02 Chapter-Assesement of CPP Volunteer

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The country is one of the worst sufferers of all cyclonic casualties in the world. Its

geographic location is the biggest contributing factor for the proneness to disasters.

Due to the funnel shaped coast, Bangladesh often becomes the landing ground and

breeding place of catastrophic cyclones formed in the Bay of Bengal. The high number

of casualties is due to the fact that cyclones are always associated with storm surges. The

Bangladesh Red Crescent Society Cyclone Preparedness Program (CPP) is being a joint

venture with the Government of Bangladesh, The CPP is an organic component of the

nation’s institutional early warning system as clearly defined in the “Standing Order

on Disasters”. The BDRCS CPP program is the most successful and an effective model program of its kind in the South-East Asian region. CPP is an effective, grass-root oriented,

disciplined and tightly knits organization which is dedicated to the task of protecting the

population along with community capacity build up activities. This programme based on

the voluntary service of community people and their technical skills and commitment to

ensure sufficient warning dissemination, shelter management, search & rescue and first

aid services enabling them to cope with the approaching cyclone. This study has been


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Journal of South Asia Disaster Studies

carried out to find the communities perspective about the volunteers performance in

time of disaster event.

Keywords: Preparedness, warning dissemination, rescue, first aid, risk reduction.

Bangladesh is one of the most disaster-prone countries in the world. Its geographic

location is the biggest contributing factor for the proneness to disasters. Due to the

funnel shaped coast, Bangladesh often becomes the landing ground and breeding

place of catastrophic cyclones formed in the Bay of Bengal. An average of 1-3 severe

to moderate cyclonic storms hit each year, with associated storm surges as much as 13

meters higher than normal in extreme cases, which can reach as far as 70 km inland (Ali1999). From 1960 to 2002, a total of 173 depressions have been formed, out of which

66 major cyclonic storms and tidal surges have hit the Bangladesh coast. The propensity

and extent of disasters has increased due to the effects of the climate change. After the

devastating cyclone of 1970 that perished half a million lives, the League of Red Cross,

now the International Federation was requested by the UN general assembly to undertake

a leading role in pre-disaster planning for the country. The Cyclone Preparedness

Programme (CPP) of Bangladesh Red Crescent Society (BDRCS) came into being in 1972.

In June 1973, the Government of Bangladesh approved this new CPP programme and

undertook the financial responsibility for some of the recurring expenses and setup ajoint programme management mechanism. These programs disseminates cyclone early

warning messages through volunteers to the most at risk villages and assist especially the

weakest members of communities to seek refuge in cyclone shelters. This programme

based on the voluntary service of community people and their technical skills and

commitment to ensure sufficient warning, shelter management, search & rescue and

first aid services enabling them to cope with the approaching cyclone. This study has

been carried out to find the communities perspective about the volunteers performance

in time of disaster event. For clear understanding the paper divided into two parts. Part

A describes background and system how the program is working and volunteers role onit and second part assess the volunteer’s activities.


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The idea of CPP started in 1965 when the National Society requested the International

Federation of Red Cross and Red Crescent Societies (IFRC) formerly the League of Red

Cross and Red Crescent Societies to support the establishment of warning system for the

population living in the coastal belt. In 1966, the International Federation and Swedish

Red Cross began the implementation of a pilot scheme for Cyclone Preparedness which

consisted of warning equipments and was operational in 299 locations. In response

to 1970’s request of the United Nations General Assembly a new strategy of Cyclone

Preparedness Programme was developed in 1972 and as a result in 1973, CPP evolved as

a joint venture programme of BDRCS and Ministry of Food and Disaster Management of

the Government of Bangladesh.

The Cyclone Preparedness Programme disseminates cyclone early warning messages

through its extensive radio network (130 stations) to districts along the coastal belt.

Approximately 42,000 volunteers deliver the messages to most at risk villages and assist

especially the weakest members of communities to seek refuge in cyclone shelters. In total

there are different governmental & non-governmental organizations have constructed

about 2,852 (DMB, 2010) cyclone shelters in the coastal belts of 16 Districts of the country.

Out of 2,852 shelters, investigation reveals that 2,590 shelters are useable while 262 are

not. These shelters are laid out to take up to 1,500 people and can serve as schools and

community centres during “normal” times. Cyclone Preparedness Volunteers also get

involved in rescue, First Aid activities and the distribution of relief items. Outside the 4

months cyclone season they run public awareness activities such as staging educational

dramas and simulation exercises. Increasingly volunteers also contribute to longer- term

mitigation activities such as planting suitable trees as wind breaks along the coast.

The goal of the CPP is to minimize loss of lives and properties in cyclonic disaster by

strengthening the capacity in disaster management of the coastal people of Bangladesh.

Disseminate1. cyclone warning signals issued by the Bangladesh Meteorological

Department to the community people.

Assist People in taking shelter.2.


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Rescue distressed people affected by a cyclone.3.

Provide First Aid to the people injured by a cyclone.4.

Assist in relief and Rehabilitation operations.5.Assist in the implementation of the BDRCS Disaster Preparedness Plan.6.

Assist in participatory community capacity build-up activities.7.

Assist in the co-ordination of disaster management and development activities.8.

CPP is a mechanism which relies on technical skills and volunteers commitment for

ensuring that all potential victims of an approaching cyclone are given sufficient warning

to 20 million coastal people so as to enable them to move to safe sites including cyclone

shelters and safe buildings. The system starts with the collection of meteorological datafrom the Bangladesh Meteorological Department (BMD), which issues bulletins including

the designated warning signals of an approaching cyclone. The bulletins are transmitted

to the 6 zonal offices and the 37 upazila level offices (sub-district) over HF radio.

The upazila offices in turn, pass it to unions and lower level through VHF radios. The

union team leaders then conduct the unit team leaders immediately. The unit team leaders

with his volunteers spread out in the villages and disseminate cyclone warning signals

almost door to door using megaphones, hand sirens and public address system. (Fig. 1)

Fig. 1: Cyclone Preparedness Programme (CPP) Mechanism


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- Age between 18-35

- Permanent resident of the locality- Ability to read & write

- Committed, have time & opportunity to render services

- Self supported

- Honest, sincere & people oriented

- Favorable attitude for voluntary work

- Strong, stout & healthy

For maintaining a high level of efficiency the volunteers are given training on the Red

Cross and Red Crescent movement, cyclone and its behavior, warning signals and their

dissemination, evacuation, sheltering, rescue, first aid and relief operation. Further there

are basic and refresher training of the volunteers.

The Cyclone Preparedness Programme (CPP) covers 37 Upazilas of 13 districts in

the coastal areas. In each unit the 10 male volunteers and 5 female volunteers divided

into 5 groups, 3 in each. Volunteers have been trained to play a crucial role in the

dissemination of cyclone warnings, evacuation, rescue, first aid emergency relief and in

the usage of radio communication equipment. The CPP relies on technical skills and

volunteers’ commitment to ensure that potential victims of an approaching cyclone are

given sufficient warning, enabling them to move to safe sites. (Fig. 2)

Fig. 2: Dissemination of Cyclone warning signals


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The coastal area of Bangladesh is

historically recognized as the venue for

disasters of catastrophic proportions

especially the eastern coast of Cox’sbazar.

Since 1898 Cox’sbazar and Chittagong

coast line has been hit by 28 tropical

depressions and cyclones the worst two

being in 1991 where 138,000 were killed

and 1997 where around 10,000 were killed

(BBS, 1992). The CPP network in Cox’s

Bazar covers seven sub-districts (Teknaf,

Ukhia, Kutubia, Moehskhali, Chokoria,

Pekua and Sadar) which include the

catchment area with the population of

over two millions. The CPP is responsible

for disseminating cyclone early warning

through 5 HF and 25 VHF radio stations

and awareness to the population at large

(Fig. 3).

A total of 200 villagers were surveyed

about the activities performed by the

CPP volunteer’s in pre, during and post

disaster phase. Questionnaires include

activities like warning signals and their dissemination, evacuation, sheltering, search& rescue, first aid and relief operation. This paper also brought up community people

expectations and suggestions for CPP volunteers. It includes all the seven sub-districts of

Cox’sbazar district.

The country is one of the worst sufferers of all cyclonic casualties in the world. The

high number of casualties is due to the fact that cyclones are always associated with

storm surges. Storm surge height in excess of 9m is not uncommon in this region. For

Fig. 3: Study area Cox’s Bazar in Bangladesh


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example, the 1876 cyclone had a surge height of 13.6 m and in 1970 the height was

9.11 m (WARPO, 2005). In fact, the 1970 cyclone is the deadliest cyclone that has hit

Bangladesh coastline. With a wind-speed of about 224 km per hour and associated stormsurge of 6.1 to 9.11m, it was responsible for deaths of about 300,000 people. A list of

devastating cyclones is given in (Table 1).

Table 1: Major cyclones that hit the Bangladesh coast

Date Name Death toll Affected population

November 1, 1876 The great cyclone 2,00,000 30,00,000

November 12, 1970 Bhola cyclone 470000 110,00,000

April 29,1991 1991 cyclone 138882 1,37,98,275

November 15, 2000 Cyclone Sidr 3363 89,23,25925 May, 2009 Cyclone Aila 193 39,28,238

Source: Disaster Management Bureau’s and Karmakar, S., 1989

Fig. 4: Villagers primary sources of early warning/ disaster signals

Radio still is the main source of early warning to the community people in the coastal

areas of Bangladesh. Unavailability of electricity, cheap, portability, use of battery and

usability with fishing boat at sea for fishermen made radio is the primary source of getting

cyclone warnings (Fig. 4). After that CPP volunteers is the sources of early warningin

the community. People also getting warnings from local government offices, members,

chairmen, television, mobile, newspaper etc.


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Fig. 5: Understanding of the CPP disseminated signals

92 % community people said that they understand the CPP dessiminated signals (Fig. 5).In Bangladesh cyclone signals ranges from 1 to 10 depending on their location and wind

speed. But for easy understanding of community people these 10 signals were divided in

the 3 flag system (Fig. 6). Signal 11 means all communication system has brakon. But it

is found that still there is 8 % people do not know or lack of orientation with this signal

system.

Fig. 6: Signal flag of CPP program

Fig. 7: Whether CPP volunteers give any idea about easy and safe way to go to the shelters


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Community people know where is the shelter and how to go there easily. But in time

of emergency, villagers actually decide at the last moment to evacuate their houses and

go to cyclone shelter (Fig. 7). In that moment high wind speed, dark night, broken treesbranches, destroyed houses, with rain and tidal surge, specially elderly, women, children

faces much difficulty in reaching cyclone shelter. Sometimes they loss the location or

can not reach at the shelter in time. So CPP volunteers also give them an idea how to go

the closest cyclone shelter in time of early warning dessimination. People decide to go to

cyclone shelter at the last moment because some reasons, they includes

Lack of capacity of cyclone shelter• No or poor approach road•

Lack of drinking water & sanitation facilities•

Lack of separate places & separate facilities•

for women

No space for livestock•

Old, unsafe building structure•

Unhygienic environment•

Fear of losing livestock and asset•

House is more secure than shelter•

Insecurity•

False warning•

Fig. 8: Whether the CPP volunteers maintain the cyclone shelter.

Almost 80% community people said that CPP volunteers maintain the cyclone shelters

(Fig. 8). The reason behind that the land owner who donated that land for shelter usuallya volunteer also. So he felt a ownership of that shelter and try to maintain that all

the time. But some times it require major repair work that is much costly and cannot

possibile by the volunteers. The way they CPP volunteers maintain the shelter includes

Cleaning & washing•

Ensure security•

Operating community schools•

Prepare space by arranging chair & table•

Special care on children, pregnant•

women, disable, old people


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Fig. 9: Whether the CPP provides rescue services during disaster

About 79% respondent said that volunteers provide rescue services to the community

people during and after disaster (Fig. 9). After disaster actually all people involved in

rescue operations. CPP volunteers have training so they can do it effectively and can lead

the rescue team in their activities. CPP performed rescue activities includes

Bring injured people into safety with•

Banana raft, life jack

Take them to the doctors for•

treatment

Engrave the dead bodies•

Search remote places for rescue•

Give orientation on search & rescue to•

community people

Rescue group formation•

Clearing road, fit for communication•

Fig. 10: Whether the CPP volunteers provide first aid support to the disaster victims


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Most of the people respond that volunteers provide first aid to the affected population

(Fig. 10). Only 14% people siad no.but it also depend on the availability of the firstaid

box, medicine, skill of the volunteer, necessary materials etc. it is also depend on theseverity of illness of the population. Types of first aid support provided by CPP to the

victims includes

First aid & primary medicine•

bandage for wound•

Carry them to safe place•

Send to hospital•

Give orientation on First Aid to•

community people

Give/ arrange blood•

Fig. 11: Whether CPP Volunteers provide any services during emergency

relief distribution

CPP volunteers also involved in emergency relief operation including all activities damage

asssessment, beneficiary selsction, distribution etc. Villagers also mentioned that after

disaster many organization come with relief items but they invilved their own people in

beneficiary selsction and distribution. But most of the organization mobilize CPP in the relief

distribution process (Fig. 11). Role of CPP volunteers in emergency relief services includes

Damage assessment•

Beneficiary list preparation•

Transportation / carrying of relief•

items

Distribute relief materials•

Maintaining security•

Coordination with UP office•

Organize relief distribution•


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Fig. 12: Required educational qualification of the volunteers

The average expectation for the education level of is class VIII to SSC. But fot better

managemnt, planning, coordination with the local government, they asked for some

educated person of graduation level. As it is voluntary service and only required in the

emergency period of several days so they think it is quite logical and relevant. But most

of the people having in degree level education actually do not live in the village and

sometimes do not any feel interest to work voluntarily in the disaster time (Fig. 12).

Lack of skill in signal dissemination,•

shelter, rescue

Signal dissemination equipments•

Lack of willingness•

Manpower limitation•

Lack of rescue instrument•

Scarcity of volunteers•

Unable to understand signal•

importance

Repair capacity•

Villagers also give some suggestions so that volunteers work can be better and they will

get more services from volunteers. Villager’s advices to better maintenance of the cyclone

shelters through


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Make a committee for shelter•

management

Ensuring water supply & sanitation•

facilities

Repairing cyclone shelter routinely•

Equipped with minimum•

instruments (first aid, rescue, mega

phone etc) in shelter

Use of shelter in community•

activities

Assigned volunteers for specific•

activities

Tree plantation around shelter•

boundary

Permanent Guard/cleaner•

Green belt, supply instrument, repair•

shelter & shelter yard

Cleaning & washing the shelter•

Training on maintenance and safety•

of cyclone shelter

The initiatives needed to enhance the capacity of CPP in search and first aid work

Proper training on first aid and search•

& rescue

Supply of rescue instruments•

Supply of sufficient first aid kits•

Develop community trainers group•

Provide them TOT•

Regular basic and refresher training•

for the volunteers

Fig. 13: The required training for CPP Volunteers

Villagers identified a number of trainings need to be provided to the volunteers. From

the table it is clear that the main four impotant training needs are search & rescue, first

aid, eraly warning dessimination and relief management (Fig. 13).


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Fig. 14: Villagers expectation regarding ideal volunteers’ mentality

Community people also express their expectation about the mentality and behavior of

the volunteers. As their acceptance and role in mobilizing community is very important

during any disaster event so they should possess some qualities. Generous, industrious

mentality and polite behavior are the three main point that villagers identified. Initiatives

need to be taken to improve the performance of CPP volunteers (Fig. 14)

Increase number of volunteers each•

group

Increase volunteers capacities on first•

aid, rescue

Provide rescue instrument•

Provide first aid facilities•

Prepare detail local work plan•

Participation in local govt.•

development activities

Regular training•

Better coordination with local•

government

Involvement in awareness building•

activities

Volunteers need and performance•

evaluation

Enhance coordination•

Recognition•

Monitoring performance•

Strengths: The following are the strengths of CPP

1. Volunteers organization

2. Spirit, commitment and dedication of the volunteers

3. Rooted in the community


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4. Use of the emblem of Red Cross (symbol of impartiality and neutrality) and the

service-orientation of the organization

5. Check and balance through the policy and management committees, constitutedwith the representatives from the Government and the Red Crescent Society.

So it is clear that CPP volunteers play very important role in warning dissemination,

shelter management, search & rescue, First aid and relief distribution activities.

710 km long coast line of Bangladesh with numerous off-shore islands are inhabited by

11 million people who are direct beneficiaries of the programme and they depend on

CPP. Its devoted and committed volunteers are well organized to face any eventualities

for saving lives and properties of their own communities. These extra ordinary volunteersteam need to be supported for the very well being of the 11 million coastal people

of Bangladesh. Generally in the pre-disaster, during the disaster and the immediate

aftermath (24 – 72 hrs) the CPP volunteers and the communities themselves are the only

people/ organizations that respond. CPP is an effective, grass-root oriented, disciplined

and tightly knits organization which is dedicated to the task of protecting the population

along with community capacity build up activities. Its 42675 volunteers are respected

and becoming increasingly integrated and influential within their community and

with the local government agencies. They exhibit a high level of commitment to their

programme and readiness to meet the community requirements for better disasterpreparedness. Since the inception of cyclone preparedness programme in 1972, a total

of 178 depressions have formed in the Bay of Bengal out of which 20 intensified into a

severe cyclonic storm. The programme faced all the situation with determination and

courage and gradually achieved greater success in moving people to shelters and saving

live and property of the coastal people.

Ali, A. (1999), Ghurnijhar (Cyclone), Bangla Academy, Dhaka.

Bangladesh Meteorological Department (2005) List of Major Cyclonic Storms from 1960 to 2004 whichcausedhuge loss of lives and properties in Bangladesh, BMD, Dhaka (unpublished document).

BBS, (1992). Bangladesh Population Census, 1991, Community Series, Cox’s Bazar, Bangladesh Bureau of

Statistics, Dhaka.

CDMP, (2006), Preparing for Climate Change, Climate change Cell, Component 4B of Comprehensive Disaster

Management Programme, Dhaka.

Disaster Management Bureau (DMB), Ministry of Food and Disaster Management, Government of

Bangladesh. http://www.dmb.gov.bd/


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DMB (1997), Standing Orders on Disaster, Disaster Management Bureau, Dhaka.

DMB (2010), National Plan for Disaster Management, Disaster Management Bureau, Dhaka.

Karmakar, S., 1989. Natural Disasters in Bangladesh: A Statistical Review. Paper presented at the seminar onImpact of Information Towards Mitigation of Natural Disasters, held on January 7-8, 1989 at BANSDOC,

Dhaka, Bangladesh.

WARPO, (2005). National Adaptation Program of Action (NAPA): Water, Coastal Areas, Natural Disaster &

Health Sector, Water Resources Planning Organization (WARPO), Dhaka.

Documents

02 Chapter-Assesement of CPP Volunteer