Tropical Coasts Vol. 14 No. 2 ISSN 0117- 9756 December 2007 c o n c e r n s a n d a n a l y s e s as well as social, economic and environmental assets of communities and states." With its five priorities for action, the HFA aims to build the resilience of nations and communities to disasters by strengthening institutional capacities at all levels and incorporating DRR into the sustainable development framework. Engaging Local Visible progress and successes in implementing the HFA at the international, regional and national levels, with assistance and support from various Governments in Disaster international and regional agencies and organizations as well as donors, have been achieved. Challenges and difficulties, however, abound. Three years after Risk Reduction its adoption, vulnerability remains the central theme as the effects of climate change and sea level rise aggravate existing risks. Nancy Bermas-Atrigenio Issue Editor The challenges in implementing the HFA in the Asia-Pacific Region range from issues related to policy, legal and regulatory support, institutional arrangements and institutional capacity strengthening as well as implementing action programs he last decade saw an increasing frequency and severity of disasters on the ground. While high-level political commitment resulting from the occurring in almost every part of the world, which have resulted in a large adoption of the HFA by 168 Governments in 2005 provides an excellent opportunity number of fatalities and massive property damage and economic losses. T to overcome these challenges, participation at the local government level is Countries in the East Asian region are no strangers to disasters and the recognized as critical – having shown higher potentials for success in a number associated damages. Owing to its geography, economic diversity and high of instances. Although most of the decision and planning processes are carried proportion of population that can be potentially affected, East Asia is considered out at the national, regional and international levels, the accomplishment of to be one of the most disaster-prone regions in the world. Disaster figures for management interventions rely on local implementation. The local government's 2007 released by the Centre for Research on the Epidemiology of Disasters, for involvement is therefore imperative for the implementation of various action instance, showed that Asia continues to be hardest hit by disasters; 8 of the 10 programs addressing a range of issues related to economic development and countries with the highest disaster deaths were in Asia. The increasing incidence environmental management, including DRR. of floods and cyclones that affected China, Indonesia, Myanmar, the Philippines and Vietnam; the earthquakes in Indonesia and Japan; the sandstorms in These challenges and opportunities provide an entry point for mainstreaming China and RO Korea; the forest fires in Indonesia; the oil spill in Guimaras DRR into integrated coastal management (ICM), a widely recognized framework (Philippines) and the harmful algal blooms in China all attest to the region's for sustainable development. ICM has the needed governance and management vulnerability to disasters. As centers of economic development, the coastal framework as well as processes to allow the integration of DRR strategies. It areas, in most cases, sustained heavy losses and damage when disaster struck, helps strengthen local governance through a balanced, process-oriented and setting back years of development gains. coordinated approach, from integrated planning to integrated management. As ICM focuses on local actions, it can facilitate putting into practice the priorities A growing realization points to the fundamental problems of inappropriate for actions identified in the HFA at the local level. Local governments development as one of the main factors responsible for transforming a natural implementing ICM can focus their efforts in integrating hazard management event into a human and economic disaster. It is now increasingly recognized that E D I T O R A L E D I T O R A L E D I T O R A L E D I T O R A L E D I T O R A L and DRR into the ICM program by mobilizing the necessary implementing vulnerabilities are enhanced by rapid and uncontrolled urbanization, population arrangements, processes, tools and applications of ICM. growth and migration, poverty, poor planning, inefficient policies, environmental degradation, and development within high risk zones, among other factors. This issue of Tropical Coasts highlights how a gathering of local government Some natural hazards are seen to be partly human-induced, including changing executives bounded by the common mission of "serving as a network of local climatic patterns as a consequence of global warming and landslides aggravated governments in East Asia, which, along with their stakeholders, shall promote by deforestation. the application of ICM as an effective management framework to achieve sustainable coastal development," can become an indispensable mechanism Addressing the causes of vulnerability by identifying actions and implementing for knowledge validation, transfer and replication. The 2007 Forum of the appropriate programs to reduce risk and safeguarding sustainable development PEMSEA Network of Local Governments for Sustainable Coastal Development efforts is essential. Disaster risk reduction (DRR) has emerged in the international (PNLG)* held in Danang, Vietnam, on 5–7 September 2007 focused on the agenda as a vital defense in reducing vulnerability to hazards and the impacts theme "Addressing Coastal Security by Investing in Natural and Man-made of disasters. DRR calls for a proactive approach to disaster management – Hazards Prevention and Management." The forum provided a venue for requiring the implementation of comprehensive and integrated approaches to facilitating the exchange of information and experiences in DRR among local create positive conditions for the effective reduction of risks well before and governments, national agencies, partner organizations, civil society groups and after disaster strikes. As our knowledge base grows, so does evidence of the the private sector. It also provided a platform for the ICM sites to discuss how cost effectiveness of DRR. The International Federation of Red Cross and Red institutional strengthening in the context of DRR can be achieved and identify Crescent Societies put the figures at US$2 to US$10 savings in disaster response innovative solutions and opportunities to implement DRR options based on and recovery costs for every dollar invested in DRR. specific risk context and circumstances of the respective sites.

The Hyogo Framework for Action 2005–2015: Building the Resilience of Nations continued on page 63... and Communities to Disasters (HFA), the global blueprint for DRR, sets a clear and expected outcome – "the substantial reduction of disaster losses, in lives, * The PNLG history and charter are featured in this issue’s centerspread .

T r o p i c a l C o a s t s i n t h i s i s s u e E d i t o r i a l Tropical Coasts Engaging Local Governments in Disaster Risk Reduction www.pemsea.org V o l u m e 1 4 N o . 2 D e c e m b e r 2 0 0 7 4 Implementing the Hyogo Framework for The Global Environment Facility/United Action 2005–2015: Building the Resilience Nations Development Programme/ S. Adrian Ross International Maritime Organization of Nations and Communities to Disasters Editor Regional Programme on Partnerships in Angelika Planitz Environmental Management for the Seas 12 of East Asia (GEF/UNDP/IMO PEMSEA), Nancy Bermas- Sida Marine Science Programme, the Disaster Risk Reduction in Asia — Atrigenio Coastal Management Center (CMC), and Emerging Trends and Solutions Issue Editor the United Nations Environment N.M.S.I. Arambepola Programme - Global Programme of Action (GPA) publish Tropical Coasts Anna Rita G. Cano Magazine biannually. This publication is 24 Assistant Editor geared towards stimulating an exchange Natural Disaster Prevention, Response of information and sharing of experiences and ideas with respect to and Mitigation in Vietnam environmental protection and the Dao Xuan Hoc Jonel P. Dulay management of coastal and marine Design/Illustration/DTP areas. Readers are strongly encouraged 40 to send their contributions to: Integrating Disaster Risk Reduction and Mitigation into the Danang Coastal Strategy Danilo Bonga Executive Editor P.O. Box 2502, Implementation Plan Research Quezon City 1165, Nguyen Dieu Metro Manila, Philippines

The contents of this publication do not necessarily reflect 48 the views or policies of the Global Environment Facility Risk Mitigation Through Effective (GEF), the United Nations Development Programme N.M.S.I. Arambepola (UNDP), the International Maritime Organization Implementation of Integrated Coastal (IMO), the Regional Programme on Partnerships in Management Nguyen Dieu Environmental Management for the Seas of East Asia (PEMSEA), the Sida Marine Science Program, the Coastal Zhou Lumin Dao Xuan Hoc Management Center (CMC), UNEP GPA and other participating organizations, or the editors, nor are 56 Angelika Planitz they an official record. The designation employed and the presentation do not imply the expression of opinion Local Knowledge and Practices for Disaster whatsoever on the part of GEF, UNDP, IMO, PEMSEA, Lorna P. Victoria Sida Marine Science Program, CMC or UNEP GPA Preparedness and Mitigation concerning the legal status of any country, territory or Lorna P. Victoria Zhou Lumin city or its authority, or concerning the delimitation of its territory or boundaries. Contributors F a c t s a n d F i g u r e s ISSN 0117-9756 Distribution of People Affected by Natural On the Cover Disasters, by Country and Type of Phenomena, in Asia (1975–2001) Addressing Coastal s p e c i a l f e a t u r e Security Through Natural and Man-made Hazards Prevention and 32 The PNLG – A partnership built on leadership Management and commitment towards strengthening coastal governance East Asia has been considered as one of the most disaster-prone regions in the The PEMSEA Network of Local Governments for Sustainable world. In this issue, local governments Coastal Development (PNLG) is a self-sustaining network and national agencies share their of local governments implementing integrated coastal experiences in implementing disaster management. Established in 2001, it is composed of 23 risk reduction initiatives. member local governments and 7 observer local governments Photo courtesy of Hai Chau, from 9 countries in the region. The PNLG charter and history Vietnamnet. are presented in this issue. D e c e m b e r 2 0 0 7 Angelika Planitz* Regional Programme Officer United Nations/International Strategy Implementing the for Disaster Reduction (UN/ISDR) Bangkok, Thailand

Introduction Hyogo Framework for This paper provides an introduction to the Hyogo Framework for Action Action 2005-2015: (HFA) in the broader context of disaster risk and sustainable development in the Asia-Pacific Building the region. The HFA is the global blueprint for disaster risk reduction from 2005- 2015 with the intention to build the Resilience of Nations resilience of nations and communities to disasters. The HFA was adopted by and Communities to 168 Governments at the World Conference for Disaster Reduction, which was held in January 2005, in the Disasters Hyogo Prefecture in Kobe, Japan.

To start with, the paper presents some Global and Regional global and regional data on disaster Data on Disaster Trends trends to develop an appreciation for the magnitude of the problem at hand Figure 1 demonstrates clearly that the frequency and severity of and to demonstrate that disasters are natural disasters is on the rise not solely natural events but in actual globally. While the decade of the fact, "products" of development. The 1970s shows approximately 1,100 paper provides an overview of the five reported disaster events; the year priority areas of the HFA and clarifies 2003 alone featured 500 events. the roles and responsibilities of Particularly, the number of hydro- national governments, international meteorological events has risen, organizations and the UN/ISDR mainly due to the increased impacts secretariat in implementing this of climate change, but also due to framework. Finally, the paper improved reporting capacity on natural disaster events in the media concludes with a discussion on how the and by governments. to US$60 billion in the year 2003 implementation of the HFA can be alone. This shows that disasters can advanced at the regional and national Also, economic and insured have serious impacts on the levels in countries in Asia and the losses have risen drastically. In the development and on the ability of Pacific. 1950s, about US$5 billion losses nations to achieve the Millennium occurred. Again, this figure has risen Development Goals. The link between * The author can be reached at: [email protected].

4 4 T r o p i c a l C o a s t s Figure 1. Reported Disasters.

disasters and development is Figure 2. Disaster and Development Co-relation. particularly well portrayed in Figure 2 which compares the number of people killed in natural disaster events with the number of people exposed to natural hazards in high and low human development countries — showing a dramatic contrast. Between 1980 and 2000, low human development countries concentrate only 11 percent of the world's population exposed to natural hazards, but 53 percent of the total deaths. High human development This leads to the conclusion that and faster inappropriate development countries concentrate 15 percent of inappropriate development in itself is will simply increase risks and lead to the exposed population, but only 1.8 responsible for configuring disaster greater social and economic losses. percent deaths in the same period. In risk. If this is the case, disaster risk is other words, countries with similar not inevitable but on the contrary can Moving from the global to the patterns of natural hazards have be managed and reduced through regional perspective, we see that Asia widely varying levels of disaster risk. appropriate development policy and and the Pacific is the world's most These risks have been configured actions. The answer to disaster risk, disaster-prone region. In the period historically through different therefore, is not simply more from 1996 to 2005 alone, the region, development paths and processes. development per se, since more in comparison to global statistics,

D e c e m b e r 2 0 0 7 5 Figure 3. Natural Disaster Event Density (1901-2003).

reached peak figures in terms of the The UN International reduce disaster risk as an integral total number of reported disasters, Strategy for Disaster part of sustainable development people killed, people affected and the Reduction worldwide by focusing on nations and total amount of estimated damage. communities. This is in recognition of Also Figure 3 provides some insight The United Nations System's the fact that disaster risk reduction is on how the Asian region compares responsibility in the area of disaster predominantly a development issue. with other regions in terms of disaster reduction falls within the overall impacts on a longer timescale (from framework of the International The ISDR system, which refers to 1901-2003). Undoubtedly, Asia Strategy for Disaster Reduction (ISDR), the broad membership of many UN shows the highest number of affected which is the successor arrangement and non-UN organizations and populations, as well as the highest to the International Decade for Natural partners, combines the strengths of damage to infrastructure Disaster Reduction (IDNDR 1990- many key players important for development. 2000). The objective of the ISDR is to advancing disaster reduction. The

6 T r o p i c a l C o a s t s strategy is supported by the ISDR The HFA provides the conceptual basis, secretariat (UN/ISDR) based in Geneva (Switzerland) and New York the strategic goals and a set of (USA) with regional and thematic outreach offices in Addis Ababa priorities for action in the area of (Ethiopia), Bangkok (Thailand), Bonn (Germany), Cairo (Egypt), Dushanbe disaster risk reduction. The framework (Tajikistan), Islamabad (Pakistan), is widely considered as the first Kobe (Japan), Nairobi (Kenya), Panama, and Teheran (Iran). attempt to come to a common

The ISDR secretariat is understanding of what disaster risk mandated by the UN General Assembly as the main coordinating reduction is all about. mechanism for disaster reduction within the UN. Thus, the ISDR secretariat is not considered an common understanding of what The overarching goal of the HFA "operational" agency but rather an disaster risk reduction is all about. is to substantially reduce disaster advocate and facilitator for disaster For the first time, stakeholders losses by 2015 — in terms of the risk reduction that works from a variety of backgrounds — number of lives lost, as well as the predominantly through its ISDR government, technical experts, the social, economic and environmental system partners. The focus of the academe, civil society and others — assets lost at the community and secretariat is on advocating for have come together and agreed on national level. It has three strategic disaster risk reduction, promoting what core activities need to be goals that aim to: the HFA, monitoring global progress undertaken to be able to observe a 1. Integrate disaster reduction into made in achieving disaster risk perceivable reduction in disaster sustainable development; reduction and the HFA, and risk levels. And, importantly, the 2. Strengthen institutions and exchanging lessons learned and HFA represents the collective mechanisms to build resilience at good practices. commitment of governments national and community levels; (168 all together), regional and UN and organizations, local authorities, 3. Incorporate risk reduction into The Hyogo Framework nongovernmental organizations emergency management and for Action 2005-2015 and experts as well as International recovery. Financial Institutions (IFIs). The HFA is the result of the However, States — in collaboration The HFA has the following five World Conference on Disaster with civil society and local priorities for action: Reduction (WCDR), held from 18-22 government — are primarily 1. Make disaster risk reduction a January 2005 in Kobe, Japan. The responsible for the implementation priority; HFA provides the conceptual basis, of the HFA with the support of other 2. Know the risks and enhance early the strategic goals and a set of actors. The role of the ISDR in warning; priorities for action in the area of relation to the HFA is that it is the 3. Build an awareness for a culture disaster risk reduction. The custodian of the implementation of safety and resilience; framework is widely considered as and follow up of the HFA 2005- 4. Reduce the underlying risks the first attempt to come to a 2015. factors; and

D e c e m b e r 2 0 0 7 7 Box 1. The Five HFA Priorities for Action. 5. Strengthen disaster preparedness for effective The following provides for each of the five HFA Priorities of Action a selection of the key response. measures that need to be in place in order to achieve the respective priority. They also serve as indicators for measuring progress in implementing the HFA. An overview of the type of Priority 1: Making disaster risk reduction a priority measures that are envisaged under each priority of action is shown in • A legal framework for disaster risk reduction Box 1. They can be considered the • Multistakeholder national platforms for disaster risk reduction • A national policy framework for disaster risk reduction minimum requirements that should • Dedicated and adequate resources are available to implement disaster risk be in place when strengthening the reduction capacities for disaster risk reduction at the national and sub-national Priority 2: Improving risk information and early warning levels. • National and sector risk assessments based on hazard and vulnerability information • Systems in place to monitor, archive and disseminate risk information Past experience in disaster risk • Early warning systems in place for all major hazards reduction has also led to the • Early warnings reach and serve people at the community level recognition of a number of basic Priority 3: Building a culture of safety and resilience principles that underpin or facilitate the achievement of effective disaster • A national public awareness strategy for disaster risk reduction exists that reaches risk reduction1. Many of these are all communities and people • School curriculums at all levels include disaster risk reduction and instructors are explicitly emphasized in the HFA as trained in disaster risk reduction. issues that cut across all the priorities of action, namely: multi-hazard Priority 4: Reducing the underlying risks in key sectors approaches to disaster risk reduction; • Environmental protection, natural resource management and climate change gender equality and cultural diversity; policies include disaster risk reduction community and volunteer • Specific policies and plans are implemented to reduce the vulnerability of participation; and capacity building impoverished groups and knowledge transfer. • Land-use development plans, zoning and building codes include disaster risk reduction and are rigorously enforced • A programme is in place to protect schools, health facilities and critical infrastructure from hazards Experiences with • A procedure is in place to assess the disaster risk implications of major infrastructure Implementing the HFA projects

Priority 5: Strengthening preparedness for response In terms of implementing the HFA, four levels of action can be • Disaster preparedness capacities and mechanisms assessed and differentiated. First, national level recommendations are implemented • Disaster preparedness plans and contingency plans in place, and training drills implementation through national and rehearsals are held to test and develop disaster response programmes policy frameworks, action plans, • All personnel and volunteers responsible for preparedness are equipped and multistakeholder forums or trained platforms. These can be supported by • Financial reserves and contingency mechanisms are in place to support effective response and recovery the UN and other development • Procedures are in place to document experience during hazard events and disasters and to undertake post event reviews 1 See Words into Action: A Guide for Implementing the HFA (UN/ISDR, 2007).

8 T r o p i c a l C o a s t s In Southeast Asia, a strengthened partners. Second, regional level implementation through regional political commitment for disaster and subregional strategies and reduction resulted in the inclusion of mechanisms often under the guidance (and support) of the disaster risk reduction as part of the Regional Platforms for Disaster Risk Reduction. Third, global level priorities of the ASEAN Agreement on implementation through the Global Platform for Disaster Reduction (its Disaster Management and Emergency first session was held in June 2007 in Response (ADMER) in 2005 and the Geneva); and the joint global work programme of ISDR system partners. ASEAN Regional Programme on And finally, implementation through thematic forums such as the Disaster Management. International Recovery Platform, the Global Forum on Urban Disaster Risk, increased over the past two years, Disaster Management and Emergency or the Platform for the Promotion of e.g., under ASEAN (Association of Response (ADMER) in 2005 and the Early Warning which have been Southeast Asian Nations), SAARC ASEAN Regional Programme on established under the auspices of the (South Asian Association for Regional Disaster Management. The ISDR. Cooperation), SOPAC (Pacific Islands endorsement of the Asia Regional Applied Geoscience Commission) and Platform for Disaster Reduction at the The following will provide a brief others, which all address one or more 2nd Asian Ministerial Conference on picture of the progress achieved in of the core priorities for action under Disaster Risk Reduction that was held the two years of HFA implementation the HFA. In the Pacific, the Leaders in New Delhi, India, in November at the regional and national levels in adopted a regional Pacific Framework 2007, marked yet another key Asia and the Pacific since the World for Action for Disaster Risk milestone of regional progress. Conference for Disaster Reduction in Management in 2005 which 2005. constitutes a well-developed policy Also at the national level, framework for disaster risk reduction considerable progress could be At the regional level, there has that is in line with the HFA and links achieved in terms of the revision of been considerable progress in disaster risk reduction to legislation, institutional frameworks building regional partnerships and development. In South Asia, the for disaster reduction, the networks, which contributed to creation of the SAARC Disaster establishment of National Platforms, greater coherence and more effective Management Centre in 2006 and the National Disaster Risk Reduction coordination of regional support to SAARC strategic framework on Strategies and Frameworks and the national-level HFA implementation. Of disaster reduction build on progress formulation of the Strategic National particular mention is the ISDR Asia already made at the national level to Action Plans that are in line with the Partnership, which has expanded in provide additional support for the HFA and aim to make the shift from 2007 from the original six members cross-fertilization of national efforts. disaster preparedness and response to approximately 20, encompassing In Southeast Asia, a strengthened towards risk reduction. Countries UN agencies, intergovernmental and political commitment for disaster with demonstrated achievements other regional organizations. Also the reduction resulted in the inclusion of include Bangladesh, Cambodia, Cook number of regional disaster reduction disaster risk reduction as part of the Islands, India, Indonesia, Mongolia, frameworks and programmes has priorities of the ASEAN Agreement on Nepal, Papua New Guinea, Philippines,

D e c e m b e r 2 0 0 7 9 Republic of the Marshall Islands, Sri regulatory framework. In the past, overcome some of them. In Lanka, Thailand, Vanuatu, Vietnam legislation has been found to be particular, two processes are and others. Progress has also been important, but also that it does not recommended in this context: reported in the context of guarantee success since it is often not establishing tsunami and multi- adapted to the realities on the ground. 1. The development and hazard early warning systems, public Frequently, legislation for disaster implementation of Strategic education and awareness campaigns, reduction remains in the draft stage National Action Plans for and last but not least, with only. There are also problems of Disaster Risk Reduction (so- mainstreaming disaster risk enforcement and, in some countries, called SNAPs or NAPs); and reduction into national development there have been conflicting legislation plans and strategies. related to disaster risk reduction. Also 2. The establishment of organizational structures and multistakeholder and Despite these success stories, mechanisms can present challenges. multidisciplinary national there are also a number of challenges The location and influence of the platforms. and difficulties in implementing the national coordinating body for HFA in the Asia-Pacific Region. At the disaster reduction is a decisive factor SNAPs are long-term planning policy and planning level, for for success. Further to this, disaster documents that are linked and example, we see great challenges in risk reduction efforts have too often integrated into national having disaster risk reduction failed to take into consideration public development plans, sector recognized as a national priority — administration aspects, such as clear strategies, corporate business plans not only for the short period after a roles, mandates and structures. In and budgetary allocations. Ideally, major disaster event, but general, decentralized DRM systems they identify a country's disaster permanently. This is often due to have shown greater potential for risk reduction priorities in line with competing development priorities or success since they provide greater the HFA and importantly in domestic tensions and conflicts. opportunities for participation at the accordance with the available Also, the fact that disaster risk local government level. In terms of human and financial resources. reduction is not yet widely recognized resources and capacities, an over- Thus, SNAPs aim to provide realistic as a development concern adds to reliance on technocratic/scientific implementation plans, and this can this and impedes efforts to approaches has been problematic. It be achieved if a thorough mainstream disaster reduction into must be understood that progress in participatory multistakeholder sustainable development. Although in risk reduction requires more than just process is followed during its many countries the rhetoric and the development of strictly technical development stage. The SNAP broader vision may be fully in line skills. Crucial for success are also process, thus, is considered as with the international risk reduction leadership, management, planning important as the final planning agenda, the actual commitment/ and knowledge management skills document itself. Another minimum action focuses still too much on and a focus on local capacities and requirement of a thorough SNAP emergency response. Finally, policies knowledge which have often been includes full ownership and official and plans have only minimal impact ignored in the past. approval by the respective without adequate financial resources government, which takes overall and capacities and skills to Regardless of these challenges, responsibility for its design and implement them. the high-level political commitment implementation. In the Asia-Pacific, which could be generated as a result a range of countries have completed This list of challenges continues of the adoption of the HFA provides SNAPs or are currently in the when we look at the legal and for an excellent opportunity to process of developing strategic

10 T r o p i c a l C o a s t s In general, decentralized DRM action plans. These include Cambodia, Indonesia, Philippines, systems have shown greater potentials Republic of the Marshall Islands, Samoa, Thailand, and Vanuatu. for success since they provide greater Indonesia has even moved on to the next step, and is currently developing opportunities for participation at the action plans in line with the HFA at the local government level. In terms of local level in selected districts that were affected by the 2006 Yogyakarta resources and capacities, an over- Earthquake. reliance on technocratic/scientific The National Platforms have long been called for by the UN Economic approaches has been problematic. and Social Council (ECOSOC) as important multistakeholder and Box 2. Technical Tools and Guidelines to Help HFA multisector forums in support of Implementation. disaster risk reduction. This call was re-emphasized in the HFA. Although The UN/ISDR website (www.unisdr.org) provides access to information materials, in the Asian region, only a small including the selection of tools and guidelines below: number of National Platforms have • Words into Action: A Guide for Implementing the HFA (UN/ISDR, 2007). been formally established to date • Indicators of Progress: Guidance on Measuring the Reduction of (China, Iran, Japan and the Disaster Risks and the Implementation of the Hyogo Framework for Philippines), many more countries Action (2007). have recently expressed an interest in • Summary of Guiding Principles for National Platforms on Disaster Risk Reduction, (UN/ISDR) setting up platforms (Indonesia, • Integrating Disaster Risk Reduction into CCA and UNDAF Guidelines Maldives, Sri Lanka and Nepal). In (UN/ISDR and UNDP, 2006). general, National Platforms can help: • Reducing Disaster Risk: A Challenge for Development (UNDP, 2004). • Living with Risk: A global review of disaster reduction initiatives (UN/ISDR, 2004). • Build consensus on disaster risk • A broad range of good practice and lessons learned publications on reduction priorities at national gender and disaster risk management; building disaster resilient and community levels; communities; drought risk reduction, etc.

• Increase national leadership and commitment for disaster risk • Provide a framework for cross- The UN/ISDR has a range of reduction; sectoral reflection on disaster tools and guidelines which can be risk reduction and sharing of helpful to national and local • Coordinate action to facilitate lessons learned, good practices actors in implementing the HFA. HFA implementation, assessment and experiences; and An overview of some of these and monitoring and reporting; tools is presented in Box 2. The • Ensure national and local UN/ISDR outreach offices stand • Facilitate the mainstreaming of interests are reflected when ready to assist partners with the disaster risk reduction into regional and global disaster risk application of these tools and national development plans and reduction priorities are being guidelines. sectors; identified.

D e c e m b e r 2 0 0 7 11 N.M.S.I. Arambepola* Director and Team Leader Urban Disaster Risk Management, Disaster Risk Asian Disaster Preparedness Center (ADPC), Bangkok, Thailand Reduction in Asia – Introduction Asia is well-known for its great Emerging Trends diversities, but with these come the disparities. While Asia is home to more developed countries like Japan and and Solutions Singapore, and strong emerging economies like China and India, it also Before the introduction of the reduction," "vulnerability reduction," hosts some of the least developed United Nations-initiated International "capacity building" and "mitigation" countries like Bangladesh, Cambodia, Decade for Natural Disaster Reduction began replacing the term "disaster Lao PDR and Nepal. Trends show that (IDNDR) in the 1990s, disasters were management." It was a shift from in Asia there is a significant increase in viewed as one-off events and short-term, reactive, charity-driven the number of disasters, as well as in responded to by governments and response to long-term, proactive, the number of fatalities and economic relief agencies without taking into developmental initiatives. losses due to disaster events. There account the socioeconomic may be a direct correlation between implications and causes of these During the first five years of the economic achievements and disaster events. With significant advancement in new millennium, coastal areas have occurrences as very often in the race to the understanding of the natural emerged as one of the main economic processes that underlie the hazardous zones that have a high potential risk economic, technological and scientific events, a more technocratic paradigm from natural hazards. This was growth, social, cultural and came into existence. According to the evident from the colossal economic environmental aspects are being IDNDR, attempts have been made to and social impacts due to the sacrificed. As evident in the 2007 resolve disasters and associated unprecedented 2004 Indian Ocean World Disasters report, more disasters problems through public policy tsunami and subsequent devastations were reported in the five-year period interventions and land use and by created by cyclone events in the 2000–2005 than in the preceding years engineering knowledge applications. Philippines and Vietnam in 2006 and in the past decade. There are existing Gradually this attitude changed to add Karachi (Pakistan) in 2007.Therefore vulnerabilities as well as new emphasis on preparedness measures, proactive disaster risk management in challenges and sources of risks such as such as preparedness planning. The Asia has to become part of the present understanding is that the development agenda to deal with the climate change, global warming, rapid disasters can be seen as a result of growing variety and intensity of urbanization and increasing migration progression of vulnerabilities to hazards in general, and that coastal to urban areas, environmental hazards and that solutions can be areas should receive special attention degradation, health hazards, increased found through building of capacities due to growing economic activities as complex emergencies and conflicts, and improving the resilience of well as emerging long-term risk and so on. communities-at-risk. This way, scenarios associated with climate disaster risks can be reduced and change, global warming and sea level * The author can be reached at: [email protected]. mitigated. Thus the terms "risk rise in particular.

12 12 T r o p i c a l C o a s t s Figure 1. Deaths and Persons Affected by Disasters.

Box 1. Some Indicators and Evidences of Vulnerabilities to Disasters.

• Enormous public and private sector economic losses, destructions to property, infrastructure and lifeline facilities Introduction is an urgent need to push hazard • Deaths, injuries and disabilities mitigation practices up the • Mass population displacements On 24 December 2004, as many development policy agenda in order • Extraordinary relief assistance as seven countries in Asia were to tackle the soaring reconstruction • Temporary shelter requirements devastated by a tsunami event, costs and to minimize significantly • Loss of livelihood recognized to be the biggest natural the losses to shelter, infrastructure • Damage to health, infrastructure disaster event the world has ever and other economic gains of and inadequacy of health facilities known. The magnitude is evident from development. Essentially, • Destruction to schools and the lives lost (more than 200,000), governments of developing high number of deaths among families displaced (several millions) or countries as well as developed schoolchildren in terms of damages to assets and countries now have to take serious economic losses (combined estimated note of the proactive approaches total of US$10 billion). Subsequent and practices for hazard mitigation major events such as flashflood events in order to maintain sustainable However, the focus of attention in Mumbai (India) and Uttaradit development. This is more on mitigation measures is limited and (Thailand); cyclones and devastations significant to developing countries usually does not extend beyond those in coastal urban areas in Karachi where there is a potential for serious who are directly involved in risk (Pakistan) and Danang (Vietnam), and impacts on Gross Domestic Product management activities. It does not get many parts of the Philippines; and (GDP) growth due to frequent integrated into development practice earthquake events in Pakistan, India occurrences of natural and man- nor in recovery programs after and Indonesia have proved that there made disaster events. disasters, and certainly does not

D e c e m b e r 2 0 0 7 13 extend to the development sector, mitigation to a greater portion of the economic projections are placed in a including in areas where there is population (USAID, 2003). wider socioeconomic context, the high potential for public and private promises offered by economic investments. Despite the increased achievements transform to recognition of the effectiveness of increased risks to infrastructure and proactive approaches to risk Impacts of Urbanization coastal populations, as a reduction, mitigation measures have consequence of natural calamities not generated the resources and Asia is seen to be one of the and man-made hazards. attention necessary to make them a fastest urbanizing regions in the mainstream requirement of world, with urban population soon Due to such issues, there is an development projects, which are surpassing that of the rural urgent need to make risk mitigation often observed to be the key population. In 2000, 37 percent of one of the essential components of elements at risk. This is important the region’s population was living in urban governance and to create particularly for infrastructure in cities. This proportion is projected policy, legal and institutional urban areas, such as transportation to rise to more than 60 percent arrangements to ensure safer urban routes, administration facilities, within the next 25 years. communities. Under such emergency service facilities, medical Furthermore, it forecast that by circumstances, the cities in Asia with and health care facilities, education 2020, out of the ten largest high vulnerability to natural and infrastructure facilities, community economies in the world, seven will be man-made hazards require a services, infrastructure and from Asia. When such global collective vision for all stakeholders, community buildings, commercial ventures, cultural assets, such as Figure 2. Population of Ten Largest Cities in Asia and historic structures and museums, the Pacific Region (1980–2015). etc. As such, lifeline services are an essential requirement for the social and economic well-being of a community and to maintain the sustainability of the economy.

A failure in lifeline services can cause substantial insecurity in a community, leading to increases in illness and death, and the breakdown of communication, not to mention the interruption of economic activities long after a disaster strikes. When critical infrastructure fails, the ability of a community to rebound from a disaster is severely hindered. Further, where resources are limited, focusing on critical infrastructure essential to the entire community spreads the benefits of

14 T r o p i c a l C o a s t s When critical infrastructure fails, the including vulnerable communities, ability of a community to rebound an agreed strategic framework with identified action areas aimed at from a disaster is severely hindered. socioeconomic growth. There is an increasing understanding that cities Further, where resources are limited, are meant to offer positive focusing on critical infrastructure conditions to improve the lives of focusing on critical infrastructure their habitants. In reality, vulnerable essential to the entire community communities located in marginal areas of cities have much to spreads the benefits of mitigation to contribute in making these areas safer. Disaster resilience in all urban a greater portion of the population communities is an essential factor (USAID, 2003). for achieving sustainability and improving lives.

There is a compelling need to to address long-term needs. • Study the development-related bring a new awareness on urban Therefore there is a desire to issues and consequences due to vulnerability to natural and man- improve general awareness on the climate change; made hazards and build capacity in issues from both aspects of • Look at primary (meteorological) Asian cities to tackle the root causes governance and climate change events, secondary events (health of vulnerability. This may be done resilience. At-risk communities hazards, slope destabilization, through innovative local solutions, obviously need to search for mass movements, flashflooding, so as to create an enabling proactive ways to counteract etc.) recorded in built-up areas to environment and ensure safer urban possible consequences of the analyze the trends; communities in the future. recurrent events of hydro- • Forecast the consequences of sea meteorological disasters due to level rise (as a larger number of climate change, as they can result in major cities and industrial areas high socioeconomic setbacks to are located within the coastal Climate Change Impacts development. Such events can even belt) and its impact on urban and Long-term Needs contribute to the increasing development; and for Adaptation vulnerability of the urban population, • Develop ways and strategies to particularly those in poor promote climate change The scientific community in the communities. resilience within built-up areas of developing countries in Asia has not all developing countries in Asia. yet taken adequate interest in It is therefore necessary to: conducting multisectoral studies to • Study the governance structure understand and prepare inventories and see the areas where of climate change impacts on coastal improvement is needed to Some Observations and ecosystems. Also, there are no enhance the resilience of the Future Trends serious attempts by the authorities poor communities especially to plan and undertake an integrated those living in urban coastal Increased rural to urban climate change resilience approach areas and low-lying areas; migration has resulted in a large

D e c e m b e r 2 0 0 7 15 Long-term impacts to infrastructure urban poor since their livelihood is and buildings due to water table often reliant on environmental conditions. Among those affected fluctuations, salinity and pore are the informal income groups and the unskilled workers. More pressure fluctuations, decay of pile specifically, livelihoods available to foundations, etc., can create adverse the poor will have been affected negatively due to loss of work conditions, which in most cases are not opportunities, lack of accessibility to natural resources and decreased foreseen during the design stage. demand. Urban water supply is dependent on water reservoirs and number of people residing in hazard- on large infrastructure investments deep subsurface water sources prone areas (i.e., low-lying flood- due to potential hazard events. extracted through wells. The climatic prone areas, coastal areas, hill variations have severe impacts on slopes, etc.), making them vulnerable In coastal areas, many high-rise reservoirs and associated water to hydro-meteorological events, buildings and large infrastructure supply schemes. Due to increasing landslides, storm surges and facilities are located on problematic sea levels, the aquifers are being flooding. The situation has been soils such as unconsolidated alluvial encroached with saltwater intrusions. aggravated by reclamation projects materials, requiring special As a result, there is increased for expansion of human settlements, techniques such as pile foundations dependence by the urban population in areas prone to flooding. In to get stabilized. Long-term impacts on commercial “bottled” water, which addition, flashfloods and landslides to infrastructure and buildings due to poor communities cannot afford. In are increasing in hilly areas as a water table fluctuations, salinity and such cases, city authorities need to consequence of deforestation and pore pressure fluctuations, decay of allocate additional resources to uncontrolled development, which pile foundations, etc., can create satisfy the water supply needs of the have a negative influence on the adverse conditions, which in most city population, as well as to protect natural drainage systems of these cases are not foreseen during the the sources of potable water to avoid areas. design stage. Existing research has pollution and increasing salinity. not adequeately covered the geo- The poor segments of the environmental problems associated community are forced to live in with long-term climate variations. It is substandard housing and weak important to understand the trends Progression infrastructure within built-up areas and to propose ways to minimize of Vulnerability and in effect, they become the first risks. A case in point is the impact on victims and the most vulnerable to all urban drainage infrastructure (e.g., In the global context, about 50 kinds of disaster events. Disaster drains, culverts, bridges, etc.), which percent of the cities are situated impacts on infrastructure associated is becoming increasingly inadequate along major earthquake belts, river with poor communities is expected in terms of capacity due to the large flood plains, landslide-prone to grow in the future due to land volumes of floodwater during mountain slopes or on tropical scarcity and because it is extreme weather conditions. cyclone tracks. The situation in Asia unaffordable for such groups to is quite significant in this context as relocate to less vulnerable areas. In Impacts on livelihood can be majority of megacities as well as addition there can be adverse effects high and the hardest hit will be the primary and secondary cities are

16 T r o p i c a l C o a s t s The growing risk due to progression located in hazard-prone areas. In addition, overexploitation of of different types of vulnerabilities environmental resources often has to be resolved through results in health disorders, has to be resolved through inconveniences and high vulnerability emergency response and mitigation to epidemics such as AIDS, SARS, etc. Terrorism, fatal accidents, chemical planning, creating safer shelter,,, biological risks force a new threat to built-up areas. The growing risk infrastructure and lifeline facilities. due to progression of different types of vulnerabilities has to informal settlements on marginal In cities such as Mumbai, 60 be resolved through emergency land, is a factor which contributes to percent of the population live in response and mitigation planning, increasing vulnerability. In such slums and occupy 7 percent of the creating safer shelter, infrastructure circumstances, cities grow in an land. Such difficulties are aggravated and lifeline facilities. unplanned manner and marginalized due to lack of mechanisms for populations are pushed to vulnerable participatory approaches and Socioeconomic areas without adequate facilities. The consultations prior to decision- vulnerability has to be addressed essential component of the urban making. Most decisions taken in through solutions capable of tackling workforce lives in such areas and the absence of representation the root causes. Managing the indirectly contributes to economic from vulnerable communities problems associated with growth. are unfavorable to them. Hence progression of vulnerability due to governments at all levels, which unplanned expansion of urban areas, Among the major problems should operate on the principle of poverty migration from rural to faced by many countries is the non- participatory decision-making and urban, lack of services and consideration of risk reduction working together towards common infrastructure is a big challenge for aspects in physical planningplanning. solutions, often fail to design action developing countries in Asia. The task Often, spatial development plans are plans to address the problems is huge and governments are ill- prepared without adequate associated with vulnerability. This equipped and under-resourced to consideration to the seismic aspect or institutional vulnerability has to be provide solutions. Lack of economic flooding and the expansion of built- addressed for the creation of a safer opportunities; frequent destruction of up areas can be directed towards the environment with adequate essential assets, crops and harvests as a result most prone area. The responsibility of facilities. of disasters; limited livelihood authorities is to provide safer areas alternatives in the rural areas drive for living. Governments of developing Another aspect of vulnerability the at-risk population to the urban countries, however, lack land use is connected with institutional and semi-urban regions. Urban solutions to solve the scarcity of land, vulnerabilityvulnerability. It is due to limitations poverty is the transformation of what alternatives for soaring land prices or lack of institutional and legal was once seen as dispersed rural which escalate due to difficulties frameworks, institutional capacity, poverty. No doubt wherever it associated with the implementation of and unavailability of technical exists, poverty is the root cause land use regulations. The poor cannot information related to hazard of socioeconomic vulnerability. afford to buy land in safer areas and environments, socioeconomic and Migration also leads to increased there are no adequate measures to physical vulnerabilities and density of population in urban areas. provide alternative formal settlements assessment tools for ascertaining The growth of slums, overcrowded to shelter the urban poor. the potential risk. Lack of information

D e c e m b e r 2 0 0 7 17 on hazard proneness and class often are owner-built — Strategies for Reducing information on probable scenarios, without adequate technical guidance the Risk absence of an early warning from architects and engineers. mechanism and unavailability of Housing stock in crowded, informal Despite the growing risk, most historical information on destructive settlements are substandard of the rapidly developing countries in events limit the capacity of the buildings and structures built using Asia adopt a reactive approach to risk relevant institutions to assess non-traditional building materials management. Any country which trends. Increase in physical and are mostly temporary and semi- understands the problems due to vulnerability is connected with permanent in nature. These result in escalation of risk due to natural and weaker buildings and infrastructure damage and destruction to all non- man-made hazards should adopt a that are vulnerable to the impact of engineered buildings and structures long-term and proactive strategy for various types of forces created by in the event of a disaster. Mostly, it risk management. Some of the environmental hazards. Most of the results from lack of technical strategies that can be adopted are engineered buildings, infrastructure guidance and essential credit summarized below: and lifeline facilities do not conform facilities to undertake remedial to building code requirements. actions to improve the situation. Further, cities lack a capable cadre Other observed factors in urban Participatory Approach in of technical experts who can assess areas is the inability of local City-level Action Planning for Risk building plans against technical governments to raise revenues and Reduction requirements for building therefore, provision of adequate structures that could withstand the services continues to deteriorate Through the governance forces due to natural hazards. with the expansion of informal process, the local governments are Shelters occupied by the middle settlements. encouraged to engage in a

Improved urban management can directly reduce the impacts of floods, landslides, earthquakes, fires and epidemics.

18 T r o p i c a l C o a s t s In more developed countries, constructive dialogue with stakeholders and involve them in environmental risk is mapped at the decision-making concerning community level, analyzed by development through a sustainable, proactive, risk reduction approach. technical institutions and the results, But legal provisions to undertake such initiatives do not exist in many on which decision-making is based countries. Therefore, it is necessary on, are verified through a to promote the establishment of on, are verified through a local-level disaster participatory process. management committees and to include wide representation from at- risk communities, civil society groups and the public. This can be an to the public. In the case of on, are verified through a effective informal governance secondary cities, ward or participatory process. approach to risk reduction. It has community-level hazard proven to be successful in a few assessments are being carried out countries in Asia, such as the using Probabilistic Risk Analysis Apply Community-based Approach Philippines, where the knowledge and (PRA) tools. Trained volunteers to Address Local Needs support of civil society stakeholders become the facilitators of the PRA is considered an essential aspect in and a wide range of stakeholder The aim of community-based solving problems concerning the community groups is invited to take disaster risk management (CBDRM) is safety of the population. Each part. The assessment data is to: consultation is designed to maximize integrated to form hazard zonation the partnership between government maps and risk assessments at the 1. Reduce vulnerabilities and to authorities and stakeholders and the local government level. The city-level increase capacities of vulnerable bottom-up approach is promoted in risk maps, using Global Positioning groups and communities to cope decision-making. System (GPS) and Remote Sensing with and prevent or minimize loss (RS) techniques, transform and damage to life, property and community knowledge into formal the environment; Access to Information products, which can be integrated in 2. Minimize human suffering; and other maps, such as maps on land 3. Speed up the recovery process. India is going through a use, geology and soil condition, revolutionary process by along with human settlement data, The participatory approach for allowing public access to population density, income and scenario building, risk assessment information for planning and revenue collection data, etc. All of and action planning can also generate development. In this way, the public which provides a better the much needed awareness on can log protests or suggest understanding of the vulnerability issues, and help to build ownership in alternative ways to minimize potential and growing risk to the population. the risk reduction process. The most risks. Hazard zonation mapping and In more developed countries, important mitigation interventions risk assessment is considered to be environmental risk is mapped at the that have been undertaken in Asia the starting point in the process of community level, analyzed by through community-based vulnerability reduction but this technical institutions and the results, approaches proved to be good information should be made available on which decision-making is based solutions for upgrading the living

D e c e m b e r 2 0 0 7 19 standard of informal settlements international agencies working in the building construction in the context and also a viable solution for the lack area of community development can of disaster-related structural and of resources for implementation. In select actions from the wish list for non-structural risks are: any disaster, people at the implementation. Central community level must use coping governments and external funding • Saving of lives of human beings and survival strategies to respond to institutions can encourage more and animals; and the situation long before outside communities by allowing direct • Saving of limited, costly and help arrives. CBDRM responds to the access to development funds by scarce resources of building growing recognition of the need for communities for implementation of materials and money (finances) community participation to ensure risk reduction interventions. from the loss of buildings, sustainable disaster reduction. property and infrastructure.

The community-based Safer Shelter Programs to Reduce Most of the buildings and approach also corrects the defects Losses infrastructure in urban built-up areas of the top-down approach in do not necessarily cover the development planning and disaster One of the essential aspects of provisions of the building code. Very management, which has often failed disaster impact reduction is few countries in Asia have appropriate to address local needs and ignored ensuring safer housing and shelter construction regulations according to the potential of indigenous capable of withstanding the forces specific potential hazards. Also, the resources and capacities. The action inflicted due to hazard events. Most choices of building materials often do plans identify the long-, medium- of the casualties during disasters not take into consideration potential and short-term actions for risk are associated with the collapse of disaster impacts when strength reduction and require the city buildings. Therefore the quality specifications are made. More often, governments to introduce budgetary assurance of housing construction the buildings are built by the owners allocations for mitigation in the and infrastructure is an essential and the selection and use of annual budget process. Also, the part of urban risk reduction. The unsuitable construction materials and development agencies, national and imperatives for promoting safe construction techniques lead to added risks and vulnerabilities. Even if the technological solutions are made Box 2. Long-term Strategies for Urban Disaster Risk Reduction. available, the perception on high costs for reinforcing and renovating ƒ Participatory approach in city-level action planning for disaster risk vulnerable buildings exists and this reduction cannot be changed easily. The general ƒ Ensure public access to hazard information view is that the cost for ƒ Apply community-based approach ƒ Ensure safer housing and infrastructure reconstructing these after a disaster ƒ Ensure the involvement of the private sector is much lower. The appropriate ƒ Public awareness and social marketing should target people living in government institutions have to take hazard-prone areas initiative in promoting appropriate ƒ Support the implementation of the Hyogo Framework of Action and create more awareness on HFA technology for construction in ƒ Advocate strongly for decentralization of disaster risk management disaster-prone areas through functions to the local government sector demonstrations of model housing, ƒ Mainstream disaster risk reduction into other sector-based programs to school retrofit programs, and facilitate building safer communities reinforcement of historical buildings, community buildings, etc.

20 T r o p i c a l C o a s t s Encourage Private Sector institutions to fill the funding gap for resilient against natural calamities is Involvement mitigation in order to supplement the an answer to the key issue of poverty efforts. This has been demonstrated reduction. Therefore reduction of In keeping with global trends, in school retrofitting programs poverty is seen as another important most developing countries in Asia implemented by the National Society goal of disaster risk reduction. In have switched to market-based for Earthquake Technology (NSET) in many areas, key information on the economic policies and recognize the Nepal and disaster-resistant model poor, housing situations, private sector as a catalyst in the housing initiatives undertaken by the employment conditions and service development process. In risk Center for Housing, Planning and delivery is not readily available and it reduction, however, most Building (CHPB) and National Building is therefore difficult to launch stakeholders place the responsibility Research Organization (NBRO) in Sri programs aimed at building only on government administrations. Lanka. If risk is always considered to community resilience. Authorities Making the private sector a partner in be a part of an investor's need to be motivated to undertake development means that it should consideration when initiating a risk reduction programs aimed at also shoulder some responsibility in disaster risk reduction project, and if vulnerable communities. Mobilization converting negative vulnerable they can integrate risk reduction of the poor through organized environments into positive safe measures into the design, the risk can groups in disaster risk reduction environments. There is evidence that be minimized. This will ease the initiatives is possible for their own investment decisions are influenced resource constraints of governments benefit. Experience shows that these by hazard risks and some of those to undertake specific risk mitigation efforts are very successful if decisions are made due to interventions. institutional mechanisms can be convenience, which is a factor for established for a more sustained increasing vulnerability. When critical participation of the poor in skill infrastructure falls, the ability of a Activating and Motivating the Poor enhancement endeavors and risk community to rebound from a to Become Resilient reduction initiatives. disaster is severely hindered. The population living in informal Further, where resources are settlements indirectly serves as the Risk Communication for Creating a limited, focusing on critical skilled and unskilled labor force and Safety-conscious Public infrastructure essential to the entire plays a great role in city life. Often, community spreads the benefits of they live on minimum daily wages; The strategy for public mitigation to a greater percentage of therefore food security, health and awareness and social marketing the population. In Vietnam, for sanitation all depend on how should target people living in hazard- example, some of the more hazard- conducive the environment is for the prone areas to make them realize and prone regions have received a continuity of their employment. Any understand the specific vulnerabilities disproportionately small share of breakdown in such a situation and risk that they are exposed to, private sector investment because of severely affects them and recovery is compliance to warnings that are perceived risk (Benson and Clay, difficult when setbacks are met in issued, and appropriate actions to 2004). In Bangladesh, garment their daily life. On the other hand, protect their lives and minimize factories put up by the private sector uninterrupted external and internal property damage. It is achieved in urban areas attract a lot of rural labor market supplies ensure through marketing the "risk message" labor. When commitment of the constant investment in labor- to the affected audience by crafting vulnerable communities is high, it is intensive businesses. Activating the outreach activities with an realistic to expect private sector poor and motivating them to become understanding of social and cultural

D e c e m b e r 2 0 0 7 21 contexts. There are few examples development options, based on an integration of urban disaster from countries in Asia suggesting understanding of environment mitigation in regular academic the effectiveness of such an potentials and limits and of needs disciplines at the undergraduate and approach. They demonstrate the perceived by the people of the country postgraduate levels as well as in employment of different concerned. professional training and continuing approaches, tools and products in education endeavors designed for campaigns for different audiences. Whatever the actions taken, public officials and bureaucrats. The Bangladesh experience shows disasters are capable of the importance of design being exposing unattended culture-specific and the vulnerabilities. As a process and Mainstreaming Risk Management involvement of the community. The non-structural approach in disaster into Other Sectors Sri Lanka experience highlights the mitigation, capacity building need to use local languages and interventions should address In many Asian countries, a popular media through shows that vulnerability and its root causes and national level institution or ministry feature drama, while Nepal has be integrated into the development handles disaster management. It is demonstrated the effectiveness of process so that it can contribute to the observation of the ADPC that the disaster safety day events to sustainability, empowerment and activities and functional promote a culture of safety. There community resilience. There are many responsibilities of such institutions are experiences of similar safety approaches for building capacities, are rarely decentralized or the day events organized at the city including training, public awareness, authority of such institutions has not level in Sri Lanka, Bangladesh and policy advocacy, community been adequately delegated to lower Thailand. organizing, institutional networking, levels of governments or other income-generating projects and sectors involved in development To create a safety-conscious emergency response. There are also planning and implementation. This public, the risk communication multiple actors in the process. As the needs to be viewed as a hindrance for process should be creative and concept of capacity building achieving disaster-resilient culture-specific, should have the encompasses the major aspects communities. The ADPC advocates extensive involvement of the affecting the community — political, strongly for decentralization of vulnerable community and should social, economic and cultural — disaster management subject to the adopt customized approaches in capacity building should focus on local government sector and response to the needs of the multiple stakeholders, particularly on integrating other sector-based community. their strengths, needs and priorities. programs as a routine practice to Such an approach to capacity building facilitate building safer communities. should combine formal training and Building the Capacity of informal education. Stakeholders Countries in the region have Initiatives of the ADPC A fundamental goal of capacity demonstrated an array of capacity- in Urban Risk Reduction building, as stated in the United building programs, methods and in Asia Nations' Agenda 21, is to enhance tools. In addition, they have the ability to evaluate and address demonstrated the effectiveness of As a resource center dedicated the crucial questions related to networking among training to risk management capacity policy choices and modes of institutions and universities to building, the Asian Disaster implementation among promote sharing of experience in the Preparedness Center, since 1986, has

22 T r o p i c a l C o a s t s The ADPC advocates strongly for successfully implemented a number of disaster mitigation programs in decentralization of disaster Asia. The Asian Urban Disaster management subject to the local Mitigation Program (AUDMP) is one of its key initiatives. The AUDMP, government sector and integrating which was funded by the Office of the Foreign Disaster Assistance other sector-based programs as a (OFDA) of the United States Agency for International Development routine practice to facilitate building (USAID), identified specific working safer communities. models in the Asian context to reduce vulnerability to disasters. These working models were made a significant contribution in Program for Regional Capacity documented in detail to support establishing disaster mitigation as Enhancement for Landslide Impact their replication in many other an integral part of the development Mitigation (RECLAIM) funded by the communities and countries. There process in Asia in a way unique to Government of Norway. Such practices were a number of broad disaster the cultural, social and local context and endeavors are expected to be axioms that were reconfirmed and of each target country. It has strengthened further through the supported by the experience of adopted a set of innovative implementation of new programs that implementing the AUDMP — from strategies to achieve success in risk are dedicated to promoting its demonstration projects that mitigation. preparedness and mitigation as a created a safer built environment in long-term proactive practice of both large cities and towns across At present, ADPC is countries in Asia. Asia; to the information and implementing a program for hydro- awareness programs, training, and meteorological disaster mitigation in policy change activities; and new secondary cities in Asia through References insights and initiatives that came funding support from USAID/OFDA. directly out of the AUDMP This program also promotes experience. preparedness and mitigation Benson, C. and E. Clay. 2004. Beyond the activities in selected highly Damage: Probing the Economic and Financial The program was implemented vulnerable secondary cities in South Consequences of Natural Disasters. World with partner organizations in ten and Southeast Asia by building upon Bank, Washington D.C. countries, namely, Bangladesh, the successful elements of the International Federation of Red Cross and Cambodia, India, Indonesia, Lao AUDMP. This program demonstrates Red Crescent Societies. 2007. World Disasters Report 2007 – Focus on PDR, Nepal, Philippines, Sri Lanka, the long-term commitment of ADPC Discrimination. http://www.ifrc.org/ Thailand and Vietnam. It helped to to urban risk mitigation and builds publicat/wdr2007/summaries.asp establish strong networks of local the institutional support that has UNCED (UN Conference on Environment and governments, development already brought significant impact Development). 1992. Agenda 21, agencies, regional and national on the attitudes, knowledge and Chapter 37. disaster mitigation professionals skills in the countries. Other similar USAID. 2003. Proceedings of the Workshop and experts who continue to help programs include the Partnership on Financing Infrastructure. United replicate disaster mitigation models Development for Disaster Risk States Agency for International Development. that are unique to the Asian context Reduction (PDR-SEA) funded by the throughout the region. AUDMP has European Union and the Asian

D e c e m b e r 2 0 0 7 23 Natural Disaster Dao Xuan Hoc* Vice Minister Ministry of Agriculture and Rural Development No. 2 Ngoc Ha, Ba Dinh District Prevention, Response Hanoi, Vietnam and Mitigation in Introduction Vietnam Vietnam is a disaster-prone country; it often faces natural disasters of various types. Because Vietnam is located in the tropical monsoon area, it is also considered as one of the five storm-prone areas in the Asia-Pacific region. In recent years, disasters have occurred all over the country, causing enormous losses in human The storm-prone Central Region of Vietnam focuses on “Preparedness, life, property, social and cultural Adaptation and Mitigation” in addressing disaster-related issues infrastructure as well as in the region. environmental degradation. From 1997 to 2006, natural disasters The Vietnamese Government and systems every year. This program its people have taken appropriate including typhoons, floods and is instituted to mitigate the impacts prevention, response and mitigation of natural hazards and to ensure drought have caused significant measures to: sustainable development for people losses, amounting to 7,500 missing a. minimize human loss; who are living near the coastal persons and casualties and b. reduce the loss of the State and areas. damages equivalent to 1.5 percent people's assets; of the Gross Domestic Product c. eliminate hunger and alleviate (GDP). poverty; Geographical, d. protect the environment; Meteorological and Natural disasters in Vietnam have e. ensure sustainable development; Socioeconomic been increasing in terms of and Background of Vietnam f. contribute to natural disaster magnitude, frequency and severity. mitigation in the region and the The territory of Vietnam Global climate change has rest of the world. borders the People's Republic of compounded this phenomenon. China in the North, Lao People's With a long coastline of 3,260 km, Democratic Republic and Cambodia Vietnam spends much of the national in the West, and faces the East Sea * The author can be reached through [email protected]. budget to build and rehabilitate dike in the East and the South.

24 24 T r o p i c a l C o a s t s The cycle is incomplete unless the Vietnam has a relatively diverse topography. It is made up of lessons learned from previous mountains, highlands, deltas, rivers, emergencies are not incorporated in coastal areas, islands and peninsulas. Hills and mountains cover three- another round of planning and fourths of the land area. Plains account for the remaining 25 percent, implementation stages. consisting of the Red River Delta, the central coastal plain, the Southeast Vietnam is located at the edge of million and a rapid population growth plain and the Mekong River Delta. Southeast Asia where it is bordered by has led to land shortages, for both the Pacific and the Indian Oceans. It is residential and agricultural purposes. As its territory is separated by also influenced by various continental Communities have encroached near mountain ranges, Vietnam has dense and ocean air blocks. Therefore, the river embankments, estuaries, and river networks. There are 2,360 rivers: rainfall is high but fluctuates and shorelines; they have also exploited 13 river systems cover a basin area of varies throughout the country. The natural resources and minerals in an 3,000 km2 and above, and 9 river average annual rainfall is uncontrollable manner, as well as cut systems have a basin area of more than approximately 2,000 mm. The North down and burned forests. These are 10,000 km2, namely the Mekong, Red, Central Coast is often observed to the factors that obstructed and limited Ca, Ma, Thai Binh, Dong Nai, Ba, Bang have the highest average annual riverine flows, impoverished the land, Giang-Ky Cung and Thu Bon rivers. rainfall, whereas the South Central silted reservoirs, caused landslides in Coast has the lowest rainfall region. the mountainous and hilly areas, as The catchment area of the well as mud- and rock floods. As a Vietnamese river systems is 1.167 High and steep mountain ranges result, natural disaster risks have million km2, of which 835,000 km2 are plus high rainfall make these regions risen. outside its territory (71.5%). The vulnerable to landslides and average annual flow is 835 billion m3, flashfloods. In addition, earthquakes Economic growth averaged more of which 37.5 percent originates in occur in the northeast region although than seven percent per year in the Vietnam territory. they happen infrequently and at low 1990s and is estimated to grow even magnitude. Table 1 shows the type of higher in the next two decades. If not The territory is divided into seven natural disaster by regional areas. combined with natural disaster economic and sub-climate zones, prevention, response and mitigation, namely the Northern Mountains, the Rapid population growth and this growth may cause more Red River Delta, the North Central urbanization have caused serious environmental pollution and ecological Coast, the South Central Coast, the pressure and degraded the natural imbalance, which in turn increases Central Highlands, the South East and resources and environment. A total disaster risks and unsustainable the Mekong River Delta. population reaching more than 85 development.

Table 1. Types of Natural Disasters by Regional Areas (Phuong, 2007).

REGION DISASTER ZONE PRINCIPAL HAZARDS

Northern Upland Flashfloods, landslides, earthquakes NORTH Red River Delta Monsoon river floods, typhoons, storm surges CENTRAL Central Provinces Typhoons, storm surges, flashfloods, droughts Central Highlands Flashfloods, landslides SOUTH Mekong Delta River flooding from upstream, typhoons, storm surges

D e c e m b e r 2 0 0 7 25 constitutes measures to: collect and process information from affected areas; make timely decisions for specific situations; establish forefront commands and task forces; and evacuate residents in dangerous areas. As such it is imperative to deploy human resources, equipment and facilities for disaster response that can carry out search-and-rescue operations effectively. The strategy is based on the adequacy of four metrics during a rescue mission: leadership, human resources, facilities and logistics. Here, the primacy of good coordination and cooperation among Damage caused by the Damrey Typhoon in July 2005 to Hai Hau in Nam Dinh Province. special forces, ministries, sectors, and communities must be established. The Cyclical Process Preparedness and of Disaster Risk Prevention Phase Management Recovery and The first stage to effective Reconstruction Phase Vietnam is cognizant of the disaster risk management is cyclical phases of risk preparedness and prevention, The third phase constitutes a management; measures which before a natural hazard wreaks continuation of the search-and-rescue address specific targets at havoc. They involve proactive operations coupled with the collection particular stages. These are both measures which involve non- of damage information. This stage, proactive mechanisms (measures structural and structural particularly, assesses the damage on in advance of an extreme event) components. Boxes 1 and 2 and emergency relief needs of and reactive mechanisms enumerate both methods as applied vulnerable groups, including the (measures during and after an in Vietnam aimed at reducing the elderly, disabled, women, children, etc. event). The knowledge generated possibility of a natural hazard This stage emphasizes the need to: from each stage may and can resulting in disasters. They involve • mobilize resources for relief prevent and mitigate impacts of a early forecasting and warning efforts; disaster, hence can alleviate systems, action plans, capacity • reconstruct and restore vulnerabilities in a certain locale or development, information production; increase resiliency of communities campaigns, improved dike systems • ensure sanitation and prevent in the face of emergencies. In other and safe infrastructure. epidemics; words, the cycle is incomplete • combine recovery activities with unless the lessons learned from sustainable development planning; previous emergencies are not Response Phase and incorporated in another round of • promote community self-help and planning and implementation The second phase involves the involvement of international stages. measures during an emergency. It organizations in disaster recovery.

26 T r o p i c a l C o a s t s Box 1. Non-structural Methods in Disaster-risk Management.

Early forecasting and warning remote and border regions, islands and upgrade vehicles at sea and on rivers. • Enhance the quality of the forecast of storms, floods and other • Gradually improve capacities and facilities for professional natural disasters in line with forecast capacities in the region search-and-rescue forces. Pay attention to ensure smooth and the rest of the world. communication. • Map disaster risks in areas, provinces, districts and critical • Participate in regional and international cooperation in search zones for proactive prevention, disaster risk assessment and and rescue. policy formulation. Preference is given to flashflood-prone areas. Integrate natural disaster prevention, response and • Modernize early warning systems from central to the local mitigation into socioeconomic development programs level. Ensure quick emergency response and coordination. Enhance the effective means of communication in the • Integrate natural disaster prevention, response and mitigation mountains, at sea and in remote areas. Central-level warning content into development programs, plans and strategies of system is responsible for nationwide monitoring and provides sectors and localities. It must be in line with sectoral, regional general orientation. Regional warning systems monitor large and national development strategies, appropriate for local areas and critical zones. Local warning systems are tailored disaster features and ensure safe and sustainable to meet specific characteristics of localities, i.e., villages, development. communes and resident areas. • Constructions must satisfy safety requirements, at the same • Install more equipment to monitor the developments of storms, time be environment-friendly, help to mitigate disaster risks floods and other natural disasters. Apply modern technologies and will not provide any agent for more risks. to the management, monitoring and control of storms, floods, • Include natural disaster risk assessment in the design and coastline and river bank erosion, landslides, etc., particularly appraisal of all investment projects. The projects can only be in the Mekong River Delta and central provinces. accepted after providing safe solutions against disaster risks. • Pay attention to simultaneous implementation of safety Legal documents programs for high-risk residential areas, such as mountainous, riverside, coastal and flooding ones. Attach • Review and amend legal documents and policies on natural much importance to land use planning and production disaster prevention, response and mitigation, make structure shift. preparations in the creation of the Law on Natural Disasters. Raise community awareness of natural disaster Government's direction prevention, response and mitigation

• Strengthen the capacity of relevant government bodies in Implement simultaneous measures and methods to raise social ministries and sectors, at both central and local level, awareness and capacities to respond to natural disasters: especially in communes and villages. • Improve preparedness according to the four on-the-spot • Include basic knowledge about natural disaster prevention, principles (e.g., national guidance, resources, equipment and response and mitigation in the school curriculum; carry out materials, and the right people are available to respond to practical activities in schools to help students know how to natural disasters), especially in communes and villages. respond to disaster situations and support their family and • Develop short- and mid-term plans for disaster prevention community. and mitigation in the nation and critical zones and localities. • Provide training for those directly involved in disaster prevention and mitigation activities, especially decision-makers, Search-and-rescue capacities managers, planners, practitioners, and local officers. • Frequently carry out such exercises as search and rescue, • Enhance the search-and-rescue capacity of organizations, evacuation, dike protection, etc., for responsible officers in individuals and communities, especially those in mountains, localities and sectors.

D e c e m b e r 2 0 0 7 27 Box 2. Structural Methods in Disaster-risk Box 1. Con’t. Management.

• Expand television and radio networks to remote areas, Dike systems, flood diversion and retarding structures increase broadcast time, diversify means of communication • Ensure safety for river and sea dikes at the designed flood in order to spread knowledge on disaster prevention and level. Strive for river dike safety at the historically high flood mitigation throughout communities. level. • Encourage cultural organizations to raise public awareness • Enhance quality of dikes, prevent degradation, and improve as well as promote natural disaster prevention, response such critical zones as dike foundation and sluices underneath and mitigation by their artworks and programs. the dikes. • Complete designed dike cross-sections, reinforce surface of Integrate social agenda to natural disaster prevention, dikes at Level III and higher levels. • Use modern technologies and new materials for the response and mitigation construction, repair, upgrade and reinforcement of dike systems. • Promote community involvement in formulating relevant • Continue to plant trees in suitable places to resist waves. laws, regulations, programs and plans. Disclose these • Flow clearance for flood discharge. documents after they have been approved. • Continue to build flood diversion and retarding structures as • Promote community involvement in managing and planned. monitoring the implementation of programs and projects. Reservoir and dam systems • Develop and multiply the model "disaster safe villages" in which the communities are aware of potential disaster risks • For existing reservoirs: inspect their conditions, repair and and consequences. Collect human resources and facilities; upgrade them to ensure safety. Build spillways for reservoirs establish funds for disaster prevention and mitigation and lacking them, or those whose spillways do not ensure designed other humanitarian foundations. flood discharge. Inspect and improve their operation to ensure • Develop self-preparedness capacity in the community, safety, particularly in case of heavy rains and floods. mobilize on-site resources for proactive search and rescue. • For reservoirs under construction: Concentrate resources to hasten the construction progress and ensure quality. • Promote mutual help and protection against disasters, • Continue reservoir planning for flood cutting and multi- encourage organizations and individuals to participate in purposes. Make preparations for building approved relief efforts for affected localities by various efficient ways. reservoirs.

Information sharing and international cooperation Socioeconomic infrastructure

The following information is shared among different sectors, • Constructions must meet requirements for flood discharge, safe from floods, storms and other types of disasters. localities, regional countries and the rest of the world: • Reinforce road system in flood areas with suitable materials. • Types of natural disasters • Use multi-storey buildings for government offices, hospitals • Forecasts and warnings and healthcare centers, schools and kindergartens, especially • Information on search, rescue, and relief needs, and in communes and wards so that they can act as shelters if • Experience in organization, management, direction, necessary. preparedness, response, recovery and reconstruction. • The planning and construction of information and electricity systems, warehouses, harbors must ensure safety standards in case of floods and storms. International cooperation includes: • Information sharing in forecast technologies Civil buildings • Research on disaster prevention solutions for each area • Search and rescue missions, especially those at sea and • Encourage private houses by providing support and low- in flashflood-prone regions interest loan programs. Each family should have at least a • Training, experience sharing, adoption of criteria and room safe from floods and storms methods for disaster risk assessment Berthing facility and shelters for boats and ships • Financial support for programs and projects on disaster prevention and mitigation. • Continue the planning and hasten the progress of making shelters and berths for boats and ships.

28 T r o p i c a l C o a s t s The capacities in terms of skilled

Perspectives on the human resources augur well in Solutions Instituted in preventing or mitigating disasters Vietnam from storms and flooding. When The experiences of Vietnam in natural risk disaster management human resources particularly in embody the tenets of addressing the overarching goals of sustainable advisory and administration agencies development in the context of are developed and strengthened, prevention, response and mitigation during disaster events. In them there losses and negative impacts in is a realization that unless a state is able to address the institutional, disaster events are alleviated. social, environmental and economic conditions of its communities, it is bound to experience disasters one after the other. Herein lies the and circulars to provide instructions codes in high-risk areas, and importance of contextualizing the on how to implement laws. revising regulations on disaster conditions of a particular locale and forecasting and warning. its needs in terms of managing It is now being realized that risks. The following discussion is reforms in policies and laws must be based on these premises. Firstly, the in accordance with national Improving Organizational general overarching solutions are socioeconomic development Structure and Management articulated; and secondly, several programs. Hence, authorities in solutions, particularly crafted for Vietnam are being informed to issue An effective institutional two regions are highlighted (below). policies, regulations and technical arrangement, likewise, is necessary instructions that integrate: to create effective disaster risk management approaches. Two Developing Relevant Policies, • Disaster relief, recovery and strategies are deemed important in Laws, and Regulations production development as well Vietnam's context. One, it is crucial as policies for areas living with to strengthen the effectiveness of Flood risk reduction policies floods, flood diversion and current institutional arrangements. A and legislation enable a government retarding areas, and those highly lot is hinged on initiatives to review to pursue a strategic course of prone to floods, storms and and revise the functions, duties of action. In Vietnam, the creation of other disasters; and cooperation mechanism among laws on natural disaster prevention, the Committees for Flood and Storm response and mitigation is based on • Research activities, investment, Control and the Committees for the Ordinance on Flood and Storm international cooperation, Search and Rescue at central, Control. This strategy showcases the disaster insurance and ministerial and local levels. In need to regularly revise and amend mobilization of resources; and addition, these institutions must: existing laws to reflect the changing conditions and capacities. It is also • Planning, defining high-risk • Modernize facilities, meaning to important to promulgate decrees zones, establishing building upgrade offices and invest in

D e c e m b e r 2 0 0 7 29 new equipment and technologies flood and storm control, search, alleviated. Likewise, effective strategies to meet the requirements of rescue and management of other are being undertaken in Vietnam which natural disaster prevention, types of disasters. Specialized include the creation of professional response and mitigation activities; agencies which assist the Chairman response forces and the organization of the People's Committee at of response units in communities. • Complete the regulations on the various levels in natural disaster Other strategies include: enhancing operation of the committees of prevention, response and mitigation the role of mass organizations (e.g., different levels and ministries; must work under the direction of a the Vietnam Fatherland Front) in and higher management agency. The disaster preparedness, response and establishment of organizations to damage recovery; and developing a • Professionalize the officers in support disaster management, volunteer network in training and charge of natural disaster training centers, public service information dissemination activities, prevention, response and units, etc., is also needed. relief and recovery. mitigation activities.

Two, it is necessary to establish Strengthening Human Resources Ensuring Adequate Financial specialized agencies for natural Resources disaster prevention, response and The capacities in terms of mitigation. These agencies must skilled human resources augur well State budget ensures the operate based on mandates from in preventing or mitigating disasters implementation of natural disaster several levels. Hence, a specialized from storms and flooding. When prevention, response and mitigation agency must be constituted to assist human resources particularly in projects and disaster recovery. The the Prime Minister in performing the advisory and administration national reserve can be used, if state management function in natural agencies are developed and necessary. Often, the state delegates disaster prevention, response and strengthened, losses and negative provincial and district people's mitigation, and to assume the role of impacts in disaster events are committees to mobilize legally mandated resources and to secure investments in natural disaster prevention, response and mitigation. As such, Vietnam gives preference to and ensures lawful interests of organizations and individuals investing in natural disaster prevention, response and mitigation.

With the increase in frequency and severity of hazard risks, it is also imperative to gradually increase the budget for strengthening management capacity, new construction projects, planning, upgrade and maintenance of constructions and facilities for The Cuu Long River Delta during a flooding event. disaster warning, forecast, rescue and

30 T r o p i c a l C o a s t s disaster recovery. Vietnam also For Vietnam to adequately address protection and management, ensures to: risks, it must also improve its information sharing and rescue; capacity to study and monitor the • Take advantage of ODA and FDI earth's changes and natural • Cooperate with countries in the for disaster prevention and changes within the region and its region and the world in disaster mitigation projects; territory. Vietnam also takes warning, technology transfer, measures to: information and experience • Encourage organizations and sharing and practical lessons; and individuals at home and abroad • Encourage the application of establishing agreements and to invest in research and apply new technologies and conventions, especially those on modern technologies, together materials; enhance the quality, search and rescue; with traditional methods. Strive appearance and environment- for proactive planning; friendliness of constructions; • Strengthen cooperation with such and international organizations, such • Encourage organizations and as the United Nations individuals at home and abroad • Develop sciences related to Development Programme, the to carry out humanitarian and natural disasters, e.g., science Asian Development Bank, The charity activities targeting people on emergency situations, World Bank, and governmental and and localities affected by natural science on natural disaster nongovernmental organizations in disasters; management, science on providing financial assistance, natural disaster and humanitarian aids, training and • Establish disaster insurance and sustainable development, education, research and human self-help funds; and science on disaster health resources; and care, science on post-disaster • Encourage financial institutions environmental recovery. • Closely cooperate with to support disaster prevention international organizations in and mitigation activities. implementing the International Strengthening International Strategy on Natural Disaster Cooperation and Integration Mitigation, the Hyogo Framework Developing Science and for Action and other programs. Technologies Related to Natural The need to diversify into Disaster Prevention, Response and other forms of cooperation and to Mitigation increase international and regional integration in terms of natural Solutions for Each Region The focus on developing a disaster mitigation cannot be over systematic and integrated approach in emphasized. No state can cope researching and resolving practical singly when massive losses and The Central Coast and the South East issues is enhanced today more than destruction are at hand. Vietnam, ever. This involves multidisciplinary, for its part is trying its best to: The principle of natural disaster multi-risk and multi-use mechanisms prevention, response and mitigation in the application of new science and • Cooperate with neighboring for the central coastal plains and the technology, particularly in countries in the establishment South East is "avoidance and forecasting, warning, communication of agreements on water adaptation." system and decisionmaking process. resources exploitation, continued on page 62...

D e c e m b e r 2 0 0 7 31 The PEMSEA Network of Local Governments for Sustainable Coastal Development (PNLG) — A partnership built on leadership and commitment towards strengthening coastal governance.

The PNLG, a self-sustaining network of local governments Pte Ltd. and representatives from the academe, who provided implementing integrated coastal management (ICM), is a first of expert opinion on critical and emerging issues. Also in its kind in the East Asian Region. The network, previously known attendance were donor representatives, including the Swedish as the Regional Network of Local Governments implementing Environmental Secretariat for Asia (SENSA), which provided ICM (RNLG), was established in March 2001 in Seoul, RO Korea, financial support to the 2007 forum, as well as private sector to serve as a forum for exchanging information and experiences representatives and local participants from the host country. The in ICM practices among local governments of the region. Since study tours, which are a component of each forum, have 2001, the member local governments have taken turns in hosting provided an opportunity for the participants to appreciate the the annual forum and study tours. Local governments who positive changes occurring on the ground as a result of ICM pledged to host the forthcoming forums are already initiating implementation at the host sites. activities in preparation for the 2008 and 2009 forums. The transformation of the RNLG into PNLG was initiated with the The past forums were well attended by local government adoption of the Bali Resolution on the Establishment of the executives and representatives from the member and observer PNLG during the 4th RNLG Forum in Bali, Indonesia, in 2005. local governments, as well as regional/international experts from The transformation was a proactive initiative of the local the United Nations Environment Programme-Global Programme governments, which are seen as driving forces in the ICM scaling of Action (UNEP- GPA), United Nations/ International Strategy for up process across the region. The achievements of the local Disaster Reduction (UN/ISDR), Asian Disaster Preparedness government-initiated ICM programs have created an opportunity Center (ADPC), Network of Aquaculture Centres in Asia-Pacific and a demand. The PNLG members play a critical role through (NACA), Center for Disaster Preparedness (CDP), Victorian sharing of experiences to encourage other local governments to Coastal Council, Oil Spill Response and East Asia Response develop and implement similar programs.

32 T r o p i c a l C o a s t s LO OF CA K L R G O O W V T E

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The PNLG was officially founded with the signing of the PNLG P Charter by local government executives from 18 ICM Venue for knowledge sharing demonstration and parallel sites in Haikou, PR China, on 13 December 2006. An additional five local governments 1st RNLG Forum, Seoul (RO Korea), 15-16 March 2001 representing ICM parallel sites in China signed the PNLG 2nd RNLG Forum, Xiamen (PR China), 20-23 September 2002 Charter during the 2007 PNLG Forum in Danang, Vietnam, on 5 3rd RNLG Forum, Putrajaya (Malaysia), 9 December 2003 September 2007, bringing the membership to 23 local 4th RNLG Forum, Bali (Indonesia), 20-25 April 2006 governments from 8 countries across the East Asian region. Inaugural Meeting of the PNLG, Haikou (PR China), The network also has seven observer local governments from 13 December 2006 DPR Korea and China. 2007 PNLG Forum, Danang (Vietnam), 5-7 September 2007 2008 PNLG Forum, Sihanoukville (Cambodia), 19-21 November 2008 The linkages among the local governments are effectively 2009 PNLG Forum, Bataan (Philippines), 23-25 November 2009 maintained due to the convergence of interest among its PNLG member local governments members and a commitment to work together. The positive results generated over its six years of operation have Sihanoukville, Cambodia Klungkung, Indonesia encouraged other local governments to join. It is anticipated that Dongying, PR China Sukabumi, Indonesia two additional local governments from the Philippines and Fangchenggang, PR China Tabanan, Indonesia Vietnam will sign the PNLG Charter during the 2008 PNLG Haikou, PR China Shihwa, RO Korea Forum in Sihanoukville, Cambodia. Quanzhou, PR China Port Klang, Malaysia Xiamen, PR China Bataan, Philippines One unique feature of the PNLG is that the members abide by Bali, Indonesia Batangas, Philippines the Code of Conduct, which outlines their responsibilities Badung, Indonesia Cavite, Philippines regarding the adoption and implementation of good practices in Buleleng, Indonesia Chonburi, Thailand ICM. The network's increasing visibility will generate interest Denpasar, Indonesia Danang, Vietnam among potential partners from the private sector and Gianyar, Indonesia Quang Nam, Vietnam nongovernmental organizations to become associate members Karangasem, Indonesia and render the network even more encompassing. Observer local governments Potential PNLG members With the establishment of the PNLG Secretariat in December Nampho, DPR Korea Guimaras, Philippines 2006 ([email protected]; www.pnlg.org), hosted by Leting, PR China Thua Thien-Hue, Vietnam Xiamen Municipality, the PNLG hopes to carry on its mission to Lianyungang, PR China serve as a sustainable network and an advocacy group for local Panjin, PR China governments at regional and international forums to promote Qingdao, PR China the application of ICM as an effective management framework Wenchang, PR China to achieve sustainable coastal development. Yangjiang, PR China

D e c e m b e r 2 0 0 7 33 The Charter of the PEMSEA Network of Local Governments for Sustainable Coastal Development

Preamble in the collective effort of all stakeholders to reverse the continuing destruction and decline of our common heritage. The SDS-SEA 1. The Regional Network of Local Governments implementing challenges local governments in coastal areas throughout the Integrated Coastal Management (herein referred to as RNLG) region with the formidable task of reducing conflicting and non- was officially launched by the GEF/UNDP/IMO Regional sustainable usage of natural resources in their respective Programme on Partnerships in Environmental Management watershed and coastal seas, through the application and for the Seas of East Asia (PEMSEA) in March 2001 as a forum replication of ICM programs. for exchanging information and experiences in integrated coastal management (ICM) practices among local governments of the 4. Our network, the RNLG, can make a valuable contribution to this region. For the past several years, we have witnessed how regional effort, by encouraging non-member local governments ICM practices lead to improved governance of marine and to develop and implement ICM programs. We have the advantage coastal resources, and resulted in on-the-ground social, of experience, skills and knowledge that are required for economic and environmental gains in our communities. successful ICM application. Working within the framework of PEMSEA, we also have the advantage of accessing higher 2. The RNLG has proven to be a unique and valuable partnership levels of government, international agencies, donors, and the arrangement among local governments, focusing on the special private sector to support our cause and to ensure that local challenges of coastal cities, municipalities and provinces with governments of the region are well equipped to turn regard to sustainable growth and development, and providing environmental concerns into economic and employment a vehicle for sharing practical experiences, technical skills and opportunities and to facilitate their speedy resolution. management know-how on ICM practices among its members. 5. Therefore, the RNLG members decided to adopt the "Bali 3. The Sustainable Development Strategy for the Seas of East Resolution on the Establishment of the PEMSEA Network of Local Asia (SDS-SEA), as adopted by our national governments in Governments for Sustainable Coastal Development (PNLG)" December 2003, recognizes the vital role of local governments on 27 April 2005, at Bali, Indonesia.

Wherefore, we, the representatives of the members of the PNLG, do hereby ordain and promulgate the following charter.

I. Name and Office administrative rules and regulations of PEMSEA, which may be in force. Name 6. The name of this organization shall be the PEMSEA Network of Local Governments for Sustainable II. Vision and Mission Coastal Development, which shall also be known by its acronym PNLG. PNLG Vision 9. The PNLG's vision states: Office Coastal areas throughout the East Asian Seas region 7. The principal office of the PNLG shall be located in Xiamen, are managed in a sustainable manner. PR China. PNLG Mission Relation with PEMSEA 10. The PNLG's mission shall be to serve as a network of local 8. The PNLG shall function as an integral part of PEMSEA governments in the region, which, along with their stakeholders, and may receive financial and technical support within shall promote the application of ICM as an effective management available funding allocations and in accordance with the framework to achieve sustainable coastal development.

34 T r o p i c a l C o a s t s III. Goal and Objectives units outside the East Asian Seas region, as well as local government associations, governmental and Goal nongovernmental organizations, universities and 11. The PNLG shall facilitate the sustainable development and academic institutions, the business sector, foundations, environmental conservation of marine and coastal resources of international organizations and donor agencies within and the region through advocacy, knowledge sharing, forging multi- outside the East Asian Seas region. stakeholder participation and partnerships among local governments, national agencies, civil society groups including Application and Acceptance non-governmental organizations and people's organizations, and 14. Application for membership to the PNLG shall be made in the private sector. writing and submitted, together with the first year's annual membership dues as well as an official document expressing Objectives the intention to subscribe to the PNLG Code of Conduct through 12. The PNLG shall have the following objectives: the necessary internal adoption process, to the PNLG Head of (a) To enhance the capacity of local governments to plan, Secretariat, who shall then review the application according to develop, and manage their coastal and marine resources the guidelines developed and approved by the General for sustainable use; Assembly. (b) To promote the application of ICM approaches, processes and tools in coastal planning, development and 16. The PNLG Head of Secretariat shall notify all regular members management; of such application and transmit the same, together with his/her (c) To facilitate the linkage between scientific/technical institutions recommendation, to the Executive Committee, which shall then and local governments, in order to provide capacity building make the decision on whether to accept or deny the application. and scientific input to local government decision-making, The decision of the Executive Committee shall be final. policies and programs; (d) To implement innovative financing mechanisms and 17. The PNLG Head of Secretariat shall send the applicant a partnership arrangements for environmental investments written notice of the decision of the Executive Committee. In the with international and national financial institutions, private case of unsuccessful applicants, annual membership dues investors and operating companies, where appropriate; submitted will be returned. (e) To strengthen multi-stakeholder involvement in managing coastal and marine resources, in order to enhance societal Termination of Membership and corporate responsibility for sustainable development of 18. Members may terminate their membership by notifying the natural resources; and PNLG Head of Secretariat in writing. Membership can also be (f) To enhance local coastal governance, as well as inter- terminated by the PNLG if any member fails to perform their agency and multi-sectoral coordination mechanisms, in roles and obligations and observe the PNLG Code of Conduct dealing with coastal and ocean management issues. as referred to in Section V.

IV. Membership V. Benefits, Roles and Obligations

Eligibility Benefits 13. The PNLG shall be open for membership to all local government 19. The PNLG shall work towards achieving the following benefits units and other stakeholders that subscribe to the vision, mission, for its members: goal and objectives of the PNLG. The definition of local (a) Participation in the annual network meeting/workshop; governments shall be consistent with the definitions provided in (b) Information exchange concerning specific knowledge, the respective countries of the East Asian Seas region. skills and good practices related to ICM program development and implementation; Categories (c) PEMSEA publications and other information facilities; 14. The members of the PNLG shall be categorized into: (d) Representation at the PEMSEA Partnership Council, (a) Regular Members, which are limited to eligible local Ministerial Forum and other concerned regional/ government units in the East Asian Seas region; and international forums and local government networks; (b) Associate Members, which may include local government (e) An invitation to participate in the EAS Congress;

D e c e m b e r 2 0 0 7 35 (f) Website linkage with PEMSEA and member local (b) To formulate and implement coastal strategies and action governments of the network; plans that provide a long term vision and strategy for (g) Policy, technical support and training services of the PEMSEA sustainable development of the coastal area, and a fixed- Resource Facility, on a cost-recovery basis, including: term program of actions for addressing priority issues and concerns; • PEMSEA training opportunities; (c) To implement public awareness programs to increase the • PEMSEA's public-private sector partnership program level of understanding of, and appreciation for, the coastal for mobilizing private sector financial resources and and marine resources of the area, and to promote a shared expertise; responsibility among stakeholders in the planning and • Innovative financing programs for leveraging invest- implementation of the ICM program; ment in environmental infrastructure improvements; (d) To mainstream the ICM program into the local government's • PEMSEA ICM certification, leading to ISO certification; planning and socioeconomic development program and to and allocate adequate financial and human resources for its • PEMSEA certification for Port Safety, Health and implementation; and Environment Management System, leading to ISO (e) To conduct integrated environmental monitoring for the certification. purpose of measuring the status, progress, and impacts of management programs against sustainable development Roles and Obligations indicators, as may be established, and to use the information 20. The PNLG members shall: in decision-making, public awareness and participation, and (a) Attend the network annual meetings at their own cost; performance evaluation. (b) Exchange information, publication and experiences with other PNLG members; (c) Link websites with PEMSEA and other PNLG members VI. Governing Body where possible; and (d) Recruit new network members for participation in annual General Assembly meetings and for development and implementation of ICM 23. The governing body of the PNLG shall be the General Assembly, programs. which shall be composed of regular members in good standing, in accordance with Section IV. 21. In addition, regular members shall: (a) Pay an annual membership fee of 500 US$; Functions of the General Assembly (b) Develop, implement, consolidate and sustain ICM programs 24. The General Assembly shall perform the following functions: within their jurisdictions; (a) Elect the officers of the PNLG; (c) Abide by the Code of Conduct for the PNLG members; (b) Establish and provide policy guidelines and enunciate (d) Sponsor and host at least one network annual meeting and programs designed to fulfill the goal and objectives of the study tour; and PNLG; and (e) Monitor environmental quality and submit a triennial state of (c) Approve proposed annual work programs, budgets and the environment report. activities.

Code of Conduct Quorum and Decision Making 22. Regular members shall subscribe to the Code of Conduct as 25. In any meeting, whether regular or special, more than 50% of follows: regular members shall be present in order to establish the quorum (a) To work towards the development and implementation of to transact business. Decisions shall be arrived at through institutional arrangements for ICM implementation, including consensus building. Members who are not able to attend the an interagency, multi-sectoral mechanism to coordinate the meeting can execute membership right by way of proxy. efforts of different agencies, sectors and administrative levels, and where appropriate, to develop: policy and legislative measures to support ICM planning and management; VII. Officers capacity building programs to enhance required human resource skills and tools; scientific input to policy and planning Election of Officers processes; and enforcement mechanisms to ensure 26. The Officers shall administer the affairs of the PNLG in accordance compliance with adopted rules and regulations; with its goal and objectives. The regular members of the General

36 T r o p i c a l C o a s t s Assembly shall elect the President and the Vice-President from Secretariat Functions among the regular members. 34. The activities of the secretariat shall include: (a) organizing the annual meetings of the PNLG; Terms of Office (b) implementing/coordinating the decisions and actions 27. All officers shall hold office for a term of three years and until their requested by the PNLG General Assembly; successors shall have been duly elected and qualified. No regular (c) informing network members of relevant activities, member shall be nominated and elected to hold any officer position events and opportunities among its membership; for more than one term. (d) representing the PNLG within PEMSEA; (e) keeping and maintaining records of the members of President and Vice President the PNLG, including the membership data, status and 28. The President, and in his/her absence, the Vice President, shall other relevant information and documents; represent the PNLG before international and regional meetings (f) collecting all dues, regular or special, and all donations and forums. The President and the Vice President shall serve as to the PNLG and disbursing funds in accordance with chair and vice-chair in all meetings of the General Assembly and the PNLG Charter and By-Laws; the Executive Committee. (g) preparing an annual financial and implementation report on the PNLG activities; and Vacancy (h) in general, performing all duties inherent to the office 29. An office shall be declared vacant in the event that an officer no of the Secretariat and such other duties as may be longer represents the local government units, dies, becomes assigned to him/her by the Executive Committee from incapacitated, resigns, or his local government ceases to be a time to time. member of the PNLG. In case of the vacancy of the post of the President, the Vice President will automatically assume the position for the remaining period of the term. Vacancy of the post of the X. Annual Forum Vice President shall be filled for the remaining period of the term of office through appointment by the Executive Committee. 35. The PNLG shall hold an annual forum at its principal office or another place as may be designated by the General Assembly. The annual forum shall consist of: VIII. Executive Committee (a) General Assembly Meeting — annual meeting of regular members to discuss, evaluate and approve Composition the proposed annual work plans, budget and activities 30. The Executive Committee shall be comprised of the President of the PNLG and other related matters; and and the Vice President of the PNLG, and the Executive Director (b) Technical Meeting — annual meeting of all PNLG of the PEMSEA Resource Facility, with the PNLG Head of the members including the regular and associate members Secretariat serving as the secretary. for knowledge sharing, partnership building and monitoring of ICM scaling-up progress. Functions 31. The Executive Committee shall ensure and oversee the implementation of the decisions of General Assembly, and report XI. Funds to the General Assembly. Funds 36. The sources of funds of the PNLG shall be: (1) Membership IX. Secretariat fees; (2) Operational funds from local governments hosting the secretariat; (3) Grants and financial assistance from Secretariat Office PEMSEA and other partners; and (4) Fund-raising and 32. The Secretariat shall hold office in Xiamen, PR China and shall other revenue-generating activities. be managed by the PNLG Head of Secretariat. Management of Funds The PNLG Head of Secretariat 37. The funds shall be used for operations and implementation 33. The PNLG Head of Secretariat shall be appointed by the local of activities aimed at achieving the goal and objectives of government hosting the secretariat in accordance with the the PNLG, in accordance with the annual work plan and qualifications set by the Executive Committee. budget as approved by the General Assembly.

D e c e m b e r 2 0 0 7 37 38. The secretariat shall be responsible for administrative more detailed information and procedures for the procedures and management of the approved funds, in implementation of the provisions of the Charter. The Bylaws accordance with work plans and budgets of the PNLG as well shall be adopted by the General Assembly after reaching as accounting and auditing rules and regulations of PEMSEA. consensus.

Amendment XII. Bylaws and Amendments 40. Every proposal to amend the Charter and any subsequent changes to the Bylaws shall be submitted in writing during the Adoption of the Bylaws General Assembly meeting and shall be adopted after reaching 39. The Bylaws of the PNLG shall be developed to provide consensus.

38 T r o p i c a l C o a s t s D e c e m b e r 2 0 0 7 39 Nguyen Dieu* Director Integrating Disaster Department of Natural Resources and Environment 57 Quang Trung Street Danang, Vietnam Risk Reduction and

Introduction Mitigation into Danang City is located in central the Danang Vietnam. The city is characterized by rapid urbanization and industrialization, earning its current Coastal Strategy status as one of the most important economic growth centers of central Vietnam (Figure 1). It is also an Implementation Plan area that is increasingly exposed to natural disasters, particularly The Coastal Strategy discusses the various mechanisms and typhoons and flooding. On the Implementation Plan (CSIP) outlines the approaches that Danang instituted to average, the city experiences strategic actions needed to implement address disaster risk reduction and around three to four floods and at Danang’s Coastal Strategy. Although the mitigation. least one typhoon and one tropical Coastal Strategy identified natural low pressure per year. In recent disasters as one of the risks that years, the impacts from natural threaten the sustainable development of Vulnerability to Natural disasters have directly affected the city, the priority action programs in Disasters the CSIP did not focus much on disaster the city. reduction. The reasons being: (a) the Danang is usually affected directly Coastal Strategy was developed in the by typhoons and tropical low pressures One of the key outputs of the context that there were not many formed in the East Sea. The city also Danang Integrated Coastal serious natural disasters that Danang receives heavy rainfall particularly Management (ICM) Project is the has been or will be exposed to; and (b) during October and November. Coastal Strategy, which was the city has many other important Aggravating the situation is the limited adopted by the People's Committee socioeconomic concerns that needed to drainage capacity of its many rivers and of Danang City in December 2001. be prioritized and implemented. streams. For example, the area of the The Coastal Strategy provides a coastal plain affected by flooding is 2 broad management framework in In recent years, the natural about 500 km , while the area of the valley that receives water from the Vu addressing priority issues that disasters that hit Danang City have caused very serious damage. This Gia and Thu Bon river system, where threaten the sustainable prompted the City to adjust some of the Han River originates, is very large — development of Danang's action programs identified in the CSIP in nearly 5,180 km2, about tenfold of the coastal area. order to mitigate and reduce the flood-affected area. The drainage impacts of natural disasters. This paper capacity of the plain is therefore very * The author can be reached at: [email protected]. For more information: www.danangcoastalink.org.vn.

40 40 T r o p i c a l C o a s t s Figure 1. Administrative Map of Danang City...

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 HoHo ChiChi MinhMinh as stone embankments, bridges and on the physical features (i.e., 10°  10° N Truongtruongtruong Sasasasa N the port area, which affect the current geographical, topographical and and water flow near the estuary, hydrological) of Danang.

105°E 110°E 115°E Box 1. Physical Features of Danang.

• Lies between latitudes 15o55' and 16o14'N and • Climate is a combination of the climatic features of the longitudes 107o18' and 108o20'E. north and south but the typical tropical climate of the • It borders Thua Thien-Hue Province in the north, south dominates. Quang Nam Province in the south and west and East • Annual average temperature is 25.9oC. Sea in the east. • Annual average rainfall is 2,505 mm. • Consists of six districts (Hai Chau, Thanh Khe, Lien • Major rivers include Han and Cu De and other rivers Chieu, Son Tra, Ngu Hanh Son and Cam Le); one include Yen, Chu Bai, Vinh Dien, Tuy Loan and Pho Loc. suburban district (Hoa Vang) and one island district Han River is the lower section of the Vu Gia and Thu Bon (Hoang Sa). River system, the biggest in central Vietnam. • The Truong Son, Hai Van and Bach Ma mountain range • Water level at the upper reaches of the city is dependent makes up ¾ of the area of the whole city while the on the season while the lower sections are affected by tidal coastal plain makes up ¼ of the area, which is divided regime, which is semi-diurnal. by many rivers and streams. • Forested area makes up more than 40 percent of the land area.

D e c e m b e r 2 0 0 7 41 Natural Hazards that Threaten Danang Most of the typhoons and tropical low pressures that hit Danang are characterized by strong winds, heavy There are three major categories of natural hazards rainfall and storm surges. If heavy rainfall and storm that threaten Danang. These include typhoons and surges coincided with the rising of the tide, flooding tropical low pressures, monsoon rains and, possibly, usually occurs. This is often aggravated by the intensity tsunamis. of the typhoon, as well as its direction and speed.

Typhoon and Tropical Low Pressures Monsoon Rains

Typhoons and tropical low pressures, either coming The rainy season in Danang starts in September and from other countries like the Philippines or from the East lasts until December. The rainfall during the rainy season Sea occur from September to November each year makes up 70 percent of the annual total rainfall. (Figure 2). Statistics show that about 3-4 typhoons and According to statistics, during the past 34 years, on the 2-3 tropical low pressures have affected the central average, Danang has experienced eight heavy to very region annually. Danang in particular experienced at least heavy rains, with total average rainfall of 150 mm. one typhoon and one tropical low pressure each year. In the past four decades, however, typhoons have been The northeast monsoon often occurs during the increasing. In the '80s and '90s, there were about 16 and rainy season and the beginning of the dry season. The 12 typhoons that passed Danang, respectively. northeast monsoon often causes heavy rains, especially so when it coincides with the tropical turbulence in the Figure 2. Typical Typhoon Path in Vietnam. south of East Sea. Heavy rains can last for several days and often cause serious flooding in many areas, affecting both the environment and the population. In Danang, continuous heavy rains cause flooding, particularly in the inland where there is low drainage capacity.

On the average, there are 3-4 floods per year; the most per year was 6-7 floods. In the past two decades, the frequency of flooding has been increasing. From 1990-1999, four very strong floods have been recorded.

Tsunami

There are no records of tsunami occurrence in Danang City. In view of the frequency of earthquakes in the region and their impacts on the coastal areas, it is anticipated that tsunami is one of the potential risks that threaten the city. Being a coastal city, the potential damage would be enormous.

A chronology of disasters and their impacts are presented in Box 2.

42 T r o p i c a l C o a s t s Box 2. Chronology of Disasters and Their Impacts.

Floods depth of water. There were 23 damaged schools with 167 rooms. Many agricultural areas as well as aquaculture sites According to the hydrometeorology survey and monitoring data were damaged. Also, about 10,000 trees collapsed; 123 from 1976 up to the present, the historic floods in 1964, 1984, 1998 tension poles were destroyed and 152 ships and boats were and 1999 have caused serious damage to the City. These occurred damaged. A significant number of establishments and factories during the rainy season and were aggravated by the effects of the could not operate. northeast monsoon and typhoons. 2006 Typhoon No. 6 (Xangsane) formed in the western Pacific 1964 (4-10 November) — The flooding was a result of the near the Philippines on 25 September. Over the next 36 combination of cold air from the North and Typhoon Joan in hours, it grew from a tropical depression to a super typhoon Tuy Hoa - Nha Trang. The rainfall was recorded at 634 mm, that crossed the Philippines causing the deaths of 76 people causing massive flooding. and subsequently making a landfall in central Vietnam on 1 October. The typhoon was considered by Vietnamese 1984 (12-14 October) — The flooding was a result of a typhoon authorities as the strongest that hit the country in several that landed in Khanh Hoa and combined with the Northeast decades. Although Danang has mechanisms in place for monsoon. emergency response and rescue, these were of no match against the strength of the typhoon with wind speed of 90 1998 (18-21 November) — The biggest flooding event was caused miles/hour and heavy rain, causing extensive flooding. by Typhoon No. 5 in combination with the Northeast monsoon. Danang suffered enormous losses with total damage It rained heavily on 20 November causing flood in most of estimated at VND 5.290 billion (over US$350 million). the communes in Hoa Vang District, Ngu Hanh Son district and the area along Han River. Human losses included 30 deaths and 61 wounded. Damage to property included: 14,138 completely collapsed houses; 1999 (1-6 November) — The flooding was caused by the 42,691 seriously damaged houses; 65,271 uprooted houses; Northeast monsoon in combination with the low East wind 55 sunken ships; 33 seriously damaged ships; 877 hectares belt operating in the south and tropical low pressure. Majority of damaged rice fields, trees and vegetable crops; 2,760 of the places in the central region, particularly along the area destroyed classrooms; 605 seriously damaged institutions/ of Vu Gia - Thu Bon Rivers were heavily flooded. In Danang, organizations/agencies; 18,466 hectares of collapsed forest; the rainfall reached 593 mm after raining for 24 hours, almost and 20,260 collapsed trees. Communications-related damage submerging the entire city. included: 4 groups of radio broadcasting stations lost contact; 35,836 subscribers lost contact; 75 corrupted transformer Typhoons stations; 310 collapsed tension poles; and 351 km of broken middle and high tension electrical lines. For the past three years, Danang has made headlines due to the enormous damage caused by strong and powerful typhoons. 2007 Typhoon No. 1 (Chan Chu) was a strong typhoon that formed in the Pacific Ocean. After causing serious damage in the 2005 Typhoon No. 8 (Kai Tak) made a landfall on 28 October at Philippines and leaving more than 30 people dead, Typhoon 10 am. It began as a tropical low pressure in the East Sea No. 1 moved towards mainland China on 18 May. When and became a powerful typhoon that directly affected Danang typhoon forecasts were received, there were 30 fishing City. The total estimated damage was placed at VND 68 vessels from Danang that were in the east and northeast of billion (approximately US$4.5 million). Hoang Sa Island. The fishing vessels moved towards the north to avoid the typhoon path, which was moving towards Human losses include: 1 casualty and 51 wounded, 11 of the west and northwest. The typhoon, however, changed its which were seriously wounded. Damage to property course. Although the typhoon did not hit Danang directly, it included: 246 completely collapsed houses; 1,094 heavily caused the sinking of 10 ships and the disappearance of 229 damaged houses and 3,931 houses submerged in floodwater, workers, 80 of whom were from Danang. The incident was where 1,850 houses were submerged in more than 1.5 m considered a costly lesson learned for Danang.

D e c e m b e r 2 0 0 7 43 On-site logistics ensure that sufficient food and medicine are available, and City has likewise passed laws to implement the policies at the local level. include the mobilization of local In particular, Danang is considering volunteers during search-and-rescue passing legislation related to: operations. This process is guided by the a. Identifying and planning in high- risk areas that are prone to motto "the good leaves envelope the torn flooding and exposure to ones," which mainly dwells on the spirit typhoons; b. Policies on moving the residents of volunteerism and the goodwill of out of the high-risk areas such as individuals, organizations and other along the riverbanks;

groups to contribute and help out in c. Identifying adaptation measures that would allow construction or coordination with the Typhoon and development in areas affected by Flood Prevention Committee. typhoons and floods;

d. Regulations in areas to be Responding to the Enhancing Policies and restricted and limited for Challenges Organizational Mechanisms construction works, particularly around big lakes and areas that are The following sections present The Government of Vietnam has affected by floods; the key measures undertaken by had a number of legal documents that Danang in disaster risk reduction, relate to reducing and mitigating the e. Regulations to restrict construction response and mitigation. impacts of natural disasters. Danang works that may cause alteration of water flow and impede drainage capacity; and

f. Regulations for the preservation of natural resources that act as protection against natural disasters.

In support of disaster preparedness and response, responsible units at the local level were established.

At the City Level

To reduce the incidence of accidents due to fallen trees during The Flood Control, Search and typhoons, regular pruning of big trees is being undertaken in Danang. Rescue Steering Committee was

44 T r o p i c a l C o a s t s established with one of the Vice Other Organizations – On-site command requires Chairs of the People's Committee the Flood Control, Search and serving as Head and the leaders of Other organizations also provide Rescue Steering Committee to relevant departments, agencies, support to the local government and command directly the activities districts, unions, association and various teams in responding to to prevent and mitigate the the military serving as members. disasters. The armed and police impacts of typhoons and The Steering Committee is the forces are two of the leading forces in flooding at the local level. highest unit that provides policy charge of rescue, especially in urgent guidance and mobilizes human situations as well as in ensuring – On-site rescue involves the resources in a timely manner to security and helping the local use of junk boats or sailing prevent and overcome the impacts residents overcome the vessels owned by fishers or of natural disasters. consequences of the disasters. The private individuals and waterway Red Cross Association has the transportation units of the local At the Commune Level function to provide support in government. rescues, ensure hygiene, and control All the communes established and prevent the spread of epidemic – On-site logistics ensure that Natural Disaster Prevention Teams. diseases during and after the sufficient food and medicine are A team's main function is to disaster. The Dike Management and available, and includes the mobilize and guide the local Typhoon and Flood Prevention mobilization of local volunteers residents to implement the Agency, a central agency, is in charge during search-and-rescue directions of the Flood Control, of deploying the directions from the operations. This process is Search and Rescue Steering Central level and cooperate with the guided by the motto "the good Committee. locals in preventing and overcoming leaves envelope the torn ones," the consequences of natural which mainly dwells on the spirit Establishment of disasters. of volunteerism and the goodwill Vanguard Units of individuals, organizations and To instill a culture of safety other groups to contribute and Many vanguard units were among its residents and facilitating help out in coordination with the established with members mainly efficient coordination at the local Typhoon and Flood Prevention consisting of volunteer groups level, Danang is guided by the "4 on- Committee. from the youth, officers, students site" mottos. and staff of various associations. All the organizations established – On-site forces are mainly Raising Awareness on Disaster their own typhoon and flood owners of ships and boats and Risk Reduction prevention teams. Vanguard units the local night-watch team. serve as the core forces in the These forces are responsible for The communities are directly prevention and mitigation of implementing activities to and seriously affected when typhoons, floods and natural prevent floods and mitigate the disasters strike. Public awareness disasters in the City. They take impacts of floods and typhoons. therefore plays an important role in charge in evacuating residents to In emergency situations, the increasing the level of consciousness safe places, disseminate Flood Control, Search and of the communities about the risks information on the flooding Rescue Steering Committee will and teaching them to act properly to situation and solutions for typhoon mobilize rescue forces of the protect themselves and reduce their and flood prevention. Border Army and the Police. exposure to hazards.

D e c e m b e r 2 0 0 7 45 The communities are directly and seriously affected when disasters on-site" mottos. strike. Public awareness therefore • Awareness of the roles and responsibilities of relevant plays an important role in increasing agencies and groups;

the level of consciousness of the • Advantages of improving communities about the risks and structural and building safety; teaching them to act properly to • Mechanisms in securing the agriculture and fisheries sectors; protect themselves and reduce their • Understanding of early warning exposure to hazards. systems, procedures and timely evacuation of affected communities;

• Ensuring the health of communities in terms of protecting drinking water sources; and

• Preventing environmental pollution and the spread of diseases.

Incorporating Risk Reduction into the Planning/Zoning Scheme

The coastal use zoning scheme of Danang is focused on the sustainable use of the coastal and marine resources and environment and Actions called for in the The communication strategy addresses multiple-use conflicts. communication strategy of the now includes dissemination of: Updating of the planning/zoning Danang Coastal Strategy mainly scheme is necessary to take into focused on raising public awareness • General information on risks consideration sensitive and high-risk on the protection and conservation of and damage due to natural areas that are affected by natural coastal and marine resources and disasters and activities that disasters. environment. In recent years, public support disaster risk reduction; awareness activities included instilling The city has recently identified responsibility and understanding • Information to prevent and high risk areas, particularly those among relevant and interested mitigate the impacts of natural affected by erosion, flooding and storm groups on disaster risk reduction. disasters according to the "4 surges. Residents living near these

46 T r o p i c a l C o a s t s areas have been moved to safer The local government is currently Program. In this program, the types places. implementing programs that aim to of trees are carefully selected. For increase the green cover of the city example, those that are planted along Incorporating risk reduction into and as such will reduce its the coast should have the capacity to the planning/zoning scheme requires: vulnerability to disasters. endure strong winds. The City also chose strategic locations for the • Identifying flood prone areas, Forests Green Tree Program, such as the depth of flooding, number of tourism development zones along households affected and extent of Although policies on sustainable the Son Tra - Ngu Hanh Son districts. flooding levels from historical forest exploitation have been issued, In this way, protection of the data. which allowed some recovery of the shoreline is not only provided but it forest in terms of increasing the also increases the aesthetic value of • Developing maps showing forest cover, the protective capacity the area. detailed flooding risk for the of the forest is still considered to be whole city. Identifying relative ineffective. Tree planting activities Regulations are also passed to locations for setting up have been undertaken in earnest and prohibit the residents from planting supplementary flooding pillars. indigenous trees have been planted. various trees of their preference. Plans are being implemented for Guidelines are provided to the • Identifying possible relocation reforestation in settlement areas that residents on the recommended types sites for residents affected by have sprouted in agricultural lands of trees as well as planting erosion, flooding and storm and mountainous areas, increased techniques. For example, several surges as well as areas for communication activities and local layers of trees are planted along the emergency operations. community mobilization to coast to protect the shoreline from participate in forest protection strong winds and storm surges. • Identifying and promoting activities. All of these activities helped structural and engineering expand the vegetative cover by more measures such as building of than 40 percent. Strengthening Technical Capacity dikes, embankments and safer shelters/houses/buildings and Green trees Strengthening technical capacity critical facilities. and identifying technological options Green trees that are used for are important to support the local • Identifying areas for tree planting. urban greening can also serve as government's programs in reducing protection against natural disasters. risks. These can be in the form of: • Determining safer design and Experience in Danang, however, locations for setting up a showed that green trees can also pose Enhancing forecasting communication network and threats to people and property during capacity electrical facilities. typhoons. Regular pruning of big trees is done to reduce the incidence The timely release of accurate of accidents due to fallen trees, at the forecasts is an important factor in Increasing the Green Cover same time protecting the trees from preparing the communities to being uprooted during typhoons. respond to emergency situations. Expanding the vegetative cover of The City has increased investments Danang City is one of the priority Danang is currently action programs identified in the CSIP. implementing the Green Tree continued on page 55...

D e c e m b e r 2 0 0 7 47 Zhou Lumin* Deputy Director General Xiamen Oceans and Fisheries Bureau Risk Mitigation 10th Floor, Labor Building,,, No. 191, Changqing Road Xiamen, P.R. China Through Effective

Introduction Implementation of

With its picturesque scenery and well- equipped port, the coastal city of Integrated Coastal Xiamen in Southeast China has been praised as an International Garden Management City on the Sea. It covers a land area of 1,569 km2 and a sea area of 390 km2.

Over the last decade, Xiamen's economy has achieved a rapid and steady growth, with its Gross Domestic Product (GDP) increasing from RMB 25.02 billion in 1995 to RMB 116.24 billion in 2006. The marine industries (shipping, fisheries, aquaculture, tourism, coastal industries and mining) have made great progress, contributing RMB 15.868 billion in 2006, or 13.6 percent of the local GDP.

“Maintaining Marine Biodiversity through Rehabilitating Marine Ecological But the opportunities from an Chains” by releasing artificially hatched seedlings into the sea. explosive growth of the marine economy are counterbalanced by risks. In this regard, Xiamen Municipality Regional Programme on Prevention and has taken a series of measures to keep Management of Marine Pollution in the These risks – compounded by the its marine environment stable and East Asian Seas (the pilot phase of the threats from global climate change healthy, for the purpose of reducing the Regional Programme on Partnerships in (e.g., frequent and severe weather probabilities and mitigating the impacts Environmental Management for the Seas disturbances, sea level rise, etc.) – of hazards like environmental of East Asia or PEMSEA), served as a come from both man-made and deterioration, red tide, storm surge, etc. national demonstration site for the natural hazards. application of integrated coastal The Xiamen government, in management (ICM) since 1994 (Chua et

* The author can be reached at: [email protected]. collaboration with the GEF/UNDP/IMO al., 1999). Xiamen applied the ICM

48 48 T r o p i c a l C o a s t s Figure 1. Xiamen Marine Functional Zoning Scheme.

framework and processes and ocean-related plans, namely: marine development. The updated version significantly improved its coastal functional zoning, marine has further emphasized the governance (PEMSEA, 2006a). After environmental protection, coastal integration between Xiamen's master more than ten years of successful wetland conservation, coastal plan and sea uses, more rational use demonstration under the framework protection through afforestation and of the sea and strengthening of PEMSEA, the Xiamen ICM program biodiversity conservation. These measures for the protection of the has gained a lot of successful plans constitute a rather "complete" ecological environment. experiences on risk mitigation coastal planning system which through effective implementation of provides a scientific basis for the In 2006, the municipal ICM (PEMSEA, 2006b). implementation of marine ecosystem government finished the revision and conservation. re-issuance of the Marine Environmental Protection Planning, Protecting Marine In 1997, the Xiamen Marine which put forward a short-term goal Ecology and Functional Zoning Scheme has to focus on pollution prevention and Environment Through intensified the protection of marine integrated management, i.e., on the Effective Development environment, wetland, coastlines and control of the total load of sewage and Implementation of biodiversity by designating various discharges and on measures for Ocean-related Plans use functions to different sea areas ecological restoration. The plan has (Figure 1). The scheme was revised in set the targets to increase the rate of In order to maintain a healthy 2003, to reflect the specific situations centralized domestic sewage marine ecosystem, Xiamen in Xiamen's sea uses and to meet the treatment to 80 percent or higher and Municipality developed a series of needs of social and economic compliance with water quality

D e c e m b e r 2 0 0 7 49 standards to more than 65 percent. roles in the conservation of coastal Strengthening Control The plan proposed to initially build up a wetlands and coastlines and the over Land-based user's fee and permit system, and a development of a belt of coastal forest Pollution and Reducing more complete system of marine that provides protection from strong Man-made Disasters environment monitoring, supervision winds during typhoons. and law enforcement. The plan seeks to The first measure is to intensify apply more effective conservation and To conserve marine biodiversity, monitoring of the marine management to ecological functional Xiamen Municipality developed the environments. For timely information zones and the coastal waters and to Xiamen Planning on the Construction about the changes of coastal water improve the integrated emergency of National Nature Reserves for Rare quality and making effective early warning system against marine Marine Species. In the aspect of islands response to water pollution, Xiamen disasters. The plan, by adhering to the protection, the Xiamen Planning on the Municipality has set up 85 principle of putting priorities on both Protection and Exploitation of monitoring stations in the waters environmental protection and pollution Uninhabited Islands and Xiamen under its jurisdiction and carried out control and prevention, has set down Planning on the Control of Uninhabited a full-scale monitoring of water the mid- and long-term goals for Islands have been developed and quality, sediment quality and ensuring a healthy ecosystem in the implemented. ecological quality . Since 2005, more coastal waters. than RMB 10 million has been The development of the above invested to establish an online Moreover, in order to strengthen ocean-related planning system has monitoring facility that is capable of defense capacities against marine provided guidelines for marine generating automated, digitized disasters, Xiamen Municipality has ecological conservation. The water quality data, and networking developed plans such as the Xiamen implementation of various plans and the water quality monitoring stations Program on the Management of Tidal programs has been playing an in Xiamen waters. Flat and the Construction of Shelter important role in regulating the Forest, Xiamen Wetland Conservation exploitation of the sea, utilizing marine The second measure is to Plan and Program on Transplanting of resources, and effective conservation intensify sewage treatment and Mangrove Trees, etc. These plans and and restoration of the marine reduce the total pollution load programs have been playing important ecological environment. discharged into the sea. In the last 20

Xiamen has intensified monitoring of its marine environment.

50 T r o p i c a l C o a s t s For timely information about the years, Xiamen Municipality has invested nearly RMB 2 billion in changes of coastal water quality and projects for sewage treatment and making effective response to water management. By 2010, another RMB 1.6 billion will be invested for pollution, Xiamen Municipality has networking and extension or rehabilitation of sewage treatment set up 85 monitoring stations in the plants. At present, there are eight sewage treatment plants (for waters under its jurisdiction and secondary treatment) which are carried out a full-scale monitoring of designed to treat 687,000 tons of sewage per day. However, the plants water quality, sediment quality and can only accommodate 480,000 tons per day or 78.6 percent of ecological quality... sewage.

The third measure is to turn programs and will do no harm to the coastal cities. The Xiamen sewage into a resource through its marine environment. During the Municipal Government has made reuse. The Xiamen Municipal operation of a project, the great efforts in the prevention and Government encourages the environmental protection and safety elimination of alien species, industrial enterprises to recycle precautions stated in the including initiatives in wastewater and to reduce environmental impact assessment strengthening the management of wastewater to "zero-discharge." The reports shall be strictly followed and ballast water, the management of government has been active (and subject to the supervision of the introduced aquaculture stocks and successful) in two pilot projects in inspection departments. seedlings, and the elimination of wastewater recycling: Introducing harmful alien species such as the Sewage Water up to the Hills and By taking the measures to cord grass (Spartina alterniflora). Integrated Utilization of Wastewater control and monitor pollution to Irrigate Plants. To recycle and discharges into Xiamen's waters — in The restoration of biodiversity reuse sewage water saves the course of its rapid economic is one important step toward freshwater, it also reduces pollution development — the marine ecological restoration. In recent from land-based activities and the environment has been protected and years, Xiamen Municipality has discharge of pollutants into the sea. the probability of man-made organized studies of biodiversity in disasters reduced. Xiamen Bay, and launched the The fourth measure is to campaign on "Maintaining Marine effectively control the pollution from Biodiversity through Rehabilitating marine and coastal projects. The Maintaining a Healthy Marine Ecological Chains" by first step is to set up a regulatory Marine Ecosystem releasing artificially hatched system through environmental through Ecological seedlings into the sea. The studies impact assessment. No marine or Protection and in breeding horseshoe crab and coastal project is allowed to proceed Restoration lancelet have been successful. To without the approval and date, about 0.3 million of one- authorization by relevant authorities The introduction of alien species year-old larvae of horseshoe crab unless it is consistent with related is a vital ecological issue confronting and 0.6 million lancelets have been

D e c e m b e r 2 0 0 7 51 Xiamen has developed an emergency response mechanism for addressing pollution in its waters. Activities include the conduct of regular exercises on oil spill response and monitoring of red tide occurrence. artificially hatched and eventually Reducing the Impacts of handle emergency response against released into the sea. This measure Various Disasters by oil spills in Xiamen Port. It also intends to enhance stocks of rare Establishing an Early developed an emergency response and endangered species in Xiamen Warning System and mechanism against pollution from waters. Emergency Mechanism vessels. To increase capacity, regular exercises on emergency response In 2006, Xiamen Municipality Red tide is one of the serious against oil spill at the sea have also launched a pilot project in Houyu marine disasters confronting coastal been conducted. Islet to restore the ecological cities. To mitigate its impacts, Xiamen environment in uninhabited islands. Municipality has instituted a Among various natural hazards, mechanism to monitor both control typhoon is the most common in In 2007, the Municipal sites and areas where red tide is known Xiamen. Therefore, Xiamen Government launched a large-scale to occur. Xiamen became the first city Municipality attaches great campaign for mangrove ecosystem in China to release forecasting and importance to defense against restoration in Tong'an Bay. The early warning information about red typhoons and have gained much goals are to improve water quality tide incidents through the news and experience. In 2005, the municipality (by filtering wastes that reach the media bureaus. Since 2005, an has developed a program for sea); to increase the aesthetic value emergency and response mechanism preparedness against typhoon in the of the area (by beautifying has been set up, including the fishery industry and has formed a coastlines); and to strengthen development of programs, namely: complete emergency response shoreline defense (by defending Xiamen Program for Prevention mechanism for typhoon against severe typhoon and beach against and Mitigation of Red Tide occurrences. The mechanism has erosion). At the same time, the Disasters and Xiamen Program for laid down a solid foundation for rehabilitation of the degraded sandy Response against Red Tide Disasters. mitigating the impacts from beach and the creation of artificial typhoons and safeguarding the life sand beach in some appropriate Oil spill accidents are one of the and property of the people. The areas have been launched to most common manmade disasters in Xiamen Program for Emergency establish a wetland ecosystem with the sea. Xiamen Municipality organized Response against Storm Surges and higher biodiversity. seminars to assess its capability to Tsunami was also developed.

52 T r o p i c a l C o a s t s Xiamen Municipality has instituted a Protecting Marine Resources by Stricter mechanism to monitor both control Law Enforcement sites and areas where red tide is The marine environment needs known to occur. Xiamen became the not only construction and improvement, but also joint first city in China to release protection. In recent years, the Xiamen Municipal Government has forecasting and early warning formulated nearly 30 local laws and information about red tide incidents regulations concerning port management and supervision; the through the news and media utilization, protection and management of marine resources; the bureaus. prevention of marine pollution; marine environmental protection and marine nature reserves; etc. The city bay will have an additional 14 km of exchange will be enhanced by 30 has established a team that handles coastline; 30 million m3 of tidal percent. The project aims to build up law enforcement and supervision. capacity and more than 3 km2 of sea a beautiful urban coastline. area.

Future Developments The third step is to launch the Solving Environmental and Scaling up project on integrated management Issues in the Jiulong and development of the Wuyuan Bay. River Basin through The first step is to launch a With the objectives of restoring, as Transboundary special program for the management much as possible, the ecological Cooperation of the Jiulong River Basin, the environments and of building up Yuandang Lake, the Eastern and coastal seascape inside the bay, the As the most important source of Western waters, and the uninhabited project aims at making a total area of freshwater to Xiamen, water pollution islands and for upgrading marine 10.76 km2 under planning, dredging and ecological damage in the Jiulong environment quality in the near sediment in an area of 3.84 million River Basin are regarded as serious future. m2, restoring 1.3 km2 of water concerns, having social, economic surface and building a 7.3 km bay- and environmental consequences. The second step is the integrated ring road. Therefore, the Provincial Government management of Maluan Bay, including of Fujian has developed a work plan a series of projects such as the In 2006, Xiamen Municipality for Integrated Management of opening and reconstruction of the launched a management project for Pollution and Ecological Damage in causeway, construction of shore the Xiamen Eastern waters for the Jiulong River Basin, and invested protection works, construction of a improvement of the area’s ecological in environmental management wetland park, rehabilitation of the and environment quality. It is projects, such as the management of water area and the development of the estimated that with the pollution from livestock production, land inside the inner bay and accomplishment of the project, the the disposal of solid wastes, infrastructure development. With the tidal capacity will increase by 44 ecological protection and accomplishment of these projects, the million m3 and the capability of water conservation, etc.

D e c e m b e r 2 0 0 7 53 Jiulong River Basin has improved since the implementation of the projects.

The alliance among Xiamen, Quanzhou and Zhangzhou established joint efforts in law enforcement and has resulted in the resolution of many key and critical issues, as well as ensured the reasonable utilization and development of Xiamen's sea areas.

Conclusion

The supervision team oversees strict law enforcement and supervision. Over the past few years, Xiamen has shown progress with regard to the maintenance of the stability of the Xiamen Municipal Government In the past few years, the river's marine environment, defense against also attaches great importance to water quality has significantly and mitigation of the impacts of transboundary cooperation in improved with a reduction of 235,137 marine disasters, etc. In the future, ecological conservation. To tons of chemical oxygen demand Xiamen will continue to make efforts strengthen cooperation among the (COD), 13,829 tons of ammonia in reducing risks through effective neighboring cities in the basin and nitrogen and 7,073 tons of total implementation of integrated coastal develop regional economy, Xiamen phosphates. The water quality of the management. formed a city-alliance with Quanzhou and Zhangzhou in 2003, which facilitated the joint protection and management programs for marine References resources, freshwater resources, energy, etc. Since 2003, Xiamen Chua, T. E., S. A. Ross, H. Yu, G. S. Jacinto PEMSEA Technical Report No. 17, 132 Municipality has annually invested and S. R. Bernad. 1999. Sharing Lessons pp. GEF/UNDP/IMO Regional RMB 10 million and transferred and Experience in Marine Pollution Programme on Building Partnerships in money to Zhangzhou and Longyan in Management. MPP-EAS Technical Report Environmental Management for the Seas No. 20, 94 pp. GEF/UNDP/IMO Regional of East Asia (PEMSEA), Quezon City, the upper reaches of the basin for Programme for the Prevention and Philippines. environmental protection works, Management of Marine Pollution in the such as the integrated management East Asian Seas, Quezon City, PEMSEA. 2006b. Xiamen: An ICM Journey. Philippines. PEMSEA Technical Report No. 18, 93 pp. of pollution from livestock GEF/UNDP/IMO Regional Programme on production and waste management. PEMSEA. 2006a. A Perspective on the Building Partnerships in Environmental Environmental and Socioeconomic Benefits and Management for the Seas of East Asia The projects aim at mitigating the Costs of ICM: The Case of Xiamen, PR China. (PEMSEA), Quezon City, Philippines. impacts of pollutants from the upper stream to the marine environment of Xiamen.

54 T r o p i c a l C o a s t s Integrating Disaster Risk Reduction and Mitigation into the Danang Coastal Strategy Implementation Plan continued from page 47 in equipment and in enhancing its forecasting capacity through: The local government has encouraged fishers to equip their boats and provide • Utilization of remote sensing images. assistance during emergency situations. • Establishing hydrometeorology monitoring station networks that are The local government also considered capable of forecasting typhoons and floods. the experiences of fishers in rescuing people and where good practices can • Developing software models to predict typhoons. Seventy-two be applied in future efforts. measurements to forecast the changes in sea level due to typhoon operations. Very few are adequately Danang's efforts towards integrating in the coastal areas encompassing equipped. The local government has disaster risk reduction and mitigation latitudes 150N to 17oN were encouraged fishers to equip their measures into the CSIP not only ensure developed and are currently boats and provide assistance during that timely interventions are in place but operational. emergency situations. The local it also illustrates the local government's government also considered the recognition of the importance of Upgrading engineering and experiences of fishers in rescuing addressing critical issues at the construction works people and where good practices can operational and strategic levels within the be applied in future efforts. framework of integrated coastal Planning and construction of the management. drainage system has taken into account The City acquired additional the limitations in the drainage capacity of equipment to upgrade the existing References the City, particularly its major river communication system and facilities. People's Committee of Danang City. 2001. systems. The differences in the water Offshore fishing vessels are also Coastal Strategy of Danang City. People's Committee of Danang City, Vietnam. 66 p. levels during high tide are taken into required to install radio and other consideration including options for communication equipment to ensure People's Committee of Danang City. "Report dredging of channels at the mouth of the that they can be notified in the event of on Damages to Danang's Fisherman Due to Typhoon No. 1 of 2006." People's river to improve the City's drainage typhoons. The City also looks at how Committee of Danang City, Vietnam. 6 p. capacity. Other measures include the mass media can be strengthened to People's Committee of Danang City. "Report construction of dike systems at critical ensure that information dissemination on Typhoon Control and Damages Repair locations that are prone to erosion; is efficiently and effectively Due to Typhoon No. 6 (Xangsane)." planning and construction of sheltered undertaken. People's Committee of Danang City, Vietnam. 9 p. areas for ships and boats, and providing guidance on building standards and People's Committee of Danang City. The codes. Instructions of the People's Committee of Danang City Regarding Flood Control, Conclusion Search, Rescue and Natural Disasters Strengthening rescue and Mitigation 2006. People's Committee of Danang City, Vietnam. 6 p. communication efforts The changing conditions in Danang with respect to its increasing The Flood Control, Search and Rescue Steering Although there are a significant vulnerability to natural disasters Committee of Danang City. "Report on Flood Control, Search and Rescue Activities number of ships and boats in Danang, require adjustments in the Coastal for Typhoon No. 8 of 2005 and Damages most are not suitable for rescue Strategy and its implementation plan. Due to the Typhoon." 5 p.

D e c e m b e r 2 0 0 7 4955 Local Knowledge and Lorna P. Victoria* Director Center for Disaster Preparedness CSWCD Bldg., University of the Practices for Disaster Philippines Campus Quezon City, Philippines Preparedness and Introduction Mitigation The Hyogo Framework for Action is a road map for building resilient nations and communities to which 168 countries committed to from 2005 to 2015. In order to make disaster risk reduction a national and local priority, building a culture of safety and resilience and reducing the risk in the key development sectors, including the environment is an imperative. Building on local knowledge and practices in disaster preparedness and mitigation is a practical and valuable step in the process.

Community leader by the monitoring board. The importance of local knowledge and traditional wisdom was Local Knowledge and environment and is dynamic and highlighted during the Indian Ocean Practices and Community- changing. Indigenous knowledge is not Tsunami in December 2004. In based Disaster Risk confined to tribal groups or the original Simeulue Island in Aceh Province, the Management inhabitants of an area or to rural areas. community used their knowledge of All communities possess indigenous sea behavior and the reaction of Indigenous knowledge is also knowledge, whether rural or urban, their buffaloes to evacuate 80,500 referred to as traditional knowledge, settled or nomadic, original inhabitants people from the shore to the nearby indigenous technical knowledge and or migrants. While communities have hills. Only seven people perished in local knowledge. It is knowledge that "local knowledge," outsiders bring the island while over 163,700 died in communities developed over time, and "introduced knowledge" (IIRR, 1996). continue to develop. It is based on the rest of Indonesia. experience, often tested over centuries While some refer to indigenous * The author can be reached at: [email protected] of use. It is adapted to local culture and knowledge as exclusively traditional and [email protected]

56 56 T r o p i c a l C o a s t s knowledge, this paper takes on a broader reference to local knowledge which communities have and develop while living in their local environment and context. Traditional wisdom, local knowledge and practices are important capacities in disaster preparedness, mitigation and prevention. Some examples are sky and cloud appearance; movement and direction of the wind and current; plant and bird manifestations; animal behavior to forecast heavy rain, typhoon, flooding or drought; tree Flood markers at the Batasan-San Mateo Bridge. belts to protect settlements from strong winds; design and designing a fail-safe local warning Barangay Banaba in the municipality construction of houses (on stilts, system, relay warning and of San Mateo, Rizal Province; having thick walls and having roof precautionary actions to undertake Camiguin Province in Northeastern enforcements); riprapping along using local channels and forms of Mindanao; and Dagupan City in riverbanks for flood control and communication, and organizing and Pangasinan Province. along slopes to prevent soil erosion; mobilizing the community in disaster raising of homesteads using river preparedness, mitigation and soils and planting trees to prevent prevention. 1. Disaster preparedness in soil erosion; setting seasonal taboo Barangay Banaba, San Mateo, or declaring fishing grounds off- Rizal limits to allow protection of Combining Local resources. Knowledge and Barangay Banaba is a village in Scientific/Technical the Municipality of San Mateo in Rizal Capacities are resources, means Knowledge for Disaster Province, Philippines. San Mateo, a and strengths, which exist in families Risk Reduction fast urbanizing town, is close to Metro and communities and which enable Manila. Located at the junction of the them to cope with, withstand, prepare Aside from traditional wisdom, Marikina and Nangka Rivers, flooding for, prevent, mitigate, or quickly local knowledge and practices in and erosion are the major hazards recover from a disaster. In disaster preparedness should that confront the residents of Brgy. community-based disaster risk integrate relevant and available Banaba. Most of the residents of management, it is important to build science and technology, especially in North and South Libis, the most on and strengthen existing capacities the light of changing climate patterns. frequently flooded areas in Brgy. to reduce disaster risk and Three brief cases from the Philippines Banaba, are informal settlers. To vulnerabilities. Though material on the application of local knowledge address environmental problems, the resources may be lacking, and practices combined with residents formed Buklod Tao (People communities will surely have local appropriate and available science and Bonded Together) and the following knowledge, practices, indigenous or technology are presented below. are key local knowledge and practices local leaders, support systems and These cover the disaster applied in disaster preparedness and organizations which are useful in preparedness and mitigation in mitigation.

D e c e m b e r 2 0 0 7 57 Figure 1. Coordinated Communication Flow in Warning and Evacuation System. a. Aside from watching for dark clouds in the upper Montalban Mountains (which indicate that it is raining upstream), the community also monitors hourly rainfall intensity information through telephone calls to the Effective Flood Control Operational System (EFCOS) project which has telemetric rain gauge stations in strategic places along the Nangka River. b. The community, together with the Metro Manila Development Authority, has put flood markers on the Batasan- San Mateo Bridge. g. Bamboo poles, which are used to (international name Lingling) on 6- stack up sandbags, eventually grow 8 November 2001. The flood c. Several pigpens are set up by and help arrest riverbank erosion. claimed 166 lives (excluding 84 the riverbank and when the declared missing), injured 146 water rises, the cries of pigs h. During summer when water is persons and affected some 7,172 alert sleeping families of scarce, household members dig by families. Damage to settlements, impending floods. the riverbank to get clear water for agriculture and infrastructure was washing and other household uses. placed to at least PhP 201 million. d. Pigs are tied to the fences near This disaster served as a wake-up the school and chapel. Once i. Mothers sew lifevests for children; call to build local and community people are alerted, the children children are taught how to use capacity in disaster preparedness and women are then evacuated. these through swimming drills, and mitigation. To prevent a which in turn help improve the repeat of the Typhoon Nanang e. The community fabricated lifevest design. Recycled aluminum disaster, two capacity-building fiberglass rescue boats — from juice packs are also collected and projects were undertaken: 1. three in 1995 to six in 2005 — made into disaster preparedness "Enhancing Local Government for search and rescue missions bags. Capacities in Disaster of people who were not able to Preparedness, Prevention and evacuate on time. Rehabilitation Project" involving 2. Non-structural disaster five municipalities and the f. While in the evacuation center, prevention in the island province provincial government of parents monitor the receding of Camiguin Camiguin from April 2002 to May floodwaters. The floodwater is 2003, and 2. "Basic Study on Non- also used to clean the walls and The island province of Camiguin structural Disaster Prevention floor of their homes by letting it was devastated by flooding and debris Measures for Camiguin Province" sift through. flow caused by Typhoon Nanang from April 2004 to January 2005.

58 T r o p i c a l C o a s t s The project components covered • Observation of rainfall and river social survey, institutional study, conditions - color, force of flow, flood hazard and risk mapping, local sound, presence of dislodged hazard monitoring (provision of rain vegetation, debris movement, gauges, arrangements with the and water level monitoring (also Philippine Atmospheric, Geophysical through flood markers) and Astronomical Services complemented installation of rain Administration or PAGASA for the gauges. provision of forecasts for Camiguin), public awareness • Use of bandillo (vehicle going campaigns (posters, pamphlets, around the barangay to give Public awareness in Camiguin Island. warning boards, information education campaign), early warning systems (communication equipment, sirens), evacuation plan, disaster simulation exercise, disaster prevention manual, and disaster prevention training and planning.

Capacity building involved the province, municipalities and barangays and followed a participatory process which considered local knowledge and practices while providing hazard monitoring and communication equipment for a coordinated warning and communication system for flashflood and debris flow.

Coordinated Communication Flow in Warning and Evacuation System (Figure 1)

• Maps showing houses and community facilities were drawn by community members, and safe and unsafe areas were also drawn based on the hazard maps of the municipalities and barangays produced through Flood and debris flow hazard map and evacuation route map of field surveys. Brgy. Hubangon, Mahinog, Camiguin.

D e c e m b e r 2 0 0 7 59 agricultural crops, fishponds, and affect other economic activities.

Dagupan City is the Philippine partner city for the Program for Hydro-Meteorological Risk Mitigation in Secondary Cities in Asia (PROMISE) of the Asian Disaster Preparedness Center funded by USAID. Four other cities have committed to be part of PROMISE namely Danang (Vietnam), Chittagong (Bangladesh), People being helped onto a vehicle during an evacuation drill. Hyderabad (Pakistan) and Kalutara (Sri Lanka).

warning and precautionary margin of the Agno River delta. It To meet the goal of reduced measures, house to house. The lies just a meter above sea level and vulnerability of urban communities ringing of the church and school is traversed by Pantal River, a major through enhanced preparedness bells, and megaphones (with tributary of the Agno River. The city and mitigation of hydro- sirens) complemented the has a total land area of 4,008 ha. meteorological disasters, PROMISE handheld radios and fax Dagupan is a subregional center for major objectives for 2006-2007 machines. trade and commerce, finance, high- are: level health and education services of Region 1 in Northern Luzon. a. Adoption of specific hydro- 3. PROMISE Program in Dagupan Floods, usually occurring during the meteorological disaster City, Pangasinan rainy season from July to preparedness and mitigation September, are a constraint to measures to manage hydro- Dagupan City is located along development that damage public meteorological disaster risk by the coast and situated at the eastern infrastructure, private property, stakeholders in targeted cities.

PROMISE Dagupan involves children in its Barangay officials use the “kanungkung” to relay community preparedness activities. warning for flood and disaster preparedness.

60 T r o p i c a l C o a s t s b. Increased stakeholder d. Mainstreaming disaster risk While implementing involvement and further management in city governance. preparedness measures will save enhancement of strategies, tools lives, to protect gains and and methodologies related to The local warning system progressively realize sustainable community preparedness and designed by the Dagupan City development for all, mitigation and mitigation of hydro- Technical Working Group together prevention measures have to be meteorological disasters in urban with barangay officers and the implemented. Community communities. community is the use of the mitigation practices or measures kanungkung to relay warning for that protect the environment and c. Strengthen networks and regional flood and disaster preparedness. secure livelihoods of people should links among relevant risk Although not part of the PROMISE be supported by local authorities. management institutions/ project, Dagupan City's formulation This will be a "win-win situation" for organizations for improving and implementation of its Fisheries the people, the community, the local potential and capacity for Ordinance No. 1768-2003 (Providing government, the country and the application and dissemination of for the Sustainable Management environment. lessons learned. Development and Conservation of all Dagupan City Waters and Coastal and PROMISE Dagupan key program Fishery Resources) is a mitigation References components include: measure related to the Hyogo References Framework for Action Priority No. 4: a. Participatory risk assessment and "Reduce the underlying risk factors." Buklod Tao website. http:// buklodtao.wikispaces.com preparedness/mitigation A task related to this is under the planning; environment sector, specifically: "4.1 Center for Disaster Preparedness. 2005. Environment: Incorporate disaster Project Proposal and Reports for PROMISE Dagupan City. b. Implementation of preparedness risk reduction in environmental and and mitigation measures (piloting natural resources management." International Institute for Rural Reconstruction. 1998. "Recording and community-based early warning Using Indigenous Knowledge: A and evacuation system; Manual." emergency simulation to test the Challenge for Local Interview with Manuel Abinales, President, early warning and evacuation Government Authorities Buklod Tao. system; evacuation drills; National Disaster Coordinating Council. community-level preparedness As shown in the 2005.Philippine Report on Disaster Reduction, and mitigation measures in eight abovementioned examples, local NDCC Report to the World Conference on priority barangays); knowledge and practices in disaster Disaster Reduction. Kobe, Japan

mitigation and those which protect United Nations International Strategy for c. Training and public awareness — the environment, specifically Disaster Reduction. 2007. HFA Words Into Action: A Guide for Implementation Disaster Risk Management integrated coastal resource of the Hyogo Framework. Training; Training on Emergency management, are complementary, Health, Search and Rescue, and often are identical interventions. Victoria, L.P. 2006. "Local Government Capacity Building Initiatives: CDP Medical First Responders; Local knowledge and practices for Philippines Experience" paper for the Disaster Safety Day, Academic environmental management may also Partnership for Disaster Reduction - Olympics with schoolchildren be referred to as disaster South East Asia 4th Disaster Management Practitioners' Workshop including slogan and poster- preparedness, mitigation and for South East Asia, March 8 – 10, 2006, making contests; and prevention strategies or measures. Bangkok

D e c e m b e r 2 0 0 7 61 Natural Disaster Prevention, Response and Mitigation in Vietnam continued from page 31

Measures to proactively take ensuring sustainable development. Major solutions are predicated on how advantage of floods include: research to control floods, take advantage of floods, and reasonably use land and and investment in the use of a 'rising forest resources and natural water' environment as a natural conditions in the region. Initiatives are taken to prevent or mitigate the resource and the full use of alluvial effects of storms, thunderstorms, whirlwinds, saltwater intrusion, and deposits; and developing droughts; and to protect the dike aquaculture, fisheries, ecotourism, systems. water transport, cultural and sports Specific measures for flood control and salinity control include: events during the flooding season. construction of residential clusters (away from flood-prone areas) and flood-resistant infrastructure; Basic solutions include: planning in facilities for boats and ships, and regulation of flood discharges of the development and construction of establishing and upgrading coastal rivers and channels, construction of residential, industrial and tourism information stations for storms, sea, estuary and ring dikes; and areas; and disaster prevention and storm surges and tsunami regulation of reservoirs and other mitigation structures (including road warnings. structures to prevent saltwater networks), in which the magnitude of intrusion and manage freshwater use a flood discharge must be taken into Information dissemination, and supply. consideration. It is also important to training and education are transfer crop and animal husbandry promoted to raise awareness and Measures to proactively take structures to safe areas and make response capacities of individuals advantage of floods include: research full use of natural conditions on land and communities; while the rescue and investment in the use of a 'rising and at sea. capacity of specialized and semi- water' environment as a natural specialized forces and local people, resource and the full use of alluvial To prevent flood and saltwater is enhanced. Policies are crafted to deposits; and developing aquaculture, intrusion and regulate water use and encourage people to participate in fisheries, ecotourism, water supply, the following solutions are natural disaster prevention, transport, cultural and sports events being undertaken: strengthening response and mitigation initiatives. during the flooding season. dikes, taking advantage of and preserving natural sand dunes to Likewise, the capacities of protect against erosion and storm The Mekong River Delta individuals, communities and surges, salinity intrusion prevention, specialized and semi-special forces to building reservoirs and other water participate in response-and-rescue resources structures to prevent The principle of natural disaster operations are enhanced through droughts and inundation, controlling prevention, response and mitigation policy reforms and promoted coastline and river bank erosion, for the Mekong River Delta is to through information dissemination, dredging channels, building berthing "proactively live with floods," training and education.

6232 T r o p i c a l C o a s t s Engaging Local Governments in Disaster Risk Reduction continued from page 2

Coastal cities, municipalities and provinces which experienced heavy losses and damage can be transformed into strong advocates of DRR. The City of Danang, is a good example of an ICM site able to mainstream DRR into its existing ICM framework. Danang City suffered enormously from the impacts of typhoon Xangsane that entered Vietnam in September 2006. With damage estimated at US$350 million, it was considered the strongest typhoon to hit Danang in 40 years. Seven years of ICM implementation had put in place a framework and a process where priority issues confronting the local government are addressed. The local government made timely adjustments in the Coastal Strategy and its implementation plan to ensure that DRR strategies are incorporated into the ICM framework – thus addressing DRR issues both at the strategic and operational levels.

Xiamen, one of the successful ICM sites of PEMSEA, owes its transformation into a clean and progressive coastal city in China to 14 years of implementing an integrated approach for coastal urban management and on the strong political commitment of its leaders – reaping in the process, a number of acclamations for its achievements. No major catastrophic events affected Xiamen over the past years. The local government, however, is implementing various initiatives that address DRR concerns under the ICM framework to prepare itself for the eventuality of disasters. Xiamen's success can be attributed to its effort of developing and establishing the necessary enabling conditions, underpinned by the dynamic process of ICM, to achieve a balance between conservation requirements and human needs for economic development.

Other ICM sites like Batangas, Bataan and Cavite in the Philippines, Sukabumi and Bali in Indonesia and Sihanoukville in Cambodia have likewise established the necessary mechanisms towards integrating DRR into their existing ICM frameworks.

Initiatives in Camiguin Province and Dagupan City in the Philippines highlight the advantages of utilizing traditional knowledge and practices and community-based approaches for disaster preparedness and mitigation. Integrating these knowledge and practices with scientific knowledge is essential in identifying appropriate action programs for disaster risk reduction. The ICM framework and process, which is information-driven and science-based, strengthen the implementation of these practices to promote risk reduction.

The exchange of information and experiences on DRR has stirred interest from other local governments to consider developing and implementing ICM programs. The reputation of Guimaras as an emerging tourist spot in the Philippines, with its pristine sandy beaches and captivating coves and islets, was tarnished when two million liters of bunker fuel were spilled into its coastal area on 11 August 2006. The lack of interagency coordination during the oil spill response process created confusion with regard to how the disaster response should proceed. An ICM program that promotes policy and functional integration and helps the local governments develop strategies and action plans for addressing issues that affect sustainable coastal development, including natural and man-made hazard prevention and management, is a good incentive for a local government.

Spiraling interests for ICM implementation provide the enabling conditions for parallel implementation of the HFA at the local level. Scaling up efforts in DRR can be linked with the ICM scaling up process that PEMSEA is advocating across the East Asian region. The PNLG will continue to serve as an effective vehicle for enticing other local governments to follow suit, capitalizing on its growing experience, credibility and leadership. Such a concerted action can significantly boost the region's attempt to achieve its target of covering 20 percent of its coastline with ICM programs while at the same time delivering on the HFA – both set to be realized by 2015.

D e c e m b e r 2 0 0 7 63 63 The last two decades has seen a significant increase in the number of disasters Distribution of People Affected by Natural Disasters, and in their severity, globally. These disaster events, in turn, have resulted in by Country and Type of Phenomena, in Asia increased fatalities and economic losses. The East Asian region experiences a number of natural hazards such as floods, high winds, storms and tidal waves, (1975 – 2001).2001) which have likewise increased in frequency and severity in recent years. This phenomenon particularly affects the coastal areas of the region. With the increase in population and the migration of people to coastal cities, East Asia is now considered as one of the most disaster-prone regions in the world.

The high economic and social impacts (and costs) of disasters in the region have motivated cities and nations to address these hazards through risk reduction strategies. Disaster risk reduction — using the principles of sustainable development as the overarching framework — has emerged in the international agenda as vital in reducing vulnerability to hazards and the impacts of disasters.

Estimated Damage (US$ billion) caused by Number of people reported affected by reported natural disasters 1975 – 2007 natural disasters 1975 – 2007 220 700,000,000 200 Hurricane Katrina 180 affected billion)

600,000,000 160 Kobe earthquake 500,000,000 (US$ 140

120

reported 400,000,000 100 300,000,000

Damage 80

people 60 200,000,000 of 40 100,000,000 20 Estimated 0 0 1975 1980 1985 1990 1995 2000 2005 Number 1975 1980 1985 1990 1995 2000 2005 Flood Epidemic References

Earthquake Avalanche / Landslide Arambepola, N.M.S.I. "Disaster Risk Reduction in Asia - Emerging Trends." Presentation during the 2007 PNLG Forum on "Addressing Coastal Security by Investing in Natural and Man-made Hazards Prevention and Management" held 5-7 September 2007 in Danang, Vietnam. Wind Storm / Typhoon Volcano Centre for Research on the Epidemiology of Disasters (CRED) Université Catholique de Louvain, Ecole de Santé Publique. www.cred.be EM-DAT: The OFDA/CRED International Disaster Database. www.emdat.be. Universite Catholique de Louvain Brussels (Belgium) Centre for Drought / Famine Other Research on the Epidemiology of Disasters (CRED) and the Office of Foreign Disaster Assistance (OFDA), US Agency for International Development Tropical Coasts Volume 12 No. 1, "Call to Action - Disaster Risk Reduction and Post-Tsunami Reconstruction." United Nations International Strategy for Disaster Reduction Asia & Pacific. http://www.unisdr.org/asiapacific/asiapacific-index.htm Number of disasters that occurred in Asia by Disaster Type (1999-2008).

Type of Disaster Brunei Cambodia PR ChinaIndonesia Japan DPR Korea RO Korea Lao PDR Malaysia Myanmar Philippines Singapore Thailand Timor- Vietnam TOTAL Darussalam Leste Drought 0 4 21 2 0 0 1 2 1 0 4 0 5 1 4 45 Earthquake 0 0 68 51 19 0 0 0 0 2 8 0 1 0 0 149 Epidemic 0 9 6 24 1 2 3 6 11 1 9 3 4 1 9 89 Extreme Temperature 0 0 6 0 2 0 1 0 0 0 0 0 0 0 0 9 Flood 0 13 130 73 15 14 19 9 23 12 51 0 43 5 47 454 Insect Infestation 0 0 1 0 0 0 0 0 0 0 1 0 0 0 0 2 Slides 0 0 32 29 5 0 1 0 4 1 16 0 2 0 3 93 Volcano 0 0 0 18 5 0 0 0 0 0 11 0 0 0 0 34 Wave / Surge 0 0 2 2 0 1 0 0 1 1 4 0 3 0 0 14 Wild Fires 1 0 3 9 1 0 3 0 4 0 1 0 1 0 1 24 Wind Storm 0 1 141 2 57 5 26 4 6 3 113 0 24 1 50 433 TOTAL 1 27 410 210 105 22 54 21 50 20 218 3 83 8 114 1,346