Thailand and Bangkok Flood Situation Report - 28 October 2011
Flood Disaster Risk Management in the Philippines and Thailand: An Institutional and Political...
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Transcript of Flood Disaster Risk Management in the Philippines and Thailand: An Institutional and Political...
Flood Disaster Risk Management in the Philippines and Thailand: An Institutional and
Political Perspective
Jesse Bacamante ManutaSchool of Arts and SciencesAteneo de Davao UniversityDavao City, The Philippines
First Meeting of the Vulnerability of Food Systems to GEC Research Network SAC5 and Exec 10 Meetings
17-18 May 2006Hawkwell House Hotel
Oxford, UK
Outline
Background
Framework and Approaches
Findings and Insights
Ways forward
Vu
lner
abili
ty F
ram
ewo
rk
Differential Social Vulnerability
Institutions- are working rules or norms which define roles, rights and responsibilities of actors (Young 2002)
Household, communities, firms or state (actors) may host many kinds of institutions that guide the behavior of their members
Formal and informal institutions shapes differences in risk and vulnerability
Interplay of institutions define what and whom is to be at risk; shape the way flood disaster are defined, perceived and acted upon
Coping and Adaptive Capacity
Capacities to reduce risks of disaster LIE both within actors and in the relationship among actors
Relations that regularly define roles and responsibilities and rules of engagement in ways that enhance the capacities of actors-- institutionalized capacities
Relationship among actors have different functions that may be institutionalized
the capacity for deliberations and negotiations capacity to mobilize and coordinate resources implementation capacity for evaluation
FUNCTIONS(relations among actors)
PHASES OF DISASTER CYCLEMitigation
(Well before)
Preparedness(Before)
Emergency(During)
Rehabilitation(After)
DeliberationWhat should be done?
CoordinationWho is responsible?
ImplementationHow was it done?
EvaluationWas it done well?
General Framework for Assessing Institutional Capacities & Practices
Source: Lebel et al (2006)
Focus: Formal institutions created by the state to deal with
flood related disaster and how these institutions
interact with local, often informal, institutions
Methods and Study Area___________________________________________________Review formal institutions (Thailand & the Philippines)__________________________________________________________Flood disaster case studies (Thailand only)
Upland and lowland villages in Omkoi District, Chiang Mai (20 May 2004)
Urban settlements in Saraphi and Muang in Chiang Mai (20 May 2004; 14-16 Aug 2005)
Urban and rural settlements of Sena and Muang in Ayutthaya (previous floods)
_________________________________________________________ General Review of Newspapers and Secondary Materials (Thailand & the Philippines)
Average per Event
Number of Events 65
Number of People Killed 2,666 41
Number of People Injured 570 9
Homeless 500,841 7,705
Affected 10,124,281 155,758
Damages USD (000’s) 434,549 6,685
Summarized Table of Flood Disaster in the Philippines from 1905-2005
Source: EM-DAT:The OFDA/CRED International Disaster Database (www.em-dat.net)
Average per Event
Number of Events 49
Number of People Killed 2,503 51
Number of People Injured 4,085 83
Homeless 163,283 3,332
Affected 27,277,515 556,684
Damages USD (000’s) 4,598,651 93,850
Summarized Table of Flood Disaster in Thailand from 1955-2005
Source: EM-DAT:The OFDA/CRED International Disaster Database (www.em-dat.net)
Republic of the Philippines
Kingdom of Thailand
Population (2004) Rural Population Urban Population
81.6 million 38 % of total 62 %
63.7 million 68 % of total 32 %
Poverty (% of population below national poverty line)
30 10
GDP (US$ billions) 84.6 163.5
Total Debt (US $ millions) 61,042 51,318
Some Development Indicators
Source: World Bank (2006) & ADRC (2006)
The Rules (Thailand)
Civil Defense Act 1979 and Government Reform in 2002 (eg. DDPM)
Flood Control and Mitigation
Land and Water Use Control (eg. guidelines for watershed and urban development)
Relief and Compensations (Treasury Act of 2003)
Others
The Players (Thailand)
Key Agencies Duties & Responsibilities
Department of Disaster Prevention & Mitigation
Major line agency for urgent assistance to flood victims
Department of Water Resources
Major line agency for flood mitigation, research and national water resource management system
Royal Irrigation Department
Major agency for water provision, storage, maintenance and allocation to agriculture, energy, consumption & industry
Department of Public Works & City Planning
Major agency for city planning and control of construction process
Meteorological Department
Major agency to monitor, forecast and set up early warning system
Ministry of Social Development & Human Security
Lead agency on rehabilitation of flood victims—mental, social and economic healing & recovery
The Rules (Philippines)
PD 1566 (1978) Local Government Code (RA 8185) Land Use Management and Zoning Ordinances
Departments Responsibilities
National Defense Convenes NDCC as necessary and calls on other government agencies and private sector as needed
Public Works & Highway Restore destroyed public structures such as flood control, waterworks, roads, bridges and other vertical and horizontal facilities; provides equipment for rescue, relief and recovery
Transportation & Communication
Restores destroyed communication and transportation facilities such as railroads; organizes national transport services.
Science & Technology (Philippine Atmospheric Geophysical and Astronomical Services (PAGASA)
Continuing watch on environmental conditions o prepare daily weather forecasts, typhoon watches and flood outlooks
Social Welfare & Development
Extends relief assistance and social services to victims and provide rehabilitation
Agriculture Undertake surveys in disaster-prone areas and actual disaster areas to determine extent of damage of agricultural crops, livestock and fisheries; provide technical assistance to victims
Some NDCC Member Agencies and Area of Responsibilities
Departments Responsibilities
Education, Culture & Sports
Provides assistance in public education and campaign regarding disaster preparedness, prevention and mitigation through integration of relevant subjects in school curriculum; makes school building available as evacuation centers
Finance Issues rules and regulation regarding funding by local government of DCC requirements; with DBM issues rules and regulations on preparation of local government budget and utilization of the 2 % reserve for disaster operations
Interior & Local Government
Oversees organization of local DCCs, the establishment of Disaster Operation Centers of all local governments, and the training of DCC members
Health Provides health services during emergencies and organizes reaction teams; also issues public health warning notices.
Environment & Natural Resources
Responsible for reforestation and control of areas prone to flood, landslide, mudflow and ground subsidence
National Housing Authority
Assessment of housing requirements of displaced persons; provision of temporary housing and rebuilding of destroyed areas.
Some NDCC Member Agencies and Area of Responsibilities
Several indications of improved institutional performance.
The government and the private sectors have been actively collaborating during emergency for mobilizing resources for relief and emergency assistance.
Provisions for Early Warning/Risk & Vulnerability Mapping
Attempts to involve the general public are now being explored through the formation of basin river organization, with a mandate that includes a planning unit for flood mitigation and prevention.
Integration of Disaster Risk management in development programs (policy rhetoric) and Community-based disaster risk management pilot projects Emergence of private sectors (NGOs and Firms) providing financial assistance for livelihood recovery (ex. Siam Cement and Save Andaman; micro credit programs)
Strong Civil Society Groups in Thailand and the Philippines
Institutional Incapacities Poor coordination: fragmented
measures
-Poor coordination across administrative hierarchies delays the timely delivery of services and assistance (e.g Tambon- Provincial)
- National level: no policy coordination (eg DWR and RID)
_ The process of budget preparation and
allocation procedures hampers coordination between local government and line agencies.
- Watershed, rural and urban uses planning are not well articulated with water-related infrastructure projects for flood control
Incomplete Implementation
Incomplete implementation in terms of geographical coverage, unfulfilled promises, and unattained goals is common (eg. Land rehabilitation and livelihood trainings)
Poor prioritization of marginal communities has led to institutional incapacity of the state to bring prevention, mitigation, recovery and even relief operations to where they are, arguably, most needed – the places where the poor and other socially marginalized groups live.
Examples: tribal groups and small fisherfolks
No monitoring and evaluation “After the tragedy, several government
agencies were quick to offer help. But when I returned, everything was still the same”. (Bangkok Post reporter who won award for disaster journalism)
A disaster doesn’t end the day flood water resides and emergency relief operations declare success.
- Protection of interests and a culture of uncritical promotion of performance have institutionalized an incapacity for evaluation and critical reflection
Narrow deliberation - Framing of flood-related disaster
requiring technical fixes - Bias to protect the rapidly urbanizing
and industrial centers shifts flood risks surrounding agricultural-based provinces
Flood Regime Change with Climate Change
More intense, prolonged or frequent flooding
Less intense, shorter and rarer flooding
Objective of Livelihood-Lifestyles relationship with Floods
Depend on Floods
Beneficial up to a threshold of adaptation; Increased risk after“barsha” beneficial floods “ plabob” severe floods
“Lack of floods” disaster
Avoid Floods
Increased risks of disaster
Reduced risk of disaster
Impacts of Altered Flood Regimes Depends on Livelihood & Lifestyles
Impediments of Institutional Reforms
Misplaced emphasis on emergency relief to the detriment of crafting institutions to reduce vulnerabilities and prevent disaster (the politics of disaster)
Self-serving belief that disaster management is a technical problem that calls for expert judgement that systematically exclude the interests of the most socially vulnerable groups
Overemphasis on structural measures which again and again have shown to be more about redistributing risk in time and place rather than reducing risks (turfing)
Failure to integrate flood disaster as inevitable challenges into normal development planning in flood-prone region (from rhetoric to action).
FUNCTIONS
PHASES OF DISASTER CYCLEMitigation(Well before)
Preparedness(Before)
Emergency(During)
Rehabilitation(After)
DeliberationWhat should be done?
Active participation in district area planning, river-basin management, disaster preparedness plans and water-related disaster policies are some of the avenues for engagement
CoordinationWho is responsible?
Cross-scale coordination among agencies and stakeholders is important for flood mitigation, particularly in the design, implementation and monitoring and evaluation of program and policies that help address the underlying causes of flood disaster risks. Framework for private sectors to help finance recovery and rehabilitation (insurance and micro finance schemes)
ImplementationHow was it done?
Acknowledging role for communities in disaster management creates opportunities to broaden participation on the one hand, and improve accountability and responsiveness of
state’s institutions on the other. EvaluationWas it done well?
Instituting monitoring and evaluation mechanisms in disaster risk management may also facilitate institutional learning among different agencies. Performance evaluation among different agencies may provide institutional incentives to be become better and accountable.
Ways Forward
Thank You!
Work in progress…….