prepared for Asian Development - CamNutcamnut.weebly.com/uploads/2/0/3/8/20389289/2010_report_of_fsn... · prepared for Asian Development Bank ... 2.8 Study tour to Bangladesh and

Grant 0116 ‐ CAM: Emergency Food Assistance Project and Strengthening Institutional Capacity for Emergency Response to Food Crisis and Improving Food Security

MIDTERM REPORT

prepared for

Asian Development Bank by

Agrifood Consulting International, Inc

In association with

NIRAS A/S

12 April 2010

ADB Grant 0116 ‐ CAM Emergency Food Assistance Project ‐ MIDTERM REPORT

Agrifood Consulting International (ACI) in association with NIRAS A/S

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TABLE OF CONTENTS

1 INTRODUCTION ........................................................................................................................... 9 2 PROGRESS MADE DURING PHASE 2 .......................................................................................... 11 2.1 Key Results Achieved during Phase 2 ......................................................................................... 11 2.2 Checklist of Activities as per Inception Report Plan .................................................................... 12 2.3 Consultants mobilization ............................................................................................................ 12 2.4 Office and Facilities .................................................................................................................... 12 2.5 Procurement .............................................................................................................................. 13 2.6 Survey on Institutional Capacity for Disaster Management ........................................................ 13 2.7 Survey on Grain Storage ............................................................................................................. 13 2.8 Study tour to Bangladesh and Viet Nam ..................................................................................... 13 2.9 Food Reserves Workshop ........................................................................................................... 13 2.10 Midterm Report ......................................................................................................................... 13 3 ASSESSMENT OF FOOD SECURITY AND NUTRITION DATASETS AND MONITORING SYSTEMS .... 14 3.1 Assessment of Food Security and Nutrition Datasets and Information system ........................... 14 3.2 Assessment of Food Security and Nutrition Monitoring and Evaluation Systems ....................... 19 3.3 Challenges and Principles for the Design of a Comprehensive M&E System for Food Security and Nutrition ................................................................................................................................................. 24 3.4 Recommendations about Monitoring and Evaluation for Food Security and Nutrition to be undertaken during Phase 3 of the TA ...................................................................................................... 26 4 ASSESSMENT OF INSTITUTIONAL CAPACITY FOR DISASTER MANAGEMENT AND FOOD

EMERGENCY RESPONSE ............................................................................................................ 28 4.1 Summary of Conclusions from Survey on Institutional Capacity for Disaster Management ........ 28 4.2 Assessment of the Institutional Capacity of NCDM Structures ................................................... 32 4.3 Cambodia Disaster Management Aspects that need to be strengthened ................................... 32 4.4 Current NCDM/PCDM M&E Capacity related to FSN and Monitoring Emergency responses ..... 34 4.5 Assessment of Current Response Mechanisms to Disasters in Cambodia in relation to Food .... 35 5 CAPACITY DEVELOPMENT PLAN OF NCDM/PCDM DURING PHASE 3 ........................................ 38 5.1 Components of the Capacity Development Plan ........................................................................ 38 5.2 Human Resources ...................................................................................................................... 39 5.3 Costing of Components .............................................................................................................. 39 6 SOCIAL SAFETY NETS, DISASTER RISK REDUCTION, AND FOOD SECURITY AND NUTRITION ....... 40 6.1 Previous Experience in Cambodia and current position ............................................................. 40 6.2 Needs to Advance Safety Nets Strategy and Action.................................................................... 43 7 ANALYSIS OF FOOD RESERVES SYSTEM IN CAMBODIA .............................................................. 44 7.1 Main Conclusions of Storage Survey .......................................................................................... 44 7.2 Food Reserves Issues in Cambodia ............................................................................................. 48 7.3 Recommendations about Food Reserves in Cambodia ............................................................... 61 7.4 Strategy for Implementation of the Recommendations on Food Reserves ................................ 64 7.5 Implications for the TA Activities on Food Reserves during Phase 3 ........................................... 65 7.6 Estimates of Costs of Different Levels of Food Reserves ............................................................ 65 8 FOOD AND NUTRITION POLICY NEEDS IN RELATION TO DISASTER RISK REDUCTION AND FOOD

EMERGENCY 67 9 RECOMMENDATIONS ................................................................................................................ 69 10 PLAN OF ACTIVITIES DURING PHASE 3 ...................................................................................... 71 10.1 Introduction ............................................................................................................................... 71 10.2 Activities during Phase 3 ............................................................................................................ 71 10.3 Reports ...................................................................................................................................... 71 10.4 Workshops ................................................................................................................................. 72 11 REFERENCES 73



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APPENDIX A. DATASETS AND INFORMATION SYSTEMS FOR FOOD SECURITY AND NUTRITION IN CAMBODIA 78

APPENDIX B. INSTITUTIONS AND ORGANIZATIONS INVOLVED IN NATIONAL FOOD SECURITY AND NUTRITION MONITORING AND EVALUATION (FSN M&E) ....................................................... 108

APPENDIX C. ASSESSMENT OF SFFSN OVERALL INDICATORS ............................................................... 113 APPENDIX D. REPORT OF STUDY TOUR TO BANGLADESH AND VIETNAM ............................................ 122 APPENDIX E. SUMMARY OF FOOD RESERVES WORKSHOP .................................................................. 133 APPENDIX F. SUMMARY OF INSTITUTIONAL SURVEY .......................................................................... 143 APPENDIX G. SUMMARY OF GRAIN STORAGE SURVEY ........................................................................ 174 APPENDIX H. CAMBODIA RED CROSS (CRC) AND DISASTER MANAGEMENT IN CAMBODIA ................. 185 APPENDIX I. NATIONAL COMMITTEE FOR DISASTER MANAGEMENT (NCDM) AND ITS LOCAL

STRUCTURES 191 APPENDIX J. PAST CAPACITY DEVELOPMENT AT NCDM...................................................................... 204 APPENDIX K. HAZARDS, DISASTERS, AND EMERGENCIES IN CAMBODIA ............................................. 218 APPENDIX L. INSTITUTIONAL ASSESSMENT AND TRAINING NEEDS OF NCDM STRUCTURES ............... 230 APPENDIX M. RESPONSE MECHANISMS TO DISASTERS IN RELATION TO FOOD ....................... 243 APPENDIX N. CAPACITY DEVELOPMENT NEEDS FOR DISASTER MANAGEMENT ................................... 247 APPENDIX O. CAPACITY DEVELOPMENT PLAN FOR PHASE 3 OF THE TA ............................................... 255 APPENDIX P. BUDGET FOR CAPACITY DEVELOPMENT DURING PHASE 3 ............................................. 266 APPENDIX Q. PERSONS MET ................................................................................................................ 272



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LIST OF TABLES Table 1 Checklist of Phase 2 Planned Activities and Status .......................................................................... 12 Table 2 Summary of datasets relating to food security and food emergency .............................................. 16 Table 3 Evaluation of datasets relating to food security and food emergency ............................................. 18 Table 4: Analysis of Indicator Data Sources ................................................................................................. 21 Table 5 Summary of Recommendations on M&E and EWS for FSN ............................................................. 27 Table 6 Phase 3 Capacity Development Plan Components .......................................................................... 38 Table 7 The sample of the Storage Survey ................................................................................................... 44 Table 8 Storage Units and Capacity ............................................................................................................. 45 Table 9 Storage Units and Capacity Available for Rent ................................................................................. 46 Table 10 Cost of Renting Storage ................................................................................................................ 47 Table 11 Objectives of Food Reserves and Stock Size in Different Countries ............................................... 50 Table 12 Different Scenarios for Food Reserves........................................................................................... 52 Table 13 Options for Management of Food Reserves .................................................................................. 56 Table 14 Food Reserves Size for Difference Purposes .................................................................................. 57 Table 15 Options for Financing of Food Reserves ....................................................................................... 58 Table 16 Option of Building and Renting Storage Facilities for a 10,000 tonnes Warehouse ...................... 59 Table 17 Information Systems for Food Reserves in Cambodia ................................................................... 60 Table 18 Cos Estimates of Different Types of Food Reserves ....................................................................... 65 Table 19 Top 10 Natural Disasters in Cambodia – People Affected .............................................................. 66 Table 20 Short and Medium Term Recommendations ................................................................................. 69 Table 21 Datasets relating to food security in Cambodia ............................................................................. 78 Table 22 Evaluation of Cambodia Food Security and Nutrition Information System (FNIS) .......................... 79 Table 23 Evaluation of System of Rice Intensification in Cambodia (SRI) Website ....................................... 81 Table 24 Evaluation of WFP Food Security Atlas of Cambodia Website ....................................................... 82 Table 25 List of maps available in the Atlas of Cambodia ‐ National poverty and Environmental Maps ....... 82 Table 26 Evaluation of Natural Resource and Environment (NRE) Data Tool Box......................................... 84 Table 27 Evaluation of Cambodia Socio‐Economics Survey (CSES) ............................................................... 86 Table 28 Evaluation of Cambodia Anthropometric Survey (CAS) 2008 ......................................................... 86 Table 29 Evaluation of Cambodia Demographic Health Survey (CDHS) 2005 ............................................... 87 Table 30 Evaluation of National Health Information System (NHIS) ............................................................. 88 Table 31 Evaluation of MOH Communicable Disease Control department (CDC) surveillance and rapid response system .......................................................................................................................................... 90 Table 32 List of data items in ID Poor Database ........................................................................................... 92 Table 33 List of provinces covered by ID Poor Database .............................................................................. 92 Table 34 Evaluation of ID Poor database ..................................................................................................... 95 Table 35 Available formats for the commune database ............................................................................... 96 Table 36 Evaluation of commune database ................................................................................................. 98 Table 37 Source of map layers in 2008 census ............................................................................................. 99 Table 38 Evaluation of 2008 National Census ............................................................................................ 100 Table 39 Evaluation of National Institute of Statistics CAMinfo database. ................................................. 101 Table 40 Evaluation of MRC Flood Warning System .................................................................................. 102 Table 41 Evaluation of Ministry of Agriculture and Fisheries (MAFF) weekly rice report ........................... 103 Table 42 Commodities covered by CAMIS ................................................................................................. 103 Table 43 Evaluation of Cambodia Agricultural Market Information Service (CAMIS) ................................. 105 Table 44 Coding system used for villages in 2008 census........................................................................... 106 Table 45 Population Figures in the Commune Db (2008) and 2008 Census for Selected Districts .............. 107 Table 46 Key Organizations met in Bangladesh.......................................................................................... 125 Table 47 Key Organizations met in Viet Nam ............................................................................................ 126 Table 48 Program of Bangladesh Study Tour ............................................................................................. 127 Table 49 Program of Viet Nam Study Tour ................................................................................................. 129 Table 50 Participants to Study Tour ........................................................................................................... 132 Table 51 Participants to the Workshop on Food Reserves held on 1 April 2010 at Cambodiana Hotel ...... 139 Table 52 Program of the Workshop on Food Reserves held on 1 April 2010 at Cambodiana Hotel ........... 142



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Table 53 Estimated Resources Required for Improving DM Effectiveness from Reporting Respondents .. 146 Table 54 Transport Means required at Provincial Levels and below, as indicated by the percentage of respondents citing them ............................................................................................................................ 147 Table 55 Mean quantities of main types of needs for Disaster Management, cited by respondents ....... 147 Table 56 Priorities in resource needs for provincial, district and commune level disaster management given in terms of % of respondents choosing priority ................................................................................ 148 Table 57 Percentages of Provincial and District level DM structures surveyed having staff with experience in particular computer skills ...................................................................................................................... 150 Table 58 Percentages of Respondents at different levels of Disaster Management indicating different types of improvements to their information systems ................................................................................ 151 Table 59 Percentages of training of different structures in disaster management according to different forms of training received ......................................................................................................................... 151 Table 60 Most Useful Training Provision by major subject in recent years ............................................... 152 Table 61 Numbers needing different types of training in different aspects of disaster management as percentages of respondents’ responses .................................................................................................... 153 Table 62 Percentages of respondents indicating having undertaken risk assessments on specific types of hazard ....................................................................................................................................................... 155 Table 63 Percentages of respondents using vulnerability data for different purposes ............................ 156 Table 64 Percentages of respondents using food vulnerability data for different purposes .................... 157 Table 65 Percentages of respondents at local levels considering engaging in different disaster prevention activities .................................................................................................................................................... 158 Table 66 Percentage division of financial needs for prevention activities at local levels ......................... 158 Table 67 Numbers of respondents at local levels actually implementing different types of disaster preparedness activities .............................................................................................................................. 159 Table 68 Percentages indicated by respondents of financial needs required for disaster preparedness activities .................................................................................................................................................... 160 Table 69 Numbers of respondents reporting different types of public awareness activities undertaken during the last year.................................................................................................................................... 161 Table 70 Percentage of respondents indicating most useful and second‐most useful methods of raising public awareness ....................................................................................................................................... 161 Table 71 Percentage of respondents indicating most useful and second‐most useful needs in activities for raising public awareness ............................................................................................................................ 162 Table 72 Assessment of effectiveness of early warning systems by respondents of local disaster management structures (in numbers of respondents) .............................................................................. 163 Table 73: Numbers of respondents indicating all priority ratings, and first and second priorities in improving early warning systems ............................................................................................................................... 164 Table 74 Numbers of respondents indicating all levels of priority, first and second priorities in improving emergency response capacities ................................................................................................................. 166 Table 75 Percentages of different types of DM staff working on disaster assessments ............................. 167 Table 76 Main Communication Problems during Floods cited by Respondents ......................................... 169 Table 77 Main communication problems during droughts cited by respondents at provincial and lower levels ......................................................................................................................................................... 169 Table 78 Numbers of respondents performing different functions in relief and rehabilitation operations over disasters ............................................................................................................................................ 170 Table 79 Other improvements in Disaster Management Policy and Food Emergency Policy suggested by respondents .............................................................................................................................................. 172 Table 80 Numbers of respondents using different types of equipment in their warehouses ..................... 175 Table 81 Mean monthly end‐stocks of unmilled rice, milled rice and seeds, stored in warehouses, by different types of storage proprietor over the last 12 months, by those reporting only, set against mean storage capacity in warehousing used (tonnes) ......................................................................................... 179 Table 82 Mean number of days different grains stored by type of operator, from those reporting ........... 180 Table 83 Storage Units and Capacity Available for Renting Out ................................................................. 181 Table 84 Mean percentage loss of grains in storage from different causes, by type of operator reporting losses, and months in which the main losses occur (% of respondents) .................................................... 182 Table 85 Cost of Renting Storage .............................................................................................................. 183 Table 86 Natural Disaster frequency by province in Cambodia .................................................................. 221



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Table 87 Numbers needing major types of training in different aspects of disaster management as percentages of respondents’ responses for CDMs at the provincial level and below ................................. 233 Table 88 Food Need Assessments for Major types of disaster having food implications ............................ 246 Table 89 Short‐Term, Medium‐Term and Long‐Term Disaster Management Capacity Needs .................... 252

LIST OF FIGURES Figure 1 Phases of the TA .............................................................................................................................. 9 Figure 2 Overview of Institutions and Organizations involved in FSN M&E ................................................. 19 Figure 3 Intersection of Disasters and Food Emergencies ............................................................................ 52 Figure 4 Price Stabilization around a Price Band using Food Stocks ............................................................. 53 Figure 5 Flow of data in the NHIS ................................................................................................................ 87 Figure 6 GeoChat system for emergency co‐ordination ............................................................................... 90 Figure 7 Example of online pricing query from CAMIS ............................................................................... 104 Figure 8 Output from the GIEWS system using data from CAMIS .............................................................. 105 Figure 9: Proposed Structure of Food Security and Nutrition Information Management Task Force ......... 109



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ABBREVIATIONS ACI Agrifood Consulting International ADB Asian Development Bank ADPC Asia Disaster Preparedness Center ADRC Asian Disaster Reduction CentreAMO Agricultural Marketing Office ANC Ante Natal Clinic APDMC Asia Pacific Disaster Management Centre BIDS Bangladesh Institute of Development Studies (BIDS) BMI Body Mass Index CAFRA Cambodia Food Reserves Agency CAH Centre of Agricultural Hydrology – Vietnam CAMIS Cambodia Agriculture Marketing Information System CARD Council for Agricultural and Rural DevelopmentCAS CDB

Cambodia Anthropometric Survey Commune Database

CBDM Community‐based Disaster Management CBDP Community‐Based Disaster Preparedness ProgrammeCBDRR Community‐based Disaster Risk Reduction CBEWS Community‐based Early Warning System CCDM Commune Committee for Disaster Management CDB Commune DatabaseCDC Council for the Development of Cambodia CDCF Cambodia Development Cooperation Forum CDHS Cambodia Demographic and Health Survey CDMT Commune Disaster Management Team CFW Cash for Work CMDG Cambodia Millennium Development Goals CMVIS Cambodia Mine UXO Victim Information System CPMU Central Project Management UnitCPS Community Profile System CRC Cambodia Red Cross CSES Cambodia Socio‐Economic Survey CSI Coping Strategies IndexDAALI Department of Agronomy and Agricultural Land Improvement DCDM District Committee for Disaster Management DDMFC Department of Dyke Management and Flood Control – Vietnam DGF Directorate General of Food DMB Disaster Management BureauDMD Disaster Management Department DOs Development Officers DRR Disaster Risk Reduction DRRM Disaster Risk Reduction and ManagementDRT Disaster Response Team EA Executing Agency ECHO European Community International Humanitarian Office EDRI Evaluate Disaster Response InitiativesEFAP Emergency Food Assistance Project EMIS Education Management Information System EU European Union



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EWS Early Warning System FACT Field Assessment and Co‐ordination Team FAO Food and Agriculture OrganizationFDRT Field Disaster Response Teams FFE Food for Education FFW Food for Work FIVIMS Food Insecurity and Vulnerability Information and Mapping System in Cambodia FPMU Food Policy Monitoring Unit FSIEWS Food security Information and early warning system FSN Food Security and Nutrition FSNIS Food Security and Nutrition Information SystemFSSP Food Security Support ProgramGDFR General Department of Food Reserves GDP Gross Domestic Product GFDRRT Global Fund for Disaster Risk Reduction and TyphoonGIEWS Information and Early Warning System on Food and Agriculture GTC Green Trade Company GTZ Gesellschaft fur Technische Zusammenarbeit, GmbH ha hectare HARVEST Helping Address Rural Vulnerabilities and Ecosystem Stability HC Health Center HE His Excellency HFA Hyogo Framework for Action (HFA) HIV/AIDS Human Immunodeficiency Virus/Acquired Immune Deficiency Syndrome HVCA Hazard, Vulnerability and Capacity Assessment ICT Information and Communication Technologies IDA Iron Deficiency Anemia IDD Iodine Deficiency DisorderID‐Poor Identification of Poor Households Program IFPRI International Food Policy Research Institute IMTF Information Management Task Force IPC Integrated Food Security Phase ClassificationLDRRPs Local Disaster Risk Reduction Plans M&E Monitoring and Evaluation MAFF Ministry of Agriculture, Forestry and Fisheries MCDM Municipal Committees for Disaster ManagementMDGs Millennium Development Goals MEF Ministry of Economy and Finance MIME Ministry of Industry, Mines and Energy MOC Ministry of CommerceMOFDM Ministry of Food and Disaster Management MOH Ministry of Health MOLVT Ministry of Labor and Vocational Training MOP Ministry of PlanningMOSAVY Ministry of Social Affairs, Veterans and Youth Rehabilitation MoU Memorandum of Understanding MOWA Ministry of Women’s Affairs MOWRAM Ministry of Water Resources and Meteorology MRC Mekong River CommissionMRD Ministry of Rural Development mt Metric ton



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NCDD National Committee for Sub‐National Democratic Development NCDM National Committee for Disaster Management NDRT National Disaster Response TeamNERF National Emergency Relief Fund NFPCSP National Food Policy Capacity Strengthening Program (NFPCSP) NGO Non‐Governmental Organization NHIS National Health Information SystemNHMSV National Hydro‐Meteorological Service of Vietnam NiDA National ICT Development Agency NIS National Institute of Statistics NRE Natural Resource and EnvironmentNSDP National Strategic Development PlanNSPS National Social Protection Strategy for the Poor and Vulnerable OD Operational District PCDM Provincial Committee for Disaster ManagementPDA Provincial Departments of Agriculture PME Participatory Monitoring and Evaluation PRA Participatory Risk Assessments PRK People’s Republic of Kampuchea RCL Red Cross Leader RCV Red Cross Volunteer RFMMC Regional Flood Management and Mitigation Center RGC Royal Government of Cambodia RGMC Regional Disaster Management CommitteesRH Referral Hospital RTAVIS Road Traffic Accident and Victim Information SAW Strategy on Agriculture and Water SFFSN Strategic Framework for Food Security and Nutrition in Cambodia SL School Layer SNAP Strategic National Action Plan for Disaster Risk Reduction SNEC Supreme National Economic Council SOP Standard Operations Procedures SRI System of Rice Intensification SSN Social Safety Nets TA Technical Assistance TB Tuberculosis TWGAW Technical Working Group for Agriculture and Water TWGFSN Technical Working Group for Food Security and Nutrition VAD Vitamin A Deficiency VAM Vulnerability Assessment MapVARG Vulnerability and Adaptation Resource GroupVDC Village Development Committees VRG Village Representative Groups WFP World Food ProgrammeWFPBD World Food Programme – Bangladesh



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1 INTRODUCTION

1. This document is the Midterm Report for Grant 0116 ‐ CAM: Emergency Food Assistance Project and Strengthening Institutional Capacity for Emergency Response to Food Crisis and Improving Food Security (“the TA”). The Inception Report presented a work plan indicating that the TA assignment is organized into 3 phases (see Figure 1). Phase 1 was implemented from 19 October to 30 November 2009. All the activities of Phase 2 except the midterm workshop were implemented from 1 December 2009 to 12 April 2010. The midterm workshop will be undertaken after the Khmer New Year at a date to be agreed with ADB and the Executing Agency (EA). This Midterm Report presents the progress made towards the implementation of the work plan for Phase 2.

Figure 1 Phases of the TA

2. This report is organized into 11 chapters and 17 appendices as follows.

Chapter 1. Introduction Chapter 2. Progress made during Phase 2 Chapter 3. Assessment of Food Security and Nutrition Datasets and Monitoring

Systems Chapter 4. Assessment of Institutional Capacity for Disaster Management and Food

Emergency Response Chapter 5. Capacity Development Plan of NCDM/PCDM for Phase 3 Chapter 6. Social Safety Nets, Disaster Risk Reduction, and Food Security and Nutrition Chapter 7. Analysis of Food Reserves System in Cambodia Chapter 8. Food Security and Nutrition Policy Needs in Relation to Disaster Risk

Reduction and Food Emergency Chapter 9. Recommendations Chapter 10. Plan of Activities for Phase 3 Chapter 11. References

Oct ‘09 Nov ‘09 Apr ‘10 Nov ‘10 Jan ‘11

Inception Report

Midterm Report

Draft Final Report

Final Report

Inception Assessment and Policy Design and Capacity Building



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Appendix A. Datasets and Information Systems for Food Security and Nutrition in Cambodia

Appendix B. Institutions and Organizations involved in National Food Security and Nutrition Monitoring and Evaluation (FSN M&E)

Appendix C. Assessment ff SFFSN Overall Indicators Appendix D. Report of Study Tour to Bangladesh and Vietnam Appendix E. Summary of Food Reserves Workshop Appendix F. Summary of Institutional Survey Appendix G. Summary of Grain Storage Survey Appendix H. Cambodia Red Cross (CRC) and Disaster Management in Cambodia Appendix I. National Committee for Disaster Management (NCDM) and its Local

Structures Appendix J. Past Capacity Development at NCDM Appendix K. Hazards, Disasters, and Emergencies in Cambodia Appendix L. Institutional Assessment and Training Needs of NCDM Structures Appendix M. Response Mechanisms to Disasters in Relation to Food Appendix N. Capacity Development Needs for Disaster Management Appendix O. Capacity Development Plan for Phase 3 of the TA Appendix P. Budget for Capacity Development during Phase 3 Appendix Q. Persons Met



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2 PROGRESS MADE DURING PHASE 2

2.1 Key Results Achieved during Phase 2 3. The second phase of the Grant 0116 ‐ CAM: Emergency Food Assistance Project and Strengthening Institutional Capacity for Emergency Response to Food Crisis and Improving Food Security (“the TA”) started on 1 December 2009 and concluded on 12 April 2010. Over this period several key results were achieved:

1. Carried out two surveys on (i) Institutional Capacity of Committees for Disaster Management and (ii) Grain Storage. The surveys covered 11 provinces of Cambodia; the data collected were entered into a database, tabulated, and analyzed. Survey reports are included in this midterm report. The two surveys were conducted during December 2009 and February 2010.

2. Organized two study tours to Bangladesh and Viet Nam, with a delegation of 16 Cambodian officials from central and provincial level agencies. The officials learned from the experience of those two countries in disaster management and risk reduction, food reserves, and safety nets. The study tours were conducted during February and March 2010. Each study tour lasted approximately one week.

3. Organized a Food Reserves Workshop in Phnom Penh attended by approximately 70 participants. The workshop was opened by HE Keat Chhon, Deputy Prime Minister and Minister of Economy and Finance.

4. Conducted assessment of: (i) datasets and information on food security and nutrition; (ii) monitoring systems for food security and nutrition; (iii) capacity in disaster management and risk reduction.

5. Provided an analysis of issues related to food reserve system in Cambodia.

6. Formulated recommendations for interventions linking food security and nutrition strategy and policy to disaster management and risk reduction.

7. Formulated a capacity development plan for Phase 3 of the TA aimed at developing the capacity of NCDM/PCDM.

8. Presented a progress update of activities conducted during Phase 2 and an updated plan for the activities of Phase 3 of the TA.



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2.2 Checklist of Activities as per Inception Report Plan 4. The activity plan for Phase 2, presented in the Inception report and agreed with ADB and the Implementation Agency (IA) are presented in Table 1. Table 1 Checklist of Phase 2 Planned Activities and Status Activity Description Number

Status

2.1. Institutional analysis of food security monitoring systems Section 3, APPENDIX A, APPENDIX B, APPENDIX C

2.2. Evaluation of policies on food security and nutrition Section 6, Section 7, Section 8

2.3. Assess management of rice reserves in Cambodia and other countries

Section 7

2.4. Assess current response mechanisms of different stakeholders

Section 4

2.5. Assess data and information systems for food policy and response

Section 3, APPENDIX A, APPENDIX B, APPENDIX C

2.6. Assess institutional capacity and training needs of NCDM and PCDM

Section 4

2.7. Develop a capacity building action plan for the remainder of the project

Section5, APPENDIX O, APPENDIX P

2.8. Identify options for FSN assistance interventions (response system)

Section 6, Section 7

2.9. Recommendations on food reserves and FSN and monitoring system

Section 7, Section 3

2.10. Key informants interviews and consultative meetings APPENDIX Q

2.11. Field surveys on institutional capacity and storage Section 4.1, Section 7.1, APPENDIX F, APPENDIX G

2.12. Study Tour APPENDIX D

2.13. Stakeholder Workshop on Food Reserves APPENDIX E

2.14. Mid‐term Workshop Not Conducted

2.15. Preparation of Mid‐Term Report Submitted 12 April 2010

Source: Activities as pr TA Inception Report, Section 5.1.1.

2.3 Consultants mobilization 5. During this phase, the Team Leader was fully involved in the TA except between December 21, 2009 to January 16, 2010. The National Food Security Expert was fully involved for the entire duration of this phase. The Institutional and Capacity Building Specialist’s second mission to Cambodia occurred between March 8 and April 8. The IT Infrastructure and Database Specialist was mobilized from March 10 to April 10. The Monitoring and Evaluation Specialist was mobilized from March 22 to April 15.

2.4 Office and Facilities 6. In the third week of March 2010, the office for the Consultant’s Team was moved from the second to the third floor of the Central Project Management Unit (CPMU) premises. The Consultant’s Team has adequate room facilities.



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2.5 Procurement 7. The Consultant has purchased one additional desk and chair to equip the new office rooms. Three quotations were prepared according to ADB procedures.

2.6 Survey on Institutional Capacity for Disaster Management 8. A survey on Institutional Capacity for Disaster Management was conducted during December 2009 and January 2010. The survey report is presented in APPENDIX F.

2.7 Survey on Grain Storage 9. A survey on Grain Storage was conducted during February 2010. The survey report is presented in APPENDIX G.

2.8 Study tour to Bangladesh and Viet Nam 10. Two study tours to Bangladesh and Viet Nam were conducted in February and March. The Study Tour Report is presented in APPENDIX D.

2.9 Food Reserves Workshop 11. A workshop on Food Reserves was conducted on 31 March 2010. The workshop was attended by approximately 70 participants from central and provincial levels. The workshop was opened by H.E. Dr. Keat Chhon, Deputy Prime Minister and Minister of Economy and Finance. The workshop report is presented in APPENDIX E.

2.10 Midterm Report

12. The midterm report was submitted on 12 April 2010.



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3 ASSESSMENT OF FOOD SECURITY AND NUTRITION DATASETS AND MONITORING SYSTEMS

3.1 Assessment of Food Security and Nutrition Datasets and Information system

13. There are a large number of food security related datasets, surveys, reports and websites. Those presented in Table 2 are the most widely used, important and relevant to food security and food emergencies.

14. The information systems specifically related to food security early warning and emergency response currently operating in Cambodia are:

The Ministry of Water Resources and Meteorology (MOWRAM) flood warning system which monitors river levels at 7 measuring stations and 14 villages

MOH Communicable Disease Control department (CDC) surveillance and rapid response system for diseases

The weekly rice crop report from Ministry of Agriculture and Fisheries (MAFF) which monitors the current rice harvest and includes data on production affected and lost due to the effects of flooding , drought and pests

The Cambodia Agricultural Market Information Service (CAMIS) which monitors market prices for agricultural commodities

15. A summary of the usefulness and timeliness of the various datasets to food policy decision making and quick response is shown in Table 3. The most useful data sets are highlighted with a color coded system and include (in addition to those mentioned above) the following:

Natural Resource and Environment (NRE) Data Tool Box

Cambodia Socio‐Economic Survey (CSES)

The Cambodia Anthropometric Survey 2008 (CAS)

National Health Information System (NHIS)

Identification of Poor Households Program (ID‐Poor)

Commune Database (CDB)

2008 National Census

16. Detailed information about each of the datasets and information systems is presented in APPENDIX A.

17. There are plans for a weather focused early warning food security MIS1 in a recent document published by the World Bank2. The MDG Achievement Fund3 is planning to support food security monitoring using the Integrated Food Security Phase Classification (IPC) classification for food security4. The MDG Achievement Fund is further discussed in APPENDIX B.

1 Management Information System (MIS) 2 Comprehensive Post Assessment Disaster Needs Assessment Report, RGC and World Bank, March 2010 3 The MDG Achievement Fund is a fund established by Spain and the UN whose aim is to accelerate progress on the Millennium Development Goals (MDGs) worldwide. 4 The Integrated Food Security Phase Classification (IPC) is a standardized tool that aims at providing a “common currency” for classifying food security.



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18. Many of the datasets, websites and other sources of information relating to food security in Cambodia are fairly static. This means they are updated on an ad hoc basis as data becomes available (either through specific surveys or from other partners information systems). Many of the systems appear to face significant challenges. For example the Food Insecurity and Vulnerability Information and Mapping System in Cambodia (FIVIMS) faced challenges in setting up a workable mechanism to coordinate and update the datasets with partners. This resulted in a system with data that is somewhat out of date.

19. In July 2006, a national stakeholder workshop on Food Security and Nutrition (FSN) related Information Systems was organized by CARD which resulted in a proposal to establish the Food Security and Nutrition Information Management Task Force. This Task Force is chaired by CARD, MAFF and MOP in order to address some of the problems related to food security information in Cambodia. The Task Force is charged with establishing a list of core indicators for FSN monitoring; enhancing active cooperation among the members in order to better match data user needs and to fill existing information gaps; coordinating the development of capacities for a better conceptual understanding of the FSN situation in Cambodia; promoting the use of information for the monitoring of the FSN situation in Cambodia and ensuring that new initiatives relating to FSN data management are designed to add value to and to complement existing systems and tools.

20. The creation of the Task Force is an important step in the harmonization of existing information systems and an important forum for the discussion of the need for, and nature of, any new emergency response systems.

21. The National Committee for Disaster Management (NCDM), as the agency charged with coordinating an effective emergency response to a disaster or emergency should not be heavily involved in routine data collection and processing. This will generally be the role of the various line agencies (e.g. agriculture, health, rural development). However, NCDM will need to have access to appropriate early warning indicators for various disaster scenarios from the line agencies plus up to date base data down to commune / village level for the whole country. The challenge facing NCDM is how to manage and organize this data in a usable format; make appropriate data available at the sub national level; and ensure that the CDM staff members have the appropriate data management skills.

22. In order to improve the capacity of NCDM in the area of data management, analysis and use of information in response to a disaster the TA will assist the NCDM in the following areas:

Establishment of base data using existing sources of information such as the 2008 census, ID poor database, commune database and maps. Improve the data management skills of the NCDM staff to manipulate this data in response to various disaster scenarios.

Maintaining a set of early warning indicators for various disaster scenarios and ensure that these indicators are understood and available at the lower levels (PCDM, DCDM etc) and to NGO’s.

Maintaining an electronic library of disaster management and related material at NCDM, PCDM and possible over the Internet.

Identifying what data is available from each line agency, its scope, accuracy and availability.

Identifying gaps in the available information and work with the various agencies to correct these gaps

Improve the IT infrastructure at NCDM and PCDM.



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Establishing and maintaining effective communication networks and links from NCDM down to CCDM level for routine data sharing, dissemination of information and for coordination of emergency response teams

Table 2 Summary of datasets relating to food security and food emergency

Data source Type Content Format Coverage Freq of update Notes

D1 Food Security and Nutrition Information System (FNIS)

General resource for nutrition and food security

Documents, news events

Website and CD (every 6 months)

Various Ad hoc Content updates rely on CARD staff

D2 Food Insecurity and Vulnerability Information and Mapping (FIVIMS)


Indicators and maps relating to food security and vulnerable populations

Website with interactive queries and maps

National Not updated since 2006

Not actively maintained

D3 System of Rice Intensification in Cambodia (ISRI)

General resource for System of Rice Intensification

Documents, news events

Website Various Ad hoc Content updates rely on CARD staff

D4 WFP Food Security Atlas


Static information grouped into a number of categories related to food security

Website National with provincial profiles

Ad hoc

D5 Natural Resource and Environment (NRE) Data Tool Box

Mapping resource

Many maps relating to the environment and natural resources

Website and CD

National and can query by commune

Not since 2007 Active

D6 Cambodia Socio‐Economic Survey (CSES)

Household survey about living conditions and the extent of poverty.

Data relating to household expenditure/consumption, housing, education, literacy and poverty.

Report National with indicators to province level

5 surveys between 1993 ‐ 2004 annually since 2007

D7 The Cambodia Anthropometric Survey (CAS)

Survey about nutritional status of children

Detailed nutritional data.


One off survey in 2008

D8 Cambodian Demographic Health Survey (CDHS)

National Health Survey

Data on range health indicators.


One off survey in 2005

D9 Natontionsl Health Information System (NHIS)

Routine health statistics

Health statistics reported by government heath facilities

Database at MOH extracts available on request

All government health facilities

Monthly Ongoing data collection

D10 Communicable Disease Control department Early Warning System (CDC EWS)

Health early warning system

Zero reporting of set of notifiable disease and other emergencies.

Database at Dept communicable disease control at MOH

All government health facilities

Weekly Public hotline available for the public to report cases.

D11 ID Poor Database

Poor households

Lists of all households

Database at MOP. Copies

Approx 50% of all villages

Aims to update the lists every two

Each poor household is



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Data source Type Content Format Coverage Freq of update Notes

and individuals

and all poor individuals

of the database and extracts are available. Hard copy available at commune level

covered, full coverage planned for 2010‐2011

years issued with a card with the picture of all household members. The card is valid for 3 years.

D12 Commune DB 700+ indicators for villages and communes

Core information relating to demographic, socio‐economic and physical assets

Database at MOP and available on request. District data books produced by MOI. Commune and village books at local level.

Nationwide Commune DB annually, district books every three years

New questions have been added each year so may be possible to expand food security related data if required. Does not have GIS coding.

D13 Census 2008 Population statistics

Population data for all villages in Cambodia

CDs and reports containing raw data and various software and map files for easy access to the data

Nationwide 10 years CDs available from NIS have a number of standalone applications to enable access to data in a number of formats

D14 CamInfo 3.2 General resource

Data from national surveys and censuses, the commune database, and other sectoral information systems

Software available from NIS. Earlier version available online through DevInfo website

Nationwide Every few years Difficult to access online through the DevInfo website

D15 MOWRAM / MRC Flood Warning System

Flooding early warning system

River level data 7 measuring stations

Daily Pilot study from 14 villages underway to report water level by SMS

D16 MAFF weekly rice crop report

Status of current rice harvest

Data about the status of the current rice harvest

Paper report for Prime Minister’s Office

National by province

Weekly Includes land affected and destroyed by floods, drought and pests

D17 Cambodia Agricultural Market Information Service (CAMIS)

Data on market prices for a number of agricultural commodities

Market prices Data available online and by SMS (selected commodities)

Selected villages and traders

Three times per week for SMS system and up to a month for other commodities

Data from CAMIS used for early warning indicators in Global Information and Early Warning System on Food and Agriculture (GIEWS)

Source: Consultant’s Team



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Table 3 Evaluation of datasets relating to food security and food emergency

Dataset Use Food Policy Decision Making Quick Response to Potential

Food Crisis

Usefulness Timeliness Usefulness Timeliness

D1 Cambodia Food Security and Nutrition Information System (FNIS)

Used by people and organizations interested and involved in food security

Moderate Low Limited Low

D2 Food Insecurity and Vulnerability Information and Mapping System in Cambodia (FIVIMS)

Low Low Low Low Low

D3 System of Rice Intensification in Cambodia (SRI) Website

Government and development sector staff interested in rice


D4 WFP Food Security Atlas of Cambodia Website

People interested in food security in Cambodia


D5


Civil society, government institutions, development partners and the public interested in the environment and related socio economic issues

Low Low Moderate Low

D6


Government, non government sectors and the private sector.

Good Moderate Low Low

D7 The Cambodia Anthropometric Survey

2008 (CAS)



D8 Cambodian

Demographic Health Survey (CDHS)


Good Low Low Low

D9 National Health Information System (NHIS)

Ministry of Health, referral hospitals and health centers

Good Good Good Moderate ‐ good at a district level

D10 MOH Communicable Disease Control department (CDC) surveillance and rapid response system

CDC, the media, Ministry of Health, referral hospitals and health centers

Moderate Good Good Good

D11 Identification of Poor Households Program (ID‐Poor)

Government and non‐governmental partners

Good Good Good Good

D12 Commune Database

(CDB)

Used as part of annual government planning exercises

Good Good Good Good

D13

2008 National Census Government, non government sectors and the private sector.

Good Moderate Moderate Moderate



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Dataset Use Food Policy Decision Making Quick Response to Potential

Food Crisis

D14 National Institute of Statistics CAMinfo database

Low Low Low Low Low

D15 MOWRAM / MRC Flood Warning System

Pilot used by Government and MOWRAM / MRC

Low Good Good Good

D16

MAFF weekly rice crop report

Tracking the current rice harvest, details of planed areas affected and destroyed by flood, drought and pests

Good Good Good Good

D17 Cambodia Agricultural Market Information Service (CAMIS)

FAO, traders, farmers, government, NGOs and researchers and other interested in agriculture and food security

Good Good Moderate

Good for vegetables, moderate for rice

Key

Good FSN and/or Early Warning Information

Good Background Information


3.2 Assessment of Food Security and Nutrition Monitoring and Evaluation Systems

23. Food security and nutrition monitoring in Cambodia is uncoordinated and segmented. A large number of organizations collect relative data but this is not consolidated or used in coordinated national level strategic or policy decisions. Significant efforts have been made to address this issue over the last ten years. The main institutional arrangements and key actors involved in this work are shown in Figure 2.

Source: Study Findings

Figure 2 Overview of Institutions and Organizations involved in FSN M&E



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24. A review of each organization illustrated in Figure 2 is presented in APPENDIX B. The main conclusions of the review are:

1. The current institutional structure provides a framework for the design of a comprehensive FSN monitoring and response system. The TWGFSN and IMTF are existing structures with which the Strengthening Capacity for Emergency Response to Food Crisis project should work.

2. The current institutional structure will require enhancement to meet targets for supporting food policy and informing rapid response to potential food crisis. Examples of enhancements are:

Current planned timing of IMTF meetings and reports should be enhanced. Current plans are for quarterly IMTF meetings. Regular weekly data review, analysis and dissemination are required for rapid response to potential food crisis. Bi‐annual or annual data review, analysis and dissemination is required for food policy.

Current institutional arrangements do not meet requirements for early warning or quick response to potential food crisis. The Strengthening Capacity for Emergency Response to Food Crisis project will have to address institutional arrangements for establishing an early warning system and disseminating information to ensure an efficient and effective rapid response.

3. The Strengthening Capacity for Emergency Response to Food Crisis project should work closely with existing stakeholders. Key Ministries involved in FSN M&E are the Ministry of Planning, Ministry of Health, Ministry of Commerce and MAFF. CARD is also a key stakeholder with the mandate to ensure food security for all Cambodians. The MDG Achievement Fund is supporting selected UN Agencies to improve FSM M&E in Cambodia. The project should work with these agencies to avoid duplication and ensure complementary results. Main UN Agencies are UNICEF, WFP and FAO.

4. Donor co‐ordination should be encouraged. Potential World Bank funding of weather related early warning information with NCDM should be included in FSN M&E system design. USAID and any other relevant donors should be consulted during design processes to ensure consistency and avoid duplication.

3.2.1 Review of FSN Indicators from the Strategic Framework for Food Security and Nutrition

in Cambodia 2008‐2012

25. The Strategic Framework for Food Security and Nutrition in Cambodia 2008‐2012 (SFFSN)

“is intended to serve as a holistic cross‐cutting reference frame for the formulation and review of sector strategies and to guide the design and planning of programmes and projects for improved food security and nutrition for all Cambodians”5. The SFFSN includes a section on M&E with key indicators for the SFFSN Goal and its five Objectives. While SFFSN M&E is currently inactive, it does represent a starting point in the assessment of a national FSN M&E system. To begin the assessment of SFFSN the M&E consultant supported by team members reviewed current indicators according to the following criteria:

5 Strategic Framework for Food Security and Nutrition in Cambodia 2008‐2012 (SFFSN) Prepared by the Council for Agricultural and Rural Development (CARD) in consultation with the Technical Working Group on Food Security and Nutrition (TWG‐FSN) Phnom Penh, May 2008



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Data availability

Usefulness of the indicator in food policy decision making

Usefulness of the indicator to inform the quick response to potential food crisis

26. A summary of results are presented in APPENDIX C. Main findings and a discussion of indicators for the Goal and each Objective is provided below.

27. SFFDN Indicators are focused as opposed to comprehensive. While the SFFSN intends to be a ‘holistic cross cutting reference’ its M&E indicators are focused on the frameworks Goal and five Objectives. As a result indicators do not holistically or comprehensively cover national food security and nutrition. For example indicators for food availability focus on own food production as opposed to providing information on all food sources. Indicators in the SFFSN M&E framework give an incomplete picture of the national food security and nutrition situation.

28. SFFNS Indicators are closely linked to the Cambodia Millennium Development Goals Report and the National Strategic Development Plan 2006‐2010. Thirty six percent of SFFSN indicators are linked to the Cambodia Millennium Development Goals Report (CMDG) and forty eight percent to the National Strategic Development Plan (NSDP) (see Table 4). Both of these data sources are published by the Ministry of Planning. The Ministry of Planning is the Co‐Chair of the Technical Working Group for Food Security and Nutrition. Table 4: Analysis of Indicator Data Sources

Data Source CMDG NSDP NNP6 Cam Info

No Data Source Given

Total

Number of Indicators using this Data Source 15 20 1 1 5 42

% of Total 36% 48% 2% 2% 12% 100%

29. Current data availability for Indicators in the SFFSN is limited and not timely. Review of data availability for indicators in the SFFSN shows that much of the data is not available. Available data is at least two years old (see APPENDIX C). The indicators rely on specific surveys that feed into NSDP and CMDG processes as opposed to more timely data sources (i.e. CAMIS, NHIS and the Commune Database). For more regular monitoring of FSN indicators will be required that have readily available data sets.

30. Current SFFSN M&E Indicators do include coverage of disasters. Indicators for the number of people affected by flood and drought requiring food assistance are included in the SFFSN M&E Framework under Objective 4.

31. Potential exists to enhance indicator coverage of immediate disasters to better ‘mainstream’ this type of disaster into SFFSN strategy and M&E. No information is collected for more severe and immediate disasters7 such as number of people killed or level of injuries. No reference is made for the number of disasters over time, numbers killed due to the disaster, number affected by the disaster or the cost of damage caused. Including this type of information would be a way of ‘mainstreaming’ disaster management into FSN strategy and policy and involving NCDM.

6 NNP is the National Nutrition Program

7 Examples would include short term weather related disasters such as flash floods and typhoons



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32. Indicators are now discussed related to the SFFSN Goal and the five Objectives.

33. Indicators to measure the SFFSN Goal: Poor and food‐insecure Cambodians, by 2012, have substantially improved physical and economic access to sufficient, safe, and nutritious food, at all times, to meet their dietary needs and food preferences for an active and healthy life. Indicators for the SFFSN Goal are focused on measurement of stunting, underweight and wasting in children under five years old. One poverty indicator is included. Other indicators relate to use of iodized salt, use of vitamin A capsules by children, breast feeding, female Body Mass Index (BMI) levels and anemia. Indicators given for the food access objective are limited. This is because relevant indicators are already given at the Goal level. This would suggest either a redrafting of the Goal, redrafting of indicators at this level and / or repetition of indicators at different levels.

34. Indicators included under Objective 1: Food‐insecure households increase food availability from their own agriculture and livestock production and from common property forests and fisheries. Indicators for Objective 1 are incomplete. While the objective statement requires indicators for own production, a comprehensive FSN M&E system would also have information for wider food availability. To fully cover food availability8 indicators should include production of staple products, imports minus exports, available stocks and losses and uses other than for food.

35. Indicators included under Objective 2: Food‐insecure households increase their food access by increasing household employment and incomes to buy foods. Indicators for food access are incomplete. Analysis of food access demands some knowledge of the nutritional status of people and the factors that can modify it: household incomes relative to the price of foodstuffs (financial access), demographic problems, and also physical access to supplies (distance from markets, ability to access them, etc.). Social access should be included, in which case unemployment, state of health and supply of drinking water would be added to the other factors.9

36. While nutritional status is covered at the SFFSN’s Goal level, more coverage should be given to food prices and household incomes and wages in a holistic system. Current indicators do not sufficiently inform of these factors even though they are mentioned in the objective statement. Physical access to food supplies is implied as an indicator is included for rural road rehabilitation. Social access to food is not included although one indicator measures the female share of wage employment.

37. Currently four of the nine Indicators under Objective 2 relate to poverty. It is recommended that these indicators are synthesized. Three of the nine indicators relate to GDP and inflation. These indicators, with others, could be included as measures of stability in a comprehensive FSN M&E system.

38. Indicators included under Objective 3: Food‐insecure households improve their food use and utilization, as a means to reduce malnutrition, morbidity and mortality, particularly among women and children. Current indicators do not fully inform of the position of food use

8 Availability = production of staple products + imports‐exports + available stocks ‐ losses and uses other than for Food from the Handbook for Defining and Setting up a Food Security Information and Early Warning System (FSIEWS) FAO, ROME ‐ 2000 9 Handbook for Defining and Setting up a Food Security Information and Early Warning System (FSIEWS) FAO, ROME ‐ 2000



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and utilization. Indicators are largely mortality focused and do not comprehensively cover food use and utilization. Some of the indicators used at the SFFSN Goal level would help assess food use and utilization. Indicators could also be enhanced to provide information on disease prevalence related to food use and utilization i.e. diarrhea.

39. The Conceptual Framework for Food and Nutrition Security identifies the following factors as involved in food use and utilization: nutritional knowledge, nutritional behavior, caring capabilities, water quality, hygiene, food safety and the health care system. Current SFFSN indicators follow the objective being focused on infant and mother mortality rates. The indicator for births attended by skilled health personnel and pregnant women with two or more Ante Natal Clinic (ANC) consultations with skilled health personnel is an indicator for the standard of the health care system. The indicator for net enrolment for girls in schools may be an indirect indicator for future improvements in hygiene practice as female education improves. However, some measure of dietary diversification would be desirable in a comprehensive FSN M&E system. The percentage of pregnant women with anemia is an indicator for food use. While indicators for safe drinking water access and sanitation access are relevant it is unclear how these indicators will be measured.

40. Indicators included under Objective 4: Food‐insecure households increase their capacities to cope with risks through reducing vulnerability to shocks and thereby increase the stability of food supply. Current indicators for Objective 4 incompletely measure household capacity to cope with risk and reduced vulnerability. The indicator for irrigated area does provide some indication of increased stability of food supply.

41. A Coping Strategies Index (CSI) has been developed by CARE and WFP. “The CSI measures behavior: the things that people do when they cannot access enough food. WFP use the CSI as part of a quarterly Household Food Security survey performed for their Food for Work and HIV Household Basic Care projects. Results from these surveys are not public documents. WFP feel the scope of these surveys could be expanded if resources were available. CSI information would strengthen indicators and help inform progress under Objective 4.

42. Indicators for number of people affected by flood and drought requiring food assistance suggest some thought about this type of disaster. Expanding on these indicators would increase the level of disaster monitoring included in a comprehensive FSN M&E system.

43. Indicators included under Objective 5 of the SFFSN M&E framework are drafted as sub‐objectives for implementation of the SFFSN itself. Objective 5 of the SFFSN M&EE framework is ‘the institutional and policy environment for achieving improved food security and nutrition in Cambodia is enhanced’. This objective has the following three indicators:

Task force on FSN information management is operational and various FSN information systems are more integrated and work efficiently by 2012.

SFFSN is increasingly used as a reference framework for this cross‐cutting issue by relevant sector ministries and TWGs by 2012.

Increased coordination at provincial level and mainstream FSN in the decentralized planning process by 2012

44. These indicators do not measure food security and nutrition. They do recognize that the FSN information management system is currently inactive. While stating ‘operational’, ‘increased use’ and ‘increased coordination’ sub‐objectives, no targets are set or information given on how these sub‐objectives will be measured.



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45. The previous analysis suggests three main conclusions:

1. The current SFFSN M&E indicators provide a starting point from which to move forward. The Strengthening Capacity for Emergency Response to Food Crisis project should take existing indicators and enhance them through further analysis and review with stakeholders. An enhanced list would then form part of the comprehensive FSN monitoring and response system.

2. Potential Exists to consolidate, re‐allocate existing indicators and add new indicators. To design a comprehensive FSN M&E system existing indicators will require wider scope. For example food availability indicators will need to provide information on all food sources and not only own production. Similarly indicators for food use and utilization will require wider focus with synthesis of mortality indicators and addition of disease and dietary diversity information sources.

3. Current Indicators will require enhancement to inform quick response to potential food crisis. There is a need to enhance early warning indicators to detect approaching disasters. Current disaster related indicators do exist but no data source is given. This will be a key area to address in developing a comprehensive FSN M&E system.

3.3 Challenges and Principles for the Design of a Comprehensive M&E System for Food Security and Nutrition

46. A comprehensive FSN Monitoring system faces the following challenges:

1. Inter‐ministerial cooperation. CARD has been supporting the existing FSN M&E system for approximately seven years. They report that stimulating effective inter ministerial co‐operation has been a major challenge in implementation of the current FSN M&E system and the FSN Strategy. UNICEF report that efforts to bring ministries together into a working group to analyze FSN M&E data were frustrated by a lack of allowance payments to those involved. UNICEF also report that payments for quarterly reports produced by the working groups may now allow these inter ministerial events to function.

2. Hierarchical Decision Making in Cambodia. Decision making in Cambodia is centralized

with power concentrated in a few individuals. This affects politically sensitive issues such as food and food security. As an example of this information’s importance weekly crop production data is sent directly to the Prime Minister by the Ministry of Agriculture. This context represents a significant challenge for an M&E system that requires ministries and multiple stakeholders to come together, share information and take coordinated consistent decisions.

3. Additional Data Requirements not currently Available. To build a comprehensive FSN

M&E system will require data that is not currently available. An example of appropriate but unavailable data is cross border trade information. This data should be collected by the Ministry of Commerce. Establishing ways to collect new data could significantly increase the cost of the M&E system.

4. Donor harmonization. Potential exists for different donors to duplicate support related

to FSN M&E. NCDM has submitted a proposal to the World Bank that aims to improve



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early warning systems10. This system could provide valuable input to a comprehensive FSN M&E system. However, NCDM currently does not see this early warning information being part of a wider FSN M&E system as it is focused on floods. Harmonising M&E initiatives through the Technical Working Group for FSN will be important in avoiding duplication.

47. To meet the challenges faced in designing a comprehensive FSN M&E system the following principles are recommended:

1. Participation / Ownership. Decision makers using the FSN M&E system will have to have confidence in the information analyzed and the results produced. To achieve this, the design team should consult regularly with users to agree on the main components for the system. This includes the selection of indicators, agreeing systems for who should analyze data, how the analysis is performed and how reporting should be done to decision makers.

2. Building on Existing Structures (i.e. CARD). The design process should seek to build on

the existing structures shown in Figure 2). Initial review has identified the main structures and some of the challenges faced. By working with key actors in existing structures the design process should seek to find ways of meeting and overcoming current challenges. The design process should work with other organizations that are supporting improved FSN M&E (i.e. UNICEF and WFP from the MDG Achievement Fund).

3. Identifying Incentives for Using the FSN System. Incentives for using national level FSN

M&E are currently unclear. Expected incentives for FSN M&E are to improve decision making and the quality of interventions and strategies. Incentives do exist to individual organizations, projects and programs to monitor and improve what they are doing. However, any current incentives for national level collaborative FSN M&E have yet to generate an efficient and effective system. Key stakeholders, particularly from Government Ministries involved in FSN M&E will have to at least perceive potential for the system to benefit what they are doing.

4. Sustainably Funding the System. The FSN M&E system will involve a number of regular

activities. These activities will require funding. It is unlikely that the Government of Cambodia will consistently fund these activities11. FSN system design will include an indicative budget for proposed activities that can be used as an estimate of potential cost.

5. Identifying a ‘Driver’ of the FSN M&E System. An efficient and effective comprehensive

FSN M&E system would benefit from an institution or organization taking responsibility for arranging the events that comprise the system. Regular data collection, analysis and reporting will be required. Regular stakeholder meetings will be needed where M&E information is used to improve interventions and enhance strategies. The M&E system itself will require enhancement. An organization will need to perform this work and

10 Cambodia Proposal to the World Bank For Institutional Strengthening of Royal Government of Cambodia’s National

Committee for Disaster Management and Investment for Disaster Management To Global Fund for Disaster Risk Reduction (GFDRRT) and Typhoon Ketsana Emergency 11 No evidence of political will for FSN M&E outside of the UN and NGO sector has been found as part of this study.



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‘drive’ the system forward. The political sensitivity of FSN information combined with inter‐ministerial issues makes this a challenging role.

6. Working towards a System that Provides Sufficient Information for Effective Decision

Making. In designing a FSN M&E system the consultancy team will aim to collect sufficient information for effective decision making. By prioritizing indicators with key stakeholders, the team will seek to avoid creating a system that collects too much data.

7. Collaboration with other Initiatives. The team will work closely with other initiative such

as the ADB funded Safely Net Program, the potential World Bank supported Early Warning System proposed by NCDM, the USAID HARVEST program and the MDG Achievement Fund. This collaboration will ensure no duplication exists and systems are mutually supportive.

3.4 Recommendations about Monitoring and Evaluation for Food Security and Nutrition to be undertaken during Phase 3 of the TA

48. Based on the above findings and principles the following recommendations are made.

1 Work with the MDG Achievement Fund and CARD to Support the Information Management Task Force and TWGFSN

49. Next steps for the Strengthening Capacity for Emergency Response to Food Crisis project should bring together CARD, UN Agencies involved in the MDG Achievement Fund and relevant line Ministries. A small scale workshop should be held to inform them of:

The Strengthening Capacity for Emergency Response to Food Crisis projects progress to date relating to FSN M&E

Challenges faced in designing and implementing a comprehensive FSN M&E system (i.e. contributing to existing systems, facilitating inter‐ministerial co‐operation and lack of Early Warning System despite earlier efforts)

Plan a way forward – This will complement MDG Achievement Fund initiatives to formulate indicators. It is proposed that Strengthening Capacity for Emergency Response to Food Crisis projects Technical Assistance focuses on assessing ways to enhance coordination and cooperation between involved institutions and addressing early warning.

50. Next steps should build on existing work and systems contributing to on‐going initiatives, primarily the MDG Achievement Fund.

51. Supporting the current interventions of MDG Achievement Fund alone is unlikely to result in a comprehensive FSN M&E system. Current stakeholders plan for data collection and analysis to be performed every three months. While this can inform food policy it is not appropriate for early warning or rapid response to potential food crisis. By participating and investing in ongoing processes it will be possible to increasingly ‘mainstream’ disaster related monitoring into the existing system. This ‘mainstreaming’ would include enhancement of indicators related to disasters and adaptations to systems of collecting, analyzing and reporting information.



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2 Review institutional arrangements and design an Early Warning System

52. The Strengthening Capacity for Emergency Response to Food Crisis project should first analyze and determine the institutional home for an Early Warning System. Current options are the Ministry of Planning, MAFF, CARD and NCDM. The institutional home selected should support and complement the Information Management Task Force (IMTF), TWGFSN and current initiatives supported by the MDG Achievement Fund.

53. When institutional arrangements have been determined the Strengthening Capacity for Emergency Response to Food Crisis project should work with selected institutions to develop an Early Warning System. The Early Warning Unit will need to collect data more regularly than the three month intervals currently planned under the MDG Achievement Fund. For example rain water levels, river levels, rice prices, food production and child underweight figures would be collected and analyzed on a weekly or monthly basis. This information would be used by NCDM12, the FSN Information Management Task Force, the TWGFSN and future managers of a food reserve. To support any future food reserve the Early Warning System should include:

Crop statistics and crop forecast

Early warning systems related to flood, storms, rainfall (potentially linked to NCBM World Bank supported Early Warning System)

Market prices and market situation both in domestic and world markets

Trade statistics for grains

Past and expected disasters and food emergencies

Vulnerability and food insecurity maps

Food requirements of different groups

Table 5 Summary of Recommendations on M&E and EWS for FSN

Support Existing Initiatives in the Design of a FSN M&E

System

Establish a specific FSN Early Warning Unit, Indicator set and system that feed into

TWGFSN and IMTF

Objective of the Design

To better inform decision making related to national FSN Food Policy and Rapid Response

To provide more regular Early Warning information that forms part of a comprehensive FSN M&E system and would specifically inform managers of a food reserve

Method / Approach to be used

Participatory consulting with existing organizations involved in FSN M&E and building on existing structures

Participatory consulting with existing organizations involved in FSN M&E and building on existing structures

Expected Output

Design of comprehensive FSN M&E system covering immediate and longer term FSN issues / considerations

Design of an EWS contributing to the comprehensive FSN M&E system

Proposed Funding of the FSN M&E system

The MDG Achievement Fund has funding until Dec 2012. Funding after this is unclear.

The EWS would require funding.

12 Complementing any World Bank support



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4 ASSESSMENT OF INSTITUTIONAL CAPACITY FOR DISASTER MANAGEMENT AND FOOD EMERGENCY RESPONSE

4.1 Summary of Conclusions from Survey on Institutional Capacity for Disaster Management

54. The Consultant’s Team conducted a survey of Institutional Capacity for the Committees of Disaster Management during December 2009 and January 201013. The survey was conducted at the different administrative levels with representatives of the Committees for Disaster Management (CDM). These were at the national level (NCDM), at provincial level (10 PCDM), at district level (20 DCDM), and at commune level (20 CCDM). The detailed report from the survey is presented in APPENDIX F. This section presents the main conclusions of the survey and implications for the TA. 4.1.1 Reviewing the disasters to be managed

55. The key aspect met in the in the Institutional Capacity survey is that the types of disaster most predominantly considered in the country are negative floods, droughts, storms and epidemics. This current EFAP intervention, however, has stemmed from a major socio‐economic disaster that was generated externally. This socioeconomic disaster has had a more considerable negative impact on populations in Cambodia than many of the natural disasters are likely to have. Even with natural disasters, crop pest infestations and animal disease hazards appear to get limited attention. Often poor harvests (caused by a mix of factors over time) can have a much more negative impact than cataclysmic natural disasters. Early warning, prevention, response, mitigation, relief, rehabilitation and risk reduction need to apply to socioeconomic as well as natural disasters. The consultants recognise that of the natural disasters most likely to attack Cambodia, certain types of floods and droughts are likely to have the most negative impacts, and have the most impact in terms of food security. 4.1.2 Operational finance for effective disaster management

56. One aspect that comes out clearly from the survey is that existing government budgets for disaster management in Cambodia are inadequate and not based on regular budgeting that reflects needs. During the last three years the only regular financing of disaster management has been an annual budget of 1000 million Riels (about USD 250,000) for NCDM. This money is mainly used to payment of staff. This sum is not based on operational needs for disaster management. It appears this situation has remained the same in Cambodia for 15 years. In most cases the performance of relief and rehabilitation activities is undertaken by the Cambodian Red Cross (CRC)) with the help of local authorities and ministries using their existing budgets. No country should have to rely on humanitarian organizations and minimal government support in disaster management. To date, the substantial support to disaster management that has been provided in the country has come from external sources or internal humanitarian financing. The Government usually only respond after the event, which is nothing to do with disaster management, but rather a post‐event response. The cost of recovery from disasters needs to be weighed against the costs of providing on‐going effective support to disaster management.

13 The survey data in a Microsoft Access database, the Excel tabulations, the questionnaires on English and Khmer, and the survey manuals are submitted on a CD together with the Midterm Report.



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Unless the Cambodian government seriously considers budgeted annual finance reflective of need for the NCDM and some PCDM levels, and emergency response preparedness financing, Cambodia will remain unprepared for future disasters and emergencies. 4.1.3 Institutional division of labor in disaster management

57. This survey is primarily directed towards the NCDM and its structures at the local level. NCDM has gradually been building a co‐ordinating capacity at all levels for disaster management. These structures however have currently no executive role in the provision of disaster relief and rehabilitation. For many types of disaster this still rests with the Cambodian Red Cross (CRC). CRC staff members involved in disaster management have expressed the opinion that such activities should be the responsibility of government. However, CRC has continued to operate to the best of their abilities and have expanded some of their activities in relation to disaster management. Clearly, NCDM are frustrated in this and feel that government should play a more direct role in disaster management. They feel that the provision of food, seed and other supply reserves ought to be in government hands. They also recognise certain operational aspects could involve the private sector and NGOs. There is a need to have clear policy on institutions involved in disaster management in the country, and the directions in which the mix of institutions is moving before considering investment and capacity development initiatives. 4.1.4 Co‐ordination and linkages between participant institutions in disaster management

58. Co‐ordination and collaboration between different actors in disaster management has improved in recent years. However, there is still a lack of clear formal agreements between different institutions. Scope does exist for greater clarification of roles and responsibilities of different actors and institutions in the disaster management processes. 4.1.5 Transport and Communications in Disaster Management

59. Two aspects of disaster management particularly emerge from the analysis of the survey data as areas for improvement. These are (i) improved transport means for different operations and (ii) improved telecommunications systems at all levels, both for purposes of assessment, co‐ordination, data provision and contact with affected communities. Often these are treated as separate items, but it is important to look at them both together. This is because people often are being moved by such operations to different locations, when effective telecommunications systems and data processing can substantial reduce the needs for such movement. The comparative costs of alternative approaches need to be fully considered in prioritising investment, particularly where the information technologies are developing rapidly. The functions needing to be performed, and the optimal mechanisms by which each can be achieved, need to be analysed. All transport improvement options should look at fuel and maintenance needs, as well as the optimal vehicles for different circumstances. This does not appear in the responses of a number of respondents. Also, transport means and use need to be analysed in terms of their use on different operations over the course of the year, and there should be scope for moving vehicles to other locations to maximise use. Transport management has not appeared among the types of training cited, probably because of the limited availability of transport means to date. The desire to improve communications is a recurring theme of the survey in terms of lack of hardware (computers and dedicated phones) at sub national level and the need to improve electronic communication systems such as internet, email and SMS. An effective communications system is also a prerequisite for improving data collection, reporting and data analysis at all levels.



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4.1.6 Early Warning Systems and their Alert mechanisms

60. Consideration of early warning systems for socio‐economic disasters, and the development of useful indicators for these, seems hardly to have been considered. The interpretation of these early warning systems still poses problems at local levels. This questions the effectiveness of the alert mechanisms for particular types of disaster and how these are transmitted and received by potentially vulnerable communities, and how they are acted upon. 4.1.7 Data collection, assessments, monitoring and evaluations in disaster management

61. The survey revealed that at a number of levels that disaster management structures are conscious of the needs for good data collection, vulnerability group assessment, risk and damage assessment, and monitoring and evaluation. A number of respondents considered that their efforts in some of these directions have improved, and their current performance is good, but a number of others identified lacunae in performance in these directions to date.

62. Weaknesses exist in accurate data collection, data processing, data analysis, data dissemination and data use for timely decision‐making. Although respondents expressed confidence in their capacities to identify the vulnerable in disasters, they also admitted that this is often done from outdated information. Vulnerability mapping was rarely cited by any respondents, yet is an approach used to good effect by the WFP in Cambodia in the past, and modern technologies permit the execution of this more easily. Risk assessments have been undertaken for certain natural disasters, but formats for performing them for a range of disaster types are not available. Initial disaster assessments are weak, and efforts to formulate proposals for requesting supports are more developed, but on‐going assessments of changing need through to a fuller rehabilitation process are not always as useful as they need to be. Although there is a final report mentality on disasters, the general monitoring and evaluation approaches and activities are not particularly oriented to the objectives of future disaster risk reduction, future preparedness needs, future early warning improvements, and better prevention and mitigation approaches. Guidelines for such activities are lacking and insufficient. 4.1.8 Human resource needs and training

63. It is clear that some progress has been made in recent years in the provision of human resources for disaster management. A mix of efforts have been undertaken to train people at different levels of disaster management, despite the lack of dedicated finance for this. Nevertheless, it is also clear that much more needs to be done to provide the technical skills to competent staff at different levels, particularly in relation to risk, vulnerability and on‐going disaster assessment, Emergency Response Manuals for particular types of emergency, Standard Operations Procedures (SOPs) and guidelines, standard reporting procedures, information systems and their use, improved communication techniques, budgeting and costing. Clearly, some CDMs also need additional staff (and some less!). It is better to review these needs on a case‐by‐case basis, as the circumstances vary markedly. Sometimes training would overcome human resources constraints. Training courses seem to be the preferred means (or perhaps the most familiar) of forms of training. The on‐going training of trainers appears to meet valid needs. 4.1.9 Dedicated offices and staff

64. In a number of responses the question of providing dedicated buildings and staff below the national level for disaster management has arisen. Opinions differ as to the importance of this. Many of the existing CDM members are “dedicated”, but disaster management work



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comes on top of their normal work. Responses regularly call for clarifying roles and responsibilities, call for incentives and call for some staff to be made permanent. It might be useful to establish a permanent disaster management officer, with their own offices, in several provinces that are more affected by disasters. This should be performed as a pilot over several years. The pilot and any subsequent offices and officers would need sustainable financing. 4.1.10 Emergency Response Capacities

65. NCDM and PCDM levels considered that emergency response capacities had improved over the last five years. At the district and commune levels only 30% of respondents felt that their capacities had improved. The lack of operational finance for disaster response, limited transportation means, and the lack of supply reserves were all strongly cited as inhibitors of effectiveness in response. The delays involved in formulating support proposals and securing timely delivery of supplies to victims of disasters was still considered imperfect. 4.1.11 Food, seed, other supplies and equipment reserves

66. Up until now CDMs have not been significantly involved in the running of reserves of any kinds for emergency response. The CRC does have a 600 tonne rice reserve and reserves of other supplies for distribution. The Green Trade Company has been used for stocking and release of rice in times of emergency. These operations have been sporadic, without clear reserve financing, stocking, and release and replenishment policies. As the survey revealed, from the NCDM downwards there is a desire for CDMs at different levels to move from a coordinating role into a direct intervention role over reserves, particularly for rice reserves. At the local level there is also a demand to operate small seed reserves. All levels would like to have other relief supplies or small reserves of relief equipment. The Inception report gave some recent history of food reserve development in Cambodia and other Asian countries drawing out the main complexities of such operations. If these sorts of options are to be considered, it would seem inappropriate to have different organisations operating reserves in parallel. A a clear over‐riding institutional framework defining procedures would be needed to guide release and replenishment decisions with assurance of a clear budget for such operations. Too many reserves have been set up with external financing and not sustained by appropriate local financing. Training to operate reserves should not be a one‐off matter. It should involve longer‐term development of personnel and their long term training. Consideration of these matters does not appear in survey responses. Quantified assessment of food requirements over time for relief and rehabilitation for different types of disaster and knowledge of food vulnerable groups is still limited. 4.1.12 Disaster Management Policy and Food Emergency Policy

67. The major policy improvements suggested at all levels in relation to disaster management and food emergency are: (i) regular budgets and training of CDM staff; (ii) approval of a disaster management law; (iii) establishing a Disaster Management information system and (iv) the incorporation of Disaster Management into all socio‐economic planning. A number of other policy suggestions were from the survey from different levels of the system, which need to be explored more fully. Particular attention needs to be given to (i) having a timely disaster response strategy; (ii) clearer definition of the roles and responsibilities of CDM member; (iii) having a reserve supplies provision policy; and (iv) Standard Operations Procedures (SOPs).



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4.2 Assessment of the Institutional Capacity of NCDM Structures

68. This assessment is based on interviews with NCDM staff and members, PCDM staff and members in several provinces, as well as several local level CDM members. It has also taken into consideration earlier capacity development activities and assessments (including the March 2009 UNDAC study14). Lastly, it has used the findings of the institutional survey undertaken by the consultants in January 2010 (see section 4.1 and APPENDIX F). The mix of capacity development needs for NCDM structures are brought out more fully in APPENDIX L.

69. The NCDM structures are not responsible for executive functions of emergency response, but only the co‐ordination of activities.

70. The functioning of NCDM and lower level CDMs rests upon designated members whose prime employment is elsewhere. Each CDM has a very limited number of staff to execute activities and only a small portion of these people are permanent staff. Currently the NCDM at the national level has 23 members who only tend to meet after major disasters have occurred. It has a General Secretariat that has 55 staff, of whom 35 are permanent. Most of these peopleare seconded from other institutions. For details of staff at different levels see APPENDIX I.

71. At the NCDM General Secretariat there is a Bureau of Training & Capacity Building within the Department of Training and Disaster Risk Reduction. This Bureau has the responsibility to prepare plans and human resource training programs for national and local disaster management, and to “select candidate(s) for local and international training courses”. Currently, it would appear that this Bureau (which it is suspected is only 1 or 2 people) does not have a list of staff for the NCDM or staff at lower levels in the provinces. It does not have a systematic record of educational levels, past work experience and skills of these staff. It does not have the capacity to analyse the strengths and weaknesses of current staff as a basis for personnel deployment or identifying recruitment and training needs.

72. Training that has been undertaken to date has been on general disaster management themes, and arranged on a fairly ad‐hoc basis. It has not been based on systematic analysis of skill development needs and structured planning. In APPENDIX J details are given of experiences of previous training within NCDM structures, current skills availability and indicated training needs, as supplied by respondents to the Institutional Survey of January 2010. Caution needs to be applied in reviewing these training “needs”, because in some cases “need” may be more a “desire”. Besides past experience, it is also necessary to consider future possible hazards, and how they should influence the choice of priorities in training needs and organisation of resources.

4.3 Cambodia Disaster Management Aspects that need to be strengthened

73. The types of disaster most predominantly considered in the country are floods, droughts, storms and epidemics. Socio‐economic disasters, crop pest infestations and animal disease hazards receive limited attention.

74. Existing government budgets for disaster management in the country are inadequate and are not based on regular budgets that reflect needs. Disaster management has been operating based on post‐event reaction. Planned disaster management would be more cost‐effective than the current “deal‐with‐it‐when‐it‐happens” approach.

14 UNDAC 2009



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75. The strong reliance on the Cambodian Red Cross (CRC) as the prime emergency response organisation, while the NCDM has only had a co‐ordinating role, is unsatisfactory. There is a need to have a clear policy on institutions involved in disaster management

76. Capacity development planning for longer‐term development of the disaster management system is not happening. Although initiatives have been taken in relation to strategy development; such planning needs to include the capability to review the cost‐effectiveness of different investment options, and establish viable Monitoring and Evaluation (M & E) systems with such planning.

77. Improved transport means and improved telecommunications systems at all levels, are needed, both for purposes of assessment, co‐ordination, data provision and contact with affected communities, besides operations of emergency relief.

78. Information Communications Technology (ICT) that is appropriate for disaster management has been developing in recent years. NCDM structures have not kept up with these changes and the opportunities they present.

79. Early warning systems lack consideration of socio‐economic disasters. Insufficient attention has been paid to alert mechanisms for particular types of disaster, how these are transmitted and received by potentially vulnerable communities, and how they are acted on.

80. Disaster management structures are conscious of the need for good data collection, vulnerability group assessment, risk and damage assessment and monitoring and evaluation. The realisation of these skills has been mixed and has not always taken advantage of more‐recent technologies and approaches that could aid these processes.

81. Some progress has been made in recent years in the provision of human resources for disaster management, and a mix of efforts have been undertaken in relation to training of people at different levels of disaster management. Much more needs to be done in these respects to provide the technical skills to competent staff at different levels. This is particularly needed in relation to risk, vulnerability and on‐going disaster assessment, with manuals, guidelines and Standard Operating Procedures (SOPs). Training plans should be based on systematic training needs assessments.

82. At some of the lower levels, particularly provincial levels, and the lack of permanent staff, premises and equipment for disaster management is a handicap to efficient functioning.

83. Although some of the higher levels of disaster management structures consider that emergency response capacities have improved over the last five years, at the district and commune levels far fewer people felt this to be so. This was particularly because of the lack of operational finance, limited transportation means and the lack of supply reserves.

84. Although considerable efforts have been made to target more vulnerable groups in disasters, it still appears that quantified assessment of food requirements over time for relief and rehabilitation for different types of disaster is weak. Knowledge of food vulnerable groups could be improved. Preparedness of communities in relation to the protection of household food stocks in disasters, and of improved understanding of the indirect influences of other factors on household food insecurity during post‐disaster rehabilitation periods are also areas for enhancement.



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85. NCDM and CRC realise the importance of disaster risk reduction. They have engaged in DRR related local initiatives (mainly in relation to floods) but usually for short‐term periods with limited sustainability. There is a need for longer‐term sustainable risk‐reduction activities at all levels of society that is integrated into the development work of different sectors. There is a long term need for the development of risk reduction measures at local levels. This need should be met by appropriate Ministries.

86. There is a high awareness amongst local people and local authorities in risk areas regarding flood and drought risks but this has not been incorporated into local preparedness strategies. In general the Cambodian public has limited knowledge of the degrees of severity of different hazards and their associated risks, probable damage and the best precautionary steps to take. There is no sustained mechanism or investment plan to regularly educate people in these aspects, and encourage greater local self‐sufficiency in disaster preparedness. 4.4 Current NCDM/PCDM M&E Capacity related to FSN and Monitoring Emergency responses

87. NCDM institutional and staff capacity related to Food Security and Nutrition (FSN) monitoring is moderate and largely unused. NCDM institution and staff capacity related to monitoring of emergency response initiatives does exist but its use is reliant on support from other organizations, usually a donor. During the Institutional Capacity Assessment survey (Dec 2009 to January 2010) the NCDM respondent felt that NCDMs M&E performance was very good15. This respondent did not identify M&E as a main function of NCDM during periods of relief and emergency (Institutional Survey Table 321) and did not perceive any M&E training requirements for NCDM (Institutional Survey Table 83).

88. NCDM staff members do have experience of M&E. The Deputy Secretary General and Chief of Emergency Coordination Center was significantly involved in a recent Comprehensive Post Disaster Needs Assessment16. The CRC key informant reported that many current NCDM staff members were previous CRC employees. As employees of CRC these people would have been exposed to monitoring and evaluation. WFP report that the three departments within NCDM that are active as17:

(i) Department for Emergency Response

(ii) Department for Disaster Risk Reduction

(iii) Department for Information Systems

89. This suggests that M&E is not active. WFP sees NCDM as a natural partner in disaster management. To start operations in cases of disaster WFP requires an invitation to act from Government. In the recent case of Typhoon Ketsana WFPs invitation was late suggesting inefficiencies in disaster monitoring as well as communication and response.

90. Review of FSN M&E in NCDM shows that there is no institutional capacity for FSN M&E but that staff members do have some relevant skills and knowledge. NCDM does have capacity in

15 Based on Institutional Capacity Assessment Survey Table 325 16 Cambodia Post Ketsana Disaster Needs Assessment A Report Prepared by the Royal Government of Cambodia with support from the World Bank, GFDRR, UN System, ADB and ADPC under the leadership of the National Committee of Disaster Management, Phnom Penh, March 2010 17 HE Ross Sovann reports that the Disaster Response and Recovery Unit is inactive. It is not clear if this is the Dept for Emergency Response or the Dept of Disaster Risk Reduction referred to by WFP. An organogram for NCDM would help clarify the correct titles for the different units



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monitoring of emergency response initiatives; however these skills and knowledge are unused unless funds are available via a project or study that requires their use.

91. Current PCDM M&E capacity is unclear. Key informants suggest M&E capacity is highest at a national level and declines from this level to provincial to district levels. However, the Institutional Capacity Assessment (Dec 2009) suggests PCDM representatives have good M&E capacity. Interviews with the NCDM representative18 did not identify any M&E training needs at PCDM level.

92. Institutional Capacity Assessment (Dec 2009) suggest that seven out of ten provinces identified M&E as a main function during relief and rehabilitation19. The assessment also asked these provinces to rank their M&E performance20. Three out of eight provinces felt their M&E performance was very good (Battambang, Banteay Meanchey and Kampong Cham). A further province suggested that their M&E performance was good (Kratie). These results suggest that at least half of the provinces interviewed felt their M&E capacity is at least good. The December 2009 Institutional Capacity Assessment also asked PCDM representatives to identify their training priorities (Section 4.7 of the Assessment). No PCDM respondents identified M&E (Institutional Survey Table 83) as a training priority. This result further suggests that provinces perceive that they have good M&E capacity and do not see training in the subject as a priority.

4.5 Assessment of Current Response Mechanisms to Disasters in Cambodia in relation to Food

93. Actions to strengthen the supply, and access to, food through a disaster can, and should, be undertaken at different stages of the disaster management cycle. These action should not be limited to externally‐supplied relief food supplies to disaster victims. The disaster management cycle includes: (i) normal times; (ii) alert/warning state; (iii) disaster stage; (iv) rehabilitation state; and (v) immediate post‐rehabilitation stage. 4.5.1 Normal times

94. General studies of vulnerability and food insecurity have been undertaken in a number of communities. These have not been particularly oriented to how these vulnerable households, have their food security reduced during particular types of disaster and how they survive in terms of food supply during such disasters. The disaster risk reduction activities that have been undertaken have primarily been in water system control and vaccinations.. Little work in risk reduction strategies has focused specifically on food production, conservation and food protection. Some stimulation and education has been given to the planting of early and late varieties of food crops to enable continued food supplies if disasters strike at the growing period of the main crops.

95. Some action has been undertaken by CRC, ADPC and NCDM in public awareness of disasters (mainly floods), and preparedness measures that the public can take. ADPC focuses on Prey Veng and Kandal as two provinces that are strongly affected by flooding. Not much of this has been specifically oriented to food/crop/animal conservation. The Ministry of Health (MoH) has issued a booklet Health Issues during Floods. This, along with the conservation of key

18 Deputy Secretary General and Chief of Emergency Coordination Center (Ros Sovann)

19 Based on Institutional Capacity Assessment Section 13.1 and Survey Table 321. Also see Table 26 of Appendix Institutional Survey Version 4. 20 Based on Institutional Capacity Assessment Section 13.2 and Survey Table 324 and 325 from Appendix Institutional

Survey Version 4. Also see Table 27 of Appendix Institutional Survey Version 4.



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productive assets is likely to have an impact on subsequent food provision or income‐generation. What has been done appears to have been limited. Community meetings and workshops with school‐teachers, farmers and local authorities seem to be the main channels for any public awareness activities (as well as some community drama). At a national level such activities have been undertaken with the national telecommunications media.

96. The CRC has built up some immediate emergency response capacity in the way of food stocks (600 tonnes), plus 80 tonnes in 6 key provinces, and small quantities (often only around 2 tonnes of rice) in other provincial warehouses, as well as other minimal emergency relief equipment and supplies. Food needs form one of the four components in their contingency plans, Sanitation and Health being two of the others, which can have a longer‐term impact on food needs. CRC has also built up its local contacts system, which facilitates contact during disasters. In its contingency planning, CRC usually considers the following things:

Condition of roads between supply points and distribution points for food and other supplies;

The types of vehicles that can access these areas, and their availability, along with fuel availability;

Storage and handling capacities;

Airport or airstrip availability in the area, and airfreight capacity;

Port location, and size of boats and ships that can access zone;

In the event of imports, constraints on customs clearance and forwarding;;

Availability of food supplies in the local market, and costs;

Preparation of procurement procedures and capacity.

97. The CRC prepares annual action plans for disaster response, primarily for flooding and storms.

98. The Green Trade Company has an emergency rice reserve of between 5,000 and 10,000 tonnes. It only delivers this rice upon instruction from the Ministry of Trade, as directed by the Prime Minister. Risk assessments are often undertaken at national and provincial levels for floods and droughts. Assessments for storms and landslips are less frequent. At lower district and commune levels assessments are much more sporadic. Knowledge of food insecure sections of the population is used at a national level in preparedness assessments. Only about 50% of provincial structures and less than a quarter of local level structures use this knowledge in their assessments (Source: Institutional Survey January 2010). 4.5.2 Alert/Warning Stage

99. Early Warning Systems (EWS) are developed for annual floods, but less so for storms and flash flooding. Usually there is about a three day warning for annual floods. EWS for pest infestation or for animal disease have not been developed in relation to disaster management. The CRC plays a fairly active role in raising alerts, particularly for floods and storms. It is not clear if there are particular messages in these warnings for household responses that will influence food security during the threatened disaster.

100. Responsiveness to disaster warning is variable, particularly where victims are not particularly familiar with the disaster. This was the case in some areas in relation to the Ketsana storms in 2009. CRC had noted the weaknesses of response in Kampong Speu province and certain districts of Prey Veng province to flood warnings. The CRC undertook community‐based public awareness campaigns in these areas. This included bringing people from good response



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villages to poor response villages to raise consciousness over disaster awareness and the possibilities of disaster mitigation.

101. The Institutional Survey of January 2010 indicated that the knowledge of vulnerable households is not used in pinpointing warnings and preparedness recommendations to more vulnerable groups. Although some of the DM institutions are conscious of the particularly negative impact that different types of disaster can have on vulnerable groups the particular risks relating to food insecurity have not always been thoroughly worked through. 4.5.3 Disaster Stage

102. Although the CRC may supply some immediate food relief early on in disasters, if the food demand is greater a support proposal will be made. This passes from the local level up through the NCDM structures to obtain food supplies. This can involve some delays. Knowledge of particular food vulnerable groups is rarely used in these assessments (see Institutional Survey January 2010 Table 153), but such information is used slightly more in targeting operations. The CRC volunteers and members involved in the Field Disaster Response Teams (FDRT) have a range of social and professional skills. People with nutritional, agricultural, health and assessment skills and knowledge are sought as members. The CRC focuses particularly upon: poor households, households with HIV members, orphans and orphanages, widows with a number of children, and minority ethnic groups. In more recent years they have been paying more attention to “displaced” people and households that have temporary migrant members.

103. Rapid initial assessments of needs are sometimes inhibited by transportation and/or communications difficulties. Clear guidelines on approaches to use, and the chaotic nature of circumstances can lead to confusing, and sometimes contradictory assessments. CRC usually check first to see if there is market availability of food and if populations have the resources to pay for it before delivering food relief.

104. Follow‐up and rehabilitation needs assessments are not always conducted and have been cited as being “unreliable” (Institutional Survey January 2010 Table 242). 4.5.4 Rehabilitation Stage

105. Currently disaster management operations are more geared to food needs for immediate relief rather than for longer‐term rehabilitation. The CRC usually responds in terms of food relief supplies for disaster victims for 15 days only. Sometimes people are moved to evacuation centres. In these circumstances additional support demands have to be made for further food supplies. Apparently sometimes the WFP helps in this. Little assessment is made of the indirect effects of the disaster on longer‐term food needs for different categories of household. 4.5.5 Immediate Post‐Rehabilitation Stage

106. Although currently disaster response final assessments are made these give a factual record of quantities of food (and other goods) supplied. No evaluation of the appropriateness and impact of any food supplied is made. Similarly no evaluation of measures that could be undertaken to reduce food risks in any future disasters is performed. Food vulnerability data may be included in such reporting systems, but with little evaluative comment. Where CRC Branches are more active efforts are made to learn from past experience and apply this to future initiatives.



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5 CAPACITY DEVELOPMENT PLAN OF NCDM/PCDM DURING PHASE 3

107. During Phase 3 the Consultant’s Team will undertake capacity development activities in relation to NCDM structures, including organizational improvements, systems development, skills training and the provision of tangible resources. The time frame for these capacity development activities is from June 2010 until mid‐November 2010. The human and financial resources for investment are limited. The use of project resources for the rest of the project needs to be clearly defined to ensure practical and effective use of the available resources.

108. The main approaches to be used are:

Collaborative mentoring with selected NCDM staff in different aspects of disaster management through a mix of structured discussion meetings, participant tasks between meetings, written formulations and a workshop covering with selected PCDM staff (and in certain cases WFP, CRC and CARD staff)

Advocacy strengthening for NCDM , particularly in relation to the economic benefits of disaster management preparedness and risk reduction activities

Provision of IT systems and equipment, primarily for data management, assessment and communication with appropriate capacity building

Build capacity in planning, including annual training plans, annual business plans, and 3‐year capacity development program (2011‐2013);

The preparation of draft Standard Operations Procedures (SOP) and guidelines for assessment, monitoring and evaluation activities in disaster management, which are compatible with the development of Disaster Management Law in Cambodia.

5.1 Components of the Capacity Development Plan

109. The capacity development plan for Phase 3 of the TA includes 7 components. Table 6 describes each component’ objectives and results. APPENDIX O and APPENDIX P present details about the methods, the activities, scheduling, inputs, and costs. Table 6 Phase 3 Capacity Development Plan Components No. Component Objective Results

1 Standard Operating Procedures (SOP) and the regular revision of Disaster Management responsibilities

Develop NCDM capacity to consider the full range of hazards and disasters likely to threaten Cambodia during the next decade. Incorporate this into the preparation of draft Standard Operations Procedures (SOP) for disaster management that will be compatible with the Disaster Management Law currently being drafted. Develop proposals for a regular review mechanism for the roles and responsibilities of different institutions in disaster management operations and the re‐prioritization of potential hazards.

Draft review system structure and draft SOP produced

2 Enhance NCDM/PCDM capacity to plan, monitor, and evaluate their performance

To enhance the long term delivery of services by NCDM through better planning, monitoring and evaluation.

Annual plan with budget and M&E for NCDM and 3 PCDM and enhanced capacity in planning and monitoring

3 Improved Human Resource Management and Training Planning in NCDM structures

Establish a regular system in NCDM for human resource management and training planning, training needs assessment and annual training

Improved provision of basic information. Improved techniques for human



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No. Component Objective Results

plans. resources management and a draft annual training plan for 2011

4 Improved Capacity Development Planning with a 3 Year Capacity Development Plan 2011‐2013

Establish a Capacity Development Planning capability within NCDM and prepare a 3‐year Capacity Development Plan for the period 2011‐2013.

NCDM staff with capacity to engage effectively in Capacity Development Planning. A costed 3 Year Capacity Development Plan for government and/or other funding

5 Information Technology (IT) and information management capacity development

Establish with NCDM a practical technology for disaster management information communication, develop appropriate assessment and reporting systems and provide the necessary training to enable staff to use these systems efficiently.

Capacity of NCDM and PCDM staff to use effectively the improved information and communication technology with appropriate indicators and assessment methods for effective disaster management co‐ordination

6 Improve NCDM Food Needs Assessment for different types of disaster

Deepen the capacity of NCDM staff to assess food needs from different types of disaster, including assessing food reserve needs.

Improved capacity of NCDM and PCDM staff to assess food relief requirements for immediate disaster response and rehabilitation periods

7 Enhance NCDM capacity to monitor and evaluate response initiatives

To improve on‐going and future disaster initiatives by learning, monitoring, and evaluation and feeding analysis, results and lessons into decision making.

The NCDM Response and Recovery Unit will be able to effectively monitor and evaluate own disaster response and relief activities

Source: Consultant’s Team.

5.2 Human Resources

110. Much of the input in this capability development will be provided by the consultancy team members. NCDM have been consulted to ensure staff and member availability. The activities proposed will only involve NCDM and PCDM staff and members. If a disaster occurs during the planned training period then participants will not be available Otherwise, their activity plan during this period allows time for them to join planned training activities.

111. The Consultant’s Team has met with NCDM management and staff to discuss about the content and organization of the development plan. The management21 has confirmed the interest and indicated that NCDM will establish a coordination unit to facilitate the implementation of the proposed capacity development activities and make staff available to work with the Consultant’s Team.

5.3 Costing of Components

112. Cost estimates for each component are included in APPENDIX O.

21 HE Peou Samy (General Secretary of NCDM) and HE Ross Savann (Deputy Secretary General) confirmed this. They informed that they had also discussed the issue with HE Nhim Vanda (Deputy Chairman of NCDM).



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6 SOCIAL SAFETY NETS, DISASTER RISK REDUCTION, AND FOOD SECURITY AND NUTRITION

113. One of the characteristics of Cambodian disasters is that with slow‐onset and swift‐onset disasters the most vulnerable groups are often small farmers, the rural landless, and the urban poor. Some vulnerable groups, such as the elderly, are restricted in their work possibilities. Different kinds of safety net are always needed for them. Work‐generation programs should only be seen as one measure in achieving adequate social protection.

114. In the March / April 2008 food price increase, a substantial number of people suffered from the approximate 40% increase in the price of rice. The EFAP program was able to provide food assistance seven months later in November 2008. If disaster related food‐for‐work or cash‐for‐work programs had been prepared they could have been implemented more swiftly. This would have enabled continued food security particularly for vulnerable groups.

115. Food‐for‐work and cash‐for‐work systems are tools to help reduce the risks resulting from different disasters. It would also be possible to gain a double advantage if the types of programs designed also strengthened the capacity of local communities to withstand a range of disasters likely to affect their area. This includes the provision of slipways, raised food stores, irrigation works and raft‐construction.

6.1 Previous Experience in Cambodia and current position

116. Over recent years many donors and NGOs have supported interventions in response to emergencies and to improve the livelihoods of vulnerable Cambodians. However, Cambodia in 2009 still did not have an effective and affordable social safety net system in place. Many Ministries and institutions are involved in the development of different kinds of social safety net programs and projects. However, initiatives have been fragmented, un‐coordinated and unsustainable. To help address this issue CARD has developed a National Social Protection Strategy for the Poor and Vulnerable first Draft (April 2010)

117. The RGC has recently begun the process of trying to establish a more regular Safety Net system in Cambodia, which would include cash‐for‐work schemes. In the meeting to initiate this on April 28, 2009 the Prime Minister, Hun Sen, said “The RGC has also focused on further strengthening the social safety net for the people. ... Together we develop effective response to the crisis to help protect and support the poor and vulnerable in our communities, particularly those who may be thrown into unemployment by the contraction in export industries such as garment, construction and tourism; migrant workers, who may be returned home from working in neighboring countries in the region.”

118. Safety net interventions have been scattered across several ministries: The Ministry of Social Affairs, Veterans and Youth Rehabilitation (MOSAVY), Ministry of Labor and Vocational Training (MOLVT) and the Ministry of Women’s Affairs (MOWA), the Ministry of Rural Development (MRD) and Ministry of Water Resources and Meteorology (MOWRAM). Previously, no government body has had the mandate to coordinate safety net interventions across ministries, or to implement cross‐sectoral interventions. This has significantly impeded the development of a comprehensive social protection and safety net strategy and of large scale cross‐sectoral interventions.



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119. The Technical Working Group on Food Security and Nutrition (TWG‐FSN) was mandated to map existing Social Safety Net (SSN) schemes from April 2009, and to identify policy, institutional and capacity gaps for developing a more systematic and integrated safety net system. An Interim Working Group on Social Safety Nets (IWG‐SSN), supported by the World Food Programme (WFP) has been established within TWG‐FSN . The Council for Agriculture and Rural Development (CARD) is mandated to coordinate the many government agencies with social policy programs and interest in the issue.

120. The IWG‐SSN prepared a Concept Note and Inventory on June 15, 2009 on SSN, which:

1. undertook a scoping and mapping exercise for the broad area of social policy and social risk mitigation including an overview of Cambodian social protection programs

2. presented a mix of policy options from experiences that other countries have adopted to create social safety nets that can reduce the negative impact of crises on the poor and vulnerable and provide a means for such people to escape long‐term poverty

3. examined the profile of vulnerable people in Cambodia, the likely impact of the food, fuel, fertilizer, and financial crises on these vulnerable groups, the informal safety nets that exist in Cambodia, fiscal decentralization and local capacity assessment

121. From January 12 to 14, 2010 there was a Technical Consultation on Public Works, where over 80 participants from Government, development partners and civil society consulted during a day workshop in Phnom Penh. A core group (circa 30 participants) also visited sites of cash‐for‐work and food‐for‐work projects (ADB and WFP supported interventions) in Kampong Chhnang and met representatives of a commune council and project beneficiaries. The consultation culminated in a next steps meeting held by CARD and production of a ‘Note on Public Works’. A background Note on a Public Works Programme as part of Social Protection for the Poor and Vulnerable has been prepared. The Technical Consultation concluded that in emergencies and crises, public works have been an effective instrument, especially in the rehabilitation phase. However, but there is currently limited coverage and coordination of public works programs.

122. Current Social Safety Net development faces the following challenges:

Implementation often reflects immediate priorities (such as the need to respond to the food and financial crises) rather than a shared longer‐term vision for safety net development;

Programs have often been implemented in parallel to the RGC structure, failing to build capacity in local Governments to gradually take over safety net management, and therefore leading to a vicious cycle of low local capacity and sustained parallel implementation of programs;

Limited coordination among social protection interventions has resulted in uneven coverage, duplication of efforts, and lack of sustainability and overall impact;

Geographic coverage of existing programs is not universal, and programs do not necessarily prioritize poor areas;

Targeting has not yet been mainstreamed into safety net implementation and many safety net programs still rely on ad hoc targeting procedures whose accuracy has not been investigated and thus adding to transaction costs and inefficiencies;



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Few programs or institutions are actually collecting critical monitoring information beyond inputs, outputs, and the mere list of beneficiaries, which makes it difficult to assess the effectiveness of ongoing programs and improve them on an ongoing basis;

Even fewer programs or institutions are using monitoring data to improve on a continuous basis their procedures.

There are few rigorous and thorough evaluations of existing safety net interventions, making it difficult to assess how well they perform and where there would be areas for improvement;

Feedback and complaint resolution systems are still underdeveloped, and very few programs have evaluated the effectiveness of their feedback systems;

As an underlying challenge, the government budget for safety net implementation remains low, with the majority of funding provided by Development Partners and earmarked for interventions that are often implemented in parallel to the RGC system.

123. The NSPS envisages the expansion and development of existing food and cash for work programs, and their extension to national coverage. These programs will need additional resources in order to ensure sustainability of the physical and social assets created. It is also envisaged that labor based programs will be implemented in the longer term, providing one safety net for the rural poor. It is envisaged that these programs will:

Diversify into a range of infrastructure developments that will create employment, depend on local priorities and be applied to village and sub district works, such as village roads, communal ponds and water conservation

Focus on specific aspects of existing programs where employment‐intensive methods could be effectively introduced, such as tertiary road maintenance and small scale irrigation

Include new programs such as a) establishment/rehabilitation of village infrastructure and b) climate change mitigation and adaptation work

Include the construction/rehabilitation of health and education facilities and improve their physical accessibility;

Would include community forestry management, this having vital functions for poor

Focus the program in particular zones, according to both the need for infrastructure and the levels of poverty and vulnerability in the zone

Focus on the improvement of funding for maintenance of public infrastructure, such as roads, all of which suffer from a chronic lack of funding

Give particular attention to ensuring equity in the creation of employment, particularly for women and youths and take action to address child labor.

124. A National Social Protection Strategy for the Poor and Vulnerable (NSPS) is in the process of being formulated by the IWG‐SSN22, and is likely to be presented in May 2010. It is intended that the finalized Strategy will be presented to the Council of Ministers and approved in 2010. This will be followed by a Short‐Term Priority Action Plan for the period 2010‐2013. The NSPS should set out the institutional arrangements for social protection coordination, including policy overview, monitoring and evaluation, knowledge and information management, and capacity development. CARD envisages undertaking this task in close cooperation with the Supreme National Economic Council (SNEC) and the MoP. A National Social Protection Committee is

22 A preliminary draft was available in April 2010.



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planned with a supporting Secretariat. It is envisaged that the establishment of this institutional framework will be undertaken during the first year of action.

6.2 Needs to Advance Safety Nets Strategy and Action

125. Several aspects of the safety net so program have hardly been addressed, namely:

How the continued and expanded public works programs will be managed, and by whom;

The best balance between food‐for‐work and cash‐for‐work approaches in relation to different zones and different target groups is to be established;

126. Experience in Bangladesh (see Ahmed et. Al. (2007)) suggests that it is not advantageous to consider one type of program as necessarily better than another, as this depends on the particular features of the program and on contextual factors. Administrative delays in cash payments for cash‐for‐work programs can sometimes have negative effects that food‐for‐work programs would avoid. The introduction of ATM cards for cash payments has a potential for altering this in Bangladesh. Ahmed et al. (2007) also found that the provision of atta (wheat flour) had more positive effects on nutritional levels than the provision of rice, but there were operational difficulties in the supply of atta. Sometimes food‐for‐work programs are preferred by women, as cash from cash‐for‐work programs becomes appropriated by the men of a household. This type of problem can sometimes be overcome, however, by the payments to women going into savings accounts that the men cannot touch. Such social aspects may strongly affect the types of work programs and payment approaches to be used. Sometimes, too, if cash is provided the money may be spent on rice, rather than on other foods that contain the micronutrients that people need for a balanced diet.

The consideration of specifically linking public works programs with the development of disaster risk reduction measures.

127. The NCDM has established a “Strategic National Action Plan for Disaster Risk Reduction 2008 2013” (SNAP) (NCDM/MoP (2008)). However the considerations established in this document hardly appear in current draft NSPS proposals. The development of work programs could have the double advantage of (i) immediate relief for vulnerable households and (ii) longer‐term improvements that would help reduce negative effects from other potential disasters.



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7 ANALYSIS OF FOOD RESERVES SYSTEM IN CAMBODIA

7.1 Main Conclusions of Storage Survey

128. The Storage Survey had the direct aims of gathering information about grain storage facilities, locations, capacity, quality, constraints, and storage behavior in Cambodia. It gathered information to evaluate the feasibility of designing a system of food reserves involving the private sector. Meetings were held with the World Food Programme (WFP), the Federation of Rice Millers Associations of Cambodia and the Green Trade Company to help facilitate and orient the survey.

129. The survey was conducted in the 7 EFAP provinces (Battambang, Banteay Meanchey, Udor Meanchey, Kampong Thom, Kampong Chnang, Siem Riep and Pursat) and 3 others that are prone to floods and droughts (Kampong Cham, Kratie and Prey Veng) during February 2010.

130. The survey targeted two types of respondents: (i) institutions ‐ (Green Trade, WFP, Cambodian Red Cross, and Provincial Departments of Agriculture (PDAs)) and (ii) private sector (millers – the 10 largest millers in each of the provinces surveyed). Where traders were recorded, these are actually millers who currently find it economically more viable to operate solely as traders, and are not currently operating as millers. A total sample of 127 storage facilities were surveyed (see Table 7). Details about the survey23 are presented in APPENDIX G. Table 7 The sample of the Storage Survey

Units %

Institutional Sector 27 21.3

Green Trade 4 3.1

WFP 2 1.6

Cambodian Red Cross 11 8.7

Department of Agriculture, Forestry and Fishery 10 7.9

Private Sector (millers/traders) 100 78.7

Total/ Overall 127 (100.0)

7.1.1 Existing Storage Facilities and Ownership

Institutional and commercial grain storage capacity in the country is largely made up of solidly‐built warehouses, with concrete/brick floors and walls, and often with metallic roofs;

Most of the storage facilities are in single units, only a comparatively small percentage having more than one unit in a particular facility (in Phnom Penh such facilities have several units);

The vast majority of warehouses are used by their owners; and only the WFP engages in renting storage in any substantial way;

23 The survey data in a Microsoft Access database, the Excel tabulations, the questionnaires in English and Khmer, and the survey manuals are submitted on a CD together with the Midterm Report.



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The average capacity of institutional storage facilities surveyed was 1,840 tonnes, and for the private sector surveyed it was 2,478 tonnes (Table 8). Substantial differences exist between regions, and the mean capacities for the Green Trade Company and millers is higher than these means;

Table 8 Storage Units and Capacity

Storage Units

Average capacity per Unit (tonnes)

Total Capacity (tonnes)

Institutional 23 1,840 42,323

Private 131 2,478 324,631

Total 154 2,383 366,954

Source: Storage Survey

Most respondents considered that the quality of their storage facilities was “fair” or “good”;

The storage facilities of institutions have more computers. Millers have more trucks or tractors attached to their warehouses (although many of these are only in “fair” condition) compared to institutions. They also have equipment such as driers, conveyor belts and weighing stations. The condition of equipment in both sub‐sectors is very variable.

7.1.2 Current Usage

Millers use their storage capacity primarily for unmilled rice (paddy). They only stor milled rice for short periods prior to sale, and sometimes stock seed, while a few millers have currently found it more economic to operate just as traders;

Of the publicly owned institutional operators, the Green Trade Company mainly stocks unmilled rice (paddy), with some milled rice. Both are used for a mix of commercial and emergency operations. The Provincial Departments of Agriculture (PDAs) mainly stock seeds, fertilisers and agricultural equipment for supply to farmers and for emergencies. They also sometimes stock milled rice;

Of the international and humanitarian institutional operators, the WFP currently stocks a range of foodstuffs for regular programmes. The CRC mainly stocks milled rice and medical kits for emergencies;

Although a number of operators stored a mix of products in the same facility, the general opinion found that this rarely resulted in negative effects;

Most institutional storage systems have Monitoring/ Accounting Systems for Inventory Management. A few of them have Standard Operations Procedures for warehousing operations. The private sector only occasionally has these instruments;

Currently the WFP, Green Trade Company, PDAs and private traders have full use of their storage facilities throughout the year. Sometimes problems exist with inadequate storage capacity at certain times of the year. The CRC has considerable under‐use of its storage facilities. Millers also report under‐use of their storage capacities throughout the year. Greater spare capacity exists from July to November when most natural disasters occur in Cambodia;

The Green Trade Company and millers tend to hold rice stocks for fairly long periods, whereas WFP, private traders and PDAs (for seed) have a swifter turnover of stocks. WFP. Private traders and PDAs mean stocking periods are still over 100 days. Milled



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rice stocked by the Green Trade Company and CRC usually gets moved within a month, while millers often move their milled rice stocks within a week;

The private sector tends to replenish its stocks on a daily basis or annually at harvest time. Other institutions have a variety of replenishment practices;

WFP and a limited number of millers rent services, including storage. Some Green Trade, CRC and Provincial Departments of Agriculture (PDA) warehouses occasionally have storage space that is available to let. The Green Trade Company has the largest capacity available. The mean storage space that millers have available is about 1,275 tonnes per facility.

Table 9 Storage Units and Capacity Available for Rent

Number of Storage Units Available for

Rent

Average Storage Space Available

for Rent (Tonnes)

Total Storage Capacity

Available for Rent (tonnes)

Percentage of Total Storage Available for

Rent

Institutional 4 5,875 23,500 52%

Private 18 1,217 21,900 48%

Total 22 2,064 45,400 100%

Source: Storage Survey

7.1.3 Employment Structure

Most mill owners also manage their own mills. They employ an average of 2 technicians and 13 support workers. Green Trade Company and WFP employ more staff, the latter particularly employing a lot of workers. CRC and PDAs employ a lot less people in their warehouses

7.1.4 Stock Losses of Grains

65% of institutional storage operators said they had no losses;

Operators who reported losses had quantity stock losses ranging from 6.5% to 8.2%. This was mainly caused by moisture and pests (rodents, birds and insects);

The peak months for quantity losses are from March to August; the early part of the rainy season;

Quality losses are mainly caused by moisture and mould, the largest losses being from June to September;

Remedial measures taken by institutional operators were to purchase dry paddy, drying and use of pesticides and traps. Amongst private sector operators the most common remedial measures were traps, drying and pesticides, followed by purchasing the paddy dry;

Most operators consider that grain drying is the most important remedial measure. They use driers, drying nets and drying grounds to dry rice. They also carefully purchase dryer grain to reduce moisture related losses;

7.1.5 Storage Costs

Current storage rates, vary between US$ 0.2/tonne/month for institutions and $0.13/tonne/month for millers, although these could vary depending on the period of the storage.



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Table 10 Cost of Renting Storage

Unit cost/month/ tonne ($) for a certain period and quantity Period (days)

Institutional 0.2 365

Private 0.24 155

Millers 0.13 215

Source: Storage Survey 7.1.6 Desired Storage Improvements and Intended Investments

The private sector is most interested in expanding the capacity of existing facilities, in obtaining driers, renewing milling equipment and obtaining color sorting machines;

When investing the private sector primarily use own capital and secondly bank financing;

The Green Trade Company is intending to make the largest capital investments in the institutional sector. It intends to invest in storage facilities worth US$ 2.8 million in the near future;

Of the private millers, 45% (44) of respondents said that they intend to make investments on average of US$ 213,727 each during the forthcoming year. This suggests a total investment of US$ 9.4 million in the survey area.

7.1.7 What this Survey contributes towards defining a Food Reserve System

131. The Storage Survey emphasizes the following points:

There is a range of storage facilities in Cambodia. Some of this capacity is underused. Storage facilities owned by the Green Trade Company, the CRC and private millers (but only about 16% of them) is durable and solid and could house emergency food stocks ;

Some warehouses have drying equipment that would enable grains to be dried and hence stored more safely;

Some warehousing has mechanical equipment for handling that is in reasonably good condition. This would facilitate swift despatch of rice in times of emergency;

Other warehouses have limited equipment, but have working staff who could probably swiftly undertake the handling operations;

The main natural disaster period in Cambodia runs from June until October. This is when storage facilities of millers are more available;

Some transport is linked with private sector warehouses. However this is usually in poor condition. It is unclear how much work they could provide during a disaster;

Some institutional warehousing systems have regular computerized control of stocks and stock movements, but very few private sector ones have;

, There is a wide distribution of warehousing to cover different zones in Cambodia;

Some institutions, particularly CRC, the Green Trade Company and PDAs have already been strongly involved in emergency food and seed provision. They have some of the experience necessary for supplying emergency food reserves;

The WFP only dealing with programme food provision. Within its structure WFP has staff who are highly experienced in disaster management activities and managing food reserves;



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Private sector operators have not been involved in food reserve activities, nor providing a service that responds in emergencies;

Storage rates charged for rice are reasonably priced. A number of private millers can offer adequate storage services for food reserve stocking and handling at the lowest prices.

7.2 Food Reserves Issues in Cambodia

132. The objectives of this section are (i) to discuss issues related to food reserves policy; (ii) to analyze the current situation in Cambodia related to food reserves; and (iii) to present some recommendations on a food reserves system in Cambodia. 7.2.1 Introduction

133. The need to maintain stocks of grain in years of good harvests to guard against famine in those years when production falls short of needs has been recognized throughout history. Perhaps the earliest recorded instance was the reference (5000 years ago) to the build‐up of stocks by the ancient Egyptians during seven years of plenty to cover for the prophesied seven lean years. In modern times, the establishment and maintenance of food reserves have been kept since the early 1970s in Southeast Asia and South Asia and several African countries.

134. When discussing food reserves, the debate can quickly move from the relatively clear concept of the need of maintaining food reserves to face emergency situations – save grains in periods of plenty to draw upon in periods of scarcity ‐ to a number of complexities regarding the purposes, functions, management, financing, operations, and policies and regulations for food reserves.

135. The first level of complexity around food reserves is to clarify the purpose and main functions of the food reserves. Food reserves could be kept (i) to prepare for emergencies, (ii) to conduct price stabilization (avoid too low prices for producers and too high prices for consumers), and (iii) to conduct safety nets programs to help vulnerable groups such as food for work programs, food for education programs, and distressed households. The different purposes imply different levels of food reserves, costs, management structures, operations, human resources, and management information systems needed to run the system of food reserves effectively. At the very minimum, a system of food reserves that is focused on preparedness to emergency (and perhaps relief) operations would require agreement on a reasonable estimate of the level of grain stocks needed in the country.

136. The second level of complexity is about the management of the SFR: who should be responsible for managing food reserves? Different models are possible. There could be specialized agencies as in Bangladesh (Department of Food under Ministry of Food and Disaster Management) and in Viet Nam (General Department of State Reserves under the Ministry of Finance); state agencies as in the Philippines (National Food Authority or NFA); parastatal organizations as in Indonesia (BULOG), or even corporate entities as in Malaysia (BERNAS). Each has advantages and disadvantages. In Cambodia food reserves are held by Green Trade, a parastatal under control of the Ministry of Commerce. In the Cambodian context decision‐making over offtakes does not lie with the stocking authority but with the Ministry of Commerce and the Prime Minister.

137. The third level of complexity is about financing. Who will finance the food reserve, how much finance should be provided, and how will financing of food reserves be arranged? Again



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different models are possible. Yearly budgeting, special food reserves funds, and extraordinary financing including external financing through Food Aid have been used in the past. The costs of the system could be moderate, as in Viet Nam, or huge as in Indonesia. The costs depend on the purposes of food reserves and the functions that the food reserves agency should perform.

138. The fourth level of complexity is about policies, institutions, and regulations that should be established in order to ensure that the system of food reserves works properly. The legislation about food reserves for emergency relief purposes is closely linked to the legislation on Disaster Management and the institutions responsible for emergency response, safety nets, and food security and nutrition. In Cambodia, this legislation is still at a very rudimentary level. Policies and regulation for response to emergencies and the measures needed to prepare for disasters, food emergencies and risk reduction are not yet in place. Food reserves are only one part of the overall set of policies and regulations for dealing with disasters and food emergencies. In spite of a dedicated staff and recognition of the critical role of coordination needed in disasters and food emergencies the National Committee of Disaster Management (NCDM) is weak. Policies and regulations on food reserves might help strengthening the role of NCDM as the national body responsible for coordination in disaster management. At the same time, it could strengthen the role of CARD as the coordination body responsible for food security and nutrition.

139. The fifth type of complexity concerns the operations of the food reserves. Issues of stock establishment, procurement, and offtakes need to be clarified. Appropriate Standard Operating Procedures (SOP) need to be established to ensure transparency and avoid disrupting normal market operations. The private sector (particularly rice millers and traders) can successfully be involved in the food reserves system not only as suppliers of grains, but also as expert practitioners in operations (e.g. storage, stock management, and logistics) to improve efficiency of SFR. 7.2.2 Past and Present Approaches to Food Reserves in Cambodia 140. Consideration of any role for emergency food reserves in Cambodia did not appear at all in the RGC’s Strategic Framework for Food Security and Nutrition in Cambodia 2008‐2012 (SFFSN). Nevertheless, the desire for food reserves, and particularly rice reserves, in Cambodia has been present in different forms for some time. A more detailed review of efforts over time of successive Cambodian Governments to control the rice trade and particularly to establish rice reserve systems was presented in Appendix E of the Inception Report.

141. Under the People’s Republic of Kampuchea (PRK) government (1979‐1989) the state enterprise, KAMPRIMEX, had a monopoly over paddy/rice surpluses from surplus provinces, while provincial level state companies had a monopoly of paddy/rice purchases within their provinces. Neither of these organizations were able to control completely all paddy/rice flows. A Committee with representatives from the Ministries of Commerce, Planning and Transport, and the State Bank planned procurement and distribution of paddy/rice surplus distribution. With the Paris Accords of 1991 the rice trading system was liberalized, and KAMPRIMEX was left helpless. In 1991 the FAO sent a Senior Officer, who, inter‐alia, recommended support for defining Cambodian food reserve policies24. By 1994 this had not been taken up by either the RGC or any donors. In 1996 an FAO/WFP assessment mission advocated that “the Government, with donor support, purchase and keep a stock of 25,000 tonnes of rice for emergencies”25.

24 Muller, E (1992), “Cambodia: Food Security and Economic and Social Reconstruction”, FAO, Rome 25 Tickner, Vincent (1996), “Food Security in Cambodia – A Preliminary Assessment”, UNRISD, Geneva,

Discussion Paper 80, October 1996, p67.



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142. In 1993 the Green Trade Company (GTC) (a parastatal under the Ministry of Commerce (MoC)) was created (incorporating KAMPRIMEX) and since then it has been called upon to retain variable quantities of paddy/rice as a reserve. This reserve is held either for price stabilization or emergency food relief purposes. The GTC recycles these stocks through its normal transactions. The Green Trade Company currently retains 7,000 tonnes paddy/rice reserve, primarily for price stabilization, but also for emergency needs. It has its own warehouse capacity. Details about the recent history of off‐takes for these purposes are not available26. There does not appear to be a clear mechanism for stock replenishment.

143. During the 2008 drastic rice price and global food price increases, the RGC released quantities of rice through the Green Trade Company. It increased financing for food reserves, and brought in temporary export controls. Consideration of re‐establishing food reserves for emergency purposes has re‐emerged as a possible approach. 7.2.3 Objectives of Food Reserves

144. Food reserves can be held for three main objectives: (i) face food emergencies; (ii) provide a buffer for carrying out safety nets programs; and (iii) provide price stabilization of major food staples. Multiple objectives can be pursued at the same time, as it is often the case in several food reserves system around the world (see Table 11). Table 11 Objectives of Food Reserves and Stock Size in Different Countries

Country

Emergency Objective

Safety Nets Objective

Price Stabilization Objective

Average Size of Stock (1000 tonnes)

Per Capita Size (kg/cap)

Bangladesh X X X 2,700 18.0

Indonesia X X X 4,000 20.0

Viet Nam X 200 2.2

Cambodia X X 7 0.5

Source: Consultant’s Team, Study Tour Findings

145. The complexity of a food reserve system generally increases when moving from emergency to safety net and price stabilization objectives. The more complex the objective, the more complex the management, operations, policies, and regulation of food reserves. In the case of emergency food reserves, the size of the stock is generally smaller than for safety net and price stabilization programs. As a consequence the cost of human resources, operation of storage, procurement, offtakes, recycling, and maintenance in an emergency food reserves system are lower. In the case of price stabilization conducted through a system of food reserves, the complexities are considerable (see section 7.2.5) and require high human resources and infrastructure capacity.

7.2.4 Emergency Food Reserves

146. Perhaps the simplest and most intuitive idea of Food Reserves is that they are kept in order to face food emergencies. During food emergencies many people become food insecure due to the exceptional nature of events. Even people that would normally be relatively food

26 Interviews with Green Trade were not able to ascertain these details.



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secure can become food insecure. Food reserves with related logistics and distribution systems would be an important mechanism to help affected populations to overcome the emergency situation and sustaining adequate nutrition. Generally food reserves contribute to food security by contributing to stability. Food reserves are only a part of the overall set of interventions that constitute FSN policy. In particular, emergency food reserves can only contribute by addressing the needs of the transitory food insecure. The needs of the chronically food insecure cannot be addressed by a temporary tool such as emergency food reserves.

147. Even though transitory food reserves temporarily address the needs of food insecure groups, they can also help avoid the situation where transitory food insecurity becomes chronic. During food emergency it is usually the poor and vulnerable groups who are most affected. To cope with the emergency households rely on social safety nets, alternative income sources or sales of assets to buy food. The loss of productive assets during emergency periods can move them to a situation of chronic food insecurity.

Transitory Insecure Chronically Insecure

Box 1 Food EmergencyA situation when there are clear indications that an acute and widespread food shortage, exceptionally high food prices, inability to access food, extensive suffering and dislocation in the life of the community on an exceptional scale are imminent, and that these dangers cannot be overcome by the normal supply procedures.

148. Emergency food reserves are part of a strategy to address the stability dimension of food security and nutrition. At the same time, emergency food reserves are also part of a strategy to prepare and respond to disasters. At the intersection of disasters and food emergencies (see Figure 3) are situations where food reserves could be a valuable tool for food security and nutrition policy and disaster management and risk reduction policy. In these cases food reserves could help provide immediate relief and ensure adequate nutrition during the rehabilitation phase.

Box 2 Disaster Any occurrence, that causes damage, ecological disruption, loss of human life, deterioration of health and health services, on a scale sufficient to warrant an extraordinary response from outside the affected community or area.



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DisastersFood

Emergencies

Figure 3 Intersection of Disasters and Food Emergencies

149. The size of emergency food reserves depends on several factors including (i) the expected number of food emergencies; (ii)the number of people affected by each emergency; (iii) the food needs of the affected people per day / week / month; (iv), the expected duration of the emergencies until normal supply channels are re‐established; (v) the logistics available (affecting both the time to procure food and distribute it); and (vi) the infrastructure in place (transport and storage infrastructure).

150. Table 12 illustrates how the size and cost of emergency food reserves can vary considerably depending on assumptions about the target population. One benchmark is provided by the experience of EFAP in November 2008 when about 12,000 tonnes of rice was distributed to approximately 350,000 target population in a period of 2 weeks. Table 12 Different Scenarios for Food Reserves

Low Medium High

Population targeted (% of total) 20% 25% 30%

Period of emergency (months) 0.5 1 2

Level of food reserves (1000 tonnes)

17.500 43.750 105.000

Stock cost ($ 000) @ $350/tonne 6,125 15,313 36,750

O&M and storage cost ($ 000) 613 1,531 3,675

Stock and O&M cost ($ 000) 6,738 16,844 40,425


7.2.5 Food Reserves and Price Stabilization

151. In a number of countries including Indonesia and Bangladesh, food reserves are kept not only to face emergency needs but also to insure price stabilization objectives. In these cases, the agency responsible for price stabilization holds grain stocks that are used to conduct open market operations consisting of either procurement or offtakes. When prices in the markets are



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considered too low (usually determined by a price band27), the agency will buy grain to ensure that price increase above the lower level of the price band (see Figure 4). The grain purchase usually will increase the stock of food reserves unless it is sold for exports. When prices are above a certain level (the upper band in a price band), the stock agency will sell grain to the market increasing supply and lowering prices. To be effective, the stock should be sufficient to ensure that prices can be affected by the open market operations. In the case of procurement sufficient financial resources and storage capacity should be available. In the case of open market sales, sufficient stock should be available.

152. The management of price stabilization scheme conducted through open market operations is extremely difficult. The establishment of an appropriate price band should take into account the fact that too narrow a band might completely eliminate incentives for private sector to trade and might not be financially sustainable. A price band that is too broad will result in very little price stabilization. Moreover, if the economy is open to international trade, most price stabilization scheme will soon become irrelevant or very expensive. As prices will be largely determined by international markets, the risk is that any attempt to stabilize domestic price through food reserves will be unsuccessful. In the absence of trade controls (tariffs, quota, restrictions) commodities will flow in or out of the country due to different domestic and international prices.

0

500

1000

1500

2000

2500

Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec

Price

Lower Price

Higher Price

Purchase from market: increase stock

Sell to market: decrease stock

Figure 4 Price Stabilization around a Price Band using Food Stocks

153. Another typical challenge for price stabilization conducted through food stock operations is high levels of corruption. Collusion between private sector and officials responsible for open market operations are to be expected and are routinely observed in most systems.

154. For countries where price stabilization has been effective (e.g. Indonesia), partly through the combination of trade policies that isolated the economy from world market, the costs have been extremely high. Moreover, the benefit of price stabilization has not been clear. It is not clear if the country as a whole benefits, or only specific groups (e.g. rich farmers or poor farmers, millers or poor consumers) and whether the benefits are greater than the cost of the overall scheme.

27 A price band consists in fixing a lower and a higher level of price within which prices are allowed to fluctuate based on market demand and supply. Whenever prices tend to move outside of the price band, interventions are undertaken to ensure that overall price fluctuations remain within the price band.



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7.2.6 Food Reserves and Safety Nets

155. Food reserves can be kept to support a number of safety net program activities. In Indonesia, almost 4 million tonnes of rice are distributed to poor consumers through the RASKIN program that provides subsidized food to poor consumers throughout Indonesia. In Bangladesh a number of programs are carried out. Some are called “monetized” channels (basically subsidized food distribution) and some “non‐monetized” channels (such as food for work, school feeding programs, targeted food distribution to vulnerable groups, including female‐headed households and people with particular diseases). 7.2.7 Current Objectives of Food Reserves in Cambodia

156. Green Trade, a state‐owned company under the Ministry of Trade, is mandated with keeping food emergency reserves varying between 5,000 and 10,000 tonnes (currently around 7,000 tonnes). Food reserves for safety net programs are held by WFP to carry out its programs of food‐for‐work (FFW), food‐for‐training (FFT), support to people living with HIV and tubercolosi (TB).

157. Regarding price stabilization, Green Trade is also mandate as responsible food price stabilization. However, there is no credible structure in place to carry out such activities. There are a number of reasons for this. First, the stock required to stabilize prices should be considerably higher than current levels. At 7,000 tonnes, the stock represents only 0.2% of marketed surplus of rice (estimated at 3 million tonnes). A credible stock for price stabilization should be around 10% of the marketed surplus, or about 300,000 tonnes. Second, the financial resources needed to carry out price stabilization through food reserves should be much higher than those currently available; a conservative estimate would put the financial resources required at over $100 million (just to purchase stock of 300,000 tonnes). Third, trade regulations and enforcement should be in place to ensure control of commodity flows in and out of the country; yet a porous border of Cambodia with Viet Nam and Thailand makes it difficult to enforce border trade. In fact, the price of rice in Cambodia is strongly determined by international prices and particularly by prices in neighboring Thailand and Viet Nam. The food crisis of 2007‐2008 amply demonstrated this. 7.2.8 Management of Food Reserves

158. It is generally accepted that food reserves are owned by the Government. Key policy decisions related to their level, use, and financing are determined by the highest authorities in the nation. However, the management of food reserves could be undertaken through different institutional mechanisms. Three mechanisms found in Southeast and South Asia are: (i) specialized agency; (ii) state enterprise; and (iii) corporate enterprise.

159. Specialized agency. In Bangladesh, the Department of Food, under the Ministry of Food and Disaster Management is the agency responsible for managing food reserves. This includes 4 silos, 13 central storage depots, and over 600 local supply storage warehouses located in all sub‐districts of the country. The total storage capacity is 2 million tonnes. Several programs of public food distribution are carried out: about 2.7 million tonnes per year are distributed through different channels. The Department of Food closely coordinates with the Disaster Management Bureau and the Department of Relief and Rehabilitation (both DMB and DRR are under the Ministry of Food and Disaster Management) during disasters and food emergencies. Food reserves for emergency purposes amount to 800,000 tonnes. A staff of about 8,000 is engaged in



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food reserves operations, including procurement activities, distribution, storage management, control, and planning. The agency receives a regular budget from the Treasury. A separate unit in the Ministry of Food and Disaster Management, namely the Food Policy and Monitoring Unit is responsible for monitoring and policy analysis. Food reserves are held for the three objectives of emergency, price stabilization, and safety net programs.

160. In Viet Nam, the General Department of State Reserves under the Ministry of Finance is in charge of food reserves. Food reserves are held as rice to eat and seed primarily for emergency purposes. Price stabilization is usually performed using other policy tools including export and import controls. Food reserves are not used as part of regular food distribution through safety net programs. The emergency stock is estimated to be 400,000 tonnes.

161. State Enterprise. In this system a state enterprise (e.g. BULOG in Indonesia or Green Trade in Cambodia) is responsible for holding food reserves and administering programs in response to disaster emergency response, relief and rehabilitation and safety net programs (e.g. RASKIN in Indonesia). The state enterprise is usually responsible to a Ministry or an inter‐ministerial committee chaired by the Prime Minister or the President.

162. Corporate Enterprise. BERNAS in Malaysia is a company quoted in the Kuala Lumpur stock market and mandated by the government to keep food reserves and import food. The company owns storage facilities, mills, seed companies, and a network of over 3000 retail stores.

7.2.9 Current Situation in Cambodia regarding Management of Food Reserves

163. Green Trade’s main business is related to trade in agricultural commodities including rice. Recently, the company has formed a joint venture with Viet Nam’s VINAFOOD2. A Cambodian company, CAVIMEX has been constituted with the purpose of exporting Cambodian rice. The combination of the emergency food reserves objective with commercial purposes does not make the financial accounting of the stock very transparent. The management of food reserves is limited to procuring and holding stock and distributing it when an order from higher authorities (Ministry of Commerce or Prime Minister) is issued. Food reserves management seems to be a secondary activity when compared with the management of trade stocks and operations.

7.2.10 Options for Management of Food Reserves in Cambodia

164. Three options are considered for management of food reserves in Cambodia. Table 13 presents the advantages and disadvantages of each option. The first option of having a state enterprise has the advantage of an organization being already in place, namely Green Trade. The disadvantage of this option is that given other commercial functions of the enterprise, there is lack of transparency in the financial accounting of different types of reserves. Moreover, specialized expertise in stock operations related to emergency, relief, rehabilitation, and safety nets will require considerable capacity building of its staff. Green Trade does not have a history of transparency. Its stock position and details of its procurement and off‐take operations are not publicly available. The organization is currently responsible to the Ministry of Commerce. It is debatable whether this Ministry is appropriate to manage an enterprise mandated with food security and nutrition related objectives. Given the relevance of food reserves to emergency situations and food security a more suitable organizational home for the system of food reserves could be NCDM, CARD, and the MEF.

165. The second option for management of food reserves is to create a specialized agency, similar to the Department of Food in Bangladesh or the General Department of State Reserves in



56

Viet Nam. The advantage in this case is the presence of expertise and human resources fully devoted to food reserves. The agencies objectives would be established by a ministry or department for food reserves. The agency would require specific legislation providing details about its functions, responsibilities, organization, operation, and financing. The links between this agency and the institutions responsible for food security and nutrition and disaster management and risk reduction should be clear. The disadvantage of this option in Cambodia is that such an agency would need to be established. The experience of similar agencies around the world does provide useful lessons for the design and establishment of such agency. For example, lessons point to several operations of the agency being outsourced (eg. logistics, or storage). Existing storage facilities or stock under Green Trade could be reallocated to such an agency, thus reducing the initial establishment costs. Available storage capacity in the private sector (as shown in the storage survey) could be rented to minimize the costs of building new infrastructure.

166. The third option for management of food reserves is to have a corporate entity that would be hired to manage food reserves on behalf of the Government. This option does not require establishment of a new organization, but can build on an existing structure. The management and operational costs would presumably be lower than having an organization under state management given greater flexibility of a corporate entity in using human resources. The problem of this option in the case of Cambodia is that no corporate entities exist with the required capacity. The milling sector is relatively underdeveloped and there are no mills or private companies of the size, experience, and national coverage that would ensure strong linkages with the variety of institutions involved in food security and nutrition and disaster management and risk reduction. Moreover, as governance is still weak in the corporate sector, the risk of malpractices could be considerable at this stage of private sector development. Nor is the private sector conversant with the particular needs of emergency response.

Table 13 Options for Management of Food Reserves

Management Options

Advantages Disadvantages

State Enterprise

• Already in place • Mixing of functions (food reserves and commercial activities)

• Lacking specialized expertise on emergencies, relief and rehabilitation, and safety net programs.

• Conflicting signals to the private sector

Specialized Agency

• Fully responsible for food reserves

• Specialized expertise

• Initial Establishment Costs

Private Sector

• Reduced costs of operations

• Risk of malpractices • No experience in emergency reserve

operations

7.2.11 Financing of Food Reserves

167. No matter what institutional mechanism or objective is adopted for a food reserves system, food reserves are supposed to provide a public good (emergency food, safety nets, or price stabilization) and require adequate finance to operate. The financing of a food reserve is ultimately the test for measuring the priority given by the Government to the objectives that the



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food reserves are expected to fulfill. In the case of Cambodia, food reserves are currently comparatively small and arguably insufficient to meet any of the three objectives. Even if only the emergency objective is considered, a stock of 7,000 tonnes could only provide sufficient food to cover the needs of the total Cambodia population for 1.2 days28.

168. The financing of food reserves involves two different considerations: the amount of financing and the mechanism of financing. The amount of financing depends on different objectives regarding the extent of emergencies, the expected duration of response and relief operation, the coverage of the population, the magnitude of the safety net programs, and the extent of price stabilization that the government intends to pursue. Table 14 summarizes a range of possible options of the financial cost of food reserves29. Section 7.6 provides details about the calculations.

Table 14 Food Reserves Size for Difference Purposes

Item Emergency Response

Emergency Relief

Safety Nets Price Stabilization

Size of rice stock (1000 tonnes)

17.500 35.000 210.000 300.000

Rice stock cost ($ millions) 6.125 12.250 73.500

105.000

New infrastructure ($ millions)

0.563 1.875 1.250

1.813

Storage and O&M cost ($ millions)

0.613 1.225 7.350

10.500

Total cost ($ millions) 7.300 15.350 82.100

117.313


169. Regarding the mechanism of financing, three options should be considered. In the first option, regular annual budgets would be submitted by the food reserves organization to the Treasury and funds disbursed according to regular government processes. In the second option, a food reserve fund would be established for use by the food reserves organization and the fund would be replenished as needed, subject to overall supervision and auditing by assigned authorities. In the third option, a cash reserves would be allocated to face emergencies and food would be procured when needed.

170. The advantage of the first option (regular annual budgets) is that the allocation of public finance to food reserves would follow the regular annual budget process and be weighed against other competing claims to the use of public resources. The disadvantage is that funds vary from year to year and, more importantly, unexpected food emergencies and disasters might put the

28 This is obtained by considering a population of 15 million needing approximately 0.384 kg/person/day of rice (140 kg/person/year). 29 It should be noted that these are illustrative calculations only. They are not recommendations based on feasibility study and design of food reserves. The design will occur in the next phase of the TA (Phase 3).



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food reserves organization under considerably stress. If the stock at hand during such emergencies is low or cash reserves are not available, then a treasury request needs to be submitted, approved, and disbursed. This might require more time than is normally required for a quick response relief operation. For example, during the food crisis in Cambodia during 2008, food distribution was carried out in November. This was after the crisis had first hit in April and the rice prices had gone down in September. The stress situation of households had been mounting for several months, starting in April 2008 when price were already higher than at the same time in the previous year and stayed at these higher levels until September.

171. The advantage of the second option (special fund for food reserves) is that it would provide more flexibility to the food reserves organization to conduct its operations without lengthy budgeting processes and disbursement of funds through the annual budget. The disadvantage is that it would require more discipline in terms of assuring an efficient use of the funds. Part of this would be in terms of cash and part in physical stocks of food.

172. The advantage of the third option (cash reserves) is that there would be no need to keep physical stocks of food or the need to build specialized infrastructure such as storage facilities. The disadvantage is that cash reserves could more easily “disappear” by being allocated to other uses during normal periods. Moreover, price of food could be prohibitively high during emergencies; food markets might be disrupted making procurement of food difficult and lengthy. Prices would also be pushed higher by this increased demand.

Table 15 Options for Financing of Food Reserves

Options for Financing Food Reserves

Advantages Disadvantages

Funds held by the Treasury

• Strict control of expenditure through yearly budgets

• Emergencies do not occur according to budgetary processes

Special Fund • Flexibility of using fund to

face imminent emergencies without going through the treasury

• Requires expertise to manage the fund and respond to changed market conditions

Cash Reserves • No need to maintain physical

stocks • Easier for cash funds to

“disappear” by being allocated to other uses

• Procurement of food during emergencies might take long time

• Price of food might become prohibitively high during emergencies

7.2.12 Operations of Food Reserves

173. Once a food reserve system is established and initial stocks are obtained and stored in appropriate facilities, operations include a number of activities such as: replenishment, procurement (either through domestic markets or imports), offtakes (including distribution to



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targeted groups or open market sales), recycling of old stock, storage, handling, maintenance, logistics, losses management, quality control, and inspection.

174. Standard Operating Procedures (SOP) for each of these operations are well known and available form well‐run grain storage entities around the world. In Cambodia, WFP has been running a system of food reserves according to international standards since the 1990s. Unfortunately, SOPs are not in place in most warehouses in Cambodia, including those of Green Trade. There is considerable scope for improvement in efficiency.

175. The approach currently pursued in Cambodia is characterized by relative openness to involvement of the private sector in operations such as logistics, procurement through agents, handling, transport, and storage. Both WFP and Green Trade use lists of pre‐qualified suppliers of grains and providers of services such as storage, labor and transportation. The use of such services could represent a substantial saving in cash flow and investment costs. For example, rather than maintaining a fleet of vehicles for carrying out various logistics operations, outsourcing to local transportation companies could be a preferred option. Similarly, rather than build new storage facilities, renting available space from underutilized warehouses in the private sector might provide further saving in investment costs (see Table 16) and contribute to development of postharvest system.

Table 16 Option of Building and Renting Storage Facilities for a 10,000 tonnes Warehouse

Cost Item Build New Infrastructure

($ millions) Rent Storage Facilities

($ millions)

Estimate Initial Cost of 10,000 tonnes FR

$4.45 $3.67

Estimated O&M Cost of 10,000 tonnes FR

$0.45 $0.37

Total $4.90 $4.04


176. The involvement of the private sector could provide an opportunity for improved efficiency of operations. At the same time, there could be greater scope for malpractice and rent‐seeking behavior. Adequate supervision, monitoring, transparent rules, and external auditing will be required to ensure that operations are run smoothly and in a transparent manner.

7.2.13 Management Information Systems for Food Reserves

177. The effective and efficient management of food reserves requires access to, analysis of, and use of information related to a number of indicators that are appropriate to the different types of disaster to which the reserves are intended to respond. The main types of information include:

1. Crop statistics and crop forecasts

2. Early warning systems related to flood, storms, rainfall

3. Market prices and market situation both in domestic and world markets

4. Trade statistics for grains



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5. Stock inventories at each warehouse, procurement, and off‐takes

6. Past and expected disasters and food emergencies

7. Transportation infrastructure conditions

8. Vulnerability and food insecurity maps

9. Food requirements of different groups

10. Crop damage assessment

11. Food requirements for different types of disaster

12. Cash flows and balance sheets of the food reserves organization

178. The availability, organization, and use of this information require a management information system that is user friendly and up to date. Currently, there is no organization with such a system in place that covers all of Cambodia.

179. Tools, such as computerized inventory control systems, are limited. Monitoring and evaluation systems for food reserves are not available. This is in contrast to a country like Bangladesh where there is a unit within the Ministry of Food and Disaster Management responsible for Food Policy Monitoring. A summary of Food Reserve information systems is presented in Table 17.

Table 17 Information Systems for Food Reserves in Cambodia

Management Information System for SFR Not Available

Limited Acceptable

Computerized stock inventory system X

Crop forecasting system X

Early warning system X

Market information on Cambodia food markets

X

Market information on world food markets

X

M&E for food reserves X


7.2.14 Policy and Regulations of Food Reserves

180. The Green Trade Company is mandated to maintain a strategic food reserves to face emergencies and to stabilize prices of food. There are no clear regulations or Standard Operating Procedures detailing the way a food reserves system should be established, how the size of food reserves should be determined, and how financing, operations, monitoring, capacity building, and human resources should be utilized.



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181. The establishment of an effective food emergency response system requires that a body of regulations is formulated and approved as a matter of urgency. Without a regulatory framework, there is a considerable risk of Cambodia finding itself in a situation similar to the Food Crisis of 2008.

7.3 Recommendations about Food Reserves in Cambodia

182. The previous analysis suggests a number of recommendations aimed at establishing an effective and efficient system of food reserves in Cambodia. The development purpose of a food reserve is to improve food security of vulnerable groups, reduce the suffering and social instability inherent to food emergencies, and protect the whole population from severe market price instabilities in basic foods. Recommendations are presented in five groups:

183. Policy, Institutions, and Regulations. Given the complexity of food reserve system discussed in the previous section and the absence of a clear policy and regulatory framework for food reserves, the main recommended actions are:

1. Formulation and approval of a decree on Food Reserves. The decree would clarify the objectives of the system, the institutions responsible for managing food reserves including the clarification of the role of the private sector and NGOs, the financing, and principles of effective and efficient operations, the human resources, the physical infrastructure, the information systems, the monitoring and evaluation reporting mechanisms to accompany the food reserve system.

2. Establishment of the Cambodia Food Reserve Agency (CAFRA). This would be a specialized agency in food reserves, separate from Green Trade and with a clear mandate to manage the food reserve systems. It should have, dedicated human and financial resources to run smoothly and effectively. It is recommended to have such an agency under the authority of the National Committee of Disaster Management with financial supervision from the MEF. The immediate concern of the Food Reserve Agency would be to respond to food emergencies and relief situations. Objectives of safety nets and price stabilization may be considered at a later stage.

3. Formulation and approval of Standard Operating Procedures (SOP) to manage food reserves. These procedures may draw upon the international experience and the experience of organizations that have worked with food reserves in Cambodia (e.g. WFP, CRC, Green Trade)

184. Food stocks and Infrastructure. Adequate food (and seed) stock will be required to ensure capacity of the food reserve agency to respond to emergencies and carry out relief operations. Additional stocks may be required to carry out safety nets such as food for work programs during the lean season, supplementary feeding programs and food for education programs. Infrastructure including well maintained storage facilities located at critical points will need to be rehabilitated or constructed to ensure efficient management of stocks and rapid distribution. Specific recommendations are:

4. Establishment of an emergency food reserve stock of about 17,500 tonnes. The stock will ensure that enough food is available to provide for an emergency lasting 2 weeks and affecting 20% of the population. Vulnerability estimates indicate that about 20% of the population in Cambodia is food insecure; for these groups any major event impacting negatively on their livelihoods could move them into a food crisis situation. Major natural disasters in Cambodia have affected between 10 and 30% of the population (see Table 19). The most crucial response period for an emergency usually lasts between 1 and 3



62

weeks. For economic crisis (such as the 2008 food crisis) the population seriously affected may exceed 20% and the emergence period might last longer.

5. Establishment of a relief food reserve stock of about 35,000 tonnes. This stock level would ensure that enough food is available to sustain relief operations for 2 months and cover the most vulnerable 10% of the population.

6. Establishment of rice seed reserve stock of about 2,000 tonnes. This stock would ensure that certified seeds are available to plant between 25,000 and 100,000 ha30. Crop damage assessment of previous major disasters range between 10,000 and 300,000 ha. For example, the latest estimates for Ketsana indicate crop damage of about 30,000 ha. The seed reserve could be linked to a program of development of the seed industry and promotion of certified seed.

7. Rehabilitation and/or construction of adequate food storage facilities with a total capacity of up to 50,000 tonnes in the medium term in four locations ( Phnom Penh, Battambang, Siem Riep, and Kampong Cham) taking into account the option of renting unutilized private sector storage facilities. The four locations would have a catchment area that could reach over 95% of food insecure people in Cambodia within one day of travel. The warehouses currently available with Green Trade for storing food reserves could also be used for this purpose. Depending on the development of a food safety net program, rehabilitation and construction could be undertaken gradually over a period of 4 years. Priority could first be given to emergency stock (first year), then to relief stock (second year), and eventually consider additional storage capacity for carrying out safety net programs. Priority over the first two years would be for adequate storage facilities for emergency and relief operations (total capacity about 50,000 tonnes). Additional storage facilities will be needed only if a program of food safety nets is established (additional 50,000 tonnes). As shown in the storage survey, private sector storage space of at least 21,000 tonnes is already available for rent during the lean months of August to November. With an existing institutional capacity of at least 23,000 tonnes (see Storage Survey), there would be a minimum need for major new infrastructure in the short to medium term. Rehabilitation of storage facilities in poor conditions (about 40%) might be needed.

8. Evaluate the costs and benefits of stock and infrastructure initiative with food safety net programs. The implications for food reserves and storage facilities have to be carefully considered and weighed against alternative intervention mechanisms such as cash payments or cash for work programs.

185. Capacity building, Information, and Monitoring. An effective and efficient food reserve system cannot function without adequate human resources, information and monitoring systems. Recommendation related to these aspects include:

9. Provide training and capacity building to a core group of professionals in food reserve operations. The core group will include warehouse managers, procurement officers, logistics experts, information analysts, and monitoring officers.

10. Establish a management information system for food reserves. The information system will ensure access,, analysis and use of key data on crops, emergencies, early warning

30 Depending on the planting practice, transplanting or broadcasting. For transplanting a seed ratio of 20 kg/ha is assumed and for broadcasting 80kg/ha.



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system, markets, and the infrastructure needed to run operations smoothly and efficiently.

11. Establishment of a monitoring and evaluation system for food reserves and an annual reporting system on the operations of the food reserves during the year.



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7.4 Strategy for Implementation of the Recommendations on Food Reserves

No Recommendation PeriodShort term (1 year) Medium term (2 years) Long term (4 years)

Costs ($ million) Responsible Agencies

1 Formulation and approval of a decree by the Prime Minister on Food Reserves

Short term Formulation byMEF Approval by PM

2 Establishment of the Cambodia Food Reserve Agency (CAFRA)

Medium term PM/MEF/NCDM

3 Formulation and approval of Standard Operating Procedures (SOP) to manage food reserves

Medium term CAFRA (new agency)

4 Establishment of an emergency food reserve stock of about 17,500 tonnes

Short term $7.3 MEF

5 Establishment of a relief food reserve stock of about 35,000 tonnes

Medium term $15.35 MEF

6 Establishment of rice seed reserve stock of about 2,750 tonnes

Medium term MAFF

7 Rehabilitation and/or construction of adequate food storage facilities with a total capacity up to 50,000 tonnes in four locations at Phnom Penh, Battambang, Siem Riep, and Kampong Cham, taking into account the option of renting unutilized private sector storage facilities

Short term (capacity of 20,000 tonnes) Medium term (capacity of 50,000 tonnes)

MEF

8 Evaluate stock and infrastructure costs and benefit of carrying out a food safety net program

Long term MEF/CARD

9 Provide training and capacity building to a core group of professionals in food reserve operations

Short term (4 experts) Medium term (8 experts)

NCDM/CAFRA (new agency)

10 Establishment of a management information system for food reserves

Short term NCDM/CAFRA (new agency)

11 Establishment of a monitoring and evaluation system for food reserves

Short term NCDM/CAFRA (new agency)




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7.5 Implications for the TA Activities on Food Reserves during Phase 3

186. During Phase 3, the TA Team proposes to work on the design of a food reserve system for Cambodia. The design would involve the following activities:

1. Consultations with relevant agencies (MEF, NCDM, Green Trade, CARD) and the private

sector (Federation of Rice Millers of Cambodia) about the feasibility of the

recommendations;

2. Design a food reserves system with indication of rationale, objectives, management,

organization, financing, costs, operations, infrastructure, information, and regulations

needed;

3. Formulate a policy on food reserves.

7.6 Estimates of Costs of Different Levels of Food Reserves

187. Some illustrative estimates of costs for different levels of food reserves are presented in Table 18. The assumptions reported in the table are based on key informants’ interview and need to be verified during the design stage in Phase 3. Rather than being recommendations, they provide a range of estimates to illustrate the main points discussed in the previous sections. For example, the estimates indicate a differentiation between emergence (very short term) and relief reserves (more protracted over time to take into account longer periods of emergencies such as those in droughts and economic crisis). The estimates also indicate that any program of actual price stabilization through reserves (as is carried out in Bangladesh or Indonesia) will require considerable amount of stocks. The cost of stocks needs to be weighed against alternative options of price stabilization through trade measures (similarly to Viet Nam). The case of safety net provision is also presented to illustrate the case that an effective food safety net program with non‐marginal impact requires considerable amounts of stocks to be distributed.

Table 18 Cos Estimates of Different Types of Food Reserves

Emergency Response

Emergency Relief

Safety Net Provision

Price Stabilization

Size of rice stock (1000 tonnes) 17.500

35.000

210.000 300.000

Rice stock cost ($ million) 6.125

12.250

73.500

105.000

New infrastructure ($ million) 0.563

1.875

1.250

1.813

Storage and O&M cost ($ million)

0.613

1.225

7.350

10.500

Total cost ($ million) 7.300

15.350

82.100

117.313

Assumptions

Population total 15,000,000 15,000,000 15,000,000

15,000,000

Period to cover (months) 0.5 2 12 12

Population to cover 20% 10% 10% 100%

Price of rice ($/tonne) $ 350 $ 350 $ 350 $ 350



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Emergency Response

Emergency Relief

Safety Net Provision

Price Stabilization

Existing Infrastructure (tonnes) 10,000 10,000 10,000

10,000

Additional Infrastucture (tonnes) 7,500 25,000 16,667

24,167

Unit cost of new warehouse ($/10,000t) $ 750,000 $ 750,000 $ 750,000 $ 750,000

Storage costs (% of stock cost) 5% 5% 5% 5%

O&M costs (% of stock cost) 5% 5% 5% 5%

Source: Consultant’s Team. Table 19 Top 10 Natural Disasters in Cambodia – People Affected

Disaster Date Number of People

Affected

Drought Jun‐94 5000000

Flood 11/7/2000 3448053

Flood 15/08/2001 1669182

Flood 18/08/2002 1470000

Flood 30/09/1996 1300000

Flood 22/08/1991 900000

Drought Jan‐02 650000

Drought Apr‐05 600000

Flood 2/8/1999 535904

Epidemic Mar‐92 380000

Source: "EM‐DAT: The OFDA/CRED International Disaster Database

www.em‐dat.net ‐ Université Catholique de Louvain ‐ Brussels ‐ Belgium"

188. Seed Reserves could be computed by taking into account the following:

1. Estimated crop damage due to major floods, droughts, and storm range between 30,000 ha (Ketsana according to Oxfam); 45,000 ha (drought 2001 according to NCDM); 144,000 ha (flood 2001 according to NCDM); and 347,000 ha (flood 2000 according to MOWRAM).

2. Most of the floods and storm occur during the rainy season and any program to provide seeds to poor farmers should take into account that early rice varieties during the dry season will be partly transplanted and partly broadcast. With seed rations of about 30kg/ha for transplanted rice and 80kg/ha for broadcast rice, an average seed ratio of 55 kg/ha is used to estimate the area covered by a seed reserves.

3. If the area to be covered is about 50,000 ha providing a cushion for various types of disasters (not all the farmers will be vulnerable and only the poor ones would be covered by the program of seed distribution in case of disaster or emergencies) and using an average seed ratio of 55 kg/ha, the equivalent seed reserve will be about 2,750 tonnes.



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8 FOOD AND NUTRITION POLICY NEEDS IN RELATION TO DISASTER RISK REDUCTION AND FOOD EMERGENCY

189. The Strategic Framework for Food Security and Nutrition in Cambodia 2008‐2012 (SFFSN) was prepared by CARD in consultation with the TWGFSN in 2007. Improving food security and nutrition is a development priority of RGC as is apparent from its current national strategic frameworks, including the Cambodia Millennium Development Goals (CMDGs) and the National Strategic Development Plan (NSDP) 2006‐2010. It is also a priority recognized in a broad range of sector policies, including agriculture, water resources, economic development and health and education. The SFFSN is a holistic framework to help guide, monitor and coordinate FSN interventions across sectors. Specific objectives of the SFFSN include increased food availability, increased food access, improved use and utilization of food, increased stability of food supply, and an enhanced institutional and policy environment for FSN. 190. A review of SFFSN was provided in the Inception Report31. The Midterm Report has made a more comprehensive review of the policy and institutional aspects of the SFFSN that need further policy development in the field of monitoring and evaluation (see section 3, APPENDIX A, APPENDIX B, APPENDIX C), disaster management and emergency response (see section 4, APPENDIX F, APPENDIX H, APPENDIX I, APPENDIX J, APPENDIX K), capacity development (see section 5, APPENDIX L, APPENDIX M, APPENDIX N, APPENDIX O), food reserves (see section 7), and safety nets (see section 6).

191. The following sections summarize the policy development needs in relation to Food Security and Nutrition (FSN) and Disaster Risk Reduction and Management (DRRM). 192. Disaster Risk Reduction and Management Law. The Strategic National Action Plan for Disaster Risk Reduction (SNAP) was launched in March 2009; yet urgently needed is a policy and budget for National Disaster Risk Reduction and Management. Investing in effective response mechanisms reduces the impact of disasters. Disaster response preparedness is a key component of effective risk reduction. Strong emphasis on community based preparedness and response is needed. The backbone of a good national response is directly proportionate to the strength of local capacity32. Local communities take the burden of being the first responders in any emergency and their capacity has to be improved. Estimated damages of the recent Ketsana indicate an amount of $132 million. Even higher estimates exist for previous disasters such as the floods of 2000. 193. Social Safety Nets Strategies and Program Design. Social safety nets (SSN) are essential to: reduce poverty and inequality via targeted transfers to the poor; enable households to invest in children's human capital and their livelihoods (e.g. by improving nutrition); and help households to better manage risks and mitigate the impact of shocks on household livelihoods and avoid negative coping strategies. Coverage of SSN in Cambodia is incomplete with regard to geography, social group, and risks covered; SSN depend mainly on external resources. Identification systems for targeting SSN exist (i.e. ID‐Poor households system within the MOP: see APPENDIX A). CARD is entrusted to develop a SSN concept note including a mapping and scoping exercise of existing safety nets, organize a national forum33 on SSN to be chaired by the Prime

31 Section 3.1 of Inception Report. 32 UNDAC 2009 Disaster Response Preparedness Mission to Cambodia 14‐28 March 2009.

33 National Forum on Food Security and Nutrition: “Social Safety Systems”, 6‐7 July 2009, Phnom Penh.



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Minister, identify gaps and propose SSN policy options, and contribute to a more consolidated SSN strategy. The strategy is expected to be finalized in 2010. 194. Food Reserves Policy and Institutional Development. No policy on food reserves exists. Food reserves can contribute to reduce negative impact on affected populations and particularly of vulnerable people during disasters and emergencies. In addition food reserves could be used for carrying out safety net programs and price stabilization. There is hardly any mention of food reserves in the SFFSN. Green Trade was established in 1998 with the mandate of keeping food reserves; however details about the policies and regulation for an effective and efficient food reserves system are missing (see section 7.2.14). The TA has made some contribution in terms of organizing a food reserves workshop, stimulating policy debate and conducting some analysis. However, clear decisions need to be made and legislation formulated and approved regarding the objectives, management, financing, operations, information, and regulations of food reserves system.

195. Establishment of a system of M&E for the SFFSN. In spite of the efforts of different stakeholders and agencies to formulate and approve the SFFSN, the M&E of the framework still needs to be developed. Critical to policy evaluation will be a monitoring system that allows decision makers to take informed policy decisions. Institutionalization of M&E is needed and the issue of coordination resolved by indicating clear mandates, responsibilities, and providing resources that ensure continuity of the effort.



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9 RECOMMENDATIONS

196. The previous sections have identified a number of issues, constraints, needs, and recommendations to improve the food security and nutrition and disaster management and risk reduction system of Cambodia. This section summarizes the recommendations emerging from the previous analysis and focuses on practical measures that could be accomplished within the short term (1 year) and medium term (2 years). 197. The recommendations (see Table 20) are classified into three groups: (i) Food Reserves and Safety Nets; (ii) Disaster Management and Risk Reduction; and (iii) Food Security and Nutrition Strategy and Monitoring and Evaluation.

198. In each group, the recommendations that have a direct implication on the TA and the Consultant’s Team work plan are highlighted.

199. Section 3.4 provides details about the approach to the activities proposed regarding design of a comprehensive M&E for FSN and early warning system (EWS) for FSN. Section 5 provides details about the capacity development activities of NCDM/PCDM. Section 7.5 contains the approach to the design of food reserves. Table 20 Short and Medium Term Recommendations No. Recommendation Term

Expected Result Key Driver and

Support

1 Recommendations about Food Reserves and Food Safety Nets

1.1 Design of Food Reserves System for Cambodia

Short term

Food reserves system designed and submitted to decision makers

MEF with support of EFAP TA

1.2 Establish System of Food Reserves for Cambodia

Medium term

Effective and efficient system of Food Reserves established to respond to disasters and emergencies and undertake safety net programs

MEF with support of NCDC and MOC

1.3 Formulate strategy for safety nets

Shortterm

Approval of safety nets strategy and action plan

CARD with support of line agencies and donors

1.4 Program on safety nets including cash‐for work and food‐for‐work

Medium term

Approval and launching of government program

PM with support of line agencies and donors

2 Recommendations about Disaster Management and Risk Reduction

2.1 Basic capacity of NCDM/PCDM strengthened

Short term

Improved tools and staff capacity in Information and communication systems, SOP, business and HR planning, monitoring and evaluation

MEF with support of EFAP TA

2.2 Law on Disaster Management and Risk Reduction approved

Medium term

Defined clear responsibilities of agencies involved in DMRR

PM with support of NCDM

2.3 Secretariat of NCDM Medium Secretariat of NCDM endowed with PM with



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No. Recommendation Term

Expected Result Key Driver and Support

established as General Department

term human and budgetary resources and responsibility for implementation

support of NCDM

3 Recommendations about Comprehensive Monitoring and Evaluation for Food Security and Nutrition

3.1 Design of a comprehensive M&E system for FSN and Early Warning System

Short term

Design of comprehensive FSN M&E system covering immediate and longer term FSN issues / considerations and design of an EWS contributing to the comprehensive FSN M&E system

CARD/TWGFSN with support of EFAP TA

3.2 Implementation of M&E system for FSN

Medium term

The M&E system for the strategy of FSN is established and functional


3.3 Reformulation of strategy for FSN

Medium term

New strategy on FSN and action plan built upon SFFSN; taking into account program implementation of food safety nets, food reserves, monitoring and evaluation systems


Note: Short term (less than 1 year); Medium term (less than 2 years)



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10 PLAN OF ACTIVITIES DURING PHASE 3

10.1 Introduction

200. According to the work plan agreed during the Inception Report, Phase 3 will start on June 2010 and conclude in January 2011. During the period mid‐April 2010 to mid‐May 2010, the Consultant’s Team will not be mobilized in Cambodia, partly to coincide with the Khmer New Year. 201. The Consultant has submitted the Midterm Report on time by 12 April 2010. Feedback from the ADB and the Implementation Agency (IA) is expected to be received by the end of April 2010.

202. According to the work plan in the Inception Report, a Midterm Workshop should have been held before Khmer New Year. This was not held because it thought that a second workshop would be too close to a similar event on food reserves held on 31 March 2010. A new date for the midterm workshop and its content will have to be agreed with ADB and the IA.

10.2 Activities during Phase 3 203. During phase 3, the Consultant’s Team will be involved in designing and capacity development activities as follows:

1. Design Activities

a. Comprehensive Monitoring and Evaluation System for Food Security and Nutrition

b. Early Warning System contributing to the Comprehensive M&E System c. Food Reserves System d. Food‐for‐work and/or cash‐for‐work program

2. Capacity Development Activities:

a. Capacity Development for NCDM/PCDM 204. The principles and approach of the design of the comprehensive M&E system for FSN and early warning system are presented in section 3.3 and section 3.4. The analysis of food reserves in section 7 and consultations held during the workshop (see APPENDIX E) provide the framework to conduct the design of the food reserves system. The review of issues related to food safety nets in section 6 and the experience of ongoing cash‐for‐work interventions in EFAP provide the context of design for food‐for work and cash‐for‐work program. The details and indicative budget for the Capacity Development Activities are provided in APPENDIX O and APPENDIX P. The senior management of NCDM has already agreed about the general content of the proposed capacity development program and indicated that they will establish a coordination unit to work with the Consultant’s Team.

10.3 Reports 205. The Draft Final Report is expected to be submitted by 15 November 2010 and the Final Report by 17 January 2011.



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10.4 Workshops 206. Midterm and final workshops will be held during Phase 3. Tentatively, the Final Workshop’s objective is to discuss the Draft Final Report. It should occur around the date of submission of the Draft Final Report. The date and content of the Midterm Workshop will have to be agreed with ADB.



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APPENDIX A. DATASETS AND INFORMATION SYSTEMS FOR FOOD SECURITY AND NUTRITION IN CAMBODIA

207. Datasets relating to food security and food emergency are listed and assessed in detail in this section. Table 21 Datasets relating to food security in Cambodia

Dataset Source

D1 Cambodia Food Security and Nutrition Information System (FNIS) www.foodsecurity.gov.kh

D2 Food Insecurity and Vulnerability Information and Mapping System in Cambodia (FIVIMS)

www.foodsecurity.gov.kh/FIVIMS/

D3 System of Rice Intensification in Cambodia (SRI) Website www.foodsecurity.gov.kh/sri/

D4 WFP Food Security Atlas www.foodsecurityatlas.org/khm/country

D5 Natural Resource and Environment (NRE) Data Tool Box http://www.cambodiaatlas.com/map

D6 Cambodia Socio‐Economic Survey (CSES) National Institute of Statistics (NIS)

D7 The Cambodia Anthropometric Survey (CAS) National Institute of Statistics (NIS)

D8 Cambodian Demographic Health Survey (CDHS) National Institute of Statistics (NIS)

D9 National Health Information System (NHIS) Ministry of Health (MOH)

D10 MOH Communicable Disease Control department (CDC) surveillance and rapid response system

Ministry of Health (MOH), Communicable Disease Control department (CDC

D11 ID Poor Database Ministry of Planning (MOP)

D12 Commune Database Ministry of Planning (MOP)

D13 Census 2008 National Institute of Statistics (NIS)

D14 CamInfo 3.2 National Institute of Statistics (NIS)

D15 MRC Flood Warning System Ministry of Water Resources and Meteorology (MOWRAM)

D16 MAFF weekly rice crop report Ministry of Agriculture and Fisheries (MAFF)

D17 Cambodia Agricultural Market Information Service (CAMIS) http://www.camis‐kh.org

Cambodia Food Security and Nutrition Information System (FNIS)

208. The Food Security and Nutrition Information System is a web based resource (www.foodsecurity.gov.kh) operated and maintained by Council for Agricultural and Rural Development (CARD) since 2004.

209. The FNIS aims to ‘facilitate the dissemination of best practices and lessons learned, highlight innovative measures, inform users of news and events, and promote open discussion among stakeholders, with regard to food security and nutrition issues in Cambodia’

210. Features of the website include:

Searchable document library for documents relating to food security and nutrition

Organization directory for organization working in the area of food security and nutrition

Project database for projects relating to food security and nutrition

News and events relating to food security and nutrition

Details of forums, committees and working groups

Links to related websites

Job announcements relating to food security and nutrition

Web hosting of System of Rice Intensification in Cambodia website



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211. The content of the website is updated as content is received and is made available on a CD, twice per year, for non internet connected users. The CD currently only works with windows XP.

212. FNIS hosts (SRI) and provides links to related websites:

Food Insecurity And Vulnerability Information And Mapping System in Cambodia www.foodsecurity.gov.kh/FIVIMS/ (see below for detailed description of this website)

System of Rice Intensification in Cambodia www.foodsecurity.gov.kh/sri/ (see below for detailed description of this website)

Food Security Atlas of Cambodia Website http://www.foodsecurityatlas.org/khm/country (see below for detailed description of this website)

213. CARD has a dedicated unit to update the FNIS and SRI (when requested) websites consisting of 3 permanent staff (I technical and 2 content managers) and 3 short term contract staff (1 information specialist and 2 technical specialists) paid for by FAO.

214. Whilst the website has facilities for registered users to be able to update content online, in practice this is not done and the content managers maintain a contact list of individuals and agencies involved in food security and nutrition and call each contact on a regular basis to solicit content (mostly news and events) for the website. This is a less than ideal way to update the content of a website and is probably results in less up to date content than other, more interactive, methods of updating content.

215. There are plans to develop an additional website www.card.gov.kh which will be the institutional website for CARD and will link to FNIS as well as including sections on SSN (social safety net) programs such as health equity funds and food for work. Discussions are underway as to the format of the site and whether it will be a more dynamic site than FNIS where the users update the content or whether it will be similar to FNIS (i.e more static). In terms of content the site will focus on SSN related documents, news and events.

Table 22 Evaluation of Cambodia Food Security and Nutrition Information System (FNIS)

Food Policy Decision Making Quick Response to Potential Food Crisis


The website is useful in food policy decision making. Information available on the web site provides historical back ground information, supporting analysis and providing a record of past lessons learnt.

The system provides a useful resource in the analysis of food policy however delays in data availability compromises usefulness. The method of updating website content means results are not timely compared to more interactive methods of updating content.

Information on this website has limited usefulness in informing of arising food crisis. The historical information available of the web site may inform the design of quick responses by identifying areas of the country that have been prone to food crisis in the past.

Delays in updating content mean the data is not sufficiently timely to inform of emerging food crisis




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Food Insecurity and Vulnerability Information and Mapping System in Cambodia (FIVIMS)

216. FMVIS was developed by FAO to help countries define food insecure and vulnerable population groups and was initially set up by the Ministry of Rural Development (MRD) but was later transferred to the Ministry of Agriculture and Fisheries.

217. FMVIS aims to ‘assemble, manage, analyze and disseminate information about people who are food insecure and/or malnourished, or are at risk of becoming food insecure and malnourished. It helps identify, locate and estimate the number of the food insecure and vulnerable and understand the causes of food insecurity and vulnerability, being built on the information systems and databases already existing in the country.’

218. Information regarding a set of key indicators is received periodically form various partners and these indicators can be queried and displayed graphically and on maps through the website. Currently there are number of indicators grouped into four categories:

Food availability and stability

Access to food

Utilization and outcome

Pertinent variables

219. Whilst the system has many useful functions and has many indicators much of the data is very old (nothing newer than 2006). As all of the data comes from various outside sources it was a major challenge for FIVIMS to develop appropriate mechanisms for information providers to provide the data; and this no doubt was a contributing factor to the lack of up to date information currently in FMVIS.

220. Currently the funding for FIVMIS has stopped and therefore the site is no longer actively updated and as such its usefulness of this site in food policy decision making and quick response to food crisis is very low.

System of Rice Intensification in Cambodia (SRI) Website

221. The System of Rice Intensification (SRI) is a methodology for increasing the productivity of irrigated rice by changing the management of plants, soil, water and nutrients. An SRI working was set up and is chaired by Ministry of Agriculture, Forestry and Fisheries under the Department of Agronomy and Agricultural Land Improvement (DAALI).

222. The Members of the SRI working agreed to establish a Permanent Secretariat to support their activities and created an SRI website www.foodsecurity.gov.kh/sri/ website containing articles, meeting/workshop proceedings, reports, and other information related to SRI. The site is updated by the IT staff of CARD at the request of the SRI secretariat staff and has approximately 30 reports and case studies available for download and has a number of new events covering 2006 – 2009. It features a number of links to related SRI website making it a useful resource for research into SRI related issues.



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Table 23 Evaluation of System of Rice Intensification in Cambodia (SRI) Website



The websites reports and case studies are useful in informing any analysis to be used in food policy decision making. Usefulness is greatest when considering food availability issues related to rice.

Most of the data available on the website is over two years old.


WFP Food Security Atlas of Cambodia Website

223. The WFP Food Security Atlas of Cambodia Website (www.foodsecurityatlas.org/khm/country) is a collection of food security related data displayed in a static format. It contains a lot of useful information based upon a number of surveys and the government census and appears to be updated on an ad hoc basis as new surveys are conducted consequently much of the data is quite old.

224. Content is grouped into the following classifications:

Availability – statistics about current rice crop

Access – data about poverty, vulnerability profiles, livelihoods and levels of prices (CPI)

Nutrition – maternal and child heath data, Micronutrient deficiencies, immunization and utilization of food

Demography – data about population, migration and mortality

Education – enrollment rates, drop‐out rates and literacy

Assets – natural resources (land, forestry, fisheries, water), housing, financial resources (credit schemes and rice banks), social safety nets

Vulnerability – history of shocks, poverty and food security policies, millennium development goals, risk analysis (areas vulnerable to floods and droughts, market price fluctuation)

Food Aid – NGO and donor aid

Recommendation – recommendation for all the above categories

Provincial profiles – provincial profiles for all provinces in Cambodia covering demography, health status, rice production, poverty and access to food

225. The website is in English but there is a section in Khmer that requires the user to logon. There is no ability to download the data.



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Table 24 Evaluation of WFP Food Security Atlas of Cambodia Website



Contains useful and historic information to inform food policy decision making. An example is the food security snap shot given for October 2009. It provides definitions used in food security with explanations of concepts and applies these to Cambodia. Usefulness of much of this data is limited due to the age of the data. For example food aid records cover the pre 2006 period.

Timeliness of the data is limited. As a guide it is estimated that much of the data is over 3 years old.

May provide some background information.



226. As part of the completion of Danida’s Natural Resource and Environment (NRE) Program 2001‐2006 in Cambodia the website http://www.cambodiaatlas.com/map has been created to provide civil society, government institutions, development partners and the public at large with information on the state of the environment and natural resources in Cambodia and related social and economic issues. Data is based on data collected during the program period from a number of the Danida funded projects during 2001‐2006.

227. Maps can be accessed online and are available on CD. Maps currently available in the atlas are shown in the following table:

Table 25 List of maps available in the Atlas of Cambodia ‐ National poverty and Environmental Maps

Map Aggregate Source Limitations

Administrative Boundaries

Provincial, District and Commune

Department of Geography 2005

Many administrative boundaries are disputed and continually being updated.

Geographical Relief National JICA Dataset 2002 Rainfall and Temperature patterns

National FAO Only extrapolated assumed grid data from satellite interpretations.

Dry Periods

National Gene‐Ecological Zonation of Cambodia (Tree Seed Project FA/Danida /DED) 2003

Based on 104 meteorological stations and a few regional stations. Limited accuracy in areas with low station coverage and restricted data collection periods.

Landuse National JICA Dataset 2002 Automated Landsat and Spot Data interpretation with rough or uncertain LUCC class distinctions.

Poverty Level by Commune

Commune WFP 2002 Calculated based on Census data from 1998.

Landmine and UXO Contamination

National Department of Mines Provides limited information on precise location of mines and accidents. Survey teams require more time for accurate data collection.



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Terrestrial Vegetation and Landuse Patterns

National

BPAMP (MoE) Based on several different satellite interpretations and aerial photography.

Land Cover Non Forested Areas

National JICA Dataset 2002 Automated Landsat and Spot Data interpretation with rough or uncertain LUCC class distinctions.

Forest Concessions National IFSR 2004 Official data of MAFF – FA, no information about the status of concessions.

Forest Cover 1976, 1997 and 2002

National

Mekong Secretariat, MRC, FA

Based on different non comparable forest types and classes as well as satellite interpretation methods. Scientifically not precisely comparable data

Forest Disturbance National

IFSR 2004

Based on model with the assumption that forest disturbance increases with roads and villages. Does not take population density into account.

Village Locations National CMAA 2001 (Level one Survey)

Not including new villages founded in many areas of Cambodia since 2001.

Community Forestry National FA 2005 Uncertain limits and boundaries of CFI areas at commune level

Gene‐Ecological Zones National CTSP, FA For tree species purpose only. Caution with the determination of the specific nature of the seed source near the border of two distinctive ecozones.

Seed Source Sites National CTSP, FA Limited Species

Protected Areas and Protected Forests 2002

National PA: MoE, PF: FA, MAFF Mostly non officially approved or located boundaries. Official demarcation ongoing within the process of state land mapping

Geology National Department of Geology, MIME

Under continuous improvements. Uncertain data based on pre 1970 interpretations.

Mineral Resources National Department of Geology, MIME

Projected National Transmission Grid and Hydropower

National

MIME 2005

Mostly projected and planning data

Wetlands and Catchment Areas

National Wetlands: ASEAN Regional Center for Biodiversity Conservation. Catchment, Flooded Area: MRC 2002.Discharge: JICA Dataset 2002

Boundaries of wetlands derived from MRC.

The Tonle Sap Biosphere Reserve

National Department of Natural Resource Assessment and Environment Data Management

The Coastal Zone Provincial Mangrove: CZM, MoE 2005. Coral Reef and Sea Grass: UNEP

Data collection in the CZ is only recent and ongoing.

Community Fisheries National DoF 2005 Arsenic Hazard

Provincial

Point data from Feldman and Rosenboom 2000, Arsenic risk map UNICEF 2004

Number of wells

Rice Ecosystems National IRRI Project (CIRP) Rough classification based on agronomic data, little ecological data or sociological data incorporated.



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Soil Types National CARDI‐after crocker, 1962

Outdated classification system and very rough data.

Soil Fertility

National

Gene‐Ecological Zonation of Cambodia

Rough classification based on outdated Crocker system

Soils of the Main Rice Growing Areas

National CARDI 2000 According FAO legend 1998 with local Khmer soil type names


228. A number of functions are available in the Atlas (online version only) to customize the maps: View and print of geographical maps (GIS layers) of Cambodia at incremental scales View and print of geographical maps and social, economic and natural resource data by

provinces, districts and communes The "Search" tool provide a quick way of finding the location of a specific commune (in future

also district) The "Identifier" tool provide an overview of the basic data of the selected commune The "Query" tool is a innovative data analytical search tool in which the user can:

o Search 140 data sets of all communes and print related maps and data o Export selected maps and data for reporting purposes and/or further analysis.

229. Maps can be printed with some basic customization (users can put their own maps title) but the raw GIS data cannot be exported from the software or website. According to the website is it possible to update the data by uploading additional maps by contacting the software developer but it appears that there have been no updates in the past couple of years.

230. The atlas is a very good source of maps and the ability to do queries (online version only) and print customized maps is very useful. The ‘identifier’ feature is good as it provides a profile of a selected commune and would be even better if it could be linked to the most up to date data available in the commune database as they appear to use the same commune codes. The ability to download the raw data would make the resource more useful.

Table 26 Evaluation of Natural Resource and Environment (NRE) Data Tool Box



Usefulness in food policy decision making is seen as low. While the maps could assist food policy analysis the information provided is old (2006).

Data is based on data collected during 2001‐2006 hence timeliness is low.

The NRE data tool box has potential to be used in quick response initiatives. The atlas is a very good source of maps and the ability to do queries and print customized maps is very useful. The ability to add a range of information to the maps is also useful. Information could be improved if links could be established to the most up to date data available in the commune database.

Timeliness of information is poor as it is based on data collected from 2001‐2006.

Low Low Moderate Low



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231. The Cambodia Socio‐Economic Survey (CSES) has been conducted by the National Institute of Statistics (NIS) in 1993/94, 1996, 1997, 1999, 2004 and annually since 2007. The main objective of the survey is to collect statistical information about living conditions of the Cambodian population and the extent of poverty. The CSES is a household survey and questions are asked for the household and for the household members.

232. The following main areas have been surveyed in the previous survey rounds and are planned for the annual CSES as well: Level and structure of household expenditure/consumption, including poverty Household production and cash income‐earning activities by the labor force Education and literacy Health and access to medical care Housing and amenities Family and social relations, including gender and vulnerability issues.

233. The main user is the Royal Government of Cambodia (RGC) as the survey supports monitoring the National Strategic Development Plan (NSDP) by different socio‐economic indicators. Four different questionnaires or forms were used in the CSES since 2007: Household listing form ‐ Used for sampling households. Village questionnaire ‐ The village questionnaire is responded by the village leader or a

representative of the village leader. The questions are about economy and infrastructure, crop production, health, education, retail prices, rental and sales prices of land etc.

Household questionnaire ‐ The household questionnaire is responded by the head of the

household, spouse of the head of the household or of another adult household member and includes questions about housing conditions, crop production and other agricultural activities, liabilities, durable goods, construction activities and income from other sources than economic activity. The household questionnaire also includes questions for each household member about education and literacy, migration, current economic activity and employment, health, smoking, HIV/AIDS awareness, and victimization. The questions in the first part of the household questionnaire are posed during the initial visit to the household.

Diary sheet ‐ The diary sheet on daily household expenditure, including value of own

production, and income are filled in for one month.

234. The CSES is a very useful tool and contains good information about poverty in Cambodia. As the survey is now conducted annually the data can now be kept more up to date. Unfortunately it seems to take some time to be analyzed and published and currently the latest survey to be published is from 2007.



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Table 27 Evaluation of Cambodia Socio‐Economics Survey (CSES)



The CSES is very useful in food policy decision making. It provides a range of demographic and socio‐economic indicators specifically relating to poverty that can be used in analysis that feeds into decision making processes.

The CSES is done every years since 2007 but the fact that it takes some time to publish (the latest results are from 2007) reduces the timeliness of the data.

May provide some background information but has limited use in the response to a potential food crisis


Cambodia Anthropometric Survey (CAS) 2008

235. The Cambodia Anthropometric Survey (CAS) was undertaken in 2008 to determine the affect of increased food prices on nutrition status of Cambodian children The 2008 CAS includes valid anthropometric measurements of over seven thousand children, making it the largest national sample of child measurements ever collected in the country. The main purpose of the survey was to provide policymakers and planners with updated information on nutrition in light of steep increases in the price of food in 2008. It provides a comprehensive view on nutrition in the country with data on anthropometry, micronutrient deficiency, food consumption, disease, coping strategies, infant/young child feeding, and health services. Indicators are available down to individual province level. Table 28 Evaluation of Cambodia Anthropometric Survey (CAS) 2008



The CAS is very useful in food policy decision making. It provides the most detailed range of specific nutrition indicators currently available for all provinces in Cambodia that can be used in analysis that feeds into decision making processes.

As time goes on the data will become more out of date and its usefulness will diminish.



Cambodia Demographic Health Survey (CDHS) 2005

236. The primary purpose of the CDHS was undertaken in 2005 to provide policymakers and planners with updated and reliable data on fertility, family planning, infant, child and maternal mortality, maternal and child health, nutrition, malaria, knowledge of HIV/AIDS, prevalence of HIV, women’s status and domestic violence. The CDHS was the first survey in Cambodia to provide population‐based prevalence estimates for HIV. Data is available down to province level and is disaggregated by age, sex and education.



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Table 29 Evaluation of Cambodia Demographic Health Survey (CDHS) 2005



The CDHS has limited usefulness in food policy decision making. It provides a detailed range of specific heath indicators for all provinces in Cambodia that can be used in analysis that feeds into decision making processes. Later surveys such as the CAS provide more up to date nutritional data

The survey is now 5 years old so the timeliness of the data is low


Limited Low Low Low

National Health Information System (NHIS)

237. The system currently covers information on routine health service activities and health problems witnessed at all health facilities in the national health care system. Its main objective is to provide the Ministry of Health and its constituent parts, including referral hospitals and health centers, with reliable and timely information on health problems and service activities for rational decision‐making to serve health management and planning needs. Each health facility sends a monthly report of all inpatient, outpatient, outreach and laboratory activities to the district, provincial and national levels.

Figure 5 Flow of data in the NHIS



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238. The data includes some which are related to food security including malnutrition, anemia and infant mortality and are available from the planning unit at the MOH in their annual report by province and operational district (one or more administration districts in and operational district) or on request by health facility in Access and Excel formats.

239. The NHIS is computerized down to the operational district level34 so data is available at this level within 2 weeks from the end of the month but at provincial and national level the data may not be available for 3 months or more. Specific data items which may be useful in the context of food security and nutrition include: Diarrhea Suspected cholera Dysentery Neo natal deaths Low birth weight Malnutrition < 5 years (weight for age)

240. Starting in late 2009 the system of village health workers and village malaria workers was expanded to cover approximately 1400 villages across Cambodia. All of these volunteers report malaria cases monthly to the operational district and many of the volunteers (those funded by the global fund) treat and report on a number of conditions related to mother and child health including diarrhea but their data is not included in the NHIS. At present there is no information system to manage and report on this data (other than for malaria) but in the future the data from these villages (which tend to be the most remote villages) could be useful.

241. Strengths of the NHIS are: National coverage Data is available at operational district level within a week or two of the end of the reporting

period and data relating to nutrition could be compared with previous periods to identify emerging trends.

242. Weaknesses of the NHIS are: Data is not available by village or commune (lowest level is health facility) Does not include data from volunteer village heath workers Does not include data from the private sector clinics Not available at national level until 2‐3 months after the end of the reporting period

Table 30 Evaluation of National Health Information System (NHIS)


Usefulness Timeliness Usefulness Timeliness NHIS data is useful to food policy decision making as it includes relevant timely information in areas such as malnutrition, anemia and infant mortality. The

Data is available at the operational district level within two weeks from the end of the month. At provincial and

The NHIS data system is useful in assessing and designing quick responses to food crisis. Data can inform on

The three month delay in data availability restricts usefulness in early warning and monitoring vulnerability and risk at provincial and national levels. The earlier

34 An operational district consists of one or more administrative districts



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Usefulness Timeliness Usefulness Timeliness information provided by the NHIS should be highly useful to health status, food use and utilization factors contained within food policy.

national levels, data may not be available for three months or more.

changing disease levels and risks. Knowledge of this information should help guide formulation of response initiatives.

availability of data at district levels suggests review of information at this administrative level could alert organizations to changes in risk profiles and vulnerabilities related to health, food use and utilization.

Good Good Good Moderate – good at district level

MOH Communicable Disease Control department (CDC) surveillance and rapid response system

243. The communicable disease control department of the MOH has responsibility for monitoring (through ongoing surveillance) and responding to disease outbreaks such as HINI, SARS, Dengue, food poisoning etc. Surveillance is done through the weekly Early Warning System (formally known as the Alert System) for notifiable epidemic diseases in Cambodia reporting system. All public health facilities are required to report each week on each of the designated conditions: AFP/Polio Acute watery diarrhea Bloody diarrhea Measles ARI / pneumonia Dengue Meningitis Acute Jaundice Diphtheria Rabies Neonatal Tetanus Unknown disease occurring in cluster (such as food poisoning)

244. The conditions related to food such as diarrhea and food poisoning could be useful indicators in an early warning system.

245. The system uses zero reporting meaning that they have to submit a report even if there are no cases. The channel of reporting is the same as for the NHIS, i.e. from health facility to district, province and finally national level. In case of outbreaks there is a requirement to contact the CDC direct by phone and there is a free contact number (115) for the public to report suspected outbreaks. The weekly paper reports are entered into a database at operational district level and then forwarded to the province and national levels. Reports can also be sent by SMS but because of the requirement to follow the reporting flow of facility, district, province it was not found to offer any meaningful advantage to the paper system and as yet it is still being evaluated.

246. Once the CDC has identified a potential outbreak or other abnormal event it will launch an immediate investigation and once an outbreak is confirmed it will take action to contain the outbreak and will issue public information messages to the public through TV, radio, CDC website, SMS and local health staff.



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247. In order to improve and coordinate communications between members of the emergency response teams on the ground and to improve the process of dissemination of information through SMS based communications the CDC has been using GeoChat (http://instedd.org/geochat) currently being developed by InStedd (through their laboratory in Phnom Penh) with the aim of coordinating disaster response teams in Cambodia and elsewhere.

Figure 6 GeoChat system for emergency co‐ordination

248. GeoChat allows users to form groups and to interact with each other in real time using SMS, email and Google Earth. CDC currently use GeoChat for communication within response teams and to send out bulk SMS to local health staff around the country. An SMS can be sent from a PC or mobile device to all the members of a group and replies from each member can be relayed to all group members

249. As the coordination and communication needs for CDM are similar to those for the CDC the system being developed by CDC and InStedd seems well suited to the needs of the CDM in terms of improving coordination and communication within response teams. The CDC’s experiences using GeoChat should be taken into consideration when considering communication options for the CDM.

Table 31 Evaluation of MOH Communicable Disease Control department (CDC) surveillance and rapid response system


Usefulness Timeliness Usefulness Timeliness Information from the CDC surveillance and rapid response system is useful to informing food policy decision making. Date from this system could be used to show changes in target populations health and disease characteristics related to food and nutrition. Food policy could

Timeliness of data for policy decision making purposes is very good. Surveillance is done through the weekly Early Warning System. All public health facilities are required to report each week on

CDC surveillance and rapid response system information is very useful in the response to potential food crisis. The system should provide rapid accurate information of disease and health profile changes in affected populations. This health related information can be combined with food intake and FSN stability information to design rapid response initiatives. Continued use of this data in

Timeliness of information of rapid response is good.



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Usefulness Timeliness Usefulness Timeliness then be enhanced to reflect changes in health patterns and profiles.

each of the designated conditions.

monitoring rapid response should inform on progress made in addressing health related challenges.

Moderate Good Good Good

Identification of Poor Households Program (ID‐Poor)

250. The Identification of Poor Households (IDPoor) is a community based information system established in 2006 by the Ministry of Planning (MOP), in order to develop, pilot and officially mandate standardized procedures for identification of poor households in rural areas, and to achieve their increasing implementation throughout Cambodia.

251. The purpose of identification of poor households is to provide regularly updated data on poor households to a wide range of government and non‐governmental partners to enable them to target their services and assistance directly to the poorest and most vulnerable, in order to help lift them out of poverty and to protect them from the impact of shocks (e.g. serious illness, crop failure) which may deepen their poverty.

252. Poor household are identified by locally based teams (commune and village level) and are issued with an ID card (valid for 3 years) complete with family photo in a seven step process:

Step 1: Establish and train the Planning and Budgeting Committee Representative Group (PBCRG) at the commune level

Step 2: Establish and train Village Representative Groups (VRGs)

Step 3: VRG compiles List of Households in the Village, conducts household interviews, considers special circumstances of households; and after a Commune Review Meeting, compiles and publicly displays the First Draft List of Poor Households in the village

Step 4: VRG conducts Village Consultation Meeting on First Draft List of Poor Households, receives villager complaints, prepares and displays Final Draft List of Poor Households, and submits the List to the Commune Council

Step 5: Commune Council reviews and approves Final List of Poor Households, sends data to Provincial Department of Planning; and distributes Equity Cards to poor households (after data entry and photography in Steps 6 and 7)

Step 6: Provincial Department of Planning enters all data and household photos into Provincial Database of Poor Households

Step 7: Photography of poor households

253. All households are assigned a score during step 3 based on their answers to a series of questions and at the end are assigned to one of three poverty categories based upon the score and any ‘special circumstances’ identified in step 3:

Poor level 1 – the poorest or destitute

Poor level 2 – next poorest or poor

Others – not poor

254. In 2007, on average, approximately 15‐16% of households fell into the Poor Level 1 category, around 16‐17% fell into the Poor Level 2 category, and around 67‐69% of households were classified as “Others”. Whilst ID poor appears to use a unique criteria for defining poor it



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appears that the total of level 1 and level 2 (approx 32%) is similar to the generally accepted figure of 30%35 used elsewhere.

255. Data about the households is entered into a database (available at national and provincial levels) and a list of the poor households is kept at village / commune level. The following data items are recorded in the database:

Table 32 List of data items in ID Poor Database

Poor Households

Data Item Description

Village code 8 digit code

Household code 3 digit code

Household member number 3 digit code

Name

Relationship to household head Head of HH / Spouse / child

Sex

Year of birth

Poverty category 1 (very poor) 2 (poor)

Non Poor Households

Village code 8 digit code

Household code 3 digit code

Household member number 3 digit code

Head of household name

Sex

Name of spouse

No of females in Household

No of males in Household

256. Currently 7109 villages in 16 provinces (10 by MOP and 6 by other partners) are covered by the program as follows:

Table 33 List of provinces covered by ID Poor Database

Province Coverage Villages (rural) Year Implementer

Banteay Meanchey 100% 534 2008 / 2009 MOP / PFD

Battambang 30% 337 2008 / 2009 URC

Kampong Cham 60% 1102 2008 / 2009 MOP

Kampong Chhnang 100% 555 2008 RHAC

Kampong Speu

Kampong Thom 100% 732 2009 MOP36

Kampot 100% 474 2009 MOP

Kandal

Koh Kong 100% 132 2009 RHAC37

Kratie 100% 249 2007 MOP

35 Cambodia Socio‐Economic Survey 2007 reported that 30.1% of Cambodians lived below the poverty line 36 Ministry of Planning

37 Reproductive Health Association of Cambodia



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Province Coverage Villages (rural) Year Implementer

Mondul Kiri 100% 89 2009 URC38

Phnom Penh

Preah Vihear

Prey Veng 25% 251 2008 MOP

Pursat 100% 496 2008 URC

Ratanak Kiri 100% 238 2009 URC

Siem Reap 100% 886 2008 / 2009 MOP

Sihanoukville 100% 94 2008 RHAC

Stung Treng 100% 125 2009 MOP

Svay Rieng 100% 684 2009 MOP

Takeo

Oddar Meanchey 100% 231 2008 MOP

Kep

Pailin

257. The program intends to complete coverage of all provinces during 2010 & 2011 as well as updating the provinces covered in earlier years (the program aims to update each province every two years).

258. The ID‐Poor can be used for calculating comparative poverty levels of villages which can be used for targeting poorer communes or villages, and the poor households within those areas. Data is available from the MOP in a number of formats including fixed reports (below), raw data in XML format and copies of the full database are also available for users to do their own searches. Reports available from the IDPoor DB include: Profile of All Household Members

259. This report presents key data on all household members of each household that was included in the List of Poor Households and that had data entered from the Questionnaire. The data provided for each household member includes Name, Relationship to the Head of Household, Sex, Year of Birth, Age, and Poverty Category. One report is provided for each village covered by the process for identification of poor households.

Summary Statistics of Poor Households

260. This report provides a summary of results of identification of poor households for all areas covered in a province in a specific Data Collection Round. It presents the following information: Total number of villages, communes and districts covered by the identification process in the

province Number and average percentage of households identified as poor in all villages, broken down

by Poverty Category. Number and average percentage of persons identified as poor in all villages, broken down by

Poverty Category.

38 University Research Co., LLC



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Number and percentage of households headed by males and females in each Poverty Category.

Poor Household List

261. This report provides basic information about all households in the List of Poor Households for a village. It shows the name and sex of the Head of Household, the name of the spouse, and the Poverty Category for each household. It also shows the number and percentage of households in Poverty Category 1 and 2, and the total number and percentage of poor households.

262. This report provides a summary of which households are included in the List of Poor Households and is an electronic version of data which already exists at the Commune and Village level on the paper form of the List of Poor Households. However, it also includes additional data on the sex of the head of household, which is not provided on the paper form of the List of Poor Households. List of Names and Photos of Poor Household Members

263. This report shows the household code, poverty category and thumbnail photos of each poor household in a village, and the key details of the household members, including name, year of birth and sex. Household Data Summary

264. This report shows some key information about an individual household, including the household code, poverty category, household photo, name of respondent, date of interview, name of interviewer, address of household, remarks, and details of each household member (household member code, name, relationship to head of household, sex, year of birth and age). Poverty Rate Comparison Report

265. This report is prepared in two formats. One report shows results by household, and one shows results by person. The Household‐Based Poverty Rate Comparison Report provides an overview of the number and percentage of Poor Level 1 and Poor Level 2 households in each village covered by the process of identification of poor households, and the total percentage of poor households in each village, and also show the total percentage of poor households in each commune.

266. As for the People‐Based Poverty Rate Comparison Report, it provides an overview of the number and percentage of Poor Level 1 and Poor Level 2 persons in each village covered by the process of identification of poor households, and the total percentage of poor persons in each village, and also show the total percentage of poor persons in each commune.

267. The ID poor database is an excellent resource for all levels of CDM as it is likely that during a food emergency, and other disasters, many interventions will be specifically targeted to poor households so being able to easily generate a list (with photos) of all poor individuals / households in a village is very useful. Alternatively the ID Poor ID card issued to each poor family can be used for identification. In addition to the list of poor the DB also has a list of all non poor households so it is possible to generate a list of households (including number of members) for all household in a village both poor and non poor.



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268. The data is available at village and commune level (paper based) but may differ slightly from the electronic version as inconsistencies in the data (such as duplicate household numbers) will be corrected during data entry. At national and province level the data is available in electronic form but as many districts do not have computers it may be necessary to provide them with a paper listing (generated by the DB).

269. Strengths of the system are: Data available at all levels from national to village level Non official villages are also included Uses village coding system based upon the census (apart from non official villages) Readily available to all interested parties Available in a number of formats Poverty estimates consistent with the Cambodia Socio‐Economic Survey (CSES) 2007

270. Weaknesses of the system are: Coverage is not nationwide although national coverage is planned in the next year Data is not geo coded (no latitude and longitude) which means it has to be merged with GIS

data in order to display the data geographically Relies on donor funds (funded till end 2011)

Table 34 Evaluation of ID Poor database


Usefulness Timeliness Usefulness Timeliness The ID‐Poor data is very useful for food policy decision making as it identifies where the poorest people in Cambodia who are most at risk of having insufficient food. Information from ID‐Poor therefore is very useful in targeting relevant food policies to vulnerable communes or villages, and the most at risk households within those areas.

The program aims to update information from each province every two years. Given the nature of the data this is sufficient for food policy purposes.

ID‐Poor data is very useful in the design of responses to food crisis. This data should allow targeting of responses. Information from the ID‐Poor system should allow response formulation processes to assess the respective risks and vulnerabilities of crisis affected populations. Knowing who is at risk and what their particular situation and vulnerabilities are should help inform response design.

The program aims to update information from each province every two years. Given the data content this is sufficient for quick response purposes.

Good Good Good Good

Commune Database (CDB)

271. The Commune Database (CDB) was started in 2002 and contains core information relating to demographic, socio‐economic and physical assets of each commune. These data are collected by Village Chiefs and Commune Clerks and compiled at the commune level. The data are used by communes for preparation of socio‐economic profiles at commune, district and provincial levels, as part of the annual planning exercises. The CDB is maintained by the Ministry of Planning with data collection taking place at the end of each year.

272. Many variables in the CDB are linked to Goals and Targets as identified in the National Strategic Development Plan, the Cambodian Millennium Development Plan and are used to track



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Cambodia’s progress towards some of Cambodia Millennium Development Goals (MDG). Data from the CDB is also used to produce the poverty index for the allocation of investment funds for communes. The CDB has two data collection instruments:

Village Data Book ‐completed by the village chiefs and containing (in 2010) 372 data items including data related to demographic composition of the village disaggregated by sex and age, health status, literacy, occupations, rice production and pricing, families vulnerable to natural disasters and environmental pollution, village assets and sources of drinking water.

Commune Data Book – completed by the commune clerks and containing (in 2010) 233 data items including data related to schools and teachers, health facilities, commodity cultivation and yields, rice milling, roads and sewage systems, community activities and sources of employment.

273. Data from the commune and village data books are entered into the commune database at provincial level and then merged into a national database. The data from the commune database is available in the following formats: Table 35 Available formats for the commune database

Level Instrument Format

National Commune DB Electronic DB

Provincial Commune DB and provincial summary

Electronic DB and provincial data summaries39 (paper & pdf)

District District Data Books and maps40

Paper and pdf

Commune Commune Data Book Paper

Village Village Data Book Paper

274. The CDB is updated annually but the district data books are only updated every 3 years therefore districts will not have access to the most up to date information (the national and provincial levels have the full commune DB and the commune and village levels have their paper data books). As the districts get computers then this will no longer be an issue as they can get access to the full electronic commune database.

275. The district data books will be produced every three years by and the Ministry of Interior's NCDD (National Committee for Sub‐National Democratic Development) which combines data from the commune database and other sources to produce a comprehensive book (100 – 150 pages per district) organized into 5 sections:

Geographical data: maps on infrastructure and administration and on land use and natural resources management. These maps are also provided in A3 format to all Districts and Khans.

District Profile: this presents wide ranging data from district and commune level, extracted from the Commune Data Base

39 Some (mostly from 2007 & 2008) provincial data summaries are available for download in EXCEL format from http://www.ncdd.gov.kh/resources/database/cdb 40 Produced every three years by Ministry of Interior's NCDD (National Committee for Sub‐National Democratic Development) using data from the commune database and other sources.



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Plans and Projects: this section presents development priorities determined by Commune and Sangkat Councils, Temporary Agreements, outputs and expenditure of major projects at Commune and District.

Services and Organizations: this section provides details on key infrastructure (roads, electricity, irrigation systems) and services in health and education at district and commune level. It also provides an inventory of resources at the District Administration, NGOs operating in the district and private sector agencies active in the district.

Poverty Data: this section provides predicted poverty rates for 2009 for all districts and communes and detailed poverty data compiled and processed by the ID Poor project for those that have been covered by this project.

276. The first district data books were produced at the end of 2008 and distributed to provinces, districts, communes and other interested parties and partners in hard copy and DVD. The district data books are also available for download41 in pdf format.

277. The major sources of the information in the 2009 District Data Books are:

The Commune Data Base information over the years 2006 to 2009 (the most recent data were collected late last 2008), as compiled by the Ministry of Planning

Detailed information directly collected from the Ministry of Health, the Ministry of Education, Youth and Sports and (for maps) the Ministry of Land Management, Urban Planning and Construction

The Project Information Database (PID) at NCDD (up‐to‐date)

The Commune Development and Planning Database (CDPD) (up to date)

The District Information System (DIS)42 (updated per Mid 2009)

Direct data collection at provincial and district level on private sector, irrigation, roads, and electricity, through provincial agencies

Medical data collected from MEDiCAM43

The ID Poor Project – for poverty data on a number of provinces and districts

NCDD’s work on predictive poverty rates

Specific projects for outputs, plans and budgets

278. The commune database and the district data books are an excellent and comprehensive source of data and an excellent resource for all levels of CDM and other partners. Many of the data items are directly related to food security and vulnerability to potential food emergencies and other disasters.

279. Strengths of the system are: Data available at all levels from national to village level Nationwide coverage

41 http://www.ncdd.gov.kh/resources/documents/district‐and‐provincial‐data‐books 42 The District Information System is a national database maintained by NCDD, recording resources, staff, revenue,

infrastructure and equipment available in the 193 Districts and Khans throughout the country. The last update took place in July 2009 43 A non‐profit and non‐partisan membership organization for NGOs active in Cambodia's health sector.



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Readily available to all interested parties Available in a number of formats Questions are revised each year (the number of questions is usually expanded) therefore it may

be possible for the NCDM to request additional indicators for future years.

280. Weaknesses of the system are: Data is not geo coded (no latitude and longitude) which means it has to be merged with GIS

data in order to display the data geographically Relies on donor funds for the production of the district data books. Does not cover unofficial villages and settlements Table 36 Evaluation of commune database


Usefulness Timeliness Usefulness Timeliness The commune database and the district data books are a useful source of data for food policy analysis and decision making as much of the CBD data is directly related to food security and vulnerability.

Timeliness of data is good with data collection taking place at the end of each year.

The commune database and the district data books are good sources of data and a resource for all levels of CDM. Much of the data is directly related to potential food emergencies and other disasters.

Timeliness of data is good with data collection taking place at the end of each year.

Good Good Good Good

2008 National Census

281. The 2008 national census data was recently published by the NIS and contains a summary of the results of the 2008 census and raw data down to village level in a number of formats and reports. The village level data is very important both for the demographic data available but also for the village codes which should be incorporated into all village based information system to ensure compatibility of data between systems. The census only includes data from officially recognized villages. Census data is available in a variety of formats from the NIS and some donors such as UNFPA:

Paper reports (and pdfs) covering the official census results (Khmer & English), Report 1 – Fertility and Mortality in Cambodia (English) and Report 2 – Spatial Distribution and Growth of Population in Cambodia

CD No. 1 – 2008 Census Table Retrieval System uses the IMPS 4.1 package, developed by the U.S. Bureau of the Census to easily select, retrieve, display, print and copy the statistical tables produced by the 2008 census. The NIS census project identified 70 key (or priority) census tables covering major topics that characterize the population: demography, literacy and education, economic characteristics, migration, disability, fertility, mortality, and household characteristics and housing amenities.

CD No. 2 – 2008 Census Community Profile System (CPS) is a tool that allows users to generate and examine profiles, graphs, and accompanying text of specified geographical areas down to village level. The Community Profile System (CPS) provides easy access to a range of demographic and socio‐economic indicators (mostly in terms of rates and ratios), together with a number of basic counts such as population by sex and five‐year age groups. These profiles can be generated for all geographical areas in the country, i.e. for all Villages,



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the smallest geographic building block in the census hierarchy, as well as for Communes, Districts, Provinces and the Country itself.

CD No. 3 – 2008 Census Redatam + SP is a software family developed by CELADE, the United Nations population division for Latin America and the Caribbean. It allows data users to access censuses and other database sources very easily, very fast, and for any geographical area. The underlying application is based on the microdata of the 2008 General Population Census of Cambodia. It allows for the retrieval of census data down to the village level.

CD No. 4 – 2008 Census Map layers and Databases is intended for data users who have access to and are proficient with GIS software packages. It consists of a series of map layers and associated databases with aggregated counts, ratios, and rates. The type of layers and the sources from which they are derived is explained in the table below:

Table 37 Source of map layers in 2008 census

No. Item Type Year Source

1 Provincial Layer polygon 2009 Geographic Department, Ministry of Land Management, Urban Planning and Construction

2 District Layer polygon 2009 Geographic Department, Ministry of Land Management, Urban Planning and Construction

3 Commune Layer polygon 2009 Geographic Department, Ministry of Land Management, Urban Planning and Construction

4 Village Layer point 2006 National Institute of Statistics, Ministry of Planning

5 Operational District (OD) point 2006 Ministry of Health

6 Referral Hospital (RH) point 2006 Ministry of Health

7 Health Center (HC) point 2006 Ministry of Health

8 School Layer point 2007 Ministry of Education, Youth and Sports

9 Water line 2009 Geographic Department, Ministry of Land Management, Urban Planning and Construction

10 Road Line 2009 Ministry of Public Work and Transport

282. The layers are provided in two different formats: (1) in TAB files for MAPINFO users, and in (2) ESRI SHAPE files for ARCVIEW or ARCINFO users.

283. The collection of CDs put out by the NIS is an excellent resource of base data for Cambodia.



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Table 38 Evaluation of 2008 National Census



National census data is very useful in food policy decision making. Census data provides a range of demographic and socio‐economic indicators that can be used in analysis that feeds into decision making processes. The national census data could be used with ID Poor data to inform decision makers on the characteristics of the population that policy is targeting.

National census data is gathered every ten years. As time passes from when the census was performed it will become less useful. The Commune database (updated annually) and IP – Poor updates its information every two years suggesting its data will be timely and more useful in policy review and enhancement.

Census data provides useful back ground information that can be used in quick response processes. Timeliness will reduce as the data becomes older and the ID‐Poor data base refreshed every two years will be more useful.

The ten year data collection cycle means information will become out of date over time.

Good Moderate Moderate Moderate

National Institute of Statistics CAMinfo database.

284. CAMInfo is Cambodia’s adaptation of the DevInfo database being used in over 80 countries around the world. It is an indicator database developed and maintained by the National Institute of Statistics (NIS), Ministry of Planning to support the statistical data requirements of policy‐makers and to facilitate the development of an effective and efficient National Statistical System in Cambodia.

285. CAMINFO consists of the following elements: Indicators: related to Cambodia Millennium Development Goals (CMDGs), National Strategic

Development Plan (NSDP), Education, Health, Cambodia Nutrition Investment Plan and others; Time Periods: 1976 to 2020; Geographic Areas: national, provincial, district and commune level; Subgroups (Sex: Male and Female; Location: Urban, Rural, Remote Area, others; Age Groups: by

months, quarter and years) Units: Number, Percent, kilometer, hours, Tone, etc, as appropriate for each indicator Sources: surveys, censuses and administrative data from the National Institute of Statistics,

Ministry of Planning (MoP), Government Line‐Ministries, UN, NGOs, etc. Metadata: for additional information on indicators such as definition, method of computation,

limitations, notes, etc.

286. CAMInfo includes data from national surveys and censuses, the commune database, and other sectoral information systems such as the Education Management Information System (EMIS), Health Information System and the Food Insecurity and Vulnerability Information Mapping System (FIVIMS).



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287. CAMInfo is available as a standalone software application and is installed from a CD obtained from the NIS. The latest version is CAMInfo 3.2 (June 2009) and contains the following data: Final results of the Cambodia Demographic and Health Survey 2005 The WFP Food Security Atlas of Cambodia version.2. The 2006 Commune Database (CDB) Level Arsenic of contamination (Tested well) 2000‐2008 Core NSDP indicators Cambodia Mine UXO Victim Information System (CMVIS) and Cambodia Road Traffic Accident

and Victim Information (RTAVIS) indicators Latest data on the CMDGs, CNIP and other sectoral plans Time‐series data for EMIS MAFF and HMIS at provincial and district level Inbuilt gallery of tables, graphs and maps covering the CMDGs, NSDP and Cambodia Nutrition

Investment Plan.

288. CAMInfo is available on the internet at http://www.devinfo.info/ and choosing the CamInfo database from the database list. There appear to be many indicators available on the online version but the interface is not user friendly making it difficult to scroll through the list of indicators and output the data in a useful format over an average to slow (by Cambodian standards) internet connection. There appears to be no way of downloading the data in bulk for further analysis making the online version of the database not particularly useful. Table 39 Evaluation of National Institute of Statistics CAMinfo database.



Usefulness on data from CAMInfo is limited for food policy decision making purposes. Date is old and the user interface is unfriendly.

Date on CAMInfo is old. Data sets found as part of this review were at least four years old.

CAMInfo data is too old and the user interface is too inefficient for use in quick responses to potential food crisis.

Low Low Low Low

Ministry of Water Resources and Meteorology (MOWRAM) Flood Warning System

289. The Ministry of Water Resources and Meteorology (MOWRAM) is responsible for monitoring rainfall, river levels and for issuing flood warnings. In this task they work closely with the Mekong river commission (MRC) in Cambodia and the other Mekong countries to monitor river levels at a number of sites.

290. In Cambodia there are 7 measuring stations at strategic points in the Mekong, Bassac and Tonle Sap rivers which monitor both river levels and rainfall. Provincial staff take readings daily from all these measuring stations and send them to MOWRAM in Phnom Penh using telephone, email, sms or fax. This data is then compiled into a daily flood forecast bulletin which is sent to various government ministries, interested agencies and the media. Four of the measuring stations are equipped to send data electronically and continuously when there is a dangerous situation that requires closer monitoring. Rainfall data is also collected from a number of rain gauges around the country and this data is used by the Departments of Meteorology in their weather forecasts.



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291. In addition to the 7 river level measuring stations there is a basic system being piloted in 14 villages in Kandal province where the Mekong River Commission (MRC) have supplied mobile phones to villagers in order to send flood forecasts and reports to the government via SMS text messages. The villagers were instructed how to read flood monitors and report the findings via SMS to the MRC which uses the data in their flood forecasts. It is planned to expand the system to cover other villages if the pilot is successful.

292. The flood forecasting system appears to be very good at issuing accurate and timely flood warnings for Cambodia’s major rivers based upon the data collected routinely by the measuring stations but MOWRAM recognize that they lack the ability to forecast flash floods which can occur anywhere in the country and cannot be predicted by the current system of measuring stations. Table 40 Evaluation of MRC Flood Warning System



Rainfall and water level information from the Meteorological department should provide a more detailed record of rainfall and water availability to inform food policy decision making. MRD flood warning data could be cross checked with this data to confirm reliability.

Timeliness is good as data is available daily.

MRC flood warning system data is potentially very useful to quick responses to potential food crisis. Data generated can immediately inform of threats to food supply from flooding. The data could also be used to inform drought related crisis. Limited ability to forecast flash floods

Timeliness is good as data is available daily or more frequently if required.

Low Good Good Good

Ministry of Agriculture and Fisheries (MAFF)

293. The Department of Planning and Statistics at MAFF is responsible for the collection and dissemination of data about the size of the crop for 12 commodities, the most important of which is rice. For rice there is a yearly meeting (normally in late November) where the figures for the wet season rice crop are collected from the provinces (dry season figures are collected earlier in the year by phone and fax). The following data items are collected by province:

Area cultivated

Area destroyed

Area replanted

Area harvested

Yield

Production.

294. A forecast of the next year’s production is then made by province based on the actual production for the current year adjusted for any local changes in the situation. The statistics unit also maintains a database based upon data obtained form the districts and provinces from the food balance sheet which indicates whether food supplies are in deficit. Data



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is entered into an access database but is currently somewhat out of date (latest data is from 2008) as there is a large backlog of data to be entered.

295. The unit provides a weekly report to the Prime Minister office which is basically an update of the current state of the rice harvest. The report is based upon data sent in weekly from each province by fax and telephone and includes the area affected and area destroyed to flooding, drought and pests. The data about crops destroyed could be very useful as an early indicator of food shortages.

Table 41 Evaluation of Ministry of Agriculture and Fisheries (MAFF) weekly rice report



The crop forecast data when compared to actual figures should help inform decision makers if expectations were met. Area, yield and production data by province should inform the analysis of policy. If the food balance sheet information data was up to date it would also be useful to policy makers.

Timeliness of the rice reports and crop forecasts is good for policy decision making. The food balance sheet data is not timely.

The rice harvest weekly report is very useful for monitoring related to quick response as is the crop forecast.

Weekly rice reports are valuable. The crop forecasts will become out of date depending on the time of year. The statistics unit database is not relevant to quick response due to its poor timeliness.

Good Good Good Good

Cambodia Agricultural Market Information Service (CAMIS)

296. The Agricultural Marketing Office (AMO), a unit within the Ministry of Agriculture, Forestry & Fisheries (MAFF), has a market information database which collects wholesale agricultural price information at least monthly (often weekly or more frequent) in more than 50 locations in the country. This price information is broadcast through local FM radio, and is accessible through the CAMIS website http://www.camis‐kh.org (via a searchable database and through monthly reports that can be downloaded from the website) and SMS‐messaging (for selected commodities). Commodities covered are grouped into a number of categories:

Table 42 Commodities covered by CAMIS

Category Description

Cereals 32 cereals and varieties of paddy and rice

Vegetables 26 Varieties of vegetables including cabbage, dried chilli, potato, lettuce etc

Fish 27 types of fish and seafood including live fish, smoked fish, frozen fish crabs and prawns

Meat Carcass, live chicken, live duck and live pig

Fruit Banana, durian, orange, pineapple, watermelon and melon

Other crops Sugar cane

297. Price information can be viewed online by choosing a commodity from the list as shown below:



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Figure 7 Example of online pricing query from CAMIS

298. For a more comprehensive view of prices the AMO publishes a monthly report which shows for each commodity at each location:

Average price for the month

Average price for the previous month

Percentage change in the last month

Price trends for 14 key commodities by month for the previous 2 years

299. For 21 commodities (mainly vegetables and not including rice) in 12 key markets traders can use coded SMS messages to send prices of a variety of commodities (but not including rice) to be stored in the database and buyers can query the database using coded SMS messages to receive quotes and contact phone numbers of traders selling a particular commodity.

300. The SMS system has been operational for more than one year and it is proposed to expand it to cover the whole country in due course. The system uses off the shelf software for the SMS gateway but required extensive inputs to develop the backend database and web interface.

301. The CAMIS website contains comprehensive market price information on a large number of commodities from locations across the whole of Cambodia and it is a recognized source of quality information as it is used to provide pricing data to the Global Information and Early Warning System on Food and Agriculture (GIEWS) maintained by FAO. Data from CAMIS is used in the (GIEWS) global website http://www.fao.org/giews/pricetool/ which provides prices for key commodities (for countries around the world (prawns, rice and soya beans from 4 provinces in the case of Cambodia).



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Figure 8 Output from the GIEWS system using data from CAMIS

302. There is a variation in the timeliness of the data in the CAMIS system. Pricing data for rice appears to be less up to date (2 ‐3 weeks old) than cabbage (1‐2 days old). This is not ideal from a food security point of view, as early warning indicator rice is obviously a more important crop than cabbage, but can probably be explained by the fact that cabbage is included in the SMS system and therefore the price is more or less monitored on a daily basis whereas rice is not.

Table 43 Evaluation of Cambodia Agricultural Market Information Service (CAMIS)



CAMIS provide very useful price information for food policy decision making. Price is an indicator on supply and demand conditions for various commodities. The data allows significant analysis to be performed between commodities and over time. The approximate one month delay in receiving some of the price information should not handicap use of the data in general food policy.

Prices are available three times per week for the SMS system. For other commodities data is available after about one month.

The usefulness of CAMIS data for quick response is limited as price information for key commodities such as rice is delayed by up to a month. Prices included within the SMS system are useful for rapid response purposes but these commodities are generally not key food crops.

Timeliness of data for quick response to food crisis is not ideal. The price of rice is a key indicator in determining the availability of food but the pricing data for rice is less up to date than some other commodities. Timeliness can be improved for quick response purposes by (i) including rice in the SMS system or (ii) selecting proxy indicators for rice that at are included in the SMS system.

Good Good Moderate Good for vegetables, moderate for rice



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Coding systems and data management.

303. The basis of most of the national data sources mentioned and the key to successfully sharing of data across systems is the use of common coding systems, most importantly the village codes. In all of the systems mentioned the village codes are made up of 8 digits. The code for Ta Nga village in Ratanakiri according to the 2008 census is 16010306 and is made up of:

Table 44 Coding system used for villages in 2008 census

Digits Level Name

16 Province Ratanakiri

01 District Andoung Meas

03 Commune Nhang

06 Village Ta Nga

304. Ideally all systems should share the same codes but often over time these codes may change for a number of reasons including:

Settlements may have their status changed as in the recent case of Poipet being reclassified as a city which results in the creation of a new district code, new commune codes and the change in a number of village codes

District boundaries may change resulting in villages being moved to another administrative district

305. There is a committee (consisting of the NIS, MOP and others) which is supposed to decide on the new codes but in practice this does not happen in time to ensure that all the different systems use the same codes which can result in inconsistencies between the different datasets. An example would be the provisional and final 2008 census results which used different codes for a number of settlements in Banteay Meanchey due to the fact that Poipet was reclassified between the publications of the two sets of results.

306. Another example where the coding systems can differ is the case of the ‘unofficial’ villages. These are settlements that are recognized locally as separate from all ‘official’ villages but are not yet recognized officially by the Ministry of Interior. Databases such as the commune database will only include the official villages whereas other databases such as IDPoor or the database used by the National Malaria centre include both official and unofficial villages. The databases that recognize unofficial villages need to create a new code for the village and there is no standard method for doing this that would ensure that the codes are consistent across the various systems.

307. These differences in some of the codes are not a major problem but need to be taken into consideration when trying to link data from a number of sources.

308. Another aspect of the various datasets is that of the datasets described only the census data appears to include the GIS coordinates of the villages in a format that would make it simple to extract and link with other datasets to map data.

309. There is some overlap between the systems in terms of basic demographics, specifically population data. A random comparison between the 2008 census and the 2008 figures in the commune DB for the district population showed some variation in the figures quoted by each system which may be explained by the different collection methods (the census counts people present on the day of the census whereas the commune database uses data from the village chief about permanent residents and is likely to exclude migrant workers).



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Table 45 Population Figures in the Commune Db (2008) and 2008 Census for Selected Districts

Province District Commune DB (2008) Census (2008) Variance (pop) Pop Families Pop Families

Kg. Thom Baray 181647 37103 167581 36930 +8.2%

Pailin Sala 30834 6205 34132 7206 ‐9.7%

Mondol Kiri Kaev Seima 17002 3726 19218 3819 ‐11.5%

Siem Reap Soutr Nikom 102515 19359 98378 20114 +4.2%

Svay Rieng Rumduol 45174 9054 46994 11684 ‐3.9%

Food Security and Nutrition Information Management Task Force

310. In July 2006, a national stakeholder workshop on FSN‐related Information Systems was organized by CARD which resulted in a proposal to establish a task force for FSN information management to be chaired by CARD, MAF and MOP. The TOR (currently in draft form) gives the task force the following main tasks:

To enhance active cooperation among the members in order to better match data user needs and to fill existing information gaps with regard to FSN (quality, frequency, disaggregating levels of FSN data). The task force will organize a FSN information users/provides forum at least once a year and establish a list of core indicators for FSN monitoring

To coordinate the development of capacities for a better conceptual understanding of the FSN situation in Cambodia, data analysis and the use of data for action in ministries and relevant institutions at national and decentralized level.

To coordinate effectively with regard to data analysis, presentation and dissemination and in this context to promote the use of already existing data base, presentation, analysis and dissemination tools in order to minimize duplications of efforts, to reduce costs and transaction costs for government and to foster the sustainability of development efforts.

To promote the use of information for the monitoring of the FSN situation in Cambodia, FSN relevant strategy/program formulation and the design and targeting of interventions.

To ensure that upcoming initiatives with regard to FSN related data management (collection, analysis, presentation and dissemination) are designed in the spirit to add value to and to complement existing systems and tools.

311. The task force will consist of 12 permanent members from key Government structures and development partners directly involved in food security and nutrition related information management in Cambodia. Other information providers and data users will be invited to meetings on an ad hoc basis and according to need.

312. The creation of this task force is a very important step in the harmonization of existing information systems and an important forum for the discussion of the need for, and nature of, any new emergency response systems.

313. The challenge facing NCDM is how to manage and organize this data in a usable format; make appropriate data available at the sub national level; and provide the staff with the appropriate data management skills required.



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APPENDIX B. INSTITUTIONS AND ORGANIZATIONS INVOLVED IN NATIONAL FOOD

SECURITY AND NUTRITION MONITORING AND EVALUATION (FSN M&E) Council for Agricultural and Rural Development (CARD)

314. CARD was established in 1998 by Royal Decree to support implementation of activities in the Government’s priority sectors of agricultural and rural development. One of CARDs goals is to ensure food security for all Cambodians at all times. Following the First National Seminar on Food Security and Nutrition held in April 1999, the Government made CARD the coordinating body for food security and nutrition activities in Cambodia. In this coordination role CARD is responsible for bringing together relevant ministries, local authorities, UN agencies and international and local organizations. CARD has a key role in facilitating and coordinating national FSN strategy44 and related M&E. To do this CARD is a core supporter and participant in the Technical Working Group on Food Security and Nutrition.

315. Key informants report that CARD’s capacity to facilitate and coordinate national food security and nutrition strategy is low. For example:

CARD requires enhanced human resource capacity to regularly bring Ministries, UN Agencies and NGOs together at a senior decision making level

CARD does not have sufficient budget to facilitate regular FSN Strategy or M&E related meetings i.e. meetings of the Information Management Task Force

316. CARD recognizes the significant challenges involved in facilitating inter‐ministerial cooperation. Within CARD, a Technical Advisor and senior staff members have been trying to address these challenges for approximately seven years. While building CARDs experience in this area the continuing challenges illustrate the level of difficulty involved.

Technical Working Group on Food Security and Nutrition

317. The Technical Working Group on Food Security and Nutrition (TWGFSN) is a formal body that meets approximately bi‐annually. The TWGFSN is co‐chaired by CARD and the Ministry of Planning (MoP); and officially co‐facilitated by WFP and FAO45. TWGFSN members are from relevant line ministries, donor agencies and NGOs. The TWGFSN is responsible for the formulation of national policies and strategies with regard to food security and nutrition in Cambodia. It will support medium‐to‐long‐term policy formulation; sector planning and activity prioritization aligned to wider policy dialogues. The TWGFSN will help identify, prioritize and fund innovative approaches and outstanding issues at the national policy level in this regard. The decision making process will also be assisted and facilitated by the TWGFSN. The key functions of the TWGFSN are: i) To coordinate and share information among government ministries, donors and other

organizations ii) To monitor and provide feedback on progress towards national strategies and policies

such as NPRS, CMDGs and the Rectangular Strategy iii) To formulate policies and strategies46.

44 CARD prepared the Strategic Framework for Food Security and Nutrition in Cambodia 2008‐2012 (SFFSN) 45 FAO reported that WFP are the main organization involved, an observation confirmed by WFP. 46 http://www.foodsecurity.gov.kh/ForumDet.aspx?IdForum=135



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318. As an example of its work the TWSFSN was consulted by CARD in the formulation of the Strategic Framework for Food Security and Nutrition in Cambodia 2008‐2012. This framework includes an M&E component which is reviewed in Section XX of this report.

319. The TWGFSN also has a forum. This is an informal body that meets regularly each month. Members meet to share information related to (i) the current food security situation and (ii) their activities regarding FSN. Food Security and Nutrition Information Management Task Force

320. The Food Security and Nutrition Information Management Task Force (IMTF) is a formally approved body with a Terms of Reference. The IMTF is new and to yet active. The intended structure of the IMFT is presented in Figure 9.

Source: ToR for "Food Security and Nutrition Information Management Task Force“ (Updated Draft 28 Sep 09) CARD.

Figure 9: Proposed Structure of Food Security and Nutrition Information Management Task Force

321. The intended activities of the IMTF related to M&E are:

organizing a FSN information users/provides forum at least once a year and establish a list of core indicators for FSN monitoring

To coordinate the development of capacities for better data analysis and the use of data for action in ministries and relevant institutions at national and decentralized level

To coordinate effective data analysis, presentation and dissemination and promote the use of already existing data base, presentation, analysis and dissemination tools

To promote the use of information for the monitoring of the FSN situation in Cambodia

322. These intended IMTF activities are critical to any vibrant national FSN M&E system. CARD reports that key challenges in getting the TWGFSN and IMTF to function are in encouraging inter ministerial cooperation. UNICEF report that initial progress was made in bringing Ministries together as part of the IMTF when sitting allowances could be paid. When these allowances were removed Ministerial representatives stopped attending planned events. UNICEF further reports that payments are being explored for reports produced by the IMTF. This is seen as a potential way of bringing stakeholders together to work as part of the IMTF. It is also recognized that



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achieving coordination and cooperation between the various UN Agencies involved in FNS can be challenging. To address this issue the MDG Achievement Fund has a condition that the relevant UN Agencies must work together.

323. CARD initially wanted the IMTF to collect all information necessary for an early warning system. Such a system was costed but not funded. Now the intention is to use existing data under a system supported by the MDG Achievement Fund. A consortium of UN agencies is responsible for this fund (see section of UNICEF for further information). WFP

324. WFP is a key organization involved, among other things, in FSN monitoring and evaluation. It is involved in many of the FSN forums, task forces and working groups present in Cambodia. WFP produces a range of information of significant interest to FSN monitoring. Much of this data is either produced infrequently47 or for internal use only.

325. WFP produce an Integrated Food Security Phase Classification (IPC) in Cambodia. The IPC is a set of tools for guiding and communicating food security Situation Analysis. The last IPC was performed in 2007 relying on data sets produced between 2002 and 2005. WFP is currently thinking of repeating the IPC at the end of 2010 with FAO, World Bank and CARD.

326. In future WFP intend to perform regular Mid‐upper Arm Circumference (MUAC) assessments on children under five. WFP intend to start regular measurement of this variable in two provinces this year (2010).

327. WFP is piloting collection of rice price and wage information. This data collection covers all of Cambodia based from offices in Kampong Cham, Siem Reap and Kampong Speu. Each month daily wage rates are collected for agricultural and construction workers along with retail rice prices. WFP intend to negotiate with CAMIS for the collection of retail prices (CAMIS currently collects wholesale prices). If the pilot is successful WFP may be willing to make this data publicly available.

328. WFP perform a household food security survey every three months. This survey is only performed in WFP project areas and is an internal document48. These surveys contain a food consumption score (assessing food access) and a coping strategy index. These surveys provide WFP with good quality FSN information but only in the areas where they work. FAO

329. FAO National Office does not have an active role in national M&E related to FSN. They are also not active in national early warning systems. UNICEF is encouraging FAO’s regional Bangkok office to become more involved in the Cambodian FSN M&E system49.

330. At a global level FAO produce a website called Linking Information and Decision Making to Improve Food Security (http://www.foodsec.org/). This quarterly bulletin covers Cambodia and is funded by the EU. The programme is entering a new phase and the website is in the process of being re‐designed.

47 For example the Integrated Food Security Phase Classification (IPC) is produced at infrequent intervals. 48 It is unknown why WFP does not share this information. This issue should be addressed in later parts of this study. 49 Bruce Issacson is the FAO Regional Representative involved. E‐mail: [email protected]



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Ministry of Agriculture

331. The Ministry of Agriculture, Forestry & Fisheries (MAFF) produces significant information for FSN M&E purposes, most notably weekly crop production estimates and CAMIS. Interviewees consulted as part of this study felt the CARD is responsible for FSN M&E.

332. MAFF has good internal M&E capacity especially at national level. The MAFF Planning Department M&E is currently focused on establishing a national M&E system for agriculture and water combining government with non government project based information. Key informants at the MAFF feel there is good M&E human resource capacity in Cambodia. Potential for improvement is seen in:

(i) the organization and linkage of separate M&E information and systems (ii) use of participatory tools (PRA / PLA tools) (iii) analysis of data to determine if objectives are being reached

333. It is suggested that some within MAFF see CARD as a potential competitor for both government and donor funds. This feeling of competition challenges collaboration in a national FSN M&E system. UNICEF

334. UNICEF is part of a coalition of UN Agencies (WFP, FAO, ILO, WHO and UNESCO) involved with the MDG Achievement Fund. This coalition is funded by the Spanish Government. There is no technical lead agency but UNICEF has the largest budgetary allocation50. The Fund is planned for three years from January 2010 to December 2012. It is intended that the MDG Achievement Fund will work with the Food Security and Nutrition Information Management Task Force. This initiative plans to use information from the National Institute of Statistics to generate regular FSN reports including Early Warning information that will be disseminated through the FSNIS website. It is intended that information presented is based on the Integrated Food Security Phase Classification (IPC). The project is intended to encourage the UN organizations involved to work together, something that has not been easy to achieve in the past. The approach currently planned by UNICEF as part of the MDG Achievement Fund is to:

(i) Map current actors in FSN and their planned actions, roles and responsibilities (ii) Determine thresholds they use to determine implementation of these actions (iii) Determine what indicators should be collected on a quarterly basis to inform if

thresholds have been met or exceeded

335. The MDG Achievement Fund is just starting. UNICEF, WFP and FAO Bangkok have held initial discussions discussing the approach to take. UNICEF has begun a preliminary mapping exercise51 and is considering hiring a consultant to continue the work in mid 2010. World Bank

336. The World Bank funded a Comprehensive Post Disaster Needs Assessment for the 2009 Ketsana Typhoon produced with NCDM. NCDM has also presented a proposal to the World Bank that includes early warning system information. This information is focused on water information from Ministry of Water Resources and Meteorology (MoWRAM) and Mekong River Commission (MRC).

50 Key contact is Joel Conkle, e‐mail: [email protected] Tel: 012 993884 51Initial work see: http://docs.google.com/Doc?docid=0AaPg_916KsFEZHpoOWNxa181Z3J3cWN3Z2o&hl=en



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USAID

337. WFP report USAID interest in funding a form of food security monitoring system. Initial indications suggest this could be an equivalent of the FEWS NET approach. This has not yet been confirmed by meetings with USAID. This donor is also developing a large scale project called Helping Address Rural Vulnerabilities and Ecosystem Stability (HARVEST). The HARVEST program will increase food availability and access by bolstering productivity of agriculture, fisheries and forestry; strengthen value chains; and create private‐sector led rural employment, in addition to addressing climate change issues that affect ecosystems in Cambodia.



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APPENDIX C. ASSESSMENT OF SFFSN OVERALL INDICATORS

Usefulness

SFFSN Overall Outcome Indicators Data Availability Food Policy Decision

Making Quick Response to Potential

Food Crisis

Goal: Poor and food‐insecure Cambodians, by 2012, have substantially improved physical and economic access to sufficient, safe, and nutritious food, at all times, to meet their dietary needs and food preferences for an active and healthy life.

CMDG 1.6 Stunted (height for age < ‐ 2SD children under 5 years of age) (%)

Anthropometric Survey 2008 Good Moderate

CMDG 1.4 Underweight (weight for age < ‐2SD children under 5 years of age) (%)

Data is collected monthly by the Health Information System. This system collects a number from public health centres. As private health centres are not recorded a % figure is not possible.

Good Good

CMDG 1.5 Proportion of population below the food poverty line

The Cambodian Poverty Profile MoP 2004 Table 10.2: Changes in Poverty Rates in Cambodia, 1993/94 and 2004 gives the data required. This data was based on the 2004 CSES. No similar source data was found in the 2007 CSES. The Cambodian Human Development Report (CHDR) (MoP 2007) gives the proportion of people living below the Poverty Line in 2003‐04 as 34.68 percent.

Good Moderate

CMDG 1.7 Wasted (weight for height < ‐2SD) children under five years of age) (%)

Anthropometric Survey 2008 Good Moderate

CMDG 1.8 Households using iodised salt (%) CSES 2007 Health Report Section C Question Q1

Good Low



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CMDG 4.4 Children 6‐59 months receiving Vitamin A capsules in the last six months %)

CSES 2007 Health Report see Table 15 and Annex 6 for Children less than 6 yrs old plus

Good Moderate

CMDG 4.6 Infants exclusively breast fed up to 6 months of age (%)

CSES 2007 Health Report Section 14 and Table 13. Asks for Children up to 2 yrs old

Good Low

CMDG 5.7 Women, 15‐49 yrs, with BMI<18.5kg/(metres squared) (%)

Anthropometric Survey 2008 Table 2‐4 Good Moderate

CMDG 5.8 Women, 15‐49 yrs., with iron deficiency anaemia (%)

CSES 2007 Health Report Section 14 asks household head for five most important illnesses in the last four weeks ‐ not specific to this age group of women. Anthropometric Survey 2008 covers iron in women see Table 5‐2 Maternal health services

Good Low

NNP: Iron deficiency anaemia prevalence (% of children 6‐59 months) *

Cambodian Demographic and Health Survey 2005. Table 15.7 Prevalence of anaemia in children

Good Moderate

SFFSN Objective 1. Food‐insecure households increase food availability from their own agriculture and livestock production and from common property forests and fisheries.

NSDP Paddy yield per hectare (tonnes) Crop yield is available from MAFF Moderate Moderate

NSDP Land Reforms: Land Titles to farmers ‐ % of Total agri. Land

No source found. No land title information in Commune DB. Village Databook Question 63 is 'Number of families who do not own any rice land?'

Low Low



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NSDP Forest Cover ‐ % of total area

MAFF website contains information on forestry production and the total area of reforestation52 Moderate Low

NSDP Area affected cleared of mines and UXOs (%)

CMAC presents data on the land area they have cleared of mines53. This information does not include other mine clearance organisations i.e. Halo Trust. No information of clearance could be found for this organisation.

Moderate Low

Cam Info % of rural households with no agricultural land

Commune DB. Village Databook Question 63 is 'Number of families who do not own any rice land?'

Moderate Low

CMDG 7.6 Fishing lots released to local communities (%)

Commune DB contains information on number of families fishing. MAFF produces fish production information.54 Further information may be available at http://www.maff.gov.kh/eng/e‐library/e‐fishlibrary.html although could not be accessed at the time of this study. Moderate Low

CMDG 7.7 Number of community‐based fisheries

Commune DB contains information on number of families fishing. MAFF produces fish production information.55 Further information may be available at http://www.maff.gov.kh/eng/e‐library/e‐fishlibrary.html although could not be accessed at the time of this study. Moderate Low

CMDG 7.8 Surface of fish sanctuaries ‐ Commune DB contains information on Moderate Low

52 http://www.maff.gov.kh/eng/statistics/forestry.html#a4 53 http://www.camnet.com.kh/cmac/Achievements.htm 54 http://www.maff.gov.kh/eng/statistics/fishstat.html#a1 55 http://www.maff.gov.kh/eng/statistics/fishstat.html#a1



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thousand hectares number of families fishing. MAFF produces fish production information.56 Further information may be available at http://www.maff.gov.kh/eng/e‐library/e‐fishlibrary.html although could not be accessed at the time of this study.

SFFSN Objective 2. Food‐insecure households increase their food access by increasing household employment and incomes to buy foods.

NSDP Poverty levels % of population

World Bank has a 'Poverty headcount ratio at national poverty line (% of population)' but no information was available for this indicator. Poverty Lines, rates and numbers are given in the Poverty Profile 2004, Section 6. This data is based on the CSES 2003/04 as is data presented in the CHDR 2007. No similar information could be found in the CSES 2007. The NIS website says that ‘since 2007 NIS conducts the CSES annually’57. However poverty data from surveys performed since 2004 has not been found as part of this study.

Good Moderate

NSDP Poverty levels % rural population

World Bank has a 'Poverty headcount ratio at national poverty line (% of population)' but no information was available for this indicator. Rural poverty rates and numbers

Good Moderate

56 http://www.maff.gov.kh/eng/statistics/fishstat.html#a1 57 http://www.nis.gov.kh/index.php/statistics/surveys/cses/about‐cses



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are given in the Poverty Profile 2004, Section 6. This data is based on the CSES 2003/04. No similar information could be found in the CSES 2007.

NSDP People below food poverty line %

World Bank has a 'Poverty headcount ratio at national poverty line (% of population)' but no information was available for this indicator. The Poverty Profile 2004 provides Poverty Rates by Regions, Table 6.2

Good Moderate

CMDG 1.2 Share of poorest quintile in national consumption (%)

The Cambodian Poverty Profile MoP 2004 gives the Distribution of Consumption by Per Capita Consumption Quintiles (Table 9.2)

Good Moderate

NSDP Female share of wage employment ‐ agriculture, industry, services (%)

CSES 2007 Labour Force Table 4. Population and Labour Force, by sex and geographical domain, 2007. Percent CDRI Cambodia Development Review Volume 13, Issue 3 July‐September 2009 gives Table 1: Average Real Daily Earnings (in riels at November 2000 prices) that includes waitresses and garment workers and Table 8. Real Average Daily Earnings of Vulnerable Workers (at constant November 2000 prices)

Moderate Low

NSDP Rural Roads rehabilitated – kms Ministry of Rural Development Web site has limited English Translation58. Ministry of Transport Achievement Report is in Khmer59 Moderate Low

NSDP Annual GDP Growth at constant prices (%)

Ministry of Economy and Finance. Monthly Bulletin of Statistics. Table of Main Economic Indicators includes Real GDP

Moderate Moderate

58 http://www.mop.gov.kh/Situationandpolicyanalysis/CHDR/tabid/193/Default.aspx 59 http://www.mpwt.gov.kh/detail_eng/achievements.html



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Growth (Constant Price 1993) (%)

NSDP Per Capita GDP at constant prices (1,000 riels)

Ministry of Economy and Finance. Monthly Bulletin of Statistics. Table of Main Economic Indicators includes Real GDP per capita Growth (%)World Bank has a 'GNI per capita, Atlas method (current US$)' and a 'GNI per capita, PPP (current international $)' indicator

Good Moderate

NSDP Rate of Inflation (%)

Ministry of Economy and Finance. Monthly Bulletin of Statistics. Table of Main Economic Indicators includes Inflation (% increase, YoY) and Inflation (% increase, Year Average) National Bank of Cambodia Annual Report 2008 Table 2: Liquidity Components & Inflation gives the Inflation rate. World Bank has an 'Inflation, GDP deflator (annual %)' indicator

Good Good

SFFSN Objective 3. Food‐insecure households improve their food use and utilisation, as a means to reduce malnutrition, morbidity and mortality, particularly among women and children.

NSDP Infant Mortality Rate per 1,000 live births

The CDHS 2005 Table 11 gives the Number of deaths (not including accidents) among infant and young children born since January 200260 and lists injury and death in Moderate Low

60 http://www.nis.gov.kh/index.php/statistics/surveys/cdhs2005/50



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an accident by type of accident for 0 to 9 year olds.61 NHIS counts number of births and still births by health facility. This does not include home births. CAMinfo62 to has a ‘Child mortality rate Deaths per 1,000 live births’ indicator with the source given as the CDHS 2005. Review of the online CDHS 2005 could not find this information.

NSDP < 5 Mortality Rate per 1,000 live births

The CDHS 2005 Table 11 gives the Number of deaths (not including accidents) among infant and young children born since January 200263 and lists injury and death in an accident by type of accident for 0 to 9 year olds.64 Not found in CSES 2007. NHIS counts number of deaths at hospitals. Moderate Good

NSDP Maternal Mortality Ratio per 100,000 live births

Not found in CDHS 200565 or the CSES 2007. NHIS counts mortality at the health facility only. Moderate Low

NSDP Births attended by skilled health personnel (%)

CSES 2007 Health Section 10 Low Low

NSDP Net Enrolment: Lower Sec. Schools ‐ Girls (%)

CSES 2007 Education Table 9 gives Persons 5–24 years of age who are currently attending school by level and sex. Low Low

CMDG 5.5 Pregnant women with 2 or more ANC consultations with skilled health personnel (%) (Public Sector only)

CDHS provides Table 13.2 Number of antenatal care visits and timing of first visit. NHIC probably give number of ANC Low

61 http://www.nis.gov.kh/index.php/statistics/surveys/cdhs2005/40 62 http://www.devinfo.info/ 63 http://www.nis.gov.kh/index.php/statistics/surveys/cdhs2005/50 64 http://www.nis.gov.kh/index.php/statistics/surveys/cdhs2005/40 65 http://www.nis.gov.kh/index.php/statistics/surveys/cdhs2005



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consultations but not per person.

CMDG 5.6 Pregnant women with anaemia (%)

CDHS 2005 gives Table 15.12 Prevalence of anaemia in women. This table includes pregnant women. CSES 2007 Health Section 14 asks for cases on Anaemia. This is not related to pregnancy. Moderate Moderate

NSDP Safe drinking water access (% rural population)

CSES 2007 Housing Section 3.4 Drinking Water gives a definition and information on access to drinking water. Analysis of % population is possible. Moderate Low

NSDP Sanitation access (% rural population)

CSES 2007 Housing Section 3.5 Sanitation facilities clarifies meaning of sanitation and provides useful data. Moderate Low

SFSN Objective 4. Food‐insecure households increase their capacities to cope with risks through reducing vulnerability to shocks and thereby increase the stability of food supply.

Number of people affected by flood requiring food assistance Key Part of Initial Disaster Assessment Moderate Good

Number of people affected by drought requiring food assistance Key Part of Initial Disaster Assessment Moderate Good

NSDP Irrigated area – including supplemental irrigation (% of rice area)

Commune Database Question 263 asks the Total area of irrigation rice land area at the commune level. Low Low

SFSN Objective 5. The institutional and policy environment for achieving improved food security and nutrition in Cambodia is enhanced.



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Task force on FSN information management is operational and various FSN information systems are more integrated and work efficiently by 2012.

Key indicator to be developed to define and measure terms i.e. ‘operational’ and ‘integrated’.

Low Low

SFFSN is increasingly used as a reference framework for this cross‐cutting issue by relevant sector ministries and TWGs by 2012.

Key indicator to be developed to define and measure terms.

Low Low

Increased coordination at provincial level and mainstream FSN in the decentralised planning process by 2012

Key indicator to be developed to define and measure terms.

Low Low




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APPENDIX D. REPORT OF STUDY TOUR TO BANGLADESH AND VIETNAM Rationale

338. Cambodia lacks an effective preparedness and response system for food emergencies, food reserves management, and is at the beginning stages of experience with food safety nets (e.g. food for work and cash for work). A study tour of key staff involved in disaster management and food emergency could contribute to improve capacity and learning from the lessons of other countries. Two such countries are proposed for the Study Tour: Bangladesh and Viet Nam. Bangladesh has tremendous experience in food security and food emergency, is familiar with risks of flood and drought, has long‐term experience with food reserves, and has a well structured system of government agencies, NGOs and private sector associations involved in food emergency and disaster management. Viet Nam shares with Cambodia an agricultural system capable of generating exportable surplus. Differently from Cambodia, Viet Nam is much more vulnerable to natural disasters. At the same time, Viet Nam has made considerable progress in reducing poverty and meeting the challenges of food insecurity, including food emergency situation. The response to crisis and disasters is well managed by coordination bodies that include government agencies, the military, and mass organizations. The two models of Bangladesh and Viet Nam could provide useful and alternative options for Cambodia. Objectives

1. To learn about the experience of Bangladesh and Viet Nam with preparedness, response, and food policy

2. Learn about operational aspects of food reserves 3. Learn about capacity strengthening activities 4. Roles of public, NGO, civil society, and private sector

Organization

339. Preparation and logistics. During the period December 2009 and February 2010 the Consultant’s Team in collaboration with the Project Director and his team met several times to discuss about the study tour organizations, the participants, the organizations to meet in Bangladesh and Viet Nam, and the logistics details. Official letters were sent to Bangladesh and Viet Nam and confirmation of meetings with the Cambodian delegation were obtained. Table 50 indicates the participants to the Study Tours.

340. Training and Briefing Notes. Two weeks prior to departure, the Consultant’s Team met with the members of the Delegation and provided training to prepare for the incoming study tour. The training was held at the premises of the CPMU. Before departure, the participants were given Briefing Notes to orient them about the visit66.

341. Visit. The visits took place during 21 February and 28 February in Bangladesh and between 2 March and 8 March in Viet Nam. Local facilitators in Bangladesh and Viet Nam were recruited to assist the delegation during the visits. The visit included a combination of meetings with key

66 The Briefing Notes were distributed to participants. The files containing the Briefing Notes are included in the CD of documents submitted with the Midterm Report.



123

organizations (see Table 46, Table 47, Table 48, and Table 49) and field visits. Field visits in Bangladesh occurred over three days and in Viet Nam over two days.

342. Report. Participants were requested to write a report about the study tour. The reports of the participants have been put together by the Consultant’s Team in a book available to ADB and PCMU. The Consultant’s Team prepared a summary of the reports presented below.

343. Presentation at Workshop. The participants were also requested to discuss about the lesssons learned in the study tour with their respective organizations. In addition, a presentation by one of the participants, namely HE Sar Chamrong, was given to the Food Reserves Workshop on 1 April 2010. Lessons Learned 1. Institutional structure. Both Bangladesh and Viet Nam seem to have a well organized

institutional structure for disaster management, risk reduction, and food reserves. In

Bangladesh, there is a Ministry of Food and Disaster Management that covers all the aspects

of food policy, programs, food reserves, and disaster management and risk reduction. Under

the Ministry of Food and Disaster Management, there are key agencies, such as the

Department of Food (responsible for food reserves, procurement and public distribution),

the Department of Relief and Rehabilitation and the Disaster Management Bureau. They

seem to be well organized, staffed, and endowed with resources. In Viet Nam, food reserves

are kept by the General Department of State Reserves under the Ministry of Finance.

Disaster Management and risk reduction is taken care by the Department of Dyke

Management and Flood Control.

2. Preparedness. In both countries there are comprehensive strategies and plans for

Emergency and Disaster Preparation and Response. Different organizations at the national

and local levels are given responsibilities for preparation and response to disaster.

3. Role of NGOs. In Bangladesh, the delegation was impressed by the key role and impact of

NGOs. The delegation had the opportunity of spending one full day visiting BRAC’s various

programs related to agriculture and rural development related to food. BRAC with an annual

budget of over $700 million is allegedly the largest NGOs in the world of development. BRAC

and other NGOs collaborate with government in the implementation of programs such as

safety nets. In Viet Nam, NGOs are not very strong, but there are mass organizations (eg

Women Union and Youth Union) that are mobilized during disaster and help to alleviate the

stress of vulnerable people during emergencies.

4. Information and early warning system. Both Bangladesh and Viet Nam have strong

information and early warning systems that are essential for preparedness to disaster and

food emergencies. In Bangladesh there a unit at the Ministry of Food, called Food Policy

Monitoring Unit that is providing continuous monitoring and analysis of food markets in

Bangladesh and worldwide to improve the effectiveness of different food programs.

5. Irrigation and Water Control Systems. Both Bangladesh and Viet Nam have good irrigation

systems that allow 2‐3 crops per year and thus a continuous flow of food throughout the



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year, making the lean season shorter than in Cambodia. In Bangladesh, the rice production

during the dry season (Boro crop) is even higher than during the rainy season when

traditionally most of food production was undertaken. Additionally both countries have good

flood controls system of dykes. Dykes are used also as rural roads. Dykes are used in

Bangladesh to prevent major flooding from the huge rivers of Meghna and Yamuna. In Viet

Nam several dykes prevent intrusion of water from the sea, particularly in the Central Coast.

The team had the opportunities to visit these major dykes in both countries.

6. Disaster response. Disaster response is considerably improved by a system of regulations

and institutions that seem effective in coordinating different agencies, particularly at the

local level (Communes and Districts). A slogan in Viet Nam stresses the need of different

things to be in place for effective response: order in place, all forces in place, all material in

places, and equipment and transportation in place.

7. Storage. Bangladesh has an elaborate system of warehouses and silos devoted to keep grains

(rice and wheat) for coping with emergencies, relief and rehabilitation, and safety nets. A

network of storage facilities of total capacity of 2 million tonnes is distributed all over the

country. The system includes 4 big silos (capacity 200,000 tonnes) and over 600 warehouses

that are present up to the sub‐district level (sub‐district is the equivalent in Cambodia of a

group of communes). All the warehouses and silos are located near a major road, a sea port,

or a railway to allow for more efficient logistics.

8. Safety shelters. In both countries, the government provides for safety shelters in those areas

mostly affected by natural disasters. The shelters are equipped with generators, toilets, and

drinkable water tanks.

9. Hydro and agro‐meteorological stations are well equipped and distributed all over the

countries. They strictly follows the protocols of World Meteorological Organization (WMO)

and their data are promptly available to all agencies through a variety of communication

channels including TV, radio, internet, press.

10. Price stabilization. Both countries engage in rice price stabilization. The methods are

however different. In Bangladesh price stabilization is undertaken through open market

operations (procurement and offtakes) using food reserves and public stock management. In

Viet Nam, the major tool to stabilize price is through export interventions (restricting exports

when prices are too high and stimulating exports when prices are too low).

11. Seed reserves. Viet Nam seems to have well kept public storage facilities for seed. This is to

ensure both a short term response to crop damages and to keep germplasm banks.

12. Search and rescue. In both countries the military provide excellent services in search and

rescue operations.

13. Coordination of disasters. In both countries coordination during disasters seem to be

effective. Coordination in Bangladesh is led by the Ministry of Food and Disaster

Management. Coordination with other agencies including government, NGOs, and

international agencies seem to be running well. Standard Operation Manuals for disaster

management have been established since the early 1990 and a copy of the manual has been

provided to the Delegation.



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14. Damage assessment. This is crucial to have effective emergency and disaster response the

rehabilitation. A well trained staff in both countries seems to be available to carry out such

assessment quickly and reliably.

15. Opportunity of trade relations with Bangladesh. During the visit, the delegation met with

the Minister of Food and Disaster Management. The Minister was interested in the fact that

Cambodia has a considerable rice surplus but this surplus is mostly exported as paddy. He

suggested that some relations between Cambodia and Bangladesh should be established for

promoting food trade among the two countries, with Cambodia being the exporter and

Bangladesh the importer.

16. Parboiled rice. During the visit to Bangladesh, for the first time the delegation had the

opportunity of learning and seeing how parboiled rice is made. This could be a business

opportunity for rice milling sector in Cambodia. The Delegation also met with representative

of the Rice Miller Association in Dhaka and the private sector would like to further pursue

relations with Cambodia, perhaps by providing some technical assistance in rice milling.

17. Safety Nets. In Bangladesh, the delegation met with two large and reputed NGOs, BRAC and

TMSS. Both have over 30 years experience in safety nets, food distribution, poverty

alleviation programs. BRAC has also undertaken similar programs in a number of countries in

Asia and Africa. Both NGOs expressed their interest in working in Cambodia in case there is a

an interest in Cambodia for this type of work.

Table 46 Key Organizations met in Bangladesh

Acronym Organization Website

MOFDM Ministry of Food and Disaster Management (MOFDM)

http://www.mofdm.gov.bd/

DMB Disaster Management Bureau (DMB) http://www.dmb.gov.bd/

DRR Directorate of Relief and Rehabilitation (DRR) http://www.drr.gov.bd/

DGF Directorate General of Food (DGF) http://www.dgfood.gov.bd/

FPMU Food Policy Monitoring Unit (FPMU) http://www.nfpcsp.org/about%20FPMU.htm

NFPCSP National Food Policy Capacity Strengthening Program (NFPCSP)

http://www.nfpcsp.org/

BRAC BRAC http://www.brac.net/index.php

BIDS Bangladesh Institute of Development Studies (BIDS)

http://bids.org.bd/bids‐bd/index.html

WFPBD World Food Programme – Bangladesh (WFPBD)

http://www.wfp.org/countries/Bangladesh



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Table 47 Key Organizations met in Viet Nam

Acronym Organization Website

GDFR General Department of Food Reserves http://www.gdsr.gov.vn/web/guest

/home

DDMFC Department of Dyke Management and

Flood Control

http://www.ccfsc.org.vn/ccfsc/

CAH Centre of Agricultural Hydrology http://www.imh.ac.vn

NHMSV National Hydro‐Meteorological Service

of Vietnam

http://www.kttv.gov.vn



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Table 48 Program of Bangladesh Study Tour Date Time Events Name Remarks

22nd Feb’10

9.30am

9.40am

9.50am

10.10am

10.25

10.40am 11.10

Welcome address Bangladesh Basic facts Overview of Food security in Bangladesh and role of NFPCSP Addressing food security: Role of MOFDM and FPMU Presentation on food security and Rice Economy in Cambodia Open Discussion Tea

Mirza Fazlul Karim Mr. Amdadul Haque Dr.Ciro Fiorillo Mr. Ruhul Amin Talukder Dr. Francesco Goletti By all participants

Director General, FPMUResearch Director Chief Technical Adviser, NFPCSP Research Director Team leader Emergency Food Assistance Project, Cambodia

22nd Feb’10

11.30am Over all activities of Food Directorate in relation to Food Management and Food Security

Mr. Pius Costa Director General, Directorate of Food (DG Food will host Lunch)

22nd Feb’10

15.00pm Presentation on activities of DRR and DMB

Mr. Md. Zahirul Haque

Mr.Md Ahsan Zakir

Director General,Directorate of Relief & Rehabilitation DirectorGeneral, Disaster Management Bureau

23rd Feb’10

9.30am Meeting With Minister of Food and Disaster Management

Dr. Abdur Razzaque

23rd Feb’10

12.00am Presentation on WFP activities on food security in Bangladesh

Mr. John Aylieff Country Director,WFP (Lunch at WFP)

23rd Feb’10

14.30pm Presentation on BRAC activities in Bangladesh

Presentation by Dr.Manoranjan K Mondal

Agriculture,food and Climate Change

24th Feb’10

7.30am Start for Sirajgong,See the Hard point Erosion proctecting activities.

Meeting with WDB officials.(11.0AM)

Mr. Raihanul Karim DC, Food will Co ordinate

25th Feb’10

7.30am Start for Santahar Silo See the food security stock at SILO and CSD

Md. Anower Hossain DC ,Food Bogra will arrange the visit

25th Feb’10

10.30am Start for Nowgoan See the Disaster Mitigation Program of TMSS at Santahar centre

Dr. Hosneara Begum, MD, TMSS will Chalk out the programme



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Date Time Events Name Remarks

25th Feb’10

3.30pm Start for Dhaka Lunch at Nowgoan

26th Feb’10

8.30am

10.00am

Start for Savar

Visit Mushroom project

See the National Monument of Martyrs of Bangladesh. Mr.Saleh Ahmed

Shopping and free time in the after noon. Project Director

27th Feb’10

7.30 Start for Gazipur Visit a BRAC primary school,Agri Research centre, Diary and Food project,Seed Processing centre ,Poultry Feed Mill,Credit disbursement at farmers level

Lunch at BRAC BCDM,Rajendrapur Start for Dhaka at about 3.30pm

28th Feb’10

Morning Leave Dhaka



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Table 49 Program of Viet Nam Study Tour


02nd 19:20 Arrive at Noibai airport Van and Chung welcome at the airport

Army Hotel (33A, Pham Ngu Lao)

03rd Mar’10 (Hanoi) Wed

9:00 9:10 10:00‐11:00 11:30‐12:30

Welcome address Overview Introduction of Vietnam Reserve System (talk face by face) Discussion and Question Lunch at Neway coffee and restaurant, opposite to the hotel

Mr . Duong Thanh Trung Mr. Duong Thanh Trung All participants

Deputy Director General, GDSR Add: No 343, Doi Can Street, Ba Đinh District, Ha Noi City. Start at 8:15 at the hotel.

14:00‐14:30 14:30‐16:00 16:30‐18:30

Introduction of National Hydro‐Meteorological System in Vietnam Strengthen Information System for The Cambodian Hydro‐Meteorological Government (project) Discussion Bat Trang Ceramic Village or Van Phuc Silk Village

Mr. Tran Van Sap Dr. Nguyen Dai Khanh/Nguyen Dinh Luong

Deputy Director General National Hydro‐Meteorological Service of Vietnam Director of Science Technology and International Cooperation Dept. Add :No. 4 Dang Thai Than Street, Ha Noi. Near the hotel, could take a walk. Start at 16:10 at the hotel.

04th Mar’10 (Hanoi) Thu

9:10.00 10‐11:00 11:30‐12:30

Disaster Management in Vietnam Discussion and Question Lunch at Giang Vo (Anh Vu fish restaurant)

Mr. Bui Quang Huy All participants

Deputy Director‐Disaster Management Centre. Department of Dyke Management and Flood Control Add: No 2 Ngoc Ha, Ba Dinh, Hanoi. Start at 8:30 at the hotel.

14:00‐16:00

Introduction of Selected Agricultural Meteorology Research Results

Dr. Duong Van Kham

Director‐ Centre of Agricultural Meteorology (23/62 Nguyen Chi Thanh Street, Dong Da District, Ha Noi)



130


16:30‐17:30 18:00‐20:00

Van Mieu Temple Social Event

Around 30‐35 participants

First University in Vietnam Army Hotel (33A, Pham Ngu Lao)

05th Mar’10 (Hanoi) Fri

8:30‐9:00 9:30‐11:00 11:30‐12.30 : 13:30‐15:30

Meeting with Director Board of NamDinh Field trips at sea dyke system in Giao Thuy district Lunch at Hai Hau Irrigation and water system at Hai Hau district, then back to the hotel.

Mr. Le Xuan Thuy

Director of Department of Agriculture and rural Development of Nam Dinh Province (Số 250 – Hung Vuong Street ‐ Nam Đinh city) Start at 6:30 at the hotel.

06th Mar’10 (Danang) Sat

Flight 6:20‐7:30

Leave Hanoi to Danang (5:15 at the airport). Leave the hotel at 4:15.

9:00‐10:00

Presentation of Disaster Management and Food Reserve in Danang

Mr. Tran Van Hao‐Director

DARD of Da Nang (140 Nguyen Thi Minh Khai, Hai Chau district –Da Nang city). From the airport, go directly to the DARD. If time allowed, drink coffee.

10:00‐11:00 11:30‐12:30

Discussion and Question Lunch at seafood restaurant in Danang

All participants DARD of Danang After lunch, check in hotel (Saigontourane Hotel)‐ 05 Dong Da Str., Hai Chau Dist., Danang City

14:00‐15:00

Disaster management (Ngu Hanh Son) Food reserve (Hoa Cuong Store, Hoa Vang District)

Field visits

07th Mar’10 (Danang) Sun

7.30:00‐10:30

Bana beauty Spot

(7:15) at hotel and check out)



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11:30‐12:00 12:30‐15:30 Flight 17:30

Lunch at seafood restaurant (TBD) Visit Ngu Hanh Son natural stone area Leave Danang to Hanoi (16:00 at the airport)

Ngu Hanh Son district, Da Nang city

08th Mar’10 (Hanoi)

Morning 8:30

Leave Hanoi

(7:00 at the airport). 6:00 check out at the hotel.



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Table 50 Participants to Study Tour No Name Position and Organization Study Tour

Bangladesh Study TourVietnam

1. HE Vong Sandap Project Director of Emergency Food Assistance,Ministry of Economy and Finance

X X

2. Mr. Sok Roath Monitoring Project Officer , Ministry of Economy and Finance

X

3. Mrs. Thin Saro Project Officer, Ministry of Economy and Finance X

4. Mr. Sok Sokunthea

National Project Manager of EFAP X

5. Mr. Ieng Somonea

National Food SpecialistAgifood Consulting International

X

6. Mr. Sot Piseth EFAP Administration Officer, Ministry of Economy and Finance

X

7. Mr. Lun Mareth EFAP Operation Officer of Procurement and Agriculture input, Ministry of Economy and Finance

X

8. HE Sar Chamrong

Deputy Provincial Governor and EFAP Provincial Project Manager of Banteay Meanchey Province

X X

9. Mr. Chhay Sary EFAP Implementation officer of Battambang Province

X X

10. Mr. Mey Virak Deputy Director of National Emergency Coordination Center (NECC) National Committee of Disaster Management (NCDM)

X X

11. Mr. Mao Sao Horn

Assistant officer of General Secretariat of National Committee of Disaster Management

X X

12. Mr. Sao Chesda Deputy Director Department of horticulture, Ministry of Agriculture, Forestry and Fisheries of Cambodia (MAFF)

X X

13. Mr. Sok Sam Ang

Director Department of Health Food Security and Nutrition, Council for Agriculture and Rural Development (CARD)

X X

14. Mr. Sun Piseth Deputy Director General, Ministry of Rural Development (MRD)

X

15. Mr. Suos Sam Ol Deputy Officer, Ministry of Rural Development(MRD)

X

16. Mr. Pech Sam Ath

Deputy Chief of Technical Department of Green Trade Company/Ministry of Commerce (MoC)

X

X

17. HE Seat Kim Leang

Deputy Provincial Governor and EFAPProvincial Project Manager of Kampong Chhnang

X X

18. HE Sok Lou Deputy Provincial Governor and EFAPProvincial Project Manager of Kampong Thom

X X

19. HE Vong Sam Ol Member of Provincial Council of EFAP Pursat X X

20. Mr. Mey Ly Houth

Deputy General Director of Administration Affairs, Ministry of Water Resources and Meteorology

X X

21. Dr. Francesco Goletti

Team Leader Grant ADB 0116‐CAM X X



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APPENDIX E. SUMMARY OF FOOD RESERVES WORKSHOP

Objectives and Organization

344. A Workshop on Food Reserves was organized by the Consultant’s Team on 31 March 2010. The objectives of the workshops were:

1. To discuss about the policy and management of food reserves in Cambodia 2. To build consensus about a set of recommendations related to food reserves policy

345. The workshop was attended by about 70 participants (see Table 51) including Government Agencies at the National and Provincial level, representatives of the donor community, and representatives of projects and NGOs involved in food security and emergency issues. The program of the workshop is presented in Table 52.

346. The workshop was opened by HE Dr. Keat Chhon, Deputy Prime Minister and Minister of Finance, and was followed by the presentation on food reserve systems by different stakeholders in the public sector, private sector, and NGO sector (Consultant’s Team, Study Tour Delegation Members, CARD, NCD, Federation of Rice Millers Associations, Ministry of Commerce/Green Trade, Cambodian Red Cross). The morning sessions of the workshops consisted of presentations by different agencies related to food reserves issues; the afternoon sessions consisted of working group discussion. Three working groups were organized with a mixed composition of stakeholders. The findings of the working group discussions were presented to the general audience and discussed in a general audience. Opening Remarks

347. The opening remarks by HE Dr. Keat Chhon highlighted the importance of food reserves for the objectives of food security and nutrition of the RGC and encouraged participants to provide suggestions about feasible policy options for an efficient and effective food reserve systems in Cambodia. The Deputy Prime Minister indicated the important of paddy, rice and rice seed in food reserves and the need of linking food emergency to overall policies for rice exports, rice milling, and storage. HE Dr. Keat Chhon informed about the ongoing RGC effort to formulate a strategy for safety needs and indicated the need of increasing food and seed reserves to respond to crisis when it occurs.

348. The opening remarks by Mr. Putu Kamayana, Director, Cambodia Resident Mission of ADB provided an overview of the complexities that surrounds the concept of food reserves, in particular the need to addressing issues related to objectives, management, financing, operations, information, and policy and regulations. Morning Presentations

349. HE Sar Chamrong, Deputy Governor of Banteay Meanchey reported about the recent study tour to Bangladesh and Viet Nam, organized by the TA for a group of government officers from the central and provincial level to learn about the experience of those countries with disaster management, food reserves, and food safety nets. He stressed the importance of having reliable



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budgetary resources based on credible action plans. He also indicated that to improve disaster and food emergency response, a good weather and water forecasting is needed as well as adequate irrigation and drainage structures. HE Sar Chamrong also expressed the concern that 7,000 tonnes of reserves, currently held by Green Trade might not be enough. The key locations for the storage of reserves should be decentralized at the province level. Private sector should be involved in the reserve system. 350. Mr. Khin Meng Kheang from CARD gave an overview of food safety and nutrition issues in Cambodia and the role played by CARD in coordinating food security and nutrition policies. He mentioned that about 20% of household are under the food poverty line and that, despite a surplus of over 3 million tonnes of food, Cambodia faces serious food insecurity problems, recently highlighted by the food crisis and global economic and financial crises. Some of the key challenges for food security include (i) farmers have limited access to production inputs; (ii) farmers are the producers, but also net buyers of food; (iii) limited purchasing power to buy food in rural areas due to high incidence of poverty; (iv) social safety net interventions and transfer schemes to poor and food insecure are at an early stage and not sufficient in scale; and (v) mmovement of unprocessed rice (paddy) to neighboring countries implies that little value added on paddy remains in Cambodia. The presentation concluded by asking the question whether food reserves could be one valid option to improve food security, particularly of food insecurity households.

351. HE Peou Samy, General Secretary of NCDM provided an overview of the major disasters in Cambodia and stressed the point that disasters remain a major constraint to development in Cambodia. Regarding reserves, NCDM has a small fund for food reserves. NCDM also coordinates with ASEAN Food Security Reserve Boards to facilitate release of rice from ASEAN Emergency Rice Reserve and standard operating procedure for cross‐boundary cooperation and assistance. In NCDM experience, Cambodia should have policy and food reserve system in order to provide rapid response to the disaster victims. NCDM in the past has used the storage facilities of Green Trade. Identification of target groups should use the ID‐Poor process developed by MOP. Private sector involvement should be encouraged.

352. Mr. Suon San of Green Trade provided an overview of the company which is a public enterprise under the Ministry of Commerce and Ministry of Economy and Finance. The major roles of Green Trade are in carrying out business related to food trade and exports, selling food in the market to stabilize food prices in the market and manage food reserves for the government. The Government provides a budget to collect 7000 tonnes of paddy/rice as food reserve. During emergencies under recommendations by MOC and Prime Minister they provide food to local authorities and NCDM and related agencies.

353. Mr Ny Ly Heng, Managing Director of Federation of Rice Millers Association informed about the work of the Federation which is present in 10 provinces of Cambodia. Its members have a total storage capacity of about 594,000 tonnes including 297 rice miller/warehouses. Daily milling capacity is 5,940 tonnes. The Federation is interested in being involved in food reserves given its warehouse capacity in all provinces, its capacity of collecting paddy, rice milling capacity, providing quality, quantity, and management assurance, and capacity of replenishing the stock at the end of the year.

354. Dr. Uy Sam Ath, Director of Disaster Management Department of Cambodian Red Cross presented the main activities of CRC in preparedness, mitigation, and response to emergency situations including disasters. Dr Uy Sam Ath stressed the importance of need assessment, not only in terms of food, but also in terms of shelter, sanitation, and health. He elaborated on contingency plan and particularly on the need of (i) estimating the number of vulnerable people; (ii) resources for



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reserves (human, budget, food and shelter); (iii) logistics (warehouse, transportation, and distribution); and (iv) coordination with concerned ministries.

355. Dr. Francesco Goletti, Team Leader of TA gave an overview of the issues related to food reserves in Cambodia including clarification of objectives, management structure, financing, operations, information systems, and policy and regulations. For each set of issue he presented different options with advantages and disadvantages. The discussion of issues and policy options was intended to provide a framework for the ensuing working group discussions. Working Group Session

356. The groups were asked to address six sets of issues. The main findings of the groups related to each set of issue are presented below: Issue 1 ‐ Objectives of SFR (strategic food reserves)

What objective for SFR in Cambodia would be valid and why? Should they be mainly for emergency, or should

they also be used for safety nets and price stabilization? What criteria should determine the size of SFR?

Working Group 1 Working Group 2 Working Group 3

We think that SFR would be valid in Cambodia because Cambodia has some structure and activities all ready for emergency response, safety net and price stabilization.

Criteria for determining the size of SFR that the group considered based on: 1. The large disaster in the

country 2. Forecast about the type

of disaster 3. Determine in advance

about the vulnerable group

SFR in Cambodia would be valid because each country need to have a SFR

We need SFR for emergency relief, safety net and price stabilization

The criteria that we need to determine the size of SFR are based on the percentage of poverty in Cambodia (30%).

SFR in Cambodia would be valid

We need SFR for emergency relief, safety net and price stabilization

There are two criteria that we need to determine the size of SFR: 1. In medium case for

4million people (3kg/person/7days)

= 12,000 Tones 2. In extreme case for

8million people(3kg/person/7days)

= 24,000 Tones

Issue 2 – Management

Who should manage the SFR? Should Green Trade continue to be the manager or should a specialized agency

be established? Who will take decisions about offtakes and replenishments?


There are two options: 1. Green Trade: because

they have a structure at national level already.

2. NCDM: they have a structure at national level,

National Level have to manage SFR

We need to have a new agency to do this work

Board director have all right to

Green Trade should continue to manage SFR

No need to have a new agency to do this work

Green Trade will follow the



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provincial level and commune level.

In case Green Trade manages the SFR, Green Trade has to decide about the offtakes and replenishment but if NCDM manage SFR, NCDM have to decide. Finally, the group opted for the option of having NCDM to manage the SFR because they have a structure at national level, provincial level and commune level that would make it easy to response in case of emergency.

make a decisions about offtakes and replenishments

order from Prime Minister through the Ministry of Commerce to make a decisions about offtakes and replenishments

Issue 3 ‐ Financing

Should financing be through annual budget requests or should a special fund for SFR be established? Should

be a physical stock, a cash fund, or a mix of both


Group has decided to get the financing through annual budget.

Keep both grain and cash

Group has decided to get the financing through annual budget.


Based on the request from Green Trade and Ministry of Commerce.

According to the real need Green Trade will request more budget.


Issue 4 – Operations

To what extent could operations be made more effective and efficient through outsourcing private sector

service providers? Or should SFR be completely centralized in the public sector?


To operate SFR more effective and efficient we need the participation from private sector

To operate SFR more effective and efficient we need the participation from the state and private sector.

To operate SFR more effective and efficient we need the participation from:

Private sector

UN Agencies, OIs, NGOs and Others agencies

Issue 5 ‐ Management Information System

What types of management information systems are needed in order to make an efficient SFR in Cambodia?


To make an efficient SFR in We need to have an information We need to strengthen the



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Cambodia we need: 1. Computer Network 2. Stock inventory system 3. Market information or

database 4. Multi Information such as:

Information related to the weather

Information related to the crop harvesting

Database on crop production

system

database system that can provide us the real information about stock, transparency and accountability.

Duration of stock storage based on quality

Issue 6 ‐ Policy and regulations

Is a law on SFR needed? Are regulations on SOP needed?


The group have been decide that we should have only regulations for SOP

We need to have both: law and regulations for SOP

We need to improve the law and regulations for SOP

Operate it efficiently

Need to improve both as needed

Comments on the Findings of the Working Groups

357. Objectives of SFR and Size. Despite in the Workshop there being a presentation of the comparative costs of Emergency, Safety Net and Price Stabilisation SFRs, the Groups opted for having all three, but the impression was that few people had a real consciousness of the full implications of operating any of these.

358. Clearly their ways of assessing the size needs for such reserves are currently just based on rough rule‐of‐thumb measurements, those cited being:

Using maximum requirements from known disasters (Year 2000 flood);

Feeding either 4 million or 8 million people with 3 kg over 7 days, resulting in tonnage of 12,000 tonnes and 24,000 tonnes respectively;

Targeting the 30% of population below the poverty line

359. One group did indicate the need for vulnerability assessment in this, and the need to target elderly, poor and children, but with no clear indication of how the targeting would be achieved.

360. Management. Opinions appear to have differed as to the best management options. One group considered that responsibility be given to Green Trade, with use decisions taken by the Prime Minister, as at present. Another considered that a new specialised agency was needed with a Board of Management taking use decisions, with the stocks located in one particular place. Another group considered that there was the need for a national stock, but that also each provincial structure needed its food reserve, with provincial control over stock use, and was not sure whether or not this should be run by Green Trade. The group suggested that NCDM should be given the opportunity of



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running food reserves given its national and local coverage and its experience in coordinating response to emergencies and disasters.

361. Financing. All groups considered that the reserves should be a mix of physical reserves and cash reserves, without any group specifying the proportions of each. One group considered that the financing should be a mix of annual budget funding and a specialised emergency fund.

362. Operations. All groups considered that it was valid to incorporate the private sector into the operations without specifying which particular operations the private sector could best perform, but considered that the public sector should still be involved, and that the private sector needed to show a willingness to comply with government exigencies in operations. One group suggested that the private sector should provide quality of product, the volumes required, comply with controlled pricing, and have computer‐based control systems.

363. Management Information Systems. Different groups pinpointed different needs. One group indicated the exact amount of food required was a major consideration upon which the information system should be based; a second put the emphasis on transparency of data and accountability, but not be involved with price management (focus of data should be on: buying, distributions, loss and damage); the third emphasised more water‐meteo data, commercial data, production data and MIS.

364. Policy and Regulation. Two groups thought that there needed to be a Food Reserve Law, and one of these groups thought the law should be well‐publicized, but the third group considered that an actual law was not necessary, and the a policy statement and clear regulation was all that was needed.



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Table 51 Participants to the Workshop on Food Reserves held on 1 April 2010 at Cambodiana Hotel No Name Position Organization

1. HE Keat Chhun Deputy Prime Minister of Economy and Finance

Ministry of Economy and Finance

2. HE Vong Sandap EFAP Project Director Ministry of Economy and Finance

3. Dr. Putu Kamayan ADB Resident Director Asian Development Bank

4. Ms. Nao Ikemoto ADB Project Officer Asian Development Bank

5. HE Ly Tuch Deputy Director National Committee for Disaster Management

6. HE Hang Choun Narun Deputy Secretary Ministry of Economy and Finance


7. HE Ngi Chan Phal Secretary of Ministry of Interior of International Relation Department

Ministry of Interior

8. HE Sous Kung Secretary of Ministry of Rural Development

Ministry of Rural Development

9. HE Veng Sakhorn Secretary State

MOWRAM

10. HE Ou Or Hat Secretary General

Ministry of Plan

11. HE Vong Sivisoth High Council member of Economy and Deputy


12. HE Ith No Dy Deputy Secretary

Ministry of Agriculture, Forestry and Fisheries of Cambodia

13. Mr. Sun Piseth Deputy Director General Ministry of Rural Development

14. Mr. Chhay Sary EFAP Implementation officer

EFAP Battambang

15. Mr. Suos Sam Ol Deputy officer Ministry of Rural Development

16. HE Sok Lou Deputy Provincial Governor and EFAP Provincial Project Manager

EFAP Kampoung Thom

17. Mr. Sao Chesda Deputy Director Department of horticulture

Ministry of Agriculture, Forestry and Fisheries of Cambodia

18. HE Seat Kim Leang Deputy Provincial Governor and EFAP Provincial Project Manager

EFAP Kampoung Chhnang

19. HE Sar Chamrong Deputy Provincial Governor and EFAP Provincial Project Manager

EFAP Banteay Meanchey

20. HE Lun Ann Deputy Provincial Governor and EFAP Provincial Project Manager

EFAP Udor Meanchey

21. Mr. Chhun Sao Secretary Director and Responsible on food security

EFAP Siem Reap

22. Mr. Chhim Sivuth PCDM permanant secretary and Technical staff of PPMU/EFAP

EFAP Udor Meanchey



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No Name Position Organization

23. HE Lun Lim Thail Provincial Governor Deputy Director

PCDM Kampoung Cham

24. Mr. Mey Virak Deputy Director of National Emergency Coordination Center (NECC)

National Committee for Disaster Management

25. Mr. Julian Hansen Team Leader GTZ

26. Mr. Mao Sao Horn Assistant officer of General Secretariat

of National Committee of Disaster Management

27. Mr. Siek Sopheak Researcher NSNEC

28. Mr. Eng Kimly Research Manger Ministry of Education, Youth and Sport

29. HE Bun Sorm General Secretary Ministry of Economy and Finance

30. HE Mork Sothearin Deputy General Secretary Ministry of Economy and Finance

31. HE Ly Horm Lak Deputy General Secretary Ministry of Economy and Finance

32. Mr. Pich Sithan Research Coordinator Ministry of Agriculture, Forestry and Fisheries of Cambodia

33. Mr. Nay Sophorn Provincial Facilitator EFAP Battambang, Udor Meanchey, Banteay Meanchey

34. HE Uy Sam Ath Director of Disaster Management Department

Cambodia Red Cross

35. Mrs. Pen Yutheka Chief Office Ministry of Women

36. Mr. Kin Meng Program Director CEDAC

37. Mr. Sok Narom Provincial Facilitator EFAP Siem Reap, Kampoung Thom

38. Mr. Ieng Somonea National Consultant EFAP / ACI

39. Mr. Chhan Vattanak Deputy General Secretary Ministry of Economy and Finance

40. Mr. Soy Seung Program Assistant FAO

41. Mr. Thurai Singham ADB / Consultant EFAP

42. Mr. Thorn Sary Deputy Director PCDM Kratie

43. Mr. Suon San Green Trade/ Ministry of Commerce

44. Mr. Pech Sam Ath Deputy Chief of Technical Department of Green Trade Company

Green Trade/ Ministry of Commerce

45. Mr. Hul Chamroeun Deputy Officer PCDM Prey Veng

46. Mr. Khin Meng Kheang Coordinator CARD

47. Mr. Mey Ly Houth Deputy General Director of Administration Affairs

MOWRAM

48. Mr. Vincent Tickner Capacity Building and Institutional Expert

EFAP/ACI

49. Mr. Lun Mareth Procurement Officer EFAP

50. Mr. Sok Roath Chief Officer Ministry of Economy and Finance

51. Mr. Sok Sam Ang Office Manager of Department of Health, Food Security & Nutrition

CARD

52. HE Nheang Leng Under Secretary Ministry of Economy and Finance

53. Mr. Steve Mellor Database and IT Expert EFAP/ACI

54. Mr. John Spilsbury Monitoring and Evaluation Expert

EFAP/ACI

55. Mr. Sok Sokunthea National Project Manager EFAP

56. Ms. Huot Sovanneary National Sociologist EFAP



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No Name Position Organization

57. HE Poeu Samy Secretary General National Committee for Disaster Management

58. HE Vong Sam Ol Member of Provincial Council

EFAP Pursat

59. HE Chea Chan Tum General Director of Social Planning

Ministry of Plan

60. HE Touch Leng Ministry of Economy and Finance

61. Mr. Kenn Crossly Deputy Country Director World Food Program

62. Mr. Cheng Many Provincial Facilitator EFAP Pursat

63. Mr. Biranchi Choudhuri ADB Consultant EFAP Consultant

64. Dr. Francesco Goletti Team Leader EFAP Consultant (ACI)

65. Ms. Cheng Vanny Administrator EFAP (ACI)

66. Mr. Suos Dararath Project Director Assistant EFAP/MEF

67. Mr. San Sina IT officer EFAP/MEF

68. Mr. Sot Piseth EFAP/MEF Administrator EFAP/MEF



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Table 52 Program of the Workshop on Food Reserves held on 1 April 2010 at Cambodiana Hotel 08:00‐08:30 Registration

OPENING SECTION

08:30 – 08:35 National Anthem

08:35‐08:45 Welcome remarks by EFAP National Project Director HE Dr. Vong Sandap

08:45‐08:50 Introductory remarks by Mr. Putu Kamayana, Country Director, ADB Cambodia Resident Mission

08:50‐09:20 Official opening of the Workshop by HE Dr. Keat Chhon, Deputy Prime Minister and Minister of Economy and Finance

09:20‐09:40 Coffee Break

PRESENTATION SECTION

09:40‐09:55 Food Reserves Issues: an Overview, Dr. Francesco Goletti, TA Team Leader

09:55‐10:10 Lessons from a Study Tour to Bangladesh and Viet Nam, HE Sar Chamrong, Deputy Governor of Banteay Meanchey Province

10:10‐10:25 Perspective on Food Reserves by CARD, Mr. Khin Meng Kheang

10:25‐10:40 Perspective on Food Reserves by NCDM, HE Peou Samy, General Secretary

10:40‐10:55 Perspective on Food Reserves by Ministry of Commerce/Green Trade, Mr. Suon San,

10:55‐11:10 Perspective on Food Reserves by Rice Millers Association, Mr. Ny Ly Heng, Managing Director of Federation of Rice Millers Association

11:10‐11:25 Perspective on Food Reserves by Cambodian Red Cross, Dr. Uy Sam Ath, Direct of Disaster Management Department

11:25‐11:40 Food Reserves Policy Options, by Dr. Francesco Goletti, TA Team Leader

11:40‐12:10 General Discussion

12:10‐13:40 Lunch

WORKING GROUP DISCUSSION SECTION

13:40‐14:00 Guidelines to working groups and formation of working groups

14:00‐16:00 Group discussion and Preparation of Summary by Working Groups

16:00‐16:45 Presentation by Working Groups Summaries

CONCLUDING SESSION

16:45‐17:15 Summary of Workshop by HE Dr. Vong Sandap, Director of EFAP

17:15‐17:25 Concluding Remarks by Ms. Nao Ikemoto, ADB Project Officer

17:15‐17:30 Closing by Representative of Deputy Prime Minister and Minister of Economy and Finance



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APPENDIX F. SUMMARY OF INSTITUTIONAL SURVEY

365. The main objectives of the survey were, besides the more general ones of identifying existing institutional capacity for disaster management and assessing training needs:

To understand better the organisational aspects of current disaster management, and the strengths and weaknesses of it;

Appraise the consideration of resources currently available for disaster management and deficiencies in this;

Understand better the current functioning of the information systems employed in disaster management in the country;

Review the training so far provided at different levels in aspects of disaster management, and draw out weaknesses and further needs;

Evaluate the functioning of different aspects of the disaster management cycle, including: risk and vulnerability assessment, risk prevention, preparedness, awareness, early warning systems, response capacities, assessments, communications, relief, rehabilitation and organisational linkages;

To review the policy‐making structure for disaster management and food emergencies.

366. It was recognised that it would not be possible within the time and resources available to undertake such a survey in all provinces, and that only a selection of commune‐level and village‐level structures could be included within the survey. Accordingly, the selection of respondents from different levels of the disaster management structure was made, in collaboration with NCDM staff and Provincial Committee for Disaster Management (PCDM) and District Committee for Disaster Management (DCDM) staff, following the following criteria:

Conducted with NCDM in Phnom Penh at the Central level;

Conducted in the 7 EFAP programme provinces (Battambang, Banteay Meanchey, Udor Meanchey, Kampong Thom, Kampong Chnang, Siem Riep and Pursat) and 3 others that are more prone to floods and droughts (Kampong Cham, Kratie and Prey Veng);

In each selected province the PCDM, 2 DCDMs and 2 Commune Committees for Disaster Management (CCDMs) were surveyed, the Districts selected being identified by the pertinent PCDM as the most risk prone to flood and drought, and one CCDM being identified within each selected district by the pertinent DCDM as being the most prone to flood and drought risk;

Respondents were to be the “most knowledgeable people” in the CCM.

367. A survey questionnaire was prepared by the Consultant’s Team in consultation with NCDM, the PMU of EFAP, and other experts of the EFAP project. The draft questionnaire was pilot tested in Takeo province. The survey was undertaken during the months of late December 2009 and January 2010 by the National Food Security Expert and two staff from the NCDM General Secretariat. The questionnaire was prepared in English and Khmer and administered in Khmer by the survey team.

368. The Survey Manual, the Data, Tabulation of the Data, and the Questionnaire in both English and Khmer are available electronically with the Consultant’s Team and included on a CD submitted to ADB and the National Project Director.



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369. In the analysis given below the Survey Tables referred to are those in the Tabulations67 for the Survey Data (included in the CD submitted with the Midterm Report). 1. Institutional Years of Experience, Members, Structure and Capacities

370. The NCDM was established in 1995, and PCDMs and DCDMs following revised statutes in 1999, which were incorporated into a Royal Decree in 2002. Only 2 of the PCDMs surveyed were over 10 years old, and only 2 (10%) of the DCDMs (those in Kampong Cham) were over 10 years old. Also 35% of the DCDMs surveyed were less than 5 years old, showing that the establishment of DCDMs has taken longer. CCDMs were only introduced in 2006, so it is interesting to see that 6 CCDMs surveyed (30%) claim that they were created more than 5 years ago (See Survey Table 1).

371. Currently the NCDM has 23 members, and the mean number of members of PCDMs is 39, but 40% of those surveyed had more than 40 members. Amongst DCDMs surveyed the mean number of members was 25.6. The mean number of members of CCDMs was 18, but 2 CCDMs (10%) surveyed had over 30 members (see Survey Table 2).

372. Currently, the NCDM has 55 staff (of which only 35 are permanent), and the mean number of staff of PCDMs reported from those surveyed was 11.9 (only mean of 4.1 were permanent), whereas for DCDMs the mean was 5.2 (a mean of 4.3 permanent staff was given, but only 60% of DCDMs surveyed responded to this question) and for CCDMs was only 2 (with a mean of 1.2 permanent staff, although only 50% of CCDM’s surveyed reported on this point, and 45% of CCDMs only had 1 permanent full‐time staff member) (see Survey Tables 3 & 4). Amongst the staff at the national level, 10 out of 55 were most active.

373. At the NCDM level, the one “active” staff member seems to work every day of the month. At the PCDM level the amount of work put in on Disaster Management (DM) work of most active people ranged from a minimum mean of 9.3 days per month to a maximum mean of 23.7 days per month, with an overall mean of 15.2 days per month. At the DCDM level the amount of work put in on DM work of most active people ranged from a minimum mean of 5.8 days per month to a maximum mean of 19.7 days per month, with an overall mean of 12.4 days per month. At the CCDM level the amount of work put in on DM work of most active people ranged from a minimum mean of 6.0 days per month to a maximum mean of 18.8 days per month, with an overall mean of 11.8 days per month (see Survey Table 6). Because the provinces, districts and communes selected for this survey represent zones that are probably more involved with disasters these means are probably much higher than overall means would be nationally.

374. In reviewing the needs for more permanent staff, it would only appear that at the DCDM level there is a considered need for more permanent staff, although the one respondent at the NCDM level also suggests that more permanent staff are needed at that level (see Survey Table 7). Udor Meanchey, Pursat and Kratie seem to be the provinces in which more DCDM permanent staff are considered needed. In Battambang the respondents at the PCDM level suggest that less permanent staff are needed, but no explanation is available as to why, in that case, they have not reduced their permanent staff, which is between 2 and 5 people (see Survey Table 4). At the NCDM level the types of additional staff considered needed are primarily middle managers and technicians.

67 The tabulations have been produced in Excel using an application in FoxPro. More than 330 tables are included in the Excel files and due to space limitations are available only electronically.



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At the DCDM level the types of staff considered needed are primarily middle managers, support staff and technicians (see Survey Tables 8 & 9).

375. At the NCDM level the organisational structure is considered inadequate by the respondent. At the PCDM level 20% of respondents felt that the organisational structure was inadequate, and at lower levels 25% of respondents felt so (see Survey Table 10). At the NCDM level the considered needs were for more permanent staff (20) and more committee members, whereas at the provincial level it was only for permanent staff (mean of 3 per province). At the DCDM level the needs appear to be primarily for additional departments/divisions (unspecified!) and some permanent staff for disaster management. At the CCDM level the needs expressed were more for additional committee members and for more permanent staff (see Survey Table 10). Conclusions No 1 At the commune and provincial levels the current organization appears largely adequate, but more strengthening is needed at the national NCDM and district DCDM levels. All levels are considered to need more permanent staff, particularly more technical and middle‐manager staff, as well as more support staff at the district level. As it would appear that at these levels the kinds of institutional strengthening needed is zone specific, it is suggested that these need to be reviewed on a case‐by‐case basis by NCDM, while still bearing in mind any more general structural changes that might be advantageous. 2. Resources for Disaster Management

376. Over the last three years (2007 to 2009) the only level of the NCDM structure to receive any regular budget has been the central level, which has received a fixed annual budget of 1000 million riels. This financing has not been on the basis of budget proposals and perceived needs. Neither the central level, nor other levels have been permitted or encouraged to submit budget proposals.

377. At the central level, NCDM has a dedicated office, but the office provision is considered inadequate. At the PCDM level only 3 (30%) of those surveyed has their own dedicated office for DM, of whom 2 considered the provision adequate. The vast majority of those PCDMs, that did not have a permanent office, considered that not having one was a significant constraint on their effectiveness. None of the DCDMs and CCDMs surveyed had a dedicated office, but whereas 60% of DCDMs considered this a significant constraint, only 30% of CCDMs thought so (see Survey Table 11).

378. The only structures surveyed that have any dedicated transport for DM were the NCDM at the national level (6 motorbikes), and one CCDM in Kompong Cham with a regular boat (see Survey Table 12 and note).

379. No structures of NCDM at any level currently operates any food reserve, although one member of the NCDM is mentioned to have a 2,000 tonne food reserve, but half the PCDMs have members who hold small food reserves (mean of 11.5 tonnes). At the DCDM and CCDM levels none of their members were recorded as having any individual food reserves at that level (see Survey Table 13). Four PCDMs surveyed retain seed reserves, for a mean of 105 tonnes. The largest of these are in Kratie (300 tonnes) and Prey Veng (70 tonnes), the others only being of 20 tonnes (see Survey Table 14). Only one PCDM (Kompong Cham) had reserves of anything other than food or seed reserves (17 medical kits) (see Survey Table 15 and note). The only storage facilities indicated for rice or seed DM reserves were of brick/cement construction (see Survey Tables 16 & 17). It would appear



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that in Pursat the PCDM has tents and tarpaulins for emergencies that are stored in a brick/cement facility, the location and quantity apparently being adequate, but not the space available (see Survey Tables 21, 22, 28 & 29). At the PCDM level storage for rice is considered adequate in terms of quantities available and their locations, but not so much in terms of space. At the DCDM level rice storage facilities are considered adequate in all three terms, although according to earlier data in Survey Table 13 they do not have food reserves at this level (see Survey Tables 13 & 23). For seed storage, all three terms (quantity, location, and space) were considered adequate at the DCDM level in Kompomg Chhnang but only the location in some other districts. At the PCDM level location seems to have been the major adequate factor (see Survey Table 24).

380. It terms of receiving resource support other than that from a regular government budget, only one PCDM (apparently Udor Meanchey) has been receiving between 5‐10 person‐months per year of technical support, and supplies, and several DCDMs have been receiving supplies from other sources, but nobody has been receiving financial support from other sources (see Survey Table 30). The value of these supplies per year over several years has been variable, but always below 100 million riels per year (see Survey Tables 32 & 33).

381. Not surprisingly, all surveyed respondents consider that additional resources would make them more effective (see Survey Table 34), but none of these cited in this series of questions any transport means amongst those resources, but the NCDM and one PCDM cited fuel as one resource needed. The vast majority of structures at all levels cited financial supports and supplies as being the main resources that would help them become more effective. Only one PCDM (Udor Meanchey) considered Human Resource Development and Communications System Development as being additional areas of value for which resources were needed (see Survey Table 35).

382. The survey elicited costings from respondents for additional resources to help their DM effectiveness. The survey did not go into the bases for such costings nor the criteria for selection, but the key costings given are presented in Table 53. Table 53 Estimated Resources Required for Improving DM Effectiveness from Reporting Respondents

Level of Disaster

Management

Human Resources

Fuel Communications Systems

Supplies Finance

(person months) (Millions of Riels)

National 800.00 360.00 840.00

Provincial 2.00 160.00 30.00 30.10 70.40

District 11.10 14.80

Commune 5.60 12.10

Source: Based on Survey Table 37

383. A second approach to eliciting the main resources considered to improve DM effectiveness indicated that DM structures at all levels considered the following additional resources to be most useful: rice reserves, seed reserves, canned food reserves, tarpaulin provision, equipment (see below), transport means, transport fuel, and a regular annual budget. The NCDM respondent also indicated the importance for them at the central level of technical expertise (unspecified), warehousing and other needs (unspecified). Warehousing needs were also cited quite often at other levels, as well to a lesser extent technical expertise. Occasionally additional staff was cited at lower



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levels, most being at the DCDM level (25% of respondents), as well as medical kits (35% of respondents) (see Survey Table 38).

384. The most salient transport needs at the national level were for pick‐ups and small trucks, but the needs at the provincial level and below were more extensive (see Survey Table 40) and are summarized in Table 54. Table 54 Transport Means required at Provincial Levels and below, as indicated by the percentage of respondents citing them

Level Large truck

Small truck

4WD Pick Up Small tractor

Motor‐cycle

Speed boat

Regular boat

PCDM 40 50 20 90 ‐ 100 10 30

DCDM 25 35 30 60 ‐ 95 10 20

CCDM ‐ 20 30 20 15 90 20 5


385. The most salient equipment needs (see Survey Table 39) were:

National level – computers and photocopiers;

Provincial and District levels – computers, photocopiers, furniture, and to a lesser extent mobile phones and printers;

Commune level ‐ computers and furniture, and to a lesser extent mobile phones (photocopiers and printers were much less important, but still a need in some areas).

386. Amongst the other needs cited at different levels (see Survey Table 41) were:

National level – Silk Sarong and Krama (the typical Khmer scarf)

Provincial level – Landline phones and office buildings;

District level – generators

Commune level – mainly generators, but also pumps, office supplies, and silk sarong and krama in Pursat.

387. The mean rounded quantity of the major particular needs cited by respondents for different items (see Survey Table 43) are summarized below in Table 55. Table 55 Mean quantities of main types of needs for Disaster Management, cited by respondents

Item Unit of Measure

Level

National Province District Commune

Rice Reserves Tonnes 500 207 83 7

Seed Reserves Tonnes ‐ 152 47 11

Canned Food No./piece/ can 3000 4125 575

No. of cases 100 402 252 38

Tonnes ‐ ‐ 4 ‐

Medical Kits No. of kits ‐ 14000 1124 334

No. of cases ‐ ‐ ‐ 3

Tarpaulins Number 1000 2605 1239 187

Equipment Number 28 31 12 7



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Item Unit of Measure

Level

National Province District Commune

Staff Number ‐ 5 9 2

Technical Experts Person months 5 2 2 2

Large trucks Number ‐ 1 1 ‐

Small trucks Number 2 2 1 1

4WD Number ‐ 18 6 3

Pick‐up Number 5 2 1 1

Small tractor Number ‐ ‐ ‐ 1

Motorcycle Number ‐ 9 3 3

Speed Boat Number ‐ 1 3 1

Regular Boat Number ‐ 2 1 1

Fuel 000’ Litres 200 8 3 1

Annual Regular Budget US $ 500,000 57,405 8,370 2,918

Landline phones Number ‐ 3 ‐ ‐

Mobile phones Number ‐ 20 11 7

Computers Number 20 5 1 1

Photocopiers Number 8 3 1 1

Printers Number ‐ 2 1 1

Furniture Number ‐ 9 3 2

Generators Number ‐ 1 1 1

Pumps Number ‐ ‐ ‐ 30

Silk sarongs & kharmas Number 6000 ‐ ‐ 50

Office Supplies US $ ‐ ‐ ‐ 90

Office Buildings Number ‐ 3 1 2

Source: Based on Survey Tables 43, 44, & 45, with figures rounded

388. The open nature of these questions may have encouraged a “wish‐list” response. Accordingly, the respondents were requested to prioritize. The first priority at the national level was for a regular annual budget, with second priority for fuel for transport, and the third priority being rice reserves. The priorities at lower levels are set out in Table 56. Table 56 Priorities in resource needs for provincial, district and commune level disaster management given in terms of % of respondents choosing priority

Item Provincial Priorities District Priorities Commune Priorities

1st 2nd 3rd 1st 2nd 3rd 1st 2nd 3rd

Rice reserves 10% 30% 30% 40% 20% 25% 45% 15% 25%

Seed Reserves ‐ ‐ 20% ‐ 10% ‐ 10% 5% 20%

Canned Food Reserves ‐ 10% ‐ ‐ ‐ ‐ ‐ ‐ ‐

Medical Kits ‐ ‐ ‐ ‐ ‐ 5% ‐ ‐ ‐

Tarpaulins ‐ ‐ 10% ‐ ‐ 5% ‐ ‐ ‐

Equipment ‐ ‐ 10% 10% 20% ‐ 5% ‐ 10%

Staff ‐ ‐ ‐ 5% ‐ ‐ ‐ ‐ ‐

Technical Experts ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐

Warehousing ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐ ‐

Transportation Means 20% 30% 20% 15% 30% 40% 10% 50% 30%



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Item Provincial Priorities District Priorities Commune Priorities

1st 2nd 3rd 1st 2nd 3rd 1st 2nd 3rd

Fuel ‐ 10% 10% ‐ ‐ 5% ‐ 10% ‐

Annual Regular Budget 60% 10% ‐ 30% 20% 15% 5% 20% 15%

Landline phones ‐ ‐ ‐ ‐ ‐ 5% ‐ ‐ ‐

Pumps ‐ ‐ ‐ ‐ ‐ ‐ 5% ‐ ‐

Office Building 10% 10% ‐ ‐ ‐ ‐ ‐ ‐ ‐

Source: Based on Survey Tables 50, 51 & 52

389. Currently, although the NCDM at the national level has an annual work plan, only 20% of PCDMs surveyed have one, and only 25% of DCDMs and CCDMs surveyed have one. Conclusions No. 2 It is clear that at all levels of disaster management in Cambodia that there are a whole number of ways in which respondents surveyed consider that capacities for disaster management could and need to be strengthened for more effective operations. For some of these the justifications and costings have been more worked out than others. The most salient points are as follows:

The lack of a regular annual budget corresponding more to needs is keenly felt at the national level, and in many of the provinces, and is a high priority;

The lack of a clear budget line for fuel at the national level to enable NCDM to use its transport efficiently is also marked, but the importance of fuel for transport operations is less clearly perceived at lower levels;

The establishment of rice reserves at the national level with NCDM is considered a fairly high priority, although CRC currently has one of the dimensions indicated, but at no level is there any real practical experience of running rice reserves;

Transportation means are considered an additional need at all levels, with a mix of requirements, but the lack of simultaneous consideration of fuel provision (let alone maintenance of vehicles) suggests that these needs have not always been clearly thought through;

There are obviously some equipment needs (particularly at the district level and in some communes) and some office provision needs (particularly at the provincial level), but other items have much lesser priority, except in a few particular cases.

In addition to these resource need considerations, it is clear that the development of annual work plans at the provincial level and below still has a fair way to go. 3. Information Systems for Disaster Management

390. Currently, the electronic communication systems for disaster management at many levels are severely limited. The NCDM has 10 computers, but only 4 of the PCDMs surveyed have a computer, and each of those has only one. At the district level only 5% of DCDMs surveyed have a computer, and then only one (see Survey Table 55). Only at the NCDM level in Phnom Penh is their regular back‐up of electronic files. Only at the NCDM level in Phnom Penh and at the PCDM level in Udor Meanchey is there reliable internet connection. No structure, not even NCDM, has its own website. No structures at any level have a server for managing their data, nor a webmail server.



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391. At the NCDM level there are 20 staff experienced in MS word and MS Excel and 15 in MS Power point, while at the CCDM level only 5 CCDMs surveyed have as a mean one experienced staff member in MS word, and only 2 have staff (only one each) experienced in MS Excel. At the provincial and district levels the computer skills of staff are indicated in Table 57. Table 57 Percentages of Provincial and District level DM structures surveyed having staff with experience in particular computer skills

Skill Provincial Level District Level

MS word 100% 100%

MS Excel 100% 87.5%

MS Power Point 80% 18.8%

MS Outlook 10% 12.5%

MS Access 10% 12.5%

Accounting Software 20% 6.3%

Project Management Software ‐ 6.3%

Publishing Software ‐ 6.3%

Website Editing ‐ 6.3%


392. At the PCDM level there are usually between 3 or 4 staff experienced in the first three MS functions, but usually only 1 person in the other skills. At the DCDM level they usually have between 2 and 3 people experienced in all of the MS functions, but only one each in the other functions (see Survey Table 67).

393. Only one DCDM in Kompong Cham of the structures surveyed had any mobile phones dedicated to disaster management only, and they had 9 of them. NCDM has 6 landline telephones, but only in the province of Udor Meanchey do any of the structures from a lower level have any landlines only for disaster management, and they had one each at the provincial, district and commune level.

394. NCDM in Phnom Penh has a document database for disaster management, but only 60% of PCDMs surveyed have such databases, and 50% of DCDMs, and only 30% of the CCDMs surveyed have them. At the NCDM level different units of the institution are linked by an information system, whereas at the provincial level, of those surveyed only 40% are, and at the DCDM and CCDM levels only 25% of surveyed structures have them so linked. As most of the structures surveyed did not have computers it must be assumed that the databases and linkages referred to in these responses are paper based.

395. Only at the NCDM level in Phnom Penh, and at one PCDM in Kratie is there a member of staff controlling the information system.

396. What would most help to improve their information systems? The responses indicated a range of open‐ended responses including such things as means of transport, improved cooperation with stakeholders, regular meetings of technical staff, satellite disk provision, having a permanent information officer, provision of cameras, having a budget for operations, having a filing cabinet or a generator, having a back‐up system, having an Early Warning System, or strengthening information



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down to the local level (see Survey Table 69). The percentages of respondents citing the major listing of improvements is given in Table 58. Table 58 Percentages of Respondents at different levels of Disaster Management indicating different types of improvements to their information systems

Improvement National Provincial District Commune

Computer provision 100% 100% 100% 85%

Training 100% 100% 100% 100%

Server provision 100% 80% 35% 5%

Internet connection 100% 80% 40% 5%

Mobile Phone provision ‐ 90% 85% 70%

Having a Database Expert 100% 80% 45% 25%


397. These responses offer some indications as to what is needed, but also indicate the limited understanding at some levels as to what certain improvements constitute, and which would really be most useful to them and why. Conclusions No. 3 DM staff at most levels, although less at the NCDM General Secretariat level, have limited knowledge of information systems and the best means of improving information systems. It is also clear that at many levels the electronic possibilities for improving current information systems are currently very limited, but there are possibilities to introduce such systems comparatively easily, with appropriate training. 4. Previous Training and Training Needs in Disaster Management

398. Whereas quite a number of staff at the NCDM level in Phnom Penh have received training in different aspects of disaster management, the training at the provincial level and below has been much more patchy (see Survey Table 70). More valuable is to see what more specific training has been received in different aspects of disaster management, and the degree to which this knowledge is well‐applied in practice. Secondly, there is the need to know what particular skills have been conveyed, and in which particular aspects of the disaster management cycle has training been given, and in which not.

399. The percentages of respondents indicating the different major forms of training in disaster management are given in Table 59. Table 59 Percentages of training of different structures in disaster management according to different forms of training received

Form of training National Provincial District Commune

Training Course 100% 90% 61.1% 71.4%

Workshop 100% 70% 83.3% 64.3%

On‐the‐job training ‐ 10% 11.1% 7.1%

Simulation 100% 20% 5.6% 7.1%

Study Tour ‐ 30% 16.7% 14.3%




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400. Over the last three years a mean of 20 people have attended 10 DM courses at the national level, but at the provincial level a mean of 25.6 people have attended a mean of 5.7 DM courses. At the DCDM level, a mean of 12.2 people have received a mean of 3.2 courses in DM, and at the CDCM level a mean of 10.3 people have received a mean of 2.5 courses in DM.

401. At the NCDM level, training of trainers was given as the most useful training provided, and for the second most useful training three subjects were given: vulnerability assessment, disaster preparedness & prevention, and mitigation. The subjects of training that respondents at local levels found most useful are set out in Table 60. Table 60 Most Useful Training Provision by major subject in recent years

Subject Provincial District Commune

First Second First Second First Second

Data Analysis 12.5% ‐ ‐ ‐ ‐

Data Collection 12.5%

Disaster Preparedness & Prevention

44.4% 12.5%

53.9% 11.1% 54.6% 0%

Community‐based Disaster Risk Management

11.1% 12.5% 30.8% 11.1% 27.3% 14.3%

Community Meetings on Disaster Management

‐ ‐ 9.1%

Community Development Planning 11.1%

Pandemic Response and preparedness

‐ ‐ ‐ 11.1% ‐ ‐

Evacuation Procedures 11.1% ‐ ‐ ‐ ‐ ‐

Emergency Response 11.1% ‐ 15.4% 22.2% ‐ 71.4%

Mitigation ‐ 12.5% ‐ ‐ ‐ ‐

Relief and Rehabilitation 12.5% 11.1% 14.3%

EWS 11.1%

Training of Trainers 22.2% 25% ‐ 11.1% 9.1% ‐

Source: Based on Survey Tables 75 & 79

402. At the NCDM level the training provided by an International Organisation was considered the most useful. At lower levels those provided by government staff, NGOs and government in conjunction with NGOs were considered the most useful (see Survey Table 77).

403. The form of training that is most desired for particular subjects is training courses, and occasionally workshops. For Disaster Preparedness and Prevention study tours were also considered to be useful.



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Table 61 Numbers needing different types of training in different aspects of disaster management as percentages of respondents’ responses

Type of training Level of Disaster Manage‐ment

1‐5 persons

6‐10 persons

11‐15 persons

16‐20 persons

More than 20 persons

Mean number requiring training

Risk Assessment & Risk Reduction

National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 50.0 ‐ ‐ ‐ 50.0 17.5

District 42.9 14.3 14.3 14.3 14.3 13.4

Commune 28.6 ‐ 28.6 28.6 14.3 15.1

Vulnerability Assessment


Provincial 33.3 ‐ ‐ ‐ 66.7 25.0

District 25.0 25.0 12.5 12.5 25.0 15.4

Commune 42.9 ‐ 28.6 14.3 14.3 12.1

Disaster Preparedness and Prevention


Provincial 44.4 11.1 ‐ ‐ 44.4 16.6

District 30.8 23.1 7.7 15.4 23.1 14.9

Commune 45.5 18.2 18.2 9.1 9.1 11.8

Community‐based Disaster Risk Management


Provincial ‐ ‐ ‐ ‐ ‐ ‐

District ‐ ‐ ‐ ‐ 100.0 32.5

Commune ‐ ‐ ‐ 100.0 ‐ 19.0

Community Meeting on Disaster Management

National ‐ ‐ ‐ ‐ 100.0 70.0

Provincial 100.0 ‐ ‐ ‐ ‐ 2.0

District ‐ ‐ ‐ ‐ 100.0 33.0

Commune 33.3 ‐ ‐ 33.3 33.3 24.7

Early Warning System National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 100.0 ‐ ‐ ‐ ‐ 5.0

District ‐ 66.7 ‐ 33.3 ‐ 13.0

Commune 66.7 ‐ ‐ ‐ 33.3 12.7

Disaster/Emergency Assessment


Provincial 42.9 28.6 14.3 ‐ 14.3 13.4

District 69.2 7.7 7.7 7.7 7.7 10.6

Commune 70.0 ‐ 20.0 10.0 ‐ 8.9

Emergency Response National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 50.0 12.5 ‐ ‐ 40.0 17.4

District 47.1 17.7 11.8 5.9 17.7 11.5

Commune 53.3 6.7 13.3 13.3 13.3 12.5

Pandemic response and preparedness


Provincial 40.0 20.0 ‐ ‐ 40.0 17.4

District 33.3 16.7 16.7 ‐ 33.3 16.8

Commune 25.0 ‐ 50.0 25.0 ‐ 12.5

Search and Rescue National ‐ ‐ ‐ ‐ ‐ ‐

Provincial ‐ 100.0 ‐ ‐ ‐ 10.0

District ‐ ‐ ‐ ‐ ‐ ‐

Commune ‐ ‐ ‐ ‐ ‐ ‐

Evacuation procedures National ‐ ‐ ‐ ‐ ‐ ‐


District 100.0 ‐ ‐ ‐ ‐ 2.0

Commune ‐ ‐ ‐ ‐ ‐ ‐



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1‐5 persons

6‐10 persons

11‐15 persons

16‐20 persons



Relief and Rehabilitation


Provincial 66.7 ‐ 33.3 ‐ ‐ 8.3

District 33.3 33.3 ‐ 16.7 16.7 11.8

Commune 25.0 ‐ 25.0 25.0 25.0 21.5

Morality in Disaster Response



District ‐ 100.0 ‐ ‐ ‐ 7.0

Commune ‐ ‐ ‐ ‐ ‐ ‐

Mitigation National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 25.0 25.0 ‐ ‐ 50.0 18.0

District 50.0 16.7 16.7 ‐ 16.7 12.2

Commune 50.0 ‐ 33.3 16.7 ‐ 9.3

Refresher Training National ‐ ‐ ‐ ‐ 100.0 35.0



Commune ‐ ‐ ‐ ‐ ‐ ‐

Data collection National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 40.0 20.0 20.0 ‐ 20.0 11.4

District 57.1 42.9 ‐ ‐ ‐ 6.7

Commune 66.7 ‐ 16.7 ‐ 16.7 10.0

Data analysis National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 100.0 ‐ ‐ ‐ ‐ 3.0

District 50.0 ‐ ‐ 25.0 25.0 14.0

Commune ‐ ‐ ‐ ‐ ‐ ‐

Communications in disaster management and awareness with public


Provincial ‐ 50.0 ‐ ‐ 50.0 17.5

District 50.0 ‐ ‐ 25.0 25.0 14.0

Commune 50.0 ‐ ‐ ‐ 50.0 17.5

Computer training National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 100.0 ‐ ‐ ‐ ‐ 5.0

District 80.0 10.0 ‐ ‐ 10.0 6.3

Commune 100.0 ‐ ‐ ‐ ‐ 1.8

Administration (Letter and report writing)




Commune 100.0 ‐ ‐ ‐ ‐ 1.0

Proposal Preparation National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 100.0 ‐ ‐ ‐ ‐ 4.0

District 60.0 20.0 ‐ ‐ 20.0 10.6

Commune 100.0 ‐ ‐ ‐ ‐ 2.5

Training of trainers National ‐ ‐ ‐ ‐ ‐ ‐

Provincial 100.0 ‐ ‐ ‐ ‐ 25.0

District 50.0 ‐ ‐ ‐ 50.0 19.5

Commune 66.7 ‐ ‐ ‐ 33.3 19.7

Source: Based on Survey Tables 108 to 131



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Conclusions No 4

It would appear that staff at the NCDM level have received extensive training in a number of disaster management skills, but that below this level training has been much more patchy.

Training at the central level has benefited most from international organisation training, whereas at lower levels, government trainers, NGO trainers and government in collaboration with NGO trainers have been the most successful.

Of the training techniques used, training courses seem the most acceptable and useful, and occasionally workshops;

National level staff training needs appear minimal at present, except for unspecified refresher training;

At the provincial level the most important training needs currently appear to be in relation to: vulnerability assessment, training of trainers, communications in DM and public awareness, mitigation and risk reduction and risk prevention, although other aspects also need training, and needs can vary fairly considerably from one province to another;

At the district and commune levels, there are still needs for training in aspects that have already been conveyed at higher levels, but there is also a need for training of trainers at these levels as well;

Although a number of training needs have been expressed some would appear not to have been considered so much, such as: annual work plan preparation, information systems that use different technologies, particular needs of particular types of disaster, assessing food needs over time for particular types of disaster etc.

5. Risk and Vulnerability Assessment

404. The survey indicated (see Survey Table 132) that the NCDM had undertaken a risk assessment in the previous year, as had 20% of PCDMs and DCDMs, but that amongst CCDMs only 10% had.

405. The types of risk assessments for different types of hazard that have been undertaken at different levels are set out below in Table 62. Table 62 Percentages of respondents indicating having undertaken risk assessments on specific types of hazard

Type of hazard National Provincial District Commune

Annual flood 100% 75% 83.3% 80%

Flash flood ‐ 25% ‐ ‐

Drought 100% 75% 33.3% 60%

Fire ‐ ‐ 16.7% 20%

Storm 100% 75% 16.7% 20%

Landfall ‐ ‐ ‐ 20%


406. The only types of risk assessment undertaken by surveyed structures in recent years were for different types of natural disaster. Risk assessment for annual floods now appears to be fairly



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standard practice at all levels, but for droughts the risk assessments have mainly only been undertaken at the national and provincial levels. Other risk assessments have been more sporadic.

407. Amongst the risk most commonly found in rural areas by surveyed respondents were more often described as being fires, storms and transportation accidents. These may, of course, be more likely, but are not likely to create as much devastation and food insecurity as floods or droughts, which were also comparatively common in the zones surveyed (see Survey Tables 134 and 135).

408. All the respondents at all levels asserted that they knew the communities most at risk for any of the key natural disasters likely to occur in their area (see Survey Table 142), and they had lists of vulnerable at all levels for floods, but their coverage for drought at the district and commune levels was not as extensive (see Survey Table 143). Commune level knowledge of communities most at risk in their areas was less, particularly in relation to fires (see Survey Table 145). Local authorities were major suppliers of information on communities at risk to all levels of disaster management, but sometimes NGOs were a valuable source, but mainly at the provincial and district levels (see Survey Table 148).

409. The main ways in which information on vulnerable communities and households was used by DM institutions at different levels are set out in Table 63. Table 63 Percentages of respondents using vulnerability data for different purposes

Type of Use of Information National Provincial District Commune

Targetting 100% 40% 55% 40%

Preparedness Activities 100% 60% 40% 30%

Early Warning Activities ‐ 40% 20% 25%

Reporting 100% 100% 100% 95%

Requesting Support ‐ 10% 20% 20%

Organising visits and obtaining responses ‐ 10% 15% ‐

Making announcements for targetting 100% ‐ ‐ ‐

For emergency response if necessary ‐ ‐ 5% ‐


410. This indicates that most vulnerability data is used most for reporting, but also fairly substantially for preparedness activities and targeting, but a lot less for early warning activities. Some confusion may occur here, however, as early warning activities may be included in preparedness activities.

411. At all levels these DM structures claimed to know the locations and numbers of almost all of the food insecure households in their catchment areas (see Survey Table 150). The most predominant sources for this information were from local authorities, but at the national level the NCDM also obtained information from national organisations and international organisations, and the provincial level staff also obtained some information from NGOs and international organisations, and to a lesser extent from national organisations (see Survey Table 151). Nevertheless, the NCDM did not know from what time the food insecure vulnerability data they had came from, and at lower levels, the percentages of data coming from the previous year were: provincial (57%), district (92%) and commune (83%) (see Survey Table 152). The percentages of structures at different levels using food vulnerability data for different purposes are set out in Table 64.



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Table 64 Percentages of respondents using food vulnerability data for different purposes

Type of Use of Information National Provincial District Commune

Targetting 100% 44.4% 41.2% 23.5%

Preparedness Activities 100% 44.4% 23.5% 23.5%

Early Warning Activities ‐ 11.1% 11.8% ‐

Reporting ‐ 100% 100% 88.2%

Requesting Support ‐ 11.1% 29.4% 29.4%

Organising visits and obtaining responses ‐ 11.1% 11.8% ‐

Making announcements for targeting 100% ‐ ‐ ‐

For emergency response if necessary ‐ 22.2% 5.9% ‐

Dissemination to Commune Council ‐ ‐ ‐ 5.9%


412. At the national level these data were used primarily for preparedness activities, targeting and making announcements for targeting. At the other levels reporting was still a major consideration, but requesting support was more important. At the provincial level these data were used for targeting and preparedness activities, and at the district level also for targeting, but much less at local levels.

413. Although the NCDM does not have a strategy document for responding to different risks, 50% of provincial DM structures maintained they have, and even 25% of district and commune structures maintained they have (see Survey Table 154). Conclusions No. 5 Most risk assessments undertaken to date have been more oriented to floods, and other natural disasters. Although the occurrence of a range of disasters are likely to occur in the rural areas surveyed, floods and droughts are the ones that are still most likely to have significant negative impacts. Risk assessments on droughts are less common. It is clear that disaster management structures at all levels feel confident in their abilities to identify and quantify both the food vulnerable households and the more generally vulnerable households in their communities despite the data that they are using for this not always being particularly up to date. This information, however, seems primarily oriented to being used for reporting, and only to a lesser extent for preparedness activities and targeting activities. Food reserves at all levels being slight, food vulnerability data tends to get channelled upwards in the system to try and secure support. 6. Prevention of disasters

414. The NCDM has documents about disaster prevention, but only about a third of disaster management structures at the provincial and district levels have, and even less at the commune level. At the NCDM level, their activities regarding prevention are predominantly in the provision of training in disaster management and the strengthening of relationships with pertinent Ministries. One PCDM (Kompong Cham) of those surveyed engages in quarantine control, and one (Battambang) collects information for a preparedness plan. Otherwise the types of prevention activities engaged in at local levels are those indicated in Table 65, most of which are involved in water flow control.



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Table 65 Percentages of respondents at local levels considering engaging in different disaster prevention activities

Prevention Measure Provincial District Commune

Construction or Rehabilitation of dams/ponds 90% 94.7% 63.2%

Construction or Rehabilitation of canals 80% 89.5% 84.2%

Drainage system construction or rehabilitation 30% 15.8% 5.3%

Spillway construction 80% 68.4% 36.8%

Water reservoir construction 80% 84.2% 52.6%

Construction of water pumping stations ‐ 5.3% ‐

Construction of water gates ‐ 10.5% 10.5%

Construction of protection barriers from water or wind

10% 5.3% 5.3%

Vaccinations 70% 47.4% 47.4%

Public preparedness announcements ‐ 10.5% 10.5%


415. The numbers of structures actually engaging in such activities is usually slightly less (see Survey Table 157).

416. Currently no disaster management structures at any level have their owned dedicated finance for prevention activities. The estimated finance needed for prevention activities were 200 million riels at the NCDM level, but for other levels it varied, the largest needs being at the district level. For details on these lower levels see Table 66. Table 66 Percentage division of financial needs for prevention activities at local levels

Finance range Provincial District Commune

Up to 10 million riels ‐ 8.3% 11.1%

10 to 20 million riels 50% 8.3% 22.2%

20 to 50 million riels ‐ 16.7% 33.3%

50 to 100 million riels ‐ 16.7% 33.3%

100 to 500 million riels 25% 33.3% ‐

Over 500 million riels 25% 16.7% ‐

Mean amount (millions of riels 290 683 48


417. About 40% of provincial disaster management structures have annual work plans for preventive activities of those surveyed, but at the district and commune levels only about a quarter of each group do. Conclusions No. 6 Although disaster management structures have become more conscious of the utility of disaster prevention activities in recent years, no structure has dedicated finance for this, and what measures have been undertaken or are contemplated have been predominantly in water control measures and vaccinations. Their financing for this being more precarious, it is hardly surprising that many of them have not engaged in annual work plans for prevention activities.



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7. Disaster Preparedness

418. In relation to Disaster Preparedness, only 40% of provincial structures have specific documents on this activity, and much fewer structures do at the local level (see Survey Table 168). In Survey Table 169 the types of disaster preparedness activities considered have been set out. The following activities have been considered at most levels: Evacuation procedures and establishment of safe areas, food reserves, seed reserves, other supply reserves and transportation means readiness. To a lesser extent the training of personnel/simulation and the formation of assessment teams has been contemplated at most levels. There are also a number of other activities that have been contemplated at different levels (but more irregularly and only amongst certain structures), including: preparing Standing‐Operating Procedures (SOPs), Sanitation and Drinking water preparedness, establishing volunteer groups to work with victims, encouraging farmers to grow early or late varieties, provision of information for public preparedness, vaccination reserves, the assignment of roles and responsibilities for disaster response operations. At the NCDM level consideration has been given to the need to establish budgets for emergency operations.

419. Implementation of such disaster preparedness activities is more varied. The ones actually undertaken at the provincial level and below are set out in Table 67. Table 67 Numbers of respondents at local levels actually implementing different types of disaster preparedness activities

Disaster Preparedness Activity Provincial District Commune

Evacuation procedures and safe areas 7 11 10

Food reserves 7 11 11

Seed reserves 6 10 8

Other supplies reserves 7 10 10

Standard Operating Procedures – SOPs ‐ 2 ‐

Training/Simulations 5 8 8

Transportation means readiness 7 11 8

Designating Assessment Teams 4 5 6

Water pump reserve stock 4 9 7

Reserve budget for operations 1 1 1

Sanitation and drinking water provision 2 ‐ 1

Medicines and health centre established ‐ ‐ 1

Volunteers organised to help victims 1 ‐ ‐

Farmers encourage to plant early/late varieties ‐ 1 1

Information prepared for public preparedness ‐ ‐ 1

Vaccination reserve stocks established ‐ ‐ 1

Assignment of roles and responsibilities ‐ 1 ‐

Total number of respondents within survey 7 12 11


420. This indicates that quite a number of local structures have a number of actions that they habitually are prepared for, such as: establishment of evacuation procedures/safe areas, swiftly established food, seed and other supply reserves, preparedness of transport means and immediate training/simulations for active responders. These would appear to be actions more geared to flooding operations. Less attention appears to have been given to more organisational activities, such



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as designating assessment teams, providing clear operating procedures, defining responsibilities, as well as more medical ones: vaccination stock provision, sanitation and health preparations. Some aspects, such as communications systems and linkages, operational monitoring and evaluation, ongoing needs assessment systems etc. do not appear to be enacted in any systematic way.

421. The first priority at a number of levels amongst these activities is apparently the preparation of food reserves, and to a lesser extent evacuation procedures and the setting up of safe areas, with seed reserves and water pump reserves being more important at the commune level (see Survey Table 171). Second priorities are also these, but in addition more attention to seed reserves and reserves of other supplies, securing of transportation means and a mix of other activities (see Survey Table 172).

422. In terms of financial needs for disaster preparedness activities currently no disaster management structure at any level has a dedicated finance budget for disaster preparedness activities. The NCDM considers it needs 500 million riels a year, presumably primarily for a food reserve stock, fuel reserve and operational fund. The considered financial requirements at other levels for disaster preparedness are set out in Table 68. Table 68 Percentages indicated by respondents of financial needs required for disaster preparedness activities

Finance range per year Provincial District Commune

Up to 10 million riels 33.3% 54.6% 90%

10 to 20 million riels 33.3% 27.3% 10%

20 to 50 million riels ‐ 9.1% ‐

50 to 100 million riels 16.7% 9.1% ‐

100 to 500 million riels 16.7% ‐ ‐

Mean financing required (in millions of riels)

77 19 7


423. Comparatively few disaster management structures currently have annual work plans for disaster preparedness activities, with at most only 30% of provincial level structures surveyed having such plans. Conclusions No. 7 As with disaster prevention activities, there are currently no dedicated finance budgets for disaster preparedness activities, and only a limited number of annual work plans for these activities. The focus of what actions have been undertaken to date in this respect appears to have been more in relation to floods than other disasters. The focus has been more on evacuation procedures and the establishment of safe areas, the provision of various types of supply reserves (particularly for rice and seed) and the provision of adequate operational transport means. Much less attention has been paid to organisational activities and medical/health provision activities. 8. Public and Vulnerable Group Awareness of Hazard Threats

424. The types of public awareness activities undertaken by the disaster management structures at different levels during the last year are set out in Table 69.



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Table 69 Numbers of respondents reporting different types of public awareness activities undertaken during the last year

Type of Public Awareness Activity National Provincial District Commune

Leaflets/ brochures 1 3 3 5

Radio/TV announcements or broadcasts 1 6 3 3

Conferences/workshops 1 5 6 6

Training of trainers 1 1 ‐ 1

Training courses ‐ 2 2 1

Community meetings & dissemination 1 2 10 7

Loudspeaker announcements ‐ ‐ ‐ 1

Banners ‐ 1 ‐ ‐

Total Numbers reporting 1 7 16 14


425. At the national level such activities are usually undertaken every 6 months, but at other levels they are more often (two‐thirds of respondents) only undertaken once a year (see Survey Table 179). Radio and Television broadcasts are more often made at the national level at least once a month, whereas at the provincial level they may be more frequent than 6 monthly, but this is more variable (see Survey Table 180). Amongst respondents from the commune level, 50% of them indicated that they have workshops for public awareness on disaster management more frequently, at a rate of one a month, and at the national level they have them on a quarterly frequency (see Survey Table 182). The NCDM holds training for trainers in aspects of public awareness 8 times a year, this training often being directed to teachers, students and local authorities. Usually training courses in public awareness are held at all levels, where they are held, twice a year, and are particularly directed towards teachers and local authorities, but also towards farmers and the general public. Community public awareness meetings are fairly common means of public awareness raising at all levels, particularly for farmers, local authorities and the general public, but the frequency of activities is much more irregular, although NCDM engages in it at a quarterly rate (see Survey Table 186). Most disaster management structures direct leaflets and brochures to the general public (see Survey Table 189), but also these are often directed to teachers, students and local authorities.

426. The NCDM Considers that conferences and workshops are the most useful means of increasing public awareness, and then secondly, the training of trainers. The most useful means at other levels are presented in Table 70. Table 70 Percentage of respondents indicating most useful and second‐most useful methods of raising public awareness

Method Provincial District Commune

Most useful

2nd most useful

Most useful

2nd most useful

Most useful

2nd most useful

Leaflets/ brochures 14.3% 14.3% 6.3% 25% ‐ 28.6%

Radio/TV announcements or broadcasts

42.9% 28.6% 18.8% 37.5% 8.3% 28.6%

Conferences/workshops 28.6% 28.6% 18.8% 25% 25% 28.6%



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Most useful

2nd most useful

Most useful

2nd most useful

Most useful

2nd most useful

Training of trainers ‐ ‐ ‐ ‐ ‐ 4.4%

Training courses ‐ ‐ ‐ ‐ 8.3% ‐

Community meetings & dissemination

14.3% 14.3% 56.3% 12.5% 50% ‐

Loudspeaker announcements ‐ ‐ ‐ ‐ 8.3% 14.3%

Banners ‐ 14.3% ‐ ‐ ‐ ‐

Source: Based on Survey Tables 199 and 200

427. Table 70 indicates that radio/television broadcasts and/or announcements were considered particularly useful at the provincial level, and of some use at more local levels, but that at lower levels community meetings were more useful.

428. At all levels of disaster management it was considered that there are more needs for raising public awareness. For the NCDM the three priorities for public awareness improvement are: 1. more conferences/workshops, 2. training of trainers, and 3 radio/TV broadcasts. The two most important approaches reported at other levels are set out in Table 71. Table 71 Percentage of respondents indicating most useful and second‐most useful needs in activities for raising public awareness


Most useful

2nd most useful

Most useful

2nd most useful

Most useful

2nd most useful

Leaflets/ brochures 11.1% 25% 11.1% 9.1% 12.5% 27.3%

Radio/TV announcements or broadcasts

44.4% 37.5% 11.1% 54.6% 6.3% 45.5%

Conferences/workshops ‐ 25% 16.7% 18.2% 25% 9.1%

Training of trainers ‐ ‐ ‐ ‐ ‐ 3.2%

Training courses 11.1% 12.5% 5.6% 18.2% 4.6% ‐

Community meetings & dissemination

33.3% ‐ 55.6% ‐ 56.3% 9.1%

Loudspeaker announcements ‐ ‐ ‐ ‐ ‐ 9.1%

Source: Based on Survey Tables 202 and 203

429. From the survey the importance of particular types of public awareness dissemination are indicated, and particularly the ones that have worked well in the past. Accordingly, the needs for further public awareness efforts tend to focus on the more successful approaches used in the past, rather than seeking new means of communication, such as cell phones.

430. The NCDM was not in a position to estimate their required budget for public awareness activities at this point in time, although it does have an annual work plan for this, but the means for each unit at the provincial, district and commune levels were 12.1 million riels per year per province, 6.4 million riels per year per district and 4.2 million riels per year per commune, from those



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structures reporting (see Survey Table 206). At lower levels usually less than a quarter of all structures have an annual work plan for public awareness activities (see Survey Table 207). Conclusions No. 9 Obviously substantial efforts have been made in the past by structures at all levels to develop public awareness in relation to disaster management, and the structures concerned have learnt what works best for them. It is also considered that there are still substantial needs in continuing public awareness activities. The approaches proposed reflect more on past experience than exploring what new approaches can be used with modern technologies in disseminating different types of information to the public. Nevertheless, the direct contact approaches involving meetings, workshops and training courses have provided two‐way exchanges, which can be important in raising sustainable public awareness in disaster management. 9. Early Warning Systems and Disaster Management

431. Disaster management structures at all levels appear to consider that early warning systems for floods are the most important, followed by drought early warning systems, and then storm early warning systems. In addition the NCDM considers it important to have early warning systems for epidemics (see Survey Table 209). Nowhere does it appear that early warning systems for socio‐economic disasters have been considered, the orientation being still primarily to natural disasters. Early warning for flooding is primarily supplied by local or national authorities, while early warning information regarding storms comes primarily from national organisations. For droughts the NCDM relies more on early warning from national organisations, but at the local level there is a greater reliance on local authorities and local organisations (see Survey Tables 210 to 212). No disaster structure seemed particularly aware of crop forecasting early warning information or crop and food prices, although one or two provincial and district structures seemed attuned to these data sets and early warning in these directions (see Survey Table 219). The do not appear to be any early warning systems operating for technical hazards and waste disasters. The NCDM uses information from national organisations for early warning on human epidemics, but there seems to be no early warning system for pest attacks or animal disease outbreaks.

432. The current effectiveness of existing early warning systems by respondents to the survey are set out in Survey Tables 220 to 222. The NCDM respondent considered that flood, drought and epidemic early warning systems at present were good, but that storm early warning systems are currently of medium quality. No comment was made on any others. The responses of disaster management structures at the lower levels are indicated in Table 72. Table 72 Assessment of effectiveness of early warning systems by respondents of local disaster management structures (in numbers of respondents)

Level Effectiveness Flood Storm Drought Crop Forecast

Food prices

Epidemics

Provincial Good 5 5 3 ‐ ‐ ‐

Medium 1 3 3 ‐ ‐ ‐

Least ‐ ‐ 2 ‐ 1 ‐

District Good 6 7 9 1 1 ‐

Medium 1 6 5 1 ‐ ‐

Least 3 2 3 ‐ ‐ 1



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Level Effectiveness Flood Storm Drought Crop Forecast

Food prices

Epidemics

Commune Good 3 7 6 ‐ ‐ ‐

Medium 4 4 7 ‐ ‐ ‐

Least 6 3 2 ‐ 1 ‐


433. These results suggest that there was more satisfaction with existing flood early warning systems at the higher levels than at the commune level, but ironically early warning regarding drought was better at local levels than at the provincial level.

434. At the national level it was considered that the first priority of early warning systems was for floods, and the second for drought, the third for storms, and the fourth for epidemics. At the provincial level early warning for floods is considered by far the most important. At the district level, floods and storms are considered to be the first priority, and droughts second priority. At the commune level flood early warning is considered the most important, with storms and drought coming second. These results suggest that early warning needs and the current functioning of the early warning systems are perceived differently at different levels. Crop forecasting is considered more important at lower levels, but hardly appears in considerations at higher levels.

435. At the national level the NCDM sees the value of early warning systems in enabling them to communicate with all relevant stakeholders, the general public and all provinces. At lower levels it is considered most useful for communicating to a range of local people and authorities. Only a few local structures used the early warning information for setting up an alert task force (see Survey Table 228).

436. Amongst the priorities for improving early warning systems, at the national level the first priority was considered to be making the early warning systems easier to understand, and secondly to make it “broader” namely to be disseminated to a wider range of recipients. At the lower levels, the first and second priorities for improvements are set out in Table 73. Table 73: Numbers of respondents indicating all priority ratings, and first and second priorities in improving early warning systems Suggested Improvement Provincial District Commune

All 1st Priority

2nd Priority

All 1st Priority

2nd Priority

All 1st Priority

2nd Priority

Broader EWS 9 7 2 17 11 3 14 13 1

EWS clearer 8 1 4 14 2 8 15 1 13

Train staff in use of EWS 9 1 3 12 1 3 10 1 ‐

Communicate EWS 4 1 ‐ 10 5 1 8 2 3

Budget for EWS ‐ ‐ ‐ ‐ 1 ‐

Supplies for communicating

‐ ‐ ‐ ‐ 1 1 ‐

EW provided 1 week prior and clear

‐ ‐ 3 ‐ 1 ‐ ‐

Support EW data collection

‐ 1 ‐ ‐ ‐ ‐

Source: Based on Survey Tables 229, 230 and 236



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437. From this it can be seen that at all local levels it is considered that the broadening of the EWS is most important way to improve the systems, but that there is also a need at all local levels to make the systems a lot clearer on the one hand, and improve communications between levels and with the public on the other, as well as training staff in EWS. Conclusions No. 9 Apparently the only types of early warning systems currently operating in any regular way in Cambodia that are used by DM structures are for floods, droughts, storms and epidemics. No early warning systems seem to be in place for socio‐economic hazards, pest infestations or animal disease risks. Nevertheless, it appears that at more local levels there is a perceived need in some cases for crop forecasting and food price early warning systems. There is a fair degree of satisfaction with the functioning of current flood early warning systems, but slightly less so with storm and drought early warning systems. The main improvements indicated for different levels is in the “broadening” of the EWS, making the EWS’s clearer, training personnel in EWS and improving communications between levels and with the public. 10. Emergency Response Capacities to Disasters

438. Currently, as might be expected, disaster management at all levels is strongly involved in upward and downward communication within the system in its emergency response, although upward transmission of information is the greater of the two. At all levels there is activity involving consolidation of reports and the collection of information. The higher‐level structures are more involved in linkages with other agencies. At most levels there is an involvement in the assessment of damage and of needs, and the provision of relief supplies. Most levels have some experience of evacuations of people and livestock, presumably mainly in relation to floods (see Survey Table 237).

439. Amongst the difficulties most encountered in co‐ordination during emergencies, the non‐functioning of mobile telephone systems was quite often cited (see Survey Table 238), as well as difficulties of road transportation and roads, and also the lack of funds. In relation to communications with lower levels, the same factors were cited, but in addition the weaknesses of later assessments were noted (see Survey Table 239). The same factors (except later assessments) were cited in relation to communications with higher levels by district and commune respondents, but in addition there quite often appeared to be weaknesses in the responses of more‐central levels to communications sent from lower levels and responses from the higher levels went to the wrong targets (see Survey Table 240).

440. Transportation difficulties were quite often cited as a problem in relation to damage assessments. It was indicated that sometimes early assessments were quite confused and later assessments sometimes unreliable. There were very few respondents as to the difficulties of needs assessments (see Survey Table 242), so it is difficult to get a clear picture in relation to this. In relation to the distribution of relief supplies, insufficiency of supplies, transportation problems and insufficient resources (including funds) were cited as difficulties at all levels (see Survey Table 243). In relation to evacuations, besides transportation problems and insufficiency of supplies, the lack of drinking water was particularly cited at lower levels, and in certain provinces the lack of emergency medical centres was cited (see Survey Table 245). Amongst the difficulties of data collection, besides transportation and insufficient resources, there would appear to have been difficulties in making



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both early and later assessments, and the vulnerable groups were not always clearly identified (see Survey Table 247).

441. Over the last five years, although the NCDM respondent considers that the disaster response capacities have improved over that period, and 60% of the provincial respondents felt it had, only 30% of the district and commune level respondents felt that it had improved (see Survey Table 255). The areas in which respondents considered most improvement had taken place (see Survey Table 256) were from all levels the greater provision of human resources, as well as improved co‐ordination and improved communications means.

442. Amongst the needs expressed to improve emergency response capacity, at the national level the first priority was an appropriate budget, the second priority food reserves, and the third priority was transportation means. For the other levels, the numbers of respondents for the first and second priorities are set out in Table 74. Table 74 Numbers of respondents indicating all levels of priority, first and second priorities in improving emergency response capacities Suggested Improvement Provincial District Commune

All 1st Priority

2nd Priority

All 1st Priority

2nd Priority

All 1st Priority

2nd Priority

Budget 6 4 ‐ 18 8 6 16 11 3

Regular budget 5 2 ‐ 5 2 ‐ 8 1 3

Transportation means 9 1 3 17 ‐ 5 16 1 5

Operation Room 4 ‐ 2 4 3 ‐ 2 2 ‐

Communications means/systems

11 1 1 14 ‐ 1 17 ‐ 2

Resources for information system

3 1 1 4 2 1 1 ‐ 1

Human Resources ‐ ‐ 7 1 2 1 ‐ ‐

Assessment Capacity ‐ ‐ 1 ‐ ‐ 1 1 ‐

Food Reserves 8 1 2 14 3 4 17 4 3

Seed Reserves 3 ‐ 1 5 ‐ ‐ 9 ‐ 2

Other improvements ‐ ‐ ‐ ‐ ‐ 1

Source: Based on Survey Tables 250, 251 and 254 (2)

443. From these responses it can be seen that adequate financing, improved transportation means, communications systems/means and food reserves are considered the highest priority improvements at different levels. The improvement of communications systems highlighted as an area for improvement at all levels but does not figure so prominently as the first and second priorities as the other categories mentioned above. Considering the criticism of the reliability of assessments expressed in earlier questions it is perhaps surprising that the improvement of assessment capacity is not more often cited. Conclusions No. 10 Although it was considered that the provision of human resources, co‐ordination and communications had improved in emergency response over the last five years, provincial and national level assessment of improvements was much greater than at the district and commune levels, where only 30% of respondents felt that emergency response had improved over that time.



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Mal‐functioning of mobile phones and lack of transportation means, inadequate finances and inadequate supplies inhibited responses to disasters. The main improvements cited for the betterment of emergency response were: adequate financing, improved transportation means and food reserves, but communications systems/means was also cited strongly as a secondary consideration. Given the criticism of assessments expressed, there was little indication that improvement of such assessments was a priority. 11. Disaster Assessments

444. At most levels the mean number of assessments undertaken in recent years were 4.5, with the mean at the provincial level being slightly less at 3.1 (see Survey Table 257). The mean number of days spent on early assessments of disasters at the lower levels was 1.7, but at the provincial level 3.4 days, and at the national level 3 days (see Survey Table 258). For final assessments of disasters (see Survey Table 259) much more time was spent on the assessments (almost 2 working weeks on average), presumably more oriented to reporting than operational action.

445. The percentages of different types of DM staff working on disaster assessments are given in Table 75. Table 75 Percentages of different types of DM staff working on disaster assessments

Level Leader Senior staff Technical Staff

Support staff Integrated team

National ‐ 100% 100% ‐ ‐

Provincial 70% 50% 90% 30% ‐

District 88.2% 41.2% 76.5% 41.2% 5.9%

Commune 100% 40% 33.3% 46.7% ‐


446. This demonstrates that at the national level assessment work is undertaken by senior and technical staff, but at the provincial level and district levels the leaders of the DM structures and other support staff play a more important role. At the commune level, where there are presumably less technical staff, all sorts of people are mobilised for assessment work.

447. At all levels lack of transportation means is a serious constraint on capability to undertake assessments. At the national level, financial and human resource constraints also apply. At all levels from the provincial level downwards, other significant factors are insufficient training of assessors, difficulties in collecting information slowing the process, lack of means of communication and lack of human resources. Sometimes financing constraints and road access also make such assessment difficult. There are also a number of other factors in different locations (see Survey Table 262). Only at the national level are there guidelines for conducting disaster assessments. At all other levels only 20% or below have such guidelines (see Survey Table 263).

448. Amongst the difficulties cited in conducting disaster assessments, occasionally untimely delivery of support from higher levels or difficulties of participation with other disaster management operatives occur, but the most common difficulties at all levels are: arranging meetings with local leaders, obtaining interviews with affected people, recording the extent of damage, and arranging field missions to affected areas. To a lesser extent arranging meetings with concerned agencies and



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disseminating assessments also present problems. At all levels, however, it was clear that people had difficulty writing assessment reports (see Survey Table 264). It is perhaps because of this that earlier sections of the survey raised questions of the clarity and comprehensibility of assessments.

449. Amongst the needs indicated for improving assessment capacities, at the national level, financial constraints, inadequate transport means and lack of trained staff were prominent. At all levels lack of trained staff, financial constraints and lack of transportation means were all given as significant factors that, if improved, would help assessment capabilities. At all the provincial levels and below improved communications, interviewing people affected by the disasters, improved information systems and improved recording of damage were all seen as being areas in which improvements would facilitate better assessment, although these have a secondary weighting. At all these lower levels, a significant percentage of respondents indicated, however, that having a standard model and format for undertaking assessments would help (see Survey Table 265).

450. First priority needs for improving disaster assessments were given at local levels as being primarily the capability of interviewing affected people. Second priority was often given for transportation means, improved communications and more trained staff, reflecting the needs given above. Conclusions No. 11 Senior staff and technical staff play a key role in disaster assessments, but at the lower levels, all sorts of staff are drawn into the process, in part because of the limited numbers of trained staff. Transportation means are a constraint at all levels in undertaking assessments. At the local levels besides transportation and access problems, lack of training in assessments and lack of guidelines are also significant constraints, and standard formats for such assessments are lacking. These factors, along with a need to be more able to interview affected people and evaluate damage, if improved, could help the assessment capacity, which in other sections of the survey questionnaire were deemed to be weak. 12. Communications and Disaster Management

451. In the event of negative flooding, the communication channels from CCDMs up and down through the different levels to NCDM seem to be operational, although not always used. Sometimes communications are channelled through Ministries, however, and it would appear that CRC network is also substantially used at local levels. Linkages with NGOs at the provincial levels are significant, and sometimes also at local levels. Sometimes at the provincial level linkages are also made with the World Food Programme (WFP) and donors (see Survey Table 270).

452. Mobile phone or landline telephone use is significant at the national level for communications during flooding, and in the provincial level it is also important down to most district and commune structures. The CRC system also strongly uses mobile phones. The Ministries use phones much less. The WFP and NGOs use them at the provincial level, NGOs also using them down to the district levels (see Survey Table 276). The radio rarely seems to be used as a means of communication during floods. Meetings with affected people and local authorities play a role at the local level. Faxes are still used by some PCDMs and Ministries at the provincial level. Written notices are more often used by Ministries, and the CRC uses them more at local levels, and the CDM structures use them for communications up and down their hierarchy.



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453. In the event of drought, similar communication channels are used in most instances, although the use of motorbikes is also cited (see Survey Table 315).

454. The main problems given as handicapping communications during flooding given at the national level were lack of budget, lack of equipment and lack of communications equipment. The main problems cited at other levels are set out in Table 76. Table 76 Main Communication Problems during Floods cited by Respondents

Communication Problem Province District Commune

Unreliable mobile phone network 4 8 6

Poor road conditions 7 9 8

Lack of effective communications systems 3 6 4

Lack of staff 3 5 1

Lack of equipment 9 9 9

Lack of reporting knowledge 7 7 9

No formats/templates for reporting 3 8 7

Some agencies do not report 4 4 2

Lack of budget 8 14 13

Lack of communications equipment 3 6 4

Response not on time 0 2 1

Lack of transportation means 1 ‐ 2

Others ‐ 4 2

Total number of respondents 10 19 16


455. In the circumstances of drought, the same problems applied in the case of the national level as in relation to floods. The importance of different problems at other levels is set out in Table 77. Table 77 Main communication problems during droughts cited by respondents at provincial and lower levels

Communication Problem Province District Commune

Unreliable mobile network 2 4 2

Poor road conditions 2 ‐ ‐

Lack of effective communications systems 1 3 2

Lack of staff 1 4 1

Lack of equipment 8 8 8

Lack of reporting knowledge 6 4 8

No formats/templates for reporting 3 7 6

Some agencies report later 4 3 ‐

Lack of budget 9 13 14

Lack of communications equipment 3 5 4

Lack of transportation means 1 ‐ 2

Others 3 3 1

Total number of respondents 10 17 16




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456. Although there was a Communication strategy/guideline document at the national level, and 25% of district level respondents claimed they had them, at the provincial and commune levels only one organisation of each said that it had one (see Survey Table 320). Conclusions No. 12 The questions in this part of the survey focused on communications during floods and droughts. Clearly, road transportation and access were more significant in the case of floods. In both cases lack of budget for communications and lack of equipment (type of equipment not being specified) were significant factors cited. Written notices were still the most common means of communication. In both cases lack of reporting knowledge was significant. Difficulties in communications systems were cited in both cases, including unreliable mobile phone network, the latter being more of a problem during floods. A lack of formats/ templates for reporting was cited in both cases. There are also clearly still some problems of agencies reporting late. With some exceptions, there are not communications strategies or guidelines at most levels from the provincial level downwards. 13. Relief and Rehabilitation in Disaster Management

457. Currently during relief and rehabilitation activities in relation to disasters, the NCDM only has a reporting function. Most relief and rehabilitation functions are undertaken by the Cambodian Red Cross at present, the structures of the NCDM only having a mandate for co‐ordination functions. The different functions performed at lower levels by CDMs are set out in Table 78. Table 78 Numbers of respondents performing different functions in relief and rehabilitation operations over disasters

Activity Province District Commune

Co‐ordination 4 8 6

Monitoring & Evaluation 7 9 8

Planning 3 6 4

Communications & Awareness ‐ 1 ‐

Proposals for support 3 5 1

No function 9 9 9

Distribution of relief supports 7 7 9

Contact concerned Ministries 3 8 7

Guide farmers to plant crops 2 ‐ 1

Encourage people to restore damage themselves 4 4 2

Reporting 8 14 13

Number of Respondents 10 19 16


458. From Table 78 it can be seen that the functions primarily performed during relief and rehabilitation operations by CDMs are primarily ones of co‐ordination, reporting, and monitoring and evaluation, besides preparing proposals for support. They have no executive role, but are often still involved in the distribution process of relief supports, and exhortations to the victim communities to help themselves as much as possible.



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459. In terms of performance of these functions, the NCDM respondent claimed that their co‐ordination and contacting of Ministry functions were “good” and well conducted. The percentages of respondents at lower levels considering their performance in such operations as “good” and “very good”.

460. Obviously the CDMs consider that their performance in co‐ordination and making support proposals is good and very good in most cases, but that some of the other functions that they are meant to perform are less well done.

461. From the priority needs to help their performance in relief and rehabilitation operations the prime needs cited are at all levels given as budgetary and the need for food reserves (see Survey Table 327). Transportation means, training and communications means follow as secondary needs, with a need for seed reserves expressed at the commune level (see Survey Table 328). Conclusions No. 13 Currently the mandate of CDMs is only as co‐ordinating structure, which they consider that they are performing reasonably well, and sometimes very well. They also feel that they make proposals for support reasonably well. Their performance on monitoring and evaluation and reporting, however, could apparently see improvement. It is clear, however, that at local levels they have also become involved in relief distribution activities, and that they wish to become more operational by managing food reserves, and sometimes seed reserves, and they want a budget for relief and rehabilitation operations. 14. Linkages and Disaster Management

462. This section attempted to see the degree of regular linkage established with other organisations. Questions 14.1 and 14.2 tried to see the extent of the establishment of Memoranda of Understanding (MoU) with other institutions involved in disaster management. At the national level the respondent said there were none (see Survey Table 330), but the NCDM themselves had supplied to the consultants with an MoU between the NCDM and the Cambodian Red Cross (CRC) of October 2007 that was an update and revision of an earlier MoU between them of October 2004. Two PCDMs (Kratie and Prey Veng) asserted that they had MoUs with NGOs (unspecified) (see Survey Table 331).

463. One PCDM, one DCDM and one CCDM (all in different provinces, but none of them in provinces where the EFAP programme is operating) said that they had formal agreements with other institutions over disaster management, with NGOs, and also at the commune level with MAFF and the Department of Women’s Affairs (see Survey Table 332). More detail on the nature of these is not available from the survey. Conclusions No. 14 It is clear that to date CDMs have had few formal agreements or Memoranda of Understanding (MoU) with other collaborating institutions in disaster management in the country. Earlier one of the leading staff of NCDM had been unaware that there was a MoU between NCDM and CRC, and it is clear that the respondent for the NCDM to this survey was unaware of it, also. In these circumstances, one wonders at the validity and utility of existing agreements.



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15. Disaster Management Policy and Food Emergency Policy

464. In the final question (15.1) of the survey, the consultants tried to obtain a clearer idea as to the policy improvements to disaster management policy and food emergency policy respondents at different levels considered the most important. The two most important policies at all levels that were cited were to provide regular budgets and training to staff of CDMs. Another strongly favoured policy at all levels was the approval of a disaster management law, and to a lesser extent (cited by about half of the respondents at all levels) the establishment of DM information systems and to have disaster management clearly included in Socio‐Economic Development Plans. These were all categories listed in the questionnaire. At the national level only the following additional policies were suggested: adopt revised old 1997 policy, establish a rehabilitation and reconstruction policy, establish a disaster prevention and mitigation policy, establish a disaster identification policy, and have a preparedness policy (with a budget and resources for immediate response to disasters) (see Survey Table 334).

465. In addition to these policy improvements, however, a whole number of others were cited that are listed in Table 79. Table 79 Other improvements in Disaster Management Policy and Food Emergency Policy suggested by respondents

Additional Suggested Improvements Province District Commune

Establish a Response policy that delivers on time68 ‐ 4 1

Clearly defined roles and responsibilities for CDM members

‐ 2 2

Establish Standard Operations Procedures (SOPs) 1 ‐ 2

Establish guidelines for reserve supplies for emergencies 1 1 1

Establish good evaluation systems 1 1 ‐

PCDMs to have their own staff and office ‐ 2 ‐

Establish good irrigation policy ‐ 1 ‐

Strengthening existing policy and building on it 1 ‐ ‐

Establishing Incentive System for CDM members ‐ 1 ‐

Clearly defined transportation availability policy ‐ ‐ 1

Integrate Disaster Management policy into all Sector policies

1 ‐ ‐

Establish clear Disaster Risk Reduction policy 1 ‐ ‐

Numbers of respondents 10 20 20

Source: Based on Survey Table 334 *

68 Also advocated by NCDM respondent.



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Conclusions No. 15 The major policy improvements suggested at all levels in relation to disaster management and food emergency were: regular budgets and training of CDM staff, followed by the approval of a disaster management law, establishing a DM information system and the incorporation of Disaster Management into all socio‐economic planning. It is also noted that there were quite a number of other policy suggestions from different levels of the system, which all need to be explored more fully, particularly having a timely disaster response strategy, clearer definition of the roles and responsibilities of CDM members, reserve supplies provision policy and Standard Operations Procedures (SOPs). It was noted, however, that the responses focused more on disaster management policy than upon food emergency policy, which still appears weakly developed.



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Categories

By Type of Ownership

1.1 Institutional 27 (21.3)

1.2 Private 100 (78.7)

1 Total/ Overall 127 (100.0)

By Province2.1 Battambang 13 (10.2)

2.2 Kampong Thom 12 (9.4)

2.3 Banteay Meanchey 13 (10.2)

2.4 Kompong Chhnang 12 (9.4)

2.5 Kompong Cham 14 (11.0)

2.6 Siemreap 13 (10.2)

2.7 Prey Veng 12 (9.4)

2.8 Kratie 12 (9.4)

2.9 Pursat 12 (9.4)

2.10 Odor Meanchey 12 (9.4)

2.11 Phnom Penh City 2 (1.6)


By Type of Organization

3.1 Green Trade 4 (3.1)

3.2 WFP 2 (1.6)

3.3 Cambodian Red Cross 11 (8.7)

3.4 Department of Agriculture, Forestry and

Fishery 10 (7.9)

3.5 Millers and Traders 100 (78.7)


Total

Respondent

APPENDIX G. SUMMARY OF GRAIN STORAGE SURVEY

466. The survey had the direct aims of gathering information about grain storage facilities, locations, capacity, quality, constraints, and storage behavior in Cambodia, and gathering information to evaluate the feasibility of designing a system of food reserves involving the private sector. Meetings were held with the World Food Programme (WFP), the Federation of Rice Millers Associations of Cambodia and the Green Trade Company to help facilitate and orient the survey.

467. The survey was conducted in the 7 EFAP programme provinces (Battambang, Banteay Meanchey, Udor Meanchey, Kampong Thom, Kampong Chnang, Siem Riep and Pursat) and 3 others that are more prone to floods and droughts (Kampong Cham, Kratie and Prey Veng) during February 2010.

468. The survey targeted two types of respondents: (i) institutions ‐ (Green Trade, WFP, Cambodian Red Cross, and Provincial Departments of Agriculture (PDAs)) and (ii) private sector (storage with millers – the 10 largest millers in each of the provinces surveyed). Where traders were recorded, these are actually millers who currently find it economically more viable to operate solely as traders, and are not currently operating as millers. Thus a total sample of 127 storage facilities were surveyed.

469. The draft questionnaire was prepared in collaboration with WFP, Green Trade and the Federation of Rice Millers Associations of Cambodia, and was tested before being applied generally. The survey questionnaire was prepared in English, and translated into Khmer, and the respondents responded to the questions in Khmer. The questionnaire was aimed at five basic areas of consideration: 1. Facilities, their equipment and capacities, 2. Storage use, 3. Losses, 4. Costs and 5. Improvements.

470. Questionnaires in both English and Khmer were pretested both in Phnom Penh and Kandal. The survey was carried out during February 2010 and data entry and analysis was undertaken in February and March 2010. Details on the Survey Design and Implementation are available from the Consultant’s Team and have been submitted to ADB and CPMU on a CD (including questionnaires, data in Access, Tabulations in Excel, and Survey Manual). In the

analysis given below the Survey Tables referred to are those in the 142 Excel Tables of Aggregated data from the survey.



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1. Storage Facilities, their capacities and their equipment

471. None of the grain storage surveyed was of bulk storage (silos), and 4.1% of the millers’ storage (mainly in Kratie) only consisted of small house rooms (see Survey Table 1). The vast majority of the warehouses were made with concrete/brick floors (see Survey Table 16), and with metal rooves, although 25% of the institutional storage surveyed had tiled rooves (see Survey Table 17). Although the walls were mainly of concrete/brick, 27% of walls were made of metal, and about a third were made of a mix of timber, concrete and metal (see Survey Table 18). The Green Trade Company and the WFP storage facilities often involve more than one unit, but the mean number of storage units per facility of millers was 1.2 (see Survey Table 2). Only in Phnom Penh did some storage operators tend to have more than 1 storage unit (see Survey Table 13). Most of the storage facilities are owned by the operators, only the WFP renting storage facilities on any scale (see Survey Table 4).

472. The mean grain storage capacity of warehouses of institutions surveyed was 1,840 tonnes, and for the private sector surveyed it was 2,478 tonnes. For Green Trade and millers, however, these means were higher – 3,375 tonnes and 2,891 tonnes respectively, whereas the mean storage capacity of private traders was only 610 tonnes and for PDAs only 378 tonnes. The mean for the WFP was 767 tonnes and for the CRC it was 1,191 tonnes. Considerable differences apply to different regions, however, with Battambang warehouses having a mean capacity of 7,939 tonnes and Bantheay Meanchey 3,587 tonnes, whereas the warehousing in Kratie had a mean of only 110 tonnes and Odor Meanchey of 567 tonnes (see Survey Table 15). Of the respondents 40% considered that their warehousing was in a “good” condition and 53% that it was “fair”, but only 37% of private sector respondents considered that their warehousing was “good” compared with 52% of institutional respondents considered their warehousing to be “good”. Nevertheless, 13% of institutional respondents thought that their warehousing was “poor”, whereas only 7% of private sector respondents felt that way. As no criteria for quality were linked with this, however, the classifications may have been fairly subjective.

473. The numbers of respondents using different kinds of equipment in their warehouses are set out in Table 80. Table 80 Numbers of respondents using different types of equipment in their warehouses

Type of equipment Green Trade

CRC WFP PDA Institu‐tions

Trad‐ers

Millers Private Sector

Total

Forklift ‐ 1 1 ‐ 2 ‐ 7 7 9

Conveyor Belt 1 ‐ ‐ ‐ 1 ‐ 23 23 24

Dryer ‐ ‐ ‐ ‐ ‐ ‐ 12 12 12

Elevator ‐ ‐ ‐ ‐ ‐ ‐ 2 2 2

Truck 1 3 ‐ ‐ 4 2 57 59 63

Tractor ‐ 1 ‐ 1 2 ‐ 13 13 15

Sorting Machine 1 ‐ ‐ ‐ 1 ‐ 26 26 27

Moisture Meter 3 ‐ 2 5 10 ‐ 20 20 30

Computer 2 7 2 7 18 ‐ 12 12 30

Computerized warehouse system

1 1 ‐ ‐ 2 ‐ ‐ ‐ 2



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Type of equipment Green Trade

CRC WFP PDA Institu‐tions

Trad‐ers

Millers Private Sector

Total

Weighing Scales 4 4 2 3 13 3 95 98 111

Weighing Station 1 ‐ ‐ ‐ 1 ‐ 7 7 8

Sewing Machine 3 1 2 ‐ 6 ‐ 89 89 95

Fans on roof/walls ‐ 1 ‐ 1 2 ‐ 15 15 17

Stand alone fans 1 3 1 ‐ 5 ‐ 19 19 24

Sprayer 1 ‐ 2 3 6 ‐ 7 7 13

Anti‐fire equipment 4 4 2 ‐ 10 1 68 69 79

Tarpaulins 2 5 2 2 11 3 71 74 85

Vacuum Cleaners 1 1 2 ‐ 4 ‐ 3 3 7

Flashlights/Torches 2 4 2 2 10 3 87 90 100

Hand jack 3 3 2 1 9 2 91 93 102

Maintenance Equipment

1 2 1 2 6 1 50 51 57

Pallets 3 6 2 9 20 ‐ 41 41 61

Rice refining plant ‐ ‐ 1 ‐ 1 ‐ 11 11 12

Water pump ‐ 1 1 1 3 ‐ 9 9 12

Total Respondents 4 11 2 10 27 3 97 100 127

Source: Based on Survey Tables 23, 23A and 23B

474. Table 80 shows that the storage facilities of institutions are more endowed with computers (those that have them they seem to have 4 to 5 each), but that the millers have more trucks or tractors attached to their warehouses, and have equipment such as dryers, conveyor belts and weighing stations. Most warehousing has weighing scales, sewing machines, hand jacks, torches, tarpaulins, anti‐fire equipment and pallets. For those that have them, however, institutional storage seems to have a mean of 7.8 trucks, whereas the private sector has only a mean of 1.9 trucks per warehouse, but many of the millers have that. Most warehouses have a mean of about 3 weighing scales and 2 to 3 sewing machines for sealing sacks per warehouse (see Survey Table 24). The CRC seems well endowed with tarpaulins, having a mean of 262 tarpaulins per warehouse surveyed (although often it appears that tarpaulins are concentrated in Phnom Penh), and the WFP, Millers and Green Trade being well‐endowed with pallets, having means per warehouse of these of 700, 505 and 283 respectively (see Survey Table 24a). The province of Prey Veng seems particularly endowed with pallets, having a mean number of 1,208 pallets per warehouse. Millers tend to have more nets for drying paddy (see Survey Table 24b).

475. The considered condition of this equipment is varied. Forklifts, Conveyor belts, Dryers, Elevators, Weighing stations, anti‐fire equipment (mainly fire extinguishers), and flashlights (torches) (except for some of the private sector ones) seem in good condition. The limited number of trucks of Green Trade and CRC that are attributed to warehouses, seem in good condition, but 81% of private sector trucks have their condition only described as “fair” (see Survey Table 29). Of the tractors attached to warehouses, 60% of them have a condition that is described as “fair”, and 7% of them are described as “poor” (see Survey Table 30). The condition of sorting machines, moisture meters, computers, weighing scales, sewing machines, different types of fans, sprayers, tarpaulins, vacuum cleaners, maintenance equipment , water pumps and plastic nets for drying paddy is more varied. Whereas the more limited number of hand jacks with institutional storage are apparently in “good” condition, 67% of those with the private sector are only considered “fair”. Of the pallets, 81% of the



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institutional storage pallets were considered in “good” condition, but only 44% of the private sector ones were (see Survey Table 48).

2. Storage Practices and Usage

476. All millers use their storage capacity for unhulled rice (paddy), and only about 34% of them use these facilities for hulled rice. Of the storage units of millers 8% to 16% of them use the facilities for storing seed, and 53% to 57% store equipment in them. Of the Green Trade Company respondents about 75% of its units use their facilities for unhulled rice, and 25% for hulled rice, as well as storing equipment. The CRC storage is primarily used for hulled rice and emergency kits, but they also store equipment in some of them. The PFSs primarily use their stores for seed and fertilizers, but also store equipment in them. Only the WFP stores a range of foods and other items in their stores (see Survey Tables 5 and 6). With both institutional storage and millers’ storage, different products are often stored in the same storage unit (see Survey Table 7), but this is often different forms of rice (unhulled, hulled and seed) or food products and equipment. PDAs do not store agri‐chemicals with other products, but do sometimes apparently store fertilizers with other products. Only a few respondents considered that there were negative effects from storing different products in the same storage unit (see Survey Table 9), and they were mainly millers in Pursat, who indicated moisture problems (see Survey Table 10).

477. During the last 12 months, the only products recorded as being stored by respondents were: unhulled rice, hulled rice, seed and equipment. Only unhulled rice and hulled rice (53%) were products stored by the institutional respondents (only 65% of the sample) during the last 12 months. PDAs predominantly just stored seed and equipment during this period. Presumably the other institutional storage did not store anything. All millers surveyed stored unmilled rice during the last 12 months, and about 30% stored milled rice. About 8% of millers also stored seed during that period (see Survey Table 62).

478. Most institutional storage systems have Monitoring/ Accounting Systems for Inventory Management (WFP has them in all), but only 23.6% of the private sector has (see Survey Table 63). Only 53% of institutional storage facilities had written documents with Standard Operations Procedures for warehousing operations, but only 11% of private sector operators did (see Survey Table 76). Only 36% of CRC respondents said that they had these.

479. Although the throughput of grains through the storage for different months was not measured the survey sought data on the mean end stocks of different products by month. These data for unmilled rice, milled rice and seed for different types of operator are presented in Table 81.

480. The data have been sorted by type of storage enterprise, because each type appears to have very different types of operation. The data here are dealing in means, so individual storage facilities may show much more variety. Total grain end‐stocks are then presented besides mean storage capacities to give some indication of capacity availability. It needs to remembered, however, that some of these enterprises store additional items in their stores (e.g. other food products and equipment (WFP and CRC), and equipment (PDAs and millers). The data suggest, however, that currently the WFP, Green Trade Company, PDAs and private traders have a fairly full use of their storage facilities throughout the year, sometimes with problems of inadequate storage capacity. It would appear, however, that the CRC has considerable under‐use of its storage facilities. Millers also



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have an apparent under‐use of their storage capacities throughout the year, with even greater spare capacity during the months from July to November, when most natural disasters occur in Cambodia.

481. Those respondents of the CRC who responded, indicated that their stocks were all intended for emergency purposes, as were 90% of the PDA stocks. PDA also keeps stocks to sell to farmers at subsidized prices to stimulate certain types of production. WFP stocks are currently for project implementation rather than for emergency needs. Half of Green Trade Company respondents indicated that their stocks were for emergency use, but stocks were also retained for inventory sale, seasonal arbitrage and programme implementation. All the traders indicated that their operations involved inventory sale, but some also engaged in seasonal arbitrage. Of the millers 87% are engaging in inventory sale, and 43% engage in seasonal arbitrage (see Survey Table 75).



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Table 81 Mean monthly end‐stocks of unmilled rice, milled rice and seeds, stored in warehouses, by different types of storage proprietor over the last 12 months, by those reporting only, set against mean storage capacity in warehousing used (tonnes)

Type of operator/ product January February March April May June July August Sept. Oct. Nov. Dec.

Unmilled Rice (Paddy)

Green Trade Company 2500 2733 2233 1567 1400 2733 3067 3067 3967 1483 983 2900

Provincial Dept. of Agriculture 200 200 200 200 200 200 200 150 150 150 150 200

Trader 737 917 917 917 917 910 570 567 260 843 845 703

Miller 1126 1170 1203 1157 1090 950 876 749 592 408 385 489

Milled rice

Green Trade Company 2000 2000 ‐ ‐ 1000 2000 ‐ ‐ 1000 ‐ 2000 ‐

World Food Programme (WFP) 876 907 370 1087 1870 1297 1063 801 624 1155 720 997

Cambodian Red Cross (CRC) 28 28 28 29 29 28 28 27 26 26 26 25

Miller 31 33 28 29 29 38 28 27 30 24 19 18

Seed

Provincial Dept. of Agriculture 47 47 47 87 82 82 82 107 82 82 82 87

Miller 31 31 41 21 39 33 50 30 11 1 1 0

Total grain end‐stocks/ capacity

Green Trade Company ‐ stock 4500 4733 2233 1567 2400 4733 3067 3067 4967 1483 2983 2900

Green Trade Company ‐ capacity

3375 3375 3375 3375 3375 3375 3375 3375 3375 3375 3375 3375

WFP ‐ stock 876 907 370 1087 1870 1297 1063 801 624 1155 720 997

WFP ‐ capacity 767 767 767 767 767 767 767 767 767 767 767 767

CRC ‐ stock 28 28 28 29 29 28 28 27 26 26 26 25

CRC ‐ capacity 1191 1191 1191 1191 1191 1191 1191 1191 1191 1191 1191 1191

PDA ‐ stock 247 247 247 287 282 282 282 257 232 232 232 287

PDA ‐ capacity 378 378 378 378 378 378 378 378 378 378 378 378

Trader ‐ stock 737 917 917 917 917 910 570 567 260 843 845 703

Trader ‐ capacity 610 610 610 610 610 610 610 610 610 610 610 610

Miller ‐ stock 1188 1234 1282 1207 1158 1021 954 806 633 433 405 507

Miller ‐ capacity 2891 2891 2891 2891 2891 2891 2891 2891 2891 2891 2891 2891

Source: Based on Survey Tables 15, 65, 70 and 73



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482. The mean number of days that unmilled rice, milled rice and seed are stored by different types of operator are set out in Table 82. Table 82 Mean number of days different grains stored by type of operator, from those reporting

Type of Operator Unmilled rice (paddy) Milled Rice Seed

Green Trade Company 210.0 30.0 ‐

WFP ‐ 105.0 ‐

CRC ‐ 36.4 ‐

PDA ‐ 90.0 183.8

Institutional 210.0 52.8 183.8

Trader 100.0 ‐ ‐

Miller 155.7 5.3 153.1

Private Sector 153.4 5.3 153.1

Total 155.0 15.6 153.1


483. From Table 3 it can be seen that Green Trade Company ends up storing unmilled rice (paddy) for the longest period of time at a mean of 210 days, but its turnover in milled rice is much shorter, being only 30 days. WFP takes much longer in its turnover of milled rice at 106 days. The PDAs also store milled rice for a mean of 90 days, and their seed stocks for even longer, for a mean of 183.8 days, their seed stocks mainly being kept for emergency needs. Traders have a swifter turnover of their paddy stocks at a mean of 100 days than millers, whose mean for paddy is 155.7 days. Millers mainly stock their paddy, only milling it when they are about to sell the milled rice, and accordingly their milled rice stocks are of short duration at a mean of 5.3 days.

484. The CRC and PDAs are the major enterprises almost exclusively retaining stocks for emergencies. The PDAs only tend to replenish their stocks annually, whereas the CRC does it at a mix of intervals, but not usually less than monthly. The Green Trade Company, having different intentions for its stock replenishes at different intervals but not normally on a less than quarterly basis. Traders tend to replenish their stocks every day, and 48.5% of millers responding to the survey did the same, but other millers buy annually. The range of replenishment approaches appears greater with millers (see Survey Table 81).

485. The WFP uses others to provide services, and Green Trade and PDAs also do occasionally, but only a few private sector operators do (see Survey Table 102). WFP has used Green Trade for certain services, but other operators tend to use millers, apparently for storage activities (see Survey Table 103). Some Green Trade, CRC and PDAs occasionally have storage space that is available to let. About 16.5% of millers who responded indicated that they had storage space to let (see Survey Table 106). Green Trade Company had the most storage space available with a mean storage space available of 11,500 tonnes, primarily apparently in Phnom Penh. The mean storage space that millers had available was 1,275 tonnes. CRC and PDA, which are the main institutions involved primarily with emergency stocks, only had means of 250 tonnes and 750 tonnes respectively that would be available for renting.

486. Table 83 indicates the storage units and capacity available for renting out in the survey sample. About 45,000 tonnes capacity is available for renting out, of which more 52% is available



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among institutional sector and 48% among private sector. As noted above, the availability of storage for renting out in the private sector is primarily during the months from July to November, when most of the disasters occur (floods and storms). Table 83 Storage Units and Capacity Available for Renting Out

Number of Storage Units Available for Renting out

Average Storage Space Available for Rent (Tonnes)

Total Storage Capacity Available for Renting out

(tonnes)

Percentage of Total Storage Available for Renting out

Institutional 4 5,875 23,500 52%

Private 18 1,217 21,900 48%

Total 22 2,064 45,400 100%

3. Employment Structure in Storage Facilities

487. Institutional storage facilities had a mean of 1.1 managers per facility, and a mean of 4.6 technicians and a mean of 15.3 workers, making a mean number of staff of 20.9 (13.1 full‐time and 7.8 part‐time). Green Trade Company only had 1 manager, but a mean of 7 technicians and 33.5 support staff per facility, making a mean number of total staff of 41.5 per facility (28 full‐time and 13.5 part‐time). Even the WFP had a mean number of total staff of 33.5 (18.5 full‐time and 15 part‐time), of whom 30 were support staff. In comparison PDA storage facilities and CRC ones had a much leaner staffing, with a mean of 7.6 staff (3.9 full‐time and 3.7 part‐time) in the PDA facilities and 10.2 staff (6 full‐time and 4.2 part‐time) in the CRC facilities. In comparison private sector millers, are usually owner/managers, although the mean of owner/managers was 1.3, indicating that a number of owners probably had managers as well. The mean number of technicians they employed were 2, and a mean of 13.3 support staff, making a mean total of employees of 16.6 per facility (8.9 full‐time and 7.7 part‐time) (see Survey Tables 77 and 78 – subtracting mean of full‐time staff from mean of total staff to arrive at mean of part‐time staff).

4. Grain losses in storage

488. Interestingly, 65% of institutional operators did not report storage losses. This is apparently because the non‐respondents claim that they do not have any losses. THE CRC respondents indicated quantity losses, whereas the WFP indicated quality losses, while the Green Trade Company and PDAs indicated both quantity and quality losses, but more so quantity losses. Private traders and millers indicated both quantity and quality losses, but much more so quantity losses (see Survey Table 82). Generally quantity loss is considered much more severe by most respondents, only a quarter of respondents usually indicating quality loss being more severe (see Survey Table 83). Quality loss was cited much more as a problem with PDAs, which are mainly stocking seeds and milled rice, both of which are more liable to quality losses, and quantity losses for them were strongly influenced by moisture (see Survey Table 84). Amongst institutional operators the main cited causes of losses were (in order of importance): rodents, moisture and birds. With private sector operators, 87% cited rodents as the main cause of losses, followed by birds (83%). Moisture questions were also cited by 69% of them as also being a cause of quantity losses, despite some of the private sector having more



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drying equipment (see above). The extent of quantity losses of grains from different causes are shown in Table 84. Table 84 Mean percentage loss of grains in storage from different causes, by type of operator reporting losses, and months in which the main losses occur (% of respondents)69

Loss Cause/ Month

Green Trade

PDA Instit‐ution

Trader Miller Private Sector

Total

Rodents 1.0% 1.6% 1.0% 1.0% 1.1% 1.1% 1.1%

Birds 1.5% 1.2% 1.5% ‐ 1.0% 1.0% 1.1%

Insects ‐ 1.0% 1.0% ‐ 1.0% 1.0% 1.0%

Moisture 4.7% 3.6% 4.7% 7.0% 3.4% 3.5% 3.5%

Mean Total Loss 7.2% 7.4% 8.2% 8.0% 6.5% 6.6% 6.7%

January 33.3% 12.5% 40% 33.3% 22.1% 21.7% 22.5%

February 33.3% 25.0% 60% 33.3% 43.2% 41.5% 42.3%

March 33.3% 37.5% 60% 66.7% 60.0% 58.5% 58.6%

April 33.3% 50.0% 60% 66.7% 66.3% 65.1% 64.9%

May 66.7% 50.0% 60% 33.3% 70.5% 67.9% 67.6%

June 66.7% 50.0% 40% 66.7% 72.6% 70.8% 69.4%

July 33.3% 37.5% 20% 100.0% 70.5% 68.9% 66.7%

August 33.3% 62.5% 20% 66.7% 61.1% 61.3% 59.5%

September ‐ 62.5% ‐ 33.3% 48.4% 49.1% 46.9%

October ‐ 50.0% ‐ ‐ 32.6% 33.0% 31.5%

November 33.3% 50.0% 20% 66.7% 20.0% 23.6% 23.4%

December 33.3% 37.5% 20% 66.7% 15.8% 18.9% 18.9%


489. As can be seen in Table 84, the most significant quantitative losses are from moisture problems, and overall private sector losses are estimated as being slightly less than institutional operators’ ones. Losses occur in all months of the year, but less in the period from November through until the end of January (relatively dry months). The peak months for losses are from March through till the end of August, primarily through the early part of the rainy season. Moisture and mould were the most cited reasons for quality loss (see Survey Table 93). None of the respondents cited flood as a cause of quality losses, and only one respondent in Pursat had a medium need for a drainage system against flooding (see Survey Table 112). Quality losses are greatest from June through till the end of September, predominantly through the rainy season (see Survey Table 99).

490. Remedial measures taken to overcome losses were not indicated by 20% of institutional and 40% of private sector respondents. The remedial activities cited by institutional operators were to purchase the paddy dry, drying, using pesticides and traps. Amongst private sector operators the most common remedial measures were traps, drying and pesticides, followed by purchasing the paddy dry, but they also had a range of other remedial measures, although these were cited to a much lesser extent (see Survey Table 91). For measures that operators wished to use in the future to control losses, institutional operators said that purchasing paddy in a dry state was still going to be important, but there was also some demand for driers and consideration of making their warehouses

69 These data also include data from CRC in the institution totals and overall totals



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more rodent and bird proof. Private operators cited purchasing paddy dry, or drying paddy well before storage as important measures to overcome problems, but some also wanted driers and to make their warehouses more rodent and bird proof (see Survey Table 92). Drying is the main method for controlling quality losses, but also the private sector operators also rely on observation to some extent (see Survey Table 100). The main measures private sector operators considered taking in the future to reduce quality losses were purchasing paddy dry, drying it before storage and obtaining a drier. Some also contemplated investing in a color sorter (see Survey Table 101).

5. Costs of services

491. Although most storage operators do not use the services of others, some of them are aware of the costs of services of others, but only about 13% of millers were aware of these, and about 7% of institutional operators, they knowing the costs per quantity, by duration (see Survey Tables 104 and 105). The institutional respondents indicated a mean cost of renting of US$ 0.2 per tonne/month, for 3,000 tonnes stored over one year (see Table 85). With the private sector respondents the mean renting cost was given as US$ 0.24 per tonne/month, for a mean of 726.8 tonnes stored over 155 days. Table 85 Cost of Renting Storage

Unit cost/month/ tonne ($) for a certain period and quantity Period (days)

Average Quantity (tonnes)

Institutional 0.2 365 3000

Private 0.24 155 727

Millers 0.13 215 338

492. For the few respondents who gave charges that they would make for renting out storage space, the CRC indicated a mean cost of US$500 for 250 tonnes for 30 days, which corresponds to a mean of US$ 6/tonne/month (for month of 30 days) (see Survey Table 107). For the PDAs the mean cost was US$750 for 750 tonnes for 30 days, which corresponds to US$ 3.3/tonne/month. The Green Trade Company calculates rates on a basis of area, and 3 tonnes/per square metre, which constitutes a mean cost/tonne/month of US$ 1.7. The mean cost millers indicated was US$ 316.6 for a mean quantity of 338.3 tonnes for a mean duration of 215.3 days, which corresponds to a mean cost of US$ 0.13/tonne/month, which is very much lower than the other rates.

6. Desired Storage Improvements

493. Amongst the types of improvements sought, the WFP respondents (in Kompong Cham) were only interested in controlled temperature and improved ventilation systems, presumably because of the mix of products that they are currently storing. Of the private traders who responded their only interest was in extending the capacity of their existing structures, which was their highest priority. Green Trade Company respondents wanted driers in several locations, and one of the highest priorities was for a grading machine in Phnom Penh. Amongst the CRC respondents the greatest desires were for expanded capacity of current structures and new warehouses for the storage of seed. Other desires cited were: have weighing station (only high priority for some), improved access to road (only highest priority for CRC in Kompong Chhnang), computerized management system (only



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CRC in Battambang had it as a high priority), temperature control, warehouse equipment, separate room for different commodities (highest priority in Siem Reap) and upgrade office (high priority in Prey Veng). Only 60% of PDAs responded, and amongst those that did, repair or improvement of existing warehouses, and provision of driers were the most important items cited, but secondly, they considered the expansion of existing capacity, more pallets (in Siem Reap), metal netting against rodents and birds (in Battambang), ventilation systems and warehouse equipment provision as the next most important. Amongst millers the needs were much more varied, but 57% of those who responded wanted to expand existing capacity, 47% needed driers, 34% wanted to upgrade their milling machinery, and 22% wanted color sorting machines (see Survey Tables 108 to 140).

494. Over the next year the following enterprises considered they would be investing in storage improvements (see Survey Table 141): Two of the Green Trade Company respondents with an investment of US$ 1.4 million each; 3 of the CRC respondents with an investment of US$ 17,333 each (funding from donations and/or CRC); 3 PDAs (in Kompong Cham, Prey Veng and Kratie) with and investment of US$ 38,917 each from the government budget; and one private trader intends making an investment worth US$ 20,000 from his own capital. Of the private millers, 45.4% (44) of respondents said that they intended making investments of a mean of US$ 213,727 each during the forthcoming year (82% of them expecting to fund these partly from their own capital, and 64% expecting to fund these partly from bank funding) (see Survey Tables 141 and 142).



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APPENDIX H. CAMBODIA RED CROSS (CRC) AND DISASTER MANAGEMENT IN CAMBODIA

495. Founded in 1955 the Cambodian Red Cross (CRC) is the largest humanitarian civil society organisation in Cambodia. For some time it has acted as an auxiliary to RGC for humanitarian work, and the implementation of disaster response in the event of different types of disaster. Their Department of Disaster Management (DMD) was created in 1994. CRC Statutes were amended on September 4, 2006 for it to have formal status for its activities as an auxiliary of the RGC. The CRC National Headquarters (NHC) is in Phnom Penh. It has links with South‐East Asia Regional Disaster Management Committee (SEA‐RDMC), with a Regional Disaster Response Team (RDRT). It was re‐instated as a member of the International Federation of Red Cross and Red Crescent Societies (IFRC) in 1994. CRC is a member of Asia‐Pacific Regional Disaster Management Committee and the ASEAN Disaster Management Committee. It is also a member of the Cambodia Disaster Risk Reduction Forum (CDRR) and the United Nations for Disaster Management Team (UNDMT).

496. The General Assembly (GA) is the highest authority of the CRC, but its ordinary sessions are only held once every four years. It is composed of Members of the Central Committee, the chairpersons of the Branch Committees and elected representatives of the Branch Committees. Extraordinary General Assemblies can be convened by a majority vote of the Central Committee or at the request of one third of the members of the previous GA. The Central Committee (CC) is the permanent governing body between sessions of the GA. It consists of 15 members from the Royal Palace, Ministry of Justice, members of the National Assembly, National Bank, Ministry of Health and businessmen. The term of office of these CC members is 4 years. Each provincial committee consists of a President, 2 Vice‐Presidents, 11 members elected by the General Assembly and 3 outstanding personalities chosen by the CC. The Finance Commission, composed of a chairperson and 5 members advises the CC on financial matters. Bun Rany Hun Sen, wife of the Prime Minister, Hun Sen, has been President of the CRC for the last two terms.

497. The operational management of the CRC is led by a full‐time Secretary General, who establishes the structure of the General Secretariat. She/he is assisted by the Secretariat, the Directors of the four departments and all managerial officers and staff.

498. The CRC has Branches at the provincial level with 2 Development Officers (DOs) (one of whom is focussed on DM), the territory of each branch and the responsibilities of each branch being established by the CC. At the commune level there are Commune Councils for Disaster Management (CCDMs). Only one CRC Group can operate within a Commune at any one time. They have Village Development Committees (VDCs) and 8,000 Red Cross Volunteers (RCVs) at the village level, and Red Cross Leaders (RCLs) at the commune level70. Many of these Volunteers and Leaders have been given a basic training course in Disaster Management.

499. The CRC has a current Strategy 2003‐2010 in which Disaster Management and Disaster Preparedness were presented as one of its four core activities, following the guidelines of the IFRC’s

70 In 2003 it had around 126,318 members; and a network of more than 5,700 Red Cross Volunteers (RCV) and 5,300 Red Cross Youth (RCY) working at the community level throughout the country. By 2008 it had about 200 staff, 8,000 active volunteers and 8,000 Red Cross Youth.



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Manila Action Plan of 2002. Prior to this Strategy it had been involved for 10 years in flood and drought relief efforts. Its Disaster Management Department has a Strategic Plan for 2008‐2012 (see below). There is also meant to be a Multi‐Hazard Contingency Plan. This Contingency Plan is being revised, and should be produced in June 2010. The CRC also has a Human Resource Development Strategy 2009‐2013.

500. Dr Uy Sam Ath is Director of Disaster Management Dept (DMD): Mr. Yim Sonn is Head of Disaster Response & Preparedness sub‐dept, and Mr. Duch Sam Ang is Project Manager for Disaster Response Preparedness (DRP):

501. The organisational structure of the CRC is as follows: a) Dept. of Administration & Finance b) Dept. of Disaster Management (DMD)

i. Sub‐Dept. Logistics & Operations ii. Sub‐Dept. Disaster Response & Preparedness (DRP) (Training)

c) Dept. of Health d) Dept. of Communications e) Dept. of Human Resources (created in 2005)

502. It is incorporated into the IFRC Disaster Management Information System (DMIS), forecasting, monitoring and reporting on disaster events and emergencies. Initially equipped with HF and VHF radio equipment for telecommunications, as this equipment has been aging, a number of branches have substituted with internet and mobile phone technologies.

503. The CRC has a “Disaster Management Department Strategic Plan 2008‐2012” (CRC undated). This plan, coming from a recognition that its disaster management activities could still be improved further, that the IFRC strategies advocated a scaling‐up of humanitarian disaster relief and response work, and that there was a need to make clearer the CRC’s DMD strategies in this area of work, aims to:

Link with vulnerable communities and increase their awareness of hazard risk (both natural and man‐made), to enable them to prevent or mitigate possible disasters more themselves, and link this with local development planning;

Collaborate with the CRC Communications Department in developing a disaster management communications strategy;

Promote disaster risk reduction policies amongst pertinent communities, local structures, and government, following international guidelines;

Identifying hazards, improving early warning systems, and undertaking initial and ongoing disaster assessments in the event of disasters;

Provide and scale‐up timely and appropriate short and medium‐term relief in terms of food, household items, health services, emergency shelter, drinkable water, sanitation and psychosocial support in the event of disasters, through its community‐based networks, building up pre‐positioned stocks of required relief inputs;

Scale‐up its disaster management work during this period with increased collaboration with partner institutions in disaster management;



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Provide disaster management training to CRC staff in the DMD at HQ, and also to staff in the CRC branches, as well as providing training to other partners in disaster management, and building a Training Unit for this;

Work with the Human Resources Department of CRC to develop a targeted capacity‐building plan and revised departmental structure.

504. This DMD Strategy is seen as a first stepping‐stone to a more comprehensive National Society Disaster Management Strategic Plan. The DMD is meant to be producing annual action plans within this strategy and a Three‐Year Development Plan (2008‐2010). They also have Standard Operating Procedures for Disaster Response Team from 2007 that is currently being revised during April 2010. The CRC also has its own logistics system and procedures, and its financial procedures for emergency operations.

505. The CRC approach has been not only to provide support to communities in the event of disasters (both natural disasters and others), but also to build the capacity of local communities to be prepared for, and to mitigate, the impact of disasters, and the undertaking of community‐initiated risk reduction measures (Community‐based Disaster Risk Reduction – CBDRR). It is moving more from relief into community‐preparedness, and over the years has developed a Community‐Based Disaster Preparedness Programme (CBDP), particularly involving flood warning systems and flood evacuation plans. The CBDP was only active in 27 villages and 4 disaster‐affected provinces at the time of the formulation of the CRC DMD Strategic Plan for 2008‐2012. Safe areas have been established for humans and livestock. It has also involved the pre‐positioning of food and non‐food supplies in anticipation of particular types of disaster. Communities have more often been more inclined to mitigation, rather than preparedness. The CRC’s DRP team has been increasingly working with local communities since 2007 towards these aims, working in close collaboration with the NCDM’s committees at all levels.

506. CRC acknowledges that the prime responsibility for disaster relief lies with the RGC. The CRC is mandated to “take into account the interventions and activities of NCDM …” and other institutions. The relief provisions that it is mandated to provide include food and nutritional benefits, and may include rice, canned fish, cooking oil, salt and instant noodles, stocking supplies for up to 8,000 families at any one time. Their capacities only enable immediate relief responses, and not sustained responses over any length of time. Their focus is particularly on the most vulnerable groups in any particular disaster, primarily often the elderly, the poor, HIV sufferers, widows with children and some ethnic groups. They have a structure for assessing their disaster response capabilities and functioning. They have been establishing a National Disaster Response Team (NDRT) since 2007. At the provincial Branch level they have established Field Disaster Response Teams (FDRT) that form the “front‐line brigade” in the event of any disaster. Participating members of these teams have to be prepared to commit themselves for at least two weeks in the event of a disaster, and have to be prepared for deployment within 2‐4 hours notice. They sometimes organise Field Assessment and Co‐ordination Teams (FACTs) mobilised by the Regional Disaster Management Committees (RGMC) of the IFRC, of trained personnel, when needed for assessments or field co‐ordination.

507. The CRC supports the development of early warning systems, and engage in Vulnerability and Capability Assessments, and Participatory Risk Assessments (PRAs). There are also Evaluation reports on operations for particular emergencies. Field Disaster Response Teams (FDRTs) make assessments at the scene of disaster.



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508. The CRC has M & E co‐ordinators in each of its provincial Branches, responding to the M & E Unit at the central level in Phnom Penh. The CRC recognises that capacity building initiatives are needed to improve the overall management and leadership functions; improve effective systems, structures, policies and procedures, particularly in areas such as planning, reporting, and monitoring and evaluation. It has been receiving and developing Organisational Development (OD) within the CRC since the early 1990s. Their main focus in this has been in building the capacity of central governance and staff at headquarters level; and then developing the capacity of branches. Governance and management have been formally separated within the CRC and its statutes and laws revised. Policies and procedures in relation to finance, human resource management and development have improved, including the improvement of the organisational structure. There are now also CRC branches in all 24 provinces of the country.

509. Within their Strategy for 2003‐2010, however, the CRC did recognise the need to improve co‐ordination and collaboration with other institutions involved in linked activities. In this context the CRC established a Memorandum of Understanding with the NCDM over their approaches and responsibilities in October 2007 (NCDM/CRC 2007) that was an update and revision of one previously agreed in October 2004. Although specifying a number of collaborative areas of operation, the MoU clearly stated that it “is not directly related to the operational Disaster Response interventions carried out by individual agency with their approachable resources.”

510. NCDM and CRC identified (NCDM/CRC 2007 p4) the following types of coordination and cooperation needed in their activities: (1) In fact of the Emergency early warning or Disaster Catastrophic declared by NCDM, CRC must be responsible to publicize through its network. (2) Independent activities of one agency that may be of interest or consequence to the other agency. For these activities, each agency agrees to provide prior notification, in writing or electronic message, and periodic status reports to the other agency to the extent practicable. (3) Joint activities agreed to, planned, and executed by both NCDM and CRC to address common objectives within the interests and missions of both. Each agency shall provide the support required to meet its commitments to these joint activities. (4) Activities that are consistent with the mission objectives of each agency, in which participation of both agencies is optimal for completion of the activity, but such participation may not be a program priority for one agency and is reimbursed by the other agency. The supportive documents (cooperative agreement) shall be required for such participation.

511. These general statements indicate not only common aspirations, but also the areas in which perhaps most difficulties of collaboration have been occurring. The MoU indicated their commitment to provide agreed Addenda on specific aspects, provide designated contact personnel for this MoU and publicise the MoU’s existence within their organisations. It is not sure how effective this has been because the consultant discovered that a leading functionary of the NCDM General Secretariat was unaware of its existence, as was the respondent for the NCDM in the Institutional Survey undertaken by the consultants in January 2010. The MoU also reviews mutual consultation needs prior to publication of particular documents by either organisation, efforts to resolve differences



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over such publication texts, but has the rights still to publish, with appropriate citation and attribution. The CRC’s DMD, however, has as one of its current strategic aims to “promote NCDM as Cambodia’s national coordinating body for disaster management and encourage key stakeholders (government ministries, international organizations and NGOs) to strengthen linkages with PCDM, DCDM, and CCDM in relevant areas as a means of understanding shared resources” (CRC undated p18).

512. Their Human Resource Development Strategy 2009‐2013 (CRC 2008d) focuses on strengthening the organisation’s structure (identifying key positions, job analysis and decentralisation), managing individual staff members (introduce Personnel Management Information System – PMIS; staff handbook), establishing incentive mechanisms and reward systems (Conditions of Service; review remuneration in comparative context; team‐building and staff satisfaction), improving skill development (skills mapping; additional recruitment; additional HR support needs; training and development programme; CRC Training Center; curriculum standardisation; training feedback) and improving internal communication and co‐ordination (email, regular meetings and newsletters for communication; more frequent collaboration). A 5 Year Action Plan for HRD and budget has been prepared (but not seen by the consultants).

513. The Human Resources Department was created in 2005. In the last few years the following weaknesses in human resources development in CRC were noted:

Inadequate structure, systems, policies and procedures within the CRC for changing needs;

Human Resources insufficiently resourced;

No effective performance management and reward systems;

No formalized training and development system inhibiting skill development;

Capacity resting on individuals, not the group or organisation, resulting in poor institutional memory;

Inconsistent implementation of Human Resources development;

CRC influenced by job competition in NGO sector.

514. The current CRC Human Resources Training programme for different levels of the organisation includes training on the following aspects:

CRC orientation

First Aid

Disaster Concepts and management

Hazard, Vulnerability and Capacity Assessment (HVCA)

Local Disaster Risk Reduction Plans (LDRRPs)

Flood Early Warning Systems and Climate change Adaptation

Monitoring and Evaluation and Reporting

Commune Committee for Disaster Management orientation

Disaster Response Team (DRT) induction

Emergency Assessment

Logistics Management

Relief Management

Emergency Health Management



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515. The DMD has been providing disaster management (DM) and CBDP training and services to other institutions involved in disaster management in the country, such as NGOs and IOs, and the ADPC has been providing such training to CCDMs in various provinces.

516. The NDRT is responsible for maintaining and updating the database of NDRT members and providing the HRD Personnel Bureau with updated lists of members every quarter. The director of CRC Branches is responsible for doing this with lists of FDRT members.



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APPENDIX I. NATIONAL COMMITTEE FOR DISASTER MANAGEMENT (NCDM) AND ITS

LOCAL STRUCTURES

517. The National Committee for Disaster Management (NCDM) was established in 1995 (Sub‐decree No. 54 ANKR‐BK) by the Royal Government of Cambodia (RGC), as the collaborative committee of different pertinent Ministries in the Cambodian Government, responsible to Council of Ministers, and through them to the Prime Minister for Cambodian Government Policy‐Making for Emergency Response. In 1999 its statutes were amended to establish Provincial and District level committees to be responsible for disaster management at their respective levels over their respective zones of operation, and these were incorporated in the Royal decree no. 0202 / 040 dated February 16, 2002 on the formation of the National Committee for Disaster Management. In 2006 (by Royal sub‐decree No.61 ANKR‐BK) (July 2006) the system was extended down to the Commune level.

518. The structure of the NCDM is as follows:

519. The NCDM consists of the following: 1‐ The Prime Minister President 2‐ A senior dignitary First Vice President 3‐ A senior dignitary Second Vice President 4‐ Minster of the Ministry of Interior Vice President 5‐ Minister of the Ministry of National Defence Vice President



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520. And the following members: 6‐ Minister of the Council of Ministers 7‐ Minister of the Ministry of Economy and Finance 8‐ Minister of the Ministry of Foreign affairs and International Cooperation

9‐ Minister of the Ministry of Environment 10‐ Minister of the Ministry of Water Resources and Meteorology ` 11‐ Minister of the Ministry of Agriculture, Forestry and Fisheries ` 12‐ Minister of the Ministry of Commerce 13‐ Minister of the Ministry of Health 14‐ Minister of the Ministry of Rural Development 15‐ Minister of the Ministry of Industry, Mines and Energy 16‐ Minister of the Ministry of Social affairs, Veterans and Youth Rehabilitation 17‐ Minister of the Ministry of Public Works and Transport 18‐ Minister of the Ministry of Education, Youth and Sports 19‐ Minister of the Ministry of Women’s Affairs 20‐ Representative of the Commander in Chief of the Royal Cambodian Armed Forces 21‐ Representative of the President of National Association of the Cambodian Red Cross 22‐ Secretary of State of the Secretariat of Civil Aviation

521. The total number of members of the NCDM in January 2010 was 23. The NCDM has the following duties: A. Monitors, assesses, collects, analyzes and manages data on danger arising from disasters and compiles reports on disaster situations to recommend the Royal Government set up guidelines, policies, directories, Prakas and other measures for disasters management; B. Summits proposals to the Royal Government on needs and uses of resources such as funds, equipment, oil, means of use and human resources to operate disaster management activities and to help victims affected by natural disasters and human beings; C. Develops human resources by providing technical skills training and education to the officers in charge of disaster management activities at national, relevant ministries, province, city, district, Khan, commune, Sangkat and village levels and raises public awareness of people in communities on danger caused by natural disasters and human beings; D. Collaborates with Royal Government’s ministries and institutions, UN agencies, local and international organizations as well as donors to implement national policies on disaster management such as preventive measures, relief and preparation for fighting against danger arising from natural disasters and human beings; E. Liaises and coordinates at national, regional levels and international cooperation to share information on situations of disasters intended aimed at reducing the impact by the disasters; F. Coordinates with the Royal Government’s ministries and institutions, UN agencies, local and international organizations, international communities and local donors to seek aid to immediately respond to the rescue and rehabilitation of the damages caused by the disasters. (Article 2 of NCDM legislation)



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522. This legislation does not define what can be considered to constitute a “disaster”, but indicates that disasters can be “natural disasters” or caused by “human beings”. The Cabinet of the President of the NCDM

523. The Cabinet of the President of the NCDM is responsible for facilitating all of the NCDM president’s work. The First Vice President acts on behalf of the NCDM President to deal directly with all the affairs and operation, summarize reports and submit them to the NCDM President, supported by assistants.

524. The cabinet has the following duties and responsibilities: o Responsible for work relation; o Advises the President and First Vice President of the National Committee for Disaster Management the general affairs and the cases the President or First Vice President has assigned to inspect; o Disseminates the guidelines from the President and First Vice President of the National Committee for Disaster Management; o Prepares schedules of the President and First Vice President of the National Committee for Disaster Management; o Prepares meeting of the National Committee for Disaster Management; o Disseminates the regulation of the President and First Vice President of the National Committee for Disaster Management; o Monitors the implementation of the regulation of the President and First Vice President of the National Committee for Disaster Management. (Article 10 NCDM legislation) Working Team of the NCDM

525. This consists of: 1. H.E. Nhim Vanda, Senior Minister and the First Vice President of the NCDM (President) 2. H.E. Serey Kosal, Senior Minister and Second Vice President of the NCDM (Vice President) 3. H.E. Ok Rabun, Secretary of State of the Ministry of Economy and Finance (Vice President) Members 4. H.E. Chan Tong Iv, Secretary of State of the Ministry of Agriculture, Forestry and Fisheries 5. H.E. Morm Bunheng, Secretary of State of the Ministry of Health 6. H.E. Soung Heng, Secretary of State of the Ministry of Public Works and Transport 7. H.E. Chun Samoung, Secretary of State of Ministry of Rural Development 8. H.E. Sam Sarith, Secretary of State of Ministry of Water Resources and Meteorology 9. H.E. Kem Sithan, Secretary of State of Ministry of Commerce 10. H.E. Ouk Damry, First Vice President of Cambodian Red Cross 11. H.E. Pov Samy, Secretary General of National Committee for Disaster Management 12. H.E. Lieutenant General Hing Bun Heang, Deputy Cabinet Chief of Samdech Prime Minister 13. H.E. Lieutenant General Kvan Seam, Engineering Department Commander, General Commander of Royal Cambodian Armed Forces



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14. H.E. Major General, Kung Eang, Deputy Director of the Engineering Department of Ministry of National Defence 15. The Representative of UNDMT 16. Representative of IFRC 17. NGOs 18. Mr. Serey Chumneas Secretary 19. Mr. Khun Sokha Secretary 20. Mr. Cheav Nak Secretary

526. The responsibilities of this working team are:

o Coordinates and disseminates information to its partners; o Shares the responsibilities in emergency relief responses; o Assesses the damages and needs in the affected areas; o Prepares preventive plan for disasters reduction and responds to the emergency o relief and Rehabilitation after the disaster; o Gathers information to be ready for each ministry, institution and organization’s o capacity and capability to respond to disasters; o Conducts meetings with the teams.

527. This Working Team has 5 sub‐teams as its assistants who are composed of: 1. Emergency Relief Sub‐team

528. Directed by H.E. Ouk Damry, H.E. Lieutenant General Hing Bun Heang and under the support from IFRC, UN agencies, international organizations and NGOs. Its obligation is to disseminate information, to prepare to rescue the victims, distribute the aid and attend the meeting upon invitation by the sub‐team leader. 2. Food Security Sub‐team

529. Directed by H.E. Chan Tong Iv and under the support by FAO and WFP. Its obligation is to disseminate information, prepare and educate people about rice and vegetable seeds, planting techniques, animal diseases and attend the meeting upon invitation by the sub‐team leader. 3. Health Sub‐Team

530. Directed by H.E. Mom Bunheng and under the support by WHO and UNICEF. Its obligation is to disseminate information, educate people about diseases, the prevention and treatment, first aid measures and attend meeting upon invitation by the sub‐team leader. 4. Small‐sized infrastructure, sanitation and clean water Sub‐team

531. Directed by H.E. Phorn Samoun, H.E. Lieutenant General Kvan Seam and under the support by UNICEF, WHO and WFP. Its obligation is to disseminate information and manage the prevention, care and rehabilitation works of the small‐sized infrastructure, sanitation and clean water supplies and attend meetings upon invitation by the sub‐team leader.



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5. Disaster Preparation and Reduction Sub‐team

532. Directed by H.E. Soung Heng, H.E. Sam Sarith, H.E. Major General Kong Eang and under the support by various partners, UN agencies, international organizations, international organizations and NGOs.

533. Its obligation is to disseminate information, set up disaster prevention and reduction measures in the vulnerable areas, deal with problems related to the national roads, dams and irrigation systems and attend meetings upon invitation by the sub‐team leader.

534. To date the NCDM has only tended to meet once disasters have occurred, and has been predominantly re‐active and concerned with emergency response rather than the overall concerns of the disaster management cycle. Sometimes for more minor disasters is does not even meet, but calls on General Secretariat staff to respond. General Secretariat of the NCDM

535. The only permanent staff dedicated solely to disaster management in the structures of the NCDM and its local committees is in the General Secretariat, based in Phnom Penh. The General Secretariat is responsible for the day to day management of emergency responses. It is organised into the following units:

536. The responsibilities of these departments are as follows:

a) Dept. of Administration & Finance 1) Bureau of Administration & Personnel



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2) Bureau of Finance & Supplies 3) Bureau of Planning & Scrutinization

537. Responsibilities of DAF:

o Manages and circulates the administrative documents of the National Committee for Disaster Management; o Summarizes the final reports on the activities of the National Committee for Disaster Management; o Manages the civil servants administration work of the National Committee for Disaster Management; o Collects information about the needs, raises budget plan, sets up expenses program and monitors the operation; o Facilitates the chapters, budget and all expenses of the National Committee for Disaster Management; o Manages the immovable, movable property, stock of goods and inventory list.

b) Dept. of Emergency Preparedness, Response & Rehabilitation 1) Bureau of Emergency Preparedness, Response & Rehabilitation 2) Bureau of Emergency Operation 3) Bureau of Resource Mobilization & Logistics

538. Responsibilities of DEPRR: o Prepares, establishes structural right‐hand in the emergency relief activities in conforming to the policy of the National Committee for Disaster Management when receiving forecasts on the disasters; o Sets up prevention plan to reduce the risk, provides emergency relief and rehabilitation program; o Coordinates with relevant ministries, UN agencies, international organizations, NGOs, assesses the risk and provides services, emergency relief, safety, security, evacuation and the shelters. o Obtains statistic on the damages and needs and leads operations when any disaster occurs.

c) Dept. of Training & Disaster Risk Reduction 1) Bureau of Policy & Risk Reduction Strategy 2) Bureau of Risk Reduction Programmes 3) Bureau of Training & Capacity Building

539. Responsibilities of DTDRR: o Prepares equipments and get them ready to supply for the emergency relief; o Sets up plan and human resources training program in support of local and national disaster management; o Selects candidate(s) for local and international training courses; o Provides education on disaster prevention measures to the local communities and vulnerable peoples; o Distributes posters related to disaster prevention and reduction measures.



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d) Dept. of Communication & Information 1) Bureau of Public Relations 2) Bureau of Data & Information 3) Bureau of Publication & Dissemination

540. Responsibilities of DCI: o Monitors the weather condition, meteorology and hydrology conditions; o Writes and compiles information on the disasters; o Disseminates information related to local and international disasters through newsletters and media systems; o Produces posters, albums about the disasters; o Prepares report on situation of hydrology, meteorology in collaboration with expert ministries and institutions and gives warnings of danger, shortages and preventive measures; o Communicates with the foreign countries and international organizations on disaster management.

e) Dept. of Search & Rescue 1) Bureau of Maritime Incident Search & Rescue Co‐ordination 2) Bureau of Air Incident Search & Rescue Co‐ordination

3) Bureau of Fire Fighting & Ambulance Co‐ordination

541. Responsibilities of DSR: o Coordinates with State Secretariat of Civil Aviation and relevant ministries and institutions to execute work in accordance to procedures set; o Prepares work plans for the general right‐hand of Royal Cambodian Armed Forces so as to find means and intervention force for searching and rescue; o Receives and sends information about the airplane and ship accidents and seeks guideline and instruction from the National Committee for Disaster Management to implement the regulation related to facilitation for searching and rescuing; o Declares official information from the scene of airplane or ship accidents when the exact information is verified; o Prepares documents, coordinates with the neighboring countries so as to cooperate in searching and rescuing work in accordance to the agreements on facilitation of searching and rescue; o Cooperates with Rescue and Facilitation Center of the State Secretariat of Civil Aviation to determine mission of searching and rescue.

542. From initial contacts with NCDM General Secretariat staff in November 2009 and from observations of the wording of these officially‐designated responsibilities, the following observations are made:

1. The NCDM General Secretariat is more oriented to dealing with “natural disasters” (negative floods, droughts, typhoons and storms or disease outbreaks of humans or animals) and short‐term cataclysmic disasters (such as airplane crashes, ships sinking, or widespread fires)



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than of national or international socio‐economic disruptions (such as strong commodity price changes, major recessions, major trade disruptions);

2. The NCDM General Secretariat appears to be limited in its structure for catering for the general planning of NCDM operational development, and in the detailed evaluation of past operations;

3. NCDM sometimes appears to mis‐allocate responsibilities within the General Secretariat (e.g. “Preparing equipment and its location ready for emergency relief” is attributed to DTDRR, rather than DEPRR, where it should more logically go in terms of “preparedness”) (in 2001 it had been considered that the S&R Department and the Department of Emergency Response and Preparedness had some overlapping functions (see NCDM/ CRC/IFRC (2001) Part 1) ;

4. The NCDM General Secretariat has no built‐in ICT specialisation reviewing the needs for and use of ICT within its operations.

543. In November 2009 the Consultants requested information on the personnel in each of these departments, their experience, their individual responsibilities, and their salaries, as a basis for beginning to assess their operations. To date this information has not been forthcoming. It would appear that for many of these staff their individual job roles are not clearly defined. The Institutional Survey undertaken in January 2010, however, indicated that the General Secretariat has 55 staff, of whom 35 are permanent. Very few of these staff, however, apparently receive regular salaries from NCDM because they are seconded from other institutions.

544. It appears that the NCDM does not prepare its own budgets for subsequent government approval, but has been issued with the same budget each year, and has to operate within that, unless supplementary funding can be found from alternative sources. Before 2000 this annual budget was 400 million riels for operations and contingencies, and proved totally inadequate for the needs of the 2000 floods71. During the last three years (2007‐2009) that budget has been 1,000 million riels (US$ 250,000). This compares with an estimated total damage and loss from the Typhoon Ketsana in September/October 2009 of US$ 132 million, and mean agricultural losses of between US$ 100 million and US$ 170 million per year, caused by flooding. Disaster response costs then have to come out of government funding that might otherwise be used for development.

545. This budget covers both annual regular operations (about 20 to 50 million riel per year – released on a quarterly basis) and disaster response and relief (monies released only when and after particular disasters have occurred). Thus sometimes these relief monies are not released. Nevertheless, the Government (Prime Minister) can order a special fund for response. This system inhibits disaster preparedness activities at all levels, and contributes to delays in financing emergency response activities. The current budgeting arrangements are considered by NCDM staff to be considerably inadequate for their needs within the remit defined for them. The consultants requested a breakdown of budget size and allocation during recent years, but this has to date not been provided. The NCDM does not currently have the resources or mandate for a more‐interventionist role in disaster management, being largely limited to a co‐ordinating role.

71 With that funding in 2000, NCDM was only able to withdraw up to between 400 and 800 tonnes of rice reserve from the Ministry of Commerce for relief operations71, and conduct training for a) core team of trainers composed of 17 government officials (11 NCDM, 6 from other Ministries), and conduct training courses for 3 PCDMs in Prey Veng, Kompong Cham and Kampot. This budget was meant to have been increased in 2002.



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546. When a particular “emergency” is declared the NCDM establishes a National Emergency Co‐ordination Centre (NECC) for the particular emergency, but this seems to be becoming a more permanent structure. There are 5 staff of the NCDM General Secretariat allocated to it. When necessary a National Emergency Relief Fund (NERF) is initiated.

547. A 5‐year Strategic Plan for Disaster Management, 2006‐2010, inline with the Hyogo Framework for Action (HFA) of 2005, integrated into National Strategy for Social Economic Development, has been produced. A Strategic National Action Plan (SNAP) was developed in 2008.

548. The formulation of a “Disaster Management Law” to provide a legal framework for Disaster Management operations in Cambodia. Two versions of this law have been prepared to date (one from a very legal perspective, and one more from a disaster management perspective), which still remains to be integrated into draft legislation to be presented to the Council of Ministers. The consultants requested copies of these drafts in order to understand current thinking regarding this.

549. A UNDP and AusAid project for Capacity Development of NCDM was proposed for the period 1997‐2000, but was not realised. A 2‐year NCDM Institutional Capacity Building Plan (2001) undertaken by NCDM/CRC/IFRC was proposed to be implemented by United Nations for Disaster Management Team (UNDMT) assistance with technical support from IDRM, but never received financing. In 2007 the World Bank financed a study Natural Disaster Risk Management in Cambodia: Reducing Vulnerability in which is it indicated that NCDM’s is still seriously limited by resource constraints. An UNDAC team assessed and made multiple recommendations for strengthening the capacity of NCDM in March 2009, but nothing has developed from this.

550. An initiative to build a Cambodia National Disaster Information Database in NCDM with Technical Support from CRED through the Ministry of Health was proposed in 2003. Provincial Committees for Disaster Management (PCDMs) and Municipal Committees for Disaster Management (MCDMs)

551. At the provincial level (and Municipal level), a Provincial Committee for Disaster Management (PCDM) is established. These Provincial Committees play a much more operational role in any emergency response. The institutions represented on the PCDM vary from province to province and according to the type of emergency involved. In January 2010 the Institutional Survey indicated that from the PCDMs surveyed, there was a mean of 39 members in each PCDM, but that 40% had over 40 members. As the provinces surveyed (only 10) were ones that are more likely to experience natural disasters, they probably have a higher number of members than some other provinces.

552. Each province/city, the Municipal/Provincial Committee for Disaster Management is composed of: o Municipal / Provincial governor President o Deputy Municipal / Provincial governor Vice President o Municipal/Provincial Department Directors and the Municipal/Provincial Director of CRC Branch Office Members



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553. Municipal/Provincial Committees for Disaster Management each have a Secretariat to ensure sustainability of work and directed by the Provincial/ Municipal Cabinet Chief who acts as a permanent secretary and has some Assistants to assist with the work as needed. The January 2010 Institutional Survey indicated from the PCDMs surveyed (10) that PCDMs had a mean of 11.9 staff, but 70% of the PCDMs had less than 10 staff, suggesting that the 3 provinces that had more than 10 staff had substantially more staff. Only a mean of 4.1 persons were permanent members of the staff of PCDMs surveyed, although 30% of provinces surveyed did not respond to this question and 20% had more than 5 permanent staff.

554. Municipal/Provincial Committee for Disaster Management has the following obligations: o To implement national policies on disaster management; o To advise and support the District/Khan Committees for Disaster Management in their activities; o To give advice to the NCDM on the activities of relevant institutions of Cambodian Red Cross and support from local and international organizations who participate in the prevention, preparation for the emergency relief and the rehabilitation; o To produce reports for the NCDM on the damage caused by particular emergencies, and requests for budget, equipment, and means for the intervention forces needed to deal with disasters; o To implement training programmes for the civil servants to strengthen their technical skills in the disaster management, and the provision of public education programmes in communities on disaster management and mitigation.

555. In 2001, following the largest flooding in recent years, it was concluded (NCDM/CRC/IFRC (2001)) that each PCDM should be able to do the following:

‐ analyze data to determine the cause‐ effect of “ damaging” flood in their provinces, anticipate the potential dangers of flood and its consequences, and develop a PCDM disaster management plan for different types of disasters.

‐ receive and analyze early warning of any hazard occurrence and disseminate to the districts and commune level authorities;

‐ conduct immediate assessment of damages, send situation reports to NCDM and analyze and recommend the priority needs of the affected communities;

‐ implement and monitor the necessary local actions based on the PCDM disaster management plan and RGC policy and procedures;

‐ plan and make management decisions effectively based on the progress of the situation and available information;

‐ train the district and commune level authorities; ‐ conduct public awareness activities; ‐ draw on a stockpile of relief items and contingency fund available at the provincial level; ‐ mobilize resources from local donors, private business sectors and NGOs operating in the

province; ‐ assess needs and recommend actions for recovery and rehabilitation; ‐ use computers and appropriate telecommunications in performing their designated

responsibilities.



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556. A recent survey of the personnel and operations of PCDMs was undertaken by the EFAP consultants in January 2010 to act as a basis for assessing the current functioning of PCDMs. District Committees for Disaster Management (DCDMs)

557. The District/Khan Committee for Disaster Management (DCDM) is composed of the following members: o District/Khan governor President o Deputy District/Khan governor Vice President o District/Khan Office Directors and the District/Khan Director of CRC Branch Office Members

558. The January 2010 Institutional Survey undertaken by the EFAP consultants indicated that from those DCDMs surveyed (20) that the mean number of members in each DCDM was 25.6. That survey also analysed aspects of the functioning of DCDMs surveyed.

559. Each DCDM institutes a Secretariat to ensure the sustainability of work, directed by a Department Director and the District/Khan Bureau Head acts as a permanent secretary and has some Assistants to assist with the work as needed. The Institutional Survey of January 2010 indicated from DCDMs surveyed that the mean number of staff in DCDMs was 5.2, although 2 DCDMs surveyed (10%) had more than 10 staff. There was a mean of 4.3 permanent staff recorded in the survey, although only 60% of DCDMs surveyed responded to this question, so the real mean may be much lower. Three DCDMs (15%) only had 1 permanent staff member.

560. Each DCDM has the following obligations: o To implement national policies on disaster management; o To advise and support the DCDM activities; o To select staff to attend training on disaster management at national or provincial / municipal level; o To prepare and disseminate information about any particular disaster to the public; o To give advice to the NCDM on activities of relevant institutions of Cambodian Red Cross (CRC) and support from local and international organizations who participate in the prevention, preparation for the emergency relief and the rehabilitation; o To produce reports on the needs for the PCDM on the extent of damage and needs; o To lead operations in their zone when disasters occur, such as emergency relief, evacuation, providing shelter and medical assistance; o To submit final reports on emergency relief operation to PCDM. Commune Disaster Management Team (CDMT) or Commune Disaster Management Committee (CCDM)

561. The Commune Disaster Management Team (CDMT) or Commune Disaster Management Committee (CCDM), responsible for the implementation of disaster management at the commune level consists of: the Commune Chief & 1st Deputy Chief; Commune Chief of police; Chief of Primary School; Chief of Health Centre; Representative of Women & Children’s affairs; Representative of Animal Health Workers; Representative of the elderly; all village chiefs in commune; Red Cross Volunteers (RCVs) and the Commune clerk.



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562. The January 2010 Institutional Survey indicated, from those surveyed (20) that the mean number of members in a CCDM was 18, but 2 CCDMs (10%) surveyed had over 30 members, and 20% of surveyed CDMs had under 10. The Survey indicated that the mean number of staff in CCDMs was only 2, although 2 CCDMs (10%) had more than 10. There was a mean of 1.2 permanent staff amongst the CCDMs surveyed, although only 50% of CCDM’s surveyed reported on this point, and 45% of CCDMs surveyed only had 1 permanent full‐time staff member. This survey also indicated the effectiveness of some of the functioning of the CCDMs.

563. The structure and responsibilities of the CCDM are as follows: 1. Secretary is under the command of Commune/Sangkat clerk; 2. Searching and Rescue force is under the command of Commune/Sangkat Administration Police Station Chief who is the President and the primary schools cluster president who is the Vice President with participation by Communes/Sangkat police, teachers and volunteer students as operational forces; 3. Health and sanitation team is under the command of commune health center director (in the case that the commune has no health center, the deputy director of the health center from a joint commune should be assigned to the post), animal health agent is the Vice President and the focal point in charge of women’s and children’s affairs is the Vice President with support by animal health agent and health support team as an operational force; 4. Information responding team is under the management by Cambodian Red Cross volunteer who is the President, the elder in the commune is the Vice President and Cambodian Red Cross volunteer as an operational force.

564. The duties and obligations of the CCDMs are: o Implements national policies on disaster management; o Prepares and disseminates information about the disaster to the people in the commune/Sangkat; o Prepares an emergency report on the disaster for the District/Khan and Provincial/Municipal Committee for Disaster Managements on the scope of damages incurred and the actual needs on each case; o Conducts operation to rescue people in the commune/Sangkat when the disaster takes place; o Is the right‐hand of District/Khan Committee for Disaster Management in disaster reduction work and giving suggestions on the activities of the relevant units and institutions, national associations, UN agencies, national and international organizations and NGOs to contribute to reducing the disasters and vulnerabilities before, during and after the disaster in its Commune/Sangkat; o Forms operational teams for actions including 1. Searching and Rescue Teams, 2. Health and Sanitation Teams, 3. Information and Responding Teams; o Recruitsthe volunteers to assist the 3 operational teams above; o Conducts training programs on the responsibility skills for the 3 operational teams as well as educating and raising public awareness in local communities about danger of the disaster, sign of danger and the disaster management measures; o Informs District/Khan, Provincial/Municipal Committee for Disaster Management of the sign of danger;



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o Sets up budget plan, materials, equipment and means of use and forces for action at each stage of disaster management to submit to the superior and organizations; o Conducts a regular monthly meeting to monitor the activities and address the problems encountered within the 3 operational teams and holds the urgent meeting in an emergency case. The meeting shall be conducted through the invitation by the president. (Article 3 of CCDM legislation)



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APPENDIX J. PAST CAPACITY DEVELOPMENT AT NCDM

Summary of Capacity Building Activities in NCDM over the 1997‐2000 period

565. During the period 1997‐2000 there was meant to have been a UNDP Project US$ 293,080 (Cost Sharing: UNDP‐ US$ 250,000, AusAID‐ US$ 43,080) for a 3 year Capability Building for Integrated Disaster Management Programme in the NCDM, but this was not realized. Nevertheless, the following summarized activities were, however, undertaken during that period: 1997‐1998 (Reported Sept.1998)

1998‐1999 (Reported February 2000)

1999‐2000(Reported December 2000)

- Constitution of an Executive Committee; a Scientific and Technical Committee, and the Secretariat

- Job descriptions of the Heads of Departments and Roles and Responsibilities of the Departments, written (but positions not filled up)

- High level policy consultation workshop

- Draft National Policy in Emergency Management

- NCDM staff participate in international events (UNDAC Methodology Workshop, Asian‐ El Nino Regional Workshop, UNDP International Course on Disaster Management

- The NCDM and its Secretariat have been amended and strengthened

- The PCDM and DCDM have been systematically established throughout the country

- Scientific and Technical Committee formed; one informal meeting held

- 30 permanent staff moved to the Secretariat.

- 3 Department heads appointed - Key staff of PCDM appointed - Training Curriculum for 3 courses prepared,

- NCDM core trainers trained and established

- Ongoing assignment of teams to perform damage and needs assessment and facilitate provision of relief to 11 provinces/ municipal‐ities

- Close cooperation with CRC - NCDM staffs attended international CBDM and SAR training

- The early warning system under MWRM has improved. Close coordination between NCDM and MWRM

- PCDM of 12 provinces strengthened - First formal STC meeting conducted (focus on orientation of roles and national policy)

- Training Courses for NCDM staff, 3 provincial training courses in Prey Veng, Kompong Cham, Kampot, 1 refresher course for core trainers

- Council of Ministers authorized recruitment of additional 15 staffs, RGC has agreed in principle to employ up to 83 staff, 1 additional department head filled up

- Holding of regular ERG meetings, sharing of disaster information, facilitated response in 21 provinces/ municipalities benefiting 916, 000 families

- 4 sub groups (ERG) established for better emergency response coordination

- MOU between CRC and NCDM - Participation in AEGDM, ARF‐ISM, ADRC meeting on international cooperation in DM

- ADRC‐NCDM Cooperative Project on PCDM training in 3 provinces

- First NCDM Annual Report prepared (comprehensive in content)

- 4 proposals/concept papers written

Source: From Annex A in NCDM/CRC/IFRC 2001 as reported from NCDM‐UNDP‐ADPC Annual Reports



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566. During that period the following training courses were undertaken: - First Training for Trainers Course on Disaster Management (9 days: 10‐19 November 1999)

attended by 15 NCDM Secretariat staffs and 6 from other Ministries focusing on basic DM concepts (preparedness, emergency response, rehabilitation and recovery) and training methods.

- Second Training Course for NCDM Key Staff and National Decision Makers on Disaster

Management (5 days: 24‐28 January 2000) attended by 17 NCDM Secretariat staffs and 12 from other Ministries focusing on basic DM concepts

- Training Course for Provincial and District Officials of Prey Veng (3 days: 13‐15 March 2000)

attended by 9 PCDM members and 24 Chief and Deputies from 12 Districts focusing on basic DM concepts.

- National Workshop on Disaster Preparedness and Emergency Response (26‐28 July 2000)

participated by all (35) permanent secretaries of PCDMs - Meeting to ensure effectiveness and efficiency of disaster management (6‐7 September 2000)

participated by 12 provincial officers and 13 representatives from various Ministries The NCDM 2‐Year Capacity Building Programme (2001)

567. The flooding of the Mekong system in 2000 was considered the worst flooding since 1961, although there were also major floods in 1991 and 1996. Following the response to this it was decided that the capacity of the NCDM needed to be even further strengthened, and a joint assessment of the NCDM‐CRC‐IFRC was undertaken of the Capacity and Capability of the NCDM, with UN‐Office for the Coordination of Humanitarian Affairs (UN‐OCHA) and World Food Programme (WFP) in Cambodia supports. A Detailed 2‐year Action Plan in Capacity Building for the NCDM was proposed (see NCDM/CRC/IFRC 2001).

568. The main conclusions of the joint assessment (involving many stakeholders and discussed in a workshop on April 3‐4, 2001) were as follows:

1. The formulation of a national policy for disaster management with guidelines for action for disaster preparedness and other activities had taken from 1997 to 2001 to have multiple revisions, and still not get approved. It was concluded that this policy should be finalized and a set of guidelines, including actions before‐during and after disasters, was needed, and that these must be promulgated and issued as official government policy, as an urgent and most important priority.

2. The budget of 400 million riels for NCDM operations72 was totally inadequate, and the RGC must be able to improve their response in future potential disasters by being engaged in preparedness planning and improvement of emergency response capability, and the implementers must be trained to perform their different responsibilities and on how to collaborate with other organizations during the disaster/emergency stage, and that all these

72 In the years 2007 to 2009 their budget has been 1,000 million riels per year (USD 250,000)



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should come from a rational basis for an annual financial allocation for planning contingencies, with a requirement for additional mobilization of international assistance when required.

3. PCDMs also need to receive an appropriate financial allocation applicable to their roles and responsibilities under disaster management. These budgets need to include annual operating costs and reserves for emergencies and disasters.

4. Regular funding is required for NCDM “normal period” functioning and also for disaster “contingency” funding, and pertinent PCDMs to be financed and equipped for immediate response to disasters or threatened disasters.

5. The RGC showed an ability to mobilize local donations and government resources for relief from the floods of 2000, amounting to US$ 15 million, almost matching the entire resources provided by international donors which amount to US$ 16 million.

6. Strong participation of the Prime Minister in active decision‐making during the 2000 floods, beyond the structures for disaster management that had been established, but often with positive consequences.

7. Some individual Ministries were unclear of their roles in particular types of disaster, and the appointed staff to represent them in disaster management for a were often not adequately trained for their roles, and often communicated within their Ministry, but not with other disaster response stakeholders or NCDM.

8. The media had extensively reported the flood situation in 2000, but the manner of reporting displayed a number of weaknesses.

9. The weather forecasting and prediction of the extent and severity of flood disaster in 2000 was not accurate, enabling only one‐day forewarning, and as a result, the level of preparedness was inadequate, although improved on the 1996 flooding.

10. A “serious inadequacy of transport and communication facilities was the most important problem during the flood” in 2000 in Takeo province (which had not benefited from NCDM disaster training), resulting in considerable difficulties in information flow from affected zones, and hence inhibiting disaster response.

11. There was an urgent necessity for improving inter agency or inter organizational coordination and that NCDM must be assisted to improve its capacity, system and procedures in damage and needs assessment and reporting. Specified weaknesses cited were:

Weak sharing of information with NGOs for targeting vulnerable groups;

The Emergency Response Group and its sub committees as an information sharing forum with NGOs needed to be better planned and managed;

Participation of NGOs in official government reporting of disaster responses was negligible;

The system of comparing damage and recovery needs information needed improvement;

Lack of clarity on most important information for recovery and rehabilitation planning, and the need for a “clear” plan for information management;

Information needed to flow from bottom up and from top to bottom, as well as flowing “horizontally” among Ministries and national level NGOs and IOs;

Situation reporting by NCDM lacked information necessary for crisis or contingency management to anticipate emerging severity of floods in various stages;

Pro‐active, preparedness action was not being taken;



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Routine data reported focused on damage to infrastructure and what was the immediate impact and did not reflect indirect effects of disasters, such as the need to prevent the outbreak of diseases, nor always indicate what was needed in response;

The disaster management approaches currently did not adequately address the long term food security issues and other unresolved development root causes, such as poverty and vicious debt cycle among poor people, when disasters occurred;

Asian Disaster Preparedness Center (ADPC) in Thailand and the Asian Disaster Reduction Center (ADRC) in Japan, and OXFAM at the provincial level, had been providing some technical assistance to the NCDM General Secretariat in recent years, but based on a review of records and discussions with NCDM staff, these interventions for NCDM capacity building had only produced modest results in comparison with the expectations based on NCDM mandate and from its actual performance during the flood of 2000.

A “training curriculum” was reportedly written, but had not been based on a proper training need assessment, with no agreed and written strategy for disaster management training. There was no NCDM staff development plan.

Some departments of NCDM General Secretariat were much stronger than others. There was little establishment of procedures and communication among four (4) departments of the NCDM Secretariat, and no clear standards to guide the performance of staff. During the 2000 flood, some staff had too much work to do, but others made a limited contribution.

NCDM needed to take the lead in developing consistent standards in damage and needs assessment and response, drawing on national and international experience, and to be able to monitor compliance;

NCDM lacked the necessary logistical resources such as computers, telephones, fax machines, vehicles, and email connections to function adequately;

Data storage at NCDM (then using spread sheets) needed to be improved utilizing information technology (GPS mapping and coding every village in Cambodia) that was already in use;

NCDM needed to provide PCDMs with improved guidelines in damage and needs assessment in relation to the flood experience, particularly on what information the national government requires to provide support to PCDMs;

PCDMs need to be assisted in information gathering that would help them to make appropriate and timely decisions for actions required at the local level;

Focal points at the PCDM, district level and commune level to collect information have not been adequately equipped with skills and resources to perform this responsibility;

PCDM Secretariats were weakly established, with no permanent offices and office equipment and supplies necessary for their functioning;

Although cooperation of Ministries in providing information for NCDM had improved, it needed to be further improved;

NCDM (and other DM operators) lacked the necessary logistical resources such as computers, telephones, mobile phones, walkie‐talkies, fax machines, vehicles, and email connections to function adequately and provide more timely and accurate information.

569. From this it was concluded that for the institutional development of NCDM at that stage the following were needed:



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Allocating overall responsibility for coordinating survey and assessment to NCDM and its local counterparts in PCDM and DCDM.

Allocating detailed area of responsibility for collection of data and reporting to various resource organizations (e.g. agriculture, health, rural development, CRC etc.).

Standardizing assessment and reporting formats and providing guidance and training for those involved in collection and reporting.

Establishing communication networks and links.

The purchase of application of latest and appropriate computer/information technology and associated skills training for staffs.

12. Lack of knowledge by the general Cambodian public and local officials about the severity of hazards that may affect them, associated risks, probable damage, and precautions to be taken was considered one of the most significant gaps in current efforts to mitigate the potentially disastrous effects of most hazards. NCDM, at that point in time, had not been involved in any public disaster awareness activities, nor even had a plan to do so. There was a need to develop a medium term disaster awareness strategy and be equipped with financial and technical capacity to implement the strategy that would:

reduce ignorance about hazards, their nature, and the consequences of their impact;

increase public knowledge of the relationship of the severity of disasters to natural causes and manmade contribution,

increase public knowledge about practical preparedness measures;

promote and develop practical skills among the general public with a view to improving their response;

make the public understand what particular warnings mean and what they should do when they receive them, as a pre‐requisite to any warning system; and

provide support for disaster plans, organizations and measures.

13. NCDM needed to provide a coordinating role in establishing and implementing community based disaster preparedness (CBDP) programmes in partnership with CRC and other NGOs.

14. The need to establish a National Disaster Management Strategy that would analyse and plan for a wide range of issues corresponding to all aspects of disaster management, covering prevention, mitigation, preparedness, response and rehabilitation.

570. In discussion with Prime Minister Hun Sen at the time the latter concluded that 3 things were necessary for disaster preparedness:

1. Leadership and effective coordination of various Ministries and organizations’ actions in a timely and urgent manner, based on the disaster situation.

2. Identification, training and equipping a “disaster strike force” within the military forces of Cambodia who are strategically located to respond and assist civilian population quickly and efficiently;

3. Assisting vulnerable communities in preparing plans and acquiring “disaster resistant” community infrastructures such as pagodas, schools that will help them cope with floods and other types of disasters.



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571. Partly to enable these, the Prime Minister ordered the Ministry of Economy and Finance to allocate an appropriate and adequate budget to NCDM starting at fiscal year 2002. He also sought the cooperation of the Government of South Korea for the purchase of rescue boats and life‐vests. He also indicated the formation of an initial force of 2,000 active soldiers to constitute a “Disaster Response Force”.

572. At that point in time the recommendations of NCDM Secretariat staff from written reports for ensuring successful Disaster Management in Cambodia were (NCDM/CRC/IFRC 2001 Part 1 Annex B): Training - Secure funding for more advanced training on Disaster Management, and send more staff for

training. - Hire experts to check and evaluate the effectiveness of training. - Conduct field exercises and disaster situation simulations, to enable the staff to be prepared

during actual emergency. Public Awareness - Secure funding to

- produce reading materials on disaster preparedness for school children; - produce pamphlets to be distributed to the public, with easy to understand illustrations.

Coordination - Hold regular coordination meetings among the UN agencies, IOs and NGOs - Establish an efficient communication system among the UN agencies, IOs, and NGOs. - Develop guidelines on how to work efficiently in a coordinate manner - Funding for large‐scale project which will enable the NCDM to:

- Collect and disseminate information which is needed for coordination among the CDMs

- Strengthen the coordination between all the PCDMs and DCDMs (procurement of computers with Internet access, radios and other means of communication tools).

- Acquire other equipment necessary to enable the CDMs to report and act on a disaster, if possible within 24 hours.

- Implement projects on disaster mitigation in disaster prone areas.

573. Emerging from this 2001 assessment and workshop were the following two‐year goals for the institutional development of NCDM in order to enable inter‐ministerial co‐ordination in disaster management activities of prevention, mitigation, preparedness, response and rehabilitation in order to reduce the effects of disasters on Cambodian communities: At the end of 2 years NCDM would have acquired the following capacity and capability:

1. An approved and operational National Disaster Management Policy and Guidelines, well understood by implementers who have been provided training to perform their responsibilities;

2. A written Disaster Preparedness and Emergency Response Plan at the national and provincial levels, developed by implementers who have been provided training to perform their specific responsibilities;

3. Initiation of the NCDM Disaster Management Information System, particularly the ability to gather information and damage and needs and report these on a timely and efficient manner

4. The development and approval of a National Disaster Awareness and Community based Disaster Preparedness Programme that identifies priorities, activities, roles and involvement of government, NGOs, academic institutions, media and international organizations



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5. The development and approval of a National Disaster Management Strategy that identifies risks and vulnerabilities in various sectors and a long term and sustainable actions in disaster prevention, mitigation, and preparedness.

ACTIVITIES THAT WOULD HAVE BEEN CARRIED OUT IN RELATION TO SPECIFIC OBJECTIVES OBJECTIVE 1: DISASTER MANAGEMENT POLICY AND ITS EFFECTIVE DISSEMINATION

ACTIVITIES:

1.1 Improve capacity of inter‐ministerial level committee in policy‐formulation and implementation and in providing appropriate issuance, executive orders, and promulgation that would provide clear mandate to various ministries involved in disaster management

1.2 Set functional full‐time General Secretariat and various internal departments or units to oversee implementation of various coordinative activities among Ministries and development partnership mechanisms among external organizations (e.g. International Organizations, NGOs) for disaster management programs and projects

1.3 Improve the understanding of the Provincial Committee on Disaster Management (PCDM) and District Committee on Disaster Management (DCDM) in the areas of disaster management policy and guidelines

OBJECTIVE 2: DEVELOP DISASTER PREPAREDNESS AND RESPONSE PLANS AND TRAINING OF ITS IMPLEMENTORS

ACTIVITIES:

2.1 Development and implementation of a Disaster Preparedness and Emergency Response Plan 2.2 Training and Mobilization of a Disaster Response Force (national and sub national) within the

RGC Armed Forces

OBJECTIVE 3: ESTABLISHMENT OF NCDM DISASTER MANAGEMENT INFORMATION SYSTEM

ACTIVITIES:

3.1 Review and develop data collection, collation and reporting system 3.2 Improve flood early warning system

OBJECTIVE 4: DEVELOPMENT OF A NATIONAL STRATEGY FOR DISASTER AWARENESS AND COMMUNITY BASED DISASTER PREPAREDNESS

ACTIVITIES:

4.1 Develop and approve a public awareness and CDBP program strategy in various Ministries, agencies and villages and with NGOs, IOs

4.2 Create and implement a multi‐media public awareness program



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OBJECTIVE 5: STUDY ON FLOOD VULNERABILITY AND DEVELOPMENT OF A LONG TERM AND COMPREHENSIVE DISASTER

MANAGEMENT STRATEGY

ACTIVITIES:

5.1 Identify risks and vulnerabilities and its impact to major national sectors and programmes (e.g. agriculture, transportation, urban sector)

5.2 Prepare sectoral strategies in response to risk analysis

The types of training anticipated to be required for NCDM and PCDM staffs was:

Training of Trainers in Disaster Management to provide them additional confidence and knowledge in all aspects of disaster management related tasks enabling them to conduct national and local training activities.

Specialist skills training for those who may be required to undergo duties in disaster preparedness and emergency response planning, damage and needs assessment, communications and use of information technology.

Coordination and executive leadership training for those key persons who would perform roles in gaining political support and partnership arrangement with IOs and NGOs.

Project Management (planning, implementation, monitoring, and evaluation), Finance and Administration training to those key persons who perform associated day to day functions at NCDM and PCDM.

Project Proposal writing to those key persons who would have to mobilize resources from government and IOs.

574. As this assessment pointed out the ability to provide this institutional development in disaster management is largely dependent on the political will of the leadership at the national level, ministries, and provincial governors. It was, however, expected that IOs, donors, NGOs and the development banks would support such an institutional development program, on the assumption of congruence with objectives of humanitarian assistance, poverty alleviation, effective governance and civil service, and overall socio economic development held by such institutions.

575. It was emphasized that NCDM personnel, both in the Cabinet and in the General Secretariat, had to be selected on a basis of commitment and basic skills in disaster management coordination, and their willingness and ability to work with other ministries, NGOs, and IOs. The biggest risk was considered to the inadequacy of funding and technical support to the NCDM Strategy, funding tending to be more‐forthcoming in response to cataclysmic natural disasters, but less forthcoming for disaster preparedness programmes. The total estimated budget for the whole two year program was US$ 6,036, 480, of which, 85% was to be allocated for direct program costs with immediate institutional development results, and the other 15% for payment of international consultants to NCDM, administrative and overhead expenses during the period.

576. It was envisaged that a team of well‐qualified, professional international advisors covering programme management, policy making, disaster management planning, training, public awareness, search and rescue, partnership arrangements, information management, information technology, community‐based disaster preparedness, would be led by a competent professional programme management advisor, would contribute to this NCDM institutional development programme.



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577. The Two‐Year Institutional Development Strategy for Disaster Management was divided into different components, each establishing: Actions to be realized, implementing agencies, when to be undertaken, indicator monitoring system to be adopted, expected outcomes, and component budget with calculation criteria. None of it happened because of lack of financing. NCDM Needs Assessment, Orientation and Capacity Building Requirements

578. At a Workshop to Improve the Compilation of reliable data on disaster occurrence and impact 2‐4‐ April 2006, Bangkok, Thailand, NCDM indicated its capacity building priorities for the future, as follows: Goal 1: Reduce the severity of impact of disasters in Cambodia through improving the capacity of the National Committee for Disaster Management (NCDM) as a credible agency and focal point for multi‐disaster‐related efforts and issues in Cambodia; Goal 2: Institutionalize the National Policy for Disaster Management and provide implementation procedures related to Disaster Management Goal 3: Establish an alternative or a reserve program on National Disaster Management that will effectively carry out immediate response to natural disasters and calamities at all levels of NCDM: commune, district, municipalities, cities and provinces; Goal 4: Establish an effective Management and Information System to Cope with disasters and calamities; Goal 5: Develop an understandable and user friendly risk management system to cope with disaster at the commune level; Goal 6: Build a national strategy of educating citizens and mainstreaming disaster management in reducing vulnerability of people with disaster.

579. They only part of any of this that has been achieved has been some of Goal 5, with the assistance of NGO projects and the ADPC. Besides this resources have been allocated to advancing the establishment of a legal framework for Disaster Management in the country, although this process is incomplete. The Asian Disaster Preparedness Center (ADPC) in Bangkok , the Asia Pacific Disaster Management Centre (APDMC) in the Philippines and the Asian Disaster Reduction Centre (ADRC) in Kobe, Japan have provided some capacity development supports, and the ADPC is currently supporting the Regional Flood Management and Mitigation Center (RFMMC) within the Mekong River Commission that has been aiding capacity development in relation to flood emergencies. The European Community International Humanitarian Office (ECHO), AusAID, and USAID, inter alia, have provided supports. OXFAM GB has also been providing capacity development mainly directed to PCDMs. During the last decade most general disaster risk management programmes, dealing mainly with public awareness raising, preparation of disaster response plans and pilot projects have been initiated and funded by external donors, but these have mainly been project based technical assistance with little investment on the ground, and often not sustainable.



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UNDAC Priority Recommendations on Capacity Building – 2009

580. In March 2009, an UNDAC team considered the following capacity building needs in relation to Disaster Management in Cambodia amongst their Highest Priority Measures: IMMEDIATE ACTION Point 12 – Between disasters, regular planning and coordination meetings should be held with all members of PCDM, DCDM and CCDM to foster inter‐departmental cooperation (Disaster Management at local levels). Point 43 – Coordination between MOWRAM and NCDM should be strengthened (including PCDM, DCDM and CCDM) for building a community owned Early Warning System) (M & EW Systems). ON‐GOING ACTION Point 34 – Enhance and strengthen awareness and preparedness into the national curriculum at elementary and high school levels as well as higher education institutions (Public Information/Education). Point 39 – As a matter of priority, Departments with responsibility for infrastructure, supplies and equipment for use in disaster response, must reserve funds for maintenance of equipment and essential supplies (Infrastructure, Supplies & Equipment). SHORT‐TERM ACTION Point 25 – NCDM should establish a training sub‐committee amongst its members and request them to conduct a training needs analysis in order to develop a national programme for staff capacity building at the provincial level and for inter‐Departmental training and exercises (Training, Exercises & Simulation). Point 87 – Relief items such as food, sandbags, boats, should be prepositioned in advance of the floods season in flood‐prone districts and communes (Logistics). MEDIUM‐TERM ACTION

Point 1 ‐ The authority responsible for drafting the new legislation should include measures to ensure greater legal authority for the NCDM to implement disaster management activities and greater accountability at the provincial and district level. NCDM should consult and follow UN/OCHA Disaster Preparedness for Effective Response Guidance and Indicator Package for Implementing Priority Five of the Hyogo Framework, (Indicator 1.2) (Legal Framework). Point 3 ‐ New legislation should include specific measures for requesting and facilitation of international assistance and ensure its ongoing compliance with humanitarian principles and minimum standards, as described in the IDRL Guidelines (UNGA Resolutions 63/139, 63/141, and 63/137 of 2008) (Legal Framework).



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Point 11 – NCDM should conduct a training needs analysis and develop a national programme for staff capacity building at the provincial level and for inter‐Departmental training and exercises (Disaster Management at local levels). Point 13 – Where plans exist, roles and responsibilities need to be clarified, and Standard Operating Procedures (SOPs) developed through PCDM to reflect the responsibilities of lead authorities (Disaster Management at local levels). Point 18 – Cross‐Boundary arrangements between provinces should be expanded so that resources and information can be shared (Policies & Administrative Procedures). Point 19 – All PCDM members should be tasked with the production and regular updating of technical guidelines and instructions for all staff, including SOPs (Technical Guidelines & Instructions for Staff). Point 21 – NCDM to review currently used methodology with a view to developing a common approach, format and templates (Risk Assessments). Point 32 – NCDM should undertake an audit of all available public information packages (Public Information/Education). Point 44 – At the Provincial level establish linkages at the District and Commune level between CCDM and Red Cross Volunteers to strengthen their capacity for dissemination of the Early Warnings for floods and other disasters (M & EW Systems). Point 51 – NCDM should develop a system to expedite delegation of authority during disasters and to approve contingency funding for Provinces to support disaster response (Command and Control Systems). Point 52 – NCDM should undertake an audit of SAR capacity. Arising from the outcomes of this audit, NCDM should work collaboratively with CAA to develop a national plan/strategy to develop SAR capacity in Cambodia (Search and Rescue). Point 60 – At the provincial level, PCDM would support commune capacity building and livelihood reinstatement through preparedness activities (Restoration of Lifelines, Livelihoods & Delivery of Humanitarian Assistance). Point 65 – NCDM should formulate guidelines on assessment methodology with support from the UN and other partners (Assessment, Reporting & Info Management Systems) Point 67 – It is recommended that RGOC conducts a thorough review of the current institutional framework for disaster management, consistent with a new legislation (Coordination Mechanisms). Point 68 – NCDM should be given a role to function as a permanent coordinating and policy making body providing direction to the national disaster management system (Coordination Mechanisms).



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Point 70 – NCDM should be empowered to become a permanent operational entity, with national coverage providing an institutional umbrella for coordination of all existing national emergency services, as well as the technical and operational levels of relevant line ministries (Coordination Mechanisms). Point 77 – NCDM should consolidate its role in establishing national strategies, common policies and practices in disaster management, relevant to all levels (Coordination Mechanisms). Point 82 – NCDM should establish a disaster management communication strategy based upon radio technology as an essential component of disaster management (Communications systems). Point 88 – NCDM in consultation with the Ministry of Environment (MOE) should clarify the Ministry’s role and responsibility in environmental disaster preparedness and response and on environmental aspects of disasters (Environmental Protection). Point 96 – IASC guidelines for cross‐cutting issues should be used to guide NCDM and PCDM in coordinating recovery and reconstruction (Recovery & Reconstruction Planning). LONGER‐TERM ACTION Point 7 – A longer‐term institutional development programme should be elaborated by RGOC for NCDM to ensure they have the capacity, budget and, importantly, the authority to effectively support disaster management development in Cambodia and to perform their coordination functions in disaster management (National level institutional framework). Point 56 – NCDM should develop clear guidelines for evacuation for provinces, districts and communes. This should be linked to the risk mapping process (Evacuation: linked with Risk Assessment). Point 9 – At the provincial level, there needs to be a direct link between the provincial planning process and the development and funding for provincial preparedness plans (Disaster Management at local levels).

581. Since then, very few of these proposals have been realised. Cambodian Red Cross (CRC) Capacity‐Building Initiatives in Disaster Management

582. The Disaster Management Department (DMD) of the Cambodian Red Cross (CRC) was created in 1994, and has been involved in a number of capacity development initiatives of its headquarters and CRC branch staff and volunteers over the years. The CRC Human Resources Department (HRD) was only created in 2005, which is taking a stronger role in capacity development. The DMD’s Strategic Plan for 2008‐2012 (CRC (undated) pp23‐24) outlines their capacity development objectives, namely:

Review the DMD’s organisational structure with HRD with a view to “creating a more programmatically oriented department that uses available human resources at all levels (and in all departmental functions) to best effect”;



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Conduct capacity‐building and training needs assessments for CRC HQ, Branches and RCV/RCY personnel, in partnership with HRD;

Support HRD in improving RCV/RCY management structures and procedures for better Community‐based Disaster Management (CBDM);

With the Monitoring and Evaluation Unit (M&E Unit) of the CRC develop procedures to measure, evaluate and report on disaster management work and its impact;

In collaboration with the CRC M&E Unit improve community participation in M & E activity in DM work;

Improve inter‐departmental collaboration within CRC departments involved in different ways in DM work;

Develop more DM‐related information, education and communication materials in co‐operation with pertinent departments of CRC.

Weaknesses in Capacity Building Initiatives in Cambodia

583. In 2000 the CDRI published a study of Capacity Development at the School of Agriculture Prek Leap (SAPL) (Sophal et al. 2000) and other Capacity Development studies (Godfrey et al. 2000). Those studies indicated a number of considerations that need to be kept in mind in relation to capacity development initiatives in Cambodia. Although now 10 years old they still contain a number of pertinent points. Particular weaknesses that they noted, which may still have a more general applicability were:

Heavy reliance on foreign external funding and weak government funding;

Foreign diverse time‐frames, policy objectives, programme implementation methods and decision‐making structures and donor‐driven orientations, procedures and reporting systems made some implementation difficult;

Lack of cost‐effectiveness and evaluation of cost‐effectiveness;

Non‐ownership by SAPL of injected ideas and policies from external sources, as well as in decision‐making, particularly for infrastructural components;

Non‐revealing of budgets and expenditures, both by donors and local institutions;

Weak local managerial capacity for implementation;

Wrong financial incentives in place, as staff salaries were low, and donors paid counterpart supplements, causing tensions amongst staff and some staff just using the capacity development as a stepping‐stone to different employment;

Over‐concentration on instructional capacity and curricula, rather than on skills of SAPL management;

Greater concentration on individual capacity development, with some on institutional, but little on financial capacity development, and even where the focus has been on the latter two, achievement has not been as great;

Capacity development seen often only as training;

Previously changes in training staff led to fluctuations in style and curricula of skills provided, trainers unconfident in the material to be conveyed and weak team collaboration;

In early stages infrastructural constraints were severe, and maintenance funding remained an issue;

Practical work activity more useful;



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Short courses by outside instructors, discussion groups and external study tours of were of mixed utility;

Language difficulties between external advisors and local staff;

Conflicting models of management prevailed, with difficulties of building up trust between external advisors and local managers;

Lip‐service consideration of sustainability issues was not converted into practical application;

Project approaches to capacity development are often inefficient in comparison with longer‐term sectoral approaches.

Conclusions on Past Capacity Development Initiatives in NCDM Structures

584. Since its creation in 1995, NCDM has had quite a bit of capability development proposed, but very little realised. Regarding capacity development within the NCDM structures it appears that:

NCDM currently does not have a specific costed plan for capacity development;

No section of the NCDM General Secretariat is directly responsible for assessing capacity development needs and formulating these into capacity development programmes;

A number of capacity development needs have been articulated at different points in time, including recently with the UNDAC assessment in March 2009, but these have rarely been differentiated into different capacity development components and subsequently costing and scheduling them, and then they have not been realised through lack of financing and other reasons;

The current limited NCDM budget enables some capacity development activities, but these are often subsidiary to operational emergency response activities;

CRC has had a number of capacity building development activities in relation to disaster management, but these do not appear to be co‐ordinated with capacity development activities within NCDM structures and their common objectives;

External support organisations have manifested potential support to capacity development within NCDM, almost since its creation, with this brought more into focus after cataclysmic disasters, but then the follow‐up has been slight;

Although capacity development supports have taken place in relation to flood disasters and community disaster risk reduction activities, there has been no systematic analysis of their capacities for responding to different types of disaster, and the capacity development requirements for each;

Although some attention has been paid to the possible impacts of global climate change on disaster management requirements in Cambodia, there is still little systematic consideration of longer‐term disaster management capacity requirements, except in medium‐term planning exercises;

From the point of view of food security, there has been little systematic analysis of, and capacity development for, relief, rehabilitation and disaster risk impact reduction in relation to basic food supply needs in relation to disasters of different kinds.



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APPENDIX K. HAZARDS, DISASTERS, AND EMERGENCIES IN CAMBODIA

585. In order to review the capacity building needs of institutions involved in the management of “disasters” in any country, it is necessary first to define different types of “hazard” or “disaster” with consequent “emergencies” to which organised responses are sought. Secondly, it is necessary to review the institutions that are currently involved in monitoring the threat, providing warning to vulnerable communities, providing immediate response measures, mitigating negative impacts, enabling longer‐term recovery from the impacts, and reducing the risks of future negative impacts of different types of “disaster”, following the emergency management cycle (see Inception Report figure 4, p10). Thirdly, it is then necessary to evaluate the resources available to existing institutions to respond to these functions, and the efficiency with which those responses are undertaken by each of those institutions, how well they co‐ordinate together, and what are the optimal mixes of institutional support for different types of “disaster”, particularly those that are more likely to occur in the future. Only once this has been done is one in a position adequately to assess the optimal capacity building requirements of these institutions. “Disasters” in Cambodia Defining “Disasters” and “Emergencies”

586. The Oxford English Dictionary defines a “disaster” as either “a sudden accident or a natural catastrophe that causes great damage or loss of life” or “an event or fact leading to ruin or failure”. It defines an “emergency” as a “serious, unexpected and potentially dangerous situation requiring immediate action”. CRED has defined a disaster as “a situation or event which overwhelms local capacity, necessitating a request to a national or international level for external assistance; an unforeseen and often sudden event that causes great damage, destruction and human suffering”.

587. Of course, such terms may be applied at the level of the individual or the household, but they are usually used in relation to events that affect a number (usually a fairly large number) of people. We may have ambulance services to deal with emergency individual health problems, or fire services to deal with fire outbreaks, but it is only usually when an event affects, or risks having an affect, on a substantial number of people or a fairly wide area that it gets classified as a “disaster” or “emergency”.

588. The crucial concepts contained in the word “disaster” are:

It is often sudden

It causes great damage and/or great loss of life

589. The crucial concepts contained in the word “emergency” are:

It is sudden

It is unexpected

It is either highly dangerous or threatens to be

It requires immediate action



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590. In considering the need for national institutions to be specifically oriented to the monitoring of potential disaster risks, early warning of them, preparedness to respond to what they might bring, and capacity to provide an effective response, it is important to be clear about these concepts, and to define clearly the types of disasters contemplated to be the concern of such institutions. What might be considered “disasters” and “emergencies” in Cambodia?

591. Often in Cambodia when people consider “disasters” and “emergencies” they think of “more‐cataclysmic natural disasters”, where agro‐ecological factors have led to major obvious disruptions, such as droughts and floods, or else sudden‐onset disruptions, such as animal or human health pandemics, sudden pest infestations, widespread damaging fires, sudden cyclones/storms, earthquakes and tsunamis73. One‐off calamities, such as aircraft crashes, ships sinking, multiple vehicle accidents, train crashes, landslips and large building collapses can also be included, but usually the damage resulting from these is more limited. Sometimes the “disaster” is man‐made from wars, other social conflicts, or abrupt changes in economies. The response for this particular disaster management capacity building initiative in Cambodia has come from responses to the global commodities price rises of 2007/2008, exacerbated by the policies of different governments regarding rice marketing, having a severe impact on global economies, but particularly on lean‐season (May to September) poorer Cambodian households dependent on the purchase of basic foods. This “disaster” had little forewarning, existing Cambodian disaster management institutions were not oriented to this type of “disaster”, nor did they have the immediate resources to cope with it.

592. Of course, for some of these types of disaster the impacts are quite immediate (“rapid‐onset disasters”), but for others the impacts can be spread out over longer periods (“slow‐onset disasters”), and the measures needed for recovery over time may vary considerably. Droughts are events that usually develop slowly, rather than being sudden. If they occur at a certain point in the agricultural cycle that is crucial to plant growth their impact can be more immediate. It is usually the more cataclysmic physical disruptions that attract attention, but sometimes the more gradual impacts of a bad mix of agro‐ecological circumstances through major crop growing seasons, or socio‐economic “disasters” that are more drawn‐out, can have much more disastrous consequences than more spectacular sudden “disasters”. Responses by different actors to different types of disaster

593. For some types of natural disaster, such as floods, cyclones or droughts, particular communities can often be conscious of their likely impact and needs for preparing for or assuaging them. The local administrations in zones often affected by such disasters can also often be well‐prepared to cope with such disasters. What both may lack, however, are the resources for responding adequately to such disasters. Most countries, however, have a number of national or provincial institutions oriented to responding to a range of disasters that often need to support the

73 Natural disaster categories have recently been divided, based upon a triggering hazard/event logic, into six disaster groups (see Below et al. (2009)): Biological (epidemic, insect infestation or animal stampede), Geophysical (earthquake, volcano or dry mass land movement), Meteorological (storms of different kinds, including cyclones), Hydrological (flood or wet land movement), Climatological (drought,

extreme temperature development or wild fire) and Extra‐Terrestrial (meteorite).



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initiatives of local communities and administrations in such circumstances. Currently, in Viet Nam there is a 12 year program being developed to strengthen local communities throughout the country to withstand a range of disasters, using primarily their own resources and preparedness measures.

594. Often in the past, particular institutions with greater resources that are external to the communities where disasters have occurred, have predominated, bringing “relief” (sometimes in a very costly way) from the outside to these communities, and sometimes subsequently facilitating rehabilitation, and sometimes even helping subsequently to build the local communities in their capacity to withstand possible future disasters better. This has been the case in Cambodia, where steadily external institutions have extended their activities in this domain from immediate relief to rehabilitation over a longer period, and disaster risk reduction management amongst local communities only after that. Only in more recent years have there been more initiatives within Cambodia to strengthen local response capacity. Current prime disasters and response capacities in Cambodia

595. The frequency of types of natural disaster by province in the last two decades are set out in Table 86, with indications of population and food insecurity in each province. Amongst natural disasters, although epidemics and damaging storms do occur in Cambodia, in the last two decades the natural disasters most affecting the population have been floods and droughts of different kinds (see Inception Report pp7‐8).

596. Nevertheless, from the Institutional Survey of CDMs undertaken in the EFAP 3 Project in January 2010, although the NCDM does not have a strategy document for responding to different risks, 50% of provincial DM structures surveyed maintained that they have, and even 25% of district and commune structures maintained they have.



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Table 86 Natural Disaster frequency by province in Cambodia

Province Population (2008)

% of agricultural area to total area (1997‐

IRRI)

Usual Food Availability Surplus/Deficit

Slow‐onset flooding

(August‐Oct.)

Flash flooding

Agricultural Drought

(June‐August)

Typhoons and storms (Sept/Oct)

Animal/ Health

epidemics

Years of Major disasters since 1990

1991, 1994, 1996, 1999, 2000, 2001,

2002, 2007

2001, 2009

1994, 1995, 1996, 1997, 1998, 2001, 2002, 2004, 2005

1997, 1999, 2000, 2001, 2007, 2009

1992, 1999, 2004 (Avian flu), 2007

Phnom Penh 999,804 55.35 Marked Deficit Yes Yes Slight Yes

Kandal 1,075,125 45.46 Deficit Yes much Yes Yes much Yes

Kampong Cham 1,608,914 42.65 Slight Deficit Yes much Yes Yes

Svay Rieng 478,252 79.25 Slight Surplus Yes Yes Yes much Yes

Prey Veng 946,042 65.52 Very slight surplus Yes Yes Yes much

Takeo 790,168 74.03 Surplus Yes much Yes Yes

Kampong Thom 569,060 31.12 Slight Surplus Yes much Yes Yes much

Oddar Meancheay 68,279 12.04 Deficit Slight Yes Slight

Siem Reap 696,164 35.64 Slight Surplus Yes Slight Yes

Battambang 792,129 20.51 Surplus Yes Yes Some Yes

Krong Pailin 22,906 0.00 Deficit

Banteay Meanchey 577,772 35.67 Surplus Yes Yes Yes much Yes

Pursat 360,445 12.17 Slight Surplus Yes Yes Yes

Kampong Chhnang 417,693 18.03 Very slight surplus Yes much Yes Slight

Krong Preah Sihanouk

155,690 18.79 Deficit Yes

Kampot 528,205 39.61 Slight surplus Slight Yes Yes

Krong Kep 28,660 68.10 Deficit Slight Yes

Koh Kong 132,106 1.57 Marked deficit Yes Yes

Kampong Speu 598,882 30.91 Deficit Yes Yes Yes

Preah Vihear 119,261 2.86 Slight deficit Yes

Stung Treng 81,074 2.45 Slight deficit Yes Yes

Ratanakiri 94,243 12.54 Deficit Yes

Mondulkiri 32,407 0.30 Deficit Yes

Kratie 263,175 4.82 Deficit Yes much Yes Yes

Total 13,395,682 20.37 Slight Surplus Sources: WFP 2005, NIS, SNAP 2008



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597. Below, each type of major disaster and the response structures to them are analysed. Certain types of Flooding

598. Flooding of rivers in Cambodia is a frequent occurrence in a number of zones of Cambodia, usually between August and October each year. A map of priority zones in relation to flooding risks from 2004 is set out below. Priority communes can vary from one year to another, however, according to the vulnerability of different sections of the population in them, and the nature of flooding impacts. These zones are often fairly densely populated as it is from the benefits of the flood plain that agriculture has been able to develop more successfully. Usually these floods bring positive effects for agriculture and fishing, so they are not necessarily negative. Accordingly, it is important to differentiate negative types of flooding from more positive types of flooding. The more negative types of flooding are:

Flash flooding for which warning is difficult;

Slow‐onset flooding that affects the growing cycle of major crops;

Slow‐onset flooding in zones that are not accustomed to flooding;

Excessive slow‐onset flooding causing damage to possessions and infrastructures, and sometimes necessitating evacuation of livestock and/or humans.

599. Since the heavy flooding of 2000 awareness of, and response to, different types of flooding disaster in Cambodia has increased. The flooding of the Mekong system in 2000 was considered the worst flooding in Cambodia in 70 years, although there had also been major damaging floods in 1991 and 1996. The NCDM official report74 on this flooding of 16 November 2000, put the death toll at 347 (80 percent of whom were children). Of the 750,618 families (3,448,629 individuals) affected by flooding, about 85,000 families (387,000 individuals) had to be temporarily evacuated. Also 317, 975 houses were “damaged”, while 7,068 were “destroyed”. The Council of Ministers estimated total physical and direct damage of this flooding at US$ 157 million.

600. The main early warning system in relation to flood warnings in Cambodia is currently provided by the Department of Hydrology and River Works (DHRW) of MOWRAM, which supplies top‐down warnings over flood levels. Following on from earlier initiatives in Takeo and Kompong Cham, however, the Mekong River Commission (MRC) with the Asian Disaster Preparedness Center (ADPC) have been piloting a Community‐Based Early Warning System (CBEWS) in 5 provinces of communication and response from the community level, and in Kandal province the use of mobile phones by villagers to send SMS messages twice daily to the MRC with data on water levels that it then collates and uses to make flood forecasts.

74 NCDM Annual Report on Disaster Management Activities 2000



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601. The PCDMs, with the Cambodian Red Cross and local authorities have developed a degree of immediate responsiveness to flood risks, including emergency provisions, evacuation procedures for humans and/or livestock, fresh seed provision, mitigation infrastructural developments and community preparedness, but often have an inadequate supply of boats for relief purposes, immediate budget for expenses, or immediate stocks of replenishment seed. Nor are there alternative income‐generating possibilities for local vulnerable populations during the interim period until cultivation of crops or raising of livestock can be resumed. The January 2010 Institutional Survey undertaken by the EFAP 3 Project indicated that most of the Committees for Disaster Management surveyed (all of which were liable to flooding) had undertaken risk assessments for flooding, and 25% of PCDMs had undertaken them for flash flooding. Most of the CDMs surveyed asserted that they knew the vulnerable communities in their areas in relation to flooding. Also, most disaster risk reduction efforts have been directed towards measures to make communities less vulnerable to negative flooding, and emergency response is more geared to floods than other types of disaster. Despite these efforts it is estimated that there is a mean of 100 people killed per year by floods, and mean agricultural losses of between US$ 100 million and US$ 170 million per year.

602. The situation may become more aggravated, however, as global climate change is considered likely to lead to higher temperatures and influence the rainfall patterns in Cambodia, resulting, amongst other things, in delayed rainy seasons, followed by intense rainfall and flash floods; and wet season river flow increases. The frequency and intensity of floods would appear to have increased during the 1990s. Harmful floods, instead of coming once every 5 years seem to have been coming annually (Helmers & Jegillos 2004), changing flooding patterns in Takeo, Kandal, Kampong Cham, Kampong Thom and Kampong Chhnang particularly. The trends since



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then need to be analysed and related to the earlier trends, however, as devastating floods in the last decade do not appear to have been quite so frequent. Drought

603. The rainy season in Cambodia is predominantly between April and October. Usually the crucial times in which continued drought can severely reduce agricultural crop production are between June and August. The Department of Meteorology in MOWRAM, using rainfall and temperature data from their weather stations, gives drought warnings. A map of priority zones in relation to drought risks from 2004 is set out below. As with flooding, however, priority communes for drought risk can vary from one year to another, according to the vulnerability of different sections of the population in them, and the nature of the drought impacts. In recent years severe localised drought has been an increasing threat.

604. The January 2010 Institutional Survey undertaken by the EFAP 3 Project indicated that most of the Committees for Disaster Management surveyed (many of which were liable to have droughts) had undertaken risk assessments for droughts, but these have been mainly at the national and provincial level. Nevertheless, a fair number of CDMs asserted that they knew the vulnerable communities to drought in their areas, but less so than their knowledge of vulnerable communities to flooding.

605. Responses given by Disaster Management staff in Prey Veng province in 2009, that is one of the provinces most affected by drought at different times in the past, is that their capacities to predict and respond to drought risks, are currently less than their abilities to respond to flooding disasters. Currently, when drought occurs in such rural areas, certain members of the household often migrate to urban areas in search of income‐generating employment till agricultural productive potential can be re‐established.



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606. Global climate change is considered likely to lead to higher temperatures and influence the rainfall patterns in Cambodia, resulting, amongst other things, in more frequent spells of drought and prolonged dry seasons; delayed rainy seasons and dry season river flow decreases. As Cambodian agricultural food production is dominated by rain‐fed rice production, relying on wet season rainfall, and where 80% of total agricultural production is in rice, risks from drought can have serious consequences for rural landless or smallholder producers. The frequency and intensity of droughts would appear to have increased during the 1990s. The trends since then, however, need to be analysed more carefully and related to the earlier trends. Typhoons and Damaging Storms

607. Typhoons and particularly damaging storms in Cambodia are more likely to occur in September and October, such as the Ketsana typhoon in 2009, which caused damage and loss valued at US$ 132 million. From the experience in the last two decades, however, although a number of such typhoons and damaging storms have occurred the numbers of people affected have not been particularly great, although the climatic impression is tremendous. What risk assessments for such storms have been undertaken in Cambodia have mainly been at the provincial and national levels. Abrupt Environmental Degradation

608. Environmental Degradation, silting of rivers and fish breeding zones, destruction of fish breeding mangrove swamps, widespread rural forest fires, landslides and other forms of environmental degradation are increasingly being cited as causes of fairly significant livelihood changes. Often, however, some of these are more gradual, and thus do not appear as sudden disasters, although sometimes these changes are more abrupt, as in the case of rural widespread forest fires or sudden landslides. The January 2010 Institutional Survey undertaken by the EFAP 3 Project indicated that amongst the Committees for Disaster Management surveyed a number at the district and commune levels had undertaken risk assessments for wild fires and landslides, but that some of the local authorities were less conscious of the communities that were more vulnerable to wild fires. Animal health pandemics and pest infestations

609. Although these have occasionally threatened in Cambodia, as the Avian influenza outbreak did in 2004, for which quite a lot of evaluative and preparatory response work was undertaken in Cambodia, in the last two decades there have not been major outbreaks creating major disasters amongst livestock or of crop destruction. Climate change, however, may lead to the development of different crop pests, for which there are currently insufficient means of combating them. Sudden restricted land or fishing area access

610. In recent years there have been instances of common resource land deprival from forestry concessions, abrupt land appropriation and land‐use inhibitors suddenly altering the local cultivable land availability or restricting common resource land that is so important for the livelihoods of more vulnerable families in rural areas. Similarly, restriction or conflict over the use of particular water courses for fishing has in recent years been a problem in some parts of Cambodia, and restricted access, particularly for small fishermen can have disastrous effects on



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their well‐being, many of them being comparatively poor, anyway. Often these affect only a limited number of communities, and so they do not get classified as “disasters”, but for the communities concerned they are seen and felt as such. Abrupt water supply changes

611. Besides the changes in run‐off water supplies, there are also sometimes abrupt changes caused by dams and water‐off‐take in different sections of water courses (sometimes in different countries) that have serious abrupt consequences for agricultural production in other regions. The Mekong River Commission (MRC) is conscious of developments along the whole course of the Mekong river system, which also has such a crucial influence on the Tonle Sap water system, but major developments, both upstream or downstream, could have major abrupt implications threatening economic disasters in certain zones of Cambodia. Abrupt changes in agricultural input supplies

612. Sudden non‐availability of important agricultural inputs or sharp increases in their prices can have a significant impact on agricultural production. To some extent this was part of the problems in 2007/2008. Usually, however, this does not get classified as a “disaster”, even through it may constitute a sudden abrupt change having very damaging consequences on agricultural production if it occurs at the wrong time of the year. Abrupt changes in food storage availability or crop conservation capabilities

613. Usually, changes in crop storage and conservation involve longer‐term developments, and do not constitute abrupt disasters, but sometimes in certain zones, a lack of storage and restricted access can result in isolation of food provision in that particular zone, which may be even further aggravated if crop conservation capacities are weak. Poor harvest impacts

614. Normally poor harvests do not get treated as “disasters”, but very bad harvests of major food crops due to a range of agro‐ecological factors have disastrous consequences for particular communities. Because these are often more drawn‐out they are not treated as “disasters”, although their consequences may be far greater than those of other one‐off disasters. The impacts of global climate change are likely to have a more crucial impact on agricultural yields, and the climatic instabilities involved may have as a consequence more bad harvests. Human health pandemics and sudden health risks

615. Fear of a major health pandemic from Avian Influenza in Cambodia in 2004 was marked, and preparedness programmes were initiated for it. There has also been concern for the widespread development of HIV/AIDS, SARS, Cholera outbreaks, diarrhoea outbreaks, and Dengue Fever outbreaks. Sometimes flooding is strongly associated with increases in bacterial diseases in contaminated water supplies, leading to diseases, deaths and weakening of the labour force. It is envisaged with climate change that underwater salinisation and sea‐water intrusion is more likely to occur in coastal regions. It may lead to more water‐borne diseases and bacterial diseases, weakening the labour power of rural populations. The January 2010 Institutional Survey undertaken by the EFAP 3 Project indicated that much less attention had been paid by disaster management structures to medical/health provision activities.



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Widespread Fires, Building Collapse and Major Transport Accidents

616. Widespread settlement fires, and road, railway, waterway and aircraft accidents, as well as building collapse and major industrial accidents (particularly ones where factory residues, atmospheric pollution or chemical pollution might be involved) have all raised concerns of disaster preparedness in Cambodia in recent years. Such disasters have come under the responsibilities of Cambodian Disaster Management institutions in recent years. The NCDM Secretariat has a special unit for this type of disaster. In 2009 the Cambodian Red Cross (CRC) was activated in November in relation to a more‐widespread fire in Phnom Penh. The lack of proper Building Codes in Cambodia, and of mechanisms for their enforcement leave the infrastructure vulnerable. A limited fire‐service and fire‐prevention equipment in buildings increases the risk involved with fires. The risk has been aggravated by rural to urban migration in recent years, and dense urban settlement in some areas. Sudden impacts on employment and the employment structure

617. Many poorer rural and urban populations in Cambodia are involved in multiple income‐generating occupations, or partly depend on remittances from household members who have migrated to other employment opportunities elsewhere. Sometimes these income‐earning possibilities can be abruptly changed by economic circumstances. In 2008/2009 lay‐offs in the garment industry and in the tourism industry in Cambodia had sudden knock‐on effects on income and remittances. Often such changes, although significant, are more drawn‐out, however, and are not seen as the “disaster” that they are to the households involved. Hiatus in national food market supplies and raised domestic food prices

618. Liberalised food marketing systems can be temporarily very unstable, although, where competition is still possible in those markets, they tend to work towards eventual comparative stabilisation. Certain communities or zones, however, may not have the purchasing power or access to supplies at particular points in time, which may leave certain communities suddenly very vulnerable to market changes. Transport breakdown abruptly limiting food supply

619. Sometimes such disruptions to food supply in particular zones can be caused by particular difficulties in transportation to the zones concerned, such as broken bridges, roads made inaccessible, broken‐down vehicles blocking roads, landslips blocking roads, fuel shortages etc. Although often being temporary, such problems can have fairly disastrous consequences for particular, more‐isolated communities dependent on limited access networks and transport modes. National social and political disruptions and conflicts

620. In the past major disruptions have been the result of social unrest or conflict, resulting in disastrous consequences within Cambodia. The political upheavals of the Khmer Rouge period of 1975‐1979, and the conflicts in subsequent years until the Peace Accords of 1991 had disastrous consequences for the lives and livelihoods of many communities in Cambodia. Even in later years of the 1990s social unrest and conflicts occurred in particular areas and particular points in time. Throughout these periods the Cambodian Red Cross (CRC) played a valuable role in alleviating the disastrous consequences of such conflicts. The July 1997 events in Cambodia, too, constituted a socio‐economic impact with significant shock implications. In the last decade, however, such



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conflicts have been slight, and have accordingly received much less consideration from disaster management bodies in Cambodia. Global food price instabilities

621. Although a number of different factors influenced the global food commodity price rises in 2007/2008, major causes were the natural instabilities of the international financial systems that have been poorly regulated in recent decades, aggravated by competition from subsidised bio‐fuel promotion and short‐term policy responses by a number of governments. The episode was noted by the lack of predictability as to how prices were likely to change. Although measures have been taken in the international arena to reduce the susceptibility of food commodities to the excessive speculative dealing in them that was manifest in 2008 the system is still comparatively unstable. International food prices have not returned completely to former levels. Globally, domestic staple food prices at the end of 2008 were still up 17% on 2 years earlier, with mean rice prices being the highest commodity involved about 28% higher. Although larger, more‐resourced agricultural producers may benefit from increased price rises and respond with increased production, many more‐vulnerable smallholder producers (as are many producers in Cambodia) may not be able to respond so well. The disaster management institutions in Cambodia were not, and still appear not, to be oriented to monitoring or responding to this type of disaster. Consideration of using food reserves to relieve unpredictable sudden disruptions may be a rather cumbersome approach, when other approaches, such as prepared cash‐for‐work schemes or fiscal adjustments may be more suitable. Global financial and economic instabilities

622. The global capitalist system of economy is inherently unstable, particularly where monitored and unmonitored financial transfers around the world are so poorly controlled, and so swift. The global economic disruptions of 2007‐2009 are still working through their consequences in many economies, and, as is often the case, have the most devastating effects on poorer people in both more‐developed and less‐developed economies. It would be unwise to consider these current instabilities as peculiar. The 1997/98 Asian financial crisis also had shock effects raising the poverty rate in Asian countries affected from 35% to 59% rather abruptly. The impacts were a bit difficult to isolate from the political upheavals in Cambodia in July 1997 and poor harvests, but appeared to have had a delayed effect, impacting more in 1998. They included similar impacts to the present crisis amongst poorer households: school absenteeism, increased health‐care costs, temporary migration pattern changes, reduced income, employment lay‐offs etc. In general terms the Cambodian economy in both instances has experienced sharp credit restrictions inhibiting operational financing for many businesses, reduced capital inflows, declining foreign currency deposits, export trade disruption and reduced export market demand. As with global food price instabilities the disaster management institutions in Cambodia were not, and still appear not, to be oriented to monitoring or responding to this type of disaster, even if other government departments have instituted short‐term monetarist, fiscal and trade restricting responses. Abrupt trade changes

623. The global trade system also displays a number of instabilities, and abrupt trade policy changes by particular countries could cause significant economic changes in Cambodia. This may be particularly so if they involve the two major economic neighbours to Cambodia of Thailand and Viet Nam, and trade flows with these countries were strongly affected. In November 2009



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there were threats of border closures following the political tensions between Thailand and Cambodia over Thaksin. Currency instabilities

624. The instabilities of particular major currencies, sometimes aggravated by substantial currency speculation, can have significant impacts on the currencies of smaller states. Over the last two years some major internationally‐used currencies, including the US dollar that is a major currency used in Cambodia, have been liable to significant fluctuations in relation to other currencies. Sudden surges in particular currencies could leave Cambodia in a weakened foreign exchange position at a vulnerable point in time, and influence abruptly the functioning of the Cambodian economy. Global and Regional Political Instabilities

625. A number of global political and conflict instabilities remain, although currently there are not any major ones amongst Cambodia’s immediate neighbours, although some instabilities are still manifest within Thailand, and in Myanmar. Cambodia, previously caught up in the “cold war” conflicts that worked themselves out in “hot war” conflicts in minor states, is currently comparatively free from such instabilities, but the consequences of the current global economic difficulties could have consequences in political conflicts with strong military/industrial complexes still pushing for militaristic non‐solutions that could spill over into different regions. The consequences of such conflicts can be a “disaster” for countries affected by them. Climate Change

626. Global climate change, influenced by human impacts on the atmosphere, is having a growing impact on socio‐economic life throughout the world. The comparative failure of the World Climate Change Conference in Copenhagen in December 2009 bodes poorly on the capacity of governments globally to deal adequately with the changes that are occurring that are primarily caused by human actions. It is also still difficult to predict quite how climate change will influence particular communities and countries. Cambodia is considered vulnerable because the likely impacts anticipated, although not in themselves being as severe as in some other countries, are likely to have strongly negative effects because of the existing vulnerabilities of many Cambodian communities, particularly rural ones. Where climate change impacts are more directly linked with agro‐ecological and agricultural development they have been considered in the appropriate sections above. Besides these, however, there are likely to be disease spread, sea‐level rises, subsidence and salinity effects that could have disastrous consequences for certain Cambodian populations. Loss of marine resources may also impact on coastal communities. Some attention has been given in Cambodia to anticipated impacts of climate change, but this is still not included within disaster preparedness responses in the country.



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APPENDIX L. INSTITUTIONAL ASSESSMENT AND TRAINING NEEDS OF NCDM

STRUCTURES

627. A number of government, national humanitarian, international disaster management and international humanitarian institutions have been involved in disaster management in Cambodia in recent decades. The main Cambodian institution involved with executive functions of disaster emergency response has been the Cambodian Red Cross (CRC), a humanitarian organisation, and currently it continues to be so, as well as increasingly engaging in a number of other disaster management activities (see APPENDIX H). The National Committee for Disaster Management (NCDM) was established in 1995. In 1999 its statutes were amended to establish Provincial and District level committees to be responsible for disaster management at their respective levels over their respective zones of operation. In 2006 this system was extended to the Commune level. The NCDM structures are not responsible for executive functions of emergency response, but the co‐ordination of activities only (see APPENDIX I for details on their institutional structure, membership, staff and responsibilities). The structure of NCDM is represented below:

Methodology

628. This assessment is partly based upon interviews with NCDM staff and members, PCDM staff and members in several provinces, as well as several local level CDM members undertaken in November 2009. It also has taken into consideration earlier capacity development activities and assessments (including the March 2009 UNDAC study) (see APPENDIX J for a review of this experience). Lastly, it has used the findings of the institutional survey undertaken by the consultants in January 2010 (see APPENDIX F). It has endeavoured to undertake the first step of the capacity development cycle, namely to engage stakeholders in assessment of changing needs and current capacities to pinpoint future capacity needs and accountability in the capacity development cycle. This, however, has been limited, by time and opportunity, to a discussion to establish agreement on priorities with Ross Sovann, Deputy Secretary General of NCDM and Head of the National Emergency Co‐ordination Center (NECC) of the General Secretariat of NCDM.



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629. The second step of the capacity development cycle is to assess existing capacity and future capacity development needs, endeavouring to measure them and indicate appropriate ways of monitoring their development. Other steps in the Capacity Development Cycle are given in APPENDIX N. Human Resource Availability and Needs within NCDM Structures

630. The functioning of NCDM and the CDMs at lower levels primarily rests upon designated members of these structures, whose prime employment is in other activities. Each CDM has a very limited number of staff to execute particular activities and only a portion of these is permanent. Currently the NCDM has 23 members, but only tends to meet after major disasters have occurred. It has a General Secretariat that has 55 staff, of whom 35 are permanent. Most of these staff are seconded from other institutions.

631. At the PCDM level the January 2010 Institutional Survey indicated that from the PCDMs surveyed, there was a mean of 39 members in each PCDM, but that 40% of PCDMs surveyed had over 40 members. As the provinces surveyed (only 10) were ones that are more likely to experience natural disasters, they probably have a higher number of members than some other provinces. The survey indicated that from the PCDMs surveyed that PCDMs had a mean of 11.9 staff, but 70% of the PCDMs had less than 10 staff, suggesting that the 3 provinces that had more than 10 staff had substantially more staff than 10. Only a mean of 4.1 persons were permanent members of the staff of PCDMs surveyed, although 30% of provinces surveyed did not respond to this question and 20% had more than 5 permanent staff.

632. At the district level the January 2010 Institutional Survey indicated that from those DCDMs surveyed (20) that the mean number of members in each DCDM was 25.6. It also indicated that from the DCDMs surveyed that the mean number of staff in DCDMs was 5.2, although 2 DCDMs surveyed (10%) had more than 10 staff. There was a mean of 4.3 permanent staff recorded in the survey, although only 60% of DCDMs surveyed responded to this question, so the real mean may be much lower. Three DCDMs (15%) only had 1 permanent staff member.

633. At the commune level the January 2010 Institutional Survey indicated, from those surveyed (20), that the mean number of members in a CCDM was 18, but 2 CCDMs (10%) surveyed had over 30 members, and 20% of surveyed CDMs had under 10. The Survey indicated that the mean number of staff in CCDMs was only 2, although 2 CCDMs (10%) had more than 10. There was a mean of 1.2 permanent staff amongst the CCDMs surveyed, although only 50% of CCDM’s surveyed reported on this point, and 45% of CCDMs surveyed only had 1 permanent full‐time member of staff.

634. At the NCDM General Secretariat there is a Bureau of Training & Capacity Building (which it is suspected is only 1 person or 2) within the Department of Training and Disaster Risk Reduction that has responsibilities to prepare plans and human resources training programs for national and local disaster management, and to “select candidate(s) for local and international training courses”. Currently, it would appear that this Bureau does not have even a list of staff of the NCDM, let alone details of staff at lower levels in the provinces. Nor would it appear to have assembled in a systematic way the educational levels, past work experience, and skills of these staff. Accordingly, it currently does not have the capacity to analyse the strengths and weaknesses of current staff as a basis for personnel deployment, recruitment needs and training needs overall. The training that is undertaken appears primarily to be on general disaster management themes, and on a fairly ad‐hoc basis and leadership led, rather than based on



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systematic analysis of skill development needs and structured planning of the training mix. This is discussed more within point 6 below.

635. The January 2010 Institutional Survey tried to elicit perceived additional personnel requirements as indicated by different CDMs, without tying this in directly with skill needs and time management of existing staff. This was phrased in terms of additional permanent staff requirements, and only 10 (20%) of respondents surveyed responded, which is not very representative. At the NCDM level the types of additional staff considered needed were primarily middle managers (10) and technicians (10). The one PCDM that responded considered that 3 additional technicians were required. At the DCDM level the types of staff considered needed were primarily middle managers, support staff and technicians (mean of 2.7 middle managers, 10.7 support staff and 4 technicians per DCDM). The demand for support staff appears to have been rather distorted by the expressed needs of the DCDMs surveyed in Kratie, which wanted an additional 25 support staff per DCDM. In other provinces the mean of support staff required by DCDMs did not exceed 4 per DCDM. The only CCDM to respond also considered that 2 additional technicians were the prime need. It is not clear from this survey, however, the specific types of middle manager, technician or support staff that are needed, and for what particular functions. Leaving aside suggested required organisational changes in CDM structures, a number of CCDMs expressed a need for permanent staff, but this need was more‐expressed at the national and provincial levels. At the national level it was considered that more members were needed, as was the case among CCDMs in Battambang and Kompong Chhnang. Previous training

636. The Institutional Survey of CDMs drew out previous training experience received. Whereas quite a number of staff at the NCDM level in Phnom Penh has received training in different aspects of disaster management, the training at the provincial level and below has been much more varied. The most useful training appears to have been in disaster preparedness and prevention, community‐based disaster risk management, evacuation procedures and emergency response. The survey does not draw out, however, the degree to which this knowledge has been well‐applied in practice, and to what extent people need refresher courses in this, as some of these categories were the most cited amongst the perceived future needs for training.

637. Training at the central level has benefited most from training provided by international organisations, whereas at lower levels, government trainers, NGO trainers and government in collaboration with NGO trainers were considered to have been the most successful. Of the training techniques used, training courses seemed the most acceptable and useful form of training, and occasionally workshops. For Disaster Preparedness and Prevention, however, study tours were also considered to be useful. Skills Availability and indicated Training Needs

638. The Institutional Survey of CDMs drew out current capabilities and additional skill needs in some areas, and what respondents considered were priority training experiences and needs.

639. The one respondent for the national level appears to consider that staff training needs are currently slight, except for unspecified refresher training, and training on community meetings on disaster management (for 70 people).



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640. At all lower levels from the provincial level downwards the most important training needs currently appear to be in relation to: emergency response, disaster preparedness and prevention, and disaster/emergency assessment (see Table 83 of the Institutional Survey). Other aspects of training needs were expressed, and needs can vary fairly considerably from one province to another.

641. At the district and commune levels, there are still needs for training in many of the aspects of disaster management that have already been conveyed at higher levels, but there is also a need for training of trainers at these levels as well.

642. The main data on the numbers of people involved at the provincial level and below requiring training of different kinds, and their expressed training needs are set out in the Table below. This gives some indication of the numbers requiring different types of training in the 10 provinces surveyed, but there would be difficulties in extrapolating these numbers to assess national requirements, without looking at the particular needs of all provinces. Table 87 Numbers needing major types of training in different aspects of disaster management as percentages of respondents’ responses for CDMs at the provincial level and below Type of training Level of

Disaster Manage‐ment

1‐5 persons

6‐10 persons

11‐15 persons

16‐20 persons



Risk Assessment & Risk Reduction

Provincial 50.0 ‐ ‐ ‐ 50.0 17.5

District 42.9 14.3 14.3 14.3 14.3 13.4

Commune 28.6 ‐ 28.6 28.6 14.3 15.1

Vulnerability Assessment

Provincial 33.3 ‐ ‐ ‐ 66.7 25.0

District 25.0 25.0 12.5 12.5 25.0 15.4

Commune 42.9 ‐ 28.6 14.3 14.3 12.1

Disaster Preparedness and Prevention

Provincial 44.4 11.1 ‐ ‐ 44.4 16.6

District 30.8 23.1 7.7 15.4 23.1 14.9

Commune 45.5 18.2 18.2 9.1 9.1 11.8

Community‐based Dis‐ aster Risk Management

District ‐ ‐ ‐ ‐ 100.0 32.5

Commune ‐ ‐ ‐ 100.0 ‐ 19.0

Community Meeting on Disaster Management

Provincial 100.0 ‐ ‐ ‐ ‐ 2.0

District ‐ ‐ ‐ ‐ 100.0 33.0

Commune 33.3 ‐ ‐ 33.3 33.3 24.7

Early Warning System Provincial 100.0 ‐ ‐ ‐ ‐ 5.0

District ‐ 66.7 ‐ 33.3 ‐ 13.0

Commune 66.7 ‐ ‐ ‐ 33.3 12.7

Disaster/Emergency Assessment

Provincial 42.9 28.6 14.3 ‐ 14.3 13.4

District 69.2 7.7 7.7 7.7 7.7 10.6

Commune 70.0 ‐ 20.0 10.0 ‐ 8.9

Emergency Response Provincial 50.0 12.5 ‐ ‐ 40.0 17.4

District 47.1 17.7 11.8 5.9 17.7 11.5

Commune 53.3 6.7 13.3 13.3 13.3 12.5

Pandemic response and preparedness

Provincial 40.0 20.0 ‐ ‐ 40.0 17.4

District 33.3 16.7 16.7 ‐ 33.3 16.8

Commune 25.0 ‐ 50.0 25.0 ‐ 12.5

Relief and Rehabilitation

Provincial 66.7 ‐ 33.3 ‐ ‐ 8.3

District 33.3 33.3 ‐ 16.7 16.7 11.8

Commune 25.0 ‐ 25.0 25.0 25.0 21.5

Mitigation Provincial 25.0 25.0 ‐ ‐ 50.0 18.0



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1‐5 persons

6‐10 persons

11‐15 persons

16‐20 persons



District 50.0 16.7 16.7 ‐ 16.7 12.2

Commune 50.0 ‐ 33.3 16.7 ‐ 9.3

Data collection Provincial 40.0 20.0 20.0 ‐ 20.0 11.4

District 57.1 42.9 ‐ ‐ ‐ 6.7

Commune 66.7 ‐ 16.7 ‐ 16.7 10.0

Data analysis Provincial 100.0 ‐ ‐ ‐ ‐ 3.0

District 50.0 ‐ ‐ 25.0 25.0 14.0

Communications in disaster management and public awareness

Provincial ‐ 50.0 ‐ ‐ 50.0 17.5

District 50.0 ‐ ‐ 25.0 25.0 14.0

Commune 50.0 ‐ ‐ ‐ 50.0 17.5

Computer training Provincial 100.0 ‐ ‐ ‐ ‐ 5.0

District 80.0 10.0 ‐ ‐ 10.0 6.3

Commune 100.0 ‐ ‐ ‐ ‐ 1.8

Proposal Preparation Provincial 100.0 ‐ ‐ ‐ ‐ 4.0

District 60.0 20.0 ‐ ‐ 20.0 10.6

Commune 100.0 ‐ ‐ ‐ ‐ 2.5

Training of trainers Provincial 100.0 ‐ ‐ ‐ ‐ 25.0

District 50.0 ‐ ‐ ‐ 50.0 19.5

Commune 66.7 ‐ ‐ ‐ 33.3 19.7

Source: Based on Section 11, Table 9

643. Caution needs to be applied in reviewing these training “needs”, because in some cases that “need” may be more a “desire”, or more of a “wish‐list” than the acquisition of an actual skill that would have a major impact on effectiveness in disaster management, given other factors.

644. Although a number of training needs have been expressed some would appear not to have been considered so much, although the need for them would appear to exist, such as: annual work plan preparation, information systems that use different technologies, particular needs of particular types of disaster, and assessing food needs over time for particular types of disaster. Current Capacities and Effectiveness and Future Needs

645. Besides reviewing the expressed training “needs” of respondents of the surveyed CDMs, it is important to review other aspects of the capacities of CDMs, and particularly of NCDM and the PCDMs, in order to have an overall view of current effectiveness, and weaknesses as a basis for capacity development and training planning. The institutional survey of January 2010 also brought to the fore some of these aspects. All this needs to be seen not only in the context of past experience, but also of likely future hazards, and the needs to respond to them. The following significant aspects have also been noted from literature and interviews: INSTITUTIONAL

A Disaster Management Law for Cambodia has still not been finalised, with clear definitions of the types of hazard to be considered to prevent disasters, what constitute disasters of different types, the different roles of institutions in disaster management and the types of response needed for each type of disaster;



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There is no regular system for the review of changing needs for roles and responsibilities of different operating institutions in disaster management in Cambodia, and their changing needs in collaboration;

Although co‐ordination and collaboration between different actors in disaster management in Cambodia has reportedly improved in recent years, there are still indications of the need to improve further the definition of roles and responsibilities in disaster management, particularly at the lower levels ‐ there is a need to prepare Standard Operations Procedures (SOP) and activity guidelines;

The NCDM General Secretariat has no general framework for assessing capacity development needs and formulating these into costed capacity development programmes, and accordingly currently does not have such programmes;

There is no needs‐based budgeting in relation to the regular financing of the activities of CDMs, with limited capacity for budgeting disaster management needs;

The political orientation towards disaster management has been limited to post‐event emergency response, ad‐hoc emergency supplies response and lack of supports for preparedness activities;

There are no systematised human resources and skill acquisition plans, with their associated training programmes for CDM structures, nor recruiting policies and career structure development policies;

CDMs operate primarily on the basis of part‐time participation of members having full‐time roles in other posts, with very limited permanent staff support.

OTHER TANGIBLE RESOURCE DEFICIENCIES INHIBITING PREPAREDNESS CAPABILITIES

There is no needs‐based budgeting for regularised rapid‐response financing methods in the event of threatened hazards and disasters;

Currently CDMs have no regular preparedness resource and delivery resource capacity under their direct responsibility;

There are no permanent offices and equipment available at local levels dedicated to disaster management activities;

CDMs have currently very slight transportation and communications resources of their own with which to operate.

ASSESSMENT AND INFORMATION DEFICIENCES INHIBITING PREPAREDNESS AND OVERALL DISASTER MANAGEMENT

Although a few Early Warning Systems (EWS) are in place primarily for floods and storms, those that exist still have a number of inadequacies, and others are not even formulated, as well as there being a need to strengthen alert systems associated with such systems,



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and public responses to these, as public awareness of disaster risks and preparedness actions is still very limited;

Activities of risk, vulnerability and disaster assessment have been operating, but without clear guidelines for the ways in which they are to be undertaken for different types of disaster, and with difficult implementation in quite a number of cases;

From the point of view of food security, their has been little systematic analysis of, and capacity development for, relief, rehabilitation and disaster risk impact reduction in relation to basic food supply needs for disasters of different kinds, nor of other national regular relief supply mechanisms;

Although final reporting procedures are currently operating in relation to individual disasters, there is not effectively a regular Monitoring and Evaluation (M & E) system in place, geared to tracking efficiency and indicating improvements for it, nor oriented to facilitating other developments in the disaster management cycle, particularly risk reduction measures, preventive measures, improved preparedness or mitigation measures.

FUTURE HAZARDS AND CHANGING DISASTER MANAGEMENT NEEDS

Although some attention has been paid to the possible impacts of global climate change on disaster management requirements in Cambodia, these are still comparatively difficult to predict, and there is still little systematic consideration of longer‐term disaster management capacity requirements in relation to this;

Different types of epidemics, animal disease and pest infestations could develop in the next decade, just as Avian Influenza only appeared in the last decade, and it is difficult to predict the likelihood and intensity of any likely pandemics, but a capacity to respond to such new hazards needs to be built;

At least once every 10 years a major regional or global socio‐economic disruption has had disastrous impacts upon Cambodia, but currently there is little consideration given in the country to preparing for and responding to these types of disasters, nor is it easy to predict them, but they are happening;

There is an increasing risk to urban areas from natural disasters in many Asian countries (see Asian Conference on Disaster Reduction, January 2010) that is also likely in Cambodia;

There is no systematic approach within NCDM to reviewing the changing importance of different types of hazard and disaster, and the measures needed to prepare for them, alert people to them, respond to them, mitigate them or build more permanent risk‐reduction capabilities to them (the types of disaster that are known to have impacted on Cambodia, or could impact on Cambodia are set out in Appendix 6.5).

Identified Training Needs

646. From the analysis given above the following particular training needs have been identified:



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1. Establishing Standard Operating Procedures (SOP) for different types of disaster within

the Disaster Management Legal Framework currently being finalised

647. There is still a pressing need to establish clear disaster management legal definition and responsibilities, and to then establish Standard Operating Procedures (SOP). It is currently anticipated that the Legal framework in the form of a Disaster Management Law will be presented for government approval in 2011. Draft SOP were commenced in 1997, but have subsequently been put in abeyance. The types of disasters to be included in this framework need to be defined, and the disaster management requirements, and definition of responsibilities for each type of disaster made clear. Until these are in place, between‐disaster planning and co‐ordination meetings should be held within CDM to assert operational modes, responsibilities and priorities in local disaster management. The regular review by NCDM of risks and the roles and responsibilities of disaster management institutions and the ways in which they are and should be moving should be put in place (probably every 3 years). Training Needs: Training for NCDM staff in formulating regular operations guidelines and SOP.

2. Improving budgeting and costing activity of NCDM and PCDM staff

648. Currently, the existence of an NCDM budget that is not needs‐based. No specific budgets for disaster management at other levels constitutes a significant handicap to the systematic development of disaster management in Cambodia. Nor is the current system cost‐effective, given the resultant costs and handicaps to general development resulting from the unpreparedness for disasters. In 2009 the NCDM overall budget was the equivalent of US$ 0.25 million, compared with an estimated total damage and loss from the Typhoon Ketsana in September/October 2009 of US$ 132 million, and mean agricultural losses of between US$ 100 million and US$ 170 million per year, caused by flooding. Having needs‐based budgets still needs to be pressed for with the RGC. In the interim, improved costing skills, and the preparation of draft budgets for different aspects of disaster management amongst NCDM and PCDM staff, is likely to strengthen the long‐term capacity of these structures to manage well their finances for disaster management development. It should also strengthen their capacities to prepare support proposals for emergency response to particular disasters and also prepare proposals for financing of different disaster management activities with other support institutions. Training Needs: NCDM and PCDM staff need training to be able to prepare realistic budgets for different disaster management activities. Along with this activity is a need for clear guidelines for other CDMs on the methods of preparing disaster support proposals.

3. Improved Human Resource Management and Training Planning in NCDM structures

649. A number of weaknesses in Human Resource Management within NCDM structures have been demonstrated that need addressing if more systematic and sustainable use of CDM members and staff is to occur, namely in:

Definition of the work responsibilities of individual staff and of particular members of CDMs

Improving the provision of management data on the responsibilities, education, experience and skills of staff and members of CDMs;

Establishing an employment policy, with principles of deployment, recruitment, remuneration and career structure;



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Capacity to undertake time‐use assessments of staff and active members;

Assessment of the existing skill capacities of staff and active members of CDMs, as a basis for assessing training needs in relation to work demands;

Establish collaborative links with Cambodian institutions and others over the development of different disaster management skills;

Establish a pool of trainers in particular topics;

Develop a number of training aids, and varied training methods for different aspects of disaster management;

Capacity to develop annual and 3 year human resource development and training plans;

Develop capacity in the NCDM to train PCDMs in Human Resource Management skills, and subsequently to DCDMs and CCDMs.

Training Needs: NCDM Human Resources staff need training to start building this capacity for human resources management and training planning.

4. Improved Capacity Development Planning

650. Staff of the NCDM (and also in some PCDMs) need training in the analysis of needs for capacity development of disaster management institutions and activities to put such activities on a more regular and sustainable footing. They need to be able to undertake the following:

Establish and modify a framework for analysis of capacity development needs;

Be capable of assessing the respective needs of different types of disaster and the risk of their occurrence;

Be able to cost different capacity development items, and weigh up the comparative costs of alternative approaches;

Formulate capacity development proposals and plans in such a form that they can be presented for financing and implementation;

Develop their skills in Monitoring and Evaluation (M & E) to facilitate improved capacity development;

Be capable of evaluating priorities amongst disaster risk reduction, prevention, early warning, preparedness, response, and rehabilitation measures for different types of disaster

Training Needs: Training of NCDM staff (and selected PCDM staff) in capacity development assessment and development planning

5. Provision of Permanent structures at Selected PCDMs

651. A number of PCDMs have expressed a need for permanent staff and permanent operating bases. The current nature of their organisation at the provincial level is still not focused because they lack permanent staff, their own space, equipment, transport and other resources for operating. It is considered that this level of permanency should begin to be established in a number of PCDMs that are more prone to different types of disasters or larger disasters. Those selected should also be ones to be first considered for the establishment of provincial costed budget approaches. The monitoring of their benefit from this should contribute to the later selection, as resources become available, of other more permanent CDMs. Such PCDMs should have a Provincial Disaster Management Officer as the executive head for the decisions of the PCDM.



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Training Needs: Some NCDM staff and selected PCDM staff need training in the setting up of permanent PCDM offices, and monitoring their effectiveness in operations.

6. Transport needs assessment capacities viewed also in a communications system perspective

652. Clearly, very few CDMs have their own dedicated transport for disaster management activities or the means to sustain them (fuel and repairs). Sometimes vehicles of CDM members can be made available for disaster management activities, but this is over and above their normal use. There is a need, particularly for co‐ordination and assessment purposes, for NCDM and PCDM staff to be more capable of assessing their transportation needs for different tasks, and costing them. Following this they need to be able to evaluate the optimal mix of transport means and communications systems for their circumstances in order to achieve the optimal employment of resources for them to undertake their co‐ordination and assessment functions. This experience would then prove useful in assessing such needs during disaster response and disaster relief operations. Training Needs: Training for NCDM and selected PCDM staff in transport use assessment is needed, in the context of communications alternatives.

7. ICT Skills and Communications Technology Provision

653. Currently there are 10 computers at the NCDM General Secretariat level, but only 4 of the PCDMs surveyed have a computer, and each of those has only one. The NCDM has internet connection during the day only, so is not able to communicate this way at night. At the district level only 5% of DCDMs surveyed have a computer, and then only one, and network coverage is more limited. Nevertheless, at the NCDM level there are 20 staff experienced in MS word and MS Excel and 15 in MS Power point, while at the CCDM level only 5 CCDMs surveyed have as a mean one experienced staff member in MS word, and only 2 have staff (only one in each) experienced in MS Excel. At the PCDM level there are usually between 3 or 4 staff experienced in the three prime MS functions, but usually only 1 person in the other skills. At the DCDM level they usually have between 2 and 3 people experienced in all of the MS functions, but only one each in the other functions. From the survey there is clearly a desire for more computer skills, particularly at the provincial and district levels. The IT consultant considered that there was comparatively good computer skills and knowledge, compared with other institutions with which he is familiar in Cambodia. Training Needs: Training primarily at first for NCDM and PCDM staff in:

Electronic file management for server and client including backup procedures

Data management (NCDM, PCDM)

Basic computer networking (NCDM)

Setting up and maintaining communications systems using , Internet, email and SMS (NCDM)

GIS (NCDM)

Use of communication systems, Internet, email and SMS (all levels)

Use of social networking sites (such as Google groups) to share documents



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8. Early Warning System coverage, alert systems and effectiveness

654. The January 2010 Institutional Survey indicated that Early Warning Systems (EWS) currently exist for flooding, droughts, storms and health epidemics, but not for anything else. Of these systems, that for flooding was considered the most effective (with the CRC having a well‐established system for disseminating flood warnings at the local level), with that for drought second, and that for storms, third. No EWS are established for disaster management purposes for pest infestation, animal disease or socio‐economic hazard early warning, yet some local CDMs have declared an interest in crop forecasting and food price monitoring data for early warning needs. There are needs to strengthen not only the data provision, its useful processing and its dissemination for improved early warning, but also the alert systems emanating from the use of such data, as well as the use made by these alerts by threatened populations, and the communications systems used for all of these functions, swift, timely communication being of the essence in these circumstances. Increased collaboration between MOWRAM and NCDM is particularly advocated in relation to EWS for floods, and improved alert systems down from the provincial level to the commune level. Training Needs: training to staff of NCDM, and local staff (provinces, districts, commune) on how to use and interpret early warning indicators.

9. Data Information Systems and Risk, Vulnerability and Disaster Assessments

655. Risk, Vulnerability and Disaster Assessments have all been made at different CDM levels for different types of disaster up until now, but primarily for natural disasters. CDMs have, however, expressed their difficulties in undertaking these. There is a need for clear guidelines on assessment methods and skills in analysing assessment data. Clearly, too, the swiftness of communication in some of these circumstances is crucial to the timeliness and effectiveness of any responses. Accordingly the communications systems need to be able to respond well in the transmission of the assessment data supplied to enable effective disaster management. Also, it has been noted that there are weaknesses in improved collaboration in collecting, comparing and analysing damage and needs data. These assessments need also to be able to respond to changing circumstances during the development of disasters. NCDM data storage is currently in spread sheets, when information technologies exist for better data storage and transmission. Training Needs: Training to commune staff in disaster assessment; training to NCDM staff in database use of most current datasets available in Cambodia.

10. Food Needs Assessment for particular types of disaster

656. Although the January 2010 Institutional Survey revealed that many CDMs considered that they were able to pinpoint food needs of vulnerable groups in their zones of operation, particularly in the event of floods, and slightly less so in the event of droughts, they often seem to be relying on data that are not particularly current. Sometimes, too, food needs are too crudely focused on rice provision, when the provision of some other foods and drinking water may be more crucial. It would not appear, however, that the measurement of food needs so far undertaken distinguishes well enough between different types of hazard and potential disaster. Consideration is slight of needs coming from: immediate household food stock losses, lost agricultural production, lost assets inhibiting future agricultural production, lost income‐generation, indirect health and sanitation impacts on agricultural production and income‐generating capacities. The differentiation between immediate food relief needs and estimated food needs during rehabilitation periods, is also often not undertaken. Secondly, the re‐supply of



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agricultural seed, and the mechanisms and capabilities of doing this, can strongly influence the food needs over a longer period. Also, there has been comparatively little review of mechanisms for strengthening the capacities of households and local authorities to conserve food stocks during disasters to cover at least the immediate period in which the disaster victims might be more isolated, and to explore preparedness approaches in this, as is currently being undertaken in Viet Nam. The capacity of CDMs to include such data and analysis of needs within their vulnerability and disaster assessments is important in effecting food security responses to particular disasters, and any consideration of food security reserve systems. Accordingly, there is a need to develop such assessment capacity, firstly with NCDM and PCDM staff, but subsequently at the more local levels. Training Needs: Training of selected NCDM and PCDM staff in food supply needs following particular types of disaster, and the likely parameters of these needs through both the relief and rehabilitation stages after disasters.

11. Disaster Reporting and Monitoring and Evaluation (M & E) of Disasters

657. Currently many CDMs are oriented to reporting to higher levels as they have not the means to provide emergency responses themselves. There is also a fairly well established system for undertaking final reporting of CDMs on the conduct of emergency response during particular disasters, although the January 2010 Institutional Survey indicated that a number of CDMs are seeking better guidelines on the form of such reporting. Also, there is a need for such reporting to assess weaknesses in the conduct of emergency responses, risk reduction measures that might be undertaken to reduce the risk in future disasters of the same kind, what early warning improvements could be made, what preparedness actions could be improved, by households themselves and by local authorities, and what improved mitigation actions could be undertaken. All of these would facilitate a more rounded disaster management and pinpoint capacity needs development for the future. Staff at NCDM and PCDM levels need to be trained more in these aspects, and guidelines established, which can later be extended to local CDMs. Training Needs: Training in creating and using standard formats for reporting document.

12. Prevention and Risk Reduction Measures

658. Following the Hyogo Framework for Action (HFA) on Disaster Risk Reduction in 2005, NCDM and CRC have taken disaster risk reduction onboard. NCDM articulated this in their Strategic National Action Plan for Disaster Risk Reduction 2008‐2013 (SNAP), and a number of NGOs have engaged in local initiatives in this direction, but mainly of short‐term duration and limited sustainability. Other sections of the RGC have not yet taken this much onboard overall. Measures that have been undertaken have primarily only been geared to floods. There is a need for longer‐term sustainable risk‐reduction activity at all levels of society that is integrated into the development work of different sectors. There is a need for a clear framework for the development of risk reduction measures at local levels by appropriate Ministries. Training Needs: Training selected NCDM and PCDM staff in risk reduction measures for the most important types of disaster, and gradually extending that learning to lower levels and to individual Ministries.



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13. Public Hazard Awareness and Preparedness Strategy and Programmes

659. There is a fairly high awareness amongst local people and local authorities regarding flood and drought risks, but this has not yet been incorporated into local preparedness strategies generally. Action AID, ADPC, Oxfam GB and the CRC have ongoing campaigns and projects in this respect in selected locations. Public awareness of hazard risks, however, for such things as storms is more limited, as shown by responses to the Ketsana storms in 2009. In general the Cambodian public has limited knowledge of the degrees of severity of different hazards and their associated risks, probable damage and the best precautionary steps to take. . Previously the CRC had noted the weaknesses of response in Kampong Speu province and certain districts of Prey Veng province to flood warnings. The CRC undertook community‐based public awareness campaigns in these areas, and bringing people from good response villages to poor response villages to raise consciousness over disaster awareness and the possibilities of disaster mitigation. There is no sustained mechanism to educate people in these aspects on a regular basis. The government of Viet Nam, in comparison is about to engage in a 12 year program to educate people throughout their country in these aspects and build mechanisms for local preparedness that do not depend on external supports. All available public information packages need to be reviewed, and a strategy for public education in hazards and local disaster preparedness needs to be established, and then an action programme to educate the Cambodian public in at risk areas, and encourage local disaster preparedness needs to be formulated for different types of disaster, and extensive training at all levels will be needed for this. Training Needs: Training NCDM staff, and later PCDM staff, in different approaches to raising public awareness of different types of hazard, and preparedness actions that the general public and local authorities can take to reduce the vulnerability to such disasters. This process could then be taken to lower administrative levels.

14. Emergency Preparedness and Implementing Emergency Response Actions

660. The January 2010 Institutional Survey indicated that at the provincial and local levels emergency preparedness and emergency response training is still considered the most required types of training, despite this having been the main training in the past. There are also strong needs for having supplies reserves, and means of delivering these. Nevertheless there are still no policy documents on financing and equipping preparedness stocks for emergencies, nor analysis of reserve needs, locations, nor likely off‐takes, deliveries and replenishment mechanisms for different types of supplies for different types of disaster. Most often the natural disasters occurring in Cambodia are localised, so ideally the response capacity would be at the more local level, but in line with national guidelines. Training Needs: Build on past experience and expand emergency preparedness and emergency response training for local level members of CDMs, but also provide training to NCDM staff to establish guidelines and policy for such actions, and NCDM and PCDM staff in the assessment of the needs for operational response preparedness.



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APPENDIX M. RESPONSE MECHANISMS TO DISASTERS IN RELATION TO FOOD

661. Of the range of hazards and disasters that can, and are likely, to impact on Cambodia, some have much greater consequences in terms of influence on food supplies to affected communities. The main characteristics of these influences in relation to major hazards are set out in Table 88. These are set in a sequence that starts from swiftest onset leading to slower onset, as the speed of onset can, if preparedness is not adequate, strongly influence the resultant impacts. This listing is not exhaustive, and can be refined and weighed. Those experienced in local disasters should also have an experience of the duration of recovery from particular losses and particular impacts of different types of disaster.

662. The crucial questions to ask (and try to answer in quantitative terms), for each major type of disaster likely to have an impact on food supply needs, are: Preparedness

What food, assets or cash reserves do households have to withstand disasters?

Could more be done to raise their awareness of risk and take preparedness measures?

What constraints apply to taking preparedness measures?

What Early Warning System with alert mechanisms could better enable food and asset conservation during each type of disaster?

What community or wider food reserve stocks exist locally to relieve immediate food shortages?

Emergency Relief

How long could a particular type of disaster continue in acute way? What is the mean for this?

What food needs are deficit that could inhibit normal sustained nutritional needs?

Are normal food suppliers still able to operate if affected people have means to purchase?

What alternative food supply sources exist for immediate relief supplies?

Can any immediate relief supplies reduce rehabilitation period duration (e.g. drinking water to prevent illness from bacterial diseases, or fresh seed for replanting)?

What supply relief delivery inhibitors exist?

What differentiation of vulnerability in terms of food insecurity exists amongst disaster victim populations?

Continued Rehabilitation Food Needs

What scope exists for recuperation of agricultural food production over the normal agricultural cycle?

For how long are communities likely to need additional food until they can return to “normal” circumstances?

What asset losses are likely to impact on food supply reduction, and for how long?

What health issues coming from the disaster are likely to inhibit agricultural production or income‐earning potential, by how much, and for how long?



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What disruptions to income‐earning potential over the rehabilitation period are likely from the disaster, with what impact on food consumption needs?

Future Disaster Risk Reduction in Terms of Food Supply

What measures could be undertaken, and at what cost, to established strengthened protection from food shortage impacts of particular types of disaster in particular zones?

What strengthening of the asset‐bases and income‐generating potential of vulnerable communities could enable their stronger resistance to the food deprivations of particular types of disaster?

Food Supply through the Disaster Management Cycle

663. As can be seen from the above, actions to strengthen the continued supply of, and access to, food through disasters can, and should, be undertaken at different stages of the disaster management cycle, and not be limited to externally‐supplied relief food supplies to disaster victims, with varying degrees of successful targeting of the most vulnerable. Accordingly, the different types of action that can be undertaken at different stages of the disaster management cycle are: Normal times

Measures that would help to reduce food loss in the event of different types of disaster (e.g. strengthened food stores, protected crop production, vaccinations);

Measures that would increase the economic strength of vulnerable households to enable them to withstand particular types of disaster (e.g. targeted income‐creation, disaster awareness education);

Measures to increase public awareness of disaster risks, and preparedness measures that they can take individually, or in association, to reduce risk;

Measures to maintain stocks of relief, repair means, and their swift delivery in the event of particular disasters in different zones, to ensure immediate relief, and aided rehabilitation in relation to food supply needs, in order to smooth food consumption needs;

Undertake risk assessments for different types of disaster in different zones, to see the extent of risk for different areas.

Alert/Warning Stage

Refine EWS to give earlier accurate warning, and improve the dissemination system to likely victims of hazards;

Accompany warnings with particular messages on crop, food stock and livestock conservation preparedness, health maintenance before and/or during disaster and working‐asset protection;

Assess the extent to which people respond to these warnings, and develop awareness programs for communities where warning response is slight.



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Disaster Stage

Assess swiftly numbers of people in desperate need of emergency food relief with limited resources for them to supply themselves, their locations and the length of time that the immediate disaster threat is likely to continue;

Calculate the resultant quantity of food requirements;

Locate possible sources of supply;

Assess transport delivery possibilities and constraints for supply of required emergency food supplies;

Deliver food supplies;

If the immediate disaster impact on food needs is likely to continue beyond initial anticipated period, undertake further food needs assessments, and further emergency response deliveries.

Rehabilitation Stage

Undertake an initial rehabilitation stage assessment of rehabilitation problems with food need implications, and their likely duration;

Assess what mitigating measures could be undertaken in the short‐term to reduce the negative impacts upon food needs;

Endeavour to implement mitigating measures to reduce likely negative effects on food needs;

Plan continued food supply deliveries to well‐targeted sections of the community, who are likely to require continued supports to enable adequate nutritional need fulfillment for the anticipated vulnerable households.

Immediate Post‐Rehabilitation Stage

Make final assessment of the extent of negative effects in each affected zone upon food needs, and the effectiveness of the emergency and rehabilitation period responses, with suggested improvements in the event of similar disasters;

Undertake an evaluation of all reported final assessments in order to improve and refine future food supply needs in the event of disasters, and preparedness and emergency response actions in relation to food supply needs.



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Table 88 Food Need Assessments for Major types of disaster having food implications

Type of Disaster

Preparedness factors

Immediate Losses Rehabilitation period

Crop/livestock loss Working‐Asset loss Income loss Health problems

Problem Duration (months)




Destructive storms

Solid stores to resist storms

Food stores destroyed with

stock

Variable More building damage than

productive asset loss

Recovery activities take up

labour time

‐

Flash floods Stores above flood levels

Stores inundated Depending on time and location

Sudden asset loss Recovery activities take up

labour time

‐

Abrupt input supply restrictions

Reserve of inputs Untimely restriction or high cost inhibits use

Resultant reduced yields

‐ Reduced production

‐

Annual Floods EWS & stores above flood levels

Stores inundated Depending on point in growing season

If tools and other assets lost or damaged

Harvest lost Increased bacterial diseases

Animal diseases

Animal isolation, vaccinations

Animals die or have to be killed

Depending on concentr‐ation

‐ Difficult livestock replacement

‐

Epidemics Avoidance, caution,

vaccinations

Incapacitation of income earners

‐ ‐ Incapacitation of income‐earners

Illness impact on crop production

& income earning

Drought Food or cash household reserves; irrigation

Crop losses with no cash/food reserves

Severe crop loss

‐ Need to seek employment elsewhere

Chronic under‐nutrition

Multi‐national economic crisis

Food or cash household reserves

No cash/food reserves and prices high

‐ Asset replacement

more expensive

Need to seek employment elsewhere

Chronic under‐nutrition



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APPENDIX N. CAPACITY DEVELOPMENT NEEDS FOR DISASTER MANAGEMENT

664. The term “capacity building” was previously called “institution building” until about 1990. The UNDP has defined 'capacity building' as the creation of an enabling environment with appropriate policy and legal frameworks, institutional development, including community participation (of women in particular), human resources development and strengthening of managerial systems, adding that, UNDP recognizes that capacity building is a long‐term, continuing process, in which all stakeholders participate (ministries, local authorities, non‐governmental organizations and water user groups, professional associations, academics and others) (Wikipedia – Capacity Building). Some people object to the term “capacity building” with its underlying notion of building something from the ground up, rather than developing on what already exists, and prefer such terms as “capacity development” or “capacity enhancement”. Although the term “capacity building” was the term used in the Project’s Terms of Reference, we will henceforth use the term “capacity development”, the term now most commonly used by the UNDP, which has undertaken much pioneering work in this domain.

665. Capacity development in organizations may relate to almost any aspect of its work, such as:

leadership

objective definition and strategy

diversification

policy development

planning

program development

program implementation

advocacy

collaboration

public relations

public awareness

improved management

administration (including that of personnel)

financial management

income generation

legal matters

evaluation

666. For individuals within organizations, capacity development may involve:

leadership development

advocacy skills

technical skills

speaking abilities

organizational skills

training abilities



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other personal and professional development.

667. Whatever expression is used the realization of efficient capacity development is not easy. As one evaluation of capacity development said, (Maconick & Morgan eds. 1999 p19) “capacity building is a risky, murky, messy business with unpredictable and unquantifiable outcomes, uncertain methodologies, contested objectives, many unintended consequences, little credit to its champions and long lag times.” The majority of capacity development initiatives make some progress, but leave a number of issues unresolved, and often take longer to achieve than anticipated. Trends in Capacity Development Approaches

668. In the 1980s capacity development was directed more towards central government institutions, but increasingly in the 1990s it was directed more towards local levels and a mix of community institutions. Towards the late 1990s governance constraints were seen as of greater importance in the success of capacity development programs than lack of systems or human skills. Capacity development for disaster management institutions is a comparatively recent development.

669. Early programs of capacity development focused on individual development and training, and upon the development of particular focal institutions. In the late 1980s and early 1990s approaches to capacity development broadened to policy dialogue, focused research, and workshops at local, national and international levels, involving more participatory approaches. Analysis of system functioning then moved to centre stage, followed later by a focus on the socio‐political environment and its impact on institutional development. Increasingly, external organizations began to supply more of the “intangibles” of capacity development – objectivity and neutrality, strategic protection and support, policy advocacy, mediation functions, investment in experimental approaches etc.

670. Within all this, early efforts concentrating on training often came unstuck because of a mix of poorly‐designed training programs, unsuitable institutional environment for promoting training activities, distraction of training initiatives from organizational weaknesses and weaknesses in the operational systems, as well as individuals using acquired skills to exit their institutions for other employments. Success factors in Capacity Development

671. The most successful capacity development programs have been found to be ones in which the following elements were prominent:

Recipient country displays ownership, initiative, commitment and energy towards capacity development of disaster management institutions;

Where a spirit of openness, experimentation and organizational learning was prevalent;

An institutional environment exists that provides security and organizational autonomy, but where progress is made more‐collectively;

Any external support is channeled through an engaged field system;

Recipient organizations are chosen with an ability to generate high performance.

672. The key elements of capacity development of institutions are:



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Strengthening the sustainable organizational development and functioning of institutions to better undertake their objectives and cope with change;

Developing appropriate policies, planning and strategies for the institutions;

Developing the legal frameworks for the institutions;

Awareness‐raising of, and reflexion on, particular aspects of the functioning and objectives of particular institutions;

Building consciousness of likely changes in future needs and capacity to anticipate future needs;

Strengthening human resource development within institutions, enabling individuals in such institutions in understanding, skills and access to information, knowledge and training that enables them to function effectively;

Strengthening managerial systems within institutions through improving management structures, financial management, procedures and processes;

Improving conflict resolution within institutions, personnel confidence building and incentive structures;

Strengthening the management of relationships between different institutions operating in the same or linked objectives;

Strengthening the public relations of the institutions;

Strengthening evaluative capacities.

673. The key aspects that need to be developed in capacity development of organisations are:

Capacity to engage stakeholders;

Capacity to assess needs and define a vision;

Capacity to formulate policies and strategies;

Capacity to cost, budget, manage and implement;

Capacity to evaluate, review changing circumstances and start the cycle again.

The Capacity Development Cycle

674. The Capacity Development Cycle, like the Disaster Management Cycle, involves a cyclical continuous process. The sequential steps of the Capacity Development Cycle are:

Step 1: Engage stakeholders in assessment of changing needs and current capacities to pinpoint future capacity needs and accountability in the capacity development cycle;

Step 2: Assess Existing capacity and future capacity development needs, endeavouring

to measure them and indicate appropriate ways of monitoring their development;

Step 3: Formulate an economically and institutionally viable Capacity Development Programme, cost it, and schedule it in relation to operational activities and other national planning and disaster management scheduling, establishing a monitoring system and evaluation system involved with it;

Step 4: Implement the Capacity Development Programme, undertaking the required

monitoring of its implementation and impact, and of unexpected developments;

Step 5: Evaluate the impact of the Capacity Development Programme, and review the new capacity situation in response to possibly changed current needs and move to Step 1 again.



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Experiences from earlier Capacity Development Initiatives in Cambodia

675. In 2000 the CDRI published a study of Capacity Development at the School of Agriculture Prek Leap (SAPL) (Sophal et al. 2000) and other Capacity Development studies (Godfrey et al. 2000). Those studies indicated a number of considerations that need to be kept in mind in relation to capacity development initiatives in Cambodia. Although now 10 years old they still contain a number of pertinent points. Particular weaknesses that they noted, which may have a more general applicability were:

Heavy reliance on foreign external funding and weak government funding;

Foreign diverse time‐frames, policy objectives, programme implementation methods and decision‐making structures and donor‐driven orientations, procedures and reporting systems made some implementation difficult;

Lack of cost‐effectiveness and evaluation of cost‐effectiveness;

Non‐ownership by SAPL of injected ideas and policies from external sources, as well as in decision‐making, particularly for infrastructural components;

Non‐revealing of budgets and expenditures, both by donors and local institutions;

Weak local managerial capacity for implementation;

Wrong financial incentives in place, as staff salaries were low, and donors paid counterpart supplements, causing tensions amongst staff and some staff just using the capacity development as a stepping‐stone to different employment;

Over‐concentration on instructional capacity and curricula, rather than on skills of SAPL management;

Greater concentration on individual capacity development, with some on institutional, but little on financial capacity development, and even where the focus has been on the latter two, achievement has not been as great;

Capacity development seen often only as training;

Previously changes in training staff led to fluctuations in style and curricula of skills provided, trainers unconfident in the material to be conveyed and weak team collaboration;

In early stages infrastructural constraints were severe, and maintenance funding remained an issue;

Practical work activity more useful;

Short courses by outside instructors, discussion groups and external study tours of were of mixed utility;

Language difficulties between external advisors and local staff;

Conflicting models of management prevailed, with difficulties of building up trust between external advisors and local managers;

Lip‐service consideration of sustainability issues was not converted into practical application;

Project approaches to capacity development are often inefficient in comparison with longer‐term sectoral approaches.

Capacity Development Needs in the Short, Medium, and Long Term

676. The programming of short‐term (2010), medium‐term (2011‐2013) and longer‐term (post‐2013) capacity development needs are indicated in Table 89. These have also taken onboard the UNDAC recommendations of March 2009 (UNDAC 2009). Some of the short‐term



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needs, such as Disaster Law preparation, are being developed separately, and some capacity development needs are not particularly within the skills of the consultants to provide.

677. Within the time and resource constraints, however, the consultants have programmed most of the short‐term needs into Phase 3 of the EFAP 3 Project within the 7 components set out in APPENDIX O. The medium‐term needs for the period 2011‐2013 will be incorporated into a 3 Year Capacity Development Plan for that period, and costed, and then presented in different components. The outline contents of this Medium‐Term Plan are set out below, but will be developed in depth during Phase 3 of TA.



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Table 89 Short‐Term, Medium‐Term and Long‐Term Disaster Management Capacity Needs Needs Short‐term (2010) Medium‐term (2011‐2013) Longer‐term

(post‐2013)

Institutional and Training

Regular DM institution review process

Develop Proposal for regular review of DM responsibility and collaboration structure

Establish DM responsibility and collaboration review system every 3 years

Continue DM responsibility and collaboration review system

Review Disasters to be included in DM consideration and particular needs of each

Develop definition of disasters, risk measurement, frequencies and criteria for analysing the needs of each

Develop disaster type specific programmes and guidelines

Continue and adapt disaster type specific programmes

Develop nationally valid operational guidelines for different Disaster Management circumstances

Produce Standard Operating Procedures (SOPs)

Produce further written guidelines for specific DM tasks

Review the use of SOPs and guidelines, and amend according to need

Establish Disaster Law Finalise Disaster Management Law for Approval

Have Disaster management Law approved Review Disaster Management Law

Establish budgeting framework and accountancy

Establish budgeting process and costing this for operational budgeting, and undertake advocacy for establishing needs‐base regular budgeting mechanisms

Develop pilot budgeting exercises, possibly for first needs‐based budgets at NCDM and some PCDM levels, and apply costing techniques to capacity development plans

Continue and extend needs‐based budgeting

Improve Human Resources Planning Capacity

Develop Framework for DM Human Resource Assessment needs

Develop Human Resource Development Programming

Continue Human Resource Development Programming

Review training needs, training techniques and establish regular training plans

Establish methods for evaluating training needs, alternative training techniques, and training plans, at least initially for annual training programmes

Establish annual and three‐year training programmes, and monitor new training techniques, integrating the work with other training institutions

Continue training programmes, introducing improved training techniques

Develop NCDM Capacity Development Programme

Establish structure for Capacity Development Programming and draft 3‐year Capacity Development Programme for the period 2011‐2013

Execute 3 Year Capacity Development Programme, evaluate, and prepare future programme

Continue successive capacity development programmes, with more‐established capacity development structure within NCDM

Lower‐level permanency development of human resources and building development

Establish a proposal for 3 PCDM permanent officers and appropriate buildings and equipment in 3 key disaster prone provinces to be included in 3 year Capacity

Establish 3 PCDM permanent officers and appropriate buildings and equipment in 3 key disaster prone provinces, and monitor their development.

Establish further permanent staff and permanent offices as deemed appropriate and affordable.



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Needs Short‐term (2010) Medium‐term (2011‐2013) Longer‐term (post‐2013)

Development Plan

Transport and Communications

Review transport uses, needs and costs for different DM operations.

Begin to develop transport use analysis for DM operations within Capacity Development Planning, bearing in mind communications system alternatives

Include DM transport development component within 3 Year Capacity Development Plan

Continue transport use assessment and further transport development plans and investments

Review DM Communications System needs and alternatives

Propose improved DM Communications System with cost‐efficient systems, install them and train pertinent DM staff in their use

Review changing telecommunications technologies and improved communications systems for DM

Continue developing improved communications systems

Disaster Management data collection, aggregation, use and dissemination

Early Warning System (EWS) development

Review functioning of existing EWS, and requirements for other types of disaster, and link improved system with tele‐ communications improvements

Develop further most important EWS, particularly paying attention to dissemination and use, and alert systems and public responses

Continue to review and develop EWS.

Risk, vulnerability and disaster needs assessment improvement

Review the data needs, and data aggregation and use for different types of assessment, including communications needs, and implement improved system

Develop clear written guidelines/ manuals for risk, vulnerability, damage and disaster needs assessments

Review and continue to develop the risk, vulnerability, damage and disaster needs assessments system

Food implications and food needs assessment for different types of disaster

Review assessment of food needs emanating from different types of disaster, and develop improved assessment of food needs in disasters with NCDM structures staff, and for food reserves considerations

Refine the system of assessing food needs for different types of disaster, and the resultant food availability needs

Incorporate food needs assessment system with food reserves, cash‐for‐work and other emergency support systems (see below)

Monitoring, response evaluation, and DM evaluation development

Review existing DM monitoring and evaluation reporting in the context of the DM cycle, and final emergency response reporting, and establish improved M & E systems, and guidelines/manual for final emergency response reporting

Continue improvement of M & E systems, and the development of M & E capacity within NCDM

Continue improvement of M & E systems

Disaster Prevention, Preparedness, Mitigation and Risk Reduction Activities

Prevention and Risk Reduction Measures for different types of disaster

Develop preventive and risk reduction measures for different types of disaster, following the SNAP priorities, but with

Establish programmes of prevention and risk reduction for different types of disaster and cost them

Establish prevention and risk reduction programmes, incorporating them into cash‐



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Needs Short‐term (2010) Medium‐term (2011‐2013) Longer‐term (post‐2013)

costings for‐work and community programmes following emergencies and in regular programmes

Public Hazard Preparedness Programmes

Review past approaches to hazard preparedness with the public and mitigating approaches, in line with SNAP strategy

Develop key public hazard preparedness publicity programmes for the public in likely affected areas, benefiting from experiences in neighbouring countries, like Viet Nam in this.

Continue developing hazard preparedness programmes with the public, and review priorities in this

Emergency Preparedness and Executing Response Actions

Supply reserves and delivery system development

Establish framework for analysing reserve needs, locations, off‐takes, deliveries and replenishment mechanisms for different types of supplies and reserve stock management for different types of disaster, and a food reserve policy

Develop a pilot system run by NCDM (or other designated structure) for emergency stocking of food, seed and supplies for different types of emergency

Review the applicability of extending an emergency supplies stocking policy further within the country, on the basis of experiences from the pilot system.



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APPENDIX O. CAPACITY DEVELOPMENT PLAN FOR PHASE 3 OF THE TA

678. The proposed Capacity Development Program75 in Phase 3 has 7 components described in the following sections. 1. Standard Operating Procedures (SOP) and the regular revision of Disaster Management responsibilities

679. Objectives: Develop the capacity within NCDM to consider the full range of hazards and disasters likely to threaten Cambodia during the next decade. Incorporate that differentiation into the preparation of draft Standard Operations Procedures (SOP) for disaster management in Cambodia that will be compatible with the Disaster Management Law currently being drafted. Develop proposals for a regular review mechanism for the roles and responsibilities of different institutions in disaster management operations and the re‐prioritization of threatened hazards.

680. Methods: EFAP 3 project staff to work with NCDM staff in a series of meetings, with designated tasks to be completed between meetings, working towards a proposed regular review system and draft Standard Operating Procedures (SOP), that can be finalized in line with the legislation on disaster management under development. This would include a sub‐component on this in a workshop with PCDM staff.

681. The activities will cover the following aspects: For the regular review system:

Establish agree review periodicity

Establish format for assessment presentations

Establish mechanism for preparing options for the review

Establish participants in the review process

Establish decision‐making process emerging from the review

For Standard Operating Procedures (SOP)

Review work already done in 1997 draft, and other examples of SOPs (e.g. Bangladesh SOP)

Types of disasters to be covered

Glossary of Disaster Management terms

Institutions for which roles and responsibilities are to be defined

Tasks for Normal Times, Alert and Warning Stage, Disaster Stage and Rehabilitation Stage

75 In the components given below the EFAP 3 consultant staff are abbreviated as follows: FG = Francesco Goletti (Team Leader), VT = Vincent Tickner (Capacity Development and Institutional Specialist), JS= John Spilsbury (Monitoring and Evaluation Specialist), SM= Steven Mellor (IT Specialist) and IS=Ieng Somonea (National Food Security Consultant)



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682. Team Responsibility: VT (work days: Preparation 5; Meetings 3 ½ ; Workshop ½ ; Assessment 1)

683. Participants: VT and 3 designated NCDM staff with appropriate experience, and selected PCDM staff in workshop (NCDM staff workdays: Meetings 4 ½ ; Follow‐up work 45; workshop 1 ½ ; PCDM staff: workshop 5; include at least one person from CRC Disaster Response section familiar with SOP for Disaster Response as an observer/participant in meetings only – workdays 1 ½).

684. Results: Draft review system structure and draft SOP produced.

685. Cost Involved: USD 4,566

686. Period: September to early November 2010

2. Enhance NCDM and PCDM Capacity to Plan, Monitor and Evaluate their Own Performance

687. Objectives: To enhance the long term delivery of services by NCDM through better planning, monitoring and evaluation Methods:

688. Training will begin with a one day session introducing concepts, purpose and intended results. This session will be attended by NCDM and PCDM staff members from selected provinces. Following this the training team will spend three days with each NCDM department to facilitate:

(i) production of a departmental plan

(ii) production of an accompanying M&E system and budget

(iii) collection of baseline data

689. Similarly each of the selected provinces will be visited and a three day session facilitated to produce the same results. A working session will then be held with all participants at NCDM with the Secretary General and Deputy Secretary General, Chief of Emergency Coordination Center to combine plans and M&E systems.

690. It is recommended that NCDM provide a co‐facilitator / trainer to assist with translation and delivery of the training / facilitation.

691. Delivery of training and facilitation sessions in planning, M&E to (i) NCDM staff members and (ii) PCDM staff members from selected provinces (three provinces).

692. Training sessions will include generation of baseline data for M&E purposes and collection of a first set of quarterly data compiled in a report for submission to the General Secretary.

693. It is proposed that initial training delivered in June to July will generate a plan and set of monitoring and evaluation indicators. Baseline data for these indicators will be collected by



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course participants as a part of this training. A baseline report will be produced and submitted to the General Secretary.

694. In follow up training in September to October data will again be collected for the indicators and a quarterly report produced. This report will again be submitted to the General Secretary.

695. Team Responsible: Monitoring and Evaluation Consultant and the NCDM Secretary General. The M&E input will be 38 days.

696. Participants: Participants will be the five NCDM Department Heads with one or two relevant people from these departments. It is anticipated that the total number of participants will be 15 to 20 people.

697. Results: (i) Production of an annual plan for the NCDM Secretariat with related M&E and a budget

that contributes to NCDM future strategy and the Strategic National Action Plan for

Disaster Risk Reduction

(ii) A baseline report for the M&E system giving information for each indicator

(iii) An initial quarterly M&E report giving progress for each indicator

(iv) Enhanced capacity of NCDM staff in planning, monitoring and evaluation

698. Costs: USD 1,400

699. Period: Initial training in planning will be delivered in the June to July 2010 allowing the annual plan and associated budget to be presented to the National Governments Budgetary Cycle in October 2010.

3. Improved Human Resource Management and Training Planning in NCDM structures

700. Objectives: Establish the beginnings of a regular system in NCDM for human resource management and training planning, training needs assessment, and annual training plans.

701. Methods: EFAP 3 project staff to work with 3 NCDM staff primarily from their Bureau of Training and Capacity Building, in a series of meetings, with participants engaging in ongoing activity between meetings.

702. This would be achieved through the following:

Improve the definition of the work responsibilities of individual staff and of particular members of CDMs (job descriptions);

Improve the availability of management data on the responsibilities, education, experience and skills of staff and members of CDMs (staff inventory);

Reviewing organisational structure and staff allocation;

Introduction to time‐use assessments of staff and active members;

Assessment of the existing skill capacities of staff and active members of CDMs, as a basis for assessing training needs in relation to work demands;

Establish collaborative links with Cambodian institutions and others over the development of different disaster management skills;



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Establish a pool of trainers in particular topics;

Establish a capacity to develop annual training plans.

703. Team Responsibility: VT (work days: Preparation 7; Meetings 1 ½ ; Assessment 2)

704. Participants: VT and 3 designated NCDM staff primarily from their Bureau of Training and Capacity Building. (NCDM staff workdays: Meetings 4 ½ ; Follow‐up work 39) (include at least one person from the CRC Human Resources Dept with experience in these matters in the CRC as observer/participant for meetings only – workdays 1 ½).

705. Results: Improved provision of basic information and techniques for human resources management, and draft annual training plan for 2010

706. Costs Involved: USD 1,891


4. Improved Capacity Development Planning and 3 Year Capacity Development Plan 2011‐2013

708. Objectives: Establish a Capacity Development Planning capability within NCDM, and prepare a 3‐year Capacity Development Plan for the period 2011‐2013.

709. Methods: EFAP 3 project staff to work with 3 NCDM staff to establish a Capacity Development Planning capability within NCDM & prepare 3 year (2011‐2013) Capacity Development Plan (CDP) through a series of meetings, with participants engaging in ongoing activity between meetings.

710. This would be achieved through the following:

Establish a framework for analysis of capacity development needs;

Establish capability to assess the respective needs of different types of hazard and the risk of their occurrence;

Be able to cost different capacity development items, and weigh up the comparative costs of alternative approaches;

Be able to formulate capacity development proposals and plans in such a form that they can be presented for financing and implementation;

Be capable of evaluating priorities amongst disaster risk reduction, prevention, early warning, preparedness, response, and rehabilitation measures for different types of disaster;

Prepare a 3 year Capacity Development Plan for NCDM structures for the period 2011‐2013 (for more on the medium‐term requirements, and major likely components of this plan see below)

711. Team Responsibility: VT, with support from FG generally, and JS on M & E aspects of 3 Year Capacity Development Plan (VT work days: Preparation 10; Meetings 2; Workshop 1; Assessment 2 – FG (in late October & early November) Preparation 1; Meeting ½; Workshop 1 – JS (in early November) Preparation 1; Meeting ½ ; Workshop 1)



259

712. Participants: VT and 5 designated NCDM staff, including one with budgeting skills, and one with human resource management skills, with some contribution from 3 selected PCDM staff (NCDM staff ‐ Meetings 10; Follow‐up work 70; Workshop 5 – 3 PCDM staff – Meetings 3; Follow‐up work 24; Workshop 10) (include at least one person from the CRC DMD, experienced in annual action planning in meetings and workshop only – workdays 3).

713. Results: A capability of NCDM staff to engage effectively in Capacity Development Planning, and to have a costed 3 Year Capacity Development Plan, for government and/or other funding.



5. Information Technology (IT) and information management capacity development

716. Objectives: Establish with NCDM structures a workable technology for disaster management information communication, and develop appropriate assessment and reporting systems, providing the necessary training to enable operational staff to use these systems efficiently. NCDM, as a coordinating body, should be able to execute the following activities:

Maintain a set of early warning indicators for various disaster scenarios and ensure that these indicators are understood and available with all CDMs and to NGO’s;

Maintain an electronic library of disaster management and related material, and be able to disseminate it;

Identify what data are available from each agency, its scope, accuracy and availability;

Identify gaps in the available information, particularly resource mapping, and work with the various agencies to correct these gaps;

During a disaster be able to ensure that appropriate data (depending on the type and extent of the disaster) are available from, and shared between, the various agencies in a standardized format;

Standardize damage and needs assessment and reporting formats, with final disaster reporting formats that are evaluative in a way that draws out operational efficiency problems, and provide data for evaluation of needs throughout the whole disaster management cycle, particularly for preventative and preparedness improvement;

Establish and maintain effective communication networks and links from NCDM down to CCDM level for routine data sharing, dissemination of information and for coordination of emergency response teams.

717. Methods: EFAP 3 project staff to work with NCDM staff in a series of meetings, with designated tasks to be completed between meetings. Training will be mainly mentoring with EFAP 3 project staff working alongside NCDM staff with some formal training (possibly using outside trainers). a) This would involve the supply of the following hardware and software:

A computer network and related hardware (printer, scanner, projector, video camera etc) at NCDM with file server, regular backups and fast reliable internet access;

Ensure a dedicated computer is available at PCDM (and later to DCDM levels) with fast reliable internet access;

Ensure that computers are equipped with appropriate software (MS office, GIS, Statistical package etc).



260

b) The improvement of the following communication links:

Establish an email domain for NCDM;

Establish electronic file sharing mechanisms between national and provincial levels (later this can be extended to the district level);

Establish a communications network for the coordination of disaster response teams to the PCDM level, and pilot test a system down to commune level using mobile technology in one selected province.

c) The improvement of data management by the following:

Establish and maintain a database of databases (detailed inventory of routine data available from each agency, its scope, periodicity, accuracy and availability);

Draft a set of standards and protocols and formats for sharing of information (e.g the use of standard location codes and GIS coordinates);

Establish the beginnings of a mapping and GIS resource system at NCDM;

Establish an electronic library for disaster management and related material at NCDM that can be replicated onto the computers at PCDM and possibly be made available over the internet using a site such as Google groups;

d) The training of pertinent staff in the following skills:

Electronic file management for server and client including backup procedures;

Data management at NCDM level (and later at the PCDM level);

Basic computer networking, security and back‐up (NCDM);

Setting up and maintaining communications systems using , Internet, email and SMS (NCDM);

GIS use (NCDM);

Use of communication systems, Internet, email and SMS, initially at the NCDM level (subsequently providing training at all levels);

Use of social networking sites (such as Google groups) to share documents.

718. Team Responsibility: SM, with principal support from JS on information systems, indicators, reporting and evaluation techniques, and secondary support reviewing approaches by FG, IS and VT. SM will be spending about 72 person days in this activity

719. Participants: NCDM staff, identified as suitable because there are currently no designated IT staff in NCDM, with possible outsourcing of some trainers for selected items.

720. Results: A capability of NCDM staff down initially to PCDM staff to use effectively the improved information technology with appropriate indicators and assessment methods for effective disaster management co‐ordination. Extension to lower level CDMs can be contemplated in the 3 Year Capacity Development Plan (2011‐2013) (see below).


722. Period: Mid June to Late November 2010

6. Improve Food Needs Assessment amongst NCDM structures from different types of disaster



261

723. Objectives: Deepen the capacities of NCDM staff to assess food needs emanating from different types of disaster, both in themselves, and as a pre‐requisite for assessing food reserve needs.

724. Methods: EFAP 3 project staff to work with 5 NCDM staff, subsequent to the work on disaster differentiation, in 3 meetings, with participants engaging in ongoing activity between meetings, and then followed by a half‐day workshop with selected PCDM staff (maybe incorporating CARD FSN staff WFP, ADPC and CRC staff).

725. The following aspects would be covered:

Current household preparedness and food retention practices as safeguard against different types of disaster;

The comparative importance of different types of food and drinking water for relief support during different types of emergency;

Quantities and nutritional value of food needed for sustained health of different categories of people through disaster periods;

Assessment of duration of needs for immediate relief during different types of disaster;

Indirect factors (e.g. health problems, seed loss, equipment loss, other asset‐loss, income‐loss, agricultural production loss) contributing to food needs during rehabilitation periods;

Assessing the likely duration of rehabilitation periods for different types of disaster;

Spatial mapping of quantitative externally‐provided food supply needs for relief and rehabilitation from possible disasters.

726. Team Responsibility: VT, with support from FG and IS (VT – Preparation 12; Meetings 1 ½ ; Workshop ½ ; Assessment 1; FG – Preparation 1; Workshop 1; IS – Preparation 1; Workshop 1)

727. Participants: VT and 5 designated NCDM staff and selected (10) PCDM staff (plus CARD FSN members, WFP, ADPC and CRC staff) (Workdays – NCDM staff: Meetings 7 ½ ; Follow‐up work 50; workshop 2 1/2; 10 PCDM staff – Workshop 5) (CRC, CARD, ADPC and WFP participation in workshop for half‐day) (include someone from CRC DMD with experience in food needs assessment in meetings and workshop only as observer/participant – workdays 2).

728. Results: Improved capacity of NCDM and PCDM staff to assess food relief requirements for immediate disaster response and during rehabilitation periods.



7. Enhance NCDM Capacity to monitor and Evaluate Disaster Response Initiatives

731. This option has two components. The first component will provide training to selected NCDM staff in how to monitoring and evaluate NCDMs own overall performance in responding to a disaster. The second component covers how to monitor and evaluate an individual disaster response initiative implemented by another agency (i.e. Government Departments, UN Agencies and NGO’s). This second component will involve developing a manual including a set of tools for monitoring a particular projects performance in responding to a disaster. Selected NCDM staff will then be trained in the use of this manual.



262

732. Objective: To improve on‐going and future disaster response initiatives by learning, monitoring and evaluation and feeding analysis, results and lessons into decision making.

733. Method:

734. Component 1: M&E of NCDMs Response to a Disaster

735. This component will be based on facilitation. A facilitation workshop will be held with NCDM staff to design a system to monitor and evaluate NCDMs response to a disaster. This will include developing standardized damage and needs assessment reporting formats, determining a set of indicators to measure NCDMs disaster response, data collection and analysis with identification or design of a system for feeding results into NCDM decision making processes. The workshop could involve a simulation exercise where a disaster is simulated and participants have to monitor the response. The workshop is planned to last three days.

736. Component 2: M&E of Disaster Relief Initiatives performed by Other Organizations

737. Training material will be developed covering how to monitor and evaluate disaster relief initiatives. It is anticipated that this material will draw heavily on existing material and best practice available on the Internet. Any available training material in Cambodia will also be used as reference material, such as manuals used by CRC and training material available from VBNK and other Cambodian training providers. Training material will need to be written in Khmer and adapted to the specific requirements of NCDM Disaster Managers. When training material has been developed in how to monitor and evaluate disaster relief initiatives, training will be delivered to participants. Training is planned to last two days.

738. Team Responsible: Monitoring and Evaluation Consultant and the NCDM Secretary General. The M&E consultant input will be 12 person days.

739. Participants: The NCDM Disaster Response and Recovery Unit (approximately six people)

740. Results: The NCDM Response and Recovery Unit will be able to effectively monitor and evaluate disaster relief projects implemented by other organizations. They will be able to rapidly collect and analyze data and feed results into NCDM disaster relief coordination processes. The NCDM Response and Recovery Unit will also be able to monitor and evaluate NCDMs own response to a disaster. They will be able to identify appropriate indicators, rapidly collect and analyze data and feed this into NCDM decision making processes improving performance.

741. Costs Involved: USD 500

742. Period: September to October 2010



263

Formulation of NCDM 3 Year Capacity Development Plan (2011‐2013)

743. The program suggested given above responds to many of the identified immediate capacity development needs, but for the NCDM structures to become really efficient, sustained capacity development is needed. That has been recognized in the NCDM proposal prepared in March 2010 to the World Bank for the Institutional Strengthening of Royal Government of Cambodia’s National Committee for Disaster Management and Investment for Disaster Management presented to the Global Fund for Disaster Risk Reduction (GFDRRT) and Typhoon Ketsana Emergency. It is still not clear whether or not this proposal for a two‐year program (2010‐2011) is to be accepted for financing, and even if it is, we now being in March 2010, more of it is likely to spill over into 2011, and maybe into 2012. This program, with its budget of US$ 7,725,000 would cover some of the Medium‐Term needs indicated in Table 89, particularly on:

Refining and disseminating Disaster Management Policy

Multi‐Sectoral Disaster Preparedness and Emergency Response Planning

Further extending the NCDM Disaster Management Information System beyond the efforts being made by EFAP 3 during 2010

Operational measures for Early Warning systems and Public Disaster Awareness promotion

Disaster Risk Assessment development and longer‐term disaster management strategies

744. Also during the next few months the Asian Development Bank (ADB) is developing its draft strategy for its 2011‐2013 development program in Cambodia. This is likely to focus on agriculture, water and infrastructure, but aspects of disaster management could be incorporated within these programs. The draft strategy is due to be approved in November 2010, with the pipeline for it running up until 2012. In the EFAP 3 Inception Workshop in November 2009 it was indicated that disaster management development might be able to be included within this program.

745. In this context it is envisaged that in October 2010 the EFAP 3 Phase 3 activities can review the position of any of these developments, and, on the back of its training in Capacity Development Planning, formulate a more comprehensive 3 Year Capacity Development Plan for Disaster Management in Cambodia to cover all the needs expressed in Table 89. The finer details would be worked out and costed in October 2010, but the main components are likely to include the following: Technical Assistance

Employment of an international expert in Disaster Management for the whole 3 years to oversee all aspects of the execution of the Capacity Development Plan (2011‐2013);

Additional Consultancy support for shorter periods for the development of particular aspects of disaster management (e.g. ICT, IT, M & E, Training, Public Awareness activity, Disaster Risk Reduction, Food Reserves Management)

Pilot Permanent Disaster Management capacity established in 3 selected PCDMs

Selection of 3 provinces that are strongly at risk from different types of hazard as pilot provinces for this development;

Employment on a permanent basis of 3 Provincial Disaster Management Officers in these provinces;



264

Establishment and equipping of 3 permanent dedicated offices for these PCDMs, including communications technologies, and dedicated transport means, suitable for the likely types of disaster to occur in their zones;

Establishment of a regular costed budget system with these PCDMs.

Disaster Management Responsibilities and Guidelines

Following the approval of a Disaster Management Law, finalize Standard Operating Procedures (SOP) and disseminate them, and develop further operational written guidelines for particular disaster management operations;

Before the end of 2013 undertake the first disaster management regular review meeting, reviewing the trends in different hazards, responsibilities of different disaster management institutions and their capacities, and collaboration mechanisms between them;

Review experiences of regular budgeting, and extend as appears appropriate, including consideration of provincial emergency response budgeting;

Assess skills in establishing annual training programs and executing them, and establish 3 year training programs for disaster management.

Information System development and communications systems

Review changing telecommunications technologies and improved communications systems for DM, and introduce new technologies and their associated use training where appropriate;

Develop further the most important Early Warning Systems, particularly paying attention to dissemination and use, and alert systems and public responses;

Continue to develop clear written guidelines/ manuals for risk, vulnerability, damage and disaster needs assessments;

Review the functioning of the M & E system for disaster management, and make appropriate improvements;

Establish an operational Disaster Emergency Center (DEC) within NCDM, equipped to communicate at any moment over sudden‐onset emergencies.

Disaster Preparedness and Awareness Programs

Establish programmes of prevention and risk reduction for different types of disaster;

Develop key public hazard preparedness publicity programs for the public in high‐risk areas, benefiting from experiences in neighbouring countries, like Viet Nam, in this, maybe including focused study tours to look at the implementation of the latter’s current 12‐year program.

Develop Emergency Response Capacity

Develop a pilot system run by NCDM (or other designated structure) for emergency stocking of food, seed and supplies for different types of emergency



265

Preparatory Tasks to be undertaken to facilitate the Phase 3 Capacity Development Program

Clearer definition of responsibilities and scheduling of EFAP 3 consultants in this work;

Determination of activity locations for meetings and workshops;

Selection by NCDM of NCDM participants and selected PCDM staff in each capacity development component;

Agreement with NCDM over the content and scheduling of each component;

Consultation with appropriate CRC management over their participation in meetings and workshops.



266

APPENDIX P. BUDGET FOR CAPACITY DEVELOPMENT DURING PHASE 3 Summary of Budget, Consultants Inputs and Scheduling



267

Capacity Development Plan

No. Component Results

Estimated

Cost (US$) Jun Jul Aug Sep Oct Nov FG VT IS SM JS

1

Standard Operating Procedures (SOP) and the

regular revision of Disaster Management

responsibil ities

Draft review system structure and draft SOP

produced 4,566$ 5 10 5

2

Enhance NCDM/PCDM capacity to plan, monitor,

and evaluate their performance

Annual plan with budget and M&E for NCDM

and 3 PCDM and enhanced capacity in

planning and monitoring 1,400$ 10 5 30

3

Improved Human Resource Management and

Training Planning in NCDM structures

Improved provision of basic information and

techniques for human resources management,

and draft annual training plan for 2011 1,891$ 3 11 5

4

Improved Capacity Development Planning and 3

Year Capacity Development Plan 2011‐2013

A capability of NCDM staff to engage

effectively in Capacity Development Planning,

and to have a costed 3 Year Capacity

Development Plan, for government and/or

other funding 4,131$ 5 15 5 2.5

5

Information Technology (IT) and information

management capacity development

A capability of NCDM staff down initially to

PCDM staff to use effectively the improved

information and communication technology

with appropriate indicators and assessment

methods for effective disaster management co‐

ordination 90,700$ 10 5 75

6

Improve Food Needs Assessment amongst NCDM

structures from different types of disaster

Improved capacity of NCDM and PCDM staff to

assess food relief requirements for immediate

disaster response and during rehabilitation

periods 1,980$ 2 15 5

7

Enhance NCDM capacity to monitor and evaluate

response initiatives

The NCDM Response and Recovery Unit able to

effectively monitor and evaluate own disaster

response and rel ief activities 500$ 2 5 30

Total 105,169$ 37 51 35 75 63

Consultants Inputs (days)Period of Implementation



268

Comp.

No.

Description of

ActivityDescription of expenses Unit Unit Cost Quantity

Activity

Days

Total cost of line

itemNotes

Total Budgeted

Cost

Training Materials lumpsum 100.00$ 1 4 400$

Translation of documents pages 12.00$ 250 1 3,000$

Document Reproduction document 0.01$ 3000 1 41$

Workshop person day 22.00$ 25 0.5 275$

Per Diem for PCDM staff person day 40.00$ 10 1 400$

Workshop translators (2) person day 250.00$ 1 1 250$

Hire of LCD projector unit 50.00$ 1 4 200$

4,566$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Training Materials lumpsum 250.00$ 1 1 250$

Travel allowances for PCDM statt day 50.00$ 6 2 600$

Travel allowance for translator day 50.00$ 1 9 450$

Report production report 50.00$ 2 1 100$

1,400$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Phone calls to provinces for data lumpsum 100.00$ 2 1 200$

Training Materials documents 100.00$ 1 3 300$




1,891$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Training Materials documents 100.00$ 1 6 600$



Workshop person day 22.00$ 25 1 550$

Per Diem for PCDM staff person day 40.00$ 16 1 640$

Workshop translators (2) person day 250.00$ 1 1 250$


4,131$

C3

Human Resource

Management &

Training Planning

C4

Capacity

Development

Planning and 3 Year

CD Plan

C2

Enhance NCDM and

PCDM Capacity to

Plan, Monitor and

Evaluate their Own

Performance

C1SOP & Regular DM

Review System



269

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

20KWH Generator Unit 15,000.00$ 1 1 15,000$

Installation Generator Unit 1,000.00$ 1 1 1,000$

PABX telephone system Unit 1,500.00$ 1 1 1,500$

Photocopier / Network printer Unit 6,000.00$ 1 1 6,000$

Video Camera Unit 1,200.00$ 1 1 1,200$

LCD Projector Unit 1,400.00$ 1 1 1,400$

‐$

26,100$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Desktop PC & UPS Unit 700.00$ 10 1 7,000$

MS office 2007 Unit 325.00$ 10 1 3,250$

Antivirus Unit 25.00$ 10 1 250$

GSM Modem Unit 80.00$ 10 1 800$

Printer Unit 400.00$ 10 1 4,000$

15,300$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

NECC ‐ desktop PC & UPS Unit 700.00$ 5 1 3,500$

Admin ‐ desktop PC & UPS Unit 700.00$ 1 1 700$

Admin ‐ printer Unit 400.00$ 1 1 400$

Response Unit ‐ desktop PC & UPS Unit 700.00$ 2 1 1,400$

Response Unit ‐ printer Unit 400.00$ 1 1 400$

Training Unit ‐ desktop PC & UPS Unit 700.00$ 3 1 2,100$

Training Unit ‐ printer Unit 400.00$ 1 1 400$

Info Unit ‐ desktop PC & UPS Unit 700.00$ 3 1 2,100$

Info Unit ‐ printer Unit 400.00$ 1 1 400$

S&R Unit ‐ desktop PC & UPS Unit 700.00$ 3 1 2,100$

S&R Unit ‐ printer Unit 400.00$ 1 1 400$

4 Laptops (NECC 2, SR1, Info1) Unit 1,000.00$ 4 1 4,000$

MS office 2007 Unit 325.00$ 22 1 7,150$

Adobe acrobat Pro Unit 250.00$ 2 1 500$

Antivirus Unit 25.00$ 22 1 550$

Server Unit 3,000.00$ 1 1 3,000$

UPS 3KVA Unit 600.00$ 1 1 600$

Scanner Unit 300.00$ 1 1 300$

Router Unit 100.00$ 5 1 500$

Cabling & Installation Unit 2,000.00$ 1 1 2,000$

MS Windows Server Unit 600.00$ 1 1 600$

33,100$

C5.3NCDM Computer

network

C5.1NCDM Upgrade

facilities

C5.2 Provincial offices



270

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

GPS (2 ncdm, 10 province) Unit 300.00$ 12 1 3,600$

ArcView software (5 License) Unit 4,100.00$ 1 1 4,100$

ArcView Training Course Basic (5 daUnit 330.00$ 4 1 1,320$ 4 person from NCDM Outsourced

ArcView Training Course Level 2 (7 dUnit 500.00$ 4 1 2,000$ 4 person from NCDM Outsourced

Mentoring ‐$ TA Input

11,020$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Email domain (Google apps?) Unit 100.00$ 1 1 100$ Google apps is free

Document sharing (google docs) Unit ‐$ 1 1 ‐$ Free for standard edition

GeoChat Doc sharing Training Per person 80.00$ 12 3 2,880$ NCDM & province staff

Internet setup (province) Unit 100.00$ 10 1 1,000$ Free for standard edition

Document Management training Unit 1 2 ‐$ TA supplied

3,980$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Basic networking training Per person 100.00$ 2 3 600$ 2 person from NCDM Outsourced

Windows server training Per person 100.00$ 2 3 600$ 2 person from NCDM Outsourced

Mentoring ‐$ TA Input

1,200$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Support to NCDM ‐$ 1 5 ‐$ TA supported

‐$

C5.7Establish and

maintain a database

of databases

(detailed inventory

of routine data

available for each

agency, its scope,

accuracy and

availabil ity)

C5.5Improve

Communication l inks

C5.6Electronic fi le

management for

server and client

including backup

procedures

C5.4

Improve GIS and

mapping capacity at

NCDM



271

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost


The l ibrary can be replicated onto

the computers at PCDM and

possibly be made available over

the internet using a site such as

Google groups

‐$

Comp.

No.

Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost


‐$

#Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Phone calls to provinces for data collection of calls 100.00$ 2 1 200$

Training Materials Materials 100.00$ 1 4 600$

Translation of documents Page of 300 12.00$ 30 1 360$

Document Reproduction 50 Copies 0.67$ 30 1 20$

Workshop Person/day 22.00$ 25 0.5 275$

Per Diem for PCDM staff Person/day 40.00$ 10 0.5 200$

Workshop translators (2) 2/day 250.00$ 1 0.5 125$

Hire of LCD projector item/day 50.00$ 1 4 200$

1,980$

#Description of


Activity

Days

Total cost of line

item Notes

Total Budgeted

Cost

Training Materials Materials 250.00$ 2 1 500$

500$

C5.9 Establish a set of

standards and

protocols and

formats for sharing

of information (e.g

the use of standard

location codes and

GIS coordinates)

C6Food Needs

Assessment

C7

Enhance NCDM

Capacity to monitor

and Evaluate

Disaster Response

Initiatives

C5.8Establish an

electronic l ibrary of

disaster

management and

related material at

NCDM



272

APPENDIX Q. PERSONS MET

No. Name Organization Position Contact Details

1. HE Vong Sandap MEF Deputy Secretary General. Project Director of Emergency Food Assistance Project (EFAP)

012952047

2. HE Srun Darith CARD Director of Planning and International Cooperation

012 448 444

3. Ms. Nao Ikemoto ADB Project Officer ‐ Natural Resources Management Specialist

23 215805

4. Mr. Peter Kaufmann

CARD CARD Adviser 012 607 535

5. HE Peou Samy NCDM Secretary General 012 829 180 [email protected]

6. H.E. Ross Sovann NCDM Deputy Secretary General of NCDM

017 609 906

7. Mr. Ros Chanborith NCDM Assistant to HE Ross Sovann

012 676239

8. Mr. Khun Sokha NCDM Director of Training Center

9. Mr. Thon Virak MOCGreen Trade

Chairman and DirectorGeneral

012 946 661

10. HE. Uy Sam Ath Red Cross Director of Disaster Management Department

012 966 886

11. Mr. Duch Sam Ang Red Cross Project Coordinator for Disaster Response Preparedness

012 880 503

12. Ms. Huon Chanbora Red Cross Head of M & E Unit 012 880 503

13. Mr. Yem Sokha Red Cross M & E Coordinator, M & E Unit

016 702 424

14. Dr. Mean Chan Yada

Red Cross Director of Human Resource Department

012 444 409

15. Mr. Aslam Perwaiz Asian Disaster Preparedness Center (ADPC)

Program Manager Disaster Management Systems (DMS)

66 (0) 81 617 3710



273


16. Mr. Vuthy Chum Asian Disaster Preparedness Center (ADPC)

National Project Manager ‐ Cambodia

012 709 488

17. Mr. Nou Keosothea Cambodia Development Resouce Institute (CDRI)

Research Fellow 012 998 470

18. Mr. Oknha Phou Poy

Federation of Rice Millers Association

President 012 934 050

19. Mr. Oum Kosal FMPP, FAO FSN Policy Expert 012 893 268

20. Dr. Koy Ra FAO FAO Programme Coordinator for National Food Security

012 873 432

21. Mr. Kenneth Crossley

WFP Deputy Country Director

012 812 075

Email: [email protected]

22. Mr. Pieter Ypma CAMIP Project Manager [email protected]

23. Mr. Hem Sovannarith

CAMIP Project Field Manager 012 951 422

24. Sok Sokunthea EFAP Project Manager 012 841 654

25. Mr. Thurai Singham EFAP EFAP Consultant [email protected]

26. Mr. Biranchi Choudhury Kumar

EFAP EFAP Consultant [email protected]

27. Dr Craig Meisner Australian Centre for International Agricultural Research

Research and Extension Manager

012 427 677 [email protected]

28. Choup Paris FAO Assistant FAO Representative (Program)


29. Mak Mony MAFF Chief of Project Coordination, M&E Office, Department of Planning and Statistics


30. Srey Vuthy MAFF Deputy Director Department of Planning and Statistics


31. Mey Virakk NCDM Deputy Director of National Emergency Coordination Centre (NECC)


32. Joel Conkle UNICEF Nutrition Specialist Child Survival Program




274


33. Kurt Burja WFP Program Officer 012 838 393 [email protected]

34. Meng Chanthoeun WFP Program Officer, DRR Unit


35. Mariana Infante Villarroel

World Bank Cambodia Office

Consultant Social Protection


36. Leng Vireak World Vision Senior Program Manager Food and Water Security Program

012 759638 [email protected]

37. Mr Michael Becker

CARD ADB Advisor 0 89 711 035

38. HE Sok Silo CARD Deputy Secretary General

0 12 451 111

39. Ms Ms. Mudita Chamroeun

WB NCDM Avain Influenza project

023 217 301/304

40. Ms Romdoul Kim InSTEDD Director of Government Affairs, Mekong Region

017 808 707

41. Dr. Ly Sovann MOH Head of Early Warning System Unit

[email protected]

42. Mr Kurt Burja WFP Programme Officer 012 838 393

43. Mr Long Yav WFP Programme Officer 099 552 958

44. Mr Meng Chanthoen

WFP Programme Officer 012 880 462

45. Mr Julian Hansen GRT Advisor to ID Poor program

012 476595

46. Mr. Tuy Pheap MOI Rural Investment and Local Governance Project (RILGP) Coordinator Advisor


47. Ms. Meas Sotheavy MAFF Chief of Statistics Office 012 975 519 [email protected]

48. Mr. Mao Hak MOWRAM Director Department of Hydrology and River Works




275

Met in Battambang Province

49. HE. Sun Heng Provincial Hall Deputy Governor and Chief of PPMU

012 340 030

50. HE. Uy Liv Provincial Hall PPMU 012 947 479

51. Mr. Ros Kheng Battambang Provincial Facilitator,EFAP

012 400 736

Fax: 053 952 257

[email protected]

52. Mr. Chhay Sary Battambang PPMU official 012 617 009

53. Mr. Mey Sarun LWF (BTB) Project Manager 012 571 363

54. Mr. Kuy Sok Provincial health Department

Deputy 012 950 646

55. Mr. Sat Sokhom PDA Deputy of PDA 016 555 729

56. .

Mr. Nhem Channy PCDM Development Officer 092 291 483

57. Mr. Chur San Provincial Hall PPMU 012 752 357

58. Ms. Visot Ratha Provincial Department of Woman Affair

Deputy of PDWA 012 602 853

59. Mr. Van Thol PDRD Deputy of PDRD

Met in Banteay Meanchey Province

60. H.E. Sor Chamrong Provincial Hall Deputy Governor and Chief of PPMU

012 800 016

61. Mr. Nay Sophon EFAP Provincial Facilitator, EFAP

017 224 289

Fax: 054710062

[email protected]

62. Mr. Heng Bun Hor Provincial Department of Agriculture

Director, PDA Banteay Meanchey

012 834 535

63. Mr. Yim Bun Rom Provincial of Department of Water Resources and Meteorology

Director, PDWRM Banteay Meanchey

012 837 053

64. Mr. Som Chantha Provincial hall Provincial Secretary General

012 393 777

65. Mr. Kheng Nhol Provincial of Department of Rural Development

Deputy of PDRD 012 725 507



276

66. Mr. Chun Buntha PPMU Vice Head Office 012 716 516

67. Mr. Cheun Sorya Provincial Hall Head Office 017 836 520

68. Mr. Nhoun Vannak Provincial Hall Vice Head Office 012 661 563

69. Mr. Chim Bun Ny Provincial hall Controller 012 974 270

Met in Prey Veng Province

70. HE. Phan Chanthol Government Deputy Governor and Chief of PPMU

012 812 073

71. Mr. Oum Bun Leng Government Provincial Secretary General, Deputy of PCDM

012 317 158

[email protected]

043 944 609

72. Mr. Yos Mony Provincial Department of Agriculture

Director

73. Mr. Mao Seng CRC Director

74. Mr. Hul Cham Reourn

PCDM Secretary