Local Governance and Disaster Risk Management in Mozambique MINI THESIS Sandra E Göhl (Student # 266 3707) Submitted in partial fulfilment of the requirements for the degree of Master of Administration in the School of Government, Faculty of Economic and Management Sciences, University of the Western Cape Supervisor Prof Christo De Coning May 2008 Key words • community participation • disaster risk management • natural hazards • vulnerability • local governance • Mozambique • accountability • early warning • reversed pressure and release model • local development ii Abstract Research title: Local Governance and Disaster Risk Management in Mozambique Problem, scope and nature of the study Mozambique is frequently hit by natural disasters like droughts, floods and cyclones which impact negatively on the country’s efforts to reduce poverty. The problem investigated in this study concerns the limited financial and human resources available for the planning, implementation and monitoring of activities to reduce disaster risk at the local level. The scope of the study covers mainly the two districts of Búzi and Caia (Sofala Province) and focuses on the role of community participation in the implementation of early warning systems to reduce disaster risk in the areas affected by natural hazards. The nature of the study is qualitative and includes the results of empirical research that was conducted in 2007 during a three‐month field research period in Mozambique. The reversed pressure and release model (PAR model) (Wisner et al 2004) is applied as an analytical tool to illustrate how vulnerability to disaster risk can be reduced to create safer conditions. Objective of the study The objective of the study was to find out whether the decentralisation of responsibilities for social and economic development facilitated the management of disaster risk during the 2007 floods in Mozambique. The specific aims of the study were to • analyse and discuss national policies for decentralisation and their significance for DRM • investigate which responsibilities, human and financial resources were available to local governments for the planning, implementation and monitoring of DRM activities • identify mechanisms, institutions and activities for DRM and find out whether they proved to be effective • explore how concerned communities participated in DRM activities to reduce their vulnerability to disaster risk iii • apply the reversed PAR model by Wisner et al to identify its st rengths and weaknesses • formulate recommendations for the planning of further DRM activ ities and related research Methodology of the study An integrative approach was applied in this study. National plans and policies were analysed to gather information in relation to the decentralisation process and its impact on disaster risk management strategies in the country. During a field research period in Mozambique between June and September 2007 interviews with experts, community members and government officials were conducted. In addition, 69 structured questionnaires consisting of open and closed questions were answered by community members in the districts of Búzi and Caia (Sofala Province) and 101 questionnaires consisting of open questions were filled in by local government representatives from North, South and Central Mozambique. Findings After the application of the reversed PAR model as an analytical tool for the collected data it became clear that the decentralisation process facilitated the management of disaster risk during the 2007 floods in the districts of Búzi and Caia. DRM became a development issue and was integrated into the National Poverty Reduction Strategy Paper. In the districts of Búzi and Caia, DRM activities were planned and implemented with the support of disaster risk committees and in cooperation with the concerned population. Early warning systems were in place and the relevant information was transmitted to the communities so that everyone was able to leave the flooded areas in time. Although no loss of human life was reported during the 2007 floods the situation still remains challenging because of insufficient infrastructure in the resettlement areas and food shortages related to droughts. The responsibilities of the various actors regarding DRM have still to be defined more clearly and communication between the various government levels improved. In order to maintain effective and efficient mechanisms for DRM, everyone involved must be trained on a regular basis and must be aware of disaster risk in the region. To encourage all the districts affected by natural hazards to share their experiences, it might be helpful to create platforms for the exchange of information. iv Declaration I declare that this thesis on Local Governance and Disaster Risk Management in Mozambique is my own work, that it has not been submitted to any other university for any degree or examination, and that all the sources I have used or quoted have been indicated and acknowledged by means of full references. Sandra E Göhl Cape Town, South Africa, 15 May 2008 v Acknowledgements Eventually, all things merge into one, and a river runs through it. The river was cut by the world's great flood and runs over rocks from the basement of time. On some of the rocks are timeless raindrops. Under the rocks are the words, and some of the words are theirs. I am haunted by water. Norman Maclean (1902‐1990) I would like to thank everyone who accompanied me during the past two years in South Africa, Mozambique and Germany for their valuable presence and encouraging words. Special credit goes to my supervisor Prof Christo De Coning for his guidance and valuable comments as well as to the lecturers and staff of the School of Government/ University of the Western Cape (UWC) who made this Master’s Programme extremely special. I am very grateful for the financial support granted by the Sasakawa Young Leaders Fellowship Fund (SYLFF) and the German Academic Exchange Service (DAAD) for my studies in South Africa and for the internship period at the German Federal Ministry for Economic Cooperation and Development (BMZ). The research period in Mozambique would not have been possible without the assistance of the German Technical Cooperation (GTZ) and the Instituto Nacional de Gestão de Calamidades (INGC), which allowed me to gain insight into their project ”Strengthening of National Disaster Risk Management Systems in Mozambique” (PRO‐ GRC). MUITA OBRIGADA to my colleagues Carolina Zelada and José Magombe Gomes for their immense knowledge, sensitivity and patience in the field. ESTAMOS JUNTOS! Special thanks go to Kjetil Flatin and Igor Lesko for their encouragement and personal input in the final stages of the thesis. DANKE, Martin, for your encouragement and presence ‐ despite the distance. Lastly ‐ the most important acknowledgement of all ‐ this thesis is dedicated to my parents, who have supported me unconditionally and with love throughout all my endeavors. THANKS, ENKOSI, DANKIE to you all for making a difference! vi Table of contents Key words ............................................................................................................................................................. ii Abstract ................................................................................................................................................................. iii Declaration ............................................................................................................................................................ v Acknowledgements ......................................................................................................................................... vi Table of contents ............................................................................................................................................. vii List of abbreviations and acronyms ......................................................................................................... xi List of figures and tables ............................................................................................................................. xiv On the use of vernacular terms ................................................................................................................. xv CHAPTER 1: INTRODUCTION ...................................................................................................................... 1 1.1. Background to the study .............................................................................................................................. 1 1.2. Natural disasters in Mozambique ............................................................................................................ 4 1.3. The Búzi district ............................................................................................................................................... 6 1.4. The Caia district ............................................................................................................................................... 8 1.5. Research problem and objectives of the study ...............................................................................10 1.6. Literature review ..........................................................................................................................................13 1.6.1. Approaching the concept of “risk” ..............................................................................................13