A subsequent comprehensive review of the performance of the
emergency response system highlighted a wide range of lessons, only some of
which have been included in this case study analysis. Overall, prior emergency
preparedness had been weak, and during the warning period itself only a small
proportion of the required actions were actually taken. However, this generally
dismal overall picture disguised a number of pre-disaster measures (including in
particular, a number of attempts to ensure that critical sets of data would be
available when needed) that did contribute substantially to later effective
actions, either during the early relief period, or later on during the
rehabilitation and recovery. Among the more successful programmes were:
2. A prototype Red Cross project in two
districts, based partly on the UNDRO study. This involved the identification
and selection of buildings providing good protection in cyclones. A detailed
survey was carried out by an architect, working in conjunction with
representatives of a wide range of different community organizations. Selected
buildings were marked, and information on their location was provided regularly
to local populations by local Red Cross workers engaged in first aid and primary
health care projects. Efforts were made to upgrade water tanks and sanitation
facilities at these buildings. Shelter managers (usually head teachers or local
government officials) were appointed and given a small fee. Local Red Cross
branches were given the responsibility to provide back-up power generators for
lighting, and to deliver clean water. Despite some earlier criticism, this
project largely succeeded, in part because of the leadership provided by its
organiser, and in part because of the extensive consultations with community
groups which were made before it started.
3. A prototype agricultural preparedness project and disaster
recovery studies at the regional disaster management centre, supported by
several donors including UNDP and USAID. This maintained a database of
agricultural associations and growers’ co-operatives, lists of NGOs working
with farmers, information on agricultural produce processing facilities (Eg.
grain mills etc), and a database of background information on farming practice
in several areas of the country. One study area was in the disaster zone, and
had been in progress for two years, focusing mainly on flood risks in the south
of the region. It provided development staff from donors and NGOs with many
informal contacts with local officials, and lists of key people in the local
agricultural community. It was an invaluable source for recovery planning.
4. Recent investment in a medical communications network,
linking local clinics and main hospitals. Special attention had been given
to provision of battery powered equipment, aerials which could be dismantled and
erected quickly and easily, and ways of providing waterproof protection for the
sets themselves. Equally, more attention than usual was given to training staff
in maintenance and operation of the equipment. In the event, this network
allowed rapid inventory of damage to medical facilities, and a review of the
capacity of the surviving system. Also, it permitted rapid reporting of
injuries. A feature of this network was the extent to which it was combined with
local support for a radio amateur emergency network (to which a number of
doctors and medical administrators belonged) for which the health ministry gave
useful informal support, training, and small grants for incidental expenses.
5. A special project for emergency protection of disease
control programmes, including human and animal vector-borne disease control
activities. Included in the budget for this project was a line item making
provision for emergency grants to personnel who had lost housing or basic
possessions, and for support to family members to allow the worker to return
quickly to his or her job. Other measures included equipment and procedures for
the protection of records against storm damage, strengthening of project
buildings (including equipment stores), and measures to ensure that vehicles
remained undamaged.
6. A UNDP sponsored study of critical industry in
cyclone-prone regions of the country. This included collaboration with the
department of economics at the national university on a model of regional
inter-industry flows. It concentrated, amongst other issues, on the extent to
which large producers were concentrated in high risk locations; their dependence
on inputs of electric power or oil products; their dependence on local
industries for critical inputs; the extent to which essential local transport
links were susceptible to disruption; and, the opportunities for input
substitution.
7. A review of damage compilation systems, carried out in
conjunction with the UN Economic Commission for the region. This reviewed data
collection requirements for national and provincial planning in the aftermath of
a major disaster, particularly for economic recovery planning. It helped focus
attention on the need for standardised formats for data collection and
reporting, and the need for developing procedures and training for data
collection and handling in an actual emergency. After a training programme at a
regional centre, six staff members of the Ministry of Finance were able to
develop a prototype reporting system, which formed the basis of the system used
later in the recovery from the disaster. A consortium of international agencies
later joined with the Ministry and the national insurance association in
sponsoring the development of a training course for assessment personnel in a
number of specialist areas, including public works facilities, crops, livestock,
rail systems, telecommunications, water supply, and electric power, and harbours
and ports. The Department of Trade and Industry was preparing a separate course
focusing on assessing damage to industrial plant. The first of these had just
begun as the disaster developed.
8. A basic course for Provincial Governors at the
administrative staff college. This focused on emergency decision making, and
on the need for identifying crucial decisions about rehabilitation which needed
to be made during the first two weeks of an emergency.
9. The formation and training of the UN-Disaster Management
Team.
10. The formation and training of joint damage assessment
teams made up of personnel from the Police, Armed Forces, UN and national
Red Cross Society. Arrangements were made to ensure that helicopter transport
and communications equipment would be available for these teams at short notice.
11. Prior planning within the Ministry of Health for a
detailed sample survey of cyclone-affected areas (see later).
12. A programme of disaster epidemiology courses, within
the Ministry of Health, but open to personnel from the national Red Cross
Society, and other NGOs. An active attempt to reach out to the heads of some of
the national NGOs was instrumental in helping to focus some of their responses
during the disaster on activities which were actually likely to achieve some
degree of practical
benefit.
