Disaster mitigation and preparedness: the case of NGOs in the Philippines

The Philippines is very vulnerable to natural disasters because of its natural setting, as well as its socio-economic, political and environmental context--especially its widespread poverty. The Philippines has a well-established institutional and legal framework for disaster management, including built-in mechanisms for participation of the people and NGOs in decision-making and programme implementation. The nature and extent of collaboration with government in disaster preparedness and mitigation issues varies greatly according to their roots, either in past confrontation and political struggles or traditional charity activities. The growing NGO involvement in disaster management has been influenced by this history. Some agencies work well with local government and there is an increasing trend for collaborative work in disaster mitigation and preparedness. Some NGOs, however, retain critical positions. These organisations tend to engage more in advocacy and legal support for communities facing increased risk because of development projects and environmental destruction. Entry points into disaster mitigation and preparedness vary as well. Development-oriented agencies are drawn into these issues when the community members with whom they work face disaster. Relief organisations, too, realise the need for community mobilisation, and are thus drawn towards development roles.     

Civil society and the state: Turkey after the earthquake

On 17 August 1999 Turkey was hit by a massive earthquake. Over 17,000 lives were lost and there was extensive damage to Turkey's heartland. This paper examines how various public and private institutions, including state and civil society institutions such as NGOs and the media responded to the needs of earthquake survivors. It documents the extensive involvement of NGOs in the relief efforts immediately after the disaster and examines the impact of such participation on state-civil society relations in the country. The data show that state response to the disaster went through several phases from a period of ineptitude to effective management. The paper credits the media and the NGOs for acting as advocates for survivors and forcing changes at the state level. The paper argues that an ideal response system, which fully addresses the needs of victims, can only be based on state-civil society relations that are both collaborative and adversarial.     

非政府组织(NGO)灾后援助联动的综合集成模式

在全球化趋势日益加强和公民社会的作用不断增大的大背景下,国际性的NG0救灾同样是全球化的重要表现.如何应对这一情况,是中国政府和中国民间组织必须面对的问题.尽管NGO在世界上很多灾难性事件中都发挥了重要的作用,但仍然存在许多问题.NGO要解决灾后援助过程中产生的问题,必须改变传统的管理方式与合作模式,加强NGO之间的沟...     

Conflicts and natural disaster management: a comparative study of flood control in the Republic of Korea and the United States

The purpose of this research is to analyse the conflicts that arise among major stakeholders during the process of disaster management and to suggest policy recommendations for improving disaster management systems. It describes several important conflict cases that have occurred among major stakeholders, such as governments, private‐sector entities, and non‐governmental organisations, during natural disaster management. In addition, it probes the similarities and the differences between such conflicts in the Republic of Korea and the United States. The differences between them may originate from a range of factors, such as the disaster itself, cultural features, management practices, and government organisation. However, the conflicts also are very similar in some ways, as the motivations and the behaviour of stakeholders during a disaster are alike in both countries. Based on this comparison, the study presents some common and important implications for successful disaster management practices in Korea and the US, as well as in many other nations around the world.     

Of timelines and timeliness: lessons from Typhoon Haiyan in early disaster response

Typhoon Haiyan struck the Philippines on 8 November 2013 with maximum sustained winds of 235 kilometres per hour, adversely affecting at least 11 million people and displacing some 673,000 in the central regions of the country. The disaster clearly overwhelmed the Philippine government despite its seemingly well‐crafted disaster management plan. Using timelines of different organisations, this paper identifies gaps in the government's response, mainly due to its failure in coordinating and managing relief operations, which adversely affected its effectiveness and efficiency in the delivery of critical goods and services following the disaster. The paper also demonstrates how non‐governmental organisations (NGOs), the United Nations, foreign governments and other organisations provided assistance, mainly through aid niching, to cover the government's shortcomings. The paper recommends a paradigm shift in the government's disaster response by integrating collaborative arrangements between government agencies and NGOs, and giving local governments the lead role, with the national government as support, in disaster planning and response.     

Disaster mitigation and preparedness on the Nicaraguan post-Mitch agenda

Nicaragua provides an example of how a major disaster, in this case Hurricane Mitch, can transform the national agenda for disaster mitigation and preparedness. Hurricane Mitch was a reminder of how extremely disaster prone Nicaragua is, and also how neoliberal reforms have weakened governmental response capacity. In the face of critiques of how governmental policies had affected preparedness and response, discussions of this transformation became a highly politicised process where the debate over alternative development models tended to overshadow the original calls to strengthen risk management. Progress can be seen in some areas, such as disaster mitigation through environmental management. This study of NGO roles, and their relations with other key actors, draws attention to the need to anchor improved risk management in local-level NGO-government collaboration. Structures are being put into place to achieve this aim, but dependence on donor financing raises questions regarding the longer-term sustainability of these efforts.     

NGO collaboration in community post‐disaster reconstruction: field research following the 2008 Wenchuan earthquake in China

The number of communities affected by disasters has been rising. As a result, non‐governmental organisations (NGOs) that attend community post‐disaster reconstruction are often unable to deliver all requirements and have to develop cooperative approaches. However, this collaboration can cause problems because of the complex environments, the fight for limited resources and uncoordinated management, all of which result in poor service delivery to the communities, adding to their woes. From extensive field research and case studies conducted in the post‐Wenchuan earthquake‐stricken communities, this paper introduces an integrated collaboration framework for community post‐disaster reconstruction with the focus on three types of NGOs: international, government organised and civil. The proposed collaboration framework examines the three interrelated components of organisational structure, operational processes and reconstruction goals/implementation areas. Of great significance in better promoting collaborative participation between NGOs are the crucial concepts of participatory reconstruction, double‐layer collaborative networks, and circular review and revision.     

The politics of risk in the Philippines: comparing state and NGO perceptions of disaster management

It is now generally appreciated that what constitutes vulnerability to one person is not necessarily perceived as such by the next. Different actors 'see' disasters as different types of events and as a result they prepare for, manage and record them in very different ways. This paper explores what different perceptions of vulnerability mean in terms of the understanding and practices of two significant sets of actors and stakeholders involved in disaster preparedness and management in the Philippines: the state and NGOs. Approaches to disaster are not just a function of people's perceptions of disaster risk but also of their understanding of the prevailing social order and social relations. Despite a shared vocabulary—which increasingly presents disasters as processes rather than events, takes a proactive rather than a reactive approach, and favours the inclusion of stakeholders rather than solely relying on technocratic management—different realities continue to make for different responses.     

Re-framing risk: the changing context of disaster mitigation and preparedness

This issue of Disasters explores the roles of NGOs and other actors in disaster mitigation and preparedness and also reviews broad international trends in risk management and disaster prevention. The need to address risk, and with that the motivation to improve disaster mitigation and preparedness, has tended to fall between the cracks of grander frameworks of development co-operation and humanitarian assistance. Despite the seemingly glaring need to reduce the horrific impact of floods, droughts and wars, disaster mitigation and preparedness have neither the allure of directly 'saving lives', nor of providing an 'escape from poverty'. There are, however, signs that risk management is becoming a mainstream concern. Factors such as the need to address factors that do not fit into traditional slots on the relief-development continuum, the rising economic costs of disasters and a growing acknowledgement that aid will never cover more than a small fraction of the costs of disasters are all leading to new approaches, priorities and institutional configurations. A realisation that dealing with risk and insecurity is a central part of how poor people develop their livelihood strategies has begun to position disaster mitigation and preparedness within many poverty alleviation agendas. A number of long-standing challenges remain; most of all, the complexities of maintaining the political will that is needed to ensure that risk management becomes more than a passing fad.     

Inclusion of people with disabilities,their needs and participation,into disaster management: a comparative perspective

In the field of disaster management, not many have considered the role and needs of people with disabilities despite their number and condition. The purpose of this paper is to push for specific inclusion of people with disabilities, their needs and participation, into disaster management by studying relevant cases from Indonesia, Korea, and the USA. Qualitative content analysis was used as a major methodology by comparing three factors identified in these nations: government policies, schools and advocacy groups’ efforts, and families and local communities’ awareness. Three models, one from each country, were considered major takeaways from this study: the Indonesian moral inclusion, the Korean medical treatment without exclusion, and the US’ extending social inclusion. In addressing the needs and participation of people with disabilities in disaster management, the following recommendations are put forward: for Indonesia, a move away from olden beliefs and misconceptions on disability (e.g. as a punishment) is imperative. In Korea, relevant fundamental laws (e.g. the Basic Act on Emergency and Safety Management) need to be revised while also studying advanced laws on the subject. For the USA, though the country is already advanced, overall improvement is still needed in terms of association with international non-governmental organizations, increase in the number of (emergency or disaster) response officials, and provision of better medical treatment.     

Insiders and outsiders: local government and NGO engagement in disaster response in Guimaras,Philippines

This paper examines local government and non‐governmental organisation (NGO) engagement in disaster response in the wake of the M/T Solar 1 oil spill in Guimaras, Western Visayas, Philippines, on 11 August 2006. It assesses the response activities of these two entities as well as the institutional factors that affected their interaction on the ground. Local government and NGO engagement was shaped by multi‐layered, overlapping, and oftentimes contending government‐designed response frameworks. Within these frameworks, government actors played the role of primary implementer and provider of relief, allowing them to determine who could be involved and the extent of their involvement. The absence of formal roles for NGOs in these frameworks not only undermines their ability to work in a setting where such institutional set‐ups are operational but also it reaffirms their ‘outsider’ status. This study of the Guimaras oil spill illustrates the complexity and the institutional difficulties inherent in disaster response and coordination in the Philippines.     

Making a technological choice for disaster management and poverty alleviation in India

The right mix of policy, institutional arrangements and use of technology provides the framework for a country's approach to disaster mitigation. Worldwide, there has been a shift away from a strictly 'top-down' approach relying on government alone, to a combination of 'top-down' and 'bottom-up' approaches. The aim is to enhance the indigenous coping mechanisms of vulnerable communities; draw on their cooperative spirit and energy; and empower them through appropriate information and contextual knowledge to mitigate natural disasters. In light of this, the paper examines India's use of space technology in its disaster management efforts. Poverty alleviation and disaster management are almost inseparable in many parts of the country, as vulnerability to natural disasters is closely aligned with poverty. Addressing these issues together requires integrated knowledge systems. The paper examines how knowledge inputs from space technology have strengthened the national resolve to combat natural disasters in conjunction with alleviating rural poverty.     

An assessment of Disaster Risk and its Management in Thailand

Historically, Thailand has been a disaster-free country, suffering only minor losses from natural hazards through the years. Emerging as a newly industrialised nation, the kingdom now faces an increased risk of economic and public damage from man-made disasters associated with rapid development. A risk assessment was carried out on the level of disaster management. That assessment was preceded by an analysis of the traditional definitions of disaster risk, resulting in a redefinition to fit the needs of this study. This holds that the risk of disaster is the product of hazards, vulnerability and the level of management exercised over both the hazard and the vulnerable elements.
The results of the risk assessment, conducted through analysis of those three components, are discussed along with impediments which may hinder good disaster or accident management. Floods, in both natural and man-made manifestations, were identified as the highest risk factor, followed by major accidents and explosions, both man-made hazards. Major recommendations arising from the study included the consolidation of disaster management responsibilities currently held by several agencies into a central co-ordinating committee, the review and restructure of related law and regulations, the conduct of provincial and country-wide hazard assessments and the creation of a 'culture of safety' in Thailand     

Post-disaster community tourism recovery: the tsunami and Arugam Bay, Sri Lanka

Tourism is highly vulnerable to external, non-controllable events. A natural disaster can affect the local tourism industry in numerous ways, and such events are particularly devastating for small communities whose local economy is heavily dependent on the sector. Loss of infrastructure plus negative media stories can have long-term ramifications for the destination. In spite of the economic importance of tourism, post-disaster recovery efforts in this sector are often overlooked by non-governmental organisations (NGOs), which focus on more traditional livelihoods such as agriculture or fishing. This paper describes Mercy Corps' support of tourism recovery activities in Arugam Bay, a remote village on the east coast of Sri Lanka, following the 2004 tsunami. The local economic base is built largely on two sectors: community tourism and fishing. As many other actors were supporting recovery in the local fishing industry, Mercy Corps concentrated on revitalising the tourism sector.     

The Northridge Earthquake: Community-based Approaches to Unmet Recovery Needs

The 1994 Northridge, California earthquake has proven to be one of the most costly disasters in United States history. Federal and state assistance programmes received some 681,000 applications from victims for various forms of relief. In spite of the flow of US$11 billion in federal assistance into Los Angeles and Ventura counties, many victims have failed to obtain adequate relief. These unmet needs relate to the vulnerability of particular class and ethnic groups. In response to unmet needs, a number of non-governmental organisations (NGOs) have become involved in the recovery process. This paper, based on evidence collected from hundreds of in-depth interviews with the people involved, examines the activities of several community-based organisations (CBOs) and other NGOs as they have attempted to assist vulnerable people with unmet post-disaster needs. We discuss two small ethnically diverse communities in Ventura County, on the periphery of the Los Angeles metropolitan region. The earthquake and resultant disaster declaration provided an opportunity for local government and NGOs to acquire federal resources not normally available for economic development. At the same time the earthquake created political openings in which longer-term issues of community development could be addressed by various local stakeholders. A key issue in recovery has been the availability of affordable housing for those on low incomes, particularly Latinos, the elderly and farm workers. We discuss the successes and limitations of CBOs and NGOs as mechanisms for dealing with vulnerable populations, unmet needs and recovery issues in the two communities.     

减灾事业的发展和综合减灾

中国减灾事业的发展史可分3个阶段:第一阶段是新中国成立以前的几千年,减灾活动以赈灾为主,帝王“祭天求恕”,“防灾吏制”,安抚于民。清末民初1800至1949年间计发生巨灾25起,死亡4993万余人,总灾亡则近亿,年均灾亡60万人以上,这段惨痛的灾况记下了十分难得的灾情史,泣血于残野。新中国成立后,在“为人民服务”的思想指导下,为减轻灾害损失,逐步建立了气象、水利、农林、地震、海洋、地质等专业的灾害科技与减灾工程,政府并组织社会兼事抗灾、救灾、应急减灾,国家减灾实力快速增长,已取得突出减灾实效,这个阶段比第一阶段灾亡人数下降了90%以上,但年均灾亡人口仍有1.2万人左右。该阶段的工作特点是以单灾种纵向体系为主,不同灾类的监测、预报水平尚高低不一,这与成灾机理的难易程度和工作条件的强弱有关。21世纪初,随全球增温之势锐升,多类极端灾变遍及各洲,促使许多国家发动全社会人众共同探求“综合减灾”之路;我国政府已迅即开展全社会应急减灾行动,开启了“综合减灾”之先声,这是减灾事业步入第三阶段的先导。综合减灾应该是全社会相关部门和民众的统一行动。目前尚有3个问题需要弄清楚,一是多种自然灾害之间成灾机理相关性的研究,其对象是灾害群与灾害链;二是全社会减灾要素综合运作预案的优选;三是如何核算减灾投入与社会可持续发展之正、负效应关系。     

Shared responsibility: the who,what and how

As natural disasters increase around the world and stretch the capacities of emergency services, national governments and international institutions have stressed the importance of shared responsibility; the idea that all actors within a society have some obligations in disaster management and must work collectively to reduce disaster risk. However, the exact balance between individual and government responsibility is not yet established and continually contested, especially after major events. In Australia, the National Strategy for Disaster Resilience (NSDR) is the overarching policy framework for disaster risk management and aims to create resilient communities through an emphasis on shared responsibility and empowerment. Through a literature review and document analysis of the NSDR and associated policy documents, we clarify, organise and operationalise the necessarily general policy goal of shared responsibility. We first analyse how the NSDR conceptualises communities to discover which community actors are mentioned. We then identify the responsibilities it prescribes or implies for these different actors and consider the types of policy instruments that are relevant to disaster risk management. Our analysis reveals a tension between the NSDR’s placement of government at the centre of disaster risk management, and its other, less well-explained emphasis on community empowerment.     

重大疫情衍生社会恐慌链式灾害应急策略研究——基于COVID-19疫情的SD分析

重大疫情传染的负外部性在严重损害公众健康的同时衍生社会恐慌,这是保障人民生命安全和社会稳定的国家治理现代化背景下,一个新风险源和应急管理难题.基于灾害链视角,运用系统动力学(SD)方法对经典的传染病SIR模型进行升级与转化,构建一个同时包含疫情动态传播及其衍生社会恐慌的链式灾害应急系统模型,以COVID-19疫情为例进...     

NGO initiatives in risk reduction: an overview

NGOs appear to be well placed to play a significant role in natural disaster mitigation and preparedness (DMP), working, as they do, with poorer and marginalised groups in society. However, there is little information on the scale or nature of NGO DMP activities. This paper reports the findings of a study seeking to address that gap. It confirms that NGOs are involved in a diverse range of DMP activities but that a number of them are not labelled as such. Moreover, evidence of the demonstrable quality and benefits of DMP involvement is poor. The paper concludes that a number of problems need to be overcome before DMP can be satisfactorily mainstreamed into NGO development and post-disaster rehabilitation programmes. However, there are some early indications of momentum for change.     

防灾减灾的基础研究及应用研究进展概况

人类社会是在对自然灾害的不断斗争中得到发展。近代由于全球人口的迅速增长和城市化程度的提高，自然灾害的损失也在急剧增加。防灾减灾是减轻灾害损失、保障社会可持续发展的系统工程。当前灾害监测技术、灾害的形成和发展规律、灾情评估方法、灾害管理及灾害对社会经济的影响等方面的基础研究及应用研究已有了不小的进展。本文概括地介绍了这些进展，并指出了防灾减灾工作中存在的一些问题及对策