Shipwallop

THESTORYOFTHEASEAN-LEDCOORDINATIONINMYANMARCOMPASSIONINACTIONCOMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmaraseanTheAssociationofSoutheastAsianNations(ASEAN)wasestablishedon8August1967.
TheMemberStatesoftheAssociationareBruneiDarussalam,Cambodia,Indonesia,LaoPDR,Malaysia,Myanmar,Philippines,Singapore,ThailandandVietNam.
TheASEANSecretariatisbasedinJakarta,IndonesiaForinquiries,contact:PublicOutreachandCivilSocietyDivisionTheASEANSecretariat70AJalanSisingamangarajaJakarta12110IndonesiaPhone:(6221)724-3372,726-2991Fax:(6221)739-8234,724-3504Email:public.
div@asean.
orgGeneralinformationonASEANappearsonlineattheASEANwebsite:www.
asean.
orgCatalogue-in-PublicationDataCompassioninAction:TheStoryoftheASEAN-ledCoordinationinMyanmarJakarta:ASEANSecretariat,August2010363.
345951.
ASEAN–DisasterManagement2.
SocialAction–EmergencyManagementISBN978-602-8441-40-0Thetextofthispublicationmaybefreelyquotedorreprintedwithproperacknowledgement.
CopyrightASEANSecretariat2010AllrightsreservedaseanWriterSelenaMarrContributorsAdelinaKamalSaidFaisalChiefEditorAlannaJordeGraphicDesignerBobbyHaryantoPhotographyUKinZawKennethKyawMyatThaPublicationAssistantsJulietShwegaungSandiMyatAungSithuKokoZawZawAungCoverphotoASEANHTFCollectionTheASEANHumanitarianTaskForceforVictimsofCycloneNargis(AHTF)expressesitsdeepgratitudeandsincereappreciationtoallthosewhocollaboratedwithusinthecoordinatedefforttoalleviatethesufferingofsurvivorsofCycloneNargis.
WethanktheGovernmentoftheUnionofMyanmarforitsguidanceandleadershipinassistingthepeopleofMyanmarduringthereliefandrecoveryresponse.
WearealsogratefultotheUnitedNationsagencies,internationalandnationalorganisationsandallotherswhocontributedtopost-Nargisreliefandrecoveryactivities.
WethanktheASEANMemberStatesfortheirunwaveringsupportduringsuchacriticaljuncture.
OurexperiencesoverthecourseoftheTaskForce'stwo-yearmandatearecertaintoshapeASEAN'sapproachtodisastermanagementandhumanitarianreliefforgenerationstocome.
ItisduetoourcollectiveeffortsthattwoyearsafterCycloneNargiswenowseesignsofrecoveryinMyanmar'sAyeyarwadyDelta.
Ricefarmersplantseedswherericefieldsoncestoodfallow,brandnewschool-cum-cyclonesheltersdotthelandscapeandbambooplantsandmangrovebushesaresproutinguparoundtheoncedevastatedareas.
ThisbookisdedicatedtothesurvivorsofCycloneNargis,whosestrength,courageandresilienceinthefaceofunimaginableadversityisatoncehumblingandinspiringand,nodoubt,willspurtheongoingrecoveryeffortinthemonthsahead.
AcknowledgementsContentsChapterOneAStormLikeNoOther9ChapterTwoTheTippingPoint26ChapterThreeThreeVoicesasOne44ChapterFourPioneeringJointAssessment51ChapterFiveWithoutTrustThereisNothing56ChapterSixWhereThere'saWillThere'saWay63ChapterSevenPivotalMomentsinASEAN'sCycloneNargisResponse70ChapterEightMovingForward81Notes90ListofAbbreviationsandAcronyms95Death,destructionanddespairfollowedinthepathofCycloneNargis.
AsnewsspreadthattheCyclonehadflattenedentirevillages,killingorinjuringhundredsofthousandsofpeople,theAssociationofSoutheastAsianNations(ASEAN)feltcompelled,outofasenseofcompassion,urgencyandfraternity,tosupportoneofourMemberStates.
TheASEANcommunityimmediatelyreachedouttohelpMyanmarrecoverfromtheworstnaturaldisasterinthecountry'srecordedhistory.
Thecomplexityoftheemergingtragedycalledforacohesiveandcoordinatedplan.
ASEANwasurgedtotakethelead.
Neverbeforehadwecarriedoutsuchanambitiousandlarge-scaleundertaking.
ButbuttressedbytheGovernmentofMyanmarandtheinternationalcommunity,ASEAN'sconfidencegrewandourassociationwas"baptised"bytheCyclonethatwreakedhavocononeofourMemberStates.
CycloneNargisoccurredatapivotaltime,whenASEANMemberStateswereembracingtheASEANCharterandtheassociationwasstrivingtobecomeamorecollective,dynamicandinclusiveentity.
ThedisasterprovidedASEANwithawindowofopportunitytomakemeaningfulprogressonthegoalsoftheChartertobringASEANclosertothepeople,enhancethewell-beingandlivelihoodofASEANpeoples,andalleviatepovertyandnarrowdevelopmentgapsthroughclosecooperationwiththeGovernmentofMyanmar.
ExperiencefromNargisdemonstratesthatASEAN,withsupportfrompartners,canstrengthendisasterriskreductionamongMemberStatesandprovideaneffectivecoordinatingmechanismtofacilitatethedeliveryofinternationalassistanceinaMemberStateduringthepost-disasterreliefandrecoveryprocess.
OurcollectiveresponseintheaftermathofCycloneNargisisanexampleofthebenefitsthatbroaderintegrationandcloserpartnershipscanyield.
ASEAN'sresponsetoNargis,incooperationandcollaborationwiththeUnitedNations,theinternationalhumanitariancommunityandcivilsociety,helpedeasethepainandsufferingthattheCycloneinflictedonpeoplelivinginAyeyarwadyandYangonDivisionsofMyanmar.
Sincetheregionasawholeispronetodisasters,itisimperative,particularlyaswereachtheendofthemandateoftheASEAN-ledcoordinationmechanisminMyanmar,todocumentanddisseminatethelessonsASEANhaslearnedinthewakeofNargis.
ThispublicationchroniclestheeventsthatledtoASEAN'shistoricdecisiontolaunchtheASEAN-ledhumanitarianoperationfromtheperspectiveofmanyofthepeoplewhofiguredprominentlyinthestory.
Throughthispublication,wewishtosharewithinandacrosstheregionwhatwehavegainedfromourexperiencecarryingoutASEAN'sfirst-everlarge-scalehumanitarianoperationinaMemberState.
Itisoursincerehopethatourlessonswillbeofservicetoothersandourbestpracticesreplicatedintheeventoffuturedisasters.
ForewordbytheSecretary-GeneralofASEANSURINPITSUWAN10COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarItwasearlyMay2008andthenationwaspreoccupiedwithanupcomingreferendumontheConstitutionduetotakeplaceon10May2008.
BulletinswerebeingbroadcastontelevisionandradiothatastormwasbrewingtothewestofMyanmarintheBayofBengal.
Butthecountrywassoaccustomedtoweatheringstormspriortotheannualmonsoondelugethatmostresidentsdidn'theedthewarnings.
Instead,thefarmers,fishermenandmerchantsofthesleepyvillagesoccupyingtheAyeyarwadyDeltawentabouttheirdailylives,justastheirancestorshaddoneforgenerations,strivingtoekeoutalivingfortheirfamilies.
Ontheeveningof2and3ofMay2008,aCategory4Cyclone1namedNargiswallopedtheAyeyarwadyandYangonDivisionsofMyanmarwithcataclysmicconsequences.
Thoughitsnameisdeceptivelyinnocuous—NargisistheUrduwordfordaffodil—theCyclonewastheworstnaturaldisasterinMyanmar'shistoryandtheeighthdeadliestcycloneeverrecordedontheglobe.
Anestimated140,000peoplewerekilledormissingandNargishadadeleteriouseffectonthelivesof2.
4millionpeople–onethirdofthepopulationoftheAyeyarwadyandYangonDivisions.
Thescaleofthedevastationwasunprecedented.
ThenationalGovernmenttookactionimmediatelyaftertheCyclonebutwasquicklyoverwhelmedbythecatastrophiceffectsofthetragedy.
Initially,someoffersofinternationalassistanceandMyanmar'sresponsetothemignitedastormofcontroversy.
ChapterOneAStormLikeNoOtherHavecompassionforallbeings,richandpooralike;eachhastheirsuffering.
Somesuffertoomuch,otherstoolittle.
—Buddha2MayCycloneNargismakeslandfallinMyanmar.
3MayGovernmentofMyanmaractivatestheNationalDisasterPreparednessCentralCommittee;declaresCyclone-affectedregionsasnaturaldisasterareas.
5MayTheGovernmentofMyanmarmeetsdiplomatsandUNofficials.
Myanmarsaysitwillonlyacceptbilateralaid.
9MayTheGovernmentwelcomesdonationsofcashandemergencyaid,butsaysitis"notready"toreceivesearchandrescueteamsorjournalistsfromforeigncountries.
CycloneNargisuprootedtreesandfloodedstreetinMyanmar'smostpopulatedcity,Yangon.
PhotocourtesyofKhinMaungWin12COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar13ChapterOne.
AStormLikeNoOtherTheStormfromYangon21"ForthoseofuswhowerelivinginYangonatthetimeoftheCyclone,themediatoldusontheafternoonof2Maytoexpecta'bigstorm.
'Butlittledidwerealisethemagnitudeofthis'bigstorm.
'Soontheeveningofthe2ndwhenallofuswereathomefromworkIcheckedameteorologicalwebsiteandIsaid,'Ohmygosh.
'ItshowedabigblobalreadymakinglandfallintheAyeyarwadyDelta.
HavinglivedthroughtyphoonswhenIwasworkinginthePhilippinesandJapanI[hadanideawhattoexpect].
ButlittledidIrealisethat[itwouldbesuchapowerful]cyclone.
ItwasverystrongevenwhenitarrivedatYangonat11pm.
Ithoughtitwouldlastonly4or5hoursanditwouldblowover.
Butitgotstrongerandstrongerthroughthenight.
Frommyhome,Icouldevenseethecoconuttreesblownalmostallthewaydowntotheground.
Therewereverystronghowlingwindsandverystrongrainstotheextentthatthewaterwasevencominginlaterallythroughthedoorsandwindows.
Itwasveryscary.
Thankfullyotherthanwaterseepinginfromourroof,wewereblessedbyhavingonlysmalldamagetoourgarden.
ThestormleftYangonabout8aminthemorning,soitwasalongspellfrom11pmthepreviousevening.
"—MrRobertChua,SingaporeAmbassadortoMyanmarYangonresidentsemergedfromtheirhomesthedayaftertheCyclonetofinddebrislitteringthecity.
PhotocourtesyofKhinMaungWin14COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar30Apr01May02May02May06:00GMTRakhineTaninthayiAyeyarwadyMyeik2.
NgapudawSittwe3.
LabuttaKyaukpyu4.
Pyapon5.
Dedaye1.
PatheinINDIATHAILANDMYANMARBayofBengalAndamanSeaGulfofThailand12345NargisTrackYangon0100KmTheboundariesandnamesshownandthedesignationsusedonthismapdonotimplyofficialendorsementoracceptancebytheUnitedNations.
Mapcreated02May2008.
TropicalCycloneNargiswasforecastedtointensifyfromCategory3toCategory4onMay2008.
MapmodifiedfromReliefWebMapSource:InternationalFederationofRedCresentandRedCrossInformationbulletinno.
115ChapterOne.
AStormLikeNoOtherVerySevereCyclonicStormNargis,seenfromModerateResolutionImagingSpectroradiometeron2May2008,justbeforeitmadelandfall.
16COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarPuzzlingStormTrajectoryandEarlyWarningsOfficialadvisoriesthatatropicalstormwasgatheringstrengthofftheMyanmarcoastwerefirstdisseminated28April20082whentheBangladeshMeteorologicalDepartmentissuedaSpecialWeatherBulletinalertingnearbycountriestoadeepdepressionnearthecentreoftheBayofBengal.
Bythen,thetropicalstormsystemhaddevelopedthetelltaleconcentriceyeofaseverecyclonicstorm.
TheJointTyphoonWarningCentrehadoriginallytrackedthestormmovingslowlywestandforecastittohitBangladesh.
Butafterbecomingalmoststationary,CycloneNargischangeddirection.
Itsteadilymoveddueeastwardandthenrapidlyintensified.
Itsominouswell-definedeyestretched19kilometersanditsassociatedwindsreachedanestimated215km/hrwhenitmadelandfall2May.
NargispummelledtheAyeyarwadyDivisionatpeakstrengthasaCategory4Cyclone.
ChrisKaye,CountryRepresentativeofWorldFoodProgramme(WFP)andthenActingUNHumanitarianCoordinatorinMyanmarhadbeenvigilantlytrackingthestormonlinebeforeCycloneNargisstruck.
Itspuzzlingtrajectorymadeitverydifficulttoread.
MrKayerecallsfirstobservingthestorminlateAprilwhenitappeareditmightbeheadedforMyanmar'sRhakineState.
Butacoupleofdayslaterhespotteditfurthersouthandlearnedthatitwasstrengthening.
Then,suddenly,thestormvanishedfromthetrackingwebsite.
"Itwentoffthescreen!
Itwasn'tuntilaround11amon2Maythatthestormappearedagainonthescreen.
BythatstageitwasclearthestormwascominginmuchfurthersouthandwouldstriketheDeltaandYangon.
Therewasacertainamountofdisbeliefthatitcouldhavechangedcoursesorapidly.
HoweverthatafternoontheDisasterManagementTeammettoupdateourinitialassessmentandresponseplans.
Eventhen,wedidn'tknowhowtotallydevastatingthenext24hourswouldbe.
.
.
"3Thoughthenatureofthestormmadereliableinformationhardtocomeby,theGovernmentwarnedresidentsinweatherbulletinsissuedthroughdailynewspapers,televisionchannelsandradiosstations.
4ThemessagereachedmanyintheDelta,buttheydidnotanticipatetheseverityofthestormanddidlittleinthewayoftakingprotectivemeasures,particularlyinisolatedvillages.
Inspiteoftheadvancenoticeandcautionarymessages,manyexpectedandpreparedforatypicalmonsoonstorm,butnotacycloneofsuchadevastatingmagnitude.
CycloneNargisCarvesaPathofDestructionCycloneNargishittheAyeyarwadyDeltaatapproximately2pmon2MayandpoundedYangonlaterthatevening.
TheCyclone'sdestructivewindsandbatteringwavesflattenedhouses,uprootedtrees,rippedthroughpowerlinesandseveredcommunicationsystems,includinglandlineandmobiletelephoneservices.
CompoundingthedevastationwastheCyclone'saccompanyingsaltwaterstormsurgethatwasreportedlyashighas12metresinsomeareasoftheDelta,whichkilledthousandsofpeopleandanimals,inundatedlargeswathesoffertilelandandsubmergedscoresofvillages.
DomesofwaterpummelledresidentsoftheDeltarelentlesslythroughoutthenight.
ThetownshipsofLabutta,PyaponandBogaleoftheAyeyarwadyDivisionsufferedthebruntoftheCyclone'sforce.
Mostresidentsofthetownshipswholivedtotellabouttheordealhadharrowingandhorrifyingtalesofsurvival(someofwhicharechronicledinanASEAN"VoicesofNargisSurvivors"publication).
But"formanyitwasanightmarefromwhichtheyneverawoke.
ManyotherswhodidlivetoseeDearthofDetailsabouttheDelta"Themediawerereportinginrealtime,butforthoseofuslivinghere,therewaslittleinformationtogetasenseofwhatwashappening.
Yangonwasdamagedandtreesweredown.
NotuntilwewereinthechoppersgoingdowntotheDeltadidwerealisethehorrorofwhatdamagehadbeendone.
Soatthatpointintime,theauthoritiesmaynothaveknowntheextentofthedamage.
Theymayhavefeltthattheywereabletohandletheresponsewiththeirowncapabilities.
"—MrRobertChua,SingaporeAmbassadortoMyanmar18ScenesofdevastationinvariouspartsoftheAyeyarwadyDelta.
PhotocourtesyofMNA(1)(6)andKhinMaungWin(2)(3)(4)(5)12354618COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmardaybreakwishedtheyhadnotsurvived.
Thethinlightofmorningdawnedonalandscapeofutterdevastation,andonthesurvivorsscarredbylacerationsonbothskinandsoul.
Entirevillageswerereducedtoquagmiresofmudanddebris.
"5Apartfromtheoverwhelminglossoflifeintheregion,theCyclonedestroyedthree-quartersofthehospitalsandclinics,crippledtheprimaryagricultureandfisherysectors,causedpropertydamageestimatedatoverUS$4.
1billionanddestroyedthelivelihoodsofmorethan2.
4millionpeople.
Hundredsofthousandsofhomesweredestroyedalongwithessentialinfrastructurelikeroads,jetties,electricity,watersupplies,fuelsuppliesandsanitationsystems.
OneparticularlyperniciousaspectoftheCyclone'saftermathwasthecontaminationofalargeproportionoftheregion'swatersuppliesandricepaddiesaswellasthedestructionofstoredfood.
Thetimingofthestormwasalmostascruelasitsforce.
TheCyclonestrucktowardstheendofthedryseason,justastheDeltapaddyfarmerswereattheverylaststageofharvestingtheir"dryseason"ricepaddycrops,whichaccountfor25percentofannualriceproductionintheDelta.
6AftertearingthroughtheDeltaatpeakintensity,CycloneNargisweakenedsomewhatasitheadednortheast,passingjustnorthofYangon,wherewindsreachedvelocitiesof130km/hr.
Yangonresidentsspentaterrifyingnightassaultedbyhighwindsandrain.
Theyawoke5Maytodiscoverdestructionanddebriseverywhere.
AneeriecalmpermeatedMyanmar'slargestcityandtheusuallybustlingstreetswerealmostdeserted.
Hugetreesthathadbeenapartofthecityscapefordecadeswereuprootedandscatteredacrosstheroads.
Thestormtoppledpowerlinesandrippedtheroofsoffhomes,cutoffwaterandelectricitysuppliesanddisruptedtelephoneservice.
Floodwatershadrisenonmanystreetsmakingitdifficulttogetaroundthecity.
Inacitywhereelectricityisunreliableatbestandwatersupplytohomesishaphazardandtendstobecontrolledbyelectricpumps,thesituationwasespeciallydireforthemostvulnerableandhomeless.
ConditionsweremuchworseintheDelta,buttelecommunicationsystemswereinoperableandroadsimpassablemakingdetailssketchyaslittleinformationwastricklingbacktoYangon.
WhiletheCyclonecausedconsiderabledamageinYangon,conditionsweremuchworstintheDeltawhereNargisstruckatpeakintensity.
PhotocourtesyofKhinMaungWin19ChapterOne.
AStormLikeNoOther20COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar21ChapterOne.
AStormLikeNoOtherConfusionandUncertaintyoverInternationalAssistanceThenationalresponsefollowingCycloneNargiswasimmediate7.
PrimeMinisterTheinSeinactivatedtheNationalDisasterPreparednessCentralCommittee(NDPCC)at8:30amon3MayinthecapitalofNayPyiTaw,assigningrescue,reliefandrehabilitationtaskstoMinistersandDeputyMinisters.
ThePrimeMinister,alongwithhigh-rankingmilitaryofficersandCabinetMinisters,relocatedtoYangonthesameday,whereanofficewasestablishedtocarryoutrescuemeasures,coordinatethedisasterresponseandcloselysupervisetheeffort.
TheGovernmentdeclaredtheCyclone-affectedregionsnaturaldisasterareasandinitiallyallocated5billionKyatstocarryoutemergencyreliefoperations.
(Anestimated70billionKyatshadbeenallocatedasofJuly2010).
8Thenextday,thePrimeMinisterandseveralMinisterspersonallyinspectedtheCyclone-affectedareasinAyeyarwadyandYangonDivisionsandtheGovernmentbegandistributingemergencyreliefsupplies,launchedsearchandrescuemissionsandclearingdebrisfrommajortransportationroutes.
NavyandAirForceaircraftandvesselstransportedfood,clothingandmedicalsuppliestosurvivorsaroundtheclock.
9Butthescaleofthedevastationquicklyprovedoverwhelming.
Humanitarianassistancefromtheinternationalcommunitywasmadeavailableimmediately,butlimitedsupplystocksexistingwithinthecountryweresoonexhausted.
Sinceexperiencefrompreviousdisastersshowsthatthepreventionofasecondwaveofdeathsfromstarvationordiseasehingesontherapiddeliveryofaid,itwasvitalthattheinternationalhumanitariancommunitybegrantedaccesstodispatchurgentlyneededreliefsuppliestoCyclone-affectedcommunities.
Initially,someoffersofaidandMyanmar'sresponsetothemsparkedconfusion,promptingsuggestionsthatMyanmarwasambivalentaboutacceptinginternationalaidandreluctanttopermitinternationalaidworkersintothecountry.
ASEANMemberStateswereamongthefirsttoprovideemergencyreliefsuppliestoMyanmar.
PhotocourtesyofKhinMaungWin.
22COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarOn5May,theGovernmentmetwithdiplomatsandmembersofUNagenciestoclarifyacoordinatedresponsetothedisaster,atwhichtimeitwasstatedthattheGovernmentwouldonlyacceptbilateralaid.
10Inotherwords,aidwouldbeacceptedonlyifitwaschannelledthroughtheGovernment,whichmostdonorswereunwillingtodobecausetheyhadstrictpoliciesoftransferringaidtoMyanmaronlythroughinternationalNGOsorUNagencies.
Moreover,somewereconcernedabouttheeffectivenessofaiddeliveryifitwasdistributeddirectlytotheMyanmarGovernment.
MrKayeaskedtheGovernmentthreekeyquestionsatthe5Maymeeting:1.
WouldtheGovernmentbewillingtoallowtheUNsystemtofacilitatethecoordinationofinternationalassistance2.
Woulditagreetowaivealltax,dutiesandcustomsonreliefitems3.
Woulditbewillingtorelaxproceduresongrantingvisasforexpertreliefpersonneltoquicklyenterthecountry11MrKayesayshereceivednoresponsetohisqueries,whichhewastoldwouldhavetobereferredtohigherauthorities.
12Timewaspassingandagenciesanddiplomats,whowereeagertorespondtothedisaster,feltexasperated.
Astatement,issued9MayindicatingthattheGovernmentwelcomeddonationsofcashandemergencyaid,but"wasnotready"toreceivesearchandrescueteamsorjournalistsfromforeigncountries,didlittletoeasesimmeringtensions.
Still,somedonationsofcash,reliefgoods,medicalsupplies,foodandwaterbeganenteringthecountryandinternationalandnationalaidworkerswhowerealreadyonthegroundquicklyrespondedtotheemergencyneedsoftheCyclonesurvivors.
NationalstafffromUnitedNationsChildren'sFund(UNICEF),togetherwithofficialsfromtheMinistriesofHealthandSocialWelfare,ReliefandResettlement(MoSWRR)visitedCyclone-affectedareason4MaytoconductassessmentsandHumanitaranassistancefromtheinternationalcommunitywasmadeavailablequickly,butlimitedsupplystocksexistingwithinthecountrywerequicklydepleted.
PhotocourtesyofKhinMaungWin23ChapterOne.
AStormLikeNoOther24COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarimmediatelymobilisepre-positionedsupplies.
UNICEFsecuredanagreementwiththeGovernmentthatinternationalstaffcouldtraveltoaffectedareasforassessmentandresponse.
InternationalaidworkersfromtheWFP,UnitedNationDevelopmentProgramme(UNDP)andSavetheChildren–whowerealreadyallinMyanmar–alsorespondedtoNargiswithinthefirstdaysfollowingtheCyclone.
PrivateMyanmarcitizenspitchedinbypersonallydeliveringemergencyreliefsuppliestotheCyclone-affectedareas.
Monasteriesandchurchesservedasfocalpointsforsuchgrassrootscommunityassistance.
AidorganisationsandNGOsthatwerealreadyoperatingintheaffectedregionsgatheredinformationonthedamagesandneedsofthevictims.
ButNGOsandUNagenciesthatdidnothaveapreviouspresenceintheaffectedareaswerenotgrantedaccess.
ReliefworkerswhodrovedowntotheDeltaacrossdamagedroadsinthehopestoprovidingassistancetoCyclonesurvivorsinvariablywereturnedawayatcheckpoints.
Theywerepermittedtodeliveraidtotheroadside,butwerenotpermittedentryintothemostseverelyaffectedremotevillages.
"Atthatstage,accesswasveryunclearandpeopleinresponseeffortswerebeingturnedbackandpreventedfromgoingtoaffectedareas.
Certainly,therewasnointernationalstaffaccess,"saidDanielCollison,DirectorofProgrammeDevelopmentandQualityforSavetheChildren,thelargestinternationalNGOoperatinginMyanmaratthetimeoftheCyclone.
13SavetheChildrenmanagedtobreakthroughthebureaucratictapebyprocuringaletterfromtheMoSWRRpermittingitsnationalstaffmemberstoaccessmostareasintheDelta.
SavetheChildrenthenredeployedseveralnationalstaffmembersAnASEANVolunteerprovidessupporttocommunitylivelihoodactivitiesinLabutta.
PhotobyAHTFCoordinatingOffice25ChapterOne.
AStormLikeNoOtherfromotherareasofthecountrytotheDeltatocarryoutreliefeffortsandtogathermuch-neededinformationabouttheconditionofsurvivors.
14WordspreadquicklyamongMyanmar'shumanitariancommunitythatnationalstaffmemberswereabletotravelmorefreelytoCyclone-affectedareas.
AgenciesandNGOs,desperatetolaunchreliefoperations,alsobegantomobiliseMyanmarnationalstaffmembersfromotherareasofthecountrytoassistsurvivorsintheDelta.
MeanwhilekeyinternationalexpertsinlogisticsandemergencyresponseweregatheringinBangkokawaitingvisaapprovals.
MrCollisonwasstationedatSavetheChildren'sregionalofficeinBangkokatthetimeandremembersthemoodwasfrantic.
"TheagenciesthatwerecongregatinginBangkokwaitingtogetintoMyanmarweregoingaroundlikehornetsinanestastherewasnopressurerelease.
TherewasahugebuildupofpeopleinBangkokbutnowhereforthemtogo.
TheUNregionalofficebrieflysetupaparallelclustersysteminBangkoktoatleastgetcoordinationhappeningatthatendwhiletheywaitedforaccessarrangementstobeagreed.
"15AnUrgentNeedforASEANtoBridgeTrustSincesuccessinrespondingtoandmanagingdisasterstypicallyismeasuredinthespeedwithwhichlifesavingaidisdelivered,theglobalhumanitariancommunitywasanxioustogetpeopleonthegroundtoacceleratethereliefandrecoveryprocess.
TheyweregrowingincreasinglyagitatedandvocalintheircriticismthatinternationalaidworkerswerenotbeingpermittedaccessintoCyclone-affectedregions.
WhilethereasonsremainobscurewhytheGovernmentwasinitiallyreluctanttoacceptinternationalassistance,aconfluenceofrapidlyshiftingcircumstanceslikelycontributed.
Myanmar'srelationshipwithmanyWesterndemocracieshadbeenstrainedforclosetotwodecadesbeforetheCyclonestruck.
ThepresenceofaUnitedStatesnavalshipfromits"MarineExpeditionaryStrikeGroup"andaFrench"AmphibiousAssaultShip"thatwerebothstockedwithsuppliesoffthecoastofMyanmarfollowingtheCyclonelikelyonlyaggravatedpre-existingfriction.
Whileitisnotunusualformilitarypersonneltodistributereliefitemsfollowingdisasters,thepresenceofthesewarshipsundoubtedlycreateduncertaintiesastothenatureoftheinternationalhumanitarianintervention.
TheGovernment'srefusaltoacceptaidfromtheshipsandFrance'ssuggestiontoinvokethe"ResponsibilitytoProtect"clauseasameanstodeliveraidwithoutGovernmentapproval16didnotinspiremutualtrust.
17SomeUNofficials,NGOmanagersanddiplomatswithinthecountryspeculatedthatratherthandeliberatelytryingtokeepinternationalaidout,theGovernmentwasmerelyattemptingtomaintainthestatusquo.
GovernmentpolicypriortotheCyclonerequiredallUNagenciesandinternationalNGOstosecureofficialGovernmentauthorisationandasignedMemorandumofUnderstanding(MoU)agreementbeforetheywerepermittedtocarryoutworkinanypartofthecountry.
TheGovernmentinitiallyinsistedthatthispolicybestrictlyfollowedaftertheCyclone.
Thus,ifanNGOoragencydidnothavepriorpermissionandasignedMOUtoworkthere,accesstoCyclone-affectedareaswasnotgranted.
OtherssuggestedthatperhapstheGovernmentinitiallyunderestimatedthescaleofthedamageanddestructionandwasconfidentthatanappropriatenationalresponsecouldbemountedwithoutinternationalassistance.
Itwasuponthisveryfluid,chaotic,confusingandtensebackdropthatASEANtooktheleadinbreakingdownthecommunicationandtrustbarriersthatwerepreventingtheflowofaidandinternationalreliefworkersintothecountry.
Asaconsequence,theMyanmarGovernmentwassooncooperatingwiththeinternationalcommunityandUNagenciesinunprecedentedways.
19asean26COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarWuttHmoneOo(Safia)survivedtheCyclone,whichclaimedthelivesofhalfofherimmediatefamily.
PhotobyAHTFCoordinatingOffce27ChapterOne.
AStormLikeNoOtherontoaplankasitdriftedbythem.
Upanddowntheybobbedamidthedebrisinthechurning,heavingwateruntiltheyheardSafia'sfathercallouttohermotherinthedark.
Heaskedthemtojoinhimonalargepieceoftimberthatwaskeepinghimafloatbutassoonastheydid,astrongwavestruck,hurlingthemviolentlyofftheplankindifferentdirections.
Safianeversawhermotheragain.
"Shemusthavediedafterthewaveknockedheroffthepieceofwood,"Safiasayssadly.
Therestofthenightwasastruggletostayconscious,forSafiaknewifshesuccumbedtotheurgetofallasleep,shewouldsurelydie.
"Nothingwasinmymindexcepttryingtosurvive,"shesays.
Safiaslippedorwaspulledunderwater"alot"untilfinallybumpingintoalargeblockofwoodthatsheclaspedtohelpkeepherheadabovethesurface.
Shedriftedthatwayuntiltheblockshewasholdingsomehowbecamewedgedintheforkofatree.
"Ihungontothattree'tilmorning,"recallsSafia.
Whenthewaterreceded,around3or4am,Safia'smindwasonhermother.
Sheclimbeddownfromthetree"thinkingthatmymotherwouldbearoundsomewhere.
"ShehaddriftedintoastreamnexttoMaKyinMyaingIsland,nearhervillage.
Shespottedsomesurvivorsontheisland,whichliftedherspiritenoughtomusterthestrengthtocrossthestream.
"Thecurrentisverystrong,butImanagedtoswimacrossthestreambymyself,"shesaysproudly.
Itwasn'tuntildawnbrokethatSafiarealisedshehadaseriousgashonherheadandaverydeepholeinherthighthatwasfilthywithpaddyanddirt.
Shehadn'tnoticedthewoundsallnight,butinthelightofdaytheybegantothrobwithpain.
Withthesupportofothersurvivors,shehobbledtoamonasteryontheisland,whereshereunitedwithanaunt,wholocatedsomedryclothesforhertowear.
Severalothersurvivors—neighbours,acquaintancesandstrangers—alsocongregatedatthemonastery.
ThemonkdistributedfreshwaterandSafiaandtheothersurvivorssalvagedsomefoodtoeatthattheyfoundscatteredaroundtheisland.
Herfatherfoundheratthemonasteryafewdayslater.
Thoughitwasverydarkthatnight,thecolouroftheskythatnightistattooedinhermemory.
Itglowedavividred.
aseanCycloneNargistoreWuttHmoneOo'sfamilyapartwhenitrippedthroughhervillageofKyeinChaungGyiinBogaleTownship.
Shelosthermotherandtwoyoungbrothersandbarelymanagedtosurvivethestormherself.
Nearly13yearsoldwhentheCyclonestruck,WuttHmoneOo,whogoesbyherMuslimname"Safia,"remembersthevillageleaderalertingthecommunityjustbeforedawnthatacyclonewasonitswayandtoexpectwindsasstrongas200kilometresperhourandastormsurgeupto3metres.
Butsheconfessesshe"didnottakethenewsseriously.
"Safiahadenduredplentyofstormsandvillagelifehadalwaysquicklyreturnedtonormalbefore.
Sheassumedthesamewouldbetruethistime.
HerfamilymadenospecialpreparationsfortheCycloneandsomeofthemevenmadelightofit.
Safiaandherfamilybegan2May2008likeanyotherday.
Shehelpedherfamilypreparethepancakesthatshedistributedtoshopsinthevillageeverymorningstartingat7am.
Onceshewasdone,shereturnedhomeasusualtocookriceandcurryforherfamily.
Around1pm,thewindstartedtopickupandby3pmitwasblowingandrainingheavily.
WordspreadinthevillagethattheCyclonehadlevelledLabuttaTownship,butthewaterhadnotyetstartedtoriseinSafia'svillagesosheventuredoutinthestormataround3:30pmtobuycookingoilatthemarkettopreparethepancakestosellthenextmorningwhileherfatherpickedupafewsacksofflour.
Whenthewindcontinuedtogust,herauntteasedherthattheCyclonehadstartedandwonderedaloudwhenthewaterwouldrise.
Butnoonewaspokingfunwhenwatergushedinsidethefamily'sone-storeywoodenhomearound7pm.
First,itwasuptoSafia'sankle,butinthespanof10minutes,itroseexponentially.
Herfathercarriedheryoungerbrothers,whowereonly5and3yearsold,toanearbybrickhouseinthehopestheywouldbesaferthere.
Eventually,Safiaandherheavilypregnantmotherhadtoclimbupacoupleofwoodenpostsofthefamilyhometoescapetherapidlyrisingwater.
Itwasdarkbythenanddisorienting.
Whenthewaterreachedtheroof,theymanagedtopaddleovertoanearbyhomeandgrabholdofacoupleofmoreposts.
Butthewoodpolescollapsed,castingSafiaandhermotheradriftinthewateruntiltheywereabletoscrambleSafia'sStory20WhileeffortstoestablishacoordinatedandcohesiveinternationalresponsefollowingtheCyclonehadreachedanimpasse,aflurryofactivitywastakingplacebehindthescenes.
FranticcallsbetweenStatesandForeignMinistersweremadeandbackroomdiscussionsproliferatedaroundtheregion.
Theinternationalmedia,whichwasnotwelcometoreporttheunfoldingdisasterdirectlyfromtheCyclone-affectedareas,pressedforactionandasolution.
Asmentionedinthepreviouschapter,somepartieshadevenbeguntotalkofusingforce,ifnecessary,toassistCyclonesurvivorsunderthebannerofthe"ResponsibilitytoProtect"principle.
Secretary-GeneralofASEAN,DrSurinPitsuwan,facedenormouspersonalpressuretorespond.
Herecounts,"IwasinSingaporetwotothreedaysaftertheCyclonehit.
Iwasconfrontedbythemedia[whoasked],'WhathaveyouheardWhathaveyoudoneWhatwillyoubedoing'Isaidsofarwehavebeenmonitoringthesituationwithgraveconcern.
"22BehindcloseddoorstheSecretary-Generalfieldednumeroustelephonecallsencouragingswiftaction.
ASEANasaregionalbodywasurgedtoconvinceMyanmar,asoneofitsMembersStates,toopenupchannelsofhumanitarianassistanceandASEANfeltacollectiveresponsibilitytoact.
"ASEANcollectivelyfeltwhatwasneededwasajointresponsetoshowtotheworldthatASEANcanmakeacontributiononissuesofsuchhighlyemotionalandhighlysensitivematters.
Failuretodothatwouldcertainlyhaveanegativelastingimpactontheorganisation,"recallsDrPitsuwan.
23ChapterTwoTheTippingPoint"Thequalityofmercyisnotstrain'd,ItdroppethasthegentlerainfromheavenUpontheplacebeneath:itistwiceblest,Itblessethhimthatgivesandhimthattakes…—WilliamShakespeare,TheMerchantofVenice,15965MayASEANMemberStatesextendreliefassistancetoCyclonesurvivors.
9-18MayASEANdispatchesitsEmergencyRapidAssessmentTeam.
12MaySecretary-GeneralofASEANmeetswithUNandhigh-rankingWorldBankofficialsinBangkok,whopledgefullsupportfortheemergingASEAN-ledmechanism.
AgirlintheDeltafetcheswaterusingalocally-fashioneddevice.
PhotobyAHTFCoordinatingOffice29ChapterTwoTheTippingPoint30COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar31ChapterTwoTheTippingPointDrPitsuwansaysthat,inparticular,LordMarkMallochBrown,thenaMinisterinthePrimeMinisters'officeintheUnitedKingdom,playedasignificantrole.
"Hewasquitefamiliarwiththeregionandwasworkingthephone.
Hecalledmeandsaid,'DrSurin,thisisanextremelycriticalissueforASEAN–believeme.
'HisbackgroundwaswithUnitedNationsDevelopmentProgrammeandhewaswellconnectedintheregion.
Iassumehedidn'tjustcallme,theSecretary-GeneralofASEAN.
Iamsurehewascallingpeopleinhighplacesintheregionexpressing,atleastfromhisperspective,aconcernoftheworld,aconcernoftheEuropeanUnion,aconcernoftheBritishGovernment.
Majorgovernmentswereallintouch.
IthinkMarkMallochBrowncouldsaythatitwasnotonlytheUnitedKingdomthatherepresentedbutalsomanyoftheEUStates,AustraliaandNewZealandwouldbeonboard.
IthinkhecouldsaytheNordiccountrieswouldbeonboard.
Itwasafrustrationwithaglobaldimensionthatwewerefacedwiththisproblem.
"24SharingPracticesfromtheIndianOceanTsunamiResponseFollowingtheCyclone,severalUNanddonoragenciesapproachedDrKuntoroMangkusubroto,theDirectoroftheIndonesianBureauforRecoveryandReconstructionAgencyofAcehandNias,Indonesia(BRR),toofferassistancebasedontheagency'sexperienceinthepost-IndianOceanTsunamioperation.
HeassignedMrHeruPrasetyo,thenDirectorforInternationalRelations,andDrWilliamSabandar,ChiefofNiasrecoveryprogrammefortheBRR,tocloselymonitorthedevelopmentsinMyanmarandtorenderassistanceasneeded.
ThiswouldproveavitallinkinsubsequentmonthsforASEANasDrSabandarwouldlaterbenamedSpecialEnvoyfortheSecretary-GeneralofASEANtoleadtheASEANHumanitarianTaskForce(AHTF)CoordinatingOfficeinYangon.
MrPrasetyoreflectsthatwhenNargisstruckhewasstillworkingontheAcehandNiasresponseandfromhisofficeinJakartahethought,"Howcanwesharewhatweknow"Manyofhisassociatesworkingonthepost-TsunamiresponsewereeagertohelpinMyanmarandtheywerecontactinghimindroves.
Inparticular,AustraliaandtheAsianDevelopmentBank(ADB)hadbeenintouch.
"TheywerecontactingmeasitwasknownthattherewasatrustbetweenIndonesiaandMyanmar.
TheywantedtohelpMyanmaraftertheCyclone.
Sowestartedtolookatthepossiblewaystodothat.
OneofthelinksthatIhavewasmyrelationshipwiththeDepartmentofForeignAffairsinJakarta.
Ithoughtwehaveallthesefriendswhowanttohelp,soIaskedifwecouldusethegoodhandsoftheIndonesianDepartmentofForeignAffairstochannelthisassistanceintoMyanmar,"remembersMrPrasetyo25.
"HoweverIwastoldthateventheIndonesianGovernmentcouldn'tgetaidinatthattime.
Indonesiandoctorscouldn'tgetinandmuchoftheIndonesianaidwasheldupinSingaporeatthattimewaitingtogetin.
Soitwasnotpossible.
IalsometwithDrNoeleenHeyzer,UnderSecretary-GeneraloftheUNandExecutiveSecretaryofEconomicandSocialCommissionforAsiaandthePacific(UNESCAP).
IbriefedDrHeyzeraboutwhatwecoulddo.
IgaveherabookabouttheIndonesianArmyandthereliefoperationinAcehaftertheTsunami.
ThereweresimilaritiesbetweenthesituationinAcehandinMyanmar.
ShelatergotanaudiencewiththeleadershipofMyanmarandevenmetwiththePrimeMinister.
IknowshesharedthatbookwiththeMyanmarleaders,whichwashelpful,"MrPrasetyosays.
26Initially,DrHeyzerremembersbeinguncertainofthescaleofthetragedy.
"IwasinIndonesiawhenthenumbersofthosewhohaddiedorweremissingreached100,000.
NoonehadsaidanythingatthetimeandtheGovernmentdidn'twantoutsidehelp.
Whatcrossedmymindimmediatelywashowisolatedthecountryhadbecome,thattherewasalackoftrustoftheoutsideworldthathadtobebridged,andIfeltthatASEANandtheUNcouldplayaverystrongrolebehindthescenestobuildtrustandfacilitatehumanitariancooperation.
"27SomeofthefigureswhoplayedakeyroleinsettinguptheASEAN-ledpost-NargiseffortinMyanmarincluded:(topfromlefttoright)DrSurinPitsuwan;LordMallochBrown;DrKuntoroMangkusubroto;MrHeruPrasetyo;DrWilliamSabandar;DrHassanWirajuda,DrNoeleenHeyzer;MrRobertZoellickandMsAdelinaKamal.
32COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar33ChapterTwoTheTippingPointSinceDrHeyzerwasinJakarta,sheimmediatelycontactedDrPitsuwanandmetupwithDrKuntoroMangkusubroto.
"IsaidthatIndonesiawouldhavetomakeastrongstandtosupporttheGovernmentofMyanmarthroughASEAN.
DuringtheSpecialASEANForeignMinisters'Meetingon19May2008inSingapore,IknowthattheForeignMinisterofIndonesiamadeastrongpleaforASEANtoplayaleadingroleintheresponse,asASEANwouldbeabletobuildabridgeoftrusttoencourageMyanmartoworkwiththeoutsideworldinamorecoherentandcoordinatedway.
"28Later,DrHeyzergavethebookthathadbeengiventoherbyMrPrasetyoabouttheIndonesianArmyandthereliefoperationinAcehandNiasfollowingtheTsunamitotheMyanmarPrimeMinister.
"Duringthismonth,IgavetwomorebookstothePrimeMinister.
WhenImetthePrimeMinisterduringmyvisitinJune2008foranASEANRoundtableonPONJA,thePrimeMinistertoldme,'Youhavenowgivenmethreebooks,butthefirstonewasthemostimportant.
'WithoutASEAN'swillingnesstoplaythisbridgingrole,Myanmarwouldhavecontinueddealingwiththemassivedisasterinternally,whiletheoutsideworldcouldhavebeenlargelykeptoutofthereliefandrecoveryeffort.
"2915MaySecretary-GeneralofASEANmeetsPresidentoftheWorldBank.
TheWorldBankpromisesfullsupporttoASEAN.
19MayASEANconvenesSpecialMeetingofASEANForeignMinistersinSingapore.
TheASEANHumanitarianTaskForceisborn.
21MaySecretary-GeneralofASEANmeetsthePrimeMinisterofMyanmar.
23MayMyanmarmakesofficialstatementtoallowaidworkers"regardlessofnationality"toenterthecountry.
25MayASEAN-UNInternationalPledgingConferenceconvenesinYangonMyanmar.
AdvanceERATteamplansforassessmentintheDelta7June2008.
PhotocourtesyoftheadvanceERATteam34COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarASEAN-EmergencyRapidAssessmentTeam(ERAT)ConductsInitialAssessmentASEANwasinclosecontactwithMyanmarofficialsaftertheCyclonehit.
Afteranumberofreports,communicationsandrecommendationsasapartoftheASEANStandardOperatingProcedureforRegionalStandbyArrangementsandCoordinationofJointDisasterReliefandEmergencyResponseOperations(SASOP),theMyanmarGovernmentacceptedarecommendationfromASEANSecretariattodeployanASEAN-ERATtoconductinitialassessments.
TheASEAN-ERATwasmobilisedtotheDeltaon9May.
TheteamwasmadeupofexpertsfromASEANMemberStates,withexperienceindisasterresponseandbackgroundwiththeUNandotheremergencyresponseagencies.
ThemobilisationwascoordinatedbytheASEANCommitteeonDisasterManagement(ACDM)undertheASEANAgreementonDisasterManagementandEmergencyResponse(AADMER),whichMyanmarhadratified.
MsAdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivisionoftheASEANSecretariat,ledtheteam.
Itwasthefirst"officialandinternational"teamthattheGovernmentofMyanmarallowedintoMyanmar.
OncetheGovernmentgavethegreenlight,theteamwasdeployedwithin48hours.
30ASEAN-ERAT,togetherwiththeUNDACteam,attheUNbuildingon18May2008afterfinishingthereporttobepresentedtotheSpecialASEANForeignMinisters'MeetinginSinapore.
PhotobyAHTFCoordinatingOffice35ChapterTwoTheTippingPointMsKamalremembers:"ThedecisiontoformastandbyERATteamfortheregionwasmadebytheACDMinMarch2008beforetheCyclonesotherewasnoteaminplacewhentheCyclonehitinMay2008.
ThereweremanyassessmentteamscomingfromothercountriestogetintoMyanmarbuttheyweren'tallowedaccess.
TherewasanASEANmeetingontheweekendafterNargisandmycolleagueDhannanSunotofromtheASEANSecretariatwasthere.
IwasinJakartapreparingformyvisittoBangkokwiththeSecretary-General.
Dhannantextedmefromthemeetingandaskedifwecouldmobilisetheassessmentteam.
HetoldmethataseniorofficialfromtheForeignMinistryofMyanmarhadapproachedhimandaskedwhatASEANcandoandifASEANcouldmobiliseanassessmentteam–IwassurprisedbutIsaid,YES!
IneveryASEANMemberState,thereisanASEANfocalpointfordisastermanagement,andsoalthoughtheERATteamwasn'tsetupyet,IknewIcouldaskthesefocalpointstomobilisetheirexperts.
"31Sheadds,"WhileIwasinBangkokthenextdayinbetweenmeetingswiththeUNandWorldBank,Icalledallthefocalpointsfromthetaxiandaskedthemtomobilisetheirexpertswithin48hours.
TheGovernmentsaidtheywouldbewillingtograntaccesstotheASEANteam.
IknewthiswasagreatchancefortheNargisreliefeffort.
.
.
Thedeploymentwasveryswift.
Within48hourswewereontheground.
TheapprovalcameveryquicklyfromtheGovernment.
"32MembersofERATarrivedfromBruneiDarussalam,Malaysia,thePhilippines,SingaporeandtheASEANSecretariat.
WhenERATtravelledtotheDelta,staffmembersfromvariousUNagenciesincludingtheWFP,UnitedNationsOfficefortheCoordinationofHumanitarianAffairs(UNOCHA)andUnitedNationsDisasterAssessmentandCoordination(UNDAC),whowerealreadyontheground,assistedtheteam.
ERATmemberswerepermittedaccesstotheDeltawhentheyconductedtheirassessmentfrom9to18MayandconsultedwithGovernmentrepresentatives,membersofcivilsociety,NGOsandUNstaffmembersaswellassurvivorsoftheCyclone.
Basedontheteam'sfindings,theymadeaseriesofkeyrecommendationstotheSpecialASEANForeignMinisters'Meetingheldon19MayinSingapore.
ChiefamongthemwastheestablishmentofamechanismthatwouldallowASEANtobridgethehumanitariangapbetweentheaffectedcommunitiesandtheinternationalhumanitariancommunity.
TheERATreportvalidatedtheSecretary-GeneralofASEAN'srecommendationimmediatelyfollowingNargisthatacoalitionledbyASEANbecreatedtocarryouttheMyanmarreliefeffort.
ThislaterbecameknownastheASEAN-ledcoordinatingmechanism.
ThedeploymentoftheASEAN-ERATwassignificantbecauseitwasthefirst"officialandinternational"assessmentteamallowedintoMyanmarfollowingtheCyclone.
OtherassessmentteamsfromoutsidethecountrywereeitherheldupinBangkokordeniedentry.
TheGovernmentofMyanmar'swillingnesstoallowASEANaccesstothedisasterareasatthatearlytimewasanindicationofthegoodstandingthatASEANhadinMyanmar.
ThisteamwastheforerunnerforthebridgingrolethatASEANwouldeventuallyplayinthenegotiationofaccessfortheinternationalcommunitytorespondtotheunfoldinghumanitariancrisis.
TenseSpecialASEANForeignMinisters'MeetingBreaksImpasseAlthoughASEANMemberStateshadaburningdesiretohelp,theywerealsokeenlyawarethattheylackedthenecessaryresourcesandhadlimitedtechnicalcapabilitiestodoso.
TheAssociationwouldneedthesupportofstrongpartnerstosucceed.
InspiredbytheShakespearequoteatthestartofthechapter,DrPitsuwansuggestedestablishinganASEAN-led"CoalitionofMercy"toassisttheCycloneNargissurvivors.
On15May,DrPitsuwanmetwithWorldBankPresidentRobertZoellickintheUS.
MrZoellickhadheardofDrPitsuwan'sproposed"CoalitionofMercy"andpledgedhissupport.
Dr36COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarPitsuwanrecalledMrZoellicksaying,"'IlikeitSurin,wearereadytostandbehindyou.
Iknowyouneedhelp.
Iknowyouneedsupport.
Youcancountusintobewithyou.
'"33BuoyedbyassurancesofresourcesfromtheWorldBankandthesupportofothers,DrPitswuanfeltconfidentthatASEANForeignMinisterscouldhelpMyanmarinameaningfulwaywhenheboardedhis21-hourflightfromtheUStoSingaporeforthepivotalForeignMinisters'Meetingon19May.
Singapore,asASEANChairatthattime,hostedtheSpecialMeetingofASEANForeignMinistersthataimedtobreaktheimpasseovertheinternationalassistancetoMyanmar.
SingaporeForeignMinister,GeorgeYeo,recallsthat,"InthefirsttwoweeksafterCycloneNargis,therewasatensestand-offbetweentheinternationalcommunityandtheMyanmarGovernment.
Whiletherewasagreatwillingnessfrommembersoftheinternationalcommunitytohelpthevictimsandsurvivors,theMyanmarGovernmentwassuspiciousoftheirmotives.
Somecountrieshaddispatchedwarshipscarryingsuppliestotheregion,andeventalkedopenlyaboutinvokingthe'ResponsibilitytoProtect.
'"34MrYeo,whochairedthemeetinginSingapore,"feltthatASEANhadtorallyaroundaMemberStateinitshourofdireneed.
AsSingaporewasthentheASEANChair,PrimeMinisterLeeHsienLoongaskedmetoseektheapprovaloftheMyanmarSngaporeForeignMinisterGeorgeYeospeaksattheASEAN-UNInternationalPledgingConference25May2008inY/angon.
PhotoCourtesyofKhinMaungWin37ChapterTwoTheTippingPointGovernmentforanemergencymeetingofASEANForeignMinisters.
TheMyanmarGovernmentagreedandtheSpecialASEANForeignMinisters'MeetingwasheldinSingaporeon19May2008.
"35IthadbeenalmostthreeweekssincetheCyclonehadstruckMyanmarandapoliticalsolutionwasneededtofacilitatetheurgentdeliveryofaidandaccessforaidworkerstohelpthevictimsofNargis.
"Ourresponsewaslatebutitwasbetterlatethannever.
.
.
CycloneNargiswasatestofASEAN'ssolidarity.
Intheendwemadetherightcallandhelpedpreventasecondwaveofdeathsfromhungeranddisease.
Thisisanachievementwecanbeproudof,"saidMrYeo.
36Insiderssaythatthemoodattheclosed-doormeetingwasextremelytenseandpressurewasmounting.
MsKamal,whoheadedtheERATteam,hadarrivedinSingaporeintimeforthemeetingwithareportontheinitialassessmentofthesituationandmadeseveralrecommendationstotheForeignMinisters.
TheERATreporturgedtheGovernmenttoopenupchannelsofaidandoutlinedthatitwouldbe"tothedetrimentofthepeopleifthesurvivorsofNargisdidnothavealltheavailableassistancethatcouldbedeployed,includingtheassistancefromASEANcountries,"saysMsKamal.
37TheASEANForeignMinisterswerepreparedtodeliveraverystrongmessagetotheMyanmarGovernment,recountsDrASEANHumanitarianTaskForcefortheVictimsofCycloneNargisChairedbySecretary-GeneralofASEANTripartiteCoreGroup(TCG)ChairedbyMyanmarRepresentativesofGovernmentofMyanmarRepresentativesofASEANRepresentativesofUNMyanmarCentralCoordinatingBoard(CCB)AdvisoryGroupUNandinvitedIOsandDonorCountriesStructureofASEAN-ledCoordinatingMechanism38COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarPitsuwan.
ItwassuggestedthatifMyanmardidnotacceptassistance,ASEANwouldbeimplicatedfornotbeingabletohelp.
Everyonewasdeeplyconcernedandthemessagesdeliveredwereclearandcrisp.
DrPitsuwanremembersthatHassanWirayuda,thenIndonesianMinisterforForeignAffairs,andMrYeowereparticularlystrongcontributorsduringthemeeting.
"Myanmarwasinitiallyreluctanttocooperatewiththeinternationalcommunitysayingthatitcouldmanageonitsown.
IrememberIndonesianForeignMinisterPakHassanaskingMyanmarForeignMinisterNyanWinwhatASEANmeanttoMyanmarandwhatMyanmarmeanttoASEAN,"recallsMrYeo.
38Toovercometheimpasseandacceleratepost-Nargisreliefandrecovery,theMyanmarGovernmentwasgiventhreeoptions.
391.
AUN-ledmechanismforreliefandreconstructioneffortinMyanmar.
2.
AnASEAN-ledmechanismforthesamepurpose.
ASEANwouldbeattheforefrontofthecoalitiontoforgestrongpartnershipswithneighbouringcountriesandcompetentorganisations.
ASEANwouldworkwiththeGovernmenttoprovideaccessforthecoalitionpartnerstoimplementreliefandrecoveryprogrammesintheaffectedareas.
3.
The'ResponsibilitytoProtect'wouldbeinvokedandMyanmarwouldstandthemountingpressuretoopenupalone,includingthepossibilitythattheinternationalcommunitywoulddeliveraidwithoutauthorisation.
ASEANChairandSingapore'sForeignMinisterGeorgeYeo(lefttoright),PrimeMinisteroftheUnionofMyanmarGeneralTheinSein,andSecretary-GeneraloftheUnitedNationsBanKi-moonatASEAN-UNInternationalPledgingConference,25May2008.
PhotocourtesyofKhinMaungWin39ChapterTwoTheTippingPoint"MyanmardecidedtheywouldtakethemiddleoptionandchosetheASEAN-ledcoordinationmechanism,"recollectedDrPitsuwan.
40MyanmaragreedonanASEAN-ledmechanismuponassurancesthatassistanceprovidedthroughASEANwouldnotbepoliticised.
TheForeignMinistersunanimouslyagreedtoestablishanASEANHumanitarianTaskForcefortheVictimsofCycloneNargis,headedbyDrPitsuwan,asthefirststepinimplementingtheASEAN-ledcoordinatingmechanism.
ASEAN'sfirst-evercollectiveengagementinadisastermanagementandhumanitarianmissionbeganinearnest.
ThemandateoftheASEAN-ledcoordinatingmechanismwas"tofacilitatetheeffectivedistributionandutilisationofassistancefromtheinternationalcommunity,includingtheexpeditiousandeffectivedeploymentofreliefworkers,especiallyhealthandmedicalpersonnel.
"41Asatangibledemonstrationofitsfaithinthecoalition,theMyanmarGovernmentagreedtotheimmediatedispatchofmedicalteamsfromallASEANMemberStatesintoMyanmar.
MsKamaldescribesitas"adefiningmomentforallofus,forASEAN.
Wewereabletoshowleadershipandaffirmourrelevanceasaregionalorganisation.
.
.
Wedidnotknowatthattimeifitwouldworkbutwehadnootheroptionsbutjusttodoit.
IrememberthatoncethedecisionwasmadeforASEANtoleadthecoordination,theSecretary-GeneralturnedhisheadtowardsmeasIwassittinginthebackrowandsaid'therewillbealotofworkaheadofus.
'Well,Iknewitwouldrequiremuchwork,butIneverrealisedhowmuchitwouldentail!
Wejumpedintotheriverandswamalongwiththecurrent.
AstheSecretary-Generalsays,ASEANwasbaptisedbyCycloneNargis.
"42AdayafterthedecisionwasmadetoallowASEANtoleadthecoordinatingmechanism,theSecretary-GeneralflewtoYangontomeetwiththeMyanmarPrimeMinisteron21May2008toconveythemessagesagreedtoinSingaporeandtodiscusstheestablishmentofaTripartiteCoreGroup(TCG).
DrPitsuwanstressedthatitwasnecessaryforASEANtotaketheleadincoordinatingandliaisingwiththeUNsystemandinternationalcommunityinassistingMyanmartorecoverfromCycloneNargis.
HewaseagertoensurethattheASEAN-ledinitiativehadbeenacknowledged,accepted,endorsed,andsupportedfullybyalllevelsoftheGovernmentofMyanmar43andheexpressedhisgratitudetotheGovernmentofMyanmarforitshospitalityandfortheopportunitytopayacourtesycalltothePrimeMinister.
DrPitsuwanalsoimpresseduponthePrimeMinisterthattheMyanmarrepresentativeontheTCGshouldbeahigh-levelministerwithintheGovernmentwhohaddirectaccesstothePrimeMinister.
HereinforcedthattheTCGwouldbeledbytheMyanmarGovernment.
Duringhisvisit,DrPitsuwanalsometwithkeyMinisterstodiscusspreparationsfortheASEAN-UNInternationalPledgingConference,includinggrantingaccesstothemediatocovertheevent.
ManyinterviewedforthisbookcommendedDrPitsuwan'sleadershipandpresenceontheCycloneNargisissue,suggestingitwasinstrumentaltoachievingasolution.
HisinterestinandconcernforthesurvivorsofCycloneNargiswasapparenttoallworkingwithhimandhiscommitmenttotheoverallpost-Nargiseffortunshakable.
"Ican'tsingthepraisesoftheTCGandASEANenoughinthefirstfewmonthsafterNargis.
Thewaytheywereableto"ASEANplayedacriticalrolebyworkingwiththeUNandtheMyanmarauthoritiestocreateaninnovativemechanism,theTCG,toexpeditethehumanitarianresponse,inparticularbyfacilitatingaccess.
DrSurinplayedakeyleadershiproleinthesuccessoftheTCG.
"-MichelleChan,AustralianAmbassadortoMyanmar.
4440COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarestablishthemselvesquickly,theaccesstheywereabletonegotiateforthehumanitariancommunity,andparticularlytheinterestandtimegivenfromASEANatthehighestlevel.
DrPitsuwanmadeanumberofvisitstoMyanmarmetwithNGOsfrequentlyandalsometNGOsworkingontheNargisresponseinBangkok.
Thisrepresentationwasappreciatedimmensely,"saysBrianAgland,CAREMyanmarCountryDirector.
45AnotherprominentfigurewhoplayedasignificantroleinopeningaccesswastheUNSecretary-GeneralBanKi-moon.
HevisitedMyanmaron22and23MaytomeetwithSeniorGeneralThanShweinNayPyiTawtoadvocateforfurtherhumanitarianaccessanddiscusstheUNreliefefforts.
AfterhisvisittoNayPyiTaw,MrBanKi-moontoldreportersinYangon,"I'mquiteconfidentwewillbeabletoovercomethistragedy.
I'vetriedtobringamessageofhopetoyourpeople.
.
.
TheUNandthewholeinternationalcommunitystandreadytohelpyouovercomethistragedy.
"46Myanmar'sPrimeMinisteragreedtotheASEAN-ledcoordinatingmechanismandMyanmarshifteditsstancefromtheacceptancemerelyofbilateralaidfromtheinternationalcommunitytoallowingaidandreliefworkersintothecountryirrespectiveofnationalityon23May.
Thispromisehasbeenkepttothisday.
47DrPitsuwanandMrBanKi-moonofficiallylaunchedtheASEAN-UNpartnershipundertheauspicesoftheASEAN-ledcoordinatingmechanismon24May2008attheDonMueangAirportinBangkok.
TheThaiGovernmentpreviouslyhadagreedtotheuseoftheairportastheUNstagingpointforreliefitemsenteringMyanmar.
ThetwoSecretaries-GeneralalsoexchangednotesfollowingtheirrespectivevisitstoYangonearlierthatweekanddiscussedstrategiestoensuretheexpeditiousdeploymentofreliefassistancefromtheinternationalcommunitytotheCyclone-affectedpopulationinMyanmar.
DrPitsuwanjoinedthethenPrimeMinisterofThailand,SamakSundaravej,andMrBanKi-mooninopeningthecargohangarsattheairport.
48Secretary-GeneraloftheUnitedNationsBanKi-moonaddressestheASEAN-UNInternationalPledgingConference25May2008inYangon.
PhotocourtesyofKhinMaungWin.
41ChapterTwoTheTippingPointneighbouringcountries(China,India,andBangladesh),theUN,theRedCrossandRedCrescentMovement,theWorldBank,theADBandNGOs.
InternationaldonorsrepresentedbyAustralia,NorwayandtheUnitedKingdomjoinedtheAdvisoryGroupatalaterstage.
Representativesfrom51countriesaswellasinternationalandnationalNGOsandUNagenciesattendedtheASEAN-UNInternationalPledgingConference,whichwaschairedbytheMyanmarPrimeMinister,MrYeo,asChairofASEAN,andtheUNSecretary-General.
Ahugeoutpouringofaidwaspledged,andwhiledoingsotheinternationalcommunityreinforcedTheGatestotheDeltaSwingOpenTheAHTF,chairedbytheSecretary-GeneralofASEAN,wassetuptoprovidepolicydecisionsandestablishtheprioritiesandtargetswithregardtotheimplementationofthisASEAN-ledinitiative.
Itwasmadeupoftwoseniorrepresentativesfromeachofthe10MemberStates.
ThefirstmeetingoftheAHTFwasheldonthemorningof25May,justbeforetheASEAN-UNInternationalPledgingConferenceinYangon.
AnAdvisoryGroupwasalsoestablishedtoassisttheAHTFinprovidingrelevanttechnicalexpertiseandinputs.
MembersoftheAdvisoryGroupincludedrepresentativesfromDrSurinPitsuwan,Secretary-GeneralofASEAN,observesthePONJAprocessatthePONJAControlRoom.
PhotobyAHTFCoordinatingOffice.
42COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarACompleteTurnabout"Itdidn'tlookveryhopefulformostofMay.
WhenBanKi-moonvisitedMyanmarinlateMayandannouncedthataccesswasgoingtoimproveandinternationalstaffwouldbeabletogetin,nobodyreallybelieveditatthetime.
Howeversureenough,thatwasthecase.
ItwascleartoeveryoneinvolvedthatthekeytothishappeningwastherolethatASEANwasgoingtoplay.
ItcertainlypropelledASEANintoarole,whichithadneverbeeninbefore.
Thiswasanopportunitytodosomethinganddoitwithintherealmsofwhatwaspoliticallyacceptable.
BytheendofMaywhentherulesofthegamefinallybecameclear,suddenlyeverythingbecameeasieranditwasalmostlikeacompleteturnabout.
Fromasituationwheretheauthoritieshadbeencondemnedfromallcornersforhandlingtheearlyweekssobadly,ittookeveryonebysurprise.
AttheendofMaytherewasacompletelydifferentplayingfieldandthathasheldupuntilnow.
WehavehadaccesstoanywherewewantedtogointheDelta.
Aslongaswehavehadtherightvisatherehasneverbeenaproblemingettingtravelauthoritiesforinternationalstaff.
Thebigdifferencetoworkingintherestofthecountryisthatwedon'thavetoworkbeingaccompaniedbysomeonefromtheauthoritiesintheGovernment.
Thisisstillinplaceupuntilnow.
Relatively,wehavehadalotoffreedomtomovearound.
"—DanielCollison,SavetheChildren5243ChapterTwoTheTippingPointtheimportanceofeasingrestrictionsonaccesstotheDeltasothatactivitiescouldbecompletedunimpeded.
TheASEAN-ledcoordinatingmechanismwasintroduced,asshownintheaccompanyinggraph.
Aftertheconference,aCoordinatingOfficewasestablishedinYangonbyMsKamal,underthedirectionoftheSecretary-GeneralofASEAN.
MsKamalsaysshehadexceptionalhelpfromtheThaiEmbassyandtheWorldBank,butliterallyhadtosetuptheCoordinatingOfficefromscratch,whichwasdoneinmerelyfourhoursatChatriumHotelinYangon.
Thus,withinaveryshortperiodtheAHTFCoordinatingOfficewasborn,whichsupportedtheAHTFonthegroundandalsosupportedtheTCGmechanism.
Inacountryandsectorwheremostofthoseinchargearemen,MsKamalwasoneofonlyafewfemaleseniorrepresentativesworkingatsuchahighlevelinYangonatthetime.
FollowingthecommitmentmadebythePresidentoftheWorldBanktoDrPitsuwan,theGlobalFacilityforDisasterReductionandRecovery(GFDRR)swiftlymobiliseditsresourcestosupportASEANinperformingcoordinationfunctions.
"GFDRRcontributedtostrengtheningtheSecretariat'sabilitytocoordinatethepost-Nargisinternationalassistance,bridgingthegapbetweendeliveringhumanitarianassistanceanddevelopingasustainabledisasterrecoveryprogramforMyanmar.
"Inthiscontext,GFDRRofferedASEANSecretariataUS$1.
9milliongranttohelpmanagethepost-Nargisassistance,aswellastoreinforceitscapacitytocoordinateregionallong-termeffortsindisasterriskmanagement,especiallyinconductingdisasterimpactassessment,developingrecoveryplanningandstrengtheningemergencypreparednessandriskreduction,"saysMrSarojJha,theWorldBank'sGRDRRManagerandDisasterRiskManagementGlobalExpertTeamLeader.
49AmbassadorsservingontheTCG,(fromlefttoright)SingaporeAmbassadortoMyanmar,RobertChua,formerThaiAmbassadorBarnsarnBunnagandVetNamAmbassadorChuCongPhung.
PhotobyAHTFCoordinatingOffice.
44COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar"WhenresponsetoNargisstartedinearnest,WorldBankexpertswerepromptlymobilised.
Withthissupport,theAHTFwasabletoharmoniseMyanmarassistanceefforts,arrangeandconvenecoordinationmeetingsbetweenpartners,facilitatehighleveldialogueonrecoveryplanning,managethe[Post-NargisJointAssessment],delivernecessarytrainingsindamageandlossassessmentsandriskreduction,andtoexchangeknowledgeandbestpracticesinprevention,recoveryplanningandreconstruction,"headds.
50Meanwhile,adayafterthepledgingconference,MrPrasetyometwithMrDhannanSunoto,thenPrincipalDirectorforBureauforExternalRelationsandCoordinationofASEANSecretariat,andDrPitsuwan.
MrPrasetyoadvisedDrPitsuwanabouttheimmensechallengesthatlayaheadbasedonhisexperiencesinthepost-TsunamieffortinAceh.
HerecommendedthattheAHTFmoveswiftlytocreateaworkplan,conductdamageandlossassessmentswiththesupportoftheWorldBank,andmobilisetechnicalexpertsonthegroundtomonitorprogress.
Followingthat,theSecondAHTFmeetingwasconductedthroughvideoconferencetodiscusstheaboveplans.
Laterthatday,DrPitsuwanheldaseriesofmeetingstosetupcoordinationwithvariousstakeholders,includingtheWorldBank,theUN,NGOs,RedCrossandRedCrescentMovement,andtheprivatesector.
Atthetime,theASEAN-ERATwasscheduledtoberedeployedtoMyanmaron1Junetocompleteaone-monthfieldassessmentofrecoveryneedsinCyclone-affectedareas.
DrPitsuwanstressedatthetime,"Itisimportanttomovethingsforwardrapidly.
Wedon'twanttoloseanymoremomentum.
"51aseanDisplacedCyclonesurvivorsfindshelterfromtheannualmonsoonrainsintemporarytentserectedfollowingthedisaster.
PhotocourtesyofKhinMaungWin45ChapterTwoTheTippingPointFollowingthedecisionoftheASEANForeignMinisterstoestablishanASEAN-ledcoordinatingmechanism,thenextchallengewastranslatingthatdecisionintoaneffectiveworkingmechanismontheground.
TheTCGwassetuptooperationalisethereliefeffortsforCycloneNargis.
TheTCGconsistedofthreerepresentativeseachfromASEAN,theGovernmentandtheUN.
TheTCGwasconceivedaftertheSpecialForeignMinisters'MeetinginSingapore.
53TheSecretary-GeneralofASEANpresentedtheTermsofReferenceoftheASEAN-ledcoordinatingmechanismtotheFirstAHTFMeeting,justbeforethePledgingConferenceon25May2008inYangon.
TheFirstAHTFMeetingadoptedthetermsofreference,includingthecreationoftheTCG,theAdvisoryGroupandtheAHTFCoordinatingOffice.
ItwasemphasisedatthemeetingthattheGovernmentofMyanmarshouldleadtheTCGandthatahigh-levelGovernmentofficial,withadirectreportinglinetothePrimeMinister,serveastheChair.
TheSecretary-GeneralofASEANintroducedtheTCGtotheASEAN-UNInternationalPledgingConference.
Afewdayslater,theGovernmentofMyanmarappointedthenDeputyForeignMinisterUKyawThutoleadtheTCG.
OneofhiskeytaskswastoliaisedirectlywiththeMyanmarCentralCoordinatingBoard,chairedbythePrimeMinister,toensuretherapidandeffectivedeploymentofinternationalassistance.
TheofficialmandateoftheTCGwasto:Coordinateresources;Facilitateoperationsincludingaccessforhumanitarianworkers;Coordinatemonitoringofandevaluationontheprogressandachievements.
"SiLoneNyiNyaAungGyaungPhyar""Unityisthebestpolicy"—MyanmarproverbChapterThreeThreeVoicesasOne31May2008FirstTCGMeetingconducted.
31July2010TCGmandateends.
Secretary-GeneralofASEANDrSurinPitsuwan,farright,ChairoftheTCGandChairoftheCivilSelectonandTrainingBoardUKyawThu(centre)andUNRepresentativetotheTCGandUNResident/HumanitarianCoordinatorBishowParajuliinspectaboatdistributedtoCyclonesurvivorsinSeikGyiVillage,September2008.
PhotobyAHTFCoordinatingOffice47ChapterThreeThreeVoicesasOne48COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarIntheearlydaysofthereliefefforts,theTCGoperatedasatroubleshootingmechanismtohelpsolveamyriadofchallengesindeliveringaidquicklytotheDeltaareas.
Themostpressingissuesduringthattimeweregainingvisasforinternationalexpertsandopeningupairspaceforthedeliveryofgoods.
"TheformationoftheTCGandtherelationshipbetweenASEAN,theGovernmentofMyanmarandtheUNwasunique…BesidespavingthewayforunprecedentedinternationalsupporttohumanitarianeffortsinMyanmaritalsohadthedimensionofbuildingASEAN'scapacityinemergencyresponseforthefuturethroughtheirdirectengagementinthishumanitariansituation,"saysMrBishowParajuli,UNResident/HumanitarianCoordinator(UNRC/HC)toMyanmar.
54TheimmediateresponsetoNargiswasbuttressedfromastrategicaswellasapractical,operationalperspectivebytheTCG,headds.
AnotherimportantelementoftheTCGwasthatitwasaforumtoshareinformation,whetherthatwasconcernsfromthegroundflowinguptoauthoritiesorcommunicatingprogressonthereliefeffortstostakeholders.
Thiscommunicationchannelwasvitalinkeepingallpartiesinformedandonboard.
"Thiswasthefirsttimesomethingofthissorthadbeencreatedinternationally,soweimprovised.
Ioftenusetheanalogythatwewerelikeajazzband,improvisingtryingtomakethingshappentogetherlikeaband,"saysMrRobertChua,AmbassadorofSingaporetoMyanmar.
55DrWilliamSabandar,SpecialEnvoyforSecretary-GeneralofASEANforPostNargisRecovery(secondfromleft)andMrDhannanSunoto,DirectorofCrossSectoralCooperationforASEANSecretariat(thirdfromleft)visittheTCGRecoveryHubinPyapon.
PhotobyAHTFCoordinatingOffice.
49ChapterThreeThreeVoicesasOneTherewerethreekeystothesuccessoftheTCG.
Firstly,itwaschairedbyarepresentativefromtheGovernmentofMyanmarsincetypicallythenationalgovernmenttakesontheleadrolefollowinganemergency.
Secondly,AmbassadorsfromASEANMemberStatesaddedtheirrespectivepoliticalweightanddiplomaticflairtothemixwhiletheUNbroughttheperspectiveoftheinternationalcommunityandcontributedtechnicalexpertiseonrespondingtoahumanitarianemergencyofsuchanimmensescale.
Lastly,everyoneinterviewedforthispublicationagreedthattheTCGmemberswereunitedinacommongoal—tohelpthesurvivorsofNargis—andthatfirstandforemosttheirmandatewasfoundedonahumanitarianasopposedtopoliticalimperative.
AmbassadorscarriedsignificantpoliticalweightwiththeirrespectivenationsandasmembersoftheTCG.
Beyondthat,"therewasalsoapersonaldedicationfromtheseAmbassadors.
Theywereontheground.
Theywereawareofwhatwashappening,andtheyrelayedwhattheywereseeingandhearingbacktotheASEANSecretariat,whileatthesametimeseekingsupportfromtheGovernmentofMyanmar.
.
.
ItwasnotonlytheAmbassadorsthatwereextremelycommitted.
Theymobilisedtheircapitals.
Theytooktheirrolesveryseriously.
Wemeteveryweek,andtheyshowedahighlevelofcommitment,"saysUNRC/HCinMyanmarMrParajuli.
FromaninternationalNGOperspective,DrPaulSender,CountryDirectorofMerlin,observesthattheTCGwasamechanismforjointcollaborationandamodelfor"howtoDrAnishKumarRoy(secondfromleft),thenSpecialRepresentativeofSecretary-GeneralofASEANin2008withASEANVolunteersinSeikGyivillage.
PhotobyAHTFCoordinatingOffice50COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar51ChapterThreeThreeVoicesasOneMrBunnagorganisedatripfortheTCGmemberstolearnfromtheTsunamiresponseinsouthernThailand.
AlloftheTCGmembersandsomerepresentativesfromtheMyanmarGovernmentattendedthisstudytour,whichfocusedonearlywarningsystems.
"WewereabletolearnfromtheexperienceoftheTsunamitragedy,andwereabletobringbacksomeideas,"saystheAmbassador.
61"Weneverthoughtthatwewouldbesoclose,thiswasunexpected.
AtfirstwethoughtitwouldbelikealoosecooperationwiththeUNandtheMyanmarGovernment.
ASEANtakingtheleadhadn'thappenedbeforesowedidn'texpectmuchatthebeginning,butattheendwefeltsostrong,wefeltthatitwassousefulandhelpfultothepeopleinMyanmaranditwasverywellrecognisedbyeveryidentity.
.
.
wewerenotonlyabletobringinassistance,webroughtinaccess.
WebroughtMyanmarintotheopenandalltheinternationalcommunitywereabletotakepartandassistinginsharingtheirhumanitarianassistancetoMyanmar.
IamveryhappyandproudandhonouredtobeapartoftheTCG,"saysMrBunnag62.
ThelastseniorASEANmemberwastheVietnameseAmbassador,MrChuCongPhung63,whoservedfromNovember2009untiltheendoftheTCGmandateinJuly2010.
InlookingbackoverthetermoftheTCG,henotesthreemainachievements.
"Thefirstachievementwastosetupthepartnershipbetweenthethreepartiesandthispartnershipmechanism,whichcanbeappliedtoanothercountryexperiencingemergencies/naturaldisasters.
SecondlytheTCGmobilisedgreatresourcesfromtheinternationalcommunity.
ThirdlytheTCGworkedasabridgetohelpUNtounderstandtheGovernmentmoreandtheMyanmarGovernmenttoalsohaveabetterunderstandingoftheUN.
RelationsbetweentheUNandMyanmarGovernmentdidimproveduringthistime,sothiswasanimportantcooperation,"saystheVietnameseAmbassador.
aseanworkeffectivelyintheDelta.
Withinacomplicatedcontext,itenabledustofocusuponaddressinghumanitarianneeds…aswellasenableandmaintainaccesstotheDelta.
"57DrAnishKumarRoy,thenSpecialRepresentativeoftheSecretary-GeneralofASEANforPost-NargisResponseinMyanmarin2008andthenDirectorofBureauforResourcesDevelopmentforASEANSecretariat,recallsthatoneoftheTCG'sgreatestachievementswasexpeditingthevisaapprovalprocessforhumanitarianworkerstoaccesstheDelta.
"TheGovernmentgavetheTCGamandatetoissuevisas,travelauthoritiesandrelatedmatters.
NormallyinternationalhumanitarianactorswouldhavetodealwithministrieslikeMinistryofSocialWelfare,ReliefandResettlementtogetaccessintothereliefareasliketheDeltaandYangonDivisions.
Theofficialstheydealwitharenotatahighlevel.
HowevertheTCGhadthepowertograntvisasandTAs.
Ifthingshadgonethroughthenormalmechanisms,itwouldhavetakenmonthstogettheapprovals.
InsteadwewereabletomobilisepeoplethroughtheTCGmechanismveryquickly.
Thiswasagreatachievement,"58hesays.
"TheTCGmissionandobjectivesweresoclear—thatitistooperateonbehalfofthe[wellbeingofsurvivors]ofCycloneNargisintheDeltaarea.
Wehavebeenworkingveryclosely,verycloselylikeafamily.
Ofcourse,leadershipisthemostimportantthing.
TheleadershipoftheChairmanoftheTCG,theMyanmarMinisterUKyawThu,broughtussuccess,"saysformerAmbassadorofThailandtoMyanmar,BansarnBunnag.
59ThefirstAmbassadortoserveontheTCGasaseniorASEANmemberwasMrRobertChua.
HeservedontheTCGfromMaytoJuly2008.
AmbassadorofThailand,BansarnBunnag,replacedhim.
HeservedfromJuly2008toNovember2009.
"DuringmytimeontheTCG,themostmemorableexperienceswerethepeoplethatImet.
IshallneverforgettheMyanmarpeople.
Theyhavegoodheartsandarewillingtohelpeachothertoalleviatetheplightsofthevictims,"saysMrBunnag.
60TCGChairUKyawThuconsultswithamonkduringaTCGfieldvisittotheDelta.
PhotobyAHTFCoordinatingOfficeAcomprehensiveassessmentofthesituationonthegroundwascriticaltorespondeffectivelytothedisasteraswellastoensurethateveryonewasonthesamepageabouttheimpactofCycloneNargisandwhatneededtobedoneinresponse.
Donorshadmadeitclearatthepledgingconferenceon25Maythatmuch-neededfundingforthereliefandrecoveryefforthingedonsuchanassessmentsincethenatureandextentofthedamagewasstillunclear.
Afewpreliminaryassessmentshadbeencompletedatthatstage,includingtheERATteam'sinitialassessment.
Howeveramorecomprehensiveassessmentwasneeded,andquickly.
DuringthefirstTCGmeetingon31May,itwasagreedthataPost-NargisJointAssessment(PONJA)wouldbeconductedtodeterminetheimmediateandlong-termeffectsofCycloneNargis,andtherequirementsforimmediatehumanitarianassistanceneedsandmedium-tolong-termrecovery.
PONJAcommencedon3June,exactlyfourweeksaftertheCyclonehit.
Itwasahugeundertakingandinvolvedapproximately5,000questionnairesandvisitsto283villagesbyroughly300people.
StaffandvolunteersfromtheMyanmarGovernment,ASEAN,theUN,theRedCross,civilsociety,theprivatesector,andNGOsallparticipatedinthePONJA.
Theannualmonsoonrainshadbegun,makingaccessevenmoredifficult.
This,coupledwiththeneedtotraveltoremotelocations,meantthatanumberofdifferenttransportoptionswereneeded,includingWFPhelicopters,boats,motorbikesandvehicles.
ChapterFourPioneeringJointAssessment"Post-NargisJointAssessment(PONJA)andtheVillageTractAssessment(VTA)weremilestonesinhumanitarianresponseanywherebecausetheyrepresented,underverydifficultcircumstances,ajointlyagreedpictureofneeds.
Ajointassessmenthadn'tbeendoneonthatscalebefore.
PONJAwasincrediblyusefulasitallowedforconsensusinapproachingdonors;thatis,allagencieswereworkingfromthesameassumptionintermsofneedandpriorities.
Havingthatasastartingpoint,andhavingitquitesoonaftertheevent,wasagreatachievement.
"—DanielCollison,SavetheChildren64PeriodicReviewteamconductsahouseholdsurvey.
PhotobyAHTFCoordinatingOffice54COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarMergingMethodologies:DALAandVTAinSimpleTermsAsthisassessmentwassuchanimportantandsignficiantundertaking,theTCGformedathree-personAssessmentOversightCommittee(AOC)ledbyDrPujiPujiono,aRecoveryNeedsAssessmentProgrammeSpecialistsecondedfromUNDPGenevatoASEAN.
Intypicalreliefoperationsettings,thereisnosingleassessmentmethodologythatprovidesacomprehensivesnapshotfollowingadisaster.
InthecaseofNarigs,therewasonlygoingtobeoneopportunitytocomprehensivelyassesstheimpactofthedisaster,whichmeanttheWorldBankandtheUNhadtocooperateandconsequentlythePONJAwasmadeupoftwodifferentmethodologies.
TheAOCwastaskedwithintegratingtheassessmentsofthevariousUNagencieswiththatoftheWorldBank.
"EachUNagencieshastheirownmethodology,andtheyarequitestrict,"DrPujionosaid.
"AndtheWorldBankalsohasitsownassessment,whichisalsoverystrict.
Thechallengewasreconcilingthedifferentinterestsandparameters,andtranslatingthisreconciliationintoapproval.
"65TheWorldBankproposedusingtheDamageandLossesAssessment(DALA)–amethodologyoriginallydevelopedintheearly1970susedforreconstructionandrecoverypurposes.
ItreliesonsecondarydataaswellasformaldatafromtheGovernmentandfocusesonphysicalinfrastructure,macroeconomicsandfinance.
However,theUNproposedaVillageTractAssessment(VTA),whichusesvarioustoolstoassessqualitativedata,includingperceptions,feelingsandexperiencesandassessesmicroissuesthataffectindividuals,families,andcommunities.
ItwascommonknowledgethatfundingforthereliefoperationhingedonthequalityofthePONJA.
"Acredibleassessmentmeansonethatcannotbedisputedbyanyone.
Itwouldhavetobeconductedjointly,anditmustwithstandscientificquestioning.
Additionallyitmustspeakabouttherealimpactofthedisasterandwhatneedstobedone,"DrPujionosays.
AllpartieswantedtoensurethatthePONJAmettheseconditions,andwereeagertousetheirtried-and-truemethodologytoensureitssuccess.
66However,differencesofopinionoverthemergingofrespectivemethodologiesalmostcausedthecollapseofthePONJAanditwasonlyafterdelicatediplomaticnegotiationsthattheAOCsecuredagreementfromtheUNandtheWorldBanktopresenttheirfindingsinajointreport.
"Weforcedthemtoaligntheirsectoralanalysis,theirstorylines,"saysMrPujiono.
"Forexample,iftheWorldBankweretolookatwaterneeds,itwouldlookatwaterinstallationandwaterdistributionnetworksinteralia,thenconvertthattodollars.
ButwhentheUNconsiderswater,itlooksatpeoplehavingaccesstoanimprovedsourceofwater–regardlessofwhetherit'sthroughpipesortrucking.
Inthesameregard,intermsofhousing,thebanklooksathousinginfrastructureandsettlements,buttheUNlooksatpeople'saccesstobasicsheltertoprotectthemfromtheelementsimmediately,whiletheBankisconsideringthenextfiscalyear.
Soweassumedacomplementaryapproachandperspectivesthatwerelinedupunderacommonreportoutline.
"67PONJAwasgroundbreakingbecauseitintegratedhumanitarianreliefassessmentswithalonger-termrecoveryassessment,includingbothmicroandmacroanalysis,whichhadneverbeenattemptedonsuchascalebefore.
InthecaseofCycloneNargis,itwasalsoessentialthattheassessmentbeacollaborativeeffort,betweenASEAN,theGovernmentofMyanmarandtheUN.
However,inmostdisasterscenarios,agenciestypicallyconducttheirownassessmentsbasedontheirown,uniquespecialisedfields.
Forexample,UNICEFmayconductanassessmentondamagetoschools2JunePONJAsurveybeginsusing10WorldFoodProgrammehelicopters;over250enumeratorsvisit291villages.
21JulyPONJAreportlaunchedatthe41stASEANForeignMinisters'Meeting.
55ChapterFourPioneeringJointAssessmentandchildrenatrisk,whilstaninternationalNGOlikeCAREmayassessimpactofadisasteronlivelihoods.
Inotherdisasterresponses,acoordinatingbodylikeUNOCHAmaythenpulltogethertheseassessmentstomakeiteasiertosharethefindingsacrossthatcountry.
AjointassessmentontheunprecedentedscaleofPONJApresentedanumberofchallenges.
Ithadtocoverallsectors(livelihoods,waterandsanitation,foodsecurity,shelter)andfocusontheimmediateneedsofaffectedpeoplewhilealsoprovidingalong-termrecoveryoutline.
Thishadneverbeenundertakenbefore.
ResultsandfindingshadtobesignedoffbyallmembersoftheTCG—ASEAN,theGovernmentofMyanmarandtheUN.
Oneofthebenefitsoftheinformationbeingendorsedbyallpartieswasthatfindingsweretheneasyforhumanitarianagenciestoreferenceanduse.
Itwasanagreedbaselinefromwhichotheragenciescouldwork.
"PONJAwasquiteuniqueandcoveredalargegeographicalarea.
TherewasasignificantamountofimportantinformationAssessmentteamsinterviewvillagers.
PhotobyAHTFCoordinatingOffice56COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar57ChapterFourPioneeringJointAssessmentgathered,andalthoughthereweresomedrawbacksanddifficulties,forthescaleoftheassessment,andhowquicklyitwaspublishedafterthedisaster–itwasquiteacredittotheteam.
PONJAsetupabaselinetomeasureagainstwhichwasfollowedupbythePeriodicReviews.
ItgaveusadocumentthattheGovernmenthadendorsedsowewereabletoquotethefigures.
.
.
DonorsalwayswantedtoseehowouractivitiesweresupportingthePONJAandPost-NargisRecoveryandPreparednessPlan(PONREPP).
Itwasagreatresource,"saysMrAgland.
68ApartfromdeliveringimportantinformationabouttheneedsoftheNargissurvivors,PONJAaffordedtheinternationalcommunityunprecedentedaccesstotheDeltaregion.
ThesurveysamplewasdevisedonagridsystemsothateventhemostremoteareasintheDeltacouldbesurveyed.
AsPONJAhadtheuseofWFPhelicopters,thebreadthofthegeographicalareasampledwasimpressive.
ThespatialsamplinghelpedunraveltheCyclone'sconfusingtrajectoryandestablishpatternsofdestruction.
Naturally,therewerechallenges.
PONJAneededtobeputtogetherquickly,resultinginlimitationsintimeforreviewingtheassessmentbeforeitwasrolledout.
Thequestionnairecouldnotbepilotedduetotimeconstraints,butonthewholePONJAwasawidelylaudedassessmentthatbrokenewgroundinthehumanitariansector.
PONJAwasanextraordinaryopportunityforavarietyofstakeholderstocollaborateinaninternationalpost-disasterassessment.
TheGovernmentofMyanmarprovidedmorethan20personnelfrom18differentministries,whowereinvolvedatvariouslevelsoftheassessment,fromcoordinationinYangontoenumerationonHubteams.
TheUNassistedwiththeinputsandprocessesrequiredtodeveloptheimmediatereliefandearlyrecoverycomponentsofthejointassessments.
TheyalsotrainedandsupplieddataenumeratorsandcoordinatedthecontributionandparticipationofotherUNagenciesandmembersoftheInter-AgencySteeringCommittee.
TheWorldBanksecondedapproximately20expertstoASEAN,andtheADBandtheUNESCAPalsoprovidedtechnicalexpertstoassistintheundertaking.
Itwasverymuchacollaborativeeffort.
SaysMrChua,SingaporeAmbassdortoMyanmar:"Weneededtoworktogethertoproduceawrittendamageassessmentreportthatwouldgivetheinternationalcommunityanddonorsasenseofthevarioussectorsofdamage.
Thiswasadifficultbutatouchingandmemorableexperience,inallroundcooperation.
Therewereskepticsofcoursethatcooperationcouldhappen,butIthinkofficialsandministersfromtheMyanmarGovernmentofferedtheirassistance.
WhenwesentassessmentteamsdowntotheDelta,wedividedtheDeltaintoquadrants–WestandEast.
TheMyanmarGovernmentsupportedtheeffortbyprovidingCodeDivisionMultipleAccessphonessothateveryteamcouldphonebacktoheadquartersemergencyoffice.
ThisofficewaslocatedattheChatriumHotel,inYangonandwehadTCGrepresentativesrosteredthroughthenight.
Iwasthereinthelatenightandearlymorninganditwasverytouchingtohearthereportsoftheverybravevolunteerswhowentdowntoassesstheextentofthedamage.
TheycamebackwithatemplatecreatedbytheWorldBankandtheUNandfinallythePONJAreportcameoutinJuly,presentedattheASEANForeignMinistersmeeting.
"Ifeltagreatsenseofsatisfactiontohavecontributedtothatwholeexercise.
Ifyouseethefinaldocument,youwillnoticethatthereweremorethan200volunteersinvolved,verybraveyoungmenandwomen,whowentdowntocollectthedata.
ItwasahighlightofmytimeontheTCGaswereceivedsupportfromMyanmarofficialsontheground,andweallworkedtogethertogetasenseofthevariousareasofdamage.
"69aseanAnassessmentteamsetsoffintothefield.
PhotobyAHTFCoordinatingOffice58COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarThefirstninemonthsoftheASEAN-ledhumanitarianoperationdemonstrated"ASEAN'spotentialasaregionalgroupingintheinternationalhumanitarianarena,thatASEANcanplayproactiverolesinbridgingnationalinterestandinternationalassistance,andisincreasinglycompetenttocoordinatecomplexhumanitarianoperations,"DrPitsuwannoted.
71Butrecognisingthatmoreworkwasneeded,theASEANForeignMinistersagreedlateinFebruary2009toextendthemandateoftheAHTFandTCGuntilJuly2010.
Thedecisionwasatimelyoneastheeffortwasshiftingintotherecoverystage,and"weneedtoactandmovefasttoputinplacemeasurestocontinuehelpingtheNargissurvivors,"DrPitsuwansaidatthetime.
72PONREPPAstheNargisresponseshiftedfromemergencyrelieftoamedium-tolong-termrecoveryprocess,emphasisthenshiftedtorebuildinglivesandlivelihoodsinasustainableway.
TheTCGrespondedwiththePONREPP,whichoutlinedathree-yearrecoveryplanfromJanuary2009toDecember2011.
UndertheleadershipoftheUN,thePONREPPwasajointeffortwithcontributionsfromtheGovernmentofMyanmarandASEAN.
TheTCGagreedthatthePONREPPwouldfocusonfivesectors,basedonneedandprospectivedonorinterest:Livelihoods(AgriculturalandNon-agricultural),Education,Health,WaterandSanitationandDisasterRiskReduction(DRR).
ThePONREPPplanningprocessprovidedopportunitiestoengagewiththeregiononhowtobestimplementrecoveryplans.
InOctober2008,anESCAP-ASEANRegionalHigh-levelExpertGroupMeetingonPost-NargisRecoveryandLivelihoodOpportunitieswasheldinMyanmar,whichexaminedlessonslearnedfromaroundtheregionandexploredhowtopromoteregionalcooperation.
"WewereabletopulloutthebestexamplesandhelpMyanmarandASEANtocomeupwithguidingprinciplesinpreparingrecoveryplans,"DrHeyzersays73.
"Weemphasisedthingslikefocusingonvulnerablegroups,communityparticipation,makingsurethatweChapterFiveWithoutTrustThereisNothing"Whiletheissueofextendingthemandatefirstcameupatthe41stASEANMinisterialMeetinginJuly2008…weknewthattherewasstillmuchmoretobedoneduringtherecoveryphase.
TheMyanmarGovernmentalsorecognisedthisandwelcomedcontinuationofthetripartitecooperationprocess.
Oncewehadtrust,somuchcouldbedone.
"—MrGeorgeYeo,SingaporeForeignMinister70TCGPeriodicReviewteamovercomeschallengesinthefield.
PhotobyAHTFCoordinatingOffice.
59ChapterFiveWithoutTrustthereisNothing60COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarbuildthecapacityofinstitutionstodeliverandalsotheneedforeffectivenessandtransparencyandaccountability.
"TCGChairman,UKyawThu,embracedtheideaoflearningfromregionalexperiencetosupporttherecoveryplanningprocess.
InaUNESCAPpressreleasehestated,"WehaveagainfoundourselvesatcrucialcrossroadsnearlysixmonthsafterCycloneNargishittheAyeyarwadyDelta,andthatthereasonforthisimportantregionalmeetingwastoconcentrateourknowledgeandexperiencetooutlineasetofcommitmentsandactionstoboostearlyrecoveryeffortsandbridgethegapbetweenrelianceandself-sufficiencyfortheaffectedpopulationsoftheCycloneNargis.
"74CoordinatingResponseattheCommunityLevelTheTCG'scoordinatedpost-Nargisreliefandrecoveryresponseatthecommunitylevelevolvedovertwophases.
FromOctober2008toMay2009,community-levelcoordinationcentredonestablishingtheUNOCHAhubstructurethatistraditionallyputinplacetofacilitateinternationalhumanitarianassistancefollowingdisasters.
Tosupportcoordinationandclustermechanismsatthefieldlevel,UNOCHAestablishedsixhuboffices.
ASEANpersonnelwereco-locatedinallofthehubstocoordinatetheimplementationofthePeriodicReviews.
Theyperformedcomplementaryfunctions,liaisingwiththelocalGovernmentthroughTownshipCoordinationCommittees(TCC).
AdeskwasreservedfortheTCCSecretary(ornominee),toencourageinformalinteractionsandproblemsolving,andtogivelocalgovernmentaccesstothetechnology,informationandfacilitiesofthehub.
ASEANprovidedhumanresourcestofillgapsinthehubsduringthetransitionfromrelieftorecovery.
FromJune2009totheendoftheAHTFmandate,theco-hubsystemmergedintoaunifiedsystemcalledtheRecoveryHubOffice(RHO)thatwasledbytheTCG,withadministrativeassistancefromASEANandUN.
Intheinterestofmaximisingandharmonisingtheeffort,theAHTFandUNRC/HCnegotiatedtheestablishmentoftheRHO.
Theprocessinvolvedre-selectionofhumanresourcesfromUNandASEANintotheRHOstructure(bothinternationalandnationalstaff)andfinetuningtheTermsofReferencetoensureTCGcoordinationwasextendedtothefield.
Asthehubstructureevolved,itwasimperativethattrustbemaintainedbetweentheTCG,whichincludedtheGovernment,donorsandthevulnerablepopulations,whichwasmademorechallenginggivenaspikeinagenciesworkingintheDeltafollowingtheCyclone.
PriortoNargis,therewere10internationalNGOsandoneUNagency,theUNDP,present,intheDelta.
(TheWorldHealthOrganisation,UNICEF,UNPopulationFundandFoodandAgricultureOrganisationhadactivitiestheretovariousdegreesbutsometimesonlythroughpartnersintheDelta).
75AsofApril2010,114organisationshadreportedactivitiesintheDelta.
ThesuddeninfluxofforeignersandMyanmarnationalsfromotherpartsofthecountry,whoneededtointeractwithlocalauthoritiestocarryouttheiractivities,requireddelicatefacilitation.
Ultimately,thehubofficesprovedtobeaneffectivemechanismtoenhancecommunication,cooperationandharmoniousrelationsamongthevariousstakeholders.
76PeriodicReviews(PRs)PeriodicReviewsorPRsweredesignedtoevaluatetheprogressoftherecoveryeffort.
Thesewereinessencea'snapshot'ofprogressinmeetingtheevolvingneedsoftheCyclone-affectedpopulationeverysixmonthsoverthetwo-yearmandate.
ThesePRsaimedtoprovideobjectiveandcredibledata,coveringmultiplesectorsandalargegeographicregion.
KeyDatesJuly2008ASEANForeignMinistersdiscusspossibilityofextendingASEAN'spost-Nargismandate.
August2008TCGapprovesthePeriodicReviewasamechanismtomonitorprogressinmeetingneeds.
31October2008FirstPeriodicReviewbegins.
17November2008FirstSocialImpactMonitoringSurveycompleted.
9February2009TheTCGlaunchesthePost-NargisRecoveryandPreparednessPlan.
27February2009ASEANForeignMinistersdecidetoextendAHTFandTCGmandateuntilJuly2010.
PeriodicReviewteaminterviewsasurvivor.
PhotobyAHTFCoordinatingOffice61ChapterFiveWithoutTrustthereisNothingInsimpleterms,theyweredevelopedtotracktheimpactofthehumanitarianassistancebeingprovidedandtodeterminewhetherthepost-NargiseffortwasmeetingtheneedsoftheNargissurvivorsand,ifnot,toidentifyandarticulatethegaps.
AllPRscoveredthesamevillagesasthePONJA,whichspanned30townships.
ThePRswerereleasedeverysixmonthsafterthelaunchofthePONJA:PRIinDecember2008,PRIIinJuly2009,PRIIIinJanuary2010andPRIVwaspublishedinJuly2010.
ThePRswereledbytheAHTFCoordinatingOfficewithsupportfromtheMyanmarGovernmentandtheUN.
Itwasverymuchacollaborativeprocesswitharangeofstakeholders,includingtownshipauthorities.
FromabigpictureperspectivethePRsplayedanimportantroleintheNargisresponsebyhelpingtoinformtheprioritisationofneedsintheDelta.
ThePRIVfoundthatbyMay2010,thephysicalhealthofthepeoplelivingintheCyclone-affectedareashadstabilised,thoughconditionsgenerallywereworsethantheywerepriortotheCyclone.
Overall,progressalsowasunevenacrosssectorsandacrossgeographicareasimpactedbytheCyclone.
ComparedtothefirstPR,householdheadsweremorelikelytohaveaccesstohealthfacilitiesandtoindicatethatfacilitiesneededmedicationsandtrainedhealthpersonnel.
Generally,theabilityofhouseholdstoaccesssafedrinkingwater,duringboththerainyanddryseasons,hadimproved.
MorehouseholdsweretreatingtheirdrinkingwaterandtheircapacitytostorewaterhadimprovedcomparedtopreviousPRs.
ButtheCyclone-relateddestructionofsourcesoflivelihoodwasstilladverselyaffectingcommunities,theircapacitytogenerateincomesandsustaintheirfamilies.
Householdswho62COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarreliedonagriculturehadnotyetachievedthelevelofassetownershiptheyhadpriortotheCyclone.
Nearlytwo-thirdsofhouseholdsreportedthattheirdwellingswerefullyrepairedbutthehomesremainedhighlyvulnerabletostorms.
Three-quartersofdwellingslackedadequatefoundationsandnearlyallwallsandroofswerenotadequatelyreinforced,contributingtoweakstormpreparednessscoresinmanyofthemostvulnerableareas.
Schoolattendancewasonanupwardtrendamongchildrenaged10andabove,butwasdownslightlyforthoseaged5-10comparedtoearlierPRs.
Cyclonedamagetofamilyhomescontinuedtoinfluencethelikelihoodofchildrenattendingschool,particularlyamongyoungerchildren.
SocialImpactsMonitoring(SIM)TocomplementthePRs,aSIMassessmentalsowascarriedoutwithafocusonqualitativeanalysis.
Researchteamsconductedover220formalinterviewsandover150focusgroupdiscussionsonawiderangeoftopics.
Inaddition,over100informaldiscussionswereheldtogetapictureofthesocialimpactoftheCyclone.
SIMfoundthatreliefandrecoveryassistancehadreached"eventhemostremotevillages.
.
.
andallaffectedvillageshadreceivedassistancewithintwotofourweeks"77althoughmanypressingissuewereidentified,includinganeedtore-establishlivelihoodsandfoodsecurity.
Theassessmentalsoidentifiedanincreasedburdenofdebt,depressionoflocaleconomiesandlandandfishingrights.
Importantly,theSIMhighlightedtheneedforrecoveryeffortstofocusandbuildonthestrengthsoflocalcommunitiesandtoinvolvethecommunitiesinhowaidisdeliveredandused.
TheAHTFCoordinatingOfficealsoledSIMswithstrongtechnicalsupportfromtheWorldBank.
aseanAsurvivordriesfishaspartofalivelihoodinitiativeinLabutta.
PhotobyAHTFCoordinatingOfficeAnenumeratorconductsashelterassessmentwithassistancefromthecommunity.
PhotobyAHTFCoordinatingOffice63ChapterFiveWithoutTrustthereisNothingAfterastrongstarttotheNargisreliefeffortandsoliddonorfundingsupport,momentumoftheoveralleffortstartedtowaneinthefaceofseveralchallengesin2009.
SomesourcesinterviewedforthispublicationnotedadilutionintheTCG'sinfluenceandeffectivenessduringthesecondyearofitsmandate.
UNRC/HCMrParajulireflectsdonorsupportwasstrongduringthefirstyearofthereliefandrecoveryeffort,"butthesecondyearafterthePost-NargisRecoveryandPreparednessPlanwaslaunched,sufficientresourceswerenotavailable,[which]broughtfrustrationtothewholeTCGmembership.
"DonorfatiguesetinandfundsbegantodryupwhilemanyoftheneedsofthesurvivorsofCycloneNargishadstillnotbeenmet.
"TheCycloneNargisresponsepresentedacomplicatedsituationtothedonors.
Ontheonehand,manysawanopportunitytoencouragemoreengagement,butontheothertheywerestilltiedtotheirownnationalpoliticalandregionalpolicies,whichseverelylimitedwhattheycouldandcouldnotfund.
Theyarecaughtbetweenhumanitarianrelief,earlyrecovery,andlong-termrecoveryplans.
Manydonorswereabletocommitfundsforthehumanitarianphase,butraisingfundsforearlyandlonger-termrecoveryhasbeenverychallenging,"saysDrHeyzer.
78Inadditiontothefundingchallenges,inApril2009,theMyanmarGovernmentannouncedthatthevisaapprovalprocessforNargishumanitarianworkerswouldreverttothetraditionalGovernmentMinistrysystemandvisasnolongerwouldbeissueddirectlythroughtheTCG.
Thiswasviewedasasetbackandsparkedworriesthatfewervisaswouldbegrantedforhumanitarianworkers.
"TheMyanmarGovernmentchangedthevisaapplicationprocessandprocedures,whichcausedconsiderabledelays,andthereweremanyvisasinprocess.
ThisbroughtalotofworrytohumanitarianChapterSixWhereThere'saWillThere'saWay"ThitTebinKaungHngatTethaungNaNaing""Alargeandstrongtreecanberelieduponbythousandsofbirds.
"—MyanmarproverbGlazedearthenjarsaredistributedinKungyangon.
PhotocourtesyofCARE66COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarworkers.
HowevertheMyanmarGovernmentmovedswiftlytohelpreducethesedelays,"saysUNRC/HCMrParajuli.
Atonestagetherewereapproximately219visasbackloggedforprocessing.
79ThisissuewasraiseddirectlybytheSecretary-GeneralofASEANtothehighestlevelofGovernmentinMyanmar.
InaletteraddressedtotheMyanmarPrimeMinisteron11June2009,DrPitsuwanassertedthattheroleoftheTCGinprovidingaccessforhumanitarianworkersintheDeltashouldcontinue.
AppointmentofSpecialEnvoyDrWilliamSabandarInMay2009DrWilliamSabandarwasappointedSpecialEnvoyoftheSecretary-GeneralofASEANforthePost-NargisRecoverybasedinYangon.
Priortohisappointment,theleadershipoftheAHTFCoordinatingOfficewasarotatingone,andoftentheattentionofASEANSecretariatofficialsweredividedbecausetheywererequiredtotraveltoandfromJakarta–tocontinuetoperformdutiesrelatedtotheirregionalportfolios.
ItbecameapparenttotheSecretary-GeneralofASEANthattheAHTFCoordinatingOfficeneededamorepermanentfixture,onethatwouldhaveleveragingpower.
DrPitsuwanconsultedwiththeOfficeofthePresidentofIndonesiaaboutrecruitingDrSabandar,whohadbeenChiefofNiasrecoveryprogrammefortheIndonesianBRRforfouryearsafterthedevastatingIndianOceanTsunamiin2004.
Asmentionedpreviously,DrSabandar'sinvolvementwiththeCycloneNargisresponsedatedbackto4May2008,whenDrMangkusubrotoaskedhimtocloselymonitorsupportfromtheGovernmentofIndonesiatothereliefandrecoveryeffortasapartofaBRRTaskForceforNargis.
AlthoughDrSabandarparticipatedthroughthisinformalBRRNargisTaskForce,littledidheknowatthetimethatayearlaterhewouldbeaskedtobecometheSpecialEnvoyinMyanmarandleadtheAHTFCoordinatingOffice,allthewhilemakingasignificantcontributiontothesuccessoftheASEAN-ledmechanism.
AppointingaSpecialEnvoytotheSecretary-GeneralofASEANillustratestheimportanceandcommitmentASEANaccordedtheNargisresponse.
Duringameetingon7April2009,DrMangkusubrotoandDrPitsuwanbothagreedthattheSpecialEnvoypositionshouldbecreatedandthatitshouldcarryanappropriatelevelofauthorityandsufficientresourcestoexercisethatauthority.
DrPitsuwanagreedthatDrSabandarwouldbegrantedtheauthoritytoworkonbehalfoftheSecretary-GeneralasSpecialEnvoy.
ThisroleofSpecialEnvoywassignificant.
DrPitsuwanexplains,"DrSabandar'staskwastorepresentmeintheinteractionandengagementwithhigh-levelofficialsoftheGovernmentofMyanmar,UnitedNations,donorcommunity,internationalandnationalNGOsandotherhumanitarianagenciesanddevelopmentactorsintheexecutionoftheAHTFmandateinthepost-Nargisrecoveryprocess.
"80UponhisarrivaltoYangon,DrSabandarwasimmediatelystruckbytheneedforASEANtotakeamoreproactiveapproachtoleadingtherecoveryprocess.
Inparticular,hewasconcernedaboutthedelaysinestablishingaTrustFundfortherecoveryprocessashewasconvincedthatASEANcouldtakeanactiveroleinestablishingone,ratherthanmerelyassumingafacilitationrolewithpartners.
DrSabandarremembers:"InmyfirstweekinYangonasSpecialEnvoyInoticedthatmanyagenciesandpeoplehadlosttheirspiritandenergy.
TheyhadloweredtheirexpectationsofMay2009DrWilliamSabandar,SpecialEnvoyappointedandarrivesinYangon.
October2009PONREPPPrioritisedActionPlanlaunched.
November2009Post-NargisandRegionalPartnershipConferenceheldwithapproximately85%ofrequestedfundspledged,whichroseto94%byJune2010.
July2010Approximately80%ofpledgeshadbeenreleasedtoimplementingpartnersortrustfundsforPONREPPprojectsintheDelta.
67ChapterSixWherethere'saWillthere'saWaywhatcouldbeaccomplished.
Theredidn'tseemtobethesameenergyandmotivationorsenseofurgencyofacrisissituation.
IsawagreatchanceforASEANtohelp,totakesomeinnovativestepsandtoshowourhighestcommitmenttothepeopleintheDelta.
"81PONREPPPrioritisedActionPlanAfterthePeriodicReviewII,itwasevidentthattheoutstandingneedsintheDeltaexceededthefundsavailabletomeetthem.
Basicneedssuchaswaterandshelterwerelargelyunmet,childrenwereslowtogetbacktoschoolandlivelihoodsurgentlyneededtobere-energised.
ThePrioritisedActionPlanwasoneofDrSabandar'sfirstundertakingsafterheassumedleadershipoftheAHTF.
SectorsinthePrioritisedActionPlanincludedshelter,livelihoods,waterandsanitation,educationandhealthin13townships.
ThePrioritisedActionPlanwasdevelopedinconsultationwiththeTCGandkeyrepresentativesoftheDeltaRecoveryWorkingGroups,throughtheTCGandRecoveryCoordinationCentre.
DrSabandar,attheSixthAHTFMeetinginJakarta,suggesteddevelopingaPrioritisedActionPlanon2July2010.
Atthemeeting,DrSabandarproposedapragmaticapproachtotheplan,whichwouldbedesignedtohaveameaningfulimpactonCyclonesurvivorsintheDelta.
DrWillamSabandar,SpecialEnvoyofSecretary-GeneralofASEANtoPost-NargisRecovery,consultsinternallydisplacedsurvivorsinLabutta.
PhotobyAHTFCoordinatingOffice68COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarFollowingthemeeting,DrSabandarvisitedtheDelta,accompaniedbyMrSunotoandMsKamalfromASEANSecretariat.
DrSabandarremembers,"AftermytriptoPyaponon2August2009,Isawfirst-handhowalarmingthelivingconditionsoftheNargissurvivorswere.
Icalledforameetingon6August.
Aselectionofpartners(donorsandhumanitarianagencies)attendedthemeetingandsupportedASEANonleadingtheprocessforward.
IrememberourfirstsupportcamefromAustralia,theUnitedKingdom,Merlin,SavetheChildrenandOxfam.
"82ThePrioritisedActionPlantotalledUS$103million.
ItwaspartoftheoverallrecoveryplanidentifiedinthePONREPP,whichsoughtUS$691millionoverathree-yearperiod.
ThePrioritisedActionPlandidnotreplacePONREPP.
Rather,theplanwasderivedfromthePONREPPandthePONREPPremainstheoverarchingframeworkforpost-NargisrecoveryuntilDecember2011.
DrSabandarfollowedupthePrioritisedActionPlanwithanotherinnovativeproposalforASEANtohostaPost-NargisRegionalandPartnershipConferencetoboostdwindlingfundingsuppliesandtofollowthroughonpledgeddonations.
LobbyingofdonorsandASEANMembersStatestosupportthePONREPPPrioritisedActionPlanwasintensifiedthroughpersonalvisits,letters,e-mailsandtelephonecalls.
Theeffortpaidoffinpledges.
Secretary-GeneralofASEAN,DrSurinPitsuwan(center);UnderSecretary-GeneraloftheUnitedNationsandExecutiveSecretaryofUNESCAP,DrNoeleenHeyzer(right);DrWillamSabandar,SpecialEnvoyofSecretary-GeneralofASEANforPost-NargisRecovery;andFormerThaiAmbassadortoMyanmar,SeniorMemberofTCGMrBarnsarnBunnag(back)atthePONAC,25November2009.
PhotobyAHTFCoordinatingOffice69ChapterSixWherethere'saWillthere'saWayBENEFICIARIESDONORSPrioritisedActionPlanProjectsImplementingdirectlyorthroughimplementingpartnersUNAgenciesGovernmentoftheUnionofMyanmarTrustFundASEANNGOsPost-NargisandRegionalPartnershipConference(PONAC)TheAHTFCoordinatingOfficeinitiatedandledthePost-NargisandRegionalPartnershipConferencewithsupportfromtheTCG.
ItmarkedthefirsttimeforASEANtoinitiatesuchanevent,andtheresultswereextremelypositive.
DrSabandar'sfreshenergywasinfectiousandkickstartedtheflaggingmomentumofthepost-Nargiseffort.
On25November2009,PONACwasheldinBangkoktomobilisemuch-neededresourcestomeetprioritisedneedsinCyclone-affectedareas.
Theconferencealsosharedthelessonslearntfromthe18monthsofpost-Nargisassistance.
Theconferencewasco-chairedbyDrPitsuwanandDrHeyzer.
DrHeyzerrecalls,"Itwasaboutbuildingatrustedpartnership.
Manyofthedonorswereaskedtoshowthattheywereabletocomeupwithsupportonthehumanitarianfront.
TheChairmanoftheTCG,UKyawThuwassayinghowdisappointedhewasattheleveloffundingandhowtheGovernmentofMyanmarfeltthatwhatevertheyweredoingwasnotenough.
IwasconcernedthattheMyanmarGovernmentwouldnotbelieveinthesincerityoftheinternationalcommunityandthatthetrustthatweallworkedsohardtobuildwouldbebroken.
SoitwasFundingChannellingMechanismfromDonorstoBeneficiariesPresentedatPONAC70COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar71ChapterSixWherethere'saWillthere'saWayveryimportantthattheTCGandallthehumanitarianpartnersworkingonthegrounddevelopedthePONREPPPrioritisedActionPlan,adocumentthathighlightedandcostedtheoutstandingcriticalneedsintheDelta.
ThisdocumentbecameaneffectivetoolinlobbyingdonorsforrenewedcommitmentsthatcouldberealisticallydeliveredbytheendofthemandateoftheTCGinJuly2010.
Iwashappytoco-chairthedonorconferencewithDrSurin,atESCAP.
"83Organisingthisfundraisingconferencewasnotwithoutitschallenges.
ThefundingappealwaspeggedatUS$103million.
IfASEANfailedtoraiseasignificantportionofthistarget,ASEANriskedlosingfacewiththeMyanmarGovernment.
Thenightbeforetheconference,DrPitsuwancalledDrSabandartoaskwhathethoughttheoutcomewouldbefromthePost-NargisandRegionalPartnershipConference.
DrSabandarthoughtthatitwouldbepossibletoraise60percentofthetarget.
DrPitsuwanwassatisfiedwiththisestimate,suggestingthatifASEANcouldraise60percent,itwouldbeaverygoodachievement.
ThefollowingdaybothDrSabandarandDrPitsuwan"weredelighted"becauseUS$88.
5millionhadbeenpledgedor85percentofthetarget.
"Thiswaswellbeyondourexpectations.
ASEANbelievedwecoulddoit.
WorkingwholeheartedlyforthesurvivorsofCycloneNargis,impossibilityturnedintoreality!
"recountsDrSabandar.
DonorsincludedAustralia,Denmark,EC,Germany,Japan,Netherlands,NewZealand,Norway,Singapore,Sweden,Switzerland,UnitedKingdomandtheUS.
Importantly,donorswerefreetogivefundsthroughanumberofchannelsincludingtoUNagencies,NGOs,theGovernmentofMyanmar,varioustrustfunds,ASEANortothePrioritisedActionPlanprojects.
MrCollisonsaysthatmanyinternationalNGOshadlittlemoneytoimplementactivitiesplannedinthePONREPPandthedonorconferencerepresentedalifelinetoSavetheChildrenandotheragencies.
"Therehadbeenallthiseffortforthethematicworkinggroupsandclusterstoputtogetheritsthree-yearrecoveryplan,andsomuchwasneededtofinancethat.
Butbasicallytherewasnomoneycomingthrough–grantswerecomingtoanend,andtheoutlookfor2010waslookingquitebad,"hesaid.
"ASEANtookarealinitiative,particularlywhenWilly[Sabandar]arrived,toraisesomefundsfortherecoveryphaseoftheresponse.
"84Amuch-neededboosttotherecoveryeffortsofNargiswasachievedthroughthePost-NargisandRegionalPartnershipConference.
Pledgeswereallocatedtofiveprioritysectors:livelihoods;shelter;water,sanitationandhygiene;educationandhealth.
ItwasalsoanopportunityfortheMyanmarGovernmenttoexpressitsthankstotheinternationalcommunityfortheirassistanceduringNargisandtoemphasisethatadditionalfundswereneededtoassistintherecoveryprocess.
ChairmanoftheTCG,UKyawThu,advocatedforajointcommitmenttoensurethattheaffectedcommunitiesneveragainsufferastheydidbecauseofNargis,bysuccessfullyimplementingthePONREPPandthePrioritisedActionPlan.
Theeffortdidnotstopattheconference.
Tomonitortheimplementationofthedonorpledges,theAHTFCoordinatingOfficesetupamonitoringunitandintroducedtheRecoveryInformationandAccountabilitySystem(RIAS).
TheRIASaimstomonitortheprogressofpledges,howpledgesareconvertedintoprojectsandtotracktheprogressofprojects.
Withthistool,recoveryachievementsbecometransparenttoall—includingtheGovernment,donorsandthehumanitariancommunity.
Themonitoringunitwasabletoacceleratetheimplementationofdonorpledges.
BythetimeASEAN'smandateendedinJuly2010,approximately80percentofthepledgeshadbeentransferredtoimplementingpartnersortrustfundstoimplementvariousPONREPPprojects.
Thismaintainedthemomentumoftherecoveryeffort.
aseanOneoftheoutcomesofthePONREPPPrioritisedActionPlan,aschoolfundedbyJapan,aPONACdonor.
PhotobyAHTFCoordinatingOfficeWiderSpaceforCooperationandIncreasedAidUndoubtedly,oneofASEAN'smostsignificantachievementsduringthepost-NargisreliefandrecoveryeffortwasthefacilitationofvisasandtravelauthorisationsforinternationalstaffthroughtheTCG.
ASEANworkedtogetherwiththeMyanmarGovernmentandtheUNtoopenuphumanitarianaccessintheDelta,whichbroughtmuch-neededassistance,expertiseandsuppliestothesurvivorsofCycloneNargis.
Apartfromexpeditingassistancetobeneficiaries,improvedaccessfortheinternationalcommunitycreatednewhumanitarianspaceinMyanmarandnewpathwaysforengagementinbothdirections.
TheMyanmarGovernmenthashadtheopportunitytoengagewiththeinternationalcommunityinfreshwaysandtheinternationalcommunityhasbeenaffordedunprecedentedaccesstoprovideassistance,andinturnhashadtheopportunitytoimproveitsunderstandingabouttheMyanmaroperatingcontext.
Itishopedthatthisnewspacewillimprovereceptivityforfutureengagement.
Myanmarauthoritieswillbemoreinclinedtoworkwiththeinternationalcommunity,andtheinternationalcommunitywillexplorenewopportunitiestocollaboratewithMyanmar.
AnotherASEANaccomplishmentwasmobilisingresourcesforthereliefandrecoverystagesoftheresponse,whichwasnotaneasytaskgiventhepoliticalrestrictionssomedonorsfaceinprovidingaidtoMyanmar.
Toputthefundingdilemmainsomecontext,MyanmarreceivedlessOverseasDevelopmentAssistance(ODA)thananyofthe50poorestcountriesintheworldin2007,includingNorthKorea,ZimbabweandSudan.
MyanmarreceivedUS$4perpersoninODA,accordingtotheOrganisationforEconomicCooperationandDevelopment;CambodiaandLaosPDRreceivedUS$47andUS$65respectivelyforthesametimeperiod.
IncreasedaidflowsintoMyanmarfollowingtheCycloneresultedinadramaticincreaseinODAtoUS$11percapitain2008.
85ChapterSevenPivotalMomentsinASEAN'sCycloneNargisResponse"WewereabletobringtheworldtoYangoninspiteofeverything.
"—Secretary-GeneralofASEAN,DrSurinPitsuwanEmergencyfooddistributionduringthereliefperiod.
PhotocourtesyofKhinMaungWin73ChapterSevenPivotalMomentsinASEAN'sCycloneNargisResponse74COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarASEAN'sachievementshavebeennumeroussincejoiningtheCycloneNargisreliefefforts.
UndertheASEAN-ledcoordinatingmechanism,incollaborationwiththeTCGandpartners,achievementsinclude:FacilitatingthroughtheTCGtheissuanceof3,833visasforhumanitarianworkers.
Comprehensivelyassessingneeds,lossesanddamagesthroughthePost-NargisJointAssessment.
Communitymonitoring,throughPeriodicReviewandSocialImpactsMonitoring,toinformhumanitarianassistancestrategiesandprogrammechangestooptimisebenefitstothepeopleaffectedbyCycloneNargis.
Providingaframeworkformedium-tolonger-termrecoverywithaviewtopromotingproductive,healthyandprotectedlivesthroughthePost-NargisRecoveryandPreparednessPlan.
SupportingTCG-endorsedprojectstoassistinlivelihoodsrehabilitation,infrastructurereconstructionanddisasterriskreductionthroughtheASEANVolunteerProgramme.
Strengtheninghumanitariancoordinationatthetownshipleveltobolsterthemainstreamcoordinationmechanismtoensurefocusedassistancetoaffectedpopulations.
Sustainingacoordinatedeffortasrecoveryentersthemediumtolonger-termstagebasedontheguidingframeworkarticulatedbythePONREPP.
Maintainingmomentumandasenseofurgencythrougheveryphaseofthereliefandrecovery.
EstablishingtheRecoveryCoordinationCentre,RecoveryForumandRecoveryHubsinpartnershipwiththeGovernmentandUnitedNations.
MobilisingsupportandfundingfromtheinternationalcommunitytoaddressthecriticalneedsthroughthePost-NargisAssistanceandRegionalPartnershipConference.
DevelopingaRecoveryInformationandAccountabilitySystemtomonitortheimplementationofthePONREPPPrioritisedActionPlan.
EstablishinglinkagesbetweentherecoveryanddevelopmentframeworkandpreparingastrategyfortransitionthroughtheMoSWRR.
HandingovercoordinationtoolstotheMoSWRR.
Developingaknowledgemanagementdatabaseofpost-NargisexperiencestobeincorporatedintoAADMER.
Sharinglessonslearnedandinstitutionalisinggoodpracticesofpost-NargisintoAADMERandtheAHACentreMyanmarGovernmentPraisesASEANWhenaskedtonameASEAN'sgreatestcontributiontothepost-Nargiseffort,Myanmar'sMinistryofForeignAffairsresponded,"theconveningofthePledgingConferenceon25May2008,theconductoftheDamageandLossAssessmentandVillageTractAssessmentinJune2008,developmentofthePost-NargisJointAssessmentandPost-NargisandRegionalPartnershipConferenceon25November2009.
"75ChapterSevenPivotalMomentsinASEAN'sCycloneNargisResponseThroughtheASEAN-UNInternationalPledgingConferenceandPONAC,ASEAN,togetherwiththeUN,wasabletoraisefundsfromdonorstosupportthereliefandrecoveryeffortsintheDeltaandtoaddressshort-termfundingchallenges.
Thepost-NargiseffortpromptedsomedonorstoreassesstheirpoliciesregardingprovidingaidtoMyanmarandotherstoincreasetheircontributionssignificantly.
"ASEANcreatedthebridgetobringthesupportprovidedbyinternationalhumanitariancommunityclosertothesurvivors.
ItprovidedanopportunityforNargissurvivorstofullybenefitandutilisealltheavailableresourcesfromtheinternationalhumanitariancommunity,includingthosefromtheneighbouringcountriesandtheASEANregion.
ItalsobroughtASEANclosertothepeople,"saidMsKamal.
86WhilesomedonorswereinitiallyskepticalabouttheeffectivenessofaidtoMyanmar,thepost-Nargisreliefandrecoveryresponseprovedthataidcouldbedelivereddirectlytothoseinneed.
"Thereisalsoamisconceptionamongdonorsthataidcannotbedeliveredeffectively,butthisisnotthecaseandthathasbeenprovenwithNargis.
Thisisthemessagethatneedstogetout,tobecommunicatedtodonors,"saysUNRC/HCMrParajuli.
87"TheresponsetoCycloneNargisintheDeltahasshownthatitispossiblefortheinternationalcommunity,localorganisationsandtheGovernmenttocooperatetosaveandrebuildlives,"saysPaulWhittingham,HeadoftheDepartmentforInternationalDevelopment(DFID),BritishEmbassyinMyanmar.
DFIDwasoneofthebiggestcontributorstotheNargisresponse.
88ImprovedRelationswiththeWorld"ASEANcouldplayanimportantcontinuingroleinpromotingmutualcooperationforthealleviationofpovertyinMyanmar.
ItiscriticalthatthegainsmadefollowingCycloneNargis–intermsofincreasedinternationalawarenessofthelevelsofTeamsdstributeassistanceforrecoveryprojectsintheDelta.
PhotocourtesyofUNICEF76COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarTeamsdistributeeducationalmaterialstosupportschoolsintheDelta.
PhotocourtesyofUNICEF77ChapterSevenPivotalMomentsinASEAN'sCycloneNargisResponsepovertyinMyanmarandtheincreasedallocationswehaveseen-areprotectedandsustained.
WehopethatASEANcancontinuetouseitsinfluencewiththeGovernmenttoensureagreaterfocusonmeetingtheneedsofitspeople.
Forourpart,DepartmentforInternationalDevelopmentwillcontinuetoprovidesupporttobasichealthcareandeducationintheDelta,aswellashelpingthecommunitiesaffectedbyNargistorestoretheirlivelihoods,raiseincomesandestablishfoodsecurity,"saysMrWhittingham.
89ManyhumanitarianagenciessaytheyhavebetterworkingrelationshipswiththeGovernmentasaresultofworkingtogetherinthepost-Nargisresponse.
"TheGovernment'sresponsecapacityhasmuchimprovedsinceNargis.
TheGovernmenthasshownwillingnesstoworkwiththeUNandNGOs,"saysBhairajaPanday,theUNRefugeeAgencyrepresentativeinMyanmar.
"TheGovernmenthasshownmoreconfidenceindealingwiththeaidcommunityandnowunderstandsbetterhowthelatterfunctions.
"90WinZinOo,thedirectorofhumanitarianandemergencyaffairsforWorldVision,hasalsonoticedachangeintheGovernment'sattitudetowardtheinternationalhumanitariancommunity.
"AttheoutsetoftheNargisresponse,thepolicyoftheGovernmentwas'wecando[this]byourselves'.
Now,theapproachofinvitinginternationalagenciesforassistancecanbeseenaschange,duetothehumanitarianspacecreatedbycooperationduringtheNargisresponse,"saysWinZinOo.
91"Theyareopentoreceivingsupportandarecontinuingtoengage.
ThisisexactlythesignthatthecooperationbuiltafterNargisiscontinuing.
Wehaveengagement,"agreesVincentHubin,deputyheadofofficefortheUNOfficefortheCoordinationofHumanitarianAffairs.
92MrCollisonobservesthat,"Theleveloftrustanddialogueatmeetings[withtheGovernment]hasimprovedoverthelasttwoyears.
IthinkthatthisreflectsanimprovementoranincreaseinunderstandingontheroleandtheobjectivesofinternationalagencieswithinsomelayersofsomeofthelineMinistriesandauthorities.
Thisispossiblyduetothefactthattheyhavebeenworkingcloselywithinternationalagencies,perhapsforthefirsttime,foranextendedperiod.
Before,someministriesmayhavebelievedthatinternationalagencieswereinMyanmartodestabilisetheirsystem.
FromtheNargisresponsethathasbeendemonstratednottohavebeenthecase.
"InternationalfinancialinstitutionsthatengagewithMyanmarasamembercountry—theInternationalMonetaryFund,WorldBankandtheADB—havealso"witnessedasubstantialimprovementinthequalityoftheirpolicydialogues"withtheirMyanmarcounterpartsattheministerialandsubministeriallevels,analysts93observe.
Besidesbeingmorewillingtoengagewiththeinternationalcommunity,theGovernment'scapacitytorespondtoanemergencyhasimproved.
Governmentauthoritieshavedemonstratedagreaterappreciationofwhatittakestoleadadisasterresponseandwillingnesstoreachouttotheinternationalcommunityforsupportinemergencies.
ShortlyafterfloodsandlandslideskilleddozensanddisplacedthousandsinwesternMyanmarinJune2010,high-rankingGovernmentofficialsassessedthedamagefirst-hand,conferredwithUNagenciesandNGOs,adjustedtheirplansaccordingly,delegateddutiesforaiddeliveryandquicklyauthorisedaiddelivery.
WhenacycloneonceagainthreatenedMyanmarfromtheBayofBengalinApril2009,MoSWRRappealedforassistance.
TheyalertedSavetheChildren,WorldVisionandUNICEFandrequestedsupportbeforeitmadelandfall.
94MrKayeoftheWFPbelieves"theGovernmentnowhasabetterunderstandingofhowtheinternationalcommunitycanhelptorespondtodisastersofthismagnitude.
ThisunderstandinghashelpedtostrengthenrelationshipstothepointwherenowtheGovernmentseesusasclearpartners.
[When]TropicalStormAliawasforecasttostrikeSittweinNorthernRakhineState,theMoSWRRcalledanumberofUNagenciesandNGOpartnerstogethertoprepareintheeventthestormhit.
ThatwasunheardofbeforeNargis.
Thisyear,the78COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarGovernmentparticipatedinasimulatedexerciseorganisedbytheUNtotestourinter-agencycontingencyplan.
Thereisdefinitelynowagreaterawarenessandappreciationoftheneedfordisasterpreparednessaswellasofdisasterresponsemechanisms.
"InworkingtowardsassistingthesurvivorsofCycloneNargis,ASEANhashelpedforgenewpathwaystoimprovedrelationships.
Althoughitisunclearwhatthefutureholds,thesepathwayswillremaininplacetoguidefutureengagement.
ASEAN'sFormulaforSuccessManyhavecreditedASEAN'ssuccessinthepost-Nargisendeavourtoitsculturalcapitalandthegoodwillthathasbeenfosteredwithintheorganisation.
MyanmarhasbeenamemberofASEANforover10yearsandtherewasalevelofcomfortindealingwithASEAN.
ASEAN'sintuitivesensitivitytothelocalcontextanditsculturallyappropriateresponsetothedisasterwerekeytoachievingconsensusonthewayforward.
"ThestartingpointwasthatthisdisasterhappenedinanASEANMemberStatesoMyanmarhadaconfidencelevelinASEAN-asafamily,asSoutheastAsianneighbour.
ThereisacomfortlevelwithASEANasMyanmarhasbeenamembersince1997.
Sotherewasanopenstartingpoint.
WhentheForeignMinistersproposedthisASEAN-ledmechanismoptiontotheMyanmarGovernment,therewasacomfortlevel.
Secondly,havingthepresenceoftheASEANSecretariatofficeinYangonandtheASEANVolunteerswassomethingpracticalthatshowedthatASEANwantedtohelpontheground,politicsaside.
Inaddition,ASEANknowstheUNwellandviceversa.
TheUNrepresentedtheinternationalcommunityandsometimesthereweredifferences,soitwasnaturalthatASEANplayedthisbridgingrole.
Perhapsitcouldbeseenasapossiblemechanismelsewhere.
Inplaceshitbyseveredisasterswherethereareissuesoftrustandcooperation,thismechanismcouldcomeintoplace,"saysMrChua,SingaporeAmbassador.
ASEANhasbeenrecognisedforitsnuanceduseofsoftpowerdiplomacy,whichworkedextremelywellinreconcilinggapsinunderstandingandtrustbetweeninstitutionswithverydifferentbackgroundsandparadigms.
LikewisesomemembersoftheinternationalNGOcommunityhaveattributedASEAN'ssuccesstoitsmoresubtle,pragmaticapproach.
"ASEANbringstothetablealocalunderstandingofthesituation.
Ifyougobacktothattime,theFrenchandtheUnitedStateshadwarshipsoffthecoastandtherewereallkindsofthreatstoMyanmar.
Peopleweresayingthatthattheywantedtocomeintohelpbutiftheyweren'tgoingtogetpermissiontheyweregoingtocomeinanyway.
WhereasASEANapproachedthissituationinamuchmoresubtlewayandworkedtobringtheGovernmentonboardwithoutthosekindsofpoliticalconditionsattached.
IthinktheGovernmentfeltcomfortablewithASEAN.
IftheTCGwasmadeupofotherpartiesandnotASEAN,Idon'tthinkitwouldhavebeenassuccessful.
ASEANbroughtaculturalunderstandingofthecontextandalocalwayofdealingwiththings.
Theyapproachedtheissueinaculturallyappropriatemanner,"saysMrAgland.
95Ultimately,saysJohnHolmes,UNUnderSecretary-GeneralforHumanitarianAffairsandEmergencyReliefCoordinator,"Nargisshowedusanewmodelofhumanitarianpartnership,addingthespecialpositionwithcapabilitiesoftheASEANtothoseoftheUNinworkingeffectivelywiththeGovernment.
Thismayprovethemostimportant—and,Ihope,enduring—lessonoftheCycloneresponsewithimplicationsforhowwerespond,anywhere,inthefuture…ASEAN'sleadershipwasvitalinbuildingtrustwiththeGovernmentandsavinglives.
"96aseanAfishermanstoreshiscatch,partoflivelihoodssupportproject.
PhotobyAHTFCoordnatingOffice79ChapterSevenPivotalMomentsinASEAN'sCycloneNargisResponse80COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarSignificantachievementsincluded:Reconstructionof10,117ruralhousesbytheGovernment,whichprovideshelterforhomelesssurvivors.
NewmodelvillageswererelocatedwithsystemicvillageplansforvillagesthatweretotallywipedoutbyCycloneNargis.
TherehabilitationoflivelihoodscouldbecarriedoutwithleadershipfromtheGovernmentandcooperationfromlocalandinternationaldonors.
Forrehabilitationofagriculture,draughtcattle,powertillers,fuel,paddystrains,insecticideandfertiliserswereprovidedtofarmers.
Rehabilitationofthefisherysectorthroughtheprovisionoffishingboats,netsandfuelhelpedfishermenresumetheirlivelihoods.
Supplyoffinancialresources,waterpumps,tarpaulins,tendsandfuelbyconcernedMinistriestosaltmakerstorestoresaltproduction,whichwasdamagedbytheCyclone.
EstablishedaYouthTrainingSchoolinLabuttaDistricttoprovideeducationandvocationaltrainingtoorphans.
Constructing28cyclonesheltersaspreventativearrangementsforfuturedisasters.
Cycloneshelterswith500-and300-capacityweredesignedbyPublicWorksforconstructioninAyeyarwadyDivision.
Alongwiththecycloneshelters,17hillocksweredesignedbytheDepartmentofIrrigationarebeingconstructedbydomesticconstructioncompaniesinNgaputaw,Labutta,Bogale,Phyapon,DaydayeandKungyangontownships.
Buildingofnewroads,upgradingofsummerseasonroadsandembankmentsofexistingroadsbyconcernedMinistriesandprivateconstructioncompaniestoallowforeasyevacuationincaseofdisasterandimprovetransportationcorridors.
Atotalof129bridgeshavebeenbuiltbynineSpecialBridgeUnitsandtwoDistrictUnitssince23November2008.
TennewroadsarebeingconstructedundertheAyeyarwadyDivisionRoadNetworkDevelopmentProjectTheNDPCCdevelopedaStandingOrderonNatonalDisasterManagementinJanuary2009toensureeffectiveresponsetofuturedissasters.
TheMoSWRRisconductingcapacitybuldingfordisastermanagementpracticionersandcommunityawarenessprogrammesaspartofaMyanmarActionPlanonDisasterRiskreduction,whichwasdrawnupinlinewiththeHyogoFrameworkforActionandtheAADMER.
Post-NargisAchievementsoftheGovernment9781ChapterSevenPivotalMomentsinASEAN'sCycloneNargisResponseCollectivePost-NargisAchievementsoftheInternationalCommunty98Mixedcommoditiesdelivered:107,000MTMalnourishedchildrensupported:39,375Fortifiedfooddistributed:Morethan2,000tonnesto74,000pregnantandlactatingwomenandchildrenunderfiveChildrenbenefittingfromtheeducationalhumanitarianresponse:Morethan623,000Childrenreceivingessentiallearningmaterialpacks/studentkits:Morethan575,000Hospitalnutritionunitsreceivingtechnicalandtrainingsupport:12Communitybuildingsconstructedformultiplepurposes/cycloneshelters:Morethan356Pondsdug/rehabilitated:3,800Wellshanddug/rehabilitated:2,300Deepandshallowtubewellsconstructed/rehabilitated:802Ceramicwaterfiltersdistributed:90,000Latrinesconstructed:67,430Women'sself-reliancegroupsestablished:Approximately1,282withanestimatedmembershipof19,230Women-friendlyspacesestablishedinLabutta:7Peoplereceivingawarenesstrainingonwomen'sprotection,sexualreproductivehealth,psycho-socialandlivelihoodissues:2,084womenand610menPeople/householdsreceivingagriculturalsupport:Nearly1.
6millionpeoplefrom344,112householdsRiceseeddistributed:Morethan10,332MTPulsesseeddistributed:Morethan1,001MTBoatsdistributed:25,029Fishinggeardistributed:172,960unitsHealthfacilitiesreconstructed:24Healthfacilitiesrehabilitated(furnitureandmedicalequipmentprovided):422Childrenreceivingprimaryhealthcareservices:15,813VillagesreceivingexpandedProgrammeonImmunisationPackages:5,000in24townshipsTheAHTFMandateEnds,butASEAN'sWorkContinuesThemandatefortheASEAN-ledmechanismintheresponsetoCycloneNargisendedinJuly2010.
ButtherecoveryprocessformanyNargissurvivorswilltakemanyyearstocome.
Anumberofparties,includingtheUN,haveurgedASEANtoextendthemandate,howeverASEANhasconfidenceintheGovernment'scapacitytotakeover.
TheGovernmenthassaiditisreadytomanagetheCycloneNargisrecoveryprocess.
ASEANiscommittedtoworkingwiththeGovernmenttohandoverknowledgeandskills.
"TheASEANForeignMinistersdiscussedthematteranddecidedthatitwastherighttimetohandover.
TheAHTFandTCGhadplayedacriticalroleincoordinatingreliefeffortsduringthereliefandrecoveryphases.
Oncetheemergencyperiodwaspast,theMyanmarGovernmentshouldreassumeresponsibilityanddealdirectlywithinternationalaidagencies.
Therewasenoughtrustforthistowork,"saidMrYeo.
99ThehandoverfocusedontheMoSWRRandASEANwillcontinuetoprovidesupportonrequestfromtheGovernment.
Thetransitionplanwillfocusonknowledgetransferandthesmoothmaintenanceofcoordinationanddocumentation.
"TheMyanmarGovernmentiswillingtoreceiveknowledgetransfer,managementskills,theexperiences,thedocumentationandthemanagementassistanceandASEANwillprovidethis,"saysDrPitsuwan.
100AsASEANhandsovercoordinationtotheGovernmentofMyanmar,itisclearthatmanylessonshavebeenlearntonbothsides.
TheGovernmenthasacknowledgedthattherecoveryintheDeltaisnotover.
ThePONREPPwillcontinueuntil2011andtherearestillmanyneedsthatmustbemetintheDelta.
AlthoughtheGovernmenthastakentheleadintherecoveryefforts,ithasacknowledgedthatitcannotChapterEightMovingForward"Aswemoveintoalonger-termrecoveryprocess,itistimefortheMyanmarGovernmenttotakefullchargeovertheprocess.
"—DrWilliamSabandar,SpecialEnvoyofSecretary-GeneralofASEANforPost-NargisRecoveryinMyanmarAbeneficiaryofaidwatersabetelleafhomegarden,partoflivelihoodprojectinSeikGyivillage.
PhotobyAHTFCoordinatingOffice84COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmardoitalone.
TheGovernmenthasemphasisedthatfurtherfundingandsupportfromtheinternationalcommunityisvitaltotherecoveryoftheNargis-affectedcommunities.
Inthe64thsessionoftheUnitedNationsGeneralAssembly,PrimeMinisterTheinSeinpointedoutthat"PONREPPrequiresUS$691millionoveraperiodofthreeyears.
Todate,onlytheinternationalcommunityhascommittedhalfofthatamount.
Wehavebeencarryingoutmanyoftherehabilitationactivitiesrelyingonourownfundsandresources.
Ifmorefundsareforthcominganddonorsfulfilltheirpledges,therehabilitationprocesswouldbespeedierandmoreeffective.
"ThePrimeMinisteralsothankedtheinternationalcommunityonbehalfoftheGovernmentandtheCyclonesurvivors"forthegeneroushelpandassistanceextendedtothemduringtheirhourofneed.
"101Furthermore,keyfiguresintheMoSWRRhaveexpressedaneagernesstolearnfromASEANandotherplayersabouthowbesttooperationaliseadisasterresponse.
DrSabandaremphasises,"WewillcontinuetosupportMyanmarthroughanormalASEANframework.
TheexperienceinMyanmarhastaughtASEANhowtoworkinamoreoperationalwaywiththeGovernmentandthepeopleintheregion.
"ASEANhaslearnedconsiderablelessonsfromthisexperience,andthereweremany"firsts"—fromthefirstASEAN-ERATteambeingdispatchedinMay2008,tosettinguptheAHTFcoordinatingstructuretooperationalisingreliefassistancethroughtheTCG.
WorkinginpartnershipwiththeUNhasalsobeenakeylearningopportunity.
TheexperiencehasenhancedASEAN'sinstitutionalknowledgeondisasterresponseandmanagementandwillbefedbacktoAADMERandASEAN'sresponsetofutureregionaldisasters.
WhentheASEANForeignMinistersagreedtoofficiallyendtheoperationsoftheAHTFandTCGinMyanmaratthe43rdASEANForeignMinisters'Meetingfrom19-20July2010,theyrecognisedthe"assistanceandcooperationrenderedbytheGovernmentandpeopleofMyanmarintheseefforts"andSurvivorsinLabuttarebuildhomeswiththesupportofinternationaldonors.
PhotobyAHTFCoordinatingOffice85ChapterEightMovingForward86COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarnotedthattheMoSWRRwouldtakeovertheresponsibilityofcoordinatingandutilisingtheassistancefromtheinternationalcommunityinthepost-Nargisrecoveryefforts.
102TheForeignMinistersexpressedtheir"highestappreciationandgratitudetotheUN,DialoguePartnersofASEAN,donoragencies/countriesandtheinternationalcommunityfortheirgenerouscontributionsandfullsupporttotheASEAN-ledpost-NargisoperationinMyanmar.
"Theyalso"underlinedtheimportancetoinstitutionalisetheexperienceandknowledgegainedandagreedthattheASEANCoordinatingCentreforHumanitarianAssistanceondisastermanagement(AHACentre)tobeestablishedinJakartaandtheASEANSecretariatshouldbetherepositoryofgoodpracticesandlessonslearnt.
"103AstheNargisrecoverytransitionsintodevelopmentphase(seeaccompanyingdiagram),ASEANwilldoitsbesttoensuredevelopmentcooperationcontinuesinMyanmar.
Inaddition,ASEANwillfeedalltheknowledgeandlessonsbackintotheimplementationofAADMERandotherregionaldevelopmentinitiatives.
"Inourview,ASEANcouldmakemorecontributiontotheGovernmentindisastermanagementbytheassignmentofexpertiseindisastermanagementanddisasterriskreductionfieldtoprovidetechnicalprovisionstotheDepartmentofReliefandResettlement,"theMinistryofForeignAffairsnotedinalettertotheAHTFon9July2010.
104AADMER–TheFirstofitsKindTheCycloneNargisexperiencehelpedaccelerateASEAN'scapacitytomanagedisastersbyprovidinganopportunityforASEANtochallengeitscollectiveresponsetoamajordisasterwithintheregion.
ItmarkedthefirsttimethatAADMERwasactivatedandtestedinareal-lifepost-disastersituation.
ASEAN'sleadingroleincoordinatingthepost-Nargiseffortwillprovidevaluableinputs,lessonslearnedaswellastoolandmechanismstobefurtheradaptingandutilised.
"Wehavelearntfromthistragedyandshouldbebetterpreparedthenexttimeround.
DisastermanagementhasbecomeamajoritemontheASEANagenda,"saysMrYeo.
105AADMERisaregionallegally-bindingagreementthatbindsASEANMemberStatestogethertopromoteregionalcooperationandcollaborationinreducingdisasterlossesandintensifyingjointemergencyresponsetodisastersintheASEANregion.
AADMERisalsoASEAN'saffirmationofitscommitmenttotheHyogoFrameworkforAction(HFA)106andsofaritistheonlyHFA-relatedbindinginstrumentintheworld.
All10ASEANMemberStateshadratifiedtheAADMERbyNovember2009anditcameintolegalforceinDecember2009.
"ThiswasasignificantmilestoneinASEAN'scollectiveeffortstobuildadisaster-resilientcommunitybytheyear2015,"saysDrPitsuwan.
107MargaretaWahlstrm,theUNSecretary-General'sSpecialRepresentativeforDisasterRiskReduction,"congratulatesASEANandtheGovernmentsofSoutheastAsiafortheirforesightandengagementinaffirmingtheircommitmenttotheHFAandforofferingpartnershipstotheUNandotherpartnerorganisationstohelpachievetheobjectivesoftheAgreement.
"108MrJhaoftheWorldBankagrees:"Injusttwoyears,ASEANhasshowedgreatpotentialinhelping[MemberStates]betterprepareforandrespondtonaturaldisasters,bringingimmensebenefitstomillionsofvulnerablepeople.
IntheaftermathofCycloneNargisinMyanmar,ASEANquicklyenlisteditsinternationalpartnersandeffectivelycoordinatedtheinternationalhumanitarianresponseunderthecreativestructureoftheTCG…TheBankwasprivilegedtocontributetoASEAN'seffortsunderthevisionaryleadershipofDrPitsuwantoassistthedisaster-affectedpeopleofMyanmar.
ItlooksforwardtofurtherbuildonthispositiveexperienceandexpanditspartnershipwithASEANanditsMemberStates.
"109AADMERcontainsprovisionsondisasterriskidentification,monitoringandearlywarning,preventionandmitigation,87ChapterEightMovingForwardASEANPost-NargisDisasterManagementCapacityBuildingDevelopmentProgrammesASEANDisasterManagementProgrammesRegionalDevelopmentProgrammesGovernmentofMyanmarASEANTransitionfromRecoverytoNormalDevelopmentPhasepreparednessandresponse,rehabilitation,technicalcooperationandresearch,mechanismsforcoordination,andsimplifiedcustomsandimmigrationprocedures.
AADMERalsoprovidesfortheestablishmentofanAHACentretoundertakeoperationalcoordinationofactivitiesundertheAgreement.
DrPitsuwanreiteratesthat,"ASEANhasaccumulatedinvaluablelessonslearntfromourexperienceinprovidingthecoordinationmechanismandservingasthehumanitarianbridgebetweentheinternationalcommunityandtheaffectedpopulationaftertheCycloneNargisinMyanmarlastyear.
ASEANwillusethisexperiencetoensurethatAADMERismeaningful,effectiveandoperationalforreducingdisasterlossesandrespondingtofuturelarge-scaledisasteremergencies.
"88COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar89ChapterEightMovingForwardInsum,ASEANisdocumentingandinstitutionalisingthegoodpracticesfromthepost-NargisoperationstostrengthentheimplementationoftheAADMER.
Inthisway,thepost-NargisresponseinMyanmarwilldirectlycontributetothecapacityoftheregiontorespondtonaturaldisasters.
ASEAN'sexperienceinpost-NargisreliefandrecoveryinMyanmarwillalsohelpstrengthenresponsestofuturedisastersintheregion.
PossibleReplicationoftheASEAN-ledMechanismItispossiblethattheASEAN-ledmechanismcouldworkinothersituations.
ForASEANtoaddvaluetothehumanitarianmix,thecontextwouldhavetobeconsideredcarefully.
"IamgladthatthisASEAN-ledmechanismhasworkedwellandhasbeensuccessful.
Itisagoodexperiencethatothercountriesorothercommunitiescanshareandfollowthisgoodexample.
.
.
AfterJuly2010thisAHTFandTCGwillbeinasleepingmodeastroubleshavesubsidedandwehavegoneintorecoveryphaseandwillbeinthegoodhandsoftheMyanmarGovernmenttocontinuealltherecoverywork,whichhasbeendone.
Butthissleepingmodecanbeactiveandawakenedagainwheneverthereisacrisisornationaldisaster,andIstronglybelievethatthismechanismwilldefinitelyworkbecauseithasprovedsuccessfulbefore,especiallywiththeTCGmechanism,"saysformerThaiAmbassadorBansarnBunnag.
110ThehumanitarianeffortsoftheMyanmarGovernmentwithASEANandtheinternationalhumanitariancommunityareseenasanoutstandingexampleofcooperationworthyofemulation.
Ofallofthechallengesandlessonlearntthatdeservespecialrecall,theMinistryofForeignAffairsmentionedthattheformationoftheTCGisagoodexampletoadaptinfuturejointdisasterresponsesintheregionwiththeGovernmentofthedisaster-affectedcountrytakingtheleadrole.
111AfterharvestinPyamut.
PhotobyAHTFCoordinatingOffice90COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarAsASEANmovesforward,newsynergiesarelikelytobeformedandagreaterresponsibilitytakenfordisastermanagementintheregion.
CycloneNargishasprovidedopportunityforthepeopleofMyanmartobenefitfrominternationalassistance,tostrengthenitslocalinstitutionsandtobringdevelopmentandchangeintheregion.
"Weneedtocometotermswiththefactthattherewillbemorenaturaldisastersinourregion,"DrHeyzersays.
"Thereforeweneedtomainstreamdisasterpreparednessintothedevelopmentstrategiesofcountriesinourregion,andweneedtoenhancecollaborationattheregionalleveltoprovideadequateandtimelyresponsetofuturedisasters.
"112Thepost-NargisoperationshowsthatstrongcollaborationandpartnershipsbetweenASEAN,theinternationalcommunity,theGovernmentofMyanmarandthepeoplecanfosterdevelopment.
ThereisaneedtocontinuetomakeuseofandfillthehumanitarianspacethathasbeencreatedafterCycloneNargistohelpthepeopleofMyanmarrebuildtheirlives.
"BasedontheimpressiveperformanceoftheofficeitestablishedinYangontosupportitsleadershippositioninthepost-Cyclonereliefandrecoveryefforts,"ASEANiswell-positionedtocontinuetoactasabridgebetweenMyanmarandtherestoftheworldbyhelpingtoshoreupsupportforlonger-termdevelopment,someanalystssuggest.
113Infact,"astrongcasecanbemadeforcreatinganew[TCG]—consistingoftheGovernment,ASEANandESCAP—tohelptheGovernmentmanageforeignaid.
"114Inthemeantime,ASEAN'srelationshipwithMyanmarhascertainlymaturedasaresultoftheCycloneNargisresponse.
ASEANhasbeensuccessfulincreatingawindow,whichhasopenedmindstoseethatitispossibletodeliveraideffectivelyinMyanmar.
InadditionthisopportunityhasdemonstratedtotheMyanmarauthoritiesthattheinternationalcommunitycan—anddid—helpinMyanmar'sgreatesthourofneed.
ThisisacleardemonstrationofasharingcommunitywithintheASEANMemberStatesandalsoanewwayofworkingwiththeinternationalcommunity.
"Itisinconceivabletoseehowthecountryhaschangedasaresultoftheconcertedeffortsinthepost-Nargisreliefandrecovery.
IthasnotonlyshownanimprovementinthedevelopmentindicatorsintheDelta,butachangeinthedynamicsofdevelopmentpolicyofthecountry.
Moreimportantly,ithasbroughthopetowardsastrongerMyanmarsociety,"concludesDrSabandar.
aseanChildrenontheirwaytoschoolinthemorninginYathaya.
PhotobyAHTFCoordinatingOffice91ChapterEightMovingForward92COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar1Earlyon2May,theJointTyphoonWarningCentreestimatedtheCyclonereachedpeakwindsof215km/hrasitapproachedthecoastofMyanmar,makingitaCategory4CycloneontheSaffir-SimpsonHurricaneScalewhenithitlandfallaccordingtoJointTyphoonWarningCenter(2008),"CycloneNargisWarningNR020.
"2WorldFoodProgramme,"CycloneNargis.
"Yangon:WFP.
2008,p.
6.
TheMyanmarMetrologicalandHydrologyDepartmentbegantrackingthestorm29April2008.
3ChrisKaye,RepresentativeandCountryDirectorfortheWorldFoodProgrammeinMyanmar,personalinterviewwithauthorandLisaNicolWoods,25May2010.
4UnionofMyanmarNationalDisasterPreparednessCentralCommittee,"RecordofActivitiesduringtheEmergencyRelief,AssistanceandRehabilitationPeriodinCycloneNargis-AffectedAreas,"p.
95Chachavalpongpun,PavinandThuzar,Moe,"MyanmarLifeAfterNargis.
"Singapore:InstituteofSoutheastAsianStudiesPublishing.
2009,p.
2.
6AssociationofSoutheastAsianNations,"ABridgetoRecovery:ASEAN'sResponsetoCycloneNargis.
"Jakarta:ASEANSecretariat.
July2009,p.
5.
7UnionofMyanmarNationalDisasterPreparednessCentralCommittee,"RecordofActivitiesduringtheEmergencyRelief,AssistanceandRehabilitationPeriodinCycloneNargis-AffectedAreas.
"8UnionofMyanmarNationalDisasterPreparednessCentralCommittee,"RecordofActivitiesduringtheEmergencyRelief,AssistanceandRehabilitationPeriodinCycloneNargis-AffectedAreas,p.
36.
9UnionofMyanmarNationalDisasterPreparednessCentralCommittee,"RecordofActivitiesduringtheEmergencyRelief,AssistanceandRehabilitationPeriodinCycloneNargis-AffectedAreas.
10WorldFoodProgramme,"CycloneNargis.
"Yangon:WFP.
2008,p.
12.
11WorldFoodProgramme,"CycloneNargis.
"Yangon:WFP.
2008,p.
12.
12WorldFoodProgramme,"CycloneNargis.
"Yangon:WFP.
2008,p12andChrisKaye,RepresentativeandCountryDirectorfortheWorldFoodProgrammeinMyanmar,personalinterviewwithauthorandLisaNicolWoods,25May2010.
13DanielCollisonDirectorProgrammeDevelopmentandQuality,SavetheChildreninMyanmar,personalinterviewwithauthor,28May2010.
14DanielCollison,DirectorProgrammeDevelopmentandQuality,SavetheChildreninMyanmar,personalinterviewwiththeauthor,28May2010.
15DanielCollison,DirectorProgrammeDevelopmentandQuality,SavetheChildreninMyanmar,personalinterviewwiththeauthor,28May2010.
16Jointcommuniquéissued25May2008byFrance'sMinistryofForeignandEuropeanAffairsandMinistryofDefence(excerpts)inParis.
Retrievedfrom:http://www.
ambafrance-uk.
org/Bernard-Kouchner-on-Burma-disaster.
html,19July2010.
TheauthoritytointervenethroughtheResponsibilitytoProtectclauserestssolelywiththeUnitedNationsSecurityCouncilandtheGeneralAssembly.
17Belanger,J.
andHorseyR.
,"Negotiatinghumanitarianaccesstocyclone-affectedareasofMyanmar:areview.
"HumanitarianExchangeMagazine,Issue41,2008.
Retrievedfrom:http://www.
odihpn.
org/report.
aspid=2964,3August2010.
18RobertChua,AmbassadorofSingaporetoMyanmar,personalinterviewwithauthor,3May2010.
19InternationalCrisisGroupReportAsiaReportN°161,"Burma/MyanmarAfterNargis:TimetoNormaliseAidRelations,"20October2008,p.
8.
Retrievedfrom:http://www.
crisisgroup.
org/en/regions/asia/south-east-asia/burma-myanmar/161-burma-myanmar-after-nargis-time-to-normalise-aid-relations.
aspx,3August2010.
Notes93ChapterEightMovingForwardNotes20WuttHmoneOopersonalinterviewwithStephenGrahamandJulietShwegaung,30June2010.
21RobertChua,AmbassadorofSingaporetoMyanmar,personalinterviewwithauthor,3May2010.
22DrSurinPitsuwan,Secretary-GeneralofASEAN,personalinterviewwithauthor,12May2010.
23DrSurinPitsuwan,Secretary-GeneralofASEAN,personalinterviewwithauthor,12May2010.
24DrSurinPitsuwan,Secretary-GeneralofASEAN,personalinterviewwithauthor,12May2010.
25HeruPrasetyo,DirectorofInternationalRelationsforBRR,personalinterviewwithauthor,11May2010.
26HeruPrasetyoDirectorofInternationalRelationsforBRR,personalinterviewwithauthor,11May2010.
27DrNoeleenHeyzer,UnderSecretary-GeneraloftheUnitedNationsandExecutiveSecretaryofESCAP,telephoneinterviewwithLisaNicolWoods,26May2010.
28DrNoeleenHeyzer,UnderSecretary-GeneraloftheUnitedNationsandExecutiveSecretaryofESCAP,telephoneinterviewwithLisaNicolWoods,26May2010.
29DrNoeleenHeyzer,UnderSecretary-GeneraloftheUnitedNationsandExecutiveSecretaryofESCAP,telephoneinterviewwithLisaNicolWoods,26May2010.
30AdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivision,ASEANSecretariat,personalinterviewwithauthor,10May2010.
31AdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivision,ASEANSecretariat,personalinterviewwithauthor,10May2010.
32AdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivision,ASEANSecretariat,personalinterviewwithauthor,10May2010.
33DrSurinPitsuwan,Secretary-GeneralofASEAN,personalinterviewwithauthor,12May2010.
34GeorgeYeo,SingaporeForeignMinister,e-mailinterviewwithAdelinaKamal,24July2010.
35GeorgeYeo,SingaporeForeignMinister,e-mailinterviewwithAdelinaKamal,24July2010.
36GeorgeYeo,SingaporeForeignMinister,e-mailinterviewwithAdelinaKamal,24July2010.
37AdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivision,ASEANSecretariat,personalinterviewwithauthor,10May2010.
38GeorgeYeo,SingaporeForeignMinister,e-mailinterviewwithAdelinaKamal,24July2010.
39Chachavalpongpun,PavinandThuzar,Moe"MyanmarLifeAfterNargis.
"Singapore:InstituteofSoutheastAsianStudiesPublishing.
2009,p.
74.
40DrSurinPitsuwan,Secretary-GeneralofASEAN,personalinterviewwithauthor,12May2010.
41Chairman'sStatement,SpecialASEANForeignMinisters'Meeting,Singapore:19May2008.
42AdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivision,ASEANSecretariat,personalinterviewwithauthor,10May2010.
43ASEANSecretariatPressRelease,"WorkingVisitofH.
E.
SurinPitsuwan,Secretary–GeneralofASEANtoYangon,"Yangon:21May2008.
Retrievedfrom:http://www.
aseansec.
org/21560.
htm3August2010.
44MichelleChan,AustralianAmbassadortoMyanmar,personalinterviewwithauthor,17May2010.
45BrianAgland,CAREMyanmarCountryDirector,personalinterviewwithauthor,4May2010.
46WorldFoodProgramme,"CycloneNargis.
"Yangon:WFP.
2008,p.
23.
47Chachavalpongpun,PavinandThuzar,Moe"MyanmarLifeAfterNargis.
"Singapore:InstituteofSoutheastAsianStudiesPublishing.
2009,p.
51.
48ASEANSecretariatPressRelease,"InauguralReliefFlightforVictimsofCycloneNargisinMyanmarfromDonMueangAirportThailand.
"Bangkok:24May2008.
Retrievedfrom:http://www.
asean.
org/21566.
htm,29July2010.
94COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmar49SarojJha,WorldBankManagerGFDRRandDisasterRiskManagementGlobalExpertTeamLeader,e-mailinterviewwithAdelinaKamal,4August2010.
50SarojJha,WorldBankManagerGFDRRandDisasterRiskManagementGlobalExpertTeamLeader,e-mailinterviewwithAdelinaKamal,4August2010.
51ASEANSecretariatPressRelease,"ChairofASEANHumanitarianTaskForceMeetsInternationalOrganisationsandGroupstoCoordinateHumanitarianOperationsfortheVictimsofCycloneNargis,"27May2008.
Retrieved29July2010from:http://www.
asean.
org/21585.
htm.
52DanielCollison,DirectorProgrammeDevelopmentandQualityforSavetheChildreninMyanmar,personalinterviewwithauthor,28May201053AdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivisionofASEANSecretariat,personalinterviewwithauthor,10May2010.
54BishowParajuli,UNResident/HumanitarianCoordinator,personalinterviewwithauthor,2May2010.
55RobertChua,AmbassadorofSingaporetoMyanmar,personalinterviewwithauthor,3May2010.
56BishowParajuli,UNResident/HumanitarianCoordinator,personalinterviewwithauthor,2May2010.
57DrPaulSender,CountryDirectorofMerlininMyanmar.
StatementatPost-NargisandRegionalPartnershipsConference,Stocktaking,CriticalNeedsandLessonsLearned,25November2009,Bangkok.
58DrAnishKumarRoy,SpecialRepresentativeoftheSecretary-GeneralofASEAN,personalinterviewwithauthor,May2010.
59BansarnBunnag,formerAmbassadorofThailandtoMyanmar,personalinterviewwithauthor,22April2010.
60BansarnBunnag,formerAmbassadorofThailandtoMyanmar,personalinterviewwithauthor,22April2010.
61BansarnBunnag,formerAmbassadorofThailandtoMyanmar,personalinterviewwithauthor,22April2010.
62BansarnBunnag,formerAmbassadorofThailandtoMyanmar,personalinterviewwithauthor,22April2010.
63ChuCongPhung,AmbassadorofVietnamtoMyanmar,personalinterviewwithauthor7May2010.
64DanielCollison,DirectorProgrammeDevelopmentandQualityforSavetheChildreninMyanmar,personalinterviewwithauthor,28May2010.
65DrPujiPujiono,RecoveryNeedsAssessmentProgrammeSpecialist,UNDPinGeneva,telephoneinterviewwithLisaNicolWoods,28May2010.
66DrPujiPujiono,RecoveryNeedsAssessmentProgrammeSpecialist,UNDPinGeneva,telephoneinterviewwithLisaNicolWoods,28May2010.
67DrPujiPujiono,RecoveryNeedsAssessmentProgrammeSpecialist,UNDPinGeneva,telephoneinterviewwithLisaNicolWoods,28May2010.
68BrianAgland,CAREMyanmarCountryDirector,personalinterviewwithauthor,4May2010.
69RobertChua,AmbassadorofSingaporetoMyanmar,personalinterviewwithauthor,3May2010.
70GeorgeYeo,SingaporeForeignMinister,e-mailinterviewwithAdelinaKamal,24July2010.
71"ASEANSecretariatPressRelease,"ASEANExtendsLeadingRoleinHumanitarianAssistanceinMyanmar.
"2March2009.
72"ASEANSecretariatPressRelease,"ASEANExtendsLeadingRoleinHumanitarianAssistanceinMyanmar.
"2March2009.
73DrNoeleenHeyzer,UnderSecretary-GeneraloftheUnitedNationsandExecutiveSecretaryofESCAP,telephoneinterviewwithLisaNicolWoods,26May2010.
74UNESCAPNewsServicesPressReleaseNo:G/55/2008,"MeetingonPost-NargisRecoveryandLivelihoodOpportunitiesinMyanmar,"28October2008.
75TheINGODirectoryispublishedbytheFriedrichEbertFoundation.
Notes95ChapterEightMovingForward76JoernKristensen,RecoveryCoordinationCentreManager(secondedfromUNDP),personalinterviewwithLisaNicolWoods,12May2010.
77AssociationofSoutheastAsianNations,"ABridgetoRecovery:ASEAN'sResponsetoCycloneNargis.
"Jakarta:ASEANSecretariat.
July2009,p.
30.
78DrNoeleenHeyzer,UnderSecretary-GeneraloftheUnitedNationsandExecutiveSecretaryofESCAP,telephoneinterviewwithLisaNicolWoods,26May2010.
79BishowParajuli,UNResident/HumanitarianCoordinator,personalinterviewwithauthor,2May2010.
80DrSurinPitsuwan,Secretary-GeneralofASEAN,internaldocument,"LettertoTCGintroducingDrWilliamSabandar,"22April2009.
81DrWilliamSabandar,SpecialEnvoyoftheSecretary-GeneralofASEANforPost-NargisRecoveryinMyanmarpersonalinterviewwithauthor,12June2010.
82DrWilliamSabandar,SpecialEnvoyoftheSecretary-GeneralofASEANforPost-NargisRecoveryinMyanmarpersonalinterviewwithauthor,12June2010.
83DrNoeleenHeyzer,Under-Secretary-GeneraloftheUnitedNationsandExecutiveSecretaryofESCAP,telephoneinterviewwithLisaNicolWoods,26May2010.
84DanielCollison,DirectorProgrammeDevelopmentandQualityforSavetheChildreninMyanmar,personalinterviewwithauthor,28May2010.
85ODAfiguresretrievedfromhttp://www.
tradingeconomics.
com/myanmar/net-oda-received-per-capita-us-dollar-wb-data.
htmlandhttp://stats.
86AdelinaKamal,HeadofDisasterManagementandHumanitarianAssistanceDivision,ASEANSecretariat,personalinterviewwithauthor,10May2010.
87IntegratedRegionalinformationNetworks,"Analysis:Myanmarwaitingfordevelopmentaid,"10Aug2009.
Retrievedfrom:http://www.
alertnet.
org/thenews/newsdesk/IRIN/0d4b0593e2ec5abd5bcb66ec258fc0a2.
htm9Aug2010.
88IntegratedRegionalinformationNetworks,"Analysis:Myanmarwaitingfordevelopmentaid,"10Aug2009.
Retrievedfrom:http://www.
alertnet.
org/thenews/newsdesk/IRIN/0d4b0593e2ec5abd5bcb66ec258fc0a2.
htm9Aug2010.
89PaulWhittingham,HeadoftheDepartmentforInternationalDevelopment(DFID),BritishEmbassyinMyanmar,e-mailinterviewwithauthor,28May2010.
90IntegratedRegionalInformationNetworks,"Myanmar:Afragiletrustbetweenjuntaandaidworkers,"16July2010.
Retrievedfrom:http://www.
irinnews.
org/Report.
aspxReportId=8985619July2010.
91IntegratedRegionalInformationNetworks,"Myanmar:Afragiletrustbetweenjuntaandaidworkers,"16July2010.
Retrievedfrom:http://www.
irinnews.
org/Report.
aspxReportId=8985619July2010.
92IntegratedRegionalInformationNetworks,"Myanmar:Afragiletrustbetweenjuntaandaidworkers,"16July2010.
Retrievedfrom:http://www.
irinnews.
org/Report.
aspxReportId=8985619July2010.
93Rieffel,Lex,"TheEconomyofBurma/MyanmarontheEveofthe2010Elections,"UnitedStatesInstituteofPeaceSpecialReport241.
Washington,DC:May2010,p.
4.
94IntegratedRegionalInformationNetworks,"Myanmar:Afragiletrustbetweenjuntaandaidworkers,"16July2010.
Retrievedfrom:http://www.
irinnews.
org/Report.
aspxReportId=8985619July2010.
95BrianAgland,CAREMyanmarCountryDirector,personalinterviewwithauthor,4May2010.
96JohnHolmes,"DisasterLessons,"WashingtonPost.
6August2008.
Retrievedfromhttp://www.
washingtonpost.
com/wp-dyn/content/article/2008/08/05/AR2008080502924.
html20July2010.
97LetterNo.
654015/2010(1365)fromGovernmentofMyanmarMinistryofForeignAffairstotheAHTFNotes96COMPASSIONINACTIONTheStoryoftheASEAN-ledCoordinationinMyanmarCoordinatingOfficedated9July2010.
98TripartiteCoreGroup,"NargisImpressionsfromtheDelta.
"Yangon:ASEANSecretariat,GovernmentofMyanmarandUnitedNations.
July2010,pp.
7-8.
99GeorgeYeo,SingaporeForeignMinister,e-mailinterviewwithAdelinaKamal,24July2010.
100DrSurinPitsuwan,Secretary-GeneralofASEAN,personalinterviewwithauthor,12May2010.
101StatementbyTheinSein,PrimeMinisterofMyanmar,64thSessionoftheUnitedNationsGeneralAssembly,NewYork,28September2009.
Retrievedfromhttp://www.
mofa.
gov.
mm/speeches/9June2010.
102JointCommuniquéofthe43rdASEANForeignMinisters'Meeting,"EnhancedEffortsTowardstheASEANCommunity:FromVisiontoAction.
"HaNoi:,19-20July2010.
Retrievedfrom:http://www.
aseansec.
org/24899.
htm2August2010.
103JointCommuniquéofthe43rdASEANForeignMinisters'Meeting,"EnhancedEffortsTowardstheASEANCommunity:FromVisiontoAction.
"HaNoi:,19-20July2010.
Retrievedfrom:http://www.
aseansec.
org/24899.
htm2August2010.
104LetterNo.
654015/2010(1365)fromGovernmentofMyanmarMinistryofForeignAffairstotheAHTFCoordinatingOfficedated9July2010.
105GeorgeYeo,SingaporeForeignMinister,e-mailinterviewwithAdelinaKamal,24July2010.
106TheHyogoFrameworkforActionisaninternationalinstrumentfordisasterriskreductionthatresultedfromaWorldConferenceinKobe,Hyogo,Japanin2005.
107ASEANSecretariatPressRelease,"ASEANDisasterManagementAgreementtoEnterintoForcebyEndof2009.
"16September2009.
108ASEANSecretariatPressRelease,"ASEANDisasterManagementAgreementtoEnterintoForcebyEndof2009.
"16September2009.
109SarojJha,WorldBankManagerGFDRRandDisasterRiskManagementGlobalExpertTeamLeader,e-mailinterviewwithAdelinaKamal,4August2010.
110BansarnBunnag,formerThaiAmbassadortoMyanmar,personalinterviewwithauthor22April2010.
111LetterNo.
654015/2010(1365)fromGovernmentofMyanmarMinistryofForeignAffairstotheAHTFCoordinatingOfficedated9July2010.
112DrNoeleenHeyzer,UnderSecretary-GeneraloftheUnitedNationsandExecutiveSecretaryofESCAP,telephoneinterviewwithLisaNicolWoods,26May2010.
113Rieffel,Lex,"TheEconomyofBurma/MyanmarontheEveofthe2010Elections,"UnitedStatesInstituteofPeaceSpecialReport241.
Washington,DC:May2010,p.
5.
114Rieffel,Lex,"TheEconomyofBurma/MyanmarontheEveofthe2010Elections,"UnitedStatesInstituteofPeaceSpecialReport241.
Washington,DC:May2010,p.
Notes97ChapterEightMovingForwardListofAbbreviationsandAcronymsAADMERASEANAgreementonDisasterManagementandEmergencyResponseACDMASEANCommitteeonDisasterManagementADBAsianDevelopmentBankAHACentreASEANCoordinatingCentreforHumanitarianAssistanceondisastermanagementAHTFASEANHumanitarianTaskForcefortheVictimsofCycloneNargisAOCAssessmentOversightCommitteeASEANAssociationofSoutheastAsianNationsBRRBureauforRecoveryandReconstructionAgencyDALADamageandLossAssessmentDFIDDepartmentforInternationalDevelopmentDRRDisasterRiskReductionERATEmergencyRapidAssessmentTeamGFDRRGlobalFacilityforDisasterReductionandRecoveryHFAHyogoFrameworkforActionMoSWRRMinistryofSocialWelfare,ReliefandResettlementMoUMemorandumofUnderstandingMTMetricTonneNDPCCNationalDisasterPreparednessCentralCommitteeNGONon-GovernmentalOrganisationODAOfficialDevelopmentAssistancePONACPost-NargisandRegionalPartnershipConferencePONJAPost-NargisJointAssessmentPONREPPPost-NargisRecoveryandPreparednessPlanPRPeriodicReviewRCCRecoveryCoordinationCentreRFRecoveryForumRHRecoveryHubRHORecoveryHubOfficeRIASRecoveryInformationandAccountabilitySystemSASOPStandardOperatingProcedureforRegionalStandbyArrangementsandCoordinationofJointDisasterReliefandEmergencyResponseOperationsSIMSocialImpactsMonitoringTATravelAuthoritiesTCCTownshipCoordinationCommitteeTCGTripartiteCoreGroupUNUnitedNationsUNDACUnitedNationsDisasterAssessmentandCoordinationUNDPUnitedNationsDevelopmentProgrammeUNESCAPUnitedNationsEconomicandSocialCommissionforAsiaandthePacificUNHCUnitedNationsHumanitarianCoordinatorUNOCHAUnitedNationsOfficefortheCoordinationofHumanitarianAffairsUNICEFUnitedNationsChildren'sFundUNRCUnitedNationsResidentCoordinatorUNRC/HCUnitedNationsResident/HumanitarianCoordinatorUSUnitedStatesVTAVillageTractAssessmentWFPWorldFoodProgrammeWHOWorldHealthOrganisationGovernmentreferstotheGovernmentoftheUnionofMyanmarISBN978-602-8441-40-0