Community-Based Disaster Risk Reduction: Volume 10

Rajib Shaw

Communities are at the core of the risk reduction initiatives, since it is related to their lives and properties. There are different ways of putting the term, community based, community centered, community owned, etc. Needless to say, risk reduction initiatives started at the community level. Even before the existence of the states, the communities were the managers and solution providers. They used to take care of themselves individually or collectively. That time, it was not called “community based,” since it was the only option available. After the establishment of the state, the government took the control of disaster risk reduction and failed in several cases. Thus, over the past 30–40 years, the concept of community based or community centered has emerged once again, is now gaining momentum. This means, we are going back to the basics.

Definition of community varies based on its perspective. Many people describe community in different ways. McMillan & Chavis (1986) described community as “a feeling that members have of belonging, a feeling that members matter to one another and to the group, and a shared faith that members’ needs will be met through their commitment to be together.” This definition is preferred in the current context because of its general nature. Community includes not only the people living in a certain location, but also the local government, local business sectors, local academic bodies, and nongovernment organizations (NGOs) (Shaw, 2006a).

The community plays a crucial role in disaster risk reduction (DRR). The Hyogo Declaration adopted at the World Conference on Disaster Reduction held in Kobe in 2005 stresses that strengthening community-level capacities to reduce disaster risk at the local level is especially needed (UN International Strategy for Disaster Reduction [UNISDR], 2005). Following the Great East Japan Earthquake on March 11, 2011 in Japan, community-based organizations (CBOs) have conducted various activities, such as searching and rescuing victims, closing gates, monitoring tsunamis, assisting evacuation, firefighting, and operating evacuation shelters at the risk of their staff's lives, while local governments lost their staff and facilities in the functions of disaster management. Some 250 volunteer members of firefighting CBOs were dead or are still missing.

The community-based disaster risk reduction (CBDRR) approach has been taken by nongovernmental organizations (NGOs) as a common approach to build resilient communities in their disaster risk reduction (DRR) efforts. The approach has been initially implemented in the developing world by NGOs, followed by international organizations like the International Federations of Red Cross and Red Crescent (Benson, Twigg, & Myers, 2001; Maceda, Gaillard, Stasiak, Le Masson, & Le Berre, 2009). The approach is now increasingly promoted among local governments in order to strengthen the links between the official disaster management system and community-based organizations (Kafle & Murshed, 2006). There are many case studies of DRR projects with community-based approaches by NGOs and local governments, and there are many variations as well (Heijmans, 2009).

Education has been there for ages. Need of education for sustainable development is stated in Chapter 36 of Agenda 21 (1992) as follows:Education, including formal education, public awareness and training, should be recognized as a process by which human beings and societies can reach their fullest potential. Education is critical for promoting sustainable development and improving the capacity of the people to address environment and development issues. While basic education provides the underpinning for any environment and development education, the latter needs to be incorporated as an essential part of learning. Both formal and non-formal education is indispensable to changing people's attitudes so that they have the capacity to assess and address their sustainable development concerns.

When a natural disaster happens, it is sometimes thought that it is the role of the government and national authority department to tackle it. But as seen in virtually every disaster incident, it is the local community that is hit and impacted the most. And unless the community reduces its vulnerability and followed with quick recovery, corporate activities get undoubtedly impacted. Moreover, while occasional large catastrophes such as earthquakes, volcanic eruptions, and cyclones continue to occur in various parts of the world, the rapid increase in disaster loss is due almost to an exponential increase in the occurrence of small- to medium-scale disasters associated with socio-natural hazards such as landslide, flood, drought, and fire.

According to the Ministry of Environment and Forest (MoEF) (2008), Bangladesh is the most vulnerable country to natural hazards and disasters due to its geography, high population density, and poverty. The country is exposed to a variety of recurring natural hazards such as floods, cyclones, droughts, earthquakes, and riverbank erosion (Ministry of Food and Disaster Management (MoFDM), 2007). Furthermore, Harmeling (2010) mentioned that Bangladesh heads the list of countries most at risk for floods. Bangladesh has suffered from 93 large-scale natural disasters in the period from 1991 to 2000 that killed 0.2 million people and caused loss of property valued at about 59 billion dollars in the agriculture and infrastructure sectors (Climate Change Cell, Ministry of Environment and Forest, Bangladesh, 2009). Fig. 1 represents different natural hazard-prone areas of Bangladesh.

Disasters being common in Indian cities, communities have created and utilized their own coping mechanism to deal with such situations and strengthen their resilience by adopting methods to adjust to the risk situation. For example, during the Mumbai Floods in 2005, slum communities, with the support of social organizations, were able to adopt ways to cope well with the risk situation (Chatterjee, 2010). This chapter particularly focuses on community-based approaches in urban India.

The understanding of the term “civil society” has been given in many references. One reference is given by the London School of Economics Centre for Civil Society (2011), and its working definition is rather illustrative. Civil society, according to them, refers to the arena of collective action around shared interests, purposes, and values. The civil society commonly embraces a diversity of spaces, actors, and institutional forms, and varies in the degree of formality, autonomy, and power. Civil societies are often populated by organizations such as registered charities, development nongovernmental organizations (NGOs), professional associations, and community groups, such as women, youth, and faith-based or religious organizations. Those groups are seen as the nearest to the grassroots level and therefore could best accommodate their aspirations and needs. These groups are referred hereafter as Civil Society Organizations (CSOs).

The importance of community-based organizations to support relief works in the aftermath of disasters is widely recognized as indispensable in providing quickly the needed help for affected populations (Bajek, Matsuda, & Okada, 2008; Nagasaka, 2008; Norris, Stevens, Pfefferbaum, Wyche, & Pfefferbaum, 2008; Shaw & Goda, 2004; Suzuki, 2006). Although communities’ involvement in rescue operations is essential, their role in rehabilitation and future disaster preparedness activities is equally important in the process of forming a disaster-resilient society (Nagasaka, 2008). Furthermore, the level of interaction between local authorities and communities within different phases (preparedness, relief, and rehabilitation) of the disaster management cycle requires attention to effectively implement community-based disaster risk reduction (CBDRR).

The Union of Myanmar is located in mainland Southeast Asia and shares borders with India, China, Lao PDR, Thailand, and Bangladesh. It is situated between the Himalayan ranges and the Bay of Bengal. Due to these diversified geographical features, Myanmar is highly vulnerable to different kinds of hazards, and has experienced many kinds of disasters in the past, according to the Hazard Profile of Myanmar (2009), such as cyclones, floods, storms, landslides, earthquakes, tsunamis, droughts, and fires. For the general public, cyclones are considered the major menace in the country, however the recent earthquake with a magnitude of 6.9 in Shan state on March 24, 2011 made inhabitants realize that they are living with the risk of earthquakes as well. According to New Light of Myanmar (the State-run newspaper) on March 26, 2011, the earthquake resulted in 73 deaths (official record of the country). Besides earthquakes and cyclones, there have been many victims of landslides, and the people at coastal areas face the risk of tsunami in the case of earthquakes that occur in the Indian Ocean. In 2004, 61 people were killed in Myanmar by the Indian Ocean tsunami according to the Hazard Profile of Myanmar (2009). Furthermore, the year of 2011 witnessed chronic and severe floods all over the country.

Community-based disaster risk management (CBDRM) initiatives have strong roots in Philippine society not only because of the country's contributory vulnerability to disasters but also because of a culture of community cooperation known as bayanihan and a history of social movement driven by the citizens’ discontent with bad governance leading to social injustice and environmental degradation (Heijmans, 2009). CBDRM in the Philippines has been a mechanism for change within civil society (Allen, 2006; Heijmans, 2009). In this way, community-based approaches are a fundamental form of empowerment of participants and a compelling strategy for enforcing the transmission of ideas and claims from the bottom up (Allen, 2006).

Timor-Leste is a small, island country situated between South East Asia, Australia, and the Pacific, where it shares a unique mix of climates from all three neighboring regions (Kirono, 2010). The country achieved independence in 2002 having suffered over 400 years of colonialism and foreign occupation, first by the Portuguese and then by the Indonesians (Sandlund et al., 2001). The post-referendum troubles in 1999 left Timor-Leste with seriously damaged infrastructure and relatively little economic activity (Hill, 2001). However, since 1999, the country has made significant steps forward and despite some upheaval in 2006 has significantly developed in terms of infrastructure and economic activity. Nonetheless, Timor-Leste, as a Small Island Developing State (SIDS) also has a number of other vulnerabilities and challenges to contend with including its mountainous region, relative isolation, dependence upon agriculture, and high levels of unemployment. Timor-Leste has a land mass of 14,874km² with a population of approximately 1 million, which is rapidly increasing (Government of Timor-Leste, 2010). The country is dominated by the central Mountain range of Ramelau with as much as 44% of Timor-Leste's land having a slope of more than 40% and over 70% of the country's population dependent upon agriculture for their livelihood (Sandlund et al., 2001).

Community-based disaster risk management (CBDRM) has been recognized since the mid-1990s. However, in the changing environment of the new millennium and the move toward disaster risk reduction (DRR), the community-based disaster risk reduction (CBDRR) has been evolving in recent years. In Vietnam, many projects and programs in CBDRR have been carried out since the year 2000, and these programs tried to increase the resilience of the most vulnerable villages and communes. These projects aim to strengthen the capacity of the communities to become more aware and responsive to their short-and long-term needs through participatory risk assessment and identification, prioritization, and implementation of risk reduction measures.

Central America is exposed to a variety of natural hazards such as earthquake, volcanic eruption, landslides, and floods. This study considers Central America as a group of six countries: Guatemala, El Salvador, Honduras, Nicaragua, Costa Rica, and Panama, on the basis of their geographical, cultural, historical, and geopolitical backgrounds. The region, located on four conjunct tectonic plates, with 24 active volcanoes, and in the path of hurricanes, has experienced 348 disasters in the last 40 years (from 1980 to 2010), resulting in 29,007 deaths (725 on an average per year) and US$16.5 billion in economic losses (US$400 million per year) (Emergencies Disasters Data Base (EM-DAT), 2009). This amount of US$16.5 billion in economic losses is nearly three times greater than Nicaragua's GDP in 2009 (US$6.14 billion), according to Central Intelligence Agency (CIA) (2010) data. High disaster risk in the region is also demonstrated from the World Bank (2005) indicating that all six Central American countries rank among the top 35 countries in the world at high mortality risk from multiple hazards.

In creating a response to tropical storms Stan (October, 2005) and Dolly (May, 2008), the Center for International Studies and Cooperation (CECI) began encouraging the Guatemalan residents to get involved with disaster planning. Other international organizations are, also, beginning to finance projects to train the poorest communities in disaster planning but, funding is difficult because, sadly, avoidance does not “sell” as well as post-disaster relief and reconstruction projects.

Cartago City is located in the central valley of Costa Rica. Situated at the southern foot of the Irazu volcano and characterized by rugged mountainous topography, the city in general is exposed to multiple natural hazards including floods, volcanic eruption, and pyroclastic flows. Indeed, the city has experienced catastrophes in 1724, 1861, 1891, 1928, and 1951. The most recent one was a combination of pyroclastic flows and several floods in 1963–1964. This catastrophe caused US$3.5 million of economic damage as well as 20 deaths (ICE, 1966).

Stories of disasters in Africa conjure up images of the helpless hordes, in peril and in need of outside assistance. Most of the major disasters in Africa since the 1970s have a significant food crisis and famine component. These could be linked to failed states and complex emergencies such as inter-, intra-state conflict, and civil unrest. However, the domain of disaster risk reduction (DRR) in Africa has progressed significantly in the last decade. Moreover, we find that African states are celebrating democracy through third and fourth rounds of democratic elections. With the exception of a few, the “old men” of Africa are stepping down after years of Presidency and allowing the democratic wheel to turn. DRR in Africa has not been immune to these changes. Moreover, one finds exceptional examples of political will toward DRR and multi-sectoral approaches toward solving DRR problematic. One such approach that has enjoyed heightened attention is community-based actions and involvement.

Burkina Faso is a land-locked country, sharing a border with six other countries, namely Mali, Niger, Benin, Togo, Ghana, and Cote D'Ivoire in the zone of West Africa (Fig. 1). Due to the geographical location of the Sahel region, the country's climate is characterized by rainy and dry seasons. According to the Human Development Report in 2010, the country has a very weak economy with a GDP of 522 USD per habitant, principally based on agriculture (25%), animal production (12%), and forestry/fishery (3%) (MECV & SP/CONEDD, 2006a). The population growth is extremely high at 2.8%, with 46.4% of the population living below the national poverty line and 81.2% living on less than $2 a day (UNDP, 2009). The biomass energy is the largest primary energy source covering 80% of total consumption, thus accelerating soil degradation as well as deforestation.

Malawi is a nation with a population estimated at 13.1 million (Government of Malawi, 2008). It was ranked at number 166 out of 177 countries in the 2006 Human Development Index of the United Nations Development Program. The population is predominantly rural (83 percent), and the economy is highly dependent on agriculture, mainly smallholder farming and fishing. The per capita gross domestic product in 2006 was $160, down from $210 in 2001, and the annual national budget is approximately $1.3 billion (for 2007/08).

Based on the case study examples described in the book, this chapter focuses on key issues and future perspectives of the CBDRR.