tools, but only the Gender Role Map (Tool 6) is specifically related to gender.
‘Through the Gender Role Map tool, we have found that women are still busier than men. After analysing [the data through those] tools, we found that women have heavier burdens both before, during and after disaster [since] women are the ones in charge of preparing food, clothes and other materials. - HOM Project Staff (Female).
Separate funding may be necessary in order to fully implement this tool. The tool is useful for gaining understanding of the changing roles of women and men before, during and after a disaster. But it does not examine the impacts of disasters such as changing requirements for various resources, nor the barriers and constraints that women and men may face in accessing resources.
For the purpose of the PAR, a tool was designed to open broader discussions on the effects of disaster on different gender groups in local communities(see Appendix 3).This helped participants to identify the most vulnerable people, and to elicit ideas on how to better address their needs in future.
It is suggested that a similar tool may be useful for implementation in future planning. While HCVA tools do have the capacity to explore some of these elements, a specific participatory and visual tool aimed at the village level may be more effective. Although only a short time was devoted to qualitative research for this study, it was deemed helpful:
‘We should have this kind of group discussion like we did today so that we can identify gender more easily than before. Because so far people find it very difficult to think about the different needs of boys, girls, men and women.’ - CCDM Member, Kampong Speu
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4.3 QUANTITATIVE DATA COLLECTION AT VILLAGE AND COMMUNE LEVELS
HVCA data is collected monthly at the village and commune levels, and regularly passed to the district and provincial levels. This mainly involves updating demographic information useful for identifying the most vulnerable people (for general council planning in addition to DRR): males; females, female-headed households; schoolchildren; the elderly; the disabled; and the ID Poor.
A key point is that information is collected in the data fields stipulated in the HVCA forms from the village and commune data books. Thesesex-disaggregated data fields are limited and would benefit from revision. For instance, males are not disaggregated by men/boys and females are not disaggregated by women/girls. Schoolchildren, the elderly and the disabled are not sex- disaggregated.
It was recognised that, in general, the tools and processes were useful for community-level planning, but the lack of women participating left a gap in community-level knowledge for inclusion in the data:
‘It helps us to identify the most vulnerable people much easier...We do need information from the most vulnerable people and most of them are women... We always have meetings with VDMG for developing the plan, then we bring the plan to consult with villagers via a meeting with them in each village....Usually, women have much more work to do at home than the men so they cannot fully participate... So, some information may be lost.’ -VDMG Member Kampong Speu
4.4 KEY FINDINGS AND RECOMMENDATIONS
4.4.1 KEY FINDINGS
• There is insufficient gender mainstreaming into many of the CBDRR and HVCA tools, and in data collection tools. • The key quantitative monthly data collection at the village level is gender-disaggregated to a degree but would benefit from further disaggregation, including children into boys / girls. • Qualitative data collection, which is valuable from a gender perspective, is undertaken once per year and requires specific skills and focus. There may not be sufficient time or resources to prioritise gender training and tools. • CCDMs, VDMGs and local partners require gender-specific guidance in their work. DoWAs are well placed and respected locally, at least in the areas targeted in this research, to fulfil this role. • The Gender Role Mapping Tool requires a revision to broaden its scope and may need extra resources to secure routine implementation. • Low literacy levels, a lack of education and a lack of confidence, especially in women, requires a simplified participatory approach. Due to the lack of learning experience, participants may need more than one training in order to fully absorb information, especially at the commune and village levels. • The lack of women’s leadership on committees and a lack of women’s involvement in data collection may also lead to a lack of gender focus and a lack of detailed community level information, which women are experienced to provide.
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4.4.2 RECOMMENDATIONS
• Ensure revision of CBDRR guidelines and tools (above) for further sex disaggregation of data e.g. ‘children’ into boys/girls. • Improve understanding of gender concepts by enhancing EPRP guidelines/tools to include deeper aspects of gender relations and the importance of engaging both men and women in the process. These tools require more specific gender orientation and direction, as detailed within this study. • In training sessions, a focus on the challenges males face at times of disaster –e.g. physical risks during response, loss of income and identity, predisposition to alcohol abuse and the negative impacts on the family – could be included to redress the concept of ‘gender’ as a female topic. • Revision of CBDRR guidelines and tools to mainstream gender throughout and to be more user- friendly to those with low literacy and education (especially women) with more pictures, videos etc. • More frequent and simplified training at the commune and village levels, and more resources allocated to keep repeating the message to those with less capability and confidence – especially women. • Advocate for further involvement of DoWA to build capacity at DM trainings by injecting specific gender expertise. This will support new gender-sensitive guidelines, tools and information gathering at the commune and village levels. • Further sex-disaggregated data collected at the local level and provide more capacity-building and mentoring for CCDMs. CCDMs are key in local-level data collection but their capacity and literacy rates remain low – especially women. NGO partners are well positioned to identify CCDMs who may be weak in this area, and provide additional support, or advocate for additional support/resources from local government. • Build the capacity of CCDMs to use planning tools independently and adhere to planning cycles, to prevent DCDMs and NGOs having to intervene for efficient data collection. • Advocate with government to provide gender training and disaggregated data collection budgets at the local level, especially transport costs. • Ensure revision of CBDRR guidelines and tools for further sex disaggregation of data e.g. ‘children’ into boys/girls.
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SECTION 5: SUMMARY LIST OF FINDINGS AND RECOMMENDATIONS
5.1 KEY FINDINGS – NATIONAL LEVEL
Entry points for national level advocacy and joint working include:
5.1.1 MOWA
• The Ministry of Women’s Affairs is a key entry point for influencing gender-related processes in DM and DRR. MoWA has an inter-ministerial mandate of gender mainstreaming, including within sectoral plans, such as EPRPs for education and health. These are key to ensuring gender balance in planning and emergency response. Many of these ministerial level plans are currently under development, and there is a need to link these to research and evidence of local level good practice. • MoWA is also working closely with the NCCC and CCCA and has influenced the development of the CCCSP. It has established a Gender and Climate Change Strategic Plan and a Gender and Climate Change Committee. Many of the core elements of the MoWA GCCSP, such as promoting women in decision-making and targeted interventions for vulnerable women, are also highlighted in this study’s PAR findings . • Linking sub-national Disaster Management Committees and local DoWAs is valuable at all levels, and meets with the GCCSP objective: ‘Increase the level of capacity of MoWA and its decentralized offices and stakeholders on gender-integrated vulnerability and capacity assessment, planning methods for climate change.’
5.1.2 LINKS BETWEEN CLIMATE CHANGE ADAPTATION AND DISASTER RISK REDUCTION
• Disaster risk reduction is closely related to climate change adaptation in many ways, but the overlaps and opportunities for joint working are rarely explored. Climate change is a priority issue in Cambodia, led by the NCCC, CCCA and other stakeholders which have strong links with the UN and MoWA. • However, the link between climate change and disaster is not always made clear by these various committees in their plans and strategies; and there does not appear to be much communication between NCDM and respective sub-national structures of NCCC and CCCA. • At the time of writing there are several new climate change initiatives which may have a potential to link to DM and DRR work. Their gender aspects should also be explored.
5.1.3 OTHER STAKEHOLDERS
• The Joint Action Group for DRR (JAG) is a key forum for international NGOs to lobby for gender integration in disaster management and disaster risk reduction policy and practice, such as through position papers. • The UN is also an important stakeholder: for instance, UNDP is involved in several climate change initiatives (e.g. CCCA), and the World Food Programme is the co-chair of the HRF. • The Asian Development Bank has also recently granted funds through its Strategic Climate Fund of the Climate Investment Funds to enhance community resilience to climate change impacts.
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5.2 RECOMMENDATIONS – NATIONAL LEVEL
• Strengthen links with NCCC, CCCA and climate change-related processes at all levels to identify opportunities for joint working, future funding and the implementation of gender mainstreaming in DRR and climate change. • Strengthen links with UNDP and ADB and explore opportunities for joint working, especially regarding integrating DRR and gender into climate change adaptation work. • Lobby line ministries for further mainstreaming of DRR and gender aspects into future policy and operational plans. • Work with MoWA to integrate gender into DM and DRR strategies and implementation, and to further involve DoWA at sub-national level in planning, DM and DRR. Advocate for increased capacity building and budget allocation to support this. • Work with the JAG as a key forum for joint advocacy and lobbying for gender integration into DRR policy. • Work with the UN, recognised as an important driver, particularly with respect to the HRF and its work supporting disaster response in Cambodia. There are opportunities for international NGOs to lobby on gender integration into future policy and position papers. • Advocate for further gender mainstreaming within the implementation of the new NAP-DRR 2014- 2018 and continue this advocacy to ensure that gender is efficiently mainstreamed into the next NAP- DRR planning cycle (2019-2023). • Explore possibilities to fill the gap identified by MoWA for gender-disaggregated data on disasters to flow from the sub-national to the national level upwards e.g. through PCDMS to MoWA.
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5.3 KEY FINDINGS–SUB-NATIONAL LEVEL
5.3.1 GENDER AWARENESS
• A deeper understanding of gender concepts is needed amongst DMC members, and the inclusion of the deeper social relations at family and community level should be understood to include both genders. Current project activities have started to address this but there is room for improvement. • Focus group discussions with CCDMs and VDMGs evidenced growing awareness of how women, men, girls and boys experience disaster differently. However, the word ‘gender’ is thought to refer to women and children, and gender-related issues are deemed to be the domain of females.
5.3.2 SERVING THE MOST VULNERABLE AND STRENGTHENING RESILIENCE
• Project training and activities have helped to strengthen the disaster response line at the local level, thereby improving support for the most vulnerable. Priority is often given to women and children at times of disaster; girls and women are considered more vulnerable than boys and men. The disabled, elderly and sick are also prioritized. This was attributed largely to successful identification of the most vulnerable through HCVA mapping activities. • The identification of the poorest and most vulnerable (often women) at the DM planning stage has sometimes led to the inclusion of vulnerable families in other project work, thereby strengthening their capacity to deal with future disaster. There is further potential to build on this as a strategy to assist the most vulnerable. • The Saving for Change project is successful in building resilience to disaster in women and their families, and provides social support and networks. • High rates of poverty, a lack of education (especially in females) and a lack of healthcare were identified as continuing challenges impacting on the most vulnerable in disaster areas. These issues are out of the scope of this project per se, but advocacy recommendations regarding DM/DRR and gender aspects could be made within the sectors.
5.3.3 DISASTER MANAGEMENT COMMITTEES AND WOMEN’S LEADERSHIP/PARTICIPATION
• The composition of PCDMs, DCDMs and CCDMs follow existing sub-national government council structures. As these structures are underpinned by patriarchy, leadership roles are held mostly by men. This represents a strong systemic and structural barrier to women’s leadership in DRR and DM. In the target research areas of Kampong Speu and Kampong Thom it was found that only 12% of PCDM and DCDM members are women and only 21% of CCDM and VDMG members are women. • VDMGs are not subject to these prevailing structures, allowing more scope for women to join. • The elderly demographic composition of DMCs leads to opportunities for women to fill positions vacated by retiring committee members, especially at the lower levels, which are not governed by such structures. • Despite the low number of women in leadership within PCDMs and DCDMs, encouraging examples were found of several women in those positions subsequently appointing further women to DMCs. • Barriers for women’s participation at the CCDM level in particular were identified as insufficient salary, lack of capability and confidence (including low literacy rates), tradition, culture and beliefs, and a lack of appreciation of the importance of women’s roles. These are deep-seated challenges which require long-term strategies such as advocacy and awareness-raising. • The identification of the poorest and most vulnerable at the DM planning stage (often women) may lead to the inclusion of vulnerable families in other project work, thereby strengthening their capacity to deal with future disaster. This includes, for example, families suffering domestic violence. • Saving for Change female members are increasingly involved in local-level DRR planning processes and small numbers have been recruited to VDMGs. While this is an important step, they have yet to enter further community work or take up leadership roles. • Opportunities were identified to combine DRR and DM project work with wider programmatic approaches such as gender awareness and GBV awareness.
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5.3.4 JOBS AND MIGRATION
• Patterns of both men and women migrating for work vary greatly in both Kampong Speu and Kampong Thom, and this affects the extent to which men and women are available for inclusion in DM and DRR structures. • Most commonly women migrate to garment factories from Kampong Speu and men migrate for various types of work from Kampong Thom. This demographic provides a challenge for project capacity building and consistency in participation for both women and men. However, there are opportunities for specific targeting where there are gender imbalances in local areas. • Young women reported a preference for working in construction or in garment factories, rather than serving on DMCs or taking low paid government jobs. This provides a challenge in engaging young women in DM/DRR activities in future. The PAR indicated however, that some young women can be identified as interested in taking future leadership roles.
5.3.5 GENDER SENSITIVITY IN TRAINING AND TOOLS
• There is insufficient gender focus in EPRP guidelines and in the EPRPs reviewed. • There is insufficient gender mainstreaming into many of the CBDRR and EPRP tools. It was clear from the PAR that at the commune and village levels, the term ‘gender’ is deemed about ‘women and children’ and that related project activities were thought the responsibility of women and not men. • CCDMs, VDMGs and local partners require gender-specific guidance in their work. DoWAs, at least in the areas targeted in this research, are respected locally and well placed to fulfil this role. • The Gender Role Mapping Tool requires a revision to broaden its scope and may need extra resources to secure routine implementation. • Low literacy levels, a lack of education and a lack of confidence, especially in women, requires a simplified participatory approach. Due to their lack of learning experience, participants may need more than one training in order to fully absorb information, especially at commune and village levels.
5.3.6 GENDER DISAGGREGATED DATA COLLECTION
• Key quantitative data is collected monthly as a general data collection for council planning purposes (in addition to DRR). This is gender disaggregated to a degree, but would benefit from further disaggregation (e.g. of children into boys and girls). • Qualitative data collection, which is valuable from a gender perspective, is undertaken once per year and requires specific skills and focus. There may not be sufficient time or resources to prioritize gender training and tools. • Lack of women’s leadership on committees and a lack of women’s involvement in data collection may lead to a lack of gender focus and a lack of detailed community level information, which women are experienced to provide.
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5.4 RECOMMENDATIONS - SUB-NATIONAL LEVEL
5.4.1 GENDER AWARENESS
• A deeper understanding of gender is needed amongst DMC members, and the inclusion of the deeper social relations at family and community level should be explored to include both genders. • In CBDRR training sessions, a focus on the challenges males face at times of disaster, for instance, physical risks at response stage, loss of income and identity, predisposition to alcohol abuse and the negative impacts on the family, could be included to redress the concept of ‘gender’ as a female topic. • The disaggregation of ‘children’ into boys/girls in the planning phase is also needed to improve gender aspects.
5.4.2 SERVING THE MOST VULNERABLE AND STRENGTHENING RESILIENCE
• Link the most vulnerable, as identified through DM and DRR work, to other NGO/government assistance opportunities in the area to help strengthen women and their families’ resilience. • To address the links between disaster management and the longer-term issues of poverty, health, education, and food security, stakeholders should advocate national and sub-national government for the implementation of pro-poor policies. Regarding gender specifically, it is recommended to advocate with MoWA to push for further inclusion of gender and DM and DRR within sector plans. (See Recommendations in Gender Audit Section – Section 2.4) • Extend SfC and home gardening initiatives in disaster-affected areas to build the resilience of women and their families in vulnerable communities (especially in female-headed households). • Encourage SfC groups to formally network and share strategies for DRR and encourage female members to take up positions on DMCs.
5.4.3 DISASTER MANAGEMENT COMMITTEES AND WOMEN’S LEADERSHIP/PARTICIPATION
• Identify and link with women in key leadership roles in PCDMs and DCDMs, with the assistance of DoWA and other stakeholders such as the UN in order to: o Produce a local strategy for the identification of potential young women leaders in DM and mentor them for upcoming positions in DMCs. o Advocate at sub-national level for women to be seconded to DM leadership positions out of government structure lines, or advocate for a new women’s leadership position within the structure. Alternatively, a separate committee for women in disasters could be established. • Link with women commune councillors to identify promising young women to engage in DM at village and commune level, mentor them and advocate for their inclusion on CCDMs as gaps arise. • Link with women’s NGOs that are currently advocating for an increase in women in sub-national leadership roles to mainstream DM committees and DM/DRR issues into their advocacy (e.g. GADC, Women for Prosperity, Silaka). • Where there is a lack of young male participation in DM and DRR e.g. in Kampong Thom, actively target men. • Establish a database of all members on DMCs, identify actual and forthcoming gaps and advocate for new women members to fill these gaps. Advocate for government budget to be allocated through NCDM to establish and maintain the database. • Encourage SfC members to enter leadership roles in the wider community and DM by providing leadership training/mentoring and linking them with female Commune Councillors (see above). • Target young men and women with DRR and DM messaging and encourage their engagement by attracting them with roadshows/concerts and social media. • Advocate for government budget provision for VDMG members to work in the community on DM and DRR, especially transportation for women so they can join consultation meetings.
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5.4.4 JOBS AND MIGRATION
• Future project activity should take into account local migration patterns of women and men, which produce gender imbalances. This could be addressed by actively encouraging more women/men to be involved in particular areas, including in data collection or participation in committees to redress the disparity. • CBDRR trainings should be cascaded down through the committees to any women and men who are returning to the village following migration to ensure that DRR training reaches those most in need, especially returning women.
5.4.5 GENDER SENSITIVITY IN TRAINING AND TOOLS
• Improve understanding of gender concepts by enhancing EPRP guidelines/tools to include deeper aspects of gender relations and the importance of engaging both men and women in the process. These tools require more specific gender orientation and direction, as detailed within this study. • Revision of CBDRR guidelines and tools to mainstream gender throughout and to be more user- friendly to those with low literacy and education (especially women) with more pictures, videos etc. • More frequent and simplified training at commune and village level, and more resources allocated for this, to keep repeating the message to those with less capability and confidence - especially women. • Advocate for further involvement of DoWA to build the capacity at DM trainings by injecting specific gender expertise. This will support any new gender-sensitive guidelines, tools and information gathering at the commune and village levels.
5.4.6 GENDER DISAGGREGATED DATACOLLECTION
• Provide more capacity building and mentoring for CCDMs as they are key in local level data collection but their capacity and literacy rates remain low - especially among women. NGO partners are well positioned to identify weak CCDMs and provide additional support, or to advocate for additional support/resources from local government. • Build the capacity of CCDMs to use planning tools independently and adhere to planning cycles, to prevent DCDMs and NGOs having to support efficient data collection. • Advocate with government to provide budget for gender training and disaggregated data collection at local levels, especially transport costs. • Ensure revision of CBDRR guidelines and tools (above) for further sex disaggregation of data, including for ‘children’ into boys/girls; and also to include qualitative information on the deeper gender aspects..
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SECTION 6: CONCLUSION
‘Building Disaster Resilient Communities II’ has made a good start towards achieving a key indicator: ‘Women’s involvement in DRR planning and Disaster Recovery has increased by end of project (Result 3, Indicator 5)’.
It is particularly valuable to improve the resilience of the poorest and most vulnerable who are often identified as women and girls; a fact that the PAR within this study confirms. Overall progress is slow, however. While gender awareness is improving, and the project is helping to identify vulnerable people for assistance (such as ID-Poor families), there is still room for improvement to further enhance gender aspects into project activities, trainings and tools.
As a result of structural and systemic challenges arising from Cambodia’s patriarchal bias, gender imbalances in favour of men persist. Disaster management operates within government structures where women’s opportunity for participation and leadership is limited and there are no quotas for women’s inclusion on DM committees or in leadership roles.
As those in poor rural areas continue to experience the crippling challenges of disaster, worsened by the negative influence of climate change, the need to continue mainstreaming gender and DRR (for example through projects such as ‘Building Disaster Resilient Communities II’) is more important than ever.
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7. REFERENCES, DOCUMENTS REVIEWED, FURTHER READING
7.1REFERENCES
AusAid.Triple Jeopardy Research Working Paper Series.Available at:http://dfat.gov.au/about- us/publications/Documents/triple-jeopardy-working-paper.pdf. (2013) Gender and Development Cambodia.DeoumTroung Pram Hath in Modern Cambodia: A Qualitative Exploration of Gender Norms, Masculinity and Domestic Violence. (2010) International Labour Organisation.A Manual for Gender Audit Facilitators: The ILO Participatory Gender Audit Methodology (2nd edition). (2012) Ministry of Planning, Royal Government of Cambodia.Migration in Cambodia: Report on Cambodia Rural Urban Migration. (2012) Ministry of Women’s Affairs, Royal Government of Cambodia. Draft Concept Note for MoWA Thematic Area and PBA. Gender Responsive Governance, Leadership and Decision Making. (March 2015). Ministry of Women’s Affairs, Royal Government of Cambodia.Gender and Climate Change: Green Growth and Disaster Risk Management. Cambodia Gender Assessment - Policy Brief 10. (2014) Ministry of Women’s Affairs, Royal Government of Cambodia. A Fair Share for Women: Cambodia Gender Assessment. (March 2008) Oxfam.Gender Equality and Women’s Rights in Emergencies: Oxfam Emergency Managers Network, Gender in Emergencies sub-group. (September 2011) Oxfam America. Study on Women’s Empowerment and Leadership in Saving for Change Groups in Cambodia. (July 2014) Richter, Iris. Technical Manual on Mainstreaming of Climate Change Adaptation and Disaster Risk Management into Commune/Sangkat Planning. (October 2014) Chanty, S.andHaySamchan for ActionAid Cambodia.Flood Impacts on Women: Exploring the Possibility of Gender Sensitive DRR Planning. (January 2014) UNISDR, UNDP and IUCN.Making Disaster Risk Reduction Gender Sensitive: Policy and Practical Guidelines. (2009) Urashima, Cheryl and Tong Soprach for Royal Government of Cambodia.Gender Audits for the IP3 Final Report.NCDD Secretariat and Ministry of Interior. (2014) USAID Women’s leadership as a route to greater empowerment: Cambodia Case Study. Management Systems International for. (Dec 2014)
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7.2 DOCUMENTS REVIEWED
7.2.1 NATIONAL LEVEL
National Strategic Development Plan (NSDP) (2014-2018) National Action Plan for Disaster Risk Reduction (NAP-DRR) 2014-2018 Disaster Management Law (October 2014, un-official translation in English) Cambodia Climate Change Strategic Plan (CCCSP) (2014-2023) Gender and Climate Change Strategic Plan (GCCSP) (February 2013) NearyRattanak IV (2014-2018) Emergency Preparedness and Response Plan for Education Sector (2014)
7.2.2 SUB-NATIONAL LEVEL
Technical Manual on Mainstreaming of Climate Change Adaptation and Disaster Risk Management into Commune/Sangkat Planning. Iris Richter. (October 2014) Training Module for Community Based Disaster Risk Reduction Training of Trainers (CBDRR TOT) Technical Instructions for Emergency Preparedness Response Plans (EPRPs), Municipal, Provincial, District (Khan). (June 2013) Kampong Thom Provincial Committee for Disaster Management Updated Contingency Plan. (January 2015) EPRP Kampong Speu Provincial DRR Action Plan. (September 2013)
7.3 FURTHER READING
ActionAid et. al. What Works for Women: Proven approaches for empowering women smallholders and achieving food security. (2012) Asian Development Bank. Women’s Economic Empowerment in Cambodia. (2015) (See Section 5: Girls and Women’s Vulnerability to Shocks and Crisis.) CCHR.Politics in the Kingdom: Increasing Female Representation.2013 National Assembly Elections. Supplement. Ministry of Women’s Affairs, Royal Government of Cambodia. Policy Brief 7. Violence Against Women and Girls: Cambodia Gender Assessment. (2014) Oxfam GB. Gender and Disaster Risk Reduction: A training pack. (July 2011) UNDP.Adaptive Social Protection in Cambodia: Strategy paper.(2015) UNDP, UNFPA, UN Women, UNV. Why Do Some Men Use Violence Against Women and How Can We Prevent It? (2013) World Bank.Gender Equality Vis-a-Vis Agriculture and Climate Change. Agriculture and Environment Services Dept Notes, Issue 6. (February 2014)
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APPENDIX 1: ACCOMPANYING NOTES ON CBDRR AND EPRP TOOLS AND TRAINING
Much of this section is translated from guidance notes written in Khmer, therefore allowance should be made for some language differences.
PART 1: TRAINING MODULE FOR CBDRR ToT
SECTION 1: ORGANIZATION MECHANISM AND MANAGEMENT STRUCTURE OF DISASTER MANAGEMENT COMMITTEES.
This consists of the following: 1- Biography and Management Structure, national level 2- Disaster management committee, municipal/province, Khan/district level. 3- Disaster management committee, Sangkat/commune.
A table illustrating the composition of the National Disaster Management Committee and the sub-national level committees is shown in Appendix 4. The Prime Minister heads the NCDM and most committee members are Ministers of key Ministries. The Minister for Women’s Affairs is shown as a member but otherwise there is no indication or guidance on gender composition. However, the focal person from the Health and Hygiene Team is usually a representative of the DoWA.
The structures for the committees at municipal/provincial level, khan/district level and sangkat/commune level are also shown at Appendix 4. These specify the titles of committee members without any indication of particular individuals to reveal the gender composition of these committees.
There is, however, a requirement that one member should be allocated from the Ministry of Women’s Affairs to each committee. There is no mention of specific quotas for male or female members to be seconded to these committees.
The Disaster Management Committees (DMCs) at municipal/provincial level and khan/district level consist of 4 groups: 1- Exploring, Saving and Security Team 2- Health and Hygiene Team 3- Educational Information and Broadcasting Management Team 4- Response, Emergency and Recovery Team
Each district/khan DMC has four-operation teams and assigns one municipal executive director as leader. It is stipulated that the Director of Women’s Affairs must be assigned to the role of Deputy Director for the Hygiene and Health Management team. The Director of Social Affairs is assigned as Executive Director for the Disaster Response, Emergency and Recovery team. . In contrast the DMC at commune/sangkat level consists of:
1- Saving and Security Team, 2- Hygiene and Health Team 3- Responsive and Informative Team
There is no stipulation within the EPRP regarding who should be appointed to these teams, including no quota for men or women’s participation.
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SECTION 1: GENERAL CONCEPT OF DISASTER AND DISASTER MANAGEMENT
1- Definition of technical term of Disaster and Disaster Management 2- Disaster Conceptual Framework and Disaster Management 3- The Understanding of Climate Change
This section focuses on the main causes of climate change, definitions, impact on agricultural systems, water resources, coastal areas etc.
It does not examine ways in which these may impact women and men differently, for instance, in consideration of the different barriers and constraints women and men face in accessing resources. The conceptual framework and understanding of climate change also does not include gender aspects.
SECTION 2: RISK EVALUATION AND ANALYSIS
1- Risk Evaluation 2- Risk Evaluation Tools 3- Risk Analysis
The pre-existing vulnerabilities of communities are analysed within three categories:
1- Economic condition: economic downturn, low paid wages, unemployment, and poverty 2- Social condition: weak administration and local authority mechanisms, responsibilities/roles, loopholes in law and policies in terms of disaster management, lack of gender awareness, lack of understanding on disaster risks, lack of public health services, and lack of participation from community members and involving stakeholders , low level of education, tradition, customs and negative believes, conflicts, and dependency on aid etc. 3- Physical condition: this condition refers to the lacking of natural resources, human resources, unhealthiness and weakness of infrastructure, and general basic materials in the community such as public construction, dams, ponds, wells, roads transportation, risk management warning proclamation system, and communication tools, etc.
Competencies: knowledge, skills, resources, capacities, and energies of the individuals, families, communities and other institutions to make them more capable of resisting, preventing, and reducing disasters; or able to recover more quickly following disasters.
Competences of a community are analysed on 3 main conditions: 1- Economic condition: economic strength, high or decent paid wages, employment 2- Social condition: strong administration and local authority mechanisms, being responsible on roles, having sufficient legal grounds and policies with procedures and effective implementation in term of disaster management, gender promotion, understanding on disaster risks, activeness of public health services, and having a strong commitment of participation from community members and involving stakeholders, high level of education, tradition, custom and positive beliefs, harmonies, and hardworking to self-help etc. 3- Physical condition: this condition refers to the natural resources, existing human resources, healthiness and strength of infrastructure, and general basic materials in the community such as forest, river, marsh, reservoir, public construction, dam, pond, well, road, transportation, risk management proclamation system, and communicative tools, etc. to be made as useful tools to resist and face against disaster crises.
The above risk assessment does not have sufficient gender sensitivity, particularly regarding social conditions.
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SECTION 3: CONSEQUENCES OF ECONOMY, SOCIETY, AND POLITICS
Disasters have a negative impact on economic development. After disasters many economic activities are reduced or interrupted; citizens become unemployed and have to spend time on activities related to disasters such as evacuating, searching, and rescuing, or treating survivors. Poor communities, living standards and houses are completely destroyed which results in insufficient basic needs such as food and shelter. Usually, the disasters make poor families poorer. As we have such instability could we recover the economy steadily if the disasters happen on a large scale? After disasters, loss of family members, frustration, and depression are important societal issues along with hopelessness, loss of businesses, and unemployment. This could lead to migration for employment, bringing with it new issues such as engaging in dangerous jobs and transmission of disease.
Assessment risks are related to three important conditions:
1- Assessment on the risk signals: Analysis on risk signal indicators and threats to the communities – to include understanding of the root causes of risk signals e.g. how are they leading to the disasters? 2- Assessment on the vulnerabilities: What are the challenges/threats concerning risk signals and why would assets be destroyed? 3- Assessment on the competencies: Finding resources in the communities to be used to reduce the risks of the disasters.
The understanding of citizens concerning risks of disaster and how different citizens in the communities understand various levels of risk are divided as follows: - Sex: Female-Male - Age - Culture - Nations - Education or Level of Education - Economic Status
This should include more gender sensitive information; for instance, disaggregating information by women, men, boys, girls and should also include sub-groups such as female headed households, widowers, the elderly and disabled.
RISK ASSESSMENT TOOLS 1- Community History 2- Map: risk signals, vulnerabilities, and competencies 3- Map 4- Seasonal Calendar 5- Organizations and Related Institutions in the Communities 6- Analytical List of Climate Change Impacts 7- Gender Role Model Tool 8- Timetable
The following information is collected to record the communities’ history:
• Location: land and area of the communities • Demography: number of the citizens, cultures, traditions, beliefs, and religions • Population: male, female, children from the age of 5-17, elderly, the sick, disabled citizens, people living with HIV or AIDS, , female headed household, poor families ID Poor 1, and poor families ID Poor 2. • Social activities: administrative structure, legal principles, security, community buildings, and communications with other relevant stakeholders.
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• Economic activities: living standards, occupation, products of local communities, investment, and labor market • Personalities of the citizens in the communities in general: hardworking, laziness, dependency, and superstition • Natural resources: communities resources, human resources • Vulnerabilities: human, and physical resource • Important risk signals and escaping from disaster • Details of the existing instructions communities have on dealing with disaster – before, during and after.
This information has the potential to collect relevant gender disaggregated information that may be used for gender analysis on why shocks make the vulnerable even more vulnerable. For instance with respect to widows, female headed households, boys and girl, sick men and women and elderly men and women.
GENDER ROLE MAPPING TOOL
This exercise is useful in mapping the changing roles of women and men before, during and after disasters. It can promote understanding of the changing burdens, roles and responsibilities of different social groups. However, the question remains regarding its practical application. For example: do we know what are the barriers and constraints for women and men in addressing the issues they face before, during and after disasters; do we know who has access to resources; who has social networks to draw upon? This tool could be expanded further as also described in the study findings - which recommend that gender aspects should be further integrated into all the tools generally, not just focused in a specific one.
Details of the Gender Role Mapping Tool follow: Objective To understand the different roles of men and women in order to reduce risks and respond to the disasters
Materials • Flip charts • Markers • Seeds
Processes • Divide the community’ members in two groups: male and female • Provide materials to the two groups • Ask participants about roles of men and women in the families and communities before, during, and after the disasters • Write down all those roles/activities in the list • Discuss and define the roles/activities of males and females? Each group presents to the big group • Facilitate to reach agreement from communities’ members.
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Gender Role Mapping Tool:
ROLE OF BEFORE DISASTERS DURING DISASTER AFTER DISASTER GENDER MALE FEMALE MALE FEMALE MALE FEMALE Assurance of having food Taking care of the children Water Finding wood Going to the market Cleaning and washing Taking care of the sick Providing health care Repairing the houses Participating in community’ meetings Planning for evacuation Receiving information of risk signals Evacuating families and others Domestic
Duties Finding money for small businesses Other roles
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SECTION 4: PLAN FOR DISASTER RISK REDUCTION
There appears to be little information in section 4 relating to gender, including for example, the particular risks that women, men, girls and boys face.
1- Plan for Disaster Risk Reduction 2- Writing Format of Risk Reduction Plan for Village and Commune Level 3- Relationship between Risk Reduction and Development 4- Putting Disaster Risk Reduction into Development Plan
Below are extracts of specific gender aspects of this section:
Goal No. 3: Promotion of gender equality and women’s empowerment “The negative consequences after disasters remain serious burdens on women and children. The burdens increase from losses as well as destroyed property, houses, and tools to earn income, and this pushes women and children to work harder on reconstructing the house, migrating to work, and accepting dangerous employment. All of these factors also restrict women from participating in their social roles.” The above acknowledges the heavy burden of women in times of disaster and the restrictions they face in taking part in wider civil society.
Goal No. 4: Reduction of child mortality “Children are considered a vulnerable group following disasters. The impacts of disaster increases mortality rates for children in poverty, especially those with low levels of nutrition, little access to health The negative consequences of disaster on the mother’s health is a serious issue in This includes; poverty; lack of nutrition; lack of access to health care; low levels of hygiene and an unhealthy environment contagious diseases; poor mental health including depression from the loss of family members. Disasters do not only affect mothers but also the areas of social work, education, health, and the social economy.’
The above recognizes the adverse affect disasters have on women’ health, particularly mothers. It also signals the strain on the wider society and the sectors involved.
SECTION 5: TRAINING OF TRAINERS
This section details: Training Methodology; Adult Training; Training Process Within the ToT section there is no specific mention of a requirement to create balance in terms of female/male trainers or participants or to encourage equal participation of women and men in training sessions. Gender aspects of how women and men experience disaster should be further mainstreamed into the tool – not centered on mainly on the Gender Mapping Tool. A guided discussion on how women and men may experience disaster differently would be useful, but similarly gender should not be an isolated subject.
The “risk assessment and risk analysis section” of this Training Module has a unique gender analysis tool, but this is not fully utilized to reflect the additional gender information collected within the EPRP of each province.
As suggested, an audit of the actual number of women and men who are members of Disaster Management Committee for each level of Province/Town, District/Khan and Commune/Sangkat level would be useful and the roles that they play will provide information useful for future lobbying for gender equality. The need for equal participation should be fully understood and addressed.
It is also recommended that women be engaged in every process of risk assessment and analysis, and into the planning stage of disaster management planning.
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PART 2: KAMPONG THOM NEW UPDATED PCDM FOR CONTINGENCY PLAN, 3RD JANUARY 2015
There is some gender sensitivity and gender disaggregated data in the contingency plan as follows:
History of Kampong Thom This section includes what they have to do before, during and after disaster to ensure security for people in the shelter, especially for women and children who are at risk of rape and abuse. The need to protect the elderly is mentioned, in addition to the need to protect women and children. It also notes the need to identify the problem and the impacts and needs of the community, especially on water hygiene, food and shelter, with a particular focus on women and children.
This does include gender aspect, however, it could be improved by adding, as previously suggested , gender of children, the sick, the elderly etc.
LOG FRAME: Post Assessment Section The log frame below displays some analysis related to gender and specific gender needs but it is not comprehensive in its listings. For example, drowning is given as a risk to children in contrast to the PAR research which informs us that boys are more prone to this than girls, as they tend to play away from home. Additional risks to children in flood situations are not mentioned such as the risk of trafficking or sexual abuse, especially for girls. Debt is given as an impact of drought but not mentioned for floods. ‘Lack of money causes domestic violence’ is an under-representation of the complex issues surrounding domestic violence.
A fuller description should be included to give a more comprehensive picture of the different types of negative impacts and the estimated need to inform future planning purposes.
NEGATIVE IMPACT TYPE OF TIME ESTIMATION OF NEED RELATING TO GENDER DISASTER PERIOD (ACTIVITY NEEDED) ISSUES
Send children and women to safe place.
Protect women and children first Drowning, especially children Report problems to NGOs and Disturbing education and drop relevant organisation. out FLOOD Aug to Oct Domestic Violence in the family Need to take care of health and Being forced to migrate in rough keep repairing the house place due to flood Supplying what has been lost in the drought (examples of losses are listed eg. livestock, crops.)
Depression
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NEGATIVE IMPACT TYPE OF TIME ESTIMATION OF NEED RELATING TO GENDER DISASTER PERIOD (ACTIVITY NEEDED) ISSUES
Supplying what has been lost in Forced debt (to buy water or the drought. food if no income?) (Corresponding activities are listed depending on the loss)
Forced to migrate to live and
Happens in make money DROUGHT mid to end of rainy season Lack of money causes domestic
violence
Causes diarrhoea and
malnutrition for children
Can cause burglary
In the following sections of this EPRP, statistics on the number of families affected include men, women and children (not disaggregated by boys and girls). The poor family types do however have a separate category for female headed households. An example is given below:
Steung Sen District - 34 villages 8,120 families Men 16,359 Women 17,923 Children (no statistics) • Family type 1 1246 (no definition) • Family type 2 1762 (no definition) • Female Headed Households 1498 • Types of disaster, flood, drought, insects, storm
In addition to the above sample, general information is given, for example on affected districts, communes, at-risk villages, safe places, WATSAN facilities, area for emergency shelters, distance between districts, companies to supply and transport etc. Names of NGOs working in the area are given. From a gender analysis perspective, it would be useful to have women’s organisations or those representing other vulnerable groups.
PART 3: EPRP KAMPONG SPEU PROVINCIAL DRR ACTION PLAN, SEPTEMBER 2013
Details of the Preparing, Checking and Technical Team given in the plan do not require specification of individuals by gender.
Section 2.1 Demographic Information It can be seen from the table below that some of the categories are gender disaggregated, for example female headed households and illiterate women. However, children are not gender disaggregated. In addition, to facilitate future gender analysis it would be useful to include if the families without water, wells, toilets etc are headed by men or women.
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Annual increasing population % 1.14 Female headed household % 14.94 Farmer headed household % 72.07 Children drop out from school, 6-14 years % 9.21 Illiterate people 15-60 years old % 3.69 Illiterate women 15-60 years old % 1.92 Women delivered baby by nurse Person 10,818 Mortality rate of women after delivered baby within 0-1 month (per Person 30 10,000) Child (0-1 month) mortality rate Person 52 Family rate that use clean water % 7.89 Family rate that use clean well % 51.63 Family rate without toilet % 71.58
THE FOLLOWING SECTIONS WITHIN THIS PLAN DO NOT DISAGGREGATE DATA BY GENDER: LIVELIHOOD AND ECONOMICS; SAFE PLACES AND INFRASTRUCTURE; HEALTH, EDUCATION, CLEAN WATER AND HYGIENE; CULTURE AND RELIGION.
DISASTER DATA AND INFORMATION
Below is a sample table appearing in the EPRP to illustrate the types of data collected. This details recent disasters and gives details of families affected. However, there is no mention if the impacted families are male or female headed households. (Please refer to the EPRP document for further information of information collected.)
DISTRICT/TOWN NO TYPE OF DISASTER AND ITS IMPACT NAME
1 Oral 66 impacted-families, 12 houses fell down, 54 houses were destroyed.
2 Oudong 116 impacted-families, 15 houses fell down, 101 houses were destroyed.
3 Samrong Tong 13 impacted-families, 3 houses fell down, 10 houses were destroyed.
4 Phnom Sruoch 59 impacted-families, 27 houses fell down, 32 houses were destroyed.
5 Kong Pisey 52 impacted-families, 10 houses fell down, 42 houses were destroyed.
6 Bor Sed 81 impacted-families, 15 houses fell down, 66 houses were destroyed.
The following tables are examples of the EPRP planning for various risks. There are further tables for different disaster types.
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EMERGENCY PREPAREDNESS RESPONSE PLAN FOR RISK 1
EPRP FOR DROUGHT
RESPONSIBLE RESOURCE SECTOR PURPOSE ACTIVITIES PERIOD PERSON AND FUND 1. Dissemination and awareness raising on emergency 1. Disease May –Jul and preparedness prevention Sep-Oct response to Chief of - Women drought and Women’s aware of Health disease Affairs $500 health 1.2 Provincial problems and Dissemination Department ensure family’s and training on safety health enhancement and hygiene to mothers. 1. To collect 1.1 Collecting data on the Chief of data of most Women’s Affairs May –Jul and Social work vulnerable $500 vulnerable Provincial Sep-Oct children and prior to Department women disaster 1.1 Provide fast- growing seeds – which can grow - Soy Panha 1. Reduce in any season - Tieng lack of food - 1.2 Provide Hylivanna Food livestock and technical support - Chef of I Aug –Dec
improve on rice farming provincial farming 1.3 Disseminate agriculture information on department growing new suitable crops.
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EMERGENCY PREPAREDNESS RESPONSE PLAN FOR RISK 2
EPRP FOR FLOOD
SECTOR PURPOSE ACTIVITIES RESPONSIBLE PERIOD RESOURCE PERSON AND FUND Social work Emergency 1. Information on DOH Sep to Dec $157,000 reduction and supply of equipment such as: preparing 5 ambulances, 20k of mosquito nets, 20k of soap.etc Reduction on risk 5.1 Evacuate Chef and vice- Aug-Oct Riels100,000 and impact people from chef of caused by flood flooded area to provincial the safe place department of culture and fine art. 6. Victim’s life 6.1 Find victims Chief of Sep - Dec 10 Persons protection and and transport provincial service them department of industry 7. Providing safety 7.1 Transport Commander of Sep - Dec Riels to people people from RCAF 15,000,000 flooded area to the safe place 8. Provide each 8.1 Find victim Chief of Sep-Dec 15persons victim the provincial following services: department of - Rehabilitation Women’s - Orphanage Affairs - Community supplementary care - Social land concession - Program for abused children 9. Having enough 9.1 Collecting Chief of May –Jul $500 data for data on Women’s and Sep-Oct intervention vulnerable Affairs children; women Provincial Department
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SECTOR PURPOSE ACTIVITIES RESPONSIBLE PERIOD RESOURCE PERSON AND FUND Health 1. Disease 1. Dissemination Chief of May –Jul $500 prevention and awareness Women’s and Sep-Oct - Women aware of raising on Affairs health problem emergency Provincial and ensure preparedness Department family’s safety response to drought and disease 1.2 Dissemination and training on health enhancement and hygiene to the women who is the mother.
The above tables do illustrate some particular gender focus for example in the inclusion of DoWA in health awareness and disease prevention for women. However, it does not detail specific requirement for women, girls and boys for instance in finding safe places.
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HUMAN RESOURCES
This section has no mention of gender and does not include gender disaggregated date. See sample table below:
TYPE OF HR (EXAMPLE: NUMBER ORGANIZATION VOLUNTEER, RESCUE STAFF CONTACT NAME TELEPHONE TEAM, EXPERT ETC..)
Provincial department of Volunteer 10 Khoun Nat 016 945 385 Economic and finance
016 792 776, Provincial Oll Vannak 012 823 628 department of Rescue team 30 097 777 2505 health Say Savy 016 818 271
Provincial Mr PaSoug , Sao 012 923 365 department rural Expert 9 kun, Mr Bok Chan 012 713 906 development thorn
016 421 617 Government officer 80 Soy Panga 097 7421 617 Provincial department of 016 421 617 Volunteer staff 26 Soy Panga agriculture 097 7421 617
Volunteer staff 1300 Tep Vichet mony 016 867 811
Provincial department of Volunteer 6 Pech Chiv Tong 012 705 258 industry mine and energy
SAFE PLACES
There is no information related to gender (for example safe places for vulnerable women or girls). This is important as safe areas are potentially unsafe for women and girls. At the very least, women need to have facilities (toilets, bathing areas) that are private. However, there is no consideration in this section specifically on the increased risk of sexual violence in these areas.
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APPENDIX 2: LIST OF KEY INFORMANTS (PAR)
FEMALE NO NAME TITLE ORGANISATION /MALE
Ms Mia Hyun 1 Gender and Policy Advisor UNDP and MoWA F
Ms Phearanich 2 Hing Policy Analyst, Climate Change UNDP F
Mr Kann Virak 3 DRR/CC Specialist Life with Dignity M
Mentor of Provincial Council and M 4 Mr. Hun Bunra Kampong Speu Province member of PCDM
Provincial Cambodian Horner. Keo Advisory Board Member, in charge 5 Women’s Committee, F Sokhom of Women and Children’s Affairs Kampong Speu Province
Life with Dignity, Kampong 6 Ms Hen Sinan Project Officer F Speu
Phnom Sruoch District Governor Phnom Sruoch DCDM, 7 Mr. Suon Sarun and Director of District Committee District, M for Disaster Management Kampong Speu Province
Director of Kahaeng Commune Kahaeng CCDM, Phnom Committee for Disaster 8 Mr Lek Chim Sruoch District, Kampong M Management Speu Province
Director of Krang Ampil Commune Krang Ampil CCDM, 9 Mr. Mey Kate Committee for Disaster Phnom Sruoch District, M Management Kampong Speu Provnice
Samrong Tong, Deputy District Governor and Director of District Samrong Tong District, 10 Mr. Hang Kimyen M Committee for Disaster Kampong Speu Province Management
Director of Trapaeng Kraloeng 11 Mr. Dom Chea Village Committee for Disaster Trapaeng Kraloeng VDMG M Management
Acting Director of Provincial 12 Ms. SIN Sithan Kampong Thom Province F Department of Woman Affair
Officer from Kampong Svay District Kampong Svay District, 13 Mr. SIN Sophea M Disaster Management Committee Kampong Thom Province
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FEMALE NO NAME TITLE ORGANISATION /MALE
Acting Director of Kampong Kou Kampong Kou Commune, 14 Ms. Hak Sokha Commune Committee for Disaster Kampong Svay District, F Management Kampong Thom Province.
Ms. NGET Help Old Age and 15 Program Officer F Kanitha Miserable people (HOM)
Deputy Sandan District Governor, in Sandan District, Kampong 16 Ms. Sim Sidaroth charge of District Disaster F Thom Province Management
Mr. PHON Angkor Ponluer Akpiwat 17 Director M Sophan (APA)
Director of OU THNORT Village for Sandan District, Kampong 18 Mr. Plong San M Disaster Management Group Thom Province
In charge of Provincial Committee of 19 Mr. Im Sareourn Kampong Thom Province M Disaster Management
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APPENDIX 3: EXAMPLE GENDER ANALYSIS TOOL – HAZARD, VULNERABILITY, CAPACITY MAPPING
HAZARDS VULNERABILITIES CAPABILITIES
POVERTY EDUCATION SAFETY AND SECURITY
HEALTH LIVELIHOODS FOOD
LEADERSHIP INFORMATION SHELTER
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TOOL 1: Gender Analysis Tool
The object of this exercise is to explore the key questions: • How does disaster affect women/men/girls/boys differently?
• Who is most at risk and why?
Open by explaining and discussing generally how disasters are experienced differently by different groups in society. The most vulnerable before a disaster are often the most vulnerable afterwards. This affects their capacity to withstand the ‘shock’ of a disaster. Therefore some people are more at risk than others. Diagram for facilitator information:
Disaster Risk = Hazard x Vulnerability ______Capacity
• Split into 2 or 3 groups - if possible male and female only groups. Designate a scribe and a presenter for each group.
• Ask each group to draw at the top of the chart the type of hazard they face in their area: e.g. drought, flood, flash flood, storm etc
• Hand out social group templates. Ask groups to place on the chart the different groups in their community (or can draw others e.g. ethnic or religious group)
• Ask them to discuss who are the least / most vulnerable groups in time of disaster? Who is able to cope better? Men or women?
• Ask groups to surround the template with comments regarding that groups vulnerability and their capacity to cope with the hazard (disaster)
(Use Spider Diagram Format) • Lastly, ask groups to rank the gender groups 1,2,3,4. No 1 = the most vulnerable group. Is it men or women, boys, girls etc who are the most vulnerable?
• Groups to reconvene and present their charts
Open Discussion. What do we do well now to meet the needs of these groups? What else could be done?
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APPENDIX 4 - COMPOSITION OF NATIONAL DISASTER MANAGEMENT COMMITTEE AND SUB- NATIONAL DM COMMITTEES
COMPOSITION OF NCDM
POSITION NCDM ROLE
1 Prime Minister President
2 High-rank Dignitary Official First Vice President
3 High-rank Dignitary Official Second Vice President
4 Minister from Ministry of Interior Vice President
5 Minister from Ministry of National Defense Vice President
6 Minister responsible for Council of Ministers Member
7 Minister from Ministry of Economy and Finance Member
8 Minister from Ministry of Foreign Affairs and International Cooperation Member
9 Minister from Ministry of Environment Member
10 Minister from Ministry of Water Resources and Meteorology Member
11 Minister from Ministry of Agriculture, Forestry, and Fishery Member
12 Minister from Ministry of Commerce Member
13 Minister from Ministry of Health Member
14 Minister from Ministry of Rural Development Member
15 Minister from Ministry of Industries, Mine, and Energies Member
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POSITION NCDM ROLE
16 Minister from Ministry of Social Works, Veterans, and Rehabilitation Member
17 Minister from Ministry of Public Works and Transportations Member
18 Minister from Ministry of Education, Youth and Sport Member
19 Minister from Ministry of Women’ Affairs Member
20 Representative from High Commissioner of Royal Armed Forces Member
21 Representative from Cambodian Red Cross Member
22 Secretary of the State Secretariat of Civil Aviation Member
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STRUCTURE OF MUNICIPAL/PROVINCIAL DISASTER MANAGEMENT COMMITTEE
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STRUCTURE OF DISTRICT/KHAN DISASTER MANAGEMENT COMMITTEE
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STRUCTURE OF COMMUNE/SANGKAT DISASTER MANAGEMENT COMMITTEE
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APPENDIX 5: GENDER DISAGGREGATED DATA
Kampong Thom and Kampong Speu DMC Committees and Participants of CBDRR Trainings
KAMPONG THOM
Table #1: Number of DCDM and PCDM members disaggregated by gender for Kampong Thom
DCDM PCDM TOTAL
DISTRICT MALE FEMALE MALE FEMALE MALE FEMALE
N % N % N % N % N % N %
Kampong Svay 21 34 4 6 0 0 0 0 21 18 4 4
Sandan 32 52 5 8 48 92 4 8 80 70 9 8
Total 53 85 9 15 48 92 4 8 101 89 13 11
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Table #2: Number of VDMG and CCDM members disaggregated by gender for Kampong Thom
CCDM VDMG TOTAL % TOTAL NAME OF COMMUNE M F NAME OF VILLAGE M F N % N % N % N % N % N % I. Kampong Svay District Slaeng 5 8 2 3 7 11 Kdey Doung 13 15 9 11 22 26 Kdey Doung 3 5 4 6 7 11 Trapaeng Kou 5 8 2 3 7 11 Trapaeng Russei 11 13 7 8 18 21 Peam Kreng 2 3 5 8 7 11 Tram Kla 3 5 4 6 7 11 Lavea Cham 4 6 3 5 7 11 Kampong Svay 17 20 5 6 22 26 Ta Aim 5 8 2 3 7 11 Thnort 4 6 3 5 7 11 Kampong Kou 14 16 9 11 23 27 Trapaeng Thmor 4 6 3 5 7 11 Sub-Total 55 65 30 35 85 100 Sub-Total 35 56 28 44 63 100 II. Sandan District Boeng Pra 5 8 3 5 8 13 Chheur Teal 19 26 1 1 20 27 Chheul 7 11 4 7 11 18 Toek Maleang 4 7 3 5 7 11 Sandan 19 26 2 3 21 29 Sandan 4 7 3 5 7 11 Ou Thnort 6 10 1 2 7 11 Ngorn 20 27 1 1 21 29 Samphy 4 7 3 5 7 11 Trabaek 4 7 3 5 7 11 Mean Chey 9 12 2 3 11 15 Veal Snay 4 7 3 5 7 11 Sub-Total 67 92 6 8 73 100 Sub-Total 38 62 23 38 61 100
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Grand Total
CCDM VDMG TOTAL % TOTAL NAME OF COMMUNE M F NAME OF VILLAGE M F
N % N % N % N % N % N %
Kompong Svay 55 35 30 19 85 54 Kompong Svay 35 28 28 23 63 51
Sandan 67 42 6 4 73 46 Sandan 38 31 23 19 61 49
Total 122 77 36 23 158 100 Total 73 59 51 41 124 100
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Table #3: Number of CBDRR training participant disaggregated by gender (Last 12 months) for Kampong Thom
CCDM VDMG TOTAL % TOTAL NAME OF COMMUNE M F NAME OF VILLAGE M F N % N % N % N % N % N % I. Kampong Svay District Slaeng 3 12 0 0 3 12 Kdey Doung 15 24 2 3 17 27 Kdey Doung 4 16 1 4 5 20 Trapaeng Kou 4 16 0 0 4 16 Trapaeng Russei 9 15 5 8 14 23 Peam Kreng 2 8 1 4 3 12 Tram Kla 0 0 1 4 1 4 Lavea Cham 2 8 1 4 3 12 Kampong Svay 12 19 3 5 15 24 Ta Aim 2 8 1 4 3 12 Thnort 2 8 0 0 2 8 Kampong Kou 14 23 2 3 16 26 Trapaeng Thmor 1 4 0 0 1 4 Sub-Total 50 81 12 19 62 100 Sub-Total 20 80 5 20 25 100 II. Sandan District Boeng Pra 3 9 1 3 4 12 Chheur Teal 11 20 0 0 11 20 Chheul 6 18 2 6 8 24 Toek Maleang 2 6 0 0 2 6 Sandan 15 27 1 2 16 29 Sandan 4 12 1 3 5 15 Ou Thnort 3 9 1 3 4 12 Ngorn 14 25 1 2 15 27 Samphy 2 6 0 0 2 6 Trabaek 3 9 1 3 4 12 Mean Chey 10 18 3 5 13 24 Veal Snay 3 9 2 6 5 15 Sub-Total 50 91 5 9 55 100 Sub-Total 26 76 8 24 34 100
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Table #4: Grand Total
CCDM VDMG TOTAL % TOTAL NAME OF COMMUNE M F NAME OF VILLAGE M F
N % N % N % N % N % N %
Kompong Svay 50 43 12 10 62 53 Kompong Svay 20 34 5 8 25 42
Sandan 50 43 5 4 55 47 Sandan 26 44 8 14 34 58
Total 100 85 17 15 117 100 Total 46 78 13 22 59 100
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KAMPONG SPEU
Table #5: Number of DCDMs and PCDMs member disaggregated by gender for Kompong Speu
DCDM PCDM TOTAL DISTRICT MALE FEMALE MALE FEMALE MALE FEMALE
N % N % N % N % N % N %
Phnom Sruoch 18 18 3 3 0 0 0 0 18 18 3 3
Samrong Tong 28 28 4 4 41 41 5 5 69 70 9 9
Total 46 46.5 7 7 41 41 5 5 87 88 12 12
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Table #6: Number of VDMGs and CCDMs member disaggregated by gender for Kampong Speu
CCDM VDMG TOTAL TOTAL NAME OF COMMUNE MALE FEMALE NAME OF VILLAGE MALE FEMALE N % N % N % N % N % N % I. Samroung Tong District Krang Kantuot 6 11 1 2 7 13 Tompor Meas 23 22 1 1 24 23 Ou Neang Hing 6 11 1 2 7 13 Ou Koki 5 9 2 4 7 13 Tang Krouch 30 28 2 2 32 30 Ponger Our 6 11 1 2 7 13 Prey Kdey 5 9 1 2 6 11 Ka Haeng 20 19 5 5 25 24 Prey Kampong 5 9 1 2 6 11 Ta Neang 5 9 2 4 7 13 Krang Ampil 23 22 2 2 25 24 Trapaeng Kak 5 9 2 4 7 13 Sub-total 96 91 10 9 106 100 Sub-total 43 80 11 20 54 100 II. Phnom Srouch District Prey Rumduol 18 16 2 2 20 18 Krang Roluos 7 17 0 0 7 17 Ou 31 27 3 3 34 30 Rum Duol Thmey 5 12 2 5 7 17 Sambuo 6 14 1 2 7 17 Kirivon 19 17 2 2 21 19 Tuol Srey 5 12 2 5 7 17 Krang Sya 6 14 1 2 7 17 Moha Sang 35 31 3 3 38 34 Krang Chress 6 14 1 2 7 17 Sub-total 103 91 10 9 113 100 Sub-total 35 83 7 17 42 100
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Table #7: Grand Total
CCDM VDMG TOTAL % TOTAL NAME OF COMMUNE M F NAME OF VILLAGE M F
N % N % N % N % N % N %
Samrong Tong 96 44 10 5 106 48 Kompong Svay 43 45 11 11 54 56
Phnom Sruoch 103 47 10 5 113 52 Sandan 35 36 7 7 42 44
Total 199 91 20 9 219 100 Total 78 81 18 19 96 100
Participants in CBDRR trainings in last 12 months in Kampong Speu
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Table #8: Number of CBDRR training participant disaggregated by gender (Last 12 months) for Kampong Speu
CCDM VDMG TOTAL TOTAL NAME OF COMMUNE MALE FEMALE NAME OF VILLAGE MALE FEMALE N % N % N % N % N % N % I. Samroung Tong District Krang Kantuot 2 8 1 4 3 13 Tompor Meas 7 19 2 6 9 25 Ou Neang Hing 2 8 1 4 3 13 Ou Koki 2 8 1 4 3 13 Tang Krouch 7 19 2 6 9 25 Ponger Our 2 8 1 4 3 13 Prey Kdey 3 13 0 0 3 13 Ka Haeng 7 19 3 8 10 28 Prey Kampong 3 13 0 0 3 13 Ta Neang 2 8 1 4 3 13 Krang Ampil 5 14 3 8 8 22 Trapaeng Kak 2 8 1 4 3 13 Sub-total 26 72 10 28 36 100 Sub-total 18 75 6 25 24 100 II. Phnom Srouch District Prey Rumduol 6 15 3 8 9 23 Krang Roluos 2 11 1 6 3 17 Ou 7 18 2 5 9 23 Rum Duol Thmey 2 11 1 6 3 17 Sambuo 2 11 1 6 3 17 Kirivon 9 23 1 3 10 26 Tuol Srey 2 11 1 6 3 17 Krang Sya 2 11 1 6 3 17 Moha Sang 10 26 1 3 11 28 Krang Chress 2 11 1 6 3 17 Sub-total 32 82 7 18 39 100 Sub-total 12 67 6 33 18 100
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Table #9: Grand Total
CCDM VDMG TOTAL % TOTAL NAME OF COMMUNE M F NAME OF VILLAGE M F
N % N % N % N % N % N %
Samrong Tong 26 35 10 13 36 48 Kompong Svay 18 43 6 14 24 57
Phnom Sruoch 32 43 7 9 39 52 Sandan 12 29 6 14 18 43
Total 58 77 17 23 75 100 Total 30 71 12 29 42 100
Above: NGO trainer at a Women Saving for Change group in Ou Chrov district, Banteay Meanchey province. (Philip Sen/ActionAid)
Front: Informational materials on disaster preparedness (Oeurm Savann/Oxfam)
By Janet Robinson, 8 September 2015, on behalf of the ‘Building Disaster Resilent Communities II’ consortium partners.
Research supported by Oxfam and DanChurchAid/Christian Aid under DIPECHO IX funding from the European Commission Humanitarian Aid and Civil Protection Office (ECHO).
Disclaimer: This document covers humanitarian aid activities implemented with the financial assistance of the European Union. The views expressed herein should not be taken, in any way, to reflect the official opinion of the European Union, and the European Commission is not responsible for any use that may be made of the information it contains.