Primer on Disaster Risk Management in North-East Cambodia

8/20/2019 Primer on Disaster Risk Management in North-East Cambodia

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The opinions expressed in the primer are those of the authors and do not necessarily

reect the views of the International Organization for Migration (IOM). The designationsemployed and the presentation of material throughout the primer do not imply theexpression of any opinion whatsoever on the part of IOM concerning the legal statusof any country, territory, city, area, or of its authorities, or concerning its frontiers orboundaries.

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IOM is committed to the principle that human and orderly migration benets migrantsand society. As an intergovernmental body, IOM acts with its partners in the internationalcommunity to: assist in meeting the operational challenges of migrants; advanceunderstanding of migration issues; encourage social and economic development throughmigration; and work towards effective respect of the human dignity and well-being ofmigrants.

International Organization for Migration (IOM)Mission in CambodiaNo. 31, St. 71Chamcar Mon, PO Box 435Phnom Penh, Cambodia Tel: +855.23.216532Fax: +855.23.216423E-mail: [email protected]

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Writing and Editorial Team:

Elenor T. de LeonKathlyn Kissy Haynes Sumaylo

This material has been produced under the “Building Resilience to Natural Hazards in

North-East Cambodia” Project and with support from the Spanish Agency for InternationalCooperation and Development (AECID).

IOM wishes to thank its Project Management Team in Phnom Penh, its Field Coordination Teams in Ratanakiri and Mondulkiri, its Field Research Team in Stung Treng, and theNational Committee on Disaster Management focal person, Mr. Khun Sokha, for theirinvaluable contributions to the nalization of this primer.

© 2010 International Organization for Migration (IOM)

IOM Phnom Penh primer (English)

Cover photos courtesy of IOM vulnerability studies in Ratanakiri, Mondulkiri, and Stung Treng provinces.


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TABLE OF CONTENTS

Disaster Situation in Cambodia ............................................................................................... 1

Vulnerability to Natural Hazards in the North-East Provinces...................................... 1

Hazard and Vulnerability Assessment in Ratanakiri,

Mondulkiri, and Stung Treng .................................................................................................3

Migration Patterns and Vulnerability ................................................................................... 5

Emerging Impact of Climate-Induced Hazards in the North-East ........................... 6

Impacts of Typhoon Ketsana.................................................................................................. 7

Understanding Disaster Risk Reduction (DRR) Concepts ........................................... 8

Disasters and Local Development ....................................................................................... 12

The Millennium Development Goals (MDGs) and

Disaster Management ............................................................................................................. 13

Institutional Context and Disaster Management in Cambodia ................................. 14Provincial Committee for Disaster Management (PCDM) ................................................................16District Committee for Disaster Management (DCDM) ...................................................................18

Commune Committee for Disaster Management (CCDM) ............................................................... 19Village Disaster Management Teams (VDMT) ..............................................................................20

The Strategic National Action Plan for Disaster

Risk Reduction 2008-2013 (SNAP) ......................................................................................21

Integrating DRM in Development Planning ................................................................... 22

The CBDRM Approach ..........................................................................................................24

Key Steps in Creating a Disaster Management Plan ..................................................... 26

The Bottom-Up Approach in Development Planning:

Mainstreaming DRR ...............................................................................................................28Commune/Sangkat Development Planning (CDP) ........................................................................ 28The C/S Investment Program (CIP) ............................................................................................... 32

Useful Tools in Community-Based Disaster Risk Assessment .................................. 30

The Way Forward ..................................................................................................................... 33


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Disaster Situation in Cambodia

Cambodia is one of the most disaster-prone countries in Southeast Asia. Located southwestof the Indochina peninsula, it forms part of the vast and fertile Mekong River Basin wherean annual cycle of oods and droughts comes with the changes in water levels during the

wet and dry seasons.

However, the occurrence of oods and droughts has recently become more frequent anddestructive. From 2001 to 2010, a total of seven oods were reported to have hit thecountry, affecting 3,196,182 people and causing 16,100,000 USD in damages.

Droughts, or periods of abnormal dry weather, have also become increasingly signicant inmany parts of the country, including ood-prone ones. These not only affect agriculturalproduction but cause water-related disease mortality and morbidity as well. There have

been three incidents of drought in Cambodia that were recorded from 2001 to 2010. Itaffected 1,550,000 people and caused 38,000,000 USD in damages.

Vulnerability to Natural Hazards in the North-East Provinces

North-East Cambodia, composed of the provinces of Ratanakiri, Stung Treng, andMondulkiri, has some of the country’s rich wildlifeand lush forests. These include the Lumphat WildlifeSanctuary in Ratanakiri and the Virachey National Park

in Ratanakiri and Stung Treng, and the MondulkiriProtected Forest and Snoul Wildlife Sanctuary inMondulkiri. Predominantly mountainous, this partof Cambodia is home to more than half of thecountry’s indigenous population. Indigenous groupsin Ratanakiri include the Tumpuon, J’arai, Kreung,Kavet, Lun, Kachok, Prao, Phnong, Kuoy, and Stieng.In Mondulkiri are the Phnong, Stieng, Kraol, J’arai, Thmon, Kuoy, Kreung, and Tumpuon. The Kavet, Kuy, Phnong, Kreung, Tum Puon, Kachock, and Jarai can also be found inStung Treng. Indigenous groups form a majority of the population in Ratanakiri andMondulkiri but they remain an ethnic minority in Cambodia.

Although not traditionally thought to be hazard-prone, the north-eastern part of Cambodia has beenexposed to natural hazards such as oods, droughts,and insect infestations. This part of the country hasalso been susceptible to environmental degradation,deforestation, and loss of lands and livelihoodsowing to increasing in-trade and cross-border tradeactivities, infrastructure development, and lowlandmigration. Although having low population

density, a census shows that from 1998 to 2008,

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Tumpoun bride and groom’s houses at YeakLom Lake, O’Chum District, Ratanakiri.


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there has been a dramatic 60 percent rise in the populationof Ratanakiri and Mondulkiri, and more than 30 percent inStung Treng.

In 2009, the Council of Ministers approved the National

Policy on Indigenous Peoples, a policy document thatseeks to ensure the recognition of and respect for theindigenous culture and traditions and rights of indigenouspeoples. It specically calls on all concerned ministries andinstitutions to not only respect the rights of indigenouspeoples and accord them the same benets as stipulatedin the constitution of Cambodia. It also encourages theparticipation of indigenous peoples in matters that directlyconcern them such as policy formulation and management

of hazards.

The policy further instructs the Ministry of Land Management, Urban Planning, andConstruction (MOLMUPC) to draft a legal framework for the registration of indigenouscommunity lands, and calls on all ministries and institutions concerned to establish

procedures that recognize their traditional use of natural resources.*

Figure 1: Map of North-East Cambodia

* The rst chapter of the National Policy on Indigenous Peoples states the government’s general policy onindigenous peoples, including the responsibilities of concerned ministries and institutions.

A Prao woman prepares rice

for pounding.

Source: Ministry of Land Use, Urban Planning and Construction


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Hazard and Vulnerability Assessment in Ratanakiri, Mondulkiri, and

Stung Treng

Ratanakiri

In Ratanakiri, a once densely forested area with numerous bodies of water, residents havebeen alarmed by the frequent occurrence of ooding since 1996. Villages near the twoMekong tributaries – Se San and Sre Pok – have experienced destructive oods that causedlosses in livestock, damage to rice elds and chamkar (special elds cleared for crops),destruction of houses and storage facilities, and human deaths.

There are three types of oods that villagersexperience: 1) seasonal slow onset and ash oods

during the rainy season; 2) ash oods inducedby the release of water from hydropower damsoccurring at any time of the year and regardlessof rain patterns; and 3) ash oods caused by acombination of heavy rainfall and water releasedfrom hydropower dams. Affected residents attributetheir increasing vulnerability to such oods to pastand present deforestation. The collapse of the YaliDam in neighboring Viet Nam also contributed tothe disastrous ood that occurred in 1996, which wasaggravated by a week-long downpour.

Agricultural droughts with longer periods of little orno rain occurring between the rice-growing seasonshave also become more frequent in the province.Hazard factors related to droughts include depletionof soil moisture, very high temperature, insufcient and erratic rainfall, soil cracks,surface/ground water drying up and loss of soil cover in chamkar due to deforestation,

wind erosion, and arid conditions affecting trees. This not only leads to lower agricultural production;it can also cause total crop failure, affecting not onlythe communities’ food security but their sources oflivelihood as well.

Insect infestation is also considered as another regularcause for concern among the farmers of Ratanakiri.Occurring mostly during the rice-growing season

and drought periods, insect infestation affects cropsand contributes to food shortage. While indigenousknowledge is rich on effective practices to control

Streams provide a good source of waterfor villagers in Samot Leu.

A woman collects bananas in Pateng Village in Ratanakiri.


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these problems, recent massive infestations believed to be brought by loss of forest habitatshave made these insufcient and unsuitable. With lack of institutional assistance in dealing with these infestations, especially with the alarming appearance of insects that have notbeen known to villagers before, people have been largely left on their own on deciding whether to use insecticides and what possible effects these may have on their health andthe soil.

Mondulkiri

Residents of Mondulkiri, the largestprovince in terms of land area, experiencethe same hazards. Villages near streamsand tributaries have increasinglybecome exposed to intense ash oods,

causing damage to crops, livestock, andinfrastructures. In some districts, theseash oods typically last for and two tothree days.

Residents noted three types of ooding: 1) ash oods triggered by torrential rains resulting in the overowing of streams andtributaries; 2) ooding caused by the seasonal water level variations and operation of thehydropower dam owing through the Sre Pok from Viet Nam; and 3) seasonal ooding

resulting from heavy rainfall during the wet season.

Critical droughts have also been reported in Mondulkiri. Increasing in frequency, thesedroughts have been attributed by villagers to past and ongoing deforestation in the province, which is thought to have contributed to the changing rainfall patterns and watersheds inMondulkiri. Changes in rainfall patterns and watersheds affect both incidence of oodingand droughts.

Mondulkiri has a long history of seasonal insect

infestation. Some of the insects that commonly attackrice crops include the nhuy , sreung , and kra toek. Since1982, however, villagers have observed increasingfrequency and severity in insect infestations, damaginglarger parts of upland rice cultivation and short-termrice crops and causing food shortages. Loss of forestcover, destruction of insect habitats, and increaseduse of chemical pesticides are believed to be the mainreasons for the increase in scale of the infestations. With

no integrated response on insect control and little institutional support, villagers are unableto directly and decisively address the problem.

A young mother carries her child on her kroma.


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Stung Treng

The Mekong River and its three tributaries – Se San, Sre Pok, and Sekong – owthrough the province of Stung Treng where ooding is a regular occurrence. Residentshere experience three types of ood: (1) slow onset oods caused by rainfall from the

surrounding catchments in the rainy season; (2) oods caused by the downstream impactof hydropower dams; and (3) ash oods after repeated rains in the upland areas that causethe Mekong and its tributaries to overow. For the last ten years, however, residents reportthat the oods have become more frequent and have gotten worse. This not only causesgradual erosion of lands and destruction of infrastructures; communities that rely on riversfor drinking, bathing, and washing have reported changes in the quality of its water.

Compared to oods, droughts develop slowly for a prolonged period. In Stung Treng,droughts are characterized by insufcient water supply and unusual dry weather, which

adversely affect seasonal cultivation and local livelihood. There are also no formal warningsystems in the communities and they receive little assistance from local authorities indealing with its impacts.

Another regular occurrence in Stung Treng is insect infestation, which confronts farmersannually. However, with increasing changes in the climate and continuous loss of insecthabitats due to deforestation, these infestations are expected to continue and increase,

leading to greater crop failure and food insufciency.

Migration Patterns andVulnerability

Migration patterns in the north-east arecomplex, driven by push-pull factors andenvironmental and economic pressuresas well as indigenous beliefs on landand forests. The impact of naturalhazards to livelihood and security affect

the migration patterns of surveyed villages in North-East Cambodia. InRatanakiri, migration patterns amongsurveyed villages reveal a history of bothtemporary and permanent movementsaway from rivers due to constant fear of water surges and uctuations. Villagershave expressed mixed positive andnegative effects of these movements

depending on the relocation site’s proximity to roads and water sources, soil type, andavailability of land for chamkars and rice elds. Among indigenous communities, mobility within village boundaries and to forest and safe hills is a traditional way of coping with

Indigenous children play by the river in Mondulkiri.


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food and water scarcity, evacuation during and after a natural disaster, and occurrence ofdiseases. However, the lack of safe water, strong shelters, and food stock in these safeareas render these communities vulnerable to diseases and malnutrition. In Mondulkiri, where villagers have either moved or were planning to move their rice elds to areas thatare less vulnerable to hazards, the increase in in-migration of outsiders to villages andconversion of forest lands have curtailed the residents’ plans to move their elds to newlocations. In Stung Treng, mobility pattern is characterized by seasonal labor in-migrationfrom other provinces in agro-industrial plantations and logging. Among local communities,seasonal labor out-migration before and after the rice-growing season is the primary meansto augment income and buy food after a disaster. There is a notable increase in naturalresource harvesting in times of ood and drought. Overall, dynamic pressures such as lossof forest lands for natural resource harvesting, farming and swidden cultivation; lowlandin-migration; and population growth are further limiting migration as a coping strategy to

natural disasters.

Emerging Impact of Climate-Induced Hazards in the North-East

Climate variability has been noted in thenorth-east in recent years. Floods and periodsof droughts have become more intense andfrequent. Rainfall levels and distributionpatterns have become erratic. Insect

infestation has also increased and becomemassive, with newer forms never before seenby villagers.

Extreme amounts of rainfall, extreme

drought, and changing ecosystems are allevidence of climate change. A study doneby Yusuf and Francisco in 2009 foundMondulkiri as the most vulnerable province

in Cambodia in regard to climate variability. The same study also found Mondulkiri as the4th most climate change-prone province from

among 530 in the whole of Southeast Asia. Ratanakiri and Stung Treng placed 6th and 62nd,respectively.

Climate variability is a serious environmental concern that signicantly impacts on humanlife and security. In North-East Cambodia, traditional farming practices that have beendependent on predictable rainfall levels and distribution are now being threatened, leadingto poor harvests and food shortages. Indigenous knowledge developed through time thatused to be sufcient for villagers to predict and cope with natural hazards have becomelargely unsuitable, and at times ineffective, in helping them deal with the increasingunpredictability in weather patterns and more severe and frequent occurrences of oods,


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droughts, and insect infestations. More information and support are required on adaptationand mitigation activities on climate-induced hazards, specically on weather forecasting,agriculture, and alternative livelihoods.

Impacts of Typhoon Ketsana

Typhoon Ketsana caused so much devastation when it hit Cambodia in 2009. Sweeping through14 of Cambodia’s 24 provinces, where someof the poorest districts are, Typhoon Ketsana

destroyed properties, livelihoods, and publicinfrastructures, and left 43 people dead and 67severely injured. Total damages and loss wereestimated at 132 million USD, 56 percent of

which was incurred by the country’s productivesectors (agriculture, livestock, sheries, industry,and commerce).

The recent onslaught of Typhoon Ketsana demonstrated the vulnerabilities of theseprovinces to both seasonal and climate-related natural hazards, and how the lack of disaster

preparedness and disaster management mechanisms and resources could seriouslyhamper efforts at emergency response, rehabilitation, and recovery. The Ketsana Post-

Disaster Needs Assessment (2010) identied twomajor challenges for the government after TyphoonKetsana. First is the limited capacity and resources ofthe National Committee for Disaster Management(NCDM) and sub-national authorities on disastermanagement, and second is the lack of disaster riskmanagement (DRM) legislation. An overall national

risk assessment is also lacking and important tools,such as hazard, vulnerability and risk maps, are notin place. Disaster management committees that were

Flood water brought by Ketsana left these vatssubmerged.

Local ferries are common means of rivertransportation in the north-east.

Dirt roads turned muddy after Typhoon Ketsanahit North-East Cambodia.

The provinces of Ratanakiri, Mondulkiri, andStung Treng suffered signicantly from theimpacts of oods and rains. Among thoseheavily hit were rural infrastructures, houses,and schools. Many families were also left

without sufficient food supply and accessto clean water both during and after theflood. Rice fields were submerged in flood water and rice and other food crops weredestroyed. Roads, bridges, and dams werealso damaged.


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created at the sub-national level are constrained by limited capacity and funding. It alsohighlighted the need for the government to shift focus and efforts from disaster responseto disaster preparedness. The passage of the DRM Law is very much needed as it will notonly further dene the roles and responsibilities of the NCDM and its Secretariat; said Law will also allocate much needed budget for DRM activities.

Understanding Disaster Risk Reduction (DRR) Concepts

Disaster risk reduction is the systematic development and application of policies,strategies and practices to minimize vulnerabilities and disaster risks throughout a society,to avoid (prevention) or to limit (mitigation and preparedness) adverse impacts of hazards, within the broader context of sustainable development.

Disaster is a serious disruption of the functioning of a community or a society causing

widespread human, material, economic or environmental losses, which exceed the abilityof the affected community to cope using its own resources. A disaster is a function ofthe risk process. It results from the combination of hazards, vulnerable conditions, andinsufcient capacity or measures to reduce the potential negative consequences of risk.

Disasters occur when a hazard strikes a vulnerable community with low capacity, resultingin serious disruptions of community life and damages and loss that exceed the community’sability to cope using its own resources.

A hazard is a potentially damaging physical event, phenomenon, or human activity, whichmay cause loss of life or injury, property damage, social and economic disruption, orenvironmental degradation.

The types of hazards that have the potential to affect communities are: natural (geological,hydro-meteorological, and biological) and/or induced by human processes (environmentaldegradation and technological hazards). In the case of the north-eastern provinces, majornatural hazards found were ood, drought, and insect infestation. Hazards can be single,sequential, or combined in their origin and effects. Each hazard is characterized by itslocation, intensity, and probability.

Vulnerability is a set of conditions and processes resulting from physical, social, economic,and environmental factors that increase the susceptibility of a community to the impactof hazards.

Examples of vulnerability include poor locations and houses made of light materials(physical), conict in the community, lack of knowledge and skills on preparedness andprotective measures (social), and attitude of helplessness and dependence (attitudinal).

Capacity is a combination of all the strengths and resources available within a community,society or organization that can reduce the level of risk, or the effects of a disaster.


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The following are examples of capacities taken from IOM’s recent study in Ratanakiri andMondulkiri:

• Access to institutional and external assistance.• Community solidarity and adaptive behavior.• Indigenous knowledge and practices.

• Coping strategies at the household and village level.• Preference for natural means of insect control.

Indigenous warning signals for flood and drought

Indigenous and local communities in the north-east possess a wealth of traditional orindigenous knowledge combined with observations of other changes in their surroundings. They have relied on these signals for centuries to predict the onset of ood and drought,

and these signals are integral to their way of life, survival, and adaptation to changes in theirenvironment. Tapping into these traditions in disaster risk reduction efforts empowerscommunity members and encourages them toactively participate in disaster risk reduction andmanagement.

For the locals of Ratanakiri, it is the changingcolor of the trokut’s (a type of water monitorlizard) tail that tells them when a ood or drought

is coming: black for ood and white for drought.

The trong (a type of water monitor lizard) laying itseggs as far away from the river as possible is alsoa sign, along with the trech (long ant) building itsnest higher on the tree tops, and when the jangrat (cricket) starts reducing the size of the groundhole where it lives.

Almost the same can be said about residents innearby Mondulkiri. Residents of Pu Tru Village are able to predict an approaching oodby noting the change in the squawking of chickens. For drought, they note the whiterappearance of the Bengal monitor lizard’s tail. They also take their cue from king cobrashatching their eggs on the stream bed, or the wild chickens’ eggs laid on the ground or ontree stubs in paddy elds. Crying deers in the morning, trech nests by the stream or river,and the disappearance of som puncg (polecat) in the forest are also signs of an approachingdrought.

Sources: IOM (2009). Mapping Vulnerability to Natural Hazards in Ratanakiri: Final Report, p. 54. IOM (2009). Mapping Vulnerability to Natural Hazards in Mondulkiri: Final Report, p. 51.

An indigenous man holding a trokut to

predict flood and drought.


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Risk is the probability of harmful consequences, or expected loss (deaths, injuries,property, livelihoods, disruption of economic activity, environmental damages), resultingfrom interactions between natural or human-induced hazards and vulnerable/capableconditions

Disaster risk is the likelihood of a hazard striking a vulnerable community, causing injury,damage, and loss. The higher the vulnerability, the higher the disaster risk. On the otherhand, the bigger the capacity, the smaller the disaster risk.

Disaster risk is expressed by the following equation:

Figure 2: Disaster Risk Equation

Disaster risk management (DRM) is the systematic process of using administrativedecisions, organization, operational skills, and capacities to implement policies, strategies,

and coping capacities of the society and communities to lessen the impacts of naturalhazards and related environmental and technological disasters. This comprises all forms ofactivities, including structural and non-structural measures to avoid (prevention) or to limit(mitigation and preparedness) adverse effects of hazards.

The gure on the next page shows the differentphases of disaster management. Effortsto prevent or mitigate damage are in theprevention/mitigation phase while activities

or measures made to effectively respond tothe impact of hazards are in the preparednessphase. It must be made clear, though, thatbeing prepared cannot avert the occurrence ofdisasters; it merely minimizes the loss of lifeand property. Response comes after a disaster, when emergency assistance or relief is provided.In the rehabilitation or reconstruction phase,efforts geared toward reducing disaster risks

should be made, such as making disaster resilientstructures and using hazard maps in land use planning.

Hazards x Vulnerability Disaster Risk =

Capacity

An individual household well in Ke Koung

Krom in Ratanakiri Province.


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Disaster

Mitigation

Prevention

Reconstruction

Recovery

Preparedness

Response

Figure 3: Disaster Risk Reduction Cycle

Source: United Nations Ofce for the Coordination of Humanitarian Affairs (UN-OCHA)

Prevention refer to activities meant to provide outright avoidance of the adverse impact

of hazards and related environmental, technological, and biological disasters. Investmentin preventative activities is frequently inuenced by a disaster. In the context of publicawareness and education, prevention refers to attitudes and behavior leading towards a“culture of prevention.” Despite being exposed to natural hazards, capacity for preventionremains low in Cambodia.

Mitigation refers to the measures aimed at minimizing the impacts of a natural or man-made disaster on a nation or community in terms of casualties and damages. It also refersto measures designed to prevent natural phenomena from causing disasters or emergencies,

such as land use regulations, laws, and safety insurance.

Preparedness refers to pre-disaster actions and measures being undertaken to minimizeloss of life and property. Measures may include community organizing, training, planning,equipping, stockpiling, hazard mapping, and public information and educational initiatives.

For example:

• Plans – contingency, re, and ood evacuation plan.• Information – rapid dissemination of information through mass media, population

awareness .

• Resources – available response units, capabilities, equipment, manpower, location,contact numbers.

• Education and training – training of provincial, district and commune ofcials,department staff, volunteers, and villagers.


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Response refers to any concerted effort by two or more agencies, public or private, toprovide emergency assistance or relief to persons affected by disasters or calamities.

Recovery refers to decisions and actions taken after a disaster with a view to restoring orimproving the pre-disaster living conditions of the stricken community, while encouraging

and facilitating necessary adjustments to reduce disaster risk.

Rehabilitation is the process by which the affected communities or areas of damagedpublic infrastructure are restored to their normal level or their actual condition prior to theoccurrence of the disaster or calamity. Rehabilitation can include:

• Funding – emergency assistance from national and local calamity funds and variousgovernment and NGO sources.

• Loans and grants extended by NGOs and international NGOs.• Assistance extended by government agencies, international and local NGOs, and

private sector.

Risk assessment/analysis is a process to determine the nature and extent of risk byanalyzing potential hazards and evaluating existing conditions of vulnerability/capacity thatcould pose a potential threat or harm to people, property, livelihoods, and the environmenton which they depend.

Early warning system means the provision of timely and effective information, throughidentied institutions, that allow individuals at risk of a

disaster to take action to avoid or reduce their risk andprepare for an effective response.

Early warning systems consist of three elements:

1. Forecasting and prediction of impending events;2. Processing and dissemination of warnings to politicalauthorities and populations; and3. Undertaking appropriate reaction to warnings.

The goal of disaster risk reduction and risk managementis to build safer and more resilient communities by

developing their coping capabilities, or the manner in which people use existing resources to achieve variousbenecial ends during unusual, abnormal, and adverseconditions of a disaster event or process, and in the long-term their adaptive capacity tonatural and other hazards.

Disasters and Local Development

Disasters affect the processes of local development. Aside from causing disruptionand destruction, it also diverts resources that could have been spent on development,emergency relief and recovery/reconstruction efforts. It also compromises development


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gains, especially if the impact is so immensethat communities would have to start all overagain. But the occurrence of disasters canalso be seen as providing opportunities fordevelopment. In the aftermath of a disaster,communities realize their vulnerabilitiesand the negative effects of disasters. Theirexperience and lessons gained from naturaldisasters could help communities and local

authorities prepare for, mitigate, and deal with its negative impacts. The cost of thelack of disaster preparedness and mitigationmechanisms should also convince government ofcials and development practitioners

to integrate disaster risk reduction and management in their programs and policies. A development strategy that integrates the principles of disaster risk reduction andmanagement paves the way for the allocation of resources for disaster management andcapacity building. It also leads to the creation of infrastructures that are disaster resilient.

Below are some of the major development sectors affected by disasters: Health

Migration/mobility Livelihoods

Agriculture Natural Resource Management Infrastructure

The Millennium Development Goals (MDGs) and Disaster

Management

In 2000, 189 UN member states adopted the Millennium Development Goals, or MDGs:eight time-bound, concrete, and specic targets across key development sectors that are

to be met by the year 2015. In 2003, the Royal Government of Cambodia (RGC) adaptedthese eight (8) universally-agreed MDGs to better suit the realities of the country by addinga ninth goal --- de-mining, unexploded ordinance (UXO). and victim assistance. Cambodia’sMDGs (CMDGs) include nine goals, 25 targets, and 106 indicators.

Goal 1: Eradicate extreme poverty and hungerGoal 2: Achieve universal primary educationGoal 3: Promote gender equality and empower womenGoal 4: Reduce child mortality

Goal 5: Improve maternal healthGoal 6: Combat HIV/AIDS, malaria and other diseasesGoal 7: Ensure environmental sustainability Goal 8: Develop a global partnership for developmentGoal 9: De-mining, UXO and victim assistance

Women typically clear the grass for rice

cultivation.

Food Security Education

Indigenous Culture and Practices

Water and Sanitation Gender


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While some progress has already been made toward achieving these goals, a lot remains to be done.

Although poverty has signicantly decreased over the years, the benets of economicgrowth have not been equally distributed among the people. Rural poverty remains high inCambodia, especially in the north-east. According to a 2004 poverty map of the country,

poverty rate in Ratanakiri and Mondulkiri provinces were at an alarming 40-45 percentcompared to the national rural poverty average of 35 percent.

Environmental degradation is also a major concern. In the north-east, once amongCambodia’s most remote regions endowed with diverse biodiversity and rich naturalresources, recent developments along with changing land use patterns, a high populationgrowth rate, and agricultural and logging activities have led to environmental problems.

With ve years left before the deadline, the government cannot afford setbacks ordisruptions in their development initiatives. To ensure that those efforts will not go to

waste with the occurrence of a disaster, it is important for disaster resiliency and riskreduction to be integrated in the crafting of sustainable policies and plans.

Institutional Context of Disaster Management in Cambodia

In 1995, the Royal Government of Cambodia created the National Committee for DisasterManagement (NCDM). Headed by the Prime Minister as its president, the NCDM servesas the national coordinating body on disaster preparedness. Its members consist of allministers, representatives of the Royal Cambodian Armed Forces, Cambodian Red Cross,

and Civil Aviation Authority.

Specically, the functions and responsibilities of the NCDM include the following:1. Manage data on disaster risk and develop reports on the disaster situation;2. Proposal on reserves of resources for disaster intervention in emergency response;3. Capacity building and human resource development on disaster management;4. Coordination in implementation of disaster management policies;5. Exchange and sharing of information;6. Coordination and mobilization of resources for disaster response.

Committees for Disaster Management with similar governing structures and functions were also created at the sub-national level. In 2002, the Prime Minister signed a decisionon the Formulation of Working Group on Disaster Coordination, Response and Recovery. This working group has been tasked to coordinate information with all partners andshare responsibilities in emergency response activities, evaluate the damages and needsfor the disaster-affected areas, and plan and carry out recovery and rehabilitation afterdisasters. This same group is also tasked to gather related information on preparedness ofcapacity and capability of concerned ministries, institutions, and organizations for disaster

responses, and lead and organize various coordination meetings to include UN agencies,and I/NGOs. To strengthen sub-national presence on disaster management, Sub-DecreeNo. 61 was passed in 2006 providing for counterpart structures and mandates at provincial,district, and commune levels.


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Source: NCDM (2008). Strategic National Action Plan for Disaster Risk Reduction for 2008-2013, p. 24, as quoted in IOM(2009). Mapping Vulnerability to Natural Hazards in Ratanakiri: Final Report, p. 33.

NGO/CBO contribution to disaster risk reduction

There has been growing recognition of the importance of integrating disaster riskreduction (DRR) in program implementation among NGOs in Cambodia. From viewingdisasters as isolated components, international, national and local NGOs are taking steps to

integrating DRR in their program implementation and activities. At the local level, NGO/CBO presence has been key in providing relief and emergency support. In Ratanakiri, forinstance, some NGOs/CBOs engage in the provision of rice, canned goods, seasonings, water lter, tents, cooking utensils, and sleeping kits to families affected by disasters. InStung Treng, recovery and rehabilitation projects have been launched to help affected villages after the Ketsana. Joint PCDM-NGO emergency planning exercises for ood were completed in 2009 and 2010. The Provincial Committee for Disaster Management(PCDM) welcomes these contributions, and encourages more partnerships with NGOs,

both local and international.

Figure 4: DRM Coordination Mechanism

National Committee on Disaster Management (NCDM)

Cabinet

NCDM Secretariat

PCDM Secretariat

CCDM Secretariat

DCDM SecretariatDistrict (Khan) Committee onDisaster Management (DCDM)

Commune (Sangkat) Committee onDisaster Management (CCDM)

Provincial Committee on DisasterManagement (PCDM)

DM Working Team ofMinistries/InstitutionsFinancial Inspection Unit


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IOM16

Provincial Committee for Disaster Management (PCDM)

The working group has four sub-groups at the provincial level. These are the following:1) Search, Rescue and Security Sub-Group2) Health and Sanitation Sub-Group

3) Information, Education and Dissemination Sub-Group4) Emergency Response and Recovery Sub-Group

Each sub-group is chaired by one Deputy Provincial Governor.

Figure 5: Structure and Composition of PCDM in Ratanakiri

Provincial Governor as Chairperson

of PCDM

Secretary Chief of Provincial

Cabinet

One (1) Deputy

Provincial Governor as Vice Chair

Police and ArmyBranches Provincial RedCross (member)

All Line

Departments(member)

A woman and a young boy wash clothes by the Sekong River in Stung Treng.


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IOM 17

Disaster management activities of PCDM members in Ratanakiri include the

following:

The Provincial Branch of the Cambodian Red Cross supports PCDM on reliefassistance during ood and drought, implements projects on health and sanitation,

and conducts eld data collection on damages with the support of local Red Cross volunteers.

The Provincial Department of Social Affairs provides food relief and cash transfersduring drought and ood emergency response consisting of rice, tents, and dry foodrations. The amount of relief is normally decided upon after site and eld assessment visits. Previous drought assistance has been given to affected areas in Koun Mom, Andoung Meas, Bokeo, and Ta Veaeng, and ood relief assistance to Veun Sai, KounMom, and Lumphat districts.

The Provincial Department of Water Resources and Meteorology collects data on

ood and water levels, which are transmitted directly to the Ministry using a 24/7auto-record system from two water stations in Lumphat Village, Lumphat District forthe Sre Pok River, and Ka Choun Commune, Veun Sai District for the Se San River.However, the data from water stations is utilized only for the Mekong River and not topredict ood or monitor water uctuations in the two Mekong tributaries. Drought-related activities include the repair and rehabilitation of irrigation dams, with about 57small and medium irrigation systems in place to date.

Source: IOM (2009). Mapping Vulnerability to Natural Hazards in Ratanakiri: Final Report, p. 35.

Disaster management activities of PCDM Members in Mondulkiri include the

following:

The Provincial Department of Water Resources and Management is mainly responsiblefor the construction and maintenance of irrigation schemes, water management fordrought, cooperation with district and commune ofces in establishing farmer wateruser community (FWUC), and inventory of existing irrigation schemes.

The Provincial Department of Agriculture provides technical assistance to farmersthrough its 40 staff stationed throughout the province and based on requests from

the communes. No specic program is in place for insect infestation and requests forassistance on insect infestation are generally forwarded to the Ministry of Agriculture,Forestry and Fisheries (MAFF). The technical team from MAFF decides on theassistance to be given and action to be taken.

The Provincial Department of Environment works on awareness-raising andmanagement programs on environmental regulations and laws for communities livinginside the conservation areas. The Department has forest rangers working inside theconservation areas under the direct control of the Department of Environment,namely the areas of Narm Lear, Lumphat, and Phnom Prich Wildlife Sanctuaries. Theyalso oversee waste and pollution management and monitor the enforcement of laws within 21 communes located in protected areas.

Source: IOM (2009). Mapping Vulnerability to Natural Hazards in Mondulkiri: Final Report, p. 35.


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IOM18

D i s t r i c t C o m

m i t t e e f o r D i s a s t e r M a n a g e m e n t ( D C D M )

F i g u r e 6 : D i

s t r i c t C o m m i t t e e f o r D i s a s t e r M a n a g e m e n t ( D C D

M ) S t r u c t u r e

D i s t r i c t G o v e r n o r a s C h a i r p e r s o n

C h i e f s o f a l l

d i s t r i c t

s e c t o r a l o f c e s / u n i t s

H e a l t h a n d s a n i t a t i o n

s u b - g r o u p

a .

D e p u t y

d i s t r i c t

a s

c h a i r p e r s o n

b .

C h i e f o f h e a l t h o f c e

a s v i c e - c

h a i r

c .

C h i e f o f r u r a l

d e v e l o p m e n t o f c e a s

v i c e - c

h a i r

d .

C h i e f o f i n d u s t r y , m

i n e

a n d e n e r g y o f c e a s

v i c e - c

h a i r

e .

C h i e f o f w o m a n a f f a i r s

o f c e a s v i c e - c h a i r

f .

R e p r e s e n t a t i v e s f r o m

a l l r e l e v a n t o f c e s a s

m e m b e r s

I n f o r m a t i o n ,

D i s s e m i n a t i o n a n d

E d u c a t i o n S u b - G r o u p

a .

D e p u t y d i s t r i c t

g o v e r n o r a s

c h a i r p e r s o n

b .

C h i e f o f w a t e r

r e s o u r c e a n d

m e t e o r o l o g y o f c e a

s

v i c e - c

h a i r

c .

C h i e f o f i n f o r m a t i o n

o f c e a s v i c e - c

h a i r

d .

C h i e f o f e n v i r o n m e n

t

o f c e a s v i c e - c

h a i r

e .

R e p r e s e n t a t i v e s f r o m

r e l e v a n t o f c e s a s

m e m b e r s

E m e r g e n c y r e s p o n s

e a n d

r e c o v e r y s u b - g r o u p

a .

D e p u t y d i s t r i c t

g o v e r n o r a s

C h a i r p e r s o n

b .

C h i e f o f d i s t r i c

t - b r a n c h r e d

c r o s s a s v i c e - c h a i r

c .

C h i e f o f s o c i a l

a f f a i r s o f c e

a s v i c e - c

h a i r

d .

C h i e f o f a g r i c u l t u r e , f o r e s t r y

a n d s h e r i e s o f

c e a s v i c e -

c h a i r

e .

C h i e f o f p u b l i c w o r k s a n d

t r a n s p o r t o f c e

a s v i c e -

c h a i r

f .

R e p r e s e n t a t i v e s

f r o m

r e l e v a n t o f c e s

a s v i c e - c

h a i r

S e a r c h ,

R e s c u e a n d S e c u r i t y

S u b - G r o u p

a .

D e p u t y

d i s t r i c t g o v e r n o r a s

c h a i r p e r

s o n

b .

C o m m a n d e r

o f

d i s t r i c t

a r m e d f o r c e a s v i c e - c

h a i r

c .

C h i e f o

f

d i s t r i c t p o l i c e

i n s p e c t o

r a t e a s v i c e - c

h a i r

d .

C o m m a n d e r o f d i s t r i c t s u b -

m i l i t a r y

a s v i c e - c

h a i r

e .

C h i e f o

f e d u c a t i o n , y o u t h

a n d

s p o r t o f c e

a s

v i c e -

c h a i r

f .

R e p r e s e n t a t i v e s

f r o m

a l l

s e c t o r a l

o f c e s a s m e m b e r s

C h i e f o f D i s t r i c t R e d

C r o s s s u b - b r a

n c h

S e c r e t a r i a t

-

S e c r e t a r y ( c h i e f

o f a d m i n i s t r a

t i o n u n i t )

-

S o m e a s s i s t a n t s a s

n e c e s s a r y

1

D e p u t y D i s t r i c t G o v e r n o r

a s V i c e C h a i r p e r s o n


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IOM 19

Commune Committee for Disaster Management (CCDM)

Sub-Decree No. 61 of 2006 created the Commune Committee for Disaster Management(CCDM), which is composed of the following:1. Commune chief

2. 1st deputy commune chief 3. Chief of commune police4. Chief of primary school coalition5. Chief of health post6. Focal point in charge of woman and child affairs7. CRC volunteer8. Animal health agent9. Commune elders10. All village chiefs11. Commune clerk

Figure 7: Commune Committee for Disaster Management (CCDM) Structure

ChairpersonCommune chief

Vice-chairDeputy commune chief

Security, search andrescue team

Health and sanitation

team

Response andinformation team

Secretariat

commune

clerk

- Red cross

volunteer(chairman)

- Commune elder- Volunteers

- Chief of

commune police(Chairman)- Principal of schoolcoalition

- Police- Volunteers

- Chief of healthpost (chairman)- Animal health agent

- focal point incharge of woman and childaffairs

- Volunteer


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IOM20

General Duties of the CCDM:

• Implement policy related to disaster management.• To prepare guidelines and support community-based disaster risk management.• To inform DCDM about activities of other sectors, national association, UN agencies,

international organizations, and NGOs in disaster risk management.• To prepare training curriculum, educate and raise public awareness in the community about disaster risk management.• To inform DCDM about disaster situations.• To prepare a proposal on budget, equipment, and resources and intervention forces for disaster risk management activities.• To report to DCDM about disaster risk situation in the community.

Village Disaster Management Teams

There is a need for villagers to make their needs known and participate in local developmentplanning, especially when it comes to concerning community-based disaster risk reductionand management.

In anticipation of a policy † recognizing village-level organizations for disaster management,IOM, in close cooperation with the CCDM, facilitated the creation of the Village DisasterManagement Teams (VDMT) to oversee and coordinate disaster management planning andinitiatives in the communities, and to bring community-based DRR issues into the planningprocess. The formation of the VDMT is preceded by the conduct of a hazard, vulnerabilityand capacity assessment (HVCA) validation, prioritization of disaster risks, and an initial village planning. The village chief serves as its head while its members, numbering at a

† In 21 July 2010, the National Committee for Disaster Management (NCDM) issued Brokas No. 315, adeclaration providing for a set of guidelines on the creation and functions of the Village Disaster Management

Team (VDMT) in accordance with Royal Sub-Decree No. 61.

Women washing clothes and bathing in the Se San River in Veunsai District, Ratanakiri.


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IOM 21

VDMT Head Village Chief

Village Volunteer

Village Volunteer2

Village Volunteer3

Village Volunteer 4

Village Volunteer5

minimum of three (3), are to be nominated by the community and shall be inclusive of thefollowing sectors: gender, village sub-groups, community volunteer groups, village elders,youth, and elderly, to name a few.

The VDMTs lead the disaster risk assessment and disaster preparedness planning, and

must present the plan and seek approval of it from the community/villagers. The resultof the assessment is used in the commune disaster planning and shared with the DistrictCommittee for Disaster Management (DCDM) and the Provincial Committee for DisasterManagement, and NGOs. IOM’s experience had shown that the establishment of theCommune Committee for Disaster Management (CCDM) is crucial to support the pilot VDMTs through the 1) articulation of community-based DRR issues into the CIP/CDP and 2) during the identication/allocation of projects at the District Integration Workshop.

Figure 8: Working structure of the VDMT as piloted in Ratanakiri andMondulkiri

The Strategic National Action Plan for Disaster Risk Reduction 2008-

2013 (SNAP)

In 2005, the Royal Government of Cambodia joined 167 countries in adopting the Hyogo

Framework for Action (HFA), a 10-year international disaster risk reduction strategythat sets out three strategic goals and outlines ve priorities for action covering the mainareas of disaster risk reduction. In the follow-up Beijing Action for Disaster Reduction in Asia Conference that same year, it was agreed that national action plans for disaster riskreduction should be developed to comply with the principles set out in the HFA, establishaction plans for building capacities at the national and community levels, and manage theadministrative and infrastructure systems in order to deal with the impact of disasters.

In response, the NCDM and the Ministry of Planning (MoP) created an inter-institutionaltask force to lead the formulation of the Strategic National Action Plan for Disaster RiskReduction 2008-2013 (SNAP). Through the SNAP, the government aims to reduce the vulnerability of its people, especially the poor, to the effects of natural, environmental, andhuman-induced hazards.


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IOM22

Table 1: Disaster Risk Reduction Components

The SNAP also emphasizes the need to strengthen sub-national capacities to fully supportthe government’s poverty reduction priority. For a country consistently facing threats fromnatural hazards such as oods and droughts, it is important to view disaster risk reductionas a cross-cutting development issue that must be addressed at all levels of governanceas it impedes the achievement of poverty reduction goals. Cambodia’s National PovertyReduction Strategy (NPRS) and the National Adaptation Programme of Action (NAPA) toClimate Change emphasize natural disasters, especially oods, droughts, and other climate-induced hazards, as critical factors that contribute to the socio-economic vulnerabilities ofthe rural poor. These policies also take into consideration women and the disproportionateburden that are passed onto them in coping with the negative effects of disasters.

Integrating DRM in Development Planning

Cambodia’s National Strategic Development Plan (NSDP) synthesizes the goals and objectives of the government’s various strategies and plans. The NSDP incorporatesDRR concerns in the areas of social welfare, water resource management, agriculture,and rural development. Related activities such as protection of rural areas from naturalhazards, helping communities prepare for and reduce their risk from disasters, and lessenthe vulnerability of the poor to external shock are also included.

The SNAP identies government ministries as important mechanisms for mainstreamingDRR vis-à-vis their mandates and sectoral goals. Below are some specic themes thatcan be pursued per ministry as suggested in the SNAP. Ministry representatives at theprovincial level should also take note of the following in performing their duties:

Ministry of Land Management, Urban Planning and Construction (MOLMUPC)

- Use hazard-risk information in land-use planning and zoning programs.- Promote hazard-resilient designs in rural housing of hazard-prone areas.- Ensure compliance and enforcement of local building laws that require standards

prescribed in building codes in urban hazard-prone areas.- Develop and utilize national building codes that have special provisions for enhanced

design standards for buildings in areas affected by natural disasters.

1

2

3

4

5

6

Ensure that DRR is a national and local priority with a strong institutional basisfor implementation.

Strengthen sub-national and community-based disaster risk management.

Identify, assess, and monitor hazard risks and enhance early warning.

Use knowledge, innovation and education to build a culture of safety and resilience.

Mainstreaming DRR into policies and programs of relevant government ministries.

Strengthen disaster preparedness for effective responses at all levels.


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IOM 23

Ministry of Agriculture, Forestry and Fisheries (MOAFF)

- Develop effective programs of contingency crop planning to deal with climate variations.

- Develop effective programs of crop diversication including the use of hazard resistant

crops to deal with shifts in climate patterns.- Ensure sustainable livelihoods in areas of recurrent climate risks by promoting

supplementary income generation from off-farm and non-farm activities.- Promote effective insurance and credit schemes to compensate for crop damage and

losses to livelihoods due to natural hazards.

Ministry of Education, Youth and Sports (MOEYS)

- Incorporate disaster risk management and risk reduction in school curricula.- Construct elevated schools in ood-prone areas.

Ministry of Environment (MOE)

- Incorporate disaster risk reduction in designs of ecosystem and natural resourcemanagement programs.

- Mainstream disaster risk reduction in national environmental impact assessments andin the National Adaptation Program of Action (NAPA) to Climate Change.

Ministry of Health (MOH)

- Identify health facilities that are located in hazard-prone areas, analyze their vulnerability

during emergencies, and increase their standard resilience to hazards.- Develop and implement Hospital Preparedness Plan for all health facilities.

Ministry of Rural Development (MORD)

- Develop and implement policies that protect rural areas from natural calamities likeood and droughts.

- Use hazard information in the installation of safe water and sanitation facilities.- Ensure access to safe drinking water and sanitation facilities during oods and

droughts.

- Incorporate disaster risk assessment as part of the planning process before theconstruction of roads.

Ministry of Planning (MOP)

- Ensure that proper orientation and procedures regarding DRR plans are integrated intothe procedures/steps of the Commune Investment Plan (CIP).

- Incorporate DRR into the CIP refresher courses/CIP Orientation Courses forProvincial Facilitator Team (PFTs) and District Facilitator Team (DFTs).

- Consolidate respective DRR plans and advise the PCDM on the appropriate measures

for the provincial plans for DRR.


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IOM24

The SNAP also emphasizes the importanceof community-based disaster risk management(CBDRM), a process of disaster risk managementthat actively engages at-risk communities in theidentication, analysis, treatment, monitoringand evaluation of disaster risks in order toreduce their vulnerabilities and enhance theircapacities. The CBDRM process acknowledgesthe importance of community involvementand stakeholder participation in the planningand implementation process, as no one trulyunderstands and feels the concerns of the community in the way that that its residents do. This approach not only gives them ownership of the community’s concerns but also

increases the success and sustainability of the undertaking.

The CBDRM Approach

The importance of community involvement and stakeholder participation comes into playin the identication of development projects and budget allocation for these in the CIP. AsCBDRM aims to reduce disaster risk by addressing the root causes of vulnerability suchas poverty, environmental degradation, and poor governance, community membersand stakeholders can help identify suitable development projects that not only address saidproblems but also lead to the reduction of the vulnerability of the community.

A deputy village chief presenting theircommunity hazard map in Ratanakiri.

Source: UNDP (2006). Integrating Disaster Risk

Management in Local Governance: Facilitators’ Guide

and Sourcebook Barangay Disaster Management TrainingWorkshop the Philippine Experience, p. 94.

A village member lls in their hazard and seasonalcalendar in Stung Treng Province.


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IOM 25

Figure 9: Steps in the CBDRM Process

Monitoring andevaluation

Community-managedimplementation

Strengthening of CBDRMorganization

Initial community disasterrisk management plan

Community riskassessment

Community riskproling

Initiating the

process

Source: UNDP (2006). Integrating Disaster Risk Management in Local Governance: Facilitators’ Guide and Sourcebook BarangayDisaster Management Training Workshop the Philippine Experience, p. 95.

1. Initiating the process: Selecting the community based on priorities or based on requestsfrom communities hit by hazards. This is the stage of building rapport with the people inthe community.

2. Community proling: Initial understanding of the community situation and an

orientation on CBDRM.3. Community risk assessment: Hazards, vulnerabilities and capacities assessment andconsideration of people’s different perception of risks.4. Initial community disaster management plan: Appropriate and do-able measuresbefore, during and after the disaster; focus on prevention, mitigation and preparednessmeasures.5. Formation and strengthening of community disaster management organization:

Ensures implementation of Community Disaster Management Plan.6. Community managed implementation: Implementation of risk reduction structural

and non-structural measures to address vulnerability and increase capacity based on thePlan.7. Monitoring and evaluation: Continuous monitoring of the situation and activities andimprovement of CBDRM and the community.


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IOM26

As in the local development process,

planning is an important aspectof CBDRM, which would guideboth village and local authorities(commune, district, and provinciallevels) in identifying priorities,actions, and vulnerable populationsfor DRR, as well as other developmentproblems.

Key Steps in Creating a Disaster Management Plan1. Conduct hazard assessment.2. Identify goals and objectives.3. Identify risk reduction measures including before, during and after a disaster.4. Identify resources needed.5. Identify the person responsible for each activity.6. Set a timeframe.7. Observe operation policy and legislative procedure.8. Identify key components and challenges when implementing the plan.

9. Consult with stakeholders and supporters in the community.10. Implementation, review and revision of the plan.

Elements-at-risk People (their lives and health) Household and community structures (houses, community centers, schools) Community facilities and services (access roads, bridges, hospital, electricity, water

supply, etc.) Livelihood and economic activities (jobs, crops, livestock, equipment, etc.)

Environment (natural resource base)

Source: UNDP (2006). Integrating Disaster Risk Management in Local Governance: Facilitators’ Guide and SourcebookBarangay Disaster Management Training Workshop the Philippine Experience, p. 91.

Presentation of vulnerability and capacity to natural hazardsin Pu Char Village, Mondulkiri Province.


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IOM 27

T a b l e 2 : S a m p l e o f a d i s a s t e r r i s k r e d u c t i o n p l a n f r o m P u T

r u V i l l a g e i n M o n d u l k i r i

H a z a r d s

/

o b j e c t i v e

D e

t a i l e d a c t i o n

R e s o u r c e s

R e s p

o n s i b l e

A g e n

c i e s

I m p l e m e n t -

a t i o n

P r i o r i t y

R a n k i n g

D r o u g h t

:

T o i n c r e a

s e

c a p a c i t y t o

c o p e w i t h

d r o u g h t

a n d i t s

e f f e c t s .

P r e p a r e d n e s s

R e s p o n s e

R e c o v e r y

- P r e p a r e

a n d c o l l e c t

f o o d

s u p p l i e s .

- C o o r d i n a t e

w i t h l o c a l

a u t h o r i t i e s

a n d N G O s .

- P r e p a r e

m e d i c i n e s .

- R e n o v a t e

w e l l s a n d

d i g n e w

o n e s i n

t h e v i l l a g e .

- F i x t h e o l d

d a m i

n

P u t r u

K r o u m .

- R e p o r t t o

l o c a l

a u t h o r i t i e s

a n d

N G O s .

- R e p o r t

s e r i o u s

d i s e a s e s

t o h e a l t h

p o s t .

- F i x a n d

m a i n t a i n

w e l l s f o r

c o n t i n u o u s

w a t e r

s u p p l y .

- R e p o r t

i m p a c t s

o f t h e

d r o u g h t .

- B u i l d

w e l l s o n

h i g h e r

g r o u n d s .

F i n a n c i a l

a n d

t e c h n i c a l

c o n t r i -

b u t i o n

f r o m

N G O s ,

c o m m u n i t y

m e m b e r s ,

a n d

c o m m u n e

c o u n c i l .

C a m b

o d i a n

R e d C

r o s s

( C R C

) a n d

o t h e r

r e l e v a n t

N G O

s ,

s u c h

a s

H e a l t h

U n l i m

i t e d

a n d t h e

P r o v i n c i a l

D e p a

r t m e n t

o f H e a l t h .

S t a r t f r o m

O c t o b e r ,

N o v e m b e r

o r

D e c e m b e r .

2


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IOM28

The Bottom-Up Approach in Development Planning: Mainstreaming DRR

The government’s decentralized thrust encourages the active participation of local ofcialsin development planning. In 2007, the Ministry of Planning and Ministry of Interior cameup with an inter-ministerial Prakas (Number 2423 PRK, dated July 3, 2007) that specically

provides for the inclusion of village representatives in the Commune/Sangkat (C/S)Development Plan (CDP) and C/S Investment Program (CIP).

A. Commune/Sangkat Development Planning (CDP)

The CDP documents the socio-economic situation of the commune/sangkat and detailsa development framework based on identied needs, goals, and strategies within ve (5)years. It also presents opportunities for commune ofcials, NGOs, and village members toraise issues on DRR and integrate them in the CDP.

The following are steps in integrating DRR plans into the CDP:

1. Identify main hazards that are threats to the community2. Assess disaster risk (HVCA)3. Analyze risk and prioritize risk 4. Identify measures and solutions to reduce risk 5. Create implementation plan by including the following points:

a. Purpose and real activity b. Time and person responsible for the implementation6. Draft development plan based on risk reduction plan7. Arrange discussion meetings with relevant institutions and organizations to review on

priority action plan that should be integrated8. Make necessary revisions, conclude, and approve9. Implementation10. Evaluation

Figure 10: Commune/Sangkat Development Planning Cycle

Source: Ministry of Interior and Ministry of Planning (2007). Guideline on C/S Development Plan and C/S InvestmentProgram, p. 7.


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IOM 29

The rst step in the CDP process is a consultative meeting that aims to solicit feedback andrecommendations on the needs, goals, strategies, priority activities, and estimated possibleresources for the next ve years. Its participants at the village level include members of thePlanning and Budgeting Committee (PBC) and citizens. A meeting at the C/S level is held

where members of the PBC meet to analyze village data, C/S data, C/S proles, and otherinformation, and use other analytical tools to identify problems, its location, causes, needs,constraints, and solutions.

Table 3: An Example of Problem, Cause and Solution Matrix in the CDP (Table 1.1

in the CDP/CIP)

A meeting in each village is then held during which representatives from each village andmembers of the PBC list the problems, its location, causes, needs, constraints, and solutionsconcerning their village from Table 3 (Table 1.1 in the CDP/CIP) in preparation for ameeting with residents in each village. There should be at least a 60 percent representation

from the total number of families, 30 percent of which should be women. Members ofthe PBC should be able to present the problems, its location, causes, needs, constraints,and solutions concerning their village for validation, after which participants are to bedivided into two groups of men and women (or vulnerable group and youth group) todiscuss and identify additional problems, needs, constraints, and solutions.

Here, the hazard risk assessment tools can be used in the identication of key vulnerabilitiesand capacities to natural hazards. Members of village disaster management team can assistthe commune and the District Facilitator Team (DFT) during the process.

Problem Location

of

Problem

Cause of

Problem

Needs Constraint Solution Comments

of

IndigenousPeople

1 2 3 4 5 6 7

Food

insecurity

Ratanakiri Foodstock andcrops

destroyed

during

ood

Preparednessplanning skillsfor ood

Limitedhousehold

resources

for food

stock-piling

- Village ricebank - Commune/NGO supportfor emergency

response/plan

Participatory/consultativeapproach

Source : IOM (2010). VDMT Orientation on DRR-CIP Handout , Ratanakiri Province.


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IOM30

Useful Tools in Community-Based Disaster Risk Assessment

Table 4: Sample of hazard assessment from Tiem Leu Village in Ratanakiri

Table 5: Sample of ood and drought vulnerability and capacity assessment (VCA)

from Phak Nam Village in Ratanakiri

Hazard Vulnerability Capacity

Physical/

Material

Social/

Organizational

Attitudinal/

Behavioral

Physical/

Material

Social/

Organizational

Motivational/

Behavioral

Flood Lack ofavailable

boats forevacuation.

Timeliness of

and village

access toinformation

during andafter ood in1996 and 1997.

People are

fearful of

the effectsof ood on

their lives andlivelihoods.

People

prepare to

evacuate oncethey receive

informationabout ood/or release of water

from the dam.

The commune

chief reported the

incident to theDepartment of

Social Affairs toidentify affectedfamilies.

Community

solidarity

Drought Nopermanent

irrigation,

no pumpingmachine in

the village,

and riceelds are

rain-fed.

No assistancereceived from

the government

and no responsefrom the District

despite incident

reported fromthe commune.

Peopleexpressed the

urgency to have irrigation/source

of water for

their rice elds.

Livelihoodactivities of men

and women in

the village such

as planting crops,

clearing forests,

and selling goods.

Assistance inshpond farming

and seeds for

mango from alocal NGO.

Willingness totry new

agricultural

techniques

Hazard Duration When Frequency Warning

signals

Speed of

onset

Hazard

factors

Flood 3-10 days Septemberto October

Every year(rice elds

near thestream)

- White foamsin the river

- River water

becomes red- Floating woodor trees oatin the river

1 day after - Yali dam- Loss of

forest- Stream

and riveroverow

Drought - 20 days- 1 month

- June to August

- October

Every year - Tail of trokutis white

- Rey (insect)sings for 2-3

days

- They see the

trokut from theforest in April

to May

- Drought startsin 2 to 3 days

after rey sings

- No rain- Soil cracks- Loss of soil

moisture- Hot

temperature


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The second step in the CDP process also presents another opportunity for local stakeholdersto participate. In here, the draft C/S Development Framework and Budget are presentedto citizens and relevant stakeholders where comments are recorded to aid in the draftingof the C/S Development Plan (CDP). Participants in this stage include all citizens who

can attend, with the C/S chief making sure that all representatives of each group fromall villages in the C/S (women, children, vulnerable groups, and indigenous groups) arerepresented.

DRR action plans can be integrated in the local development planning, beginning in therst step of the CDP process. The involvement of commune councils and village chiefs

during the CDP process gives them opportunities to play important roles within. Theyare not only members of PBC; commune councils and village chiefs are also membersof the CCDM and VDMT, enabling them to raise DRR concerns in the commune and village meetings for any considerations. As the PBC engages in all ve steps in the CDPprocess, this means that DRR can be discussed and tackled through their roles as CCDMand VDMT members.

Table 6: Sample of Vulnerability and Capacity Assessment from Chi Meat Village,

Nang Khi Loek Commune, Koh Nhiek District in Mondulkiri (2010)

Hazard Vulnerability Capacity

Material/

Physical

Org./

Social

Perceptional/

Motivational

Material/

Physical

Org./

Social

Perceptional/

Motivational

Flash

Flood

Destroyed

village road

and paddyelds.

There is

no localcommitteeset up indealing with ashoods and warning

system.

Villagers feel

there is noexternal supportfor themregarding ood.

Homegardens which

are mostlyplantedduring dry

season topreventooding

and supportlivelihood.

Local

authorities

come and

inform

villagers upon

receiving news

from radio or

TV.

Villagers often

help each other,

in particular those

families who live

close together.

Drought Waterquality fromdrilled wells is notgood fordrinking

and

cooking.

Increased

incidenceofdiseasessuch ascoughing,fever,

malaria,

and blister.

Villagers have

traditional beliefthat there mustbe something wrong in the village that is why theirancestors provide

no rain for them.

The village

is locatedalong Sre Pok

River and has a few pumping

machines toirrigate theirpaddies with

when faced with drought.

TheDepartment

of WaterResourceManagementprovidedpumpingmachines.

Families helpeach other ratherthan depend onlocal authorities.


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IOM32

B. The C/S Investment Program (CIP)

The Commune/Sangkat Investment Program, or CIP, is an annual plan for theimplementation of the CDP composed of clear development projects and budget. Likethe CDP process, the crafting of the CIP also provides opportunities for local stakeholders

to raise and integrate DRR concerns. Members of the CCDM and VDMT can engage inall ve (5) steps in the CIP process in their capacity as PBC members so that DRR prioritycan be raised and discussed.

Participants in the review of problem or needs include PBC members and villagers, along with C/S assistants and focal persons, C/S clerk, DFT, District planner, and representativesof line ofce/department, NGOs and concerned agencies. At the village level are PBCmembers and citizens. Stakeholders also include the private sector.

This initial step is similar to step 1 of the CDP cycle as it also has meetings at the C/S level, village level, then back to the C/S level.

Hazard map of Kanat Touch Village in Ratanakiri.


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Members of the PBC take part in the preparation and approval of the CIP as well. Thisstep requires PBC members to reect on the results of step 1 with projects in the followingyears of CDP to identify annual investment projects. After identifying the investmentprojects, the PBC will continue to discuss and determine the type of project, location of

project, estimated costs, output sizes, and numbers of beneciaries.

Figure 11: C/S Investment Program Cycle

Source: Ministry of Interior and Ministry of Planning (2007). Guideline on C/S Development Plan and C/SInvestment Program, p. 23.

The resulting projects in the investment plans could be taken from the earlier results ofthe community-based risk assessment and village DRR planning. Examples of investmentprojects are livelihood support for ood and drought, disaster preparedness, capacity-building for CCDM and vulnerable groups (women, children and elderly), communityforestry for ood, and introduction and demonstration of drought-resistant crops.

The Way Forward

Although the NCDM is constrained by limited capacity and funding and the DRM Lawhas yet to be passed, there are still ways for villagers and sub-national ofcials to raise theirdisaster risk management concerns with concerned government agencies and ofcials andhave these integrated in local development plans.

The inter-ministerial Prakas (Number 2423 PRK, dated July 3, 2007) clearly presents

opportunities for commune ofcials, NGOs, and village members to raise issues andintegrate DRM in the CDP and CIP. A good starting point in doing this is the CBDRMapproach.

8/20/2019 Primer on Disaster Risk Management in Nor

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Primer on Disaster Risk Management in North-East Cambodia