HOLES OF GOVERNMENT AND NON GOVERNMENT ORGANISATIONS IN DISASTER PREVENTION AND PREPAREDNESS Introduction This paper provides an overview of the roles of government and non government organisations in disaster prevention and preparedness and also highlights recent changes taking place in the Fiji Government Emergency Services organisation which are intended to enhance the development of the overall national disaster management capacity. It does not clearly define the role of NGOS in disaster prevention and/or preparedness because very few NGOS in Fiji have an established or stated policy in this area. It therefore outlines in broad terms current efforts and initiatives in disaster prevention and preparedness focussing on the need for increased participation, improved coordination and effective utilisation of resources by government and non government organisations. The views expressed are in light of the Fiji experience which somewhat may be different from the experience of other regional countries. The Fiji Emergency Services Organisation Government's counter disaster efforts over the years were carried out on an adhoc basis and geared towards the safety of life and property and the provision of immediate relief support to the public at large. This is largely due to the fact that disaster had been perceived as a specific event and not what is now generally accepted as an ongoing process. The transfer of the emergency services function to the Ministry of Rural Development and Rural Housing earlier in the year saw the need to establish an organised and responsible counter disaster organisation that was capable of meeting the varying aspirations, expectations and above all the needs of the people. The move has also come about at a time when there are global efforts to mitigate the effects of disasters by upgrading the disaster management capacities of governments through the establishment of appropriate mechanisms, facilities and institutional arrangements. Disaster Prevention/Preparedness In the Fiji context disaster prevention and preparedness are virtually the responsibilities of government with non government organisations contributing to a lesser extent. However, there are certain scientific, professional and technical institutions which have made significant contributions in the development of disaster prevention strategies, especially those having implications to the national development planning.
Non Government Organisation There exist three basic traditional groups in our community who do have a role in disaster prevention and preparedness; a) the communal groups b) the religious groups c) the "special interest" groups Majority of these groups traditionally do have involvement which are confined to the emergency response and immediate relief phases. Customs and traditional obligations in Fiji, as well as in other countries further reinforce community solidarity, a factor which comes out strongly in times of disaster and has proven to mitigate the effects of disaster on life and property quite significantly. Religious groups as a basic principle of their doctrines having strong humanitarian inclinations are fairly active in the relief efforts, with one or two groups quite established having stockpiles of clothing and basic relief items such as cooking materials, e t c. The third group is that comprising organisations that have developed to cater for special interests. These can be small and localised, eg. local women's clubs, larger district groups or national organisations. Very few have a specific role relating to disaster activities other than a broad mandate to assist those in the need groups. The Red Cross is the only organisation tha* a specific mandate and is governed by internationally established rules and regulations in this ar e a. In the Fiji context, NGOs involvement has been confined to their "traditional services" serving those who are socially and economically disadvantaged. Furthermore their constitution and policy guideline restrict their involvement in the relief phase o n l y. There is a need for government to encourage NGOs to take into account disaster hazards in planning their activities. Attempts should also be made to assess the potential of other NGOs as a resource group inorder to supplement government efforts in the prevention and preparedness activities. The push should be coming from government because it is the seat of power and authority. f I
Disaster Prevention Involvement of the NGOs in disaster prevention is limited. Among the more important communal preventative measures are the maintenance of a wide range of food resources or crop diversification or farming methods systems and practices and the promotion of traditional means of disaster prevention, for instance, construction of seawalls to guard against storm surge through a combination of rock and coral formation. In promoting activities to improve the quality of life and to enhance the self sufficiency of an individual or group much of the NGOs work are geared towards "band aid" measures, those aimed at alleviating immediate social or economic pressures. The Red Cross for instance stock-pile clothes, issue rations and assist in the provision of housing needs of the socially and economically disadvantaged. NGOs when planning their activities should look, at the broader, long-term vulnerability of the communities they work w i t h. Coordination Because of their higher degree of flexibility the NGOs are often the first organisation on the scene in the event of an emergency or disaster. However this may be either an advantage or disadvantage depending on the ability of the organisations to provide the right, service through effective coordination. In responding to disaster it is evident that NGOs are working in isolation and it is therefore prudent that their efforts are coordinated to ensure the effective utilisation of resources and that those resources are directed towards those needing assistance. Apparently the NGOs would need to have a committee of their own to coordinate their effforts collectively and also to work on a common basis. For the discharge of normal community service there exists a national body that coordinates the activities undertaken by NGOs. For disaster relief efforts NGOs however are left on their own. It is evident that NGOs should be actively involved in disaster prevention and preparedness and perhaps be represented in the various government Disaster Sub-Committees. The Fiji Red Cross Society for one because of its commitment in this area and recognition of the need groups is the only NGO represented in the various Emergency Sub Committees. Because the overall disaster responsibility lies with government, moves are already underway to work closely with NGOs through the establishment of various Sub Committees with a view to coordinating the overall national counter disaster efforts in a responsible and effectively coordinated manner. The NGOs themselves can form their own disaster Committee to ensure:
a ) stability b) recognition of the problem and their individual abilities c) effective coordination and utilisation of resources d) needs are properly assessed and evaluated NGO - Disaster Preparedness Again this is an area where most NGOs can play a definite role in the promotion of public awareness. Some NGos have broad outreach through the diverse membership in the community and therefore have a close interaction with the people. Public education and awareness in the whole area of disaster which basically covers what to do before, during and after a disaster will have alot of impact in reducing the effoects of disaster on life and property. Through proper coordination and direction by government, NGOs can make positive and meaningful contribution in this a r e a. Role of Government in Disaster Prevention/Preparedness Disaster Prevention Because of the smallness of the country, current efforts and initiatives focussed at the disaster prevention strategy are considered an integral part of the national development planning. Let alone safety of life and property current disaster prevention efforts are geared towards making ' the economy and community disaster resistant. There had been recent moves towards establishing Sub-Committees to look into specific areas of interest, viz: Risk mapping, water resources management, Flood Control through structural and Engineering means, watershed management, e t c. With the establishment of Sub-Committees it is intended to involve outside organisations which are likely to be affected, n a m e l y, the various sciences, professions, and technical institutions given the resources and level of expertise available with t h e m. Some of those organisations have access to regional and/or international technical and financial support and therefore should be able to provide considerable assistance. Such organisations should be given recognition for their contribution and where necessary government to allow flexibility inorder to draw commitment and trust. The Ministry of Primary Industries recently begun work on a flood control masterplan which will involve the construction of drainage works including seawalls, flood protection river dredging and engineering. Raising of village levels for village located in close proximity to rivers which get inundated during high tide is also considered in the programme. This is further supported through the installation of flood early warning and monitoring equipment that will improve the capacity of flood early warning and monitoring systems.
Similarly the acquisition of relevant eqquipment for the Meteorological Services to improve cyclone warning and forecasting systems are being pursued. Housing Under the housing strategy, appropriate building codes are being drafted and would be put to use possibly around mid-1991 so that buildings are cyclone resistant. Codes, however, will be flexible to ensure affordable, basic, low-cost and conventional housing. The Fiji Building Standard Committee has established guidelines on ways in which houses and commercial buildings can be upgraded. Commissioner of Insurance has issued the rating guidelines for homes that are based on the strength of the building. Government has established minimum standards for roofing iron and other building materials. Importation of materials below these standard has been prohibited. Possible review of the existing rural housing policy is also under consideration. Coordination Again this poses a problem as individual Ministries and Departments are dealing with certain disaster prevention activities in isolation. The establishment of sub-committees as already mentioned should foster mutual understanding and recognition and ensure that a harmonious relationship exist at all times where relevant authorities are committed and have the will towards attaining the desired national goals. This would enable government to prioritise needs and direct efforts by utilising resources effectively in the direction where they are most needed. Disaster Preparedness Government is legally and morally obliged to prepare its citizens for natural disasters. The impact of disaster can be guite devastating if the people are ignorant of the sort of precautionary measures to take. Government efforts in this area are geared towards: a) training of government officials, community leaders and members of relevant non government organisations; and b) public awareness and education campaign.
Training There does not exist a national training staff to conduct disaster training. However, we had in the past sent our officers to attend disaster management training for brief spells at the Australian Counter Disaster College at Mount Macedon. This training programme was ceased, however, efforts are already underway to take it up again. The Emergency Services Committee, in recognition of it's obligation to prepare it's citizens for natural disasters had in 1980 appointed a committee to look into the training of personnel for emergency duties. This resulted in the formulation of a Training Course aimed principally at District Officers, Provincial, Administration officials and other government officials in the rural and urban areas. Unfortunately the course could not be carried out in the years that followed because of financial constrains. Again government in recognition of the need to enhance the effectiveness of disaster management at all levels resumed training in this area last year and so far two courses had been conducted. The courses were geared towards training civil servants, leaders and workers in the rural community who are directly involved in disaster and related areas, in the whole area of disaster management covering the broad spectrum of preparedness, prevention, response and recovery and rehabilitation phases to enable them to better understand and cope with disaster management as a whole in their respective areas of operation. This year's training is also part of a comprehensive on-going training programme that is being worked out for 1990-1991 to begin w i t h. It is envisaged to as far as possible conduct disaster training at all levels of government and the community inorder to enhance the effectiveness of government and community response to disasters and their state of readiness. There is an acute shortage of personnel well-versed in disaster management and operation skills. In country training would effectively meet the disaster needs of the country, however, for'v*' career development and specialist requirements, overseas training will be needed. Wtih improved information flow through the medium of modern communications, it may be necessary to have training in information management. Specific training needs are yet to be indentified and prioritised. Public Awareness and Education A National Disaster Preparedness Awareness Committee which is a sub-committee of the National Emergency Services Committee was established in 1987.
The Committee is tasked, among other things, to cc-ordinate and concentrate government and community efforts in educating as many people as possible in Fiji on all facets cf disas * 11.. including preparedness, prevention,, response and recovery and rehabilitation and to restore the spirit cf self reliance. The Committee conducted the first ever National Disaster Preparedness Awareness Keek during the period 3/4/ES1 to E74/S9 and the week has now become an annual event. Public education materials in the form of posters, stickers and brochures were widely distributed during the week. Funding for the week was provided through aid and voluntary contribution. The possibility cf having a budgetary provision specifically for the week is being pursued, in the meantime we will continue to pursue local and overseas funding assistance for this annual event. The need to conduct training and education as far as possible both in government and the community has been hindered by resources constraints both in terms of manpower and finance. Exercise Writing and 0 Because cf the lack of skilled and specialist personnel, little attempt has been made to conduct exercises to test organisational structures and procedures and train personnel in their counter disaster roles. Exercises work in inter-dependence with training programme as trainees would attempt to put into practical effect the skills and knowledge obtained during formal training and would also provide trainees with a degree of realism which is not normally possible during their basic individual/group training. Moreover the exercise would test the ability cf separate groups to work together on a common task, and the effectiveness cf coordination between them.