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.     

'Scaling-up' in emergencies: British NGOs after Hurricane Mitch

This article examines research on NGO 'scaling-up' in a disaster context and links it to a broader discussion on whether scaling-up is a useful concept for understanding NGO processes in an emergency. Using concepts of scaling-up from development literature, research findings from a study of the responses of British NGOs to Hurricane Mitch in Central America are presented. The article assesses the extent and type of scaling-up that occurred, constraints faced by the agencies and the impact of scaling-up on support to partners. Broader issues relating to scaling-up post-Mitch are also explored. The conclusion suggests that while the concept of scaling-up is useful, the tendency for its use to refer to organisational growth has limited a wider understanding and evaluation of the role of Northern NGOs in humanitarian crises.     

‘Faith can come in,but not religion’: secularity and its effects on the disaster response to Typhoon Haiyan

While other works have analysed what constitutes a faith‐based approach, this study examines what values and practices are employed in a secular approach to disaster response in communities where religion matters. Evidence of a secular approach is assessed in the context of the disaster response to Typhoon Haiyan (2013) in the Philippines, a country in which more than 90 per cent of the population identify themselves as religious. Using interviews with staff members of non‐governmental organisations (NGOs) and focus groups composed of beneficiaries, this paper provides an overview of how respondents commonly characterise a secular approach to disaster response. Results indicate differing NGO and beneficiary opinions on interaction over efficiency and the impartiality and neutrality of organisations. Secularity had a distinct effect on the disaster response to Haiyan, mostly by creating boundaries vis‐à‐vis when and where religion was permitted in the secularised humanitarian system. An awareness of these effects is encouraged to improve interaction with affected populations and local organisations.     

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.     

Mass casualty incident after the Taba terrorist attack: an organisational and medical challenge

Two suicide bombings in and around Taba, Egypt, on 7 October 2004 created a complex medical and organisational situation. Since most victims were Israeli tourists, the National Emergency and Disaster Management Division handled their evacuation and treatment. This paper describes the event chronologically, as well as the organisational and management challenges confronted and applied solutions. Forty-nine emergency personnel and physicians were flown early to the disaster area to reinforce scarce local medical resources. Two hundred casualties were recorded: 32 dead and 168 injured. Eilat hospital was transformed into a triage facility. Thirty-two seriously injured patients were flown to two remote trauma centres in central Israel. Management of mass casualty incidents is difficult when local resources are inadequate. An effective response should include: rapid transportation of experienced trauma teams to the disaster zone; conversion of local medical amenities into a triage centre; and rapid evacuation of the seriously injured to higher level medical facilities.     

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...     

The Indian Ocean tsunami and private donations to NGOs

Non‐governmental organisations (NGOs) are widely believed to raise their flag in humanitarian hotspots with a strong media presence in order to attract higher private donations. We assess this hypothesis by comparing the changes in donations between US‐based NGOs with and without aid operations in the four countries most affected by the tsunami in the Indian Ocean in 2004. Simple before‐after comparisons tend to support the hypothesis that ‘flying the flag’ helps attract higher private donations. However, performing a difference‐in‐difference‐in‐differences (DDD) approach, we find only weak indications that private donors systematically and strongly preferred NGOs with operations in the region. Extended specifications of the baseline regressions reveal that our major findings are robust. NGO heterogeneity matters in some respects, but the DDD results hold when accounting for proxies of the NGOs’ reputation and experience.     

Reflections: Resolving conflicting demands within disaster risk and recovery

This ‘reflection’ describes conflicting experiences, drawn from the author’s career in varied aspects of disaster risk management and recovery (1973–2016) delving into his memory, Ian Davis explores conflicts he has felt in four parallel roles he has adopted as architect, NGO board member, academic and the personal challenges he has faced working within the humanitarian sector. After describing these encounters, some practical solutions are suggested. The reflection concludes with a suggestion that at the root of these conflicts there is a need for people working in the humanitarian field to become more accountable in a downward direction towards those they seek to serve, who often lack power and influence. These include an architect’s clients, the beneficiaries of an NGO’s concern, an academic’s students or trainees and more broadly an ethical challenge that the author strives after, to regard his work as a vocation, highlighting the need for service to others rather than self-promotion.     

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.     

The Response of the South Manchester Accident Rescue Team (SMART) to the Armenian Earthquake and Lockerbie Air Disaster: A Report to the Prime Minister's Office

The delay in receiving authorisation for the despatch of SMART significantly reduced our overall effectiveness. The majority of injured survivors were extracted during this time and our special expertise could have saved a significant number of lives. The episode has provided SMART with unique experience for a British medical team and this knowledge should not be wasted. In contrast to other major western countries the British response was fragmented. We have no central stockpile of equipment and no official response team. The British who responded were independent of each other even when from the same service. The quality of the individual British teams was as good as any and often better. However, the ability of other nations to coordinate their response centrally and draw from a pool of workers already used to working together, improved both their efficiency and effectiveness. There are great difficulties in communication during any disaster and these increase with the scale of the disaster. Incoming rescue workers were given false or misleading information and rumour was widespread. Even when few people were found alive rescue workers expressed a strong need for a medical presence in case they discovered an injured person or they them selves became ill or injured. We were told repeatedly by experienced rescuers that we were the first team of British senior doctors they had met at the front line of a disaster and they were extremely pleased to see us. Transport was a major problem both in terms of vehicles and local knowledge. It was not thought to be within the remit of a medical team to make provision for food and shelter and this was confirmed in Moscow prior to departure for Yerevan. In retrospect this was a mistake and reduced the time we could stay at the front line. If we had not equipped ourselves with special clothing we could not have gone to the front line. A medical team must be part of larger team of rescue workers. Within this unit there will be provision for food, shelter, transport and communication as well as medical and surgical equipment.     

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.     

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.     

The promise of acceptance as an NGO security management approach

This paper explores three questions related to acceptance as a security management approach. Acceptance draws upon relationships with community members, authorities, belligerents and other stakeholders to provide consent for the presence and activities of a non‐governmental organisation (NGO), thereby reducing threats from these actors. Little is documented about how NGOs gain and maintain acceptance, how they assess and monitor the presence and degree of acceptance, or how they determine whether acceptance is effective in a particular context. Based on field research conducted in April 2011 in Kenya, South Sudan and Uganda, we address each of these three issues and argue that acceptance must be actively sought as both a programme and a security management strategy. In the paper we delineate elements common to all three contexts as well as missed opportunities, which identify areas that NGOs can and should address as part of an acceptance approach.     

International NGOs and the role of network centrality in humanitarian aid operations: a case study of coordination during the 2000 Mozambique floods

In February 2000, Mozambique suffered its worst flooding in almost 50 years: 699 people died and hundreds of thousands were displaced. Over 49 countries and 30 international non-governmental organisations provided humanitarian assistance. Coordination of disaster assistance is critical for effective humanitarian aid operations, but limited attention has been directed toward evaluating the system-wide structure of inter-organisational coordination during humanitarian operations. Network analysis methods were used to examine the structure of inter-organisational relations among 65 non-governmental organisations (NGOs) involved in the flood operations in Mozambique. Centrality scores were used to estimate NGO-specific potential for aid coordination and tested against NGO beneficiary numbers. The average number of relief- and recovery-period beneficiaries was significantly greater for NGOs with high relative to low centrality scores (p < 0.05). This report addresses the significance of these findings in the context of the Mozambican 2000 floods and the type of data required to evaluate system-wide coordination.     

Crop Failure in Dalocha, Ethiopia: A Participatory Emergency Response

This case study of an NGO's response to a food crisis due to crop failure focuses on the extent of active community participation at each stage of the project. With the current debate on the relationship between relief and development, and in particular the focus on encouraging more active community participation in relief responses, this study has relevance both in the Ethiopian context and beyond.
In this example the participation process was greatly facilitated by the prior relationship between the international NGO and the communities, and also by the high level of staff input into the project. Where resources or conditions are less favourable, as might be the case in similar responses by local NGOs or government agencies, the paper suggests that the participatory approach can be adapted or partially implemented and still result in a more effective and locally relevant operation.     

Challenges to mobilising resources for disaster recovery and reconstruction: perspectives of the Haitian diaspora

Diasporas and diaspora non‐governmental organisations (NGOs) are increasingly important as resource lifelines to their home countries, yet the resources that they mobilise, the types of challenges that they face, and their coping mechanisms are not well explored or understood in the context of disaster recovery. To fill this knowledge gap, this study employed an inductive qualitative methodological approach, using interviews to comprehend the role played by Haitian diaspora NGOs after the catastrophic earthquake in 2010. It found that resources take four common forms: event fundraisers; financial and material donations from supporters; remittances; and volunteer labour. Challenges include an overreliance on diaspora donors, competition among NGOs, and what is perceived as inequitable funding practices towards diaspora NGOs. The findings provide insights centred on better coordination among diaspora NGOs, as well as between diaspora NGOs and other local and international NGOs and local governments and international institutions, to ensure more efficient delivery of services to survivors.     

The changing emphasis of disasters in Bangladesh NGOs

Bangladesh is one of the most disaster-prone countries in the world, affected by cyclones and floods, as well as chronic hazards such as arsenic poisoning. NGOs have played a major role in bringing concerns related to risk management on to the national agenda and promoting a shift of focus from mere relief response to disaster mitigation and preparedness. The government has, after earlier scepticism, now accepted NGOs as major partners in these tasks. Innovative approaches, such as the use of microfinance, have been applied; many of which are related to preserving the gains of development efforts as part of rehabilitation. NGOs have pressured for better coordination with government. Improved structures are now approved, but it is still too early to judge their impact. Despite progress, neither NGOs nor governmental agencies have clearly defined roles in the effort to link disaster management priorities. This will ensure that longer-term development efforts build on local capacities and reduce vulnerabilities.     

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.     

The politics of NGO registration in international protectorates: the cases of Bosnia and Iraq

Following international interventions in Bosnia-Herzegovina(1) and Iraq, non-governmental organisations (NGOs) have played a central role in delivering humanitarian relief, encouraging participation in new systems of government, and advocating on behalf of marginalised groups. Although intervening agencies have framed such autonomous organisations as unquestionably virtuous, scholars have increasingly questioned the agency of NGOs, pointing to the constraining effects of funding and regulatory mechanisms. This paper contributes to this body of work by offering a detailed examination of legislation requiring NGOs to register with nascent state institutions. Drawing on case study material from Bosnia and Iraq, it argues that NGO registration should not be dismissed as a technical or legal matter, but that it should be embraced as a significant political practice embedded in relations of power. Registration legislation has increased the transparency of NGO funding origins and institutional practices, yet it has simultaneously acted as a barrier to smaller organisations and led to the transmission of international objectives through civil society entities.     

Dividing disasters in Aceh, Indonesia: separatist conflict and tsunami, human rights and humanitarianism

This paper examines the interface between human rights and humanitarian action in the context of the conflict and tsunami in Aceh, Indonesia, between 1998 and 2007. It looks at the challenges international humanitarian non-governmental organisations (NGOs) faced as they engaged in human rights work in the conflict period and in conflict-related activities in the post-tsunami period. The paper argues that many large NGOs may have compromised what some would hold to be essential principles for humanitarian action because of domestic political concerns, donor restrictions and resistance among certain NGO chiefs. In contrast with the pre-tsunami period, in which NGOs worked for years amid military operations, in the post-tsunami period NGOs were decidedly apolitical, neglecting the conflict in their tsunami response--despite significant developments that permitted greater political engagement in Aceh's post-conflict transformation. The evidence suggests that NGOs are challenged in contextualising humanitarian responses and that there is a need to underscore donor flexibility and independence in humanitarian action.