Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC
member countries.
The views expressed in the report do not necessarily reflect the views of
the ADRC. The boundaries and names shown and the designations usedon the maps in the report also do not imply official endorsement or
acceptance by the ADRC.

Leng Heng An
National Committee for Disaster Management
Royal Government of Cambodia(ADRC Visiting Researcher FY2013B)

Research PAPER

Collaboration in Disaster Risk Reduction (DRR) between the National Committee
for Disaster Management and Non-Government Organizations (NGO)

April 20141

LIST OF ABBREVIATIONSADBAsian Development BankADPCAsian Disaster Preparedness Centre

ADRC

Asian Disaster Reduction Centre

CBDP

Community-based Disaster Preparedness Program

CBDRM

Community Based Disaster Risk Management

CBDRR

Community Based Disaster Risk Reduction

CC

Commune Council

CCDM

Commune Committee for Disaster Management

CDP

Commune Development Plan

CRC

Cambodian Red Cross

DCDM

Disaster Committee for Disaster Management

DIPECHO

ECHO's disaster preparedness programme

DM

Disaster Management

DRR

Disaster Risk Reduction

ECHO

The European Commission's Humanitarian Aid department (ECHO)

ECHO-DG

European Commission Humanitarian Aid and Civil Protection DG

EWSEarly Warning System

GFDRR

Global Facility for Disaster Reduction and Recovery

HANet

The Humanitarian Accountability Network

2

IEC

Information, Education and Communication

IRP

International Recovery Platform

JAG

Joint Action Group

JANIC

Japan NGO Center for International Cooperation

JICA

Japan International Cooperation Agency

MOWRAM

Ministry of Water Resources and Meteorology

NCDM

National Committee for Disaster Management

NDMT

The United Nations Disaster Management TeamNGO

Non- Government OrganizationNPO

Non-Profit Organization

PCDM

Provincial Committee for Disaster Management

UNDMT

UN Disaster Management Team

UNDP

United Nations Development Program

UNISDRThe United Nations Office for Disaster Risk Reduction

VCDM

Village Committee for Disaster Management

VR

Visiting Researcher

WB

World Bank

3ACKNOWLEDGEMENTSFirst of all, I would like to express my gratitude to the Asian Disaster Reduction Center (ADRC)
and all the ADRC staff members for providing financial, administrative and logistic supports
during my three-month research program in Japan.
My special thanks to HE. Mr. PONN Narith, NCDM Secretary General and the National
Committee for Disaster Management (NCDM) of the Royal Government of Cambodia fornominating me to attend the ADRC 2013B Visiting Researcher, and HE Mr. MA Norith, NDCM
Deputy Secretary General for sharing with me useful documents for my research at ADRC.
I would like to acknowledge Ms. Akiko Nakamura, ADRC Senior Researcher and my mentor forher guidance and motivation in my research work.
My great appreciation to Ms. Yumi Shiomi, ADRC Researcher and ADRC 2013B Coordinator forher excellent facilitation and coordination of VR 2013 program from my first day to my last day
with ADRC.
My particular thanks to Mr. Shoji Kawahara, my Japanese language teacher, constantly
providing us local inputs about Japan and Japanese culture and guiding us to interesting places.
Last but not least, my appreciation to representatives, officials and staff members of Japan
government agencies and ADRC partners for receiving us at their offices/facilities and theirvaluable, informative lectures/presentations.

4

CONTENTS

LIST OF ABBREVIATIONSACKNOWLEDGEMENTS

CHAPTER 1 INTRODUCTION
1.1

Background to the Study

1.2

Rationale

1.3

Aim and Objectives of the Study

1.3.1 Aim
1.3.2 Objectives
1.3.3

Outcomes of the Research

1.4

Gaps and Limitations of the Study

CHAPTER 2 LITERATURE REVIEW
2.1

Disaster

2.2

Disaster Risk

2.3

Disaster Risk Management

2.4

Disaster Risk Reduction

2.6

Collaboration Concept

2.8International Response to Disaster Risk Reduction

2.9

Roles of NGOs in Disaster Risk Reduction

2.10

Overview of Disaster Management in Japan

2.11

DRR Agencies/NGOs/NPOs in Japan

5

CHAPTER 3 DISASTER REDUCTION SITUATION IN CAMBODIA
3.

NATRUAL HAZARDS IN CAMBODIA

3.1

Natural Hazards Likely to Affect Cambodia

3.1.1

Floods3.1.2

Droughts

3.1.3

Typhoons

3.2

Recent Major Disasters

3.2.1

Flood in 2011 & 2013

3.2.2

Droughts from 2009-2012

3.2.3

Typhoon Ketsana in 2009

3.2.4

Lightning Strikes

3.3

DISASTER MANAGEMENT SYSTEM

3.3.1

Disaster Management Plan, Policy and Strategy

3.3.2

Structure of Disaster Management

CHAPTER 4 RESEARCH METHODOLOGY

4.1

Research Design

4.2

Data Collection Techniques

4.3

Data Analysis Methods

CHAPTER 5 FINDINGS & DISCUSSION

5.1 Initiatives and Collaboration
5.2 Good Practices and Lessons learned
5.3 Challenges
5.4 Possible suggestions to enhance the collaboration

6

List of Figures

Annexure

REFERENCES

7

CHAPTER 1
INTRODUCTION
1.1

Background to the Study

The occurrence of regular flood and drought in Cambodia, often within the same year, makes
the country among the most disaster prone in Southeast Asia. Eighty percent (80%) of
Cambodia’s 14 million population is dependent on agriculture and fisheries, both of which suffer
the brunt of drought and flood, threatening the lives of already vulnerable communities.
Cambodian food security depends heavily on the cycle of the Tonle Sap and Mekong Rivers.
The waters feed agricultural plains and provide fish - the country’s main source of protein.
Because of widespread poverty (food insecurity and lack of livelihood), even a slow andrelatively predictable flood or drought phenomenon increases the vulnerability of many poorfamilies. Previously, a more typical response to regular drought and flooding involved thetemporary provisions in the communities, in the form of food, shelter, health services, water andsanitation. However, increasingly, over the years, there has been a realization among NGOs
and the government that while emergency response is important, it is more sustainable andeffective to establish preparedness, mitigation and prevention mechanisms at all levels (ADPCet al. 2008).

1.2

Rationale

In collaboration with the National Committee for Disaster Management (NCDM), a good number
of DRR projects have been implemented by various non-government organizations (NGOs) intheir target areas throughout the country. Some of the implementing NGOs receive funds fromthe same donors, namely DIPECHO of European Commission, Asian Development Bank andWorld Bank and others. Sovann, R. (2006) lists multiplied impacts of effective coordination
which includes effective risk reduction strategy; maximization of limited resources; focus
beneficiary targeting, clearly defined roles and responsibilities; effective and efficient utilizationand dissemination of information; and identified actors on different aspects of disastermanagement. Disaster risk reduction involves cross-cutting, socio-economic sectors and multistakeholders including government, private sectors and civil society organizations. Thus, it is
crucial that all the stakeholders work in good coordination and collaboration to optimize theirresources, productivity and operational effectiveness in DRR.

8

1.3

Aim and Objectives of the Study

1.3.1 Aim
The primary aim of the research “Collaboration in Disaster Risk Reduction between NCDM
and NGOs” is to explore the extent and nature of DRR collaboration between NCDM andNGOs in Cambodia.

1.3.2 Objectives
1. To study NGOs’ projects and activities with relation to DM/DRR, in Japan
2. To examine NGOs’ projects and activities with relation to DM/DRR in Cambodia
3. To suggest possible pathways for enhancing collaborations between NCDM and NGOs
in DRR.
1.3.3

Outcomes of the Research

The outcomes of the research will be:

1.4•

Increased knowledge about the collaboration in DRR.

•

Suggestions for innovative and distinctive alliances and collaboration in DRR.
Gaps and Limitations of the Study

The research is conducted at Asian Disaster Reduction Center (ADRC) in Kobe, Japan.
Documents, reports, online resources, and research papers related to their DRR activities in
Cambodia and Japan were reviewed and used as secondary data. Due to resource and time
constraints, the number of documents reviewed is limited, and the researcher does not havetime to interview representatives of DRR NGOs in Cambodia or listen to their views on
collaboration with NCDM. Additionally, some of documents reviewed are very recent were
produced approximately five or six years ago. Therefore, the generalization of findings to
broader contexts is limited.

9Figure 1: Overview of the Research Structure

Chapter 1: Research Question
What is the extent and nature ofcollaborations between NCDM andNGOs in DRR?

Chapter 2: Establishing the Research Framework
Literature Review: DRR/DM Definitions, International Response to
Disaster Risk Reduction, Collaborations, DRR Roles of NGOs,
Overview of DM in Japan, DRR NGOs/NPOs in Japan

Chapter 3: Context
DM Situation in Cambodia

Chapter 4: Data collection & Analysis Methods

Chapter 5: Presentation of Secondary data

Chapter 6:
Discussion & Conclusions:
DRR Collaboration, Good
Practices, Challenges and
Suggestions for enhancing
collaboration10

CHAPTER 2
LITERATURE REVIEWThis chapter presents key definitions of disaster management (DM) and disaster risk
reduction (DRR) and highlight international responses to disaster risk reduction, collaboration
concept, DRR Roles of NGOs, overview of disaster management in Japan and DRR
NGOs/NPOs in Japan.
2.1

DisasterA serious disruption of the functioning of a community or a society involving widespread human,material, economic or environmental losses and impacts, which exceeds the ability of theaffected community or society to cope using its own resources. Disasters are often described asa result of the combination of: the exposure to a hazard; the conditions of vulnerability that arepresent; and insufficient capacity or measures to reduce or cope with the potential negative
consequences. Disaster impacts may include loss of life, injury, disease and other negative
effects on human physical, mental and social well-being, together with damage to property,
destruction of assets, loss of services, social and economic disruption and environmental
degradation (UNISDR, August 2007).
2.2

Disaster Risk

The potential disaster losses, in lives, health status, livelihoods, assets and services, which
could occur to a particular community or a society over some specified future time period. The
definition of disaster risk reflects the concept of disasters as the outcome of continuously
present conditions of risk. Disaster risk comprises different types of potential losses which areoften difficult to quantify. Nevertheless, with knowledge of the prevailing hazards and thepatterns of population and socio-economic development, disaster risks can be assessed andmapped, in broad terms at least (UNISDR, Jan 2009).

11

2.3

Disaster Risk Management

According to UNISDR (August 2007), disaster risk management is the systematic process ofusing administrative directives, organizations, and operational skills and capacities to implement
strategies, policies and improved coping capacities in order to lessen the adverse impacts ofhazards and the possibility of disaster.

2.4

Disaster Risk Reduction

The concept and practice of reducing disaster risks through systematic efforts to analyse andmanage the causal factors of disasters, including through reduced exposure to hazards,
lessened vulnerability of people and property, wise management of land and the environment,
and improved preparedness for adverse events. A comprehensive approach to reduce disasterrisks is set out in the United Nations-endorsed Hyogo Framework for Action, adopted in 2005,
whose expected outcome is “The substantial reduction of disaster losses, in lives and the social,economic and environmental assets of communities and countries.” The International Strategy
for Disaster Reduction (ISDR) system provides a vehicle for cooperation among Governments,organisations and civil society actors to assist in the implementation of the Framework. Notethat while the term “disaster reduction” is sometimes used, the term “disaster risk reduction”
provides a better recognition of the ongoing nature of disaster risks and the ongoing potential toreduce these risks (UNISDR, August 2007).
2.5

International Responses to Disaster Risk Reduction

In the last two decades, the world has experienced more frequent natural disasters with greater
magnitude. Recent disasters include two mega disasters in Japan: the Great Hanshin
earthquake, which occurred in Kobe on 17 January, 1995 and the Great East Japan Earthquakein Tohoku region on 11 Match 2011; the 2008 Shichuan Earthquake in China; severe flooding in
Thailand and Cambodia in the last few years; Hurricane Sandy, which hit 24 States in the
United States of America in October 2012; Typhoon Haiyan in the Philippines in November
2013, let alone disaster occurrences in urban areas such as fire, stampede and building
collapse; and flooding, draughts and Avian influenza pandemics that have affected the world,
especially in least developed countries in Asia and Africa.

12

To cope with alarming tendency of disasters, there have been significant international
responses to disaster risk reduction, starting from the United Nations proclamation of the“International Decade for Natural Disaster Reduction (IDNDR)” in 1990, the “Yokohama World
Conference on Natural Disaster Reduction” in 1994, the IDNDR successor “International
Strategy for Disaster Reduction (ISDR)” in 2000 and more recently the “Hyogo World
Conference on Disaster Reduction” in 2005, which have ushered a major shift in theunderstanding and practice of disaster management around the world (NCDM et al, 2008).
In January 2005, one hundred and sixty-eight nations around the world participated in the World
Conference on Disaster Reduction (WCDR) held in Kobe, Japan, organized by the UNISDR andadopted the Hyogo Framework of Action (HFA), a comprehensive set of five priorities targetedat achieving a substantial reduction in disaster losses, both in terms of lives and the social,economic and environmental assets of communities and countries, by 2015 (PreventionWeb).
The HFA five priorities for action are: 1. ensuring that disaster risk reduction is a national and alocal priority with a strong institutional basis for implementation, 2. identifying, assessing andmonitoring disaster risks and enhance early warning, 3. using knowledge, innovation andeducation to build a culture of safety and resilience at all levels, Reduce the underlying risk
factors, and 5. strengthening disaster preparedness for effective response at all levels (UNISDR,
2007). On 20 December 2013, the United Nations General Assembly passed a resolution to holdthe 3rd UN World Conference on Disaster Risk Reduction from 14 to 18 March 2015 in Sendai,
Japan.
Disaster risk reduction is an integral part of social and economic development, and is essential if
development is to be sustainable for the future. Making development sustainable requires
addressing natural hazard risk and vulnerability in development plans (UNISDR).
2.6

Collaboration Concept

Collaboration is a very important means used by different stakeholders working to achieve
convergent objectives. In industrialized, transitional, and developing countries, interest incooperation between state and non-state actors has grown appreciably over the past decade. At
the present time, around the world it is widely recognized that societal problems cannot be
solved by governments acting on their own (Brinkerhoof, 1999). Moreover, cross-sectoralinteractions, state-civil society partnerships whose purpose is to achieve convergent objectives

13through the combined efforts of both sets of actors generate synergistic effects; that is, more
and/or better outcomes are attained than if the partners acted independently (Brinkerhoof, 1999).
Brinkerhoof (1999) added that to make collaboration effective, collaborative stakeholders needto deal with a number of basic factors: specification of objectives and degree of convergence,mechanisms for combining effort and managing cooperation, determination of appropriate roles
and responsibilities, and capacity to fulfill those roles and responsibilities.
2.7

NGOs’ Roles in Disaster Risk Reduction

The key role which communities play in disaster management and disaster risk reduction isstrongly acknowledged by the ISDR secretariat, whose vision is to “enable all communities tobecome resilient to the effects of natural hazards, technological and environmental disasters.”
Experiences show that community-based approaches offer viable solutions for managing andreducing risks and ensuring sustainable development.
Today, an increasingly predominant view is that for risk reduction strategies to be truly effective
in protecting lives and livelihoods, they need to be people centred. They need to build on
people’s local knowledge and cultural practices, and apply tools and approaches that people
can easily understand and integrate into their lives.
Conversely, disaster reduction using top-down government and institutional interventions alone
are often considered insufficient as they tend to have a lower understanding of community
dynamics, perceptions and needs, and ignore the potential of local knowledge and capacities.
On many occasions, local people and organizations are the main actors in disaster risk
reduction and disaster response. When a disaster strikes, immediate response (i.e., search andrescue and care for those injured, traumatized and homeless) is often carried out by family
members, friends and neighbours and grassroots organizations. In the case of the many smallscale events triggered by natural hazards, there may be little or no external support at all,especially in countries where government capacity is limited.
Many members of local communities also represent the greatest potential source of local
knowledge of hazardous conditions, and are the repositories of traditional coping mechanisms
suited to their individual environment. Their awareness of historical risk scenarios is often
stronger than that of other people.

14

NGOs’ involvement in DRR activities has proved beneficial for a number of reasons, including
the following:NGOs can operate at grassroots level with communities and local organizations as partners,
and take a participatory approach to development planning. This allows them to respond betterto local people’s priorities and build on local capacities. NGOs enjoy higher operational flexibility
as they are relatively free from bureaucratic structures and systems, and better able to respondand adapt quickly and easily.
NGOs often work with and on behalf of most needy groups: the poorest and the most vulnerable.
In spite of the encouraging trend observed over the past decade, it should be noted that NGOs
have found it hard at times to gain acceptance, both at national and international levels. They
have sometimes been regarded as minor players, especially in countries whose governments
have been hesitant to concede authority and resources to the civil society. As a matter of fact,some governments do not always welcome the growth of civil society, and may sometimes
resist the expansion of its role, especially where this involves criticism of government policies orpractice.
Finally, NGOs’ participation in high-level decision-making processes so far has also been rather
limited. This said, some NGOs are gaining growing recognition in the ongoing process ofpromoting DRR, and are becoming more actively involved in a number of different activities.
Over the past years, some NGOs have committed themselves to advocate for policy changes.
Others have been active in mainstreaming DRR into rehabilitation and recovery programmes.
Many others have engaged actively in capacity building, knowledge transfer and publicawareness in communities at risk.
All these efforts have contributed to reducing the vulnerability of those living in disaster-prone
areas and increasing their resilience through educational activities and capacity building.
Overall, the following broad areas of intervention have been identified as being the ones inwhich NGOs appear to be more actively involved: policy and advocacy, knowledge andeducation, community-based risk and vulnerability assessment, and community-based
mitigation and preparedness (ISDR, 2006).

15

2.8

DRR Roles & Activities of NGOs/NPOs in Japan

Before we go into details about roles and activities of NGOs/NPOs in Japan, it is important to
get an overview of disaster management system in Japan.
2.8.1

OVERVIEW OF DISASTER MANAGEMENT SYSTEM IN JAPAN

Likewise, its national government system, disaster management in Japan is also vested on 3layered system – national, prefectural and municipal layers. Disaster management system ofJapan has undergone tremendous advancement throughout the past 5-6 decades. Disaster
Management Councils established at each level and each council is responsible for the
implementation of all disaster management related issues under its authority. The
comprehensive coordination and communication system has been put in place to foster holistic
and effective management at each level. The outline of Disaster Management System of Japan,
the structure of Central Disaster Management Council established under the DCBA as well as
Disaster Management Planning System based on the same law is shown below:

16Figure 2: Outline of the disaster management system in Japan
Central Disaster Management Council consists of the prime minister, who is the chairperson,
Minister of State for Disaster Management, all ministers, heads of major public institutions andexperts. The council promotes comprehensive disaster countermeasures including deliberating
important issues on disaster reduction according to requests from the Prime Minister or Ministerof State for Disaster Management.
Duties of the council include formulating and promoting implementation of the Basic Disaster
Management Plan and Earthquake Countermeasures Plans, formulating and promoting andpromoting implementation of the urgent measures plan for major disasters, deliberating
important issues on disaster reduction according to requests from the Prime Minister or Ministerof State for Disaster Management (basic disaster management policies, overall coordination ofdisaster countermeasures and declaration of state of disaster emergency) and offering opinions
regarding important issues on disaster reduction to the Prime Minister and Minister of State forDisaster Management.

Figure 3: CDMC Composition

17

Disaster management planning in Japan is implemented at three levels:
1.

Basic Disaster Management Plan is prepared by the Central Disaster Management

Council and basis plan for disaster management activities. The plan must be based on Disaster
Countermeasure Basic Act. The structure of it is as shown in the figure below:

Figure 4: Structure of Basic Disaster Management Plan
2.

Disaster Management Operation Plan is made by each designated governmentorganization and designated public corporation based on the Basic Disaster Management Plan
3.

Local Disaster Management Plan is made by prefectural and municipal disastermanagement councils, subject to local circumstances and based on Basic Disaster
Management Plan.

18

Mission of Cabinet Office - Along with a series of reforms of the central government system in
2001, the post of Minister of State for Disaster Management was newly established to integrate
and coordinate disaster reduction policies and measures of ministries and agencies. In the
Cabinet Office, which is responsible for securing cooperation and collaboration among related
governmentorganizations

inwide-ranging

issues,theDirector-Generalfor

DisasterManagement is mandated to undertake basic disaster management policies and response tolarge-scale disasters, as well as conduct overall coordination.
Additionally, taking into account lessons learned from the Great Hanshin-Awaji Earthquake, theCabinet Secretariat System was strengthened, including the appointment of the Deputy Chief
Cabinet Secretary for Crisis Management and the establishment of the Cabinet Information
Collection Center, to strengthen risk management functions to address emergencies such aslarge-scale disasters and serious accidents. Thereby, the Cabinet Office has a role insupporting the Cabinet Secretariat regarding disaster management matters.
Figure 5: Organization of National Government and Cabinet Office (Disaster Management)(Disaster Management in Japan brochure, 2011 in Nazarov, E, 2011)19

2.8.2 Designated Public Corporations
Designated Public Corporations are comprised of 63 organizations including independentadministrative agencies, Bank of Japan, Japanese Red Cross Society, NHK, electric and gas
companies, and NTT.
2.8.2.1 Japanese Red Cross (JRCS)The JRCS is specified as a “Designated Public Corporation” under the Disaster
Countermeasures Basic Act. According to the Disaster Relief Act, the JRCS is obligated tocooperate with the national and prefectural governments in the provision of relief assistance, thedetails of which are laid out in the agreement signed by the Minister of Health, Labour andWelfare and the President of the JRCS. Based on this, the JRCS is developing disaster relief
responses according to relief regulations and disaster management plans. Additionally, as amember of the Central Disaster Management Council headed by the Prime Minister, and incollaboration with other organizations, the JRCS is responsible for a part of the country’s overall
disaster management, including medical relief, stockpiling and Distribution of relief supplies,
provision of blood products, collection of donations, disaster volunteer activities andpsychological care (Chariyaphan, R , 2012).

2.8.2.2 NHK (Japan Broadcasting Corporation)
As the sole public broadcaster of Japan where earthquakes, volcanic eruptions, typhoons, andother natural disasters are all too common, NHK is expected to play a twofold role in emergency
situations. In its usual capacity as a source of information, NHK reports on the damage caused
and the state of the disaster-affected area. But it is also regarded as part of the infrastructure ofdisaster prevention and crisis management. This perception is stipulated in the Disaster
Countermeasures Basic Act. By the law NHK is designated as ‘public institution’ to contribute,
through its broadcast, to the prevention of the disaster. NHK must broadcast warnings oftsunami, or other dangerous weather conditions in order to promote precautionary measuresand the mitigation of damage (TANAKA, T., 2013).

20

2.8.3 Japan International Cooperation Agency (JICA)
Japan International Cooperation Agency (JICA) is the development agency of the Governmentof Japan, which carries out cooperation activities that is rooted in Japanese experience. Thus,
naturally JICA’s approach has been to continuously extend cooperation in the field of DRR withthe aim to build capacities of developing countries to cope with disasters as means to achievesustainable development.
JICA views that DRR investment is an essential investment to be made to achieve economic
growth and, subsequently sustainable development. DRR investment covers both investments
in DRR as an independent sector, as well as those in other sectors that have DRR
consideration incorporated. JICA will enhance its support to projects /programs of other sectorsthat incorporates DRR consideration to contribute to building a resilient society, which embodies
sustainable development, in the context of development cooperation (JICA, 2013).
JICA also cooperates with Japanese NGOs operating in affected areas in order to implement
more effective operations. JICA has worked to build better partnerships with Japanese NGOs
since the launch of specific collaboration schemes in 1998. This has occurred through local
projects in developing countries as well as through periodic meetings, trainings, and joint project
evaluation.
JICA and Japanese NGOs hold regular NGO-JICA meetings every three months, with the aimof facilitating information exchange and enhancing mutual understanding. These meetings
began in 1998 and continued after JICA became an independent administrative institution in
2002. Meeting participants include representatives of JANIC, the Nagoya NGO Center, and theKansai NGO Council, as well as related sections from JICA and observers from MOFA, theJapan Bank for International Cooperation (JBIC) and relevant NGOs.
An NGO-JICA Japan Desk is currently being set up. The main functions of the Desk will besupport for in-country activities of Japanese NGOs and Japanese nationals, promotion ofcollaboration between Japanese and local NGOs, and promotion of collaboration between local
NGOs and JICA programs (JANIC).

21

2.8.4 Inter-Governmental Agencies
The United Nations Office for Disaster Risk Reduction (UNISDR)The UN General Assembly adopted the International Strategy for Disaster Reduction in
December 1999 and established UNISDR, the secretariat to ensure its implementation.
UNISDR, the UN office for disaster risk reduction, is also the focal point in the UN system for thecoordination of disaster risk reduction and the implementation of the international blueprint fordisaster risk reduction - the "Hyogo Framework for Action 2005-2015: Building the resilience ofnations and communities to disasters".
The mandate of UNISDR expanded in 2001 to serve as the focal point in the United Nations
system for the coordination of disaster reduction and to ensure synergies among the disaster
reduction activities of the United Nations system and regional organizations and activities insocio-economic and humanitarian fields (GA resolution 56/195). This was in response to a needfor mainstreaming disaster risk reduction within the development and other areas of work of theUN.
The "Hyogo Declaration" and the "Hyogo Framework for Action 2005-2015: Building theResilience of Nations and Communities to Disasters" was adopted by the World Conference on
Disaster Reduction, held in Kobe, Hyogo, Japan, in January 2005. The Hyogo Framework for
Action (HFA) tasked UNISDR with supporting the implementation of the HFA (UNISDR).
The Asian Disaster Reduction Center (ADRC)
The Asian Disaster Reduction Center was established in Kobe, Hyogo prefecture, in 1998, withmission to enhance disaster resilience of the member countries, to build safe communities, andto create a society where sustainable development is possible. The Center works to build
disaster resilient communities and to establish networks among countries through many
programs including personnel exchanges in this field.
The Center addresses this issue from a global perspective in cooperation with a variety of UN
agencies and international organizations/initiatives, such as the International Strategy for
Disaster Reduction (ISDR), the Office for the Coordination of Humanitarian Affairs (OCHA), theUnited Nations Educational, Scientific and Cultural Organization (UNESCO), the United Nations
Economic and Social Commission for Asia and the Pacific (ESCAP), the World Meteorological22Organization (WMO), and the World Health Organization Regional Office for the Western Pacific(WHO/WPRO).
ADRC has the mission and aims to enhance disaster resilience of the member countries, tobuild safe communities, and to create a society where sustainable development is possible(ADRC).
The International Recovery Platform (IRP)The International Recovery Platform (IRP) was conceived at the World Conference on Disaster
Reduction (WCDR) in Kobe, Hyogo, Japan in January 2005. As a thematic platform of theInternational Strategy for Disaster Reduction (ISDR) system, IRP is a key pillar for the
implementation of the Hyogo Framework for Action (HFA) 2005-2015: Building the Resilience of
Nations and Communities to Disasters, a global plan for disaster risk reduction for the decade
adopted by 168 governments at the WCDR.
The key role of IRP is to identify gaps and constraints experienced in post disaster recovery andto serve as a catalyst for the development of tools, resources, and capacity for resilient recovery.
IRP aims to be an international source of knowledge on good recovery practice.
The mission of the IRP is to identify gaps and constraints currently experienced in the context ofdisaster recovery and to serve as a catalyst for the development of tools, resources andcapacity for resilient recovery. IRP strives to be an international source of knowledge on good
recovery practice.
The goals of the IRP are:-to ensure that risk reduction approaches are systematically incorporated into the designof emergency preparedness, response and recovery programmes – in accordance withstrategic goal (c) of the Hyogo Framework for Action;-

to promote “Build Back Better“ approaches and supporting the development of enhanced
recovery capacity at a regional, national and sub-national level with a particular focus on
high-risk low-capacity countries, the IRP works for the achievement of measurable andvisibly positive impact of recovery processes in disaster-affected communities;23-by closely linking its work with the goals of the HFA, to promote a shared vision amongst
IRP Partner Organizations and members of the larger IRP Community of Practice, and acommon strategic approach for recovery and risk reduction interventions;-to serve as an international repositiory of knowledge and a clearing-house for thedevelopment of recovery and risk reduction resource (International Recovery Platform).

2.8.5 Coordinating Agencies
2.8.5.1 Japan NGO Center for International Cooperation (JANIC)JANIC is a non-profit, non-partisan networking NGO founded in 1987 by a group of NGO
leaders who saw the need to better coordinate activities in Japanese society and facilitatecommunication with groups overseas. JANIC has 96 NGO members and is governed by a
Board of Trustees, with a secretary general and 33 staff members.
JANIC ‘s missions are to promote networking and collaborative activities among citizens’organizations (NGOs) engaged in international cooperation, to facilitate collective action by its
members and wider Japanese civil society to influence the policies and practice of governments
and institutions at domestic and international levels, to strengthen the institutional capability ofNGOs in carrying out their missions, to disseminate information and knowledge concerning
people's living conditions in developing regions of the world and the impact of the public’s wayof life on these people, and to enlighten the general public on the role of NGOs and encouragethem to participate in NGO activities in any form.
As a networking NGO and a proponent for strengthening civil society, JANIC's activities have
revolved around the following activities: promoting partnership among NGOs, coordinating
meetings and cooperation among JANIC’s official member NGOs, cooperating with othernetwork NGOs, cooperating with NGOs overseas, strengthening capacity and social
responsibility of NGOs, providing capacity building opportunities for NGO staff by offering
training programs, raising awareness on accountability and Social Responsibility issues andpromoting of Accountability Self Check 2008 (a self-assessment framework developed by
JANIC to member NGOs).

24

FundsJANIC has five major sources of income: 1) membership fees, 2) individual and corporate
contributions, 3) income from publication sales, seminar fees, and other services, 4) private
foundations; Foundations within Japan, such as: The Mitsubishi Bank Foundation, Niwano
Peace Foundation, Rissho Kosei Kai -- One Meal Campaign Committee, Environmental
Restoration and Conservation Agency of Japan (ERCA), and others, and subsidies: Ministry ofForeign Affairs, and JICA (JANIC).
2.8.5.2. Japan Platfrom
Japan Platform (JPF) is an international emergency humanitarian aid organization which offers
more effective and prompter emergency aid, in response to the world situation, focusing theissues of refugees and natural disaster. JPF conducts such aid with a tripartite cooperation
system where NGOs, business community, and government of Japan work in close cooperation,
based on equal partnership, making the most of the respective sectors’ characteristics andresources.
JPF is an international emergency humanitarian aid organization made up of a consortium of 36
Japanese NGOs, the business community, and the Ministry of Foreign Affairs of JapanAs for activities in Tohoko, Japan Platform (JPF) have supported a total of over 200 projects
with donation. “Stand by Together Fund” was established after the earthquake to support local
NGOs in Tohoku. In order to deliver the support to the afflicted areas more efficiently,
established offices in Sendai and Tono. Staffs ensure that the fund is spent appropriately bymonitoring the NPOs. Also give advice on people activities and fund management to enhancetheir capabilities.
As of March 11, 2011, the day of the Great East Japan Earthquake, Japan Platform (JPF) has
received

numerous

generous

donationsandcontributions

from

about

3,300

companies/organizations and about 43,000 citizens all over the world. Those contributions havebeen utilized to provide more than 310 aid activities implemented by around 80 NGOs/NPOs. In
addition to donations, many companies and organizations have also provided prompt support in
the form of various kinds of emergency relief assistance.

25

According to the Reconstruction Agency, as of February 2014, approximately 270,000 people
are still displaced from their homes. JPF is dedicated to supporting the long-term efforts of local
people toward their recovery, extending to our strategic support plan and including the "Tomoni
ikiru (Live together) fund" for local NGO/NPOs, with results achieved by the end of the 2015
fiscal year. In the Fukushima area, we will need to provide even more extensive support to deal
with all the challenges there (Japan Platform).
2.8.5.3 Hyogo Volunteer Plaza
Hyogo Volunteer Plaza was opened in June 2002 to serve as a base for prefecture-wide
support network incorporating NGOs, NGOs and other local activity groups. Its main functions
include Functions: exchange and networking, provision of information and consultation, financial
support for activities, human resource development and research and study. This facility offers
useful assistance to prefectural citizens undertaking diverse volunteer activities. It has play very
active roles during the disaster emergency reliefs: the Great Hanshin Awaji Earthquake in 17
January 1995 and the Great East Japan Earthquake on 11 March 2011.
Immediately after the Great Hanshin Awaji Earthquake, disaster victims helped one another.
Neighborhood associations, fire fighting associations and the like exchanged help and support
across regional communities, and 1.38 million volunteers rushed into the stricken region from allover Japan. In view of this fact, 1995 was designated the “Year of the Volunteer” in Japan, anda Disaster Management Volunteer Day (January 17) and Disaster Management Volunteer Week
(January 15-21) were instituted.
Subsequently, there was a nationwide upsurge in activities mobilizing “regional power” and“citizen power”, spearheaded by the NPOs and NGOs which sprang up and flourished in thewake of the earthquake. In December 1998, this led to the implementation of the Law toPromote Specified Nonprofit Activities (NPO Law). In April 2003, the Hyogo Prefectural
Government also passed municipal bylaws regarding the promotion of active participation andcooperation by the residents of the prefecture, and efforts are being made to encourage
prefectural residents to participate actively and cooperate in working for the mutual benefit of
the regional community, and in projects run by the prefectural administration.

26

A good example is provided by the Hyogo Forum for Advocating Individual Recovery, which
bridges the gap between the earthquake victims and the authorities as well as other forums forcooperation between NPOs and the public administration (Phoenix Hyogo).
2.8.6

DRR NGOs/NPOs in JAPANAccording to Peace Boat, roles and contributions of non-profit and non-governmental groups in
the relief efforts, especially after the Great East Japan Earthquake and Tsunami have been
increasingly recognized. In 1998, the growth of the non-profit sector led to the introduction of the
Law Concerning the Promotion of Specific Non-Profit Organization Activities (a.k.a. the NPO
Law). This new legislation was established to help NPOs organize effectively and to create amore official role for non-profits both in times of disaster and peace time.
2.8.6.1 Disaster Preparedness
Disaster-Safe Welfare Community (“BOKOMI”) and Kaeru Caravan: DRR Learning forChildren have successfully been running community-based disaster preparedness programs
involving school children and the entire community through innovative fun leaning approaches in
preparing for and working toward disaster prevention. (Please see Annex 1 for details)
2.8.6.2 Emergency Relief and Recovery
Below is the list of NPOs and an overview of their activities of their relief work following Japan
earthquake and Tsunami in Tohoku Region, based on the documents compiled by the JapanNGO Center for International Cooperation (JANIC, 2012). However, it is not the exhaustive list
1. Institute of Cultural Affairs (ICA) has been supporting households in the southern coast of
Miyagi Prefecture, and the northern coast of Fukushima Prefecture, whose house was detected
as half destroyed.
2. The Japan Asian Association & Asian Friendship Society (JAFS) has been providing
household goods for basic needs and food in Utatsu District, Minamisanriku Town, Miyagi
Prefecture and helping them reconstruct their local shops.

27

3. ICAN has been supporting victims in each of the evacuation centers located in Ishinomaki
City, Miyagi Prefecture. ICAN has been providing foods for the families and school supplies forchildren. Families are forced to live in evacuation centers due to earthquake and tsunami.
4. ADRA Japan has been providing supports (food and household items) at evacuation centers
In Wakabayashi Ward, Sendai City, Higashi-Matsushima City, Yamamoto Town, Watari Countyin Miyagi Prefecture, Fukushima prefecture.
5. The Association of Medical Doctors of Asia (AMDA) has been providing medical relief since
March 12th, 2011 in Minamisanriku Town, Kamaishi, Ohtsuchi Town (Iwate Prefecture).
6. The Action against Child Exploitation (ACE) has been supporting people living in thetemporary housing In Yamamoto town of Watari district in Miyagi prefecture, Sendai city in
Miyagi prefecture.
7. The Organization for Industrial Spiritual and Cultural Advancement-International (OISCA) has
been providing emergency relief goods (blankets, protection against the cold, candles,
underwear, papers, diapers, water, instant noodles, medicine, nutritional supplements) tovictims In Northern part of Ibaraki Prefecture, Iwaki City in Fukushima Prefecture, and affectedareas in Miyagi Prefecture.
8. Caring for Young Refugees (CYR) has been providing childcare services in plastic tents or inevacuation centers in 30 project areas In Miyagi and Fukushima prefectures.
9. Oxfam Japan has been providing support earthquake and tsunami survivors especially forsmall children and their mothers, single mothers, people who have immigrated to Japan, people
who face the domestic violence and sexual violence in Morioka City (Iwate Prefecture), Sendai
City, Tagajou City, Shiogama City (Miyagi Prefecture), Koriyama City, Aizu Wakamatsu City,
Fukushima City (Fukushima Prefecture), Hitachi City (Ibaraki Prefecture) and other areas where
victims are evacuated.
10. Good Neighbors JAPAN has been providing emergency support in Kamaishi City, Otsuchi
Town, Yamada Town, Iwate Prefecture.
11. CARE International Japan has been providing warm and balanced meals right after thedisaster as well as cooking ingredients for those who stayed in their own house in Miyako City28

and distributed kitchen utensils, sanitary stuffs, towels, shampoo, mattresses, sheets and soforth in Yamada Town, Otsuchi Town, Miyakoshi, and Kamaishi City, Iwate Prefecture.
12. Foundation for International Development/Relief (FIDR) has been providing household items,
food ingredients and basic commodities and other supports in Miyako City, Yamada Town, Okaji
town and Tanohata village, Iwate prefecture.
13. International Volunteer Center of Yamagata (IVY) has been providing commodity support for
those who are in the shelters in remote locations and small scale shelters. With 'Cash for work',
our objective is to reach those who lost job in Ishinomaki City and Kesennuma City.
14. Kokkyo naki Kodomotachi, Children without Borders (KnK) has been providing psychosocial
care and education support to juveniles in 5 municipalities in coastal part of Iwate Prefecture(Yamada Town, Otsuji Town, Kamaishi City, Ofunato City and Rikuzentakada City).
15. Service for the Health in Asian and African regions (Share) has been providing emergency
medical assistance in Natori City right after the massive earthquake and working as a bridge
between local government or local medical agencies and victim according to the needs.
16. JAPAN TEAM OF YOUNG HUMAN POWER (JHP) has established disaster volunteer
center in collaboration with local social welfare associations in Minami Sanriku town, Miyagi
Prefecture. IJP has continuously been helping registration and assigning volunteers as well as
needs assessment of evacuation centers and regions.
17. JEN has been providing support for rubble removal, support for temporary housing,community space, recovery assistance for Small and Medium sized Enterprises/individual
business owners, providing the reconstruction support as well as start-up business support forindividual business owners who were affected by disasters, volunteer recruitment andmanagement and organizing psychological care workshops.
18. ShaplaNeer (Citizens' Committee in Japan for Overseas Support) has been running disastervolunteer center, distributing emergency relief supplies, clearing collapsed houses, accepting
volunteers to activities and coordinating between NPOs and the Social Welfare Council.
19. Shanti Volunteer Association (SVA) has been providing support for victims in temporary
houses and organizing/facilitating in meetings of residents for recovery and reconstruction in29

Kesennuma City, Miyagi Prefecture, Rikuzen Takata City, Ofunato City, Otsuji Town and
Yamada Town, Iwate Prefecture.
20. Japanese Organization for International Cooperation in Family Planning (JOICFP) has been
providing support to omen, pregnant women and new born children who were affected by thisdevastating disaster in Iwate Prefecture, Miyagi Prefecture, Fukushima Prefecture and Ibaraki
Prefecture
21. Terra People Act Kanagawa (TPAK) has been providing psychosocial care and support tochildren in two nursery schools in Kamaishi city in Iwate prefecture.
22. Terra People Association has been providing psychosocial care and support to disaster
affected victims, especially children and mobilizing volunteers to remove debris in Ishinomaki
city and Kesennuma city in Miyagi prefecture.
23. Child Fund Japan has been delivering relief supplies to Minamisoma City, Fukushima
Prefecture, Natori City, Sendai City, Ishimaki City, Miyagi Prefecture and Ofunato City, Iwate
Prefecture and provided psycho-social care to children and families whose lost lives of theirmembers.
24. Japan Association for Refugees (JAR) has been providing support to those who tend to beleft behind in existing assistance system such as women, foreigners continuing to live in Japan,
as well as individuals who have difficulties in living at evacuation centers in both Iwate andMiyagi Prefecture.
25. Association for Aid and Relief, Japan (AAR ) has established our field offices in Sendai Cityand Morioka City and has been working together with government and related organizations
and providing emergent and recovery supports responding to changing needs such as food,
fuels, daily commodities, care beds, wheel chairs and office equipments for re-starting service atsocial welfare institutions.
26. Japan Overseas Christian Medical Cooperative Service (JOCS) has been providing mental
care assistance by dispatching counselors and nurses to support people who settled at shelters
temporarily and those who live in isolated villages in cooperation with Charitas Kamaishi.

3027. Japan Volunteer Center (JVC) has been doing advocacy work, sharing information
regarding effects of nuclear plants in Miyagi and Fukushima Prefecture and distributing radios in
Minami Soma City.
28 Results Japan, based in Tono City, Iwate Prefecture, our activity cites range from 5
municipalities such as Kamaishi City, Yamada Town, Otsuchi Town, Ofunato City andRikuzentakada City, Iwate Prefecture, has been providing assistance through soup kitchen andconducting hearing to catch the needs for life and employment at evacuation centers incooperation with other organizations in the coast of Iwate Prefecture.
29. Habitat for Humanity Japan has been conducting need assessments, coordinating
volunteers’ activities, removing debris and distributing goods, tool kits and commodities
necessary for rebuilding of houses and reconstruction of communities, in Ofunato andRikuzentakata City, Iwate Prefecture, Ishinomaki City and Onagawa Town, Miyagi Prefecture
30. Campaign for the Children of Palestine has been providing support to children and theirfamilies (supplementing classes, provision of playing spaces, library corner, acceptance andprovision of stationary, provision of picture books and school backpacks, activity for Children'sDay) in Ootsuchi Town, Iwate Prefecture
31. Peace Winds Japan (PWJ) has been providing basic commodities and psychosocial care to
those who have moved to temporary housing.
32. Bridge Asia Japan (BAJ) has been providing a wide variety of nutritious side dishes cookedin the kitchen of a driving school in Rikuzentakada City and delivering them to temporary
housing in cooperation with assistance team "Save Iwate" based in Morioka City, Iwate
Prefecture.
33. Médecins du Monde Japon has dispatched psychiatrists, nurses, specialists in exercise
therapy,clinical

psychotherapists,

psychiatricsocialworkers,

acupunctures,

medicalcoordinators, general coordinators and managers to the devastated area in Otsuchi Town,
Iwate Prefecture.
34. World Vision Japan has been proving basic commodities, mental care for children, schoolsupplies, buses and lunch to support school life of children in the affected areas in Minami
Sanriku Town, Tome City and Kesennuma City, Miyagi Prefecture.

31

CHAPTER 3DISASTER MANAGEMENT SITUATION IN CAMBODIA
This chapter provides an overview of natural hazards, recent major disasters in Cambodia
and disaster management system in Cambodia.
3.

NATRUAL HAZARDS IN CAMBODIA

3.1

Natural Hazards Likely to Affect the Country

Disasters are inseparable from economic, social and environmental features of Cambodia. The
country experiences almost all types of hydro-meteorological hazards such as floods, drought, heavy
storms (or typhoon), fire incidents and epidemics. Most geographical regions of the country (i.e.
Riverine Central Plains, coastal ecosystems and Dangrek mountain range in the north andCardamom mountains in the southwest) are exposed to one or more of these hazards. Additionally,
climate change is expected to increase the frequency, intensity and severity of these extreme natural
events. As the majority of Cambodians are farmers and their livelihoods mainly depend upon
subsistence agriculture, the vulnerability of people living in rural areas is very high and may continue
to rise, requiring improved preparedness and planning (NCDM, 2013a).
3.1.1 Floods

Figure 6: Flood Map

32

Cambodia is one of the five countries located along the Mekong River, and its landscape consists ofrolling plains and lowland. During the monsoon season, Cambodia experiences flash floods usually
after heavy rainfall. The provinces of Battambang, Kampong Chnang, Kampong Speu, Kampong
Thom, Kampot, Kandal, Pursat and Rattanakiri are regularly hit by flash flooding. The second type offlood, the much slower but prolonged flooding, is caused by the overflow of Tonle Sap river and
Mekong tributaries, inundating the provinces of Kampong Cham, Kratie, Kandal, Prey Veng, Stung
Treng, Svay Rieng and Takeo.

Figure 7: Cambodia Hazard Calendar

Source: MAFF, NCDM in UNDMT (2011)

3.1.2 Droughts
Compared to floods, drought is arguably less understood and researched making it difficult togenerate national and international response. The drought condition – primarily a result of erratic
rainfall – is exacerbated by limited coverage of irrigation facilities (the current coverage is around
20%).

33

Figure 8: Drought Map

Drought in Cambodia is characterized by loss of water sources caused by the early end or delays in
expected seasonal rainfall. Drought severely affects farming productivity especially among rice
growing communities who rely solely on rain or river-fed irrigation. Low agricultural yield due toextended drought has increased indebtedness of families and contributed to widespread foodshortages.

3.1.3 Typhoons

Tropical cyclones are the most costly meteorological disasters affecting East Asia and the Pacificwith, on average, 27 tropical cyclones affecting some parts of the region each year (Chan 2008,
quoted in WB 2013). Some typhoons and tropical depressions that reach Indochina do not weakenover the land and produce torrential rainfall and extensive flooding in Cambodia. Typhoon becomesmost damaging when it hits during the flooding season (September-October) as it causes heavy
precipitation events.

34

3.2

Recent Major Disasters

3.2.1

Flood in 2011 & 2013

In 2011, floods affected 350,000 households (over 1.5 million people) and 52,000 households were
evacuated. 18 out of 24 provinces in Cambodia were affected; 4 provinces along Mekong River andTonle Sap were worst hit. 250 people lives were dead and 23 people sustained injuries in the floods
in 2011. 431,000 hectares of transplanted rice fields were affected and 267,000 hectares of rice
fields were damaged. 925 kilometers of the national, provincial and urban roads were affected and360 kilometers of the roads were damaged. The 2011 floods caused an estimated loss at 630 million
USD.
Source: NCDM

Figure 9: Province affected by flood from 2000 to 2003

In 2013, floods affected 20 out of 24 provinces, 377,354 households and claimed 168 lives andforced 31,314 households to evacuate themselves to safe areas. Compared to floods in 2011, floods
in 2013 appear to have been less extensive in scale, although in some provinces the impact –including number of evacuated families, damaged crops, damaged infrastructure – was moresignificant due to a combination of factors such as: unexpected gravity of the floods, both in extent
and intensity, longer time for waters to recede, repeated floods and flash floods, limited
preparedness undertaken in advance and limited early warning.

35

3.2.2Droughts from 2009-2012

In 2009, 13 provinces out of 24 provinces were affected by severe droughts. 57,965 hectares of rice
crops were affected and 2,621 hectares were destroyed. In 2010, 12 provinces out of 24 provinces
were affected by severe droughts. 14,103 hectares of transplanted rice were affected by droughts;
3,429 hectares of transplanted rice seedlings and 5,415 hectares of subsidiary crops were damaged.
In 2011, drought affected 3804 hectares of rice fields and destroyed 53 hectares. In 2012, drought hit
11 out of 24 provinces, affected 14,190 hectare of rice fields and destroyed 3151 hectares.
Source: NCDM

Figure 10: Province affected by drought from 2000 to 2003

3.2.3

Typhoon Ketsana in 2009

On 29 September 2009, Cambodia was hit by Typhoon Ketsana. 14 out of 25 provinces were hit by
the typhoon, and it affected 180,000 households, killed 43 people and injured 67 people.
3.2.4

Lightning Strikes

Lightning strikes claim human lives and livestock and destroyed house and facilities mainly in therural areas. In 2011, Lightning strike killed and injured 165 and 149 and 101 people and injured 72
people in 2012.

36

3.3

DISASTER MANAGEMENT SYSTEMThe Royal Government of Cambodia considers disaster management as a key component of its
social and economic planning. Floods and droughts have caused serious damage and loss to
Cambodia, and endanger the Royal Government’s efforts to enhance the economy and well-being of
Cambodian society. Cambodia’s resources are very limited and these have to be shared across awide range of development programs such as roads and bridges, and relief for affected communities.
It is clear that natural calamities have worsened poverty in Cambodia and thus effective disastermanagement would be an important contribution to poverty reduction.
Following the adoption of Hyogo Framework of Action, Cambodia developed the National Action
Plan and Strategy on Disaster Risk Reduction 2008-2013 to deepen its efforts to reduce disasterrisks. The following diagram presents the country’s disaster management policy development:

1995: NCDM set
up under subdecree No.54
ANKR-BK

June 1994
Drought
Sept 1996
Flood

Feb 2002: sub-decree
NS/RKT/0202/040
defines more clearly
the mandate andstructure of NCDM

August1999
Flood

2005: Cambodia
signed the Hyogo
Framework for
ActionJan 2002:
Drought
August 2002:
Flood

2006: CCDM March 2009: the SNAP
established by for DRR (2008-2013) is
Sub-decreelaunched officiallyn°61 HNK

April 2005
Drought

Oct 2009
TyphoonKetsana

August 2011
Flood

August
2001
Flood
July
2000

Figure 11: Evolvement of Disaster Management in Cambodia

37

Source: NCDM, 2013

3.3.1

Disaster Management Plan, Policy and Strategy

Legal System and Framework
NCDM Mechanism structure has been established from the national level down to the commune andvillage levels in conformity with:+ Royal Decree No. NS/RKT/0804/236 dated August 31, 2004 on Amendment of Article 1 and Article
2 of Royal Decree No. NS/RKT/0202/040 dated December 16, 2002 on the Establishment of
National Committee for Disaster Management;+ Sub-decree No. 30 ANKR.BK, dated April 09, 2002 on the Organization and Functioning of the
National and Sub-National Committees for Disaster Management;+ Sub-decree No. 61 ANKR.BK, dated June 29, 2006 on the establishment of the Commune
Committee for Disaster Management (CCDM);+ Circular No. 02 on Preparedness and Disaster Management, dated July 02, 2001;+Circular No. 01 S.R on Disaster Preparedness and Response, dated June 07, 2002;+ Direction No. 315 NCDM, dated July 21, 2010 on the establishment of the Village Disaster
Management Team (VDMT) for the implementation of CBDRM.
+ Law on Disaster Management was drafted and will be submitted to the National Assembly forenactment by 2014.
+ National Strategy Development Plan (NSDP) 2009-2013; Strategic National Action Plan for
Disaster Risk Reduction (SNAP) 2008-2013 & National Action Plan for Disaster Risk Reduction
2014-2018 (drafted & adopted by 2014)

National Strategic Development Plan (NSDP) Update 2009-2013 and the Strategic National Action
Plan on Disaster Risk Reduction (SNAP) 2008-2013 work as the overarching frameworks, andprovide strategic direction to disaster risk management for the country. The Royal Government of
Cambodia (RGC) has invested considerably to reduce disaster risks through its regular development
programmes at national and sub-national levels.

38

Following the establishment of National Committee on Disaster Management (NCDM) in 2005 andadoption of SNAP in 2008, the RGC has emphasised systematic and proactive efforts in DRR. The
country has achieved remarkable knowledge and skills to live with disaster risk. Cambodia endorsed
the Hyogo Framework for Action (HFA) in 2005 that provides a systematic and strategic approach to
reduction of vulnerability and risk to disasters.

The current SNAP comes to an end in 2013. The independent assessment of SNAP has taken stockof key achievements, challenges and gaps of the strategic plan. Building on these and otherevidence and learning, this National Action Plan on Disaster Risk Reduction (NAP-DRR) is
developed for 2014-2018.
+ Community Based Disaster Risk Management (CBDRM) Strategy
CBDRM is a strategy that builds upon existing capacities and coping mechanisms of communities tocollectively design and implement appropriate and doable long-term risk reduction and disaster
preparedness plans. The strategy involves the participation of local actors, particularly vulnerable
communities, who actively work to identify causes of vulnerability and actions to mitigate the impact
of vulnerability from these natural disasters.

Additionally, the strategy empowers communities towards long-term capacity to adapt. With recurrent
drought and flooding and threats from other natural disasters in Cambodia, CBDRM is seen as theway forward in minimizing enormous loss of life, property and livelihood. In Cambodia, thegovernment considers CBDRM as an integral part of its rural development program to alleviate
poverty

3.3.2

Structure of Disaster Management

National Committee for Disaster Management (NCDM) is established for overall coordination fordisaster management. Cambodia has set up necessary legal, policy and institutional foundations fordisaster management. Headed by the Prime Minister, NCDM was set up in 1995 that consists of 22
members from different Ministries, Cambodian Armed Forces, and Civil Aviation Authority as well as
representatives of Cambodian Red Cross.

The NCDM Secretariat, which is the locus of disaster management for the country, was set up tolead and coordinate disaster management affairs and to provide support to NCDM. As part of the39

decentralization process, disaster management institutions such as Provincial Committee forDisaster Management (PCDM), District Committee for Disaster Management (DCDM) andCommune Committee for Disaster Management (CCDM) have been set up to lead disastermanagement at their respective levels. Village Disaster Management Group (VDMG) is also in placeas the lowest level body for disaster management.

National Committee for Disaster Management

CabinetNCDMSecretariat

Financial
Inspection Unit

DM Working Teamof Ministries/
Institutions*

Provincial-Municipal Committee
for Disaster Management (PCDM)

PCDM Secretariat

District Committee
for Disaster Management (DCDM)

DCDM
Secretariat

Commune Committee
for Disaster Management (CCDM)

CCDM
Secretariat

Village Disaster
Management Group(VDMG)* DM Working Team of Ministries/ Institutions

Each ministry/ institution has established the Disaster Working Group of the Ministry/Institution inorder to boast the spirit of self-reliance in participating and solving disaster. It is responsible forcoordinating all activities involving Disaster Preparedness, Response and Rehabilitation.

Figure 12: Disaster Management Structure of Cambodia

40

Source: NCDM, 2013

2.7

DM/DRR Collaboration/Assistance in Cambodia

NGOs play important roles in the implementation of the community based DRR activities. They
work with the NCDM Secretariat to develop outreach strategies to cover the locations that arevulnerable to current and future disasters. They also play important roles with the NCDM
Secretariat in the advocacy for resource mobilisation, facilitate knowledge management andtake part in the monitoring and evaluation of the NAP-DRR (NCDM, 2013a).
The National Committee for Disaster Management (NCDM) has received assistance and beenworking in collaboration with the following development partners:
DRR Donors (UNISDR, et al., 2009):• DIPECHO: Ongoing funded projects include Promoting and Strengthening Disaster Resilient in
Cambodia. DIPECHO Partners include several NGOs including Action Aid, Lutheran World
Federation (LWF-Cambodia), Cambodian Red Cross, Danish Red Cross, Netherlands Save theEarth, etc. DIPECHO South East Asia Action Plan (Subject to availability of funds) will support
DIPECHO projects beginning April 2010 and will have duration of maximum 15 months.

• AusAID: Reducing the vulnerability of the poor to natural disasters is one of the three themesfor Australia’s engagement in development cooperation with Cambodia.

• ADB - Community Based Disaster Risk Reduction Strategy for Flood and Drought (2007 –2012) Implemented with ADPC, in partnership with MoWRAM. Promoting community level
action and developing CBDRM plans.

• UNDP: UNDP is engaged in supporting the NCDM and Mekong River Commission as well as
in developing climate forecasts and applications, and flood mapping and early warning initiatives• World Bank: The GFDRR/WB is preparing a Technical Assistance to ensure better
coordination and implementation of SNAP-DRR , to integrate disaster risk reduction into
national development planning, implement the national CBDRR strategy and develop guidelines
for integration of DRR into local development plans, initiate the mainstreaming DRR into policies
and programs of two ministries, support the development of provincial multi-hazard DRR plans

41

and implement partnerships in at least two new provinces, strengthening the Management of
NCDM. Similarly past World Bank engagement under the completed Flood Emergency
Rehabilitation Project (FERP) repaired and rehabilitated infrastructure damaged by floods in
2000, and provided TA to help build capacity to more effectively manage and mitigate futurewater disasters.

GTZ: Providing • major support to MRC; GTZ-MRC -ADPC Flood Emergency Management
Strengthening (FEMS)• WFP: Food aid through Food For Work program targeted towards poorest communities;
damage and needs assessment (DANA) guidelines and tools for NC DM developed• UNESCAP: Partnership for Disaster Reduction in Southeast Asia (PDR-SEA) (Phase I, II, III &IV)

UN Agencies
UNDMT

UN Disaster Management Team

UNICEF

United Nations Children's Fund

UNDP

United Nations Development Program

FAO

Food and Agriculture Organization of the United Nations

WFP

World Food Programme

WHO

World Health Organization

REGIONALADRC

Asian Disaster Reduction Center

ADPC

Asian Disaster Preparedness Centre

AHA

ASEAN

Coordinating

Centrefor

Humanitarian

Assistanceon

management, “the AHA Centre”

GLOBAL
UNDAF

United Nations Development Assistance Framework

UNESCAP

United Nations Economic and Social Commission for Asia and the Pacific

UNOCHA

United Nations Office for the Coordination of Humanitarian Affairs

UNISDR

United Nations International Strategy for Disaster Reduction

42

disasterCHAPTER 4RESEARCH METHODOLOGYThis chapter presents the research design, data collection techniques and data analysis
techniques. The following research methodology was chosen to best answer the aim andobjectives of the study seeking to investigate collaboration between the government and NGOs
in DRR/DM.

4.1

Research Design

Secondary data from the reports and relevant documents of NGOs and government
agencies and relevant online resources were selected. The selected data are related toinitiatives of NGOs and DM government agencies on DM/DRR activities, formation ofcollaboration, strategies employed in DM/DRR, existing collaboration, past achievement/
participation in DM/DRR and challenges and suggestions for more enhanced collaboration.

4.2

Secondary Data/Documentation

The approach to collecting and analysing secondary data is to conduct an analysis of allavailable information, in an attempt to identify DRR in collaboration between NCDM and thenature of their collaboration and to suggest possible pathways for enhancing collaborations andalliances between the two parties in their DRR endeavors.

Analysis of these documents involved the assessment of the following issues: initiatives,
collaborations, strategies, current activities, constraints and suggestions for enhancing thecollaboration.

4.3

Data Analysis Methods

According to Yin (1989), data analysis consists of examining, categorizing, tabulating, orotherwise recombining the evidence, to address the initial proposition of a study. Yin (1989:99)
noted “analyzing case study evidence is especially difficult because the strategies andtechniques have not been well defined in the past”. Therefore, analyzing case study depends

43much on an investigator’s own style of rigorous thinking, along with the sufficient presentation ofevidence and careful consideration of alternative interpretations (Yin, 1989).

The selected secondary data from the reports and relevant documents of the NGOs andthe DM Government Agencies were categorized and analyzed according to the following issues:z

DRR initiatives;zcollaboration, strategies, current activities; andzconstraints and suggestions for enhancing DRR.

44

CHAPTER 5
FINDINGS & DISCUSSION

This chapter presents findings and discussion of the relevant secondary data. Secondary data
were reviewed to identify strategies of NGOs and the government in DRR, nature and extent of
their collaboration, and to answer questions related to initiatives on DRR collaboration andpartnership, how collaborations were formed, their past achievements in DRR, and challenges
and possible solutions to enhance the collaboration.

The information gained through the secondary data are presented and discussed respectively
as initiatives and collaboration; good practices and lessons learned; and challenges andpossible suggestions to enhance the collaboration in DRR, as follows.

5.1 Initiatives and Collaboration
Collaboration between NCDM and NGOs in DRR is reflected in suggestions of Brinkerhoof(1999) in making collaboration effective. He suggests collaborative stakeholders need to deal
with a number of basic factors: specification of objectives and degree of convergence,mechanisms for combining effort and managing cooperation, determination of appropriate roles
and responsibilities, and capacity to fulfill those roles and responsibilities.
This sub-chapter presents initiatives and collaboration between NCDM and NGOs which include
DRR activities of NGOs in Cambodia, DRR NGOs’ Networks and DRR Forum.

5.1.1 DRR Activities of Non-Government Organizations in Cambodia

In Cambodia, there are a good number of NGOs working on various aspects of development
encompassing livelihoods, education, agriculture, rural development, DRR, climate change
adaption, health care, women and gender and good governance. ADPC et al. (2008)
summarizes DRR Activities implemented by NGOs in Cambodia as follows:+ Capacity building for NCDM sub-national levels and local structures and local partners to
mitigate the risks and address the disasters affecting vulnerable, rural communities, throughorientation workshops and relevant trainings on DM/DRR

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+ Mobilization and training of volunteers, first aid trainings, psychosocial trauma counseling withspecial focus on women;+ Support the decentralized structures of NCDM to integrate disaster risk reduction into thenational development agenda, and to realize the Hyogo Framework of Action goals; CDP/CBDRM planning, facilitation in integration of DRR into sub-national and commune development
plan, supporting provincial DRR action plans;+ Mainstreaming DDR in school curriculum & Disaster risk reduction through school activities+ Building community resilience to disasters: Hazard mapping, Flood EWS, Community
assessments, participatory vulnerability assessments;+ Emergency responses, small-scale mitigation infrastructures, livelihood assistance; and+ IEC material production and distribution.

Please see Annex 1: the list of NGOs implementing DRR and their project activities.

5.1.2 DRR NGOs’ Networks

5.1.2.1 UNDMTThe United Nations Disaster Management Team (UNDMT) is composed of representatives fromthe UN Food and Agriculture Organization (FAO), United Nations Development program(UNDP), United Nations Children’s Fund (UNICEF), UNFPA, World Food Program (WFP) andWorld Health Organization (WHO) in the country. The WFP coordinates this group, which is
responsible to the UN Country Team. As part of its preparedness activities, the UNDMT meetsregularly to compile key information about disaster risks and preparedness arrangements incountry; coordinate the assistance of the various UN organizations/agencies in relation tonational

disaster

preparedness

arrangements;

draw

up

and

regularly

reviewanaction/preparedness plan for the UN system at country level so that humanitarian assistance istimely, coherent and effective; review the implications of known and potential hazards for thedevelopment process in the country. The UNDMT reports to the UN Country Team. The UNDMT
works closely with the National Committee for Disaster Management (NCDM) in disastercoordination, preparedness and response. UNDMT members actively participate in countrylevel partnerships, such as Disaster Risk Reduction Forum, which aim to bring together
government, donors, international organizations and NGOs to share information and harmonize
interventions on disaster management and response (UNDMT, 2011).

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5.1.2.2 HANet

The Humanitarian Accountability Network (HANet) primarily promotes accountability in thehumanitarian sector. This group is currently chaired by CARE and it counts World Vision, Oxfam
GB, IFRC, CRC, CONCERN and other local NGOs among its members. This is a Forum forfacilitating and promoting accountability among practitioners, advocating for standards and goodpractices.

5.1.2.3 JAG

According to Kaneka, K, (2011), another network is Joint Action Group (JAG): A strategic group
to discuss about the DRR issue, coordinating and sharing information concerning DRR activities
between ActionAid, Oxfam, Concern, DRC/CRC, DCA/CA and ADPC, Plan International and
SCA. JAG members meet regularly to share information out of session and collaborate toimplement the JAG Activity Plan. The JAG meetings are currently chaired and hosted by JAG
member organizations on a revolving basis. JAG’s main function is to work with NCDM tosupport DRR Forum, to develop TOT training strategy & plan for NCDM to deliver training, tocoordinate and do advocacy at national sub-national level, conduct joint awareness raising
activities and joint research, support regular consultation of Commune Council leaders atnational level and share first hand experiences and knowledge through exchange visits

5.1.3 DRR ForumDRR Forum is quarterly organized with participation of representatives from NCDM, NGOs/
INGOs and UN agencies, and participation in the DRR forum can extend to all individuals,organisations, and government agencies concerned with disaster management in Cambodia.

To maximize human and financial resources, there should a regular forum where NGOs candiscuss and share their interventions, as well as their coverage areas. This is to minimize
duplication of efforts among project partners and participating local communities. Sharing of key
technical and social expertise on health, sanitation, and management is also a positive way toharmonize to the extent possible efforts and resources (ADPC et al., 2008).

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NGOs receiving funding from DIPECHO established the 1st Community Based Disaster Risk
Reduction (CBDRR) forum on 01st August, 2005. The CBDRR forum members were only
among the DIPECHO partners at the outset. Later on the forum invited the National Committee
for Disaster Management (NCDM) to participate the forum. At that stage, the objectives were topromote exchange of DRR experiences; increase coordination of DRR agency activities; andraise awareness of DRR issues in the wider development community & RGC institutions including advocate for mainstreaming of DRR in local development planning processes.

Following the changing scenarios of disaster in Cambodia and participation more stakeholders
in disaster management program, CBDRR forum needed to be extended. In 2006, CBDRR
forum was renamed as Disaster Risk Reduction (DRR) forum and all stakeholders working in
the field of disaster management have been invited to participate in the forum. DRR forum ischaired by NCDM with financial support of partner NGOs.

DRR Forum aims to enhance disaster management in Cambodia through improved information
sharing; coordination of initiatives and joint action to promote the highest possible standards
and disaster risk reduction practices.

The current objectives are to enhance coordination and learning among all agencies working in
DRR and emergency responses through information sharing, experience exchange and joint
initiatives; to build the capacity of relevant agencies and practitioners in disaster management;
and to initiate and contribute toward policy dialogues for improving disaster-related policies andpractices of policy makers and implementers.

5.2 Good Practices and Lessons learned

There are some good practices and lessons learned from collaborative work between NCDM
and NGOs, which includes ongoing consultation and information sharing, DRR training
workshops, mainstreaming DRR into school curriculum, integration of DRR into sub-national
development plans, assistance in developing provincial disaster preparedness contingency
plans and Disaster Information Management System (MDIS), DRR forum, creating NGOs’
networks and NGOs’ consortium, collaboration in developing IEC materials and joint celebrationof the ASEAN Day for Disaster Management and the International Day for Disaster Reduction.

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5.2.1 Ongoing Consultation and Information Sharing

Donors’ representatives and/or heads of NGOs implementing DRR programs in Cambodia havemet NCDM leaders to inform NCDM about their progress of the current project activities andtheir future project activities and target areas, share with them about good achievements andthings to be improved for their upcoming projects, and explore windows of opportunities in areas
they may assist NCDM. They sought NCDM’s suggestions to improve effectiveness andefficiency of their project activities. In return, NCDM have updated about its activities and sharewith them about areas NCDM needs their assistance.

5.2.2 DRR Training Workshops

Most DRR training workshops for building capacity of sub-national levels and local structure of
NCDM have been organized in collaboration between NCDM and NGOs. NCDM has playedroles in communicating and facilitating with its sub-national levels in selecting their officials toattend the trainings and assigning senior officials to be speakers/trainers/facilitators during thetrainings, while NGOs have been responsible for logistics and financial assistance for the
trainings. NCDM and NGOs have collaborated to design and develop training modules. NGOs
have translated relevant documents and training modules in Khmer language, and NCDM
officials have proofread, checked and revised DRR/DM terminologies.

5.2.3 Mainstreaming DRR into School Curriculum

Key stakeholders have been working closely in implementing this project. These stakeholders
include Ministry of Education, Youth and Sports (MoEYS), NCDM, United Nations Development
Program (UNDP) Cambodia, Pedagogical Research Institute and Cambodia Education Sector
Support Project (CESSP). Project Working Group meeting was chaired by a MoEYS Undersecretary of State, and technical working group meeting was held regularly with officials frompedagogical research department to review the existing secondary curriculum and to revise thedraft DRR module. Representatives of NCDM, MoEYS and NGOs have collaborated indeveloping training modules and school materials for mainstreaming DRR into school
curriculum, training school teachers of target schools and conducting monitoring and evaluationof the project activities.

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5.2.4 Integration of DRR into Sub-National Development Plans

A number of NGOs have worked with NCDM in their target provinces to build capacity of subnational levels and local structure of NCDM in integrating DRR into development plan andfacilitate in local planning processes to ensure that CBDRM was integrated into the local
development plans. ADPC has developed Guideline for Integration of DRR into Development
Planning Process at Sub-National Level in CAMBODIA. NCDM officials at the national and subnational levels and staff members of NGOs have provided guidelines and facilitating in
integrating DRR into development plans and investment plans at commune levels.

5.2.5

Assistance in Developing Provincial Disaster Contingency Plan.

UNDP Flood Early Recovery Project assisted NCDM and PCDMs to prepare the national andprovincial contingency plans in 5 target provinces. The plans included the main 3 components in
DRR content such as disaster preparedness, emergency response, and recovery phase toensure the NCDM and PCDM can use their National and Provincial Contingency Plans to copewith future disaster events. As a result, NCDM and PCDM have been putting these 3
components in their National and Provincial Contingency Plans and also replicating it into otherprovinces. In addition, NCDM and PCDM considered its national and sub-national contingency
plans as an important tool for response to future disaster events effectively (UNDP, 2013).

5.2.6

Assistance in Developing Disaster Management Information System (DMIS)

In order to improve coordination in humanitarian assistance, UNDP had assisted NCDM toestablish Disaster Management Information System (DMIS). The DMIS was officially launched inAugust 2013. The DMIS has now existed in Provincial Committee for Disaster Management(PCDM) in the 5 selected provinces such as Prey Veng, Kratie, Kampong Thom, Siem Reap
and Kampong Chnnang in Cambodia. With the support from UNDP, NCDM and PCDM have beenable to establish a disaster loss database and develop the capacity of relevant institutions andorganizations on managing disaster data. The DMIS provides useful information and analysis tosupport policy and decision-making for preparedness, mitigation, response, and risk reduction.

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5.2.7 DRR Forum

Disaster Risk Reduction Forum has improved the coordination and collaboration among DRR
stakeholders and with NCDM. NGO partners, on revolving basis and/or as a consortium, coorganize DRR Forum with NCDM and provide financial and technical assistance for organizing
DRR Forum. DRR Forum has raised different themes for discussion based on urgency and time
relevance of themes such as Wet Seasonal Preparedness for Emergency Response;
experiences on communities and families disaster preparedness cooperation on DRR andclimate change resilience; and mainstreaming of DRR/CCA into national programs.

Notably, DRR Forum has engaged with key government agencies and NGOs working in CCA to
make linkage between DRR and CCA and identify good practices and challenges on
mainstreaming of DRR/CCA into development plans.

5.2.8 NGOs’ Consortium

Plan International Cambodia (Plan) and World Vision Cambodia (WVC) have established aconsortium funded under DIPECHO VIII to support national and sub-national Disaster
Management Committees to improve their ability to manage the risks associated with disasters.
The consortium has hired a project consultant who has an office within the NCDM building.
Hence, it is convenient and cost-effective to work in collaboration with government agencies,
namely NCDM, through creation of a consortium of a few NGOs with similar activities andobjectives and having a focal point of the consortium based in the NCDM facilities.

5.2.9 DRR Networks

Apart from DRR Forum with participation of many stakeholders, the existence of the United
Nations Disaster Management Team (UNDMT), the Humanitarian Accountability Network(HANet), Joint Action Group (JAG) and NGOs’ Consortium, is crucial in coordinating theiractivities, jointly liaising with NCDM as a group, building synergy among themselves, andsharing and exchanging information and lessons learned/good practice and advocacy, withrelation to DRR.

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5.2.10 Collaboration in Developing IEC materials

To date, through collaboration between NCDM and NGOs, a good number of IEC materials
have been produced. The IEC materials include prevention manuals such as Risk Land Game
(Disaster Awareness for school kids), Flood Preparedness, Drought Preparedness Posters andDrought Mitigation Radio Drama and Psychosocial Care in Disaster Management, Facilitation
Manuals for Trainers of Trainees in Natural Disasters & Tsunami Disaster, Psychological Carefor Women have been developed and produced and distributed to target communities. NCDM
has assigned a focal person to work with NGOs during IEC development process. NGOs fundIEC production while NCDM gives relevant inputs and suggestions on content and terminology
and revise IEC drafts.

5.2.11 ASEAN Day for Disaster Management and the International Day for Disaster Reduction

NCDM and NGOs have organised joint collaborative activities to commemorate the ASEAN Day
for Disaster Management and the International Day for Disaster Reduction, such as
exhibition/display of IEC materials/banners, parade campaigns, school contests/activities (quizand drawing contest) to raise awareness of disaster preparedness.

5.3 Challenges

There are several challenges in collaboration processes. Specification of objectives and degreeof convergence which is the starting point for any partnership is often problematic especially indeveloping countries for a variety of reasons: the multiplicity of actors and their broad range ofinterests making it difficult to reach agreement on policy and program objectives, the power
differential among the various actors which arises as a function of differences in resource level;
operational capacity and political clout; and the tendency for partners' objectives to shift andpotentially diverge over time as policy implementation is an extended process, and the interestsand purposes of the actors involved can change (Brinkerhoof,1999).

Casals, J. (2013) raised issues and challenges on NCDM/NGO collaboration such as NCDM
organizational capacities encompassing significant resource constraints, unsustainable project
implementation, uncoordinated donor support, lack of human resource development initiatives
and inadequate information management system.

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This sub-chapter presents and discusses challenges of working in collaboration between NCDM
and NGOs, including resource constraints, coordination issues and information management
systems.

5.3.1 Resource Constraints

The current lack of more formal and legal basis for various ministries to undertake disaster risk
management initiatives together with the absence of regular operational budgets for national
and local disaster management bodies (i.e., NCDM, PCDMs, DCDMs and CCDMs) are themost serious constraints in the pursuit of disaster risk reduction in the country (NCDM et al,2008).

The capacities of NCDM, PCDM and DCDM, local district authorities in terms of knowledge andskills on disaster management are still limited. In addition, they also have limited coordinationand national budget to support their own structure and existing human resources. This is due tothe fact that the Disaster Management Law has not been enacted that would enable NCDM tohave its own national budget to implement the disaster management programmes (UNDP, 2013).

Allocation of government’s own resources is limited. There are also challenges with staff
capacity at NCDM Secretariat and key Ministries. At sub-national levels DRR is still an add-on
responsibility of the provincial and district officials. PCDM and DCDM are now managed by staff
for whom DRM is an additional responsibility (NCDM, 2013a).

To make good coordination and effective collaboration, it is necessary for both parties to have
similar resources and understanding of and capacity to respond to the issue.

As far as

collaboration between NCDM and NGOs is concerned, NGOs have financial and humanresources while institutional capacity of NCDM at national and sub-national levels is insufficient, ,and NCDM does not have dedicated budget to provide trainings to officials at the sub-national
levels. DM is still an add-on responsibility of sub-national level officials. Like NCDM at thenational level chaired by the Prime Minister and its members including all the cabinet ministers,
at the provincial level, at the provincial level, provincial governors are the presidents of theProvincial Committee for Disaster Management (PCDM) and all heads of provincial departments53are members of PCDM. In practice, one of the provincial deputy chief of the cabinet is in chargeof all daily functions of PCDM as his additional function. This practice is also the same at the
district and commune levels which DM is an additional task to them.

As stated in the previous chapters, NGOs in Cambodia receive direct funding from donors:
DIPECHO, World Bank, and ADB, to name a few. They can afford to employ experts and skilled
and competent staffs and allocate funds for their project activities. Thus, they have both financial
and technical resources to implement their project activities while NCDM has minimal financial
and human resources. According to NCDM (2013b), there seems to be no structures for
CBDRM where there are no NGOs.

Casals, J. (2013) states that under its mandate, the NCDM is responsible for developing
disaster management capacities at three levels, namely: for its member ministries, for its own
staff, and for the sub-national DM committees (PCDMs, DCDMs and CCDMs). He notes thatciting the lack of financial and material resources, the Department of Preparedness & Training
has been unable to perform this task. NCDM sponsored capacity building and training for thedifferent ministries is non-existent. It does not have sufficient experience and capacities toprovide sector-specific disaster management training to the different ministries. Capacity
development of the NCDM for its own staff is limited, sporadic and predominantly one-time shortcourses. There are significant capacity development initiatives at commune levels mostly fromDIPECHO partners but NCDM participation remains largely activity-based and is reluctant totake the lead. For sub-national DM committees, especially at provincial and commune levels,
CBDRM projects of NGOs represent the only source of training and capacity building.

Chris Eijkemans, Oxfam country director, points out that the NCDM, which officially has nobudget, was improving but still lacked elements vital to the timely delivery of aid. Chris
Eijkemans states that “Oxfam believes that the [NCDM] needs to be fully empowered and[given] sufficient resources to coordinate relief efforts and ensure the relief assistance isprovided in a timely and appropriate manner” (The Cambodia Daily, 2003).

5.3.2 Coordination Issues

According to NCDM et al. (2008), the coordination of a wide range of disaster risk reduction
initiatives involving collaboration and partnerships between an equally wide range of national

54

and local government institutions, non-government organizations and potential technical andfinancial support institutions requires a strong coordinating mechanism. This coordinating
mechanism should build on existing structures within the NCDM especially since it is the solegovernment agency with the existing legal mandate to coordinate disaster management efforts
in the country.

Casals, J. (2013) observes that the number of donors and stakeholders providing access for
DRR and DRM initiatives is increasing as there is a current trend among development aid
agencies including the major development banks (e.g., DFID, WB, ADB, etc…) to allocate a
portion of disaster assistance provided, for DRR purposes (i.e., preparedness and mitigation
activities to reduce impact of future disasters).

However, NCDM (2013b) suggests those NGOs who are present in the same provinces need tocoordinate their programs on the ground so that non-project areas are covered and duplicationof project partners and target areas are avoided and see each other as a resource, making useof each other’s specializations, i.e. water and sanitation, health, etc. At the sub-national level,
current capacity building support remains limited to only high risk zones (covering only 50% of
the provinces) (NCDM, 2013 a).
The project-based approach in use also results in very strong tendencies for the projects andactivities of different stakeholders and donors to be implemented independent of each otherdespite obvious complementarities and opportunities for synergy (Casals, J. 2013).

Damien Riquet, a Bangkok-based disaster risk reduction expert working in Cambodia withinternational development organization PLAN, agrees that the government institutions dealing
DRR/DM have limited capacity and coordinating DRR activities, especially regarding monitoring
and reporting skills (the Cambodia Daily, 2013). He was quoted as saying in the Cambodia Daily(2013) that “monitoring and reporting has become the number one priority for disaster risk
reduction in Cambodia, but it is difficult when there is a lack of organization and leadership”. He
added that “the relevant ministries and authorities are getting involved more and more withdisaster risk reduction, they are making great progress, but without coordination between them,
they don’t get the most efficient result.”

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Coordination between NCDM and NGOs has been made through various mechanisms including
DRR Forum, UNDMT, HANet and JAG. However, Kaneka, K (2011) raises challenges incoordination among NGOs and different DRR networks. She stresses that many networks havebeen developed, but they do not understand each other well, and implementation of agreed
activity still not deliver on the deadline. DRR Forum still depends on external resources.

5.4 Possible suggestions to enhance the collaboration

Despite the facts that many constraints exist in the collaboration, it is necessary for NCDM togive top priority in enhancing coordination and liaison with NGOs/Donors. An office in charge ofliaison with NGOs/donors and DRR Forum needs to be created at NCDM to ensure effective
coordination with NGOs/donors and to make it convenient for them to find a right office/rightofficials to work with, rather than requesting for an appointment to meet top officials who areoccupied with many tasks. Due to its current lack of capacity and resources, the DRR networks
and the consortium should provide technical and financial support to NCDM in creating such an
office and make it fully functional and operational. A similar office should be created in PCDM,
enable effective coordination mechanism at the sub national levels. PCDM should have its own
office/facilities and dedicated officials to deal with its daily functions, instead of treating it as
secondary and additional responsibilities of senior officials at the provincial level.

Considering there have been sufficient mechanisms among DRR stakeholders, including DRR
networks, consortiums and DRR Forum, it is necessary to strengthen these existing networks
needs rather than creating new networks/mechanisms, making more difficult for coordination.
Due to the crucial role of DRR Forum in bring all DRR stakeholders together, donors, UNDTM,
HAnet, JAG and world Vision and Plan Consortium should collaboratively assist NCDM instrengthening the existing DRR Forum at the national and sub-national levels.

UNDP, donors and NGOs should continue providing support for creating Disaster Management
Information Systems at all the provinces in Cambodia and train key PCDM officials to use andmaintain DMIS. DMIS is a crucial tool enhancing coordination and collaboration among all
DRR/DM stakeholders.

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The Royal Government of Cambodia should expedite enactment of the DM Law to enable
NCDM and its sub-national levels to have budget and dedicated staff to implement DM
programs in Cambodia.

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List of Figures:
Figure 1: Overview of the Research Structure
Figure 2: Outline of the disaster management system in Japan
Figure 3: CDMC Composition
Figure 4: Structure of Basic Disaster Management Plan
Figure 5: Organization of National Government and Cabinet Office (Disaster Management)
Figure 6: Flood Map
Figure 7: Cambodia Hazard Calendar

Figure 8: Drought Map
Figure 9: Province affected by flood from 2000 to 2003
Figure 10: Province affected by drought from 2000 to 2003
Figure 11: Evolvement of Disaster Management in Cambodia
Figure 12: Disaster Management Structure of Cambodia

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ANNEXURE:
ANNEX 1
A. Disaster-Safe Welfare Community (“BOKOMI”)
As one of the lessons learned from the Great Hanshin-Awaji Earthquake, Kobe City establishedvoluntary organizations for disaster prevention in communities called “Bokomi” or Disaster-Safe
Welfare Communities. In Kobe City, educational programs on disaster management is residentoriented and involves the entire community in preparing for and working toward disasterprevention.

The Kobe City Community-Based Disaster Risk Reduction and Management

Program is dubbed as “Bokomi” or Disaster-Safe Welfare Community.
BOKOMI is Kobe City’s Community-Based Disaster Prevention Organization. Accordingly,
BOKOMI is established in every municipal elementary school district by the residents. The
reason why BOKOMI is based on all elementary school districts is that there is an existing“Welfare Community” organization established for welfare purposes in each elementary school
district and a disaster-prevention (bosai) organization integrated into the existing organization.
Also, elementary schools serve as evacuation sites for communities in emergencies (such as
disasters and crimes) in Japan. This is another reason why BOKOMI is established in eachelementary school district so that each BOKOMI can operate their evacuation site in case of an
emergency.
The process of establishing BOKOMI in local areas requires certain criteria such as first, theestablishment of a community-based disaster prevention organization is discussed and decided
on by local government organizations including the local city office (ward office) and the local
fire station, together with leaders of local residents’ associations, women’s associations, elderly
associations, volunteer fire corps, Parents-Teachers Associations (PTAs), etc.
During normal times, each BOKOMI conducts various emergency drill programs including how
to use the provided equipment and materials, as part of the activities in preparation for majordisasters.
In order to enable the utilization of people’s networks in case of emergency, BOKOMI also
conduct welfare activities (such as keeping in touch with and holding lunch gatherings for theelderly who live alone) as an effort to cover both community welfare activities and community

59

disaster prevention activities. This is a characteristic feature of the community-based disasterprevention organizations in Kobe City which were established based on the lessons learned
from the Great Hanshin-Awaji Earthquake (NOGRA, M.A., 2012)..
B. Kaeru Caravan: DRR Learning for Children
Kaeru Caravan is a brand new disaster prevention art program launched as part of the ten-year
commemorative project for the Great Hanshin-Awaji Earthquake. This program consists of aworkshop which allows participants to learn how to extinguish a fire and rescue and aid people
while enjoying game-like activities and “Kaekko Bazaar”, a toy exchange program designed byartist Hiroshi Fuji. As a result of this program, young families who rarely participated in disaster
drills before began to actively participate in the program.
Iza! Kaeru Caravan! is a new type of disaster drill program co-developed by plus (+) arts andthe artist Hiroshi Fuji. Based on the toy barter trading program "Exchange Bazaar", invented by
Fuji in 2000, that can attracts broader range of audiences and creates an enjoyable atmosphere,
the program turns bazaar’s "hands-on corner" into amusing disaster drills such as "fire-fighting","rescue" and "first-aid". The participants are able to learn about disaster prevention and acquire
related skills while enjoying themselves. This new attempt has attracted young families who
were not necessarily proactive about disaster drill before and had total of 7,000 family members
participated in the 10th anniversary events for the Great- Hanshin-Awaji Earthquake, over 19
days at seven different venues, in Kobe in 2005.
In 2006, in order to expand the program throughout Japan, the program changed its name from
"Kobe Kaeru Caravan 2005" to "Iza! Kaeru Caravan!", and held events in Yokohama, Niigata,
Osaka and Miyazaki. The program has continued to organize events in different cities in Japan
including Tokyo since 2007 while it starts to launch in the cities of other Asian countries. With
the help of +arts, most of the cities that held the program for the first time conducted the secondand following events voluntarily (NOGRA, M.A., 2012).

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Annex 2:

The list of NGOs implementing DRR below is compiled in Monitoring and Reporting Progress on
Community-Based Disaster Management in Cambodia (ADPC et al. 2008). It is presented
alphabetically and not an exhaustive list of NGOs involving with DRR in Cambodia.

5.1.1.1 ActionAid

Established in 1999 in Cambodia, ActionAid is an international organization working to fightpoverty and promote human rights (women’s rights, education, food security, human security
during conflicts and emergencies, just and democratic governance and the right to life anddignity in the face of HIV/AIDS).

ActionAid established CBDRR in Cambodia in 2007. Its program called “Strengthening
community resilience to flood and drought in Cambodia” seeks to build the capacity ofcommunity members and local authorities to understand and prepare for flood and drought. The
project works with partner NGOs toreach its target of 48 villages in Kratie, Svay Rieng and
Bantey Meancheay provinces over a period of 15 months.

Project activities include the capacity building and training of CCDMs, youth volunteers andschool teachers. Awareness-training activities are conducted in 16 primary schools. Technicaltraining on disaster preparedness, mitigation and management, community development
processes and project orientation seminars are also conducted with local authorities and local
leaders.

ActionAid’s program includes an information and awareness raising component that reaches out
to the larger village population and is integrated into the school curriculum. Local groups andlocal authorities are trained to conduct vulnerability and hazard assessments, and develop
village development plans. To support this, there is a conscious effort to strengthen therelationship and coordination with the local and national level structures on CBDRM.

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5. 1.1.2. Cambodian Red Cross (CRC)

The Disaster Management Department of the Cambodian Red Cross (CRC) was established in
1994. With lessons from the flooding of 1996, the CRC piloted its Community-based Disaster
Preparedness Program (CBDP) in late 1998. It began with addressing flood hazards and wasdeveloped further to include drought impacts.

The goal of the CBDP program is ‘to reduce the impact of disasters on the most vulnerable
people affected by disasters in Cambodia’. The objectives are; ‘to develop the capacity of the
CRC to effectively prepare for, and to respond to, natural disasters affecting Cambodia’, and ‘tosuccessfully implement natural disaster prevention and mitigation strategies at the community
level, through its network of Red Cross Volunteers (RCV)’.

5.1.1.3. CARE

CARE is an international organization working with the most vulnerable individuals andhouseholds to identify resources, share experiences, and address poverty through sustainable
solutions. The main activities of CARE in Cambodia are in education, health, rural development
and emergency response.

CARE’s DRR work is built into its Integrated Rural Development Program implemented in Prey
Veng and Svay Rieng provinces. The DRR components of the IRDM program have taken off
from lessons learned from the Disaster Preparedness Planning program, which was started in
2004. The initial project worked on capacity building of local authorities through action planning
exercises.

The new component Integrated Rural Development Program, which began in June 2006, aims
to put together functional drought and flood preparation and mitigation action plans andestablish accessible information exchange networks in at least 75 percent of the target villages.
At this phase of implementation, roles and responsibilities of the village implementationcommittees (VICs) are clarified, and coordination with local and national authorities
strengthened.

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Another project, the Community Led Innovations in Disaster Preparedness, builds community
capacity for flood and drought preparedness and management. Major project activities are
drought emergency needs assessments, indigenous early warning systems and small scale
mitigation infrastructure operation.

5.1.1.4. CARITAS

Disaster Management Program is one of Carias cross-cutting programs such as community
development, community health program, right based approach and advocacy and youth
development program. The program is categorized into 2 parts, one is Emergency Relief
Response and the second one is Community Based Disaster Preparedness. The main goal of
the program is to promote a collective disaster preparedness, relief and rehabilitation of people
affected by natural calamities.

Emergency Relief Response is a national program, established networking for disaster
preparedness at different level in order to prevent and mitigate the effect of natural disaster, toassist, and enables victims to restore their normal lives. Further, the program seeks to establish
the disaster management policy and its effective dissemination of disaster management, alsoestablish the disaster management information systems nationally. The national program covers
various activities includes prevention, response and rehabilitation.

Community Based Disaster Preparedness is a community level program. The program helps
build the capacity of the target community members on disaster management so that they areable to manage the disaster in an effective manner and restore their normal life during thedisasters situation and after the disaster. We will form and strengthen the committees fordisaster at the local level (village, commune, district, provincial) , improving the understanding to
key field staffs, VDA, federation , MC in the target areas on disaster management policy andguideline. The target community shall be trained on ecology and environmental issues.

5.1.1.5. CONCERN Worldwide

Concern Worldwide has been in Cambodia since 1991. Its mission is to strengthen the ability ofpoor and most vulnerable people to exercise their rights and make informed choices to achievea better quality of life without compromising the environment, and with the government meeting63its obligation to respect, protect and fulfill the rights of the Cambodian people The Disaster Risk
Reduction project is one component of Concern’s Supportive Initiatives Livelihood Improvement(SILIC) program. DRR work is conducted through 18 local partner NGOs and includes
awareness raising, support for 23 small-scale mitigation infrastructure systems benefiting 3,938
vulnerable families.

Concern has had a number of achievements from previous project cycles including supporting
community infrastructure projects, responding to emergencies and supporting replanting of ricepaddies. Future plans include DRR training of partner NGOs, completion of risk vulnerability
assessments with the communities, development of action plans and strengthening of
coordination and capacity of the local authorities and local partners in implementing CBDRM.

5.1.1.6. Church World Service (CWS)The Church World Service has been in Cambodia since 1979, delivering relief andimplementing development programs. Its mandate has been to develop the capacity of the mostvulnerable to meet their basic needs sustainably, and to participate in the emerging democracy.
CWS works with local partners and community organizations focusing on building technical andinstitutional capacity.

With the support of the ADB, ADPC and MOWRAM, CWS recently completed the Communitybased Disaster Risk Reduction Project in nine villages in Svay Rieng province. These villages
are pilot sites for the project on Disaster Risk Reduction, which ran from July 2006-September
2007 and whose main achievement was the development of a three-year Action Plan for
Disaster Risk Reduction. Its current project, Provincial Partnership for Disaster Risk Reduction,
undertakes action planning, training, establishment of CCDMs and VCDMs and focuses on
supporting the PCDM of Svay Rieng province in implementing the action plan.

5.1.1.7. Lutheran World Federation (LWF)

Established in 1979 in Cambodia, the Lutheran World Federation (LWF) is a church-based
international organization whose overall program goal is to empower rural communities tomanage development processes, advocate for their rights and improve their options forsustainable livelihoods. From 2003 to 2007, LWF implemented the Community-based Disaster

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Management projects in 300 villages across the provinces of Kampong Speu, Kampong
Chhnang and Battamban together with Dan Church Aid, Church World Service and partners
from their Integrated Rural Development through Empowerment projects. It also worked with the
NCDM and CRC in facilitating local planning processes to ensure that CBDRM was integrated
into the local development plans. Related participatory activities include organizing village
disaster volunteers and building the capacity of the PCDMs, DCDMs, CCs through training.
Information and awareness-raising activities such as the distribution of information andeducational materials were also conducted. Small-scale community infrastructures for disastermitigation were supported. Current project focuses on capacity building by training of trainers on
CBDRM, conducting more CBDRM trainings and organizing a CBDRM forum while continuing
to strengthen coordination with other NGOs and the local authorities.

5.1.1.8. Mekong River Commission (MRC)The MRC was established in 1995 as part of the agreement between Cambodia, Laos, Thailand,
and Vietnam to design and plan long-term and cross-cutting strategies for sustainable use andmanagement of all water and land resources in the Mekong River Basin. The MRC’s FloodManagement and Mitigation Center (FMMP) based in Phnom Penh leads in flood forecastingand dissemination of flood-related information to vulnerable communities. It works with national
partners such as the Cambodia Red Cross and Action against Hunger. Every year, the MRC
and FMMP would organize the Annual Mekong Flood Forum to assist managers, civil society
organizations and other DRR implementers to share their experiences in flood mitigation andmanagement and to identify ways to improve flood management in the region.

5.1.1.9. Oxfam International

Oxfam International is a global group of independent organizations dedicated to overcoming
poverty and fighting injustice. The lead agency for the humanitarian program is Oxfam GreatBritain. Other Oxfam agencies with presence in Cambodia are Oxfam America, Oxfam
Hongkong, Oxfam Quebec, Oxfam Australia, Oxfam Novib and Oxfam Solidarite. Oxfam ishighly regarded for its directions to build human resource for disaster management in the
country. Since 1999 up to present, Oxfam, jointly with Cambodian Red Cross and CWS, hasprovided 13 trainings on disaster preparedness and response to about 600 participants
representing NCDM, INGOs, CNGOs and the UN. The Oxfam International CBDRR program65

has three components: community-based flood preparedness, community-based drought
preparedness and mitigation, and community-based disaster risk reduction. It works withpartners in Kratie for the community-based flood preparedness, Kampong Speu for communitybased drought preparedness and mitigation and Svay Rieng for community-based disaster risk
reduction. Oxfam also responds to emergencies such as flash floods, with recent emergency
efforts in Kratie in 2006 and Preah Vihear in late 2007.

A cross-cutting element that ties the three programs is a common goal to reduce risks fromdisasters, increase resilience of people and communities to drought and flood, and capacitatecommunities, partners, field staff and local authorities to implement CBDRR strategies. Oxfam
and its partners work closely with the NCDM and its counterpart structures at the local level.
Since January 2005, the joint Oxfam program has invested more than USD 1.3 million in
CBDRR and emergency efforts, which have directly benefitted 16, 636 households and aided
another 28,666 households. From 2003 to 2006, Oxfam, in cooperation with CCK, implemented
a pilot project on Flood Preparedness and Mitigation in 13 villages in Takeo. Local level
activities involved preparation of village needs assessments, formulation of village DRR plans,
capacity-building on key topics on disaster management, gender, leadership, accountability,community mobilization and climate change, among others. During the project period, Oxfam
supported the construction of infrastructure such as flood gates, water catchments and latrines.

5.1.1.10. Plan International

Plan International first established its presence in Cambodia in 2002, with its office in Siem
Reap. Plan works with children and their families, communities, organizations and local
governments to implement their program interventions on health, education, water andsanitation, income generation and cross-cultural communication.
To launch its CBDRR efforts, Plan initiated a DRR capacity building program for its staffs andcommunity partners. The organization plans to eventually integrate DDR in its programs. In
preparation for its programmatic integration, Plan is building relations with organizations,network and government agencies working on DRR to assist them build organizational capacity
for future programming.

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5.1.1.11. World Vision (WV)

World Vision is a Christian humanitarian organization dedicated to working with children,
families and their communities worldwide to reach their full potential by tackling the causes ofpoverty and injustice. For many years, WV has responded to emergencies in the country but it
was only recently that it has developed a long term strategy for disaster management. World
Vision established the Community Disaster Mitigation project (CDMP) under its Emergency
Affairs (HEA) Program, where they work closely with CCDMs to improve their understanding of
their roles in disaster management and build their capacity by providing trainings on disastermanagement, and CBDRM, report and proposal writing, accountability, and local capacity for
Peace and environmental conservation. Through this project, information on natural disasters
such as floods and droughts and emerging disasters threats like avian influenza aresystematically shared with communities. To support community learning, WV organizes crossvisits between the CCDMs from the two provinces where they work. Parallel efforts included theformation and training of and support for self-help groups, which are crucial support
mechanisms for CCDM. WV plans to eventually integrate disaster management into the area
development plans (ADPs), of which 20 are already developed for six provinces and Phnom
Penh City.

5.1.1.12. ZOA Refugee CareZOA-Refugee Care supports refugees, internally displaced (IDPs), returnees and other groups
who are affected by conflict or natural disasters in their transition from their current state of
instability and lack of basic needs into a situation where enabling conditions for structuraldevelopment have been (re)established. ZOA has implemented a program geared towards
reducing the impact of droughts in Oddar Meanchey province. Program achievements include
the selection and training of village disaster management councils (VDMCs), and formulation ofparticipatory risk assessments and DRR plans. ZOA also collaborated with NCDM to provide
training to the CCDM and the PCDM of Oddar Meanchey. The organization has also undertaken
drought mitigation activities like construction of irrigation ponds, wells and forms of water
catchment, and distribution of farming implements and drought-resistant rice varieties and cash
crops.

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The new program phase, which aims to build the capacity of communities to reduce the impact
of disaster, particularly drought, has expanded its coverage from the pilot site in Oddar
Meanchey province to seven communes. VDMCs were formed and trained on CBDRM andhazard, vulnerability and capacity assessments. Those who were trained will lead thedevelopment of more village disaster management plans. Additionally, ZOA provided tractors
and other farming implements, distributed rice seeds, and supported the construction of drought
mitigation structures.

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the TV Coverage of the Great East Japan Disaster. Retrieved from http://www.
mediacom. keio. ac. jp/ publication/pdf2013/takenobu.pdf
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Retrieved from http://www.preventionweb.net/files/globalplatform/51960b1d4b022JICA
flyer_Final.pdf
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7011- International Recovery Platform. Retrieved from http://www.recoveryplatform.org/
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