Conflicts, Human Intervention and Reconstruction in Myanmar after Cyclone Komen

This paper discusses the Program of Development Assistance to Myanmar after Cyclone Komen, including the initiatives taken by Myanmar and UNICEF, the implications of natural disasters, and the communication plan for disaster management. It highlights the need for disaster resilience and preparedness, and the importance of interconnection of race, gender, and diversity during disaster management.

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Conflicts, Human Intervention and Reconstruction
Honourable Chairman and Cabinet Members,
1. MINISTERIAL RECOMMENDATIONS
Issue
Recently, in August 2015 Myanmar was hit by the devastating Cyclone Komen.
This meeting is to discuss our Program of Development Assistance to Myanmar in the
aftermath of this natural disaster.
Background & Rationale
As the Agenda of this meeting has outlined, the purpose of our convening this meeting
is to take up an extra-ordinary decision which has direct bearing on our international
relations and is which is also necessary looking at the role which we are required to play
as a leading developed economy. As you are all aware, a natural disaster has struck
Myanmar, a country inflicted by climate changes, global warming and a resurging
economy. Looking at the gravity of the situation, our Prime Minister has decided to
intervene and offer all possible help to the heavily affected regions of Myanmar and its
citizens, especially the infants, helpless elders and women. This paper is being
presented as an outline of the internal initiatives which the Myanmar administration has
undertaken, the measures which UNICEF is taking with the assistance of Red Cross
Society and finally, what initiatives, we, as a nation, will be undertaking for extending
all possible help to Myanmar through the various agencies, avenues and NGO’s at our
disposal.
Myanmar, a country having marine borders with Andaman Sea and Bay of Bengal, is
consistently vulnerable to natural disasters, including drought, floods, cyclones,
earthquakes, and these lead to outbreak of harmful and dangerous infectious and
communicable disease. In 2008, Myanmar was hit by Cyclone Nargis and this affected
more than 2.4 million people. Recently, in August 2015 the country was hit by another

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devastating Cyclone Komen. This cyclone displaced around 1.7 million people, (Daly &
Feener (ed.), 2016).
One of the biggest reason for these consistently happening natural disasters in Myanmar
if that the country's climate is undergoing huge changes. Summers are getting hotter and
global warming is cutting short the effective period of monsoon season. This is creating
havoc for the infants and the vulnerable elders, especially in those communities which
are living in rural areas cut-off from quick access to medical help, administrative
attention and are constantly under threat of increased risk from natural epidemics and
disasters.
Our agencies in Myanmar who are constantly working for the benefit of the poor and
helpless, are of the opinion that building of the disaster resilience is not an option, but is
a critical necessity for the Authorities in Myanmar in order to protect investments in
infrastructure and also for ensuring the sustainability of social development plans. We
are ensuring, in association with the local authorities, to prepare the communities as
well as school going children, for any ensuing disaster, (Shaw, Shiwaku & Izumi (ed.),
2017).
Initiatives by Myanmar
Preparing for Natural Disasters
The Myanmar administration has initiated the following three important measures for
tackling the onslaught of natural disasters and calamities attacking its people.
1. The administration has taken steps for modifying the administrative structure and
has also taken steps towards creating new administration for implementing its
advanced plans which will improve the administration’s effectiveness for a better
disaster management at all administrative levels. Our agencies have reported that
this progress shows the government’s determination of making the necessary and
essential adjustments for the use of resources so that implementation of the changed
policies does not slow down the required development, (Leake, 2013).
2. Another aspect which is being reported currently from Myanmar is about the
instability which had come into the working of the government because of the
domestic insurgencies which had appeared after the independence. Currently, the
administration has overcome all obstacles and the government’s activities of nation-
building are being implemented at a faster momentum, towards an emerging,

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modern, peaceful, new and developed nation, which has not been witnessed so far
in the history of Myanmar, (Shaw (ed.), 2012).
3. It is being felt by all, who have a keen interest in the welfare of Myanmar,
including my office here, that at a time like this, it becomes imperative that we all
move as a united force towards solving any and all issues, which carry the potential
of affecting this momentum, including such natural disasters. My office is
suggesting that the Government of Myanmar (GoM), should be provided all
possible assistance for the implementation of their short as well as long term plans,
which are necessary for ensuring smooth preparedness, in order to minimise losses
from instances where unexpected natural disasters happen, (Leake, 2013).
4. The Standing Order for Natural Disaster Management in Myanmar is one such
bold initiative, issued by the GoM with an aim of ensuring that once a disaster
strikes, all emergency rehabilitation and relief works are carried out as per the Plan
prepared and that the agencies responsible for carrying out the relief and
rehabilitation work are mobilised at the national level to participate in the efforts
which are required for helping the affected citizens, (Pal & Ghosh, 2017).
2. IMPLICATIONS
Key Risks
The Scale of Impact
5. Scale of impact, say (Sakai, Jurriens, Zhang & Thornton (ed.), 2014), made by the
natural disasters is so huge and immediate that it creates loss of life, property,
crops, drinking water sources and means of livelihood. It also affects animals such
as cattle and in addition causes long term impact by disrupting the nation’s
livelihood infrastructure, services including education and health, bridges, roads
and communication channels, not to speak of the damage caused to the soil and
spreading of infectious diseases, (Sakai, Jurriens, Zhang & Thornton (ed.), 2014).
Mitigating Damages caused by Natural Disasters
6. Of the factors (1 to 5) mentioned above, some are beyond our control but still, the
administration is required to consider as many as possible factors and take
appropriate measures in controlling and safeguarding those areas. It is here that
developed nations, like ours, says (Carayannopoulos, 2017), must step forward to
carry out preparedness activities and best practices during a natural disaster striking

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an under-developed country such as Myanmar. We have resources to help the
needy in natural disaster management as we learn from our experiences in various
countries and these experiences should be appropriately used in countries like
Myanmar by adapting them to their local context and should be incorporated
systematically, (Syngellakis (ed.), 2016).
Alternatives to Recommendations
Initiatives by UNICEF
UNO (United Nations Organization) has classified Myanmar as a Least Developed
Country (LDC). This classification by the UNO is on the basis of the following factors
– weak human resources, low income and economic vulnerability. 70 percent of
Myanmar’s population resides and works in rural areas of the country, (UNO (ed.),
2010). The UNO is helping the GoM in promoting, at regional and national levels, a
policy and legal framework, including institutional arrangement for Disaster
Management. UNO is also initiating possible entry points for an enhanced collaboration
between UNICEF and UNICEF-led agencies from other countries, including ours, and
the GoM for a steady preparedness and response towards Disaster Management, (UNO
(ed.), 2010). It has already helped the GoM in formulating and initiating The Natural
Disaster Management Law in July 2013, which states and I quote: “Natural Disaster
means destruction to life, property, livelihoods, infrastructures, safety, education and
health of the public or the environment due to natural or man-made accidents or
negligence such as fires, landslides, storms, floods, thunderbolts, droughts,
earthquakes, tsunamis, avalanches, heat or cold waves, volcanic eruption, erosion of
banks and shores, maritime accidents; or damage to crops caused by pasts or plant
diseases; starvation or outbreak of contagious diseases of humans or animals; or
violence and armed insurgencies; or dangers caused by industrial, chemical or nuclear
accidents; oil spills or leakage or natural gas.” Unquote.
Our Contribution
As a developed nation, we have understood that haphazard growth of cities creates more
exposure of the citizen's assets to hazards and new kind of risks because of rapid growth
of the population, (Kalman & MacAulay, 2009). This, combined with the inappropriate
land-use plans, failure of the administration in observing the building
standard regulations, the inadequate living conditions of urban poor and poor sanitary

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conditions create daily risks, albeit on a small scale. But if this is not properly managed,
cities can grow to become generators of new vulnerabilities, thereby creating new types
of disaster risks, (Haddow, Bullock & Haddow (ed.), 2008).
With this in mind, our agencies have been initiating Urban Disaster Resilience Building
work, in schools and communities, inside Yangon since 2016. This is happening with
close collaboration and coordination with key stakeholders, which include government
departments, technical institutions and youth groups managing the CSOs. We have been
able to teach school going children in learning first aid and to conduct rescue operations
and how to quickly evacuate an area in case of a disaster, (Madu & Kuei, 2017).
3. COMMUNICATION PLAN
Analysis of Public Environment
Although Myanmar has signed the ASEAN Agreement on Disaster Management and
Emergency Response (AADMER) and the Sendai Framework for Action 2015-2030,
there were restrictions on the international agencies during the Cyclone Nargis
emergency and as a result, most of the life-saving works were managed by the local
communities, village leaders, monasteries and churches and other local agencies, such
as the Myanmar Red Cross Society (MRCS). MRCS successfully built upon an
“extremely robust, community level mechanism”. Since then, MRCS has an ongoing
presence in managing emergencies in Myanmar, (Leake, 2013). The Managing
Committee of MRCS has members appointed by the government and has officials who
carry authority and roles which have been greatly influencing the activities of MRCS
during disaster management. MRCS is now recognized as auxiliary to the
administration and its mandate is now formally recognised through a Standing Order on
Natural Disaster Management in Myanmar, (Leake, 2013); (Shaw, Shiwaku & Izumi
(ed.), 2017).
Our responsibility is important within the Global Protection Cluster (GPC), because we
have seen that lack of data is indicative of lack of systems. Hence, for helping a country
like Myanmar, we need to capture information and eventually teach the local population
that lack of awareness and capacity are not effective key emergency responders, (Sakai,
Jurriens, Zhang & Thornton (ed.), 2014). Disasters are likely to increase if such patterns
are persistent and new risks breakthrough in a poorly designed and managed temporary

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settlements and shelters made for the displaced persons. This ultimately leads to sexual
abuse and exploitation by opportunists, which may include even the relief workers. An
increase in the negative coping mechanism during post-disaster as well as protracted
displacement settings, enhances chances of domestic violence due to early marriages
and this ultimately leads to sexual abuse and exploitation, (Syngellakis (ed.), 2016).
We are able to make the locals understand the importance of interconnection of race,
gender and diversity as key factors during disaster management. We have also taught
them how to identify specific women groups at being in particular risk, (Daly & Feener
(ed.), 2016). Women, who lived ‘alone’ were at highest risk, especially those whose
parents or spouses had died. Displaced children and women were also at an increased
risk of violence, both when they lived in shelters and when living in ‘non familiar’
households. Poor women were also at risk of being sexually exploited. Women who
were ‘elderly,’ especially those who are looking after their grandchildren were also at
increased risk of being neglected, (Pal & Ghosh, 2017).
Anticipated Reaction
As propagators of humanitarian agencies, it is important for us to understand and
respect the culture of the country in which we give help, particularly more so at the time
of a natural disaster. However, we are not to define culture just by our ‘dominant view’
but we should acknowledge the various dimensions of a community, including those
stories of the deprived which are less frequently heard.
Our reports suggest that Myanmar has strong protective factors which definitely
enhance safety for women and children. This is because of a strong sense of community
living which has been found to be evident at village levels, which encourage the pivotal
role that the family, the religion and the civic responsibility play in society. This
eventually creates a space of protection and support for those women and children who
are in need of protection. Our agencies have also identified, through their research, that
there exists a commonly held view of among women of an incredible resilience and the
willingness of supporting each other. Myanmar has a range of strong and reliable
community factors, but for many of these affected women and children, the silence and
minimization of the effects of violence can cause greater isolation.

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Story-line and Core Government Message
We believe that the diversity of women, belonging to a range of different ethnic groups
and classes, can intersect with levels of protection. It is our moral responsibility to
establish multi-sectorial, inter-ministerial response teams for men’s, boys’, women’s
and girls’ protection during and immediately after the disaster. Members should be
included from the Department of Social Welfare, Relief and Resettlement and the
Ministry of Home Affairs (the Police), the Myanmar Maternal and Child Welfare
Association, the Myanmar Women’s Affairs Federation and the Myanmar Red Cross
Society.
LIST OF REFERENCES
Carayannopoulos, G. (2017). Disaster Management in Australia: Government
Coordination in a Time of Crisis. New York: Routledge.
Daly, P. and Feener, R.M. (ed.). (2016). Rebuilding Asia Following Natural Disasters:
Approaches to Reconstruction in the Asia-Pacific Region. Cambridge: Cambridge
University Press.
Haddow, G., Bullock, J.A. and Haddow, K. (ed.). (2008). Global Warming, Natural
Hazards, and Emergency Management. Boca Raton, FL: CRC Press.
Kalman, B. and MacAulay, K. (2009). Preparing for Disasters: Disaster Alert!
Melbourne, VIC: Crabtree Publishing Company.
Leake, J.E. (2013). Cyclone Nargis, Myanmar: Risk Reduction in Natural Resource
Management. Hackney, SA: Thaksin University Press.
Madu, C.N. and Kuei, C. (2017). Handbook of Disaster Risk Reduction & Management.
Singapore: World Scientific Publishing Company.
Pal, I. and Ghosh, T. (2017). Natural Hazards Management in Asia. Singapore: SAGE
Publishing.
Sakai, M., Jurriens, E., Zhang, J. and Thornton, A. (ed.). (2014). Disaster Relief in the
Asia Pacific: Agency and Resilience. Oxon: Routledge.
Shaw, R. (ed.). (2012). Community Based Disaster Risk Reduction. Bingley: Emerald
Group Publishing.

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Shaw, R., Shiwaku, K. and Izumi, T. (ed.). (2017).Science and Technology in Disaster
Risk Reduction in Asia: Potentials and Challenges. London: Academic Press.
Syngellakis, S. (ed.). (2016). Management of Natural Disasters. Southampton: WIT
Press.
UNO. (ed.). (2010). Natural Hazards, Unnatural Disasters: The Economics of Effective
Prevention. Washington DC: World Bank Publications.