Creating a community flood management programme

Very soon afterwards, I had the privilege to attend a regional workshop convened in Dhaka jointly by the Bangladesh Unnayan Parishad and the World Meteorological Organisation. There were representatives also from the International Centre for Integrated Mountain Development (ICIMOD), Japan, China, Nepal, India, Pakistan and Myanmar.

Participants presented their conclusions on the basis of pilot studies carried out by different teams in different parts of South Asia. Apparently, these were carried out in Jamalpur-Nayannagar, Palalandha and in Nawabganj Sadar in Bangladesh; in Saptari and Rautahat districts in Nepal and in Dakhin Mohanpur, Bihar and West Bengal in India.

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These projects were carried out within the context of identifying and designing methods for enhancing the latent capacity within communities at the grassroots level, in being able to provide more effective responses towards the reduction of flood vulnerability.

I must admit that I was surprised with the detailed approach to this issue. I have always maintained that any form of disaster management within Bangladesh requires a community-based approach. This is particularly true with regard to containing the pernicious effects of regular flooding in communities residing near wetlands and riverbanks. Prior planning, raising the awareness threshold and greater inter-activity will reduce risk-taking and also potential loss. It will also enhance resilience building. Capacity building will also facilitate organised services. These are critical factors for the fragile Bangladesh economy with a preponderant rural sector.

We need to plan ahead so that necessary steps can be taken to protect the exposed aspects of rural community life. This includes damage potential for fragile household units (mostly built out of mud and bamboo topped with reed), for poultry and livestock, for the courtyard vegetable garden (which greatly supplements the rural household diet and also adds to its meagre income) and for standing crops including space for their storage. We also have to anticipate how to combat possible suffering from water borne diseases, snakebites and loss of lives through drowning.

It was evident from the discussion that the studies has been carried out in rural areas and had not focused on the urban poor living in slums and 'bastees' in marginal, low-lying fringe urban areas (normally the first to be inundated in case of flooding). When questioned, field workers indicated that rural areas had been the focal points as the large majority of the population in South Asia live in rural conditions. True. Nevertheless, it would be, I am sure, of great interest to carry out such surveys in the urban context. We could then identify common factors and try to strengthen the institutional approach.

The pilot studies process with regard to the Community Flood Management Programme (CFMP) involved determining the needs and expectations of each community vis-a-vis flood mitigation and loss minimisation. It also included the assessment of the levels of flood preparedness within different communities.

Some important elements were highlighted during the survey. Group discussions revealed that while some community organisations were able to assess their needs as opposed to their capabilities, some were not properly equipped in this respect. It also emerged that preparedness required a planning interface with government agencies particularly in the creation of provisions for emergency situations. There was also the question of managing information for future reference. It was also revealed that during normal flood situations, communities could cope by themselves. This was however not possible during major floods which required reconstruction and rehabilitation in the post-flood period. In some areas it was also discovered that flood forecasting information was not always available on time. This affected the response scenario.

Discussion during the workshop also pointed out the need for prioritising in the rehabilitation activities -- in matters of housing, of agricultural production and revitalisation of economic activities. It would also be pertinent to add here factors like rehabilitation of infrastructure, roads, electricity, telecommunications, educational institutions, provision of clean water and hospitals.

The possibility of flooding is something that we have to live with. Everytime we have a serious flood, we lose thousands of crores of Taka in terms of our GDP. Our expertise in disaster management has been lauded the world over. We have tackled cyclones and floods and survived because of our inner strength. However, we need to be more organised and more systematic. This will greatly improve effectiveness.

After this workshop I am convinced that we should, in Bangladesh, create Community Flood Management Committees (CFMCs). They could be the basis for an institutional response throughout the country. Such a format is in place in Switzerland, Germany, China, Korea and Japan to respond during times of natural disasters.

The CFMC needs to be created through discussion within the smallest administrative unit -- the Union Parishad on a non-political basis. They will work to reduce the losses sustained by flood-affected people. They will coordinate appropriate activities in pre-during and post-flood stages. The Chairman of the Union Parishad could be the Convener of the CFMC. Its limited membership (not exceeding 12 persons) could be drawn through consultation/selection/election from among local inhabitants (including teachers, medical practitioners, socially and economically disadvantaged groups and local government officials). Members of the CFMC will also be expected to mobilise local people and local resources and liaise with higher tiers of the government (thana/district level officials) for additional resources so that there can be appropriate coordination and proper flood management activities.

Another important function for the CFMC will have to be the preparation and identification of flood-free shelters with facilities of both clean drinking water and proper sanitation. CFMCs will also have to be made responsible for arranging not only flood evacuation drills but also for storing sufficient quantities (on a demographic basis) of water purification tablets, oral-saline sachets, anti-venom vaccines, bandages and emergency basic food rations.

They can also subsequently help the government agencies during the post-flood rehabilitation period. Plan of action pertaining to flood affected people would definitely profit from such an association.

We have a high population density and scarce resources. Having CFMCs will enhance target communities' ability to help each other to survive and cope during and after disasters. It will require micro-management, but the potential for good is immense.

In China, they have shifted from flood control to scientific flood management. By buiilding dikes, levees and by strengthening flood embankments, they have embarked on the path of reducing susceptibility to damage and mitigating the impact of floods. This course of action has been possible because they are relatively more prosperous. In Bangladesh, our option has to be less capital intensive. CFMCs will strengthen our structural measures and optimise flood control.

Muhammad Zamir is a former Secretary and Ambassador who can be reached at mzamir@dhaka.net