size=10x10 in sun=7.

5 mm size=10x10 in

A Bridge to Recovery:
ASEAN’s Response to
Cyclone Nargis
On 2 and 3 May 2008, Cyclone Nargis swept in from the Bay of Bengal
and struck Myanmar’s Yangon and Ayeyarwady Divisions, resulting in large-
scale loss of life and destruction of infrastructure, property and livelihoods.
Approximately 140,000 people were killed or unaccounted for following the
cyclone. Cyclone Nargis is the 8th deadliest cyclone recorded and by far the
worst natural disaster in the history of Myanmar.

Acknowledging the unprecedented scale of the disaster, ASEAN rose to the

challenge and actively collaborated with the Government of Myanmar to
allow international relief workers to operate in the country. Since then, the
organisation has played an instrumental role in coordinating both the initial
response to the disaster and the transition towards medium and long-term
recovery.

Printed in Bangkok
July 2009 Myanmar, July 2009

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 size=10x10 in sun=7.5 mm size=10x10 in

The Association of Southeast Asian Nations (ASEAN) was established on 8

August 1967. The Member States of the Association are Brunei Darussalam,
Cambodia, Indonesia, Lao PDR, Malaysia, Myanmar, Philippines, Singapore,
Thailand and Viet Nam. The ASEAN Secretariat is based in Jakarta, Indone-
sia.

For inquiries, contact:

Public Outreach and Civil Society Division
The ASEAN Secretariat
70A Jalan Sisingamangaraja
Jakarta 12110
Indonesia
Phone : (62 21) 724-3372, 726-2991
Fax : (62 21) 739-8234, 724-3504
E-mail : public.div@asean.org

General information on ASEAN appears online at

the ASEAN Website: www.asean.org

Catalogue-in-Publication Data

A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis

Jakarta: ASEAN Secretariat, July 2009

363.34595
1. ASEAN – Disaster Management
2. Social Action – Emergency Management

ISBN 978-602-8411-10-3

The text of this publication may be freely quoted

or reprinted with proper acknowledgement.

Copyright ASEAN Secretariat 2009

All rights reserved

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 A Bridge to Recovery:
ASEAN’s Response to
Cyclone Nargis

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52-07-022_(i-vii),001-069_G.indd 4 p.B 7/13/09 7:28:27 PM
 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis i

Foreword by the Secretary-

General of ASEAN
The scale of Cyclone Nargis was unprecedented in the
history of Myanmar and its effects on the people and
environment will leave a wound for years to come. Yet in
the midst of the destruction and the enormous human loss,
there is hope that, in time, the people and areas affected
will not just recover, but emerge safer, healthier and more
prosperous than before.

As ASEAN member countries rise to the challenge of

creating a more dynamic, inclusive and caring ASEAN, our
collective response to the aftermath of Cyclone Nargis –
from outpourings of sympathy to the generous humanitarian
assistance – may be taken as an example of the benefits
that broader integration and close partnerships can yield.

This publication documents ASEAN’s involvement in

humanitarian assistance and disaster recovery in Myanmar,
with a view to using the experience as a replicable model
elsewhere in the region. Development and humanitarian
challenges await us, but we can be sure that our experience
in Myanmar can guide our future response, recovery and
disaster risk reduction initiatives, whilst also providing
valuable insights that can be shared with other regional
bodies that have or may engage in similar activities.

Strong regional collaboration can better serve the interests

of ASEAN member countries and enhance global stability
and interconnectedness. The closer we work together to
solve regional challenges with effective regional solutions,
the more we can look forward to greater strength, prosperity
and peace.

Dr. Surin Pitsuwan (right) during his visit to Seik Gyi village in
<<

Dr. Surin Pitsuwan September 2008, together with Chairman of the Tripartite Core
Group, U Kyaw Thu (left).

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 ii

Acknowledgements
We wish to express our sincere appreciation to the
Government of the Union of Myanmar, the UN agencies, and
the international and national humanitarian organisations
whose untiring commitment to alleviate the hardship and
improve the lives of those affected by Cyclone Nargis have
facilitated our progress to date.

We are grateful to the ASEAN member countries for their

steadfast commitment during a time that will undoubtedly
shape the organisation’s approach to humanitarian relief in
the future.

We also wish to extend our thanks to the donor community,

whose generous on-going support has assisted the affected
communities in rebuilding their lives.

This document is dedicated to the survivors of Cyclone

Nargis, whose strength and resilience in the face of tragedy
has continued to drive the recovery effort.

The Coordinating Office for the ASEAN

Humanitarian Task Force for the
Victims of Cyclone Nargis

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis iii

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 iv

Table of Contents
Foreword by the Secretary-General of ASEAN i
Acknowledgements ii
Table of Contents iv
List of Abbreviations and Acronyms vi
Executive Summary 1
Chapter I: Cyclone Nargis and the Need for Action 3
Chapter II: The ASEAN-led Coordination 7
2.1. Overview 9

2.2. Key Events 10
Chapter III: Rising to the Challenge – ASEAN Engagement Post-Nargis 15
3.1. Assessment, Planning and Monitoring 17
3.1.1. ASEAN-Emergency Rapid Assessment Team (ASEAN-ERAT) 18
3.1.2. Post-Nargis Joint Assessment (PONJA) 21
3.1.3. Periodic Review I (PR I) 26
3.1.4. Social Impacts Monitoring (SIM) 29
3.1.5. Post-Nargis Recovery and Preparedness Plan (PONREPP) 31
3.2. ASEAN Volunteers – A People-Centred Approach 37
3.2.1. Achievements 39
3.2.2. Summary 42
3.3. Humanitarian Hub Coordination 43
3.3.1. Strengthening TCG Coordination Roles at the Community Level 44
3.3.2. Facilitating the Periodic Review 45
3.3.3. Bringing ASEAN Closer to the People 46
3.3.4. Building Safer, Disaster-Resilient Communities 48
3.3.5. Meeting the Needs of Vulnerable People 49
3.3.6. Strengthening Local Capacity 51
3.3.7. Summary 54
Chapter IV – The Way Forward 55

4.1. Challenges on the Path Towards Recovery 57

4.2. The Continued Role of ASEAN 58
4.3. The Way Forward 59
References 67

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis v

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 vi

List of Abbreviations and Acronyms

ACDM ASEAN Committee on Disaster Management PONREPP Post-Nargis Recovery and
ADB Asian Development Bank Preparedness Plan
ADPC Asian Disaster Preparedness Centre RCC Recovery Coordination Centre
AHTF ASEAN Humanitarian Task Force for the RF Recovery Forum
Victims of Cyclone Nargis RH Recovery Hubs
ARF ASEAN Regional Forum RHO Recovery Hub Office
ASEAN Association of Southeast Asian Nations SASOP Standard Operating Procedure for Regional
ATEO Assistant Township Education Officer Standby Arrangements and Coordination
CBER Community-Based Early Recovery of Joint Disaster Relief and Emergency
DALA Damage and Loss Assessment Response Operations
DPDC District Peace and Development Council SIM Social Impacts Monitoring
DRR Disaster Risk Reduction TCC Township Coordination Committee
DRM/R Disaster Risk Management/Reduction TCG Tripartite Core Group
ERAT Emergency Rapid Assessment Team TDPC Township Disaster Preparedness Committee
IASC Inter-Agency Standing Committee UN United Nations
IDE International Development Enterprise UNESCAP United Nations Economic and Social
IDRL International Disaster Response Laws and Commission for Asia and the Pacific
Regulations UNDAC United Nations Disaster Assessment and
INGO International Non-Governmental Organisation Coordination
IOM International Organisation for Migration UNHCR United Nations High Commissioner for
MAPDRR Myanmar Action Plan for Disaster Risk Refugees
Reduction UNISDR United Nations International Strategy for
MIMU Myanmar Information Management Unit Disaster Reduction
NDPCC Natural Disaster Preparedness Central UNOCHA United Nations Office for the Coordination of
Committee Humanitarian Affairs
NGO Non-Governmental Organisation UNRC United Nations Resident Coordinator
PONJA Post-Nargis Joint Assessment VTA Village Tract Assessment

“Government” refers to the Government

of the Union of Myanmar

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis vii

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 1

Executive Summary
The role of ASEAN in the response to and recovery from
Cyclone Nargis has been critical in ensuring effective
coordination of international assistance. ASEAN has been
working at the strategic policy level between ASEAN, the
Government and the international humanitarian community
led by the UN, through the Tripartite Core Group (TCG).
However, it has also extended outwards to incorporate a
wide range of stakeholders at the community level through
i) data collection and monitoring within the Post-Nargis Joint
Assessment (PONJA), the Periodic Reviews and Social
Impacts Monitoring, and ii) project implementation through
ASEAN volunteers and partner organisations.
An overview of the effects of Cyclone Nargis, which struck
Myanmar on 2 and 3 May 2008, is given in Chapter I. The
cyclone left 140,000 people dead or missing and destroyed
infrastructure, property and livelihoods in the affected areas
of Ayeyarwady and Yangon Divisions. In the weeks and
months following the disaster, the immediate needs of those
affected by Nargis, such as shelter, food and medical care,
were pressing and provided the rationale for the wide-scale
mobilisation of national and international humanitarian aid.
ASEAN was active in facilitating access into Myanmar for
rescue teams and humanitarian aid through the TCG, while
also providing a bridge between the international community
and the Government that soon expanded.
to facilitate the emergency response and early recovery
process. The ASEAN Humanitarian Task Force (AHTF) and
the TCG have been instrumental in successfully coordinating
a humanitarian response of immense complexity.
The TCG has been acknowledged as an innovative body
that ASEAN and other regional bodies can replicate in
future emergency responses. It has demonstrated ASEAN’s
usefulness as a bridge between the Government and the
international community, which facilitates trust-building and
acts as a nexus for the transfer of knowledge and locally-
adapted expertise, providing regional solutions to regional
problems.
Chapter III details the diverse roles ASEAN has assumed in
assisting the post-Nargis response and recovery, including
assessment, planning and monitoring, the ASEAN Volunteer
Programme, and humanitarian hub coordination.
Assessment, Planning and Monitoring
The ASEAN-led TCG was instrumental in commissioning
the PONJA to establish baseline quantitative data on

The legal basis for ASEAN’s engagement is the subject of

Chapter II, which considers the importance of the ASEAN
Agreement on Disaster Management and Emergency
Response (AADMER). This agreement defines the
approach of ASEAN member countries towards expanding
the integration of disaster management and response.

Key events are also covered in this chapter, detailing the

quick response of ASEAN, the Government and national and
international actors in both prioritising the rapid delivery of
humanitarian assistance and creating effective coordination

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
Nargis-affected communities to inform the programming and
implementation of response and early recovery activities.
The on-going Periodic Reviews will continue to guide the
recovery progress.
Large-scale data collection in the cyclone-affected areas
presented numerous logistical and operational challenges
because physical infrastructure is limited and access
difficult. Effective assessment and monitoring has proven
vital to guiding coordination and implementation of aid
programmes, with a view to “building back better.”
ASEAN Volunteers Programme
Following the premise that after a disaster, ASEAN can draw
on the expertise, knowledge and experience of others living
in the region, the ASEAN Volunteers Programme has been
established for volunteers to assist in building disaster-
resilient and safer communities. This has also promoted the
cohesion of ASEAN.
To this end, ASEAN has established three Community-
Based Early Recovery (CBER) projects in Nargis-affected
areas that draw on volunteers from Myanmar and other
ASEAN member countries to create a pool of experienced
volunteers that can be mobilised in future emergencies.
52-07-022_(i-vii),001-069 new 13_G.indd 2
2
The Myanmar CBER projects represent the first deployment
of ASEAN volunteers since the ratification of the ASEAN
Charter and the ASEAN Socio-Cultural Community
Blueprint. The experience of ASEAN volunteers in Myanmar
has shown that the programme can facilitate cross-cultural
dialogue, add value to Disaster Risk Reduction (DRR)
initiatives and further ASEAN cohesiveness.
Hub Coordination
The TCG’s effective facilitation of response and recovery
efforts at the national level provided an opportunity for
ASEAN to strengthen its role in field coordination. In October
2008, UNOCHA and ASEAN initiated a hub co-location
aimed at strengthening the TCG coordination role at the
township level. This partnership was driven by a common
need for collaborative humanitarian community action in
close coordination with the Government. The milestones
and lessons learned in ASEAN-UNOCHA’s hubs can be
developed into regional guidance notes or a supplement
to AADMER. At the 41st ASEAN Ministerial Meeting in July
2008, the presence of ASEAN in Myanmar was extended
into 2009.
Chapter IV considers the way forward for ASEAN in
Myanmar, noting the challenges that lie ahead in the context
of the post-Nargis recovery effort. These challenges include
maintaining the momentum of international support; ensuring
transparency, accountability and effective communication
between ASEAN, the Government and the international
humanitarian community led by the UN; and refining TCG
coordination to better suit medium and long-term recovery.
This chapter is unequivocal on the role that ASEAN can play
in disaster response and recovery – the experiences and
lessons learned in Myanmar can inform ASEAN’s approach
to DRR and recovery in other ASEAN countries. ASEAN
is uniquely suited to tackling regional development issues
based on regional approaches and expertise.
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 3

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 4

Chapter I
Cyclone Nargis and the
Need for Action

“The leadership role of ASEAN, with the Government

of Myanmar and the UN, in the response to
the devastation brought by Cyclone Nargis on
2 and 3 May, has been critical to the effectiveness
of the relief effort. ASEAN has been instrumental in
facilitating a coordinated response to the needs of
the people most affected.”

Statement by John Holmes, Under-Secretary-General for

<<
Humanitarian Affairs and Emergency Relief Coordinator
at the Press Conference for the Release of the Post-
Nargis Joint Assessment Report, 21 July 2008.

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 5
On 2 and 3 May 2008, Cyclone Nargis swept in from the Bay
of Bengal and struck Myanmar’s Yangon and Ayeyarwady
Divisions, resulting in large-scale loss of life and destruction of
infrastructure, property and livelihoods. Approximately 140,000
people were killed or unaccounted for following the cyclone.
2.4 million people – one third of the population of Ayeyarwady
and Yangon Divisions – were affected by the cyclone in 37
townships covering an area of 23,500 square kilometres.
Cyclone Nargis is the 8th deadliest cyclone ever recorded and
by far the worst natural disaster in the history of Myanmar.
Cyclone Nargis had a significant, long-term impact on
people’s livelihoods and resulted in enormous physical
losses, including the destruction of homes and critical
infrastructure such as roads, jetties, electricity, water and
fuel supplies and sanitation systems. A large proportion
of water supplies were contaminated and food stocks
damaged or destroyed. This damage was most severe in
the Delta region, often referred to as the country’s rice bowl,
where the effects of extreme winds were compounded by
a 3-4 metre storm surge, which inundated broad areas of
the fertile land and submerged countless villages. Nargis
struck just as the Delta’s paddy farmers were at the very
last stage of harvesting the so-called “dry season” crop,
which accounts for 25 per cent of the annual production in
the affected areas, and destroyed several rice warehouses
and their stocks. The total damage and losses estimated
for the agricultural sector ranged from K570,000 million to
almost K700,000 million.1
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Overview of loss and damage resulting
from Cyclone Nargis, based on the PONJA:
□ Damage from the cyclone was estimated at USD
4 billion, with USD 1 billion needed for recovery
until 2012.
□ Total economic losses amounted to approximately
2.7 per cent of Myanmar’s projected GDP in 2008.
□ Affected households were extremely vulnerable –
55 per cent reported having only one day of food
stocks or less. Reliance on the steady flow of relief
supplies was widespread.
□ The scale of the impact was similar to that inflicted
on Indonesia following the Indian Ocean Tsunami
in 2004.
□ Over 90 per cent of needs were at the community
level and could be addressed through community-
based approaches.
With such immense human suffering, combined with the
severe social and economic toll on the affected families and
communities, immediate assistance to address the basic
humanitarian needs of the population was required. So too
was the initiation of an early recovery programme that could
make the transition into medium and long-term recovery
focused on the restoration of livelihoods, assets of the poor
and essential services.
The national response following Cyclone Nargis was
immediate but overwhelmed by the scale of the devastation.
Similarly, humanitarian assistance from international
agencies was available quickly but prepositioned stocks
1
The PONJA used an exchange rate of USD1 = K1100
7/14/09 1:39:09 AM
 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
were limited and soon exhausted. In this context, it was vital
that the international community be granted access to bring
in relief items for the cyclone-affected communities.
Acknowledging the unprecedented scale of the disaster,
ASEAN rose to the challenge and collaborated with the
Government to allow international relief workers to operate
in the country. The ASEAN Secretary-General approached
several key ministers in the Government, requesting that
ASEAN relief and rescue teams, which were on standby,
52-07-022_(i-vii),001-069_G.indd 6
6
be granted permission to enter Myanmar to assist in the
emergency response.
This approach was in line with the spirit and commitment
of the ASEAN Agreement on Disaster Management and
Emergency Response (AADMER). The Government agreed
to accept the immediate dispatch of medical teams from
all ASEAN member countries, providing the basis of what
would become a strong and effective working partnership in
the post-Nargis response.
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 7

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 8

Chapter II
The ASEAN-led
Coordination

“The extension given to the TCG reflects ASEAN’s

confidence that the mechanism is working efficiently
in facilitating distribution and utilisation of assistance
from the international community to support the
Government of the Union of Myanmar’s relief and
recovery efforts. It also shows the Government of
Myanmar’s trust in the TCG partners to continue
helping the cyclone-affected people. We thank the
ASEAN Leaders for acknowledging the TCG’s work
and their pledge to continue supporting Myanmar in
its recovery efforts.”

U Kyaw Thu, TCG Chairman and Chairman of the Civil

<<

Service Selection and Training Board of Myanmar.

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 9
2.1. Overview
Cyclone Nargis occurred on the eve of the ASEAN Charter,
a critical juncture in the region’s progressive integration.
The ASEAN response was an opportunity to begin
working towards the goals of the Charter, such as bringing
ASEAN closer to the people and enhancing the well-being
and livelihood of the peoples of ASEAN through close
cooperation with civil society, and national and international
humanitarian agencies.
The ASEAN Agreement on Disaster Management and
Emergency Response (AADMER) is the cornerstone of
ASEAN’s regional cooperation on disaster management.
52-07-022_(i-vii),001-069_G.indd 9
The Indian Ocean Earthquake and Tsunami in 2004 and
the Hyogo Framework for Action provided the momentum
to expedite the finalisation of AADMER.2 This agreement –
which several ASEAN states including Myanmar have ratified
– is a framework to develop regional cooperation in disaster
risk reduction, preparedness, response and recovery. As
such, it builds upon ASEAN’s experiences in disaster relief
and rescue operations, the International Disaster Response
Laws, Rules and Principles (IDRL) and the United Nations
International Strategy for Disaster Reduction (UNISDR).
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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
ASEAN’s response to Cyclone Nargis has been in line with
the spirit and purpose of AADMER, even though the 2005
agreement had not yet entered into force. ASEAN rose to the
challenge by activating the Standard Operating Procedure
for Regional Standby Arrangements and Coordination of
Joint Disaster Relief and Emergency Response Operations
(SASOP), which provided emergency assistance, situation
updates, around-the-clock monitoring, and recommendations
for action.
2.2. Key Events
Immediately after the cyclone, ASEAN provided emergency
assistance by coordinating the international response in
collaboration with the Government and UN agencies.
5 May 2008 Forty-eight hours after Cyclone Nargis
struck Myanmar, ASEAN member countries, under the
leadership of the Secretary-General of ASEAN, Dr. Surin
Pitsuwan, successfully extended relief assistance to the
victims of Cyclone Nargis. Singapore and the Philippines
dispatched experts to join the UN Disaster Assessment and
Coordination (UNDAC) team assembled in Bangkok. The
ASEAN Secretariat in Jakarta notified all relevant ASEAN
focal points to be on high alert and prepare the mobilisation
of emergency assistance.
The Secretary-General of ASEAN appealed to all ASEAN
Governments, the private sector, and civil society to help the
people of Myanmar. The ASEAN Secretary-General also
sought to mobilise resources to assist survivors and alleviate
suffering through funds from the ASEAN Cooperation Fund for
Disaster Assistance, an emergency humanitarian relief fund
created by the ASEAN Secretariat in Jakarta on 8 May 2008.
9-18 May 2008 A week after the cyclone, an ASEAN-
Emergency Rapid Assessment Team (ASEAN-ERAT),
2
The World Conference on Disaster Reduction was held in Kobe, Hyogo, Japan, 18 – 22 January 2005. The main outcome of the conference, the Hyogo Declaration
and Hyogo Framework for Action, represents a strong commitment from the international community to address disaster reduction and to engage in a determined,
results-based plan of action for the next decade: 2005-2015.
52-07-022_(i-vii),001-069 new 13_G.indd 10
10
coordinated by the ACDM, was dispatched to assess critical
needs in the aftermath of the cyclone. The team comprised
experts with specific knowledge in coordination, water
and sanitation, health, logistics and food. The ASEAN-
ERAT was deployed to complement the rapid assessment
efforts by the UNDAC team and those of the Government.
The ASEAN-ERAT recommended the establishment of a
“Humanitarian Coalition for the Victims of Cyclone Nargis”
to act as a coordinating platform for relief and recovery.
19 May 2008 At the Special Meeting of the ASEAN Foreign
Ministers in Singapore, the Ministers recognised the
outpouring of goodwill and the strong determination of the
international community to help the survivors of Cyclone
Nargis. Following the recommendation of the ASEAN-
ERAT, the ASEAN Foreign Ministers agreed to establish
an ASEAN-led coordinating mechanism to facilitate
the effective distribution and utilisation of incoming
international assistance, including the expeditious and
effective deployment of relief workers, especially health
and medical personnel.
To operationalise this approach, the Foreign Ministers set
up the ASEAN Humanitarian Task Force for the Victims of
Cyclone Nargis (AHTF), comprised of 20 high-level and
senior officials from ASEAN member countries, and chaired
by the Secretary-General of ASEAN, Dr. Surin Pitsuwan.
The AHTF provided policy decisions and set the priorities
and targets for the implementation of the initiative. In order
to assist the AHTF in providing relevant technical expertise
and inputs, an Advisory Group to the AHTF was established,
consisting of representatives from Myanmar’s neighbours
(i.e. China, India, and Bangladesh), the United Nations,
the Red Cross and Red Crescent Movement, the World
Bank, the Asian Development Bank and international non-
governmental organisations. At a later stage, the AHTF
also invited representatives from the donor countries to
participate in the Advisory Group.
7/14/09 2:13:11 AM
 11

The achievements of the AHTF working

through the TCG mechanism:

□ Facilitation of unimpeded access for humanitarian

workers. The TCG has granted over 3,000 visas in
the past year.

□ Comprehensive assessment of need, loss and

damage through the Post-Nargis Joint Assessment
(PONJA).

□ Monitoring to inform humanitarian assistance

strategies and programme change to benefit
affected communities through the Periodic Reviews
and Social Impacts Monitoring.

□ The Post-Nargis Recovery and Preparedness

Plan (PONREPP), which provides a framework
for medium and long-term recovery to promote
productive lives, healthy lives, and protected lives.

□ TCG-endorsed projects to assist in livelihoods

rehabilitation, infrastructure reconstruction and
disaster risk reduction with support from ASEAN
volunteers.

□ Strengthening humanitarian coordination at the

township level through ASEAN-UNOCHA hub
co-location and collaboration to ensure focused
assistance to the affected population.

□ Sustaining a coordinated effort as recovery enters

the medium to long-term stage based on the
guiding framework articulated in the PONREPP.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 12

25 May 2008 An ASEAN-UN International Pledging
Conference on Cyclone Nargis was held in Yangon,
attended by representatives from 51 countries. This
conference was a central event in building greater trust,
confidence and cooperation between the Government
and the international community. There was unanimous
agreement on the urgent need to increase the scale of
existing relief efforts significantly in order to ensure that all
those in desperate need would be reached quickly and with
adequate life-saving relief supplies. Furthermore, it was
agreed that an effective flow of supplies be maintained for
as long as necessary through the establishment of suitable
logistical arrangements and an acceleration of the arrival
and distribution of vital relief goods. To manage day-to-day
operations, the AHTF set up a Yangon-based Tripartite
Core Group (TCG) comprised of nine representatives from
the Government, ASEAN, and the United Nations, as a
body for coordinating, facilitating and monitoring the flow
of international assistance to Myanmar.
To support the TCG, the Secretary-General of ASEAN, as
Chairman of the AHTF, established a Coordinating Office
in Yangon to work closely with representatives from the
Government and UN under the TCG, and provide secretariat
support for the AHTF.

The ASEAN-led Coordinating Mechanism

Myanmar Central ASEAN Humanitarian Task Force for Advisory Group

Coordinating Board the Victims of Cyclone Nargis (AHTF) (UN and invited
(CCB) international
(Chaired by the Secretary-General of organisations and
ASEAN) countries)

Tripartite Core Group (TCG)

Chaired by Myanmar

Representatives of the Government

of Myanmar
Representatives of ASEAN
Representatives of the UN

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 13

31 May 2008 At the first meeting of the TCG held in Yangon,

the TCG decided to conduct a Post-Nargis Joint Assessment
(PONJA) to determine the full scale of the impact of Cyclone
Nargis and requirements for both immediate humanitarian
assistance needs and medium to long-term recovery.

2 June 2008 The PONJA team entered Yangon and

Ayeyarwady Divisions, facilitated by 10 commercial
helicopters contracted by the World Food Programme. The
helicopters played a key role in the deployment of the teams
from 11 to 20 June 2008.

10–19 June 2008 The PONJA was conducted by 250

enumerators who visited 291 villages across 30 townships.

23 June 2008 A workshop was held in Yangon to elicit

feedback from national and international medical missions
on post-Nargis relief and early recovery. The workshop
sought recommendations for future collaboration and
considered future protocols for disaster management and
response for medical and public health.

24 June 2008 The AHTF convened the “ASEAN Roundtable

for Post-Nargis Joint Assessment for Response, Recovery
and Rehabilitation” in Yangon, to serve as part of ASEAN’s
efforts to help Myanmar deal with Cyclone Nargis. The
Roundtable brought disaster recovery management experts
from countries with similar experiences, such as Indonesia,
Thailand, Bangladesh and Pakistan.

21 July 2008 The PONJA report was finalised for launch at

the meeting of the ASEAN Foreign Ministers in Singapore
on 21 July 2008. The report was released concurrently
in Yangon. In addition, ASEAN’s mandate to continue its
role coordinating relief and early recovery in Myanmar was
extended for a further 12 months.

26 November 2008 A TCG Roundtable was organised,

at which the TCG was recognised as being instrumental
to the post-Nargis relief effort, providing a new way for
the international humanitarian community to work in a

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 14

post-disaster context. It was recommended that the TCG

mechanism be extended and expanded.

17 January 2009 The Fifth Meeting of the AHTF was

convened to review the progress of the relief and recovery
work in Nargis-affected areas. At the same time, AHTF
members discussed recommendations for the ASEAN-led
mechanism, including the proposed extension of the TCG
beyond July 2009.

9 February 2009 The TCG launched the Post-Nargis

Recovery and Preparedness Plan (PONREPP), which
complements the Government’s reconstruction plan
and seeks to provide a platform for the transition from
emergency relief and early recovery towards medium-term
recovery.

27 February 2009 During the 14th annual ASEAN Summit

at Cha-am, Thailand, the ASEAN Foreign Ministers agreed
to extend the mandate of the AHTF and the TCG until July
2010. The ASEAN Secretary-General was made the ASEAN
Humanitarian Assistance Coordinator, a role that may be
activated at the request of an affected ASEAN member
country in the event of a major disaster. The extension of
the TCG up to July 2010 served as the platform for the TCG
to further develop the existing coordination and funding
mechanisms defined in the PONREPP.

ASEAN reiterated its commitment to working closely with

other components of the TCG to continue community
monitoring through the second Periodic Review and Social
Impacts Monitoring and to facilitate the implementation of
the three-year PONREPP, which aims to restore productive,
healthy, and protected lives for Cyclone Nargis survivors.

2 July 2009 The Sixth Meeting of the AHTF was convened

in Jakarta and recommended the continuation of the
TCG’s coordination role in the Delta, with an emphasis
on strengthening coordination between the Government’s
national development strategy and the existing recovery
strategy articulated in the PONREPP.

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 15

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 16

Chapter III
Rising to the Challenge:
ASEAN Engagement
Post-Nargis

“In its response to the devastation caused by Cyclone

Nargis, ASEAN as an organisation took a bold step
by proactively assuming a leadership role, both in
convincing the Myanmar government to cooperate
with the international community and in managing
the response itself. In so doing, it has helped to open
up an unprecedented level of humanitarian space.
ASEAN’s approach to the post-Nargis response may
well offer a model for other regional organisations.”

Yves-Kim Creac’h and Lilianne Fan, 2008, ‘ASEAN’s Role<<

in Cyclone Nargis Response: Implications, Lessons and
Opportunities’, Humanitarian Exchange, no. 41, December 2008.

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 17

3.1. Assessment, Planning and Monitoring

The TCG has been widely praised for its success in facilitating focusing on the most vulnerable groups; and iv) aiming to
humanitarian assistance to cyclone-affected populations. strengthen communities sustainably.

The Post-Nargis Joint Assessment (PONJA) defined The recovery effort is now moving into the medium and long-
four principals to guide relief and recovery activities: term phases. It is worthwhile reflecting on the achievements,
i) effectiveness, transparency and accountability; ii) opportunities and challenges to date so that future policy
independence, self-sufficiency and capacity building; iii) and action may be better informed.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 18

3.1.1. ASEAN-Emergency Rapid Assessment Team (ASEAN-ERAT)

On 5 May 2008, within 48 hours of Cyclone Nargis striking the Victims of Cyclone Nargis” to coordinate and facilitate the
Myanmar, the Secretary-General of ASEAN, Dr. Surin on-going relief, recovery and future reconstruction efforts.
Pitsuwan, called on ASEAN member countries to provide
relief assistance to the survivors. ASEAN already had an
established record of cooperation and a joint commitment
to disaster management as articulated in the AADMER,
which is a key institutional framework on disaster
management in the region. Member countries, in close
partnership with the UN and donors, mobilised in a short
time to provide essential support to the Government and
help bring assistance.

Under the AADMER, the ACDM organised, brought together

and deployed the ASEAN-Emergency Rapid Assessment
Team (ASEAN-ERAT) for the first time with representatives
from Brunei Darussalam, Malaysia, Philippines, Singapore
and the ASEAN Secretariat. In addition, three members of
the UNDAC team from Malaysia, Philippines and Singapore
served as resource persons.

The ASEAN-ERAT mission gathered and analysed

assessment findings, and through consultation with senior
government officials, provided recommendations on support
for the Government. The ASEAN-ERAT, consisting of
experts in humanitarian coordination, water and sanitation,
health, logistics and food, together with a representative
from the ASEAN Secretariat, worked over 10 days from 9
May until 18 May 2008. The ASEAN-ERAT complemented
the on-going rapid assessment efforts of the United Nations
Disaster Assessment and Coordination (UNDAC) team and
the Government.

Following the ERAT assessment, the teams from the ASEAN

member countries were deployed to Myanmar to provide
targeted assistance. These teams increased the capacity of
the Government to implement effective aid distribution to the
affected population. One of the ERAT’s recommendations
was to immediately establish a “Humanitarian Coalition for

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 19

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 20

Key findings of the ASEAN-ERAT report

Presented to the Special Meeting of the
ASEAN Foreign Ministers in Singapore on 19 May 2008.

□ Access: The overarching concern for the international
community, including other ASEAN member
countries, was access to the affected areas. The
possibility existed that a second wave of deaths due
to disease and nutritional deficiency might take place
if relief was not effectively negotiated between the
international community and the Government.
□ Logistics: The Government allowed international
flights carrying aid into Myanmar. However, maintaining
an efficient logistics pipeline in the affected areas,
particularly the Ayeyarwady Delta where access by
road is limited, was difficult and required specialised
equipment and personnel to be effective.
□ Shelters: Providing shelter and resettlement for the
affected population was one of the many priorities
as many people were living in cramped tents and
temporary shelters with inadequate sanitation
facilities. The onset of heavy monsoon rains in
the following weeks compounded the problems of
overcrowding, poor hygiene and the potential spread
of disease.
□ Health: There were reports of diarrhoea in the
affected population. Stagnant water, a result of the
flooding, increased the risks of malaria and dengue
haemorrhagic fever. There was a need for on-going,
continuous health surveillance and vigilance. There
were reports that many of the survivors in the remote
areas of the delta did not have adequate access
to health care. WHO estimated that at least 60 per
cent of health infrastructure in the delta was either
destroyed or damaged.
□ Food Security: As the monsoon season intensified,
there was a critical need to plant rice in the
Ayeyarwady Delta. The Ministry of Agriculture
undertook a thorough evaluation and determined
that replanting would have to be carried out as soon
as possible if there was to be a harvest. In order to
do this, rapid mobilisation of funds, equipment and
saline resistant seeds, together with the resettlement
of farmers, would help ensure that there would be a
harvest. Failure to do so would compromise future
food security, thereby resulting in the need for food
aid.

□ Water: The provision of clean drinking water was
paramount. Reports suggested that large numbers of
people did not have access to clean drinking water
and adequate sanitation. Water purification systems
had to be made available to temporary settlements
urgently. The need for high volume water purification
systems was similarly pressing, as was the need
for expertise in setting the systems up and training
national staff to manage and maintain them.
□ Education: The return of children to school was vital
to their psychological recovery from the disaster.
Data from the Ministry of Education revealed that
75 per cent of schools were destroyed or damaged
in the affected areas. The strategic plan of the
Education Working Group in Myanmar highlighted
that temporary schools should be established
immediately before long-term construction could
begin.

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 21

3.1.2. The Post-Nargis Joint

Assessment (PONJA)
At the ASEAN-UN International Pledging Conference that
took place in Yangon on 25 May 2008, donors demanded
both full and unfettered access to the affected areas for relief
workers, and an objective and credible needs assessment
to determine the scale of the impact of the cyclone
and the requirements for both immediate humanitarian
assistance needs and medium to long-term recovery. This
became the responsibility of the TCG, which responded by
commissioning the Post-Nargis Joint Assessment (PONJA)
on 31 May 2008.

The PONJA was designed as a comprehensive assessment
that would provide baseline data for the formulation of
humanitarian and recovery programmes during early
recovery, but would also be useful in medium and long-term
recovery and disaster risk management. It aimed to assess
the existing vulnerabilities and needs of the population
living in the most affected areas, the damage to assets in all
Nargis-affected areas, and the loss of income in the affected
households and the Myanmar economy until assets and
livelihoods could be restored to pre-cyclone levels.

Specifically, the assessment identified relief and early

recovery priorities for intervention in the immediate
aftermath. Information was gathered across a range of
sectors or “clusters” from a range of communities across
the affected areas.

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 23

Methodology
The definition of “cyclone-affected” used to select the
townships was based on the loss of life and/or property that
had an impact on an individual’s, family’s or community’s
livelihood, without any consideration for their ability to
cope with the damage or loss. The PONJA relied on two
approaches to gather data for its analysis: the Village Tract
Assessment (VTA), a survey of households, key informants
and focus groups in the worst affected townships; and the
Damage and Loss Assessment (DALA), a survey to assess
the impact of Cyclone Nargis on physical assets and the
effect on the economy arising from the loss of such assets.
The 30 townships assessed by the VTA were distinct from
the 57 townships included in the DALA, in that the townships
selected for the VTA had populations requiring humanitarian
assistance that were identified in previous assessments.

The assessment tool used in the PONJA combined key

questionnaires from nine clusters: Health, Food and
Nutrition, the Protection of Women and Children, Water
and Sanitation, Agriculture, Early Recovery, Temporary
Settlements, Education and Emergency Shelters. The
questionnaires were developed through the cluster system
and evaluated in a pilot survey. Two hundred and fifty
enumerators were trained and visited 291 villages across
30 townships over 10 days in early June 2008 to implement
the VTA assessment.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 24

Challenges
Although the PONJA was lauded as one of the TCG’s major
achievements, being a reflection of close partnership,
several challenges emerged throughout the process.
These included policy issues such as the lack of standby
technical capacity to support the conception, planning and
implementation of assessments, while attempts to create
assessment instruments at the global level have tended to
be too complex and drawn out, with far too much expected
from a broad-based assessment tool. Keeping tasks simple
and realistic is essential to completing a workable, timely
assessment, and providing an analysis that is useful for
making appeals and decisions on programme and funding
in a timely manner.

Key findings of the PONJA report

The preliminary findings of the PONJA were presented at an ASEAN Roundtable in Yangon on 24 June
2008 and provided the basis for a revised Flash Appeal, which was launched in New York on 10 July and
requested USD 303.6 million. On 21 July 2008, the occasion of the 41st ASEAN Ministerial Meeting in
Singapore, ASEAN and the UN jointly launched the final PONJA report.

□ More than half of the households living in the most
affected townships lost all food stocks during the
cyclone, with 55 per cent of households having one
day of food stocks or less.
□ While more than half of households reported that
they were able to secure food from local markets, this
did not preclude their dependence on humanitarian
assistance.
□ More than 65 per cent of households surveyed
reported health problems among household
members during early June 2008. Among the most
commonly reported diseases were cold, fever and
diarrhoea. Injuries sustained during the cyclone
were surprisingly low at 8 per cent, although 23
per cent of households reported mental problems
following the cyclone, with large variation across
townships from 6 to 51 per cent.
□ An estimated 50 to 60 per cent of public schools,
including monastic schools, were destroyed or
damaged. In addition to the many casualties and
mental trauma suffered by children, the use of
schools as emergency sites further strained limited
educational resources. Food security and the risk
of acute malnourishment were therefore of high
concern.
□ Vulnerable groups in the aftermath of the cyclone
faced severe challenges. Problems included: i) the
loss of documentation and essential papers, making
it difficult for people to secure assistance and restart
their livelihoods; ii) an inflow of predominantly male
migrant workers into the Delta, which exacerbated a
gender imbalance created by the cyclone and further
increased vulnerabilities for women, and; iii) potential
pressure to engage in high-risk occupations in search
of income.

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 25

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 26

3.1.3. Periodic Review I

Following the PONJA, the TCG commissioned a series of selected and 22 households chosen within each of the
interim assessments, or “Periodic Reviews”, to gauge change communities for assessment. In total, 2,376 households
in the cyclone-affected population over 12 months. Each were assessed.
Periodic Review seeks to inform humanitarian assistance
strategies by providing relevant data on the situation and
needs of the affected people. The comprehensive geographic
and multi-sector coverage of the Periodic Review pioneers
a new approach to post-disaster needs assessment and
monitoring. The Periodic Reviews are meant to provide
objective, credible data that can serve as a measure of
the degree to which humanitarian relief and early recovery
efforts have succeeded in meeting the needs of people
living in the Nargis-affected areas. The first Periodic Review
was undertaken in November 2008 and the second in June
2009. Each Periodic Review covers the same geographical
area as the PONJA, in 30 townships. Periodic Review I
used the VTA as its baseline for comparison.

Methodology

The first round of the Review improved on the methodology

of the VTA in two important ways. First, the question
and sampling method were adapted so that wherever
possible a comparison could be made with the VTA.
Second, a qualitative “plug-in” assessment was included
that was designed to collect more detailed information
about vulnerable populations in cyclone-affected areas,
with the quantitative survey being used to direct follow-up
intervention.

In common with the VTA, the sampling area covered the

areas worst affected by the cyclone and was divided into
equal non-overlapping areas using a hexagonal lattice and
a spatial distribution approach. The community nearest to
the centre of the hexagon was selected using post-Nargis
satellite imagery. Using this method, 113 communities were

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 27
Challenges
The first Periodic Review assessed the humanitarian
relief and early recovery efforts in Nargis-affected areas.
It complemented the PONJA and provided data nearly six
months after the cyclone. The implementation of Periodic
Review I at the hub level was facilitated by the ASEAN
Hub Coordinators based in four locations: Yangon, Pyapon,
Bogale and Labutta.
The Periodic Review teams faced several challenges
in implementing the assessment, including difficulties
with logistics, timeframes, reviewing the questionnaires,
translation, and the participation of, and consultation with,
multiple partners.
Key findings of Periodic Review I
□ The areas covered by the survey were affected to
varying degrees and the situation of the surveyed
communities prior to Cyclone Nargis was not
homogeneous. It was therefore not possible to
attribute the results exclusively to the cyclone.
□ Indicators for the health sector revealed good
results for access to health care and outreach into
communities. However, the findings raised concerns
about the functioning of the health system.
□ Food aid had reached every surveyed community
along the path of the cyclone. However, food
insecurity persisted in the South-West and around
Yangon. This may reflect chronic problems, in
addition to the impact of Cyclone Nargis.
□ High proportions of households remained in
inadequate shelters that were often overcrowded and
offer little protection from the elements.
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A consultation on the next Periodic Review was convened
in Yangon on 11 February 2009 to solicit feedback from the
Periodic Review I survey teams so that future assessments
could be improved. These teams suggested several
improvements to the questionnaire covering terminology,
scope and design, while also pointing out the value
of reviewing, updating and providing greater technical
explanations on a number of the indicators. They further
highlighted the need to develop greater interpersonal skills
and improve the depth of the analysis and presentation of
the data for the Periodic Review II.
□ Across the survey area, the majority of households
were using an improved (safe) water source or
treating their water effectively, with the exception of a
small area south of Yangon.
□ With the end of the monsoon season, households
were using less rainwater and more surface water.
Increased dependence on surface water and the
salination of ponds caused by the storm surge could
result in water shortages during the dry season.
□ Livelihoods were disrupted across the affected area.
Recovery will take several years due to the nature of
the losses suffered and the breadth of need.
□ The breadth of geographic coverage was not
sufficient to meet all needs. The persistence of need,
even in areas that received substantial aid, meant that
the breadth of that assistance was not yet sufficient and
greater efforts were required for needs to be met.
7/14/09 1:53:09 AM
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 29

3.1.4. Social Impacts Monitoring (SIM)

In addition to the Periodic Review, which represents a
process and programme to monitor results primarily using
quantitative survey methods, the TCG also approved
a community monitoring assessment, known as the
Social Impacts Monitoring (SIM). The SIM constitutes a
complementary, qualitative monitoring of the social impacts
of Cyclone Nargis and the aid effort.

Methodology
In-depth qualitative fieldwork was conducted with over 1,500
people in 40 villages in eight townships in the Delta between
late October and late November 2008. The research was
conducted in three rounds: a pre-test in eight villages,
where the methodology was refined, and then two rounds
of 16 villages each. Villages were selected using a number
of criteria aimed at getting as accurate a representation of
villages in the Delta as possible. In each village, researchers
interviewed a wide range of people. Overall, the research
teams conducted 222 formal “key informant” interviews,
159 “focus group discussions”, with an average of seven to
eight people each, and 102 informal discussions.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
Key findings of the SIM report
□ Similar to the Periodic Review I, the SIM found that
relief and recovery assistance had reached even the
most remote villages. All affected villages sampled
had received assistance within two to four weeks.
□ Levels of aid varied between and within villages. migration out of Delta villages and the destruction of
Although there was a correlation between the level
of aid received and the level of damage and loss,
villages far from urban areas generally received less aid.
□ The types of aid most frequently received were food,
household goods, shelter and farming supplies. A link
was found between the amount of aid received and
the speed of recovery. However, the level of damage
and loss was a large determinant of recovery.
□ As time has passed, needs have changed. According
to villagers, the most important need was to re-
establish their livelihoods and food security, which is
in line with the findings of the Periodic Review I.
□ The most recurrent theme across all the affected
villages studied was an increased burden of debt.
Possible reasons for this include the continued
depression of local economies, increased migration
out of villages and the Delta, farmers and fishermen
losing their land use or fishing rights, and the
redistribution of assets to the few.
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30
□ Although relief assistance reached all villages, much
more assistance was needed for communities
to recover. If people’s livelihoods and the village
economies do not recover quickly, there are
likely to be profound long-term impacts, such as
communities.
□ The participation of the villagers in cyclone-affected
communities in aid management has been limited,
leading to a mismatch between provided aid and
local needs.
□ The depth of geographic coverage was not sufficient
to meet all needs. The persistence of need, even
in areas that received substantial aid, means that
the depth of that assistance is not yet sufficient and
greater efforts are required if needs are to be met.
□ The SIM underscored the need for future aid to be
delivered in ways that build on local strengths, that
give communities real decision-making power in how
that aid is delivered and used, that include effective
information and complaints-resolution processes, and
that enable communities to advocate for their own
needs with aid providers.
7/14/09 2:30:44 AM
 31
3.1.5. The Post-Nargis Recovery & Preparedness Plan (PONREPP)
As immediate humanitarian needs were increasingly met
and early recovery was underway, the focus gradually shifted
towards the medium-term recovery and the re-building of
lives and livelihoods in a sustainable manner. The PONREPP
was a response to this progression, providing a framework
for the international community to consolidate their progress
and promote durable recovery in the affected areas in ways
that complement the Government’s reconstruction plan. The
PONREPP outlines a three-year recovery plan from 2009
through 2011, taking a community-based, people-centred
approach to promote productive, healthy, and protected lives
while also strengthening aid coordination, management, and
tracking to promote maximum aid effectiveness. The report
was officially launched on 9 February 2009 in Bangkok.
The PONREPP considers the communities of the Delta both
as beneficiaries of assistance and as key implementers at
the centre of the recovery process. Hence the basic criteria
for assessing and improving assistance processes and
systems are: (i) the difference that target beneficiaries see
in terms of amount, suitability, effectiveness, and timeliness
of assistance, and (ii) greater cost efficiency.
The scale of the destruction from Nargis has accentuated
the need for continued commitment to support sustainable
recovery from all stakeholders. The TCG High-Level
Roundtable on Post-Nargis Relief and Recovery Efforts
in Myanmar held in Yangon in November 2008 noted that
a realistic timeframe for recovery, based on experiences
after disasters of a similar scale, including the 2004 Indian
Ocean Tsunami, would be four to five years. In this context,
a subject under discussion was how to ensure the future
coordination of recovery efforts during a period which
includes the PONREPP’s own three-year timeframe.
A number of coordination mechanisms currently exist at
various levels. Field coordination was facilitated by UNOCHA
3
UNOCHA established six sub-offices in the following locations: Bogale, Labutta (covering Labutta and Myaungmya), Mawlamyinegyun (covering Mawlamyinegyun
and Wakema), Pathein (covering Pathein and Ngapudaw), Pyapon (covering Pyapon, Kyaiklat and Maubin) and Yangon (covering affected townships in Yangon
Division and Dedaye).
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and ASEAN in six hub locations, with participation of NGOs
and the respective Township Coordination Committees
(TCCs), which are government bodies established to
coordinate the humanitarian response at the township level
across the affected area. From 1 July 2009 the hubs were
consolidated into TCG Recovery Hub Offices (RHO) in four
key locations.3
“ The PONREPP provides us with a framework for
the medium and long-term post-Nargis recovery effort,
including the priorities of supporting food security and
livelihood recovery, improving public health, restoring
economic and social infrastructure, and integrating
disaster risk reduction into the recovery process.”
Dr. Noeleen Heyzer, UN Under-Secretary-General and
<<
Executive Secretary of the Economic and Social Commission
for Asia and the Pacific (UNESCAP).
While the relief and early recovery activities have much to
inform the long-term recovery phase, major issues facing
those efforts as addressed in the PONREPP are:
□ Defining what an enhanced coordination architecture
should be, including increased government presence.
□ How to improve accountability, taking into consideration
the lessons learned from the relief efforts to date, and
how to create the best processes and capture the best
expertise available for the recovery phase.
□ How to move to a more streamlined and cost-effective
coordination and oversight mechanism as quickly as
possible, which includes achieving delivery efficiency.
□ How to mobilise new resources while limiting the
number of funding channels.
7/14/09 3:34:46 AM
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 33
Proposed Structure
The PONREPP has adopted a holistic approach to enhancing
the recovery effort. To ensure the effective coordination
and implementation of recovery efforts, it suggests the
TCG consolidate its key roles in two ways: i) strategic and
operational coordination; and ii) aid funding coordination
and aid tracking.
The proposed architecture includes a Recovery Forum
(RF) as a deliberative body with wide stakeholder
membership, meeting every two or three months to make
recommendations concerning post-Nargis recovery.
A Recovery Coordination Centre (RCC) will serve both
the RF and the TCG as a technical unit for information,
data collection, and analysis, thus streamlining current
arrangements in these areas and adding further expertise.
The RCC will be in close contact with the Recovery Hub
Office (RHO) in the field, building on the hub structure
developed during the emergency response in order to
strengthen two-way information flows. The recovery field
hubs will give technical support to the TCCs to strengthen
existing coordination structures in the recovery phase
at both the township and village level, while recognising,
encouraging and learning from community level decision-
making and implementation.
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Following the launch of the PONREPP and the TCG’s
endorsement of its Operational Handbook in April 2009, a
Transition Team, comprising members from the Government,
ASEAN, UN, and NGOs was set up to manage and guide the
implementation of various tasks during the transition phase.
The Transition Team undertook a number of activities, laying
the foundation for activating the RCC and helping shape
the various forums within it. A number of consultations have
been held with all the clusters in Yangon, with additional field
consultations in the hubs, and special sessions organised
to explain the PONREPP architecture. Notably, a workshop
was held on 21 May 2009 to share the PONREPP with
various Government agencies, where participants explored
ways to promote synergy between the PONREPP and the
recovery plan of the Government, and ways to build greater
transparency and accountability into the implementation of
these plans both in Yangon and the townships.
A seamless transition is now taking place in the townships,
with the twin-hub system implemented by UNOCHA and
ASEAN merging into a unified system that will assume and
augment existing hubs and their resources under the sole
leadership of the RCC, with administrative assistance from
ASEAN and UNOCHA. In the meantime, a consolidated
budget using extant resources has been prepared to start
the implementation.
7/14/09 3:32:30 AM
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 35

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 36

Towards Better Engagement

and Coordination
ASEAN has been fully engaged in post-Nargis operations,
beginning with the emergency phase, into the early recovery
phase, and now towards medium and long-term recovery.
Looking back at its activities to date, ASEAN has contributed
to several important milestones, including the deployment
of the ASEAN-ERAT; providing leadership, structure and
legitimacy to the Nargis response; organising community
monitoring assessments such as the PONJA, Periodic
Reviews and Social Impacts Monitoring; and engaging in,
and contributing to, the development of the PONREPP.

ASEAN’s experience in the post-Nargis relief and early

recovery efforts clearly indicates that with committed
partners working together under a suitable body – in this
case the TCG – significant achievements can be made,
despite the challenging and complex nature of the tasks.
Furthermore, strong working partnerships at all levels can
provide greater coordination and increase the effectiveness
of the implementation of relief.

As recovery has moved towards the medium and long-

term phase, ASEAN’s role as a neutral party has remained
central to facilitating policy dialogues among stakeholders
in critical areas such as education, food security, DRR,
disaster preparedness and shelter. ASEAN will continue
to play a role under the political umbrella it has created.
The TCG has provided a bridge for better coordination
and understanding between the Government and the
international humanitarian community. Existing regional
organisations and arrangements should be used to build
regional capacity in disaster management and humanitarian
assistance.

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 37

3.2. ASEAN Volunteers – A

People-Centred Approach
In addition to its role in the TCG, Cyclone Nargis presented
an opportunity for ASEAN to enact its commitment to a
people-centred approach through its ASEAN Volunteers
Programme. Provision for this approach is enshrined in the
ASEAN Charter, which states that the organisation seeks
“to promote a people-oriented ASEAN in which all sectors
of society are encouraged to participate in, and benefit from,
the process of ASEAN integration and community building”,
as well as the ASEAN Socio-Cultural Community Blueprint
for the years 2009 – 2015. The mobilisation of ASEAN
volunteers in Myanmar following Cyclone Nargis marks the
first deployment of the programme since the ratification of
the two documents.

The ASEAN Volunteers Programme can be used to assist

in building disaster-resilient and safer communities, in
addition to promoting ASEAN-wide unity. To this end,
ASEAN established three Community-Based Early
Recovery (CBER) projects in Myanmar, the first of which
was established in August 2008 and drew volunteers from
Thailand and Myanmar.4 To date, the CBER projects have
mobilised 18 ASEAN volunteers from five ASEAN countries,
including Cambodia, Malaysia, Myanmar, Thailand and the
Philippines.

In each project, ASEAN volunteers – deliberately chosen

from mixed, professional backgrounds – work in teams
of six, comprising three from Myanmar and three from
other ASEAN member countries. The TCG-endorsed
projects seek to address the early recovery needs of the
communities involved. The ASEAN volunteers work closely
with the ASEAN coordination team at the hub level to provide
information from the field, assist in the development of
project proposals, and are responsible for initiating dialogue
between local authorities and communities.

4
The projects were funded by the ASEAN Cooperation Fund and Norwegian Fund.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 38

Partnerships with other development and humanitarian

organisations are part of ASEAN’s approach towards project
implementation. For example, a TCG-endorsed project
covering five villages in Hayman Village Tract, Bogale
Township, was implemented by Mingalar Myanmar, a local
NGO specialising in disaster risk reduction. Supported by
ASEAN Volunteers, the on-going project promotes the
plantation of mangroves, provides livelihoods and builds
infrastructure. Started in January 2009, the project will be
completed by August 2009.

In Pyapon, a TCG-endorsed project covering six villages in

Tha Leik Gyi Village Tract was implemented in cooperation
with International Development Enterprise – Myanmar or
“IDE/M”. The project addressed the immediate needs of
small-plot farms and landless households – identified as
particularly vulnerable – through the provision of agricultural
inputs and the reconstruction of community infrastructure,
such as schools, monasteries and public markets.

“ After Nargis I was struggling because I

didn’t have another job or source of income to
support my family. Now I’ve received a boat and
fishing nets from ASEAN so I can maintain an
income. I’m grateful to ASEAN for giving me the
opportunity to have a boat and nets. I’m now
planning to save money to buy land to build my
own house because at the moment we’re living
with my aunty. ”

U Aung Mo, 30, Seik Gyi Village

<<

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 39

3.2.1. Achievements
The objectives, achievements and details of the three
TCG-endorsed CBER projects are summarised in the
following table.

ASEAN Volunteers Project 1 ASEAN Volunteers Project 2 ASEAN Volunteers Project 3

Title TCG Pilot Project, Seik Gyi Village Commu- TCG Pilot Project, Tha Leik Gyi Village Tract: TCG Pilot Project, Hayman Village Tract
nity-Based Early Recovery Project Rebuilding Small Farm Livelihoods during the Dry Community-Based Disaster Risk Management
Season
Location Seik Gyi, Myat Lay Yone, Naung Wine and Tha Leik Kalay, Mae Nyo, Tha Leik Chaung, Tha Tha Htay Gone, Kyone Lout Thit, Kyone Lout Gyi,
Kyun Chaung villages. Tawkhayan West vil- Leik Myaung and Poe Swar villages. Tha Leik Gyi Nga Man Chaung and Pa Tat/ Kan Su villages.
lage tract, Kungyangon Township village tract, Pyapone Township Hay Man village tract, Bogale Township
Period August – November 2008 December 2008 – April 2009 Phrase I: January – May 2009
Phrase II: June – August 2009
Partner - IDE, Myanmar (INGO) Mingalar Myanmar (national NGO)
Status Completed Completed Phase I – Completed. Phase II – On-going
Budget USD 138,725 (actual) USD 193,731 (budgeted) USD 199,040 (budgeted)
Size of 1,318 people, 288 households, 325 families 3,650 people, 995 households 1,899 people, 438 households
Community
Objectives □ Rehabilitate livelihoods and reconstruct □ Improve household food security and reduce □ Develop a DRM action plan and raise
micro infrastructure in the community. dependency on food aid. awareness.
□ Set up a pilot project to share knowledge □ Provide rural households with significant. □ Facilitate village community discussions on
and experience at the villages, township, income gains. improving community assets.
divisional and TCG levels. □ Rehabilitate employment opportunities for □ Plant mangroves.
landless households. □ Provide livelihood support packages to 65 per
□ Improve agricultural production. cent of the village community, and provide
wage employment in building village self-help
infrastructure with community engagement.
Approach “Build Back Better” utilising a community- A community-led approach with community par- A community-based early recovery approach to
based early recovery approach. ticipation and feedback through periodic need identify needs. Provision of DRM training and
assessment and progress monitoring surveys expert assistance in mangrove plantation.
with closer collaboration with ASEAN hub team.
Targeted □ Provision of 1,000 saplings/household □ 300 farm households provided access to power □ Community awareness on DRM mangrove
Results (at the rate of 100Ks per sapling) to 159 tillers, diesel, fertilizer and paddy treadle pumps. plantation for shore protection.
household families). □ For an average household creating a surplus □ Seedling Community leaders and Community
□ Fishermen can earn up to USD 170 per of 140 baskets of rice, worth K4000 Kyat (USD Based Organisations.
month during the peak season, accord- 3.40) per basket, average household income □ Initial DRM action plan and mangrove planting
ing to their skill and the market. generated from dry season paddy production
plan produced in each community.
□ Infrastructure improvement.
can total USD 476 or an estimated total income
□ Improvement of community infrastructure and
of USD 142,800 for the 300 households.
distribution of livelihood items.
□ Average household income generated from
vegetable production can total USD 200 or an
estimated total income of USD 10,000 for the
50 vegetable-growing households.
□ Infrastructure improvement.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 40

ASEAN Volunteers Project 1 ASEAN Volunteers Project 2 ASEAN Volunteers Project 3

Input ASEAN volunteers, cash funds, betel seeds, ASEAN volunteers, cash funds, seeds, power ASEAN volunteers, cash funds, mangrove seeds,
fertilizers, chemicals, fishing boats, fishing tillers, fertilizers, irrigation pumps, construction trainers, livelihood items, cash grants, fishing boats
gear, construction tools and materials. tools and materials. and gear, construction tools and materials.
Evaluation □ ASEAN volunteers conducted field □ Survey interviews to gather information from □ Project monitoring, measurement and statistical
and resource monitoring, and tracked villagers. methods used. Project analysis and reporting.
finances and quality of output. Regular □ Suggestion box and survey questionnaires
observation of each project was made developed by IDE.
to evaluate progress and improve
processes.
□ Avoidance of overlap in the distribution
of livelihood items through use of a
community map.
□ Likert scale questionnaire and group
discussion used in evaluation meetings.
Evaluation □ Break-even point at 4.5 months. Monthly □ 1,100 acres of paddy prepared. Provision of □ DRM action plan produced during a 2-day
Outputs/ income up to 200 USD per household. 11 hand power tillers and 255 gallons of community-based DRM awareness workshop.
Outcomes
□ 34 fishing boats with drift nets for Seik diesel. Further 4-day awareness workshops conducted
Gyi village and an additional 29 fishing □ Distribution of 1,152 bags of fertilizer to 472 in all villages. 500 villagers trained.
boats and 31 drift nets for Mayt Lay Yon rice paddy farmers covering 944 acres of □ 436 households received livelihoods supports
village. paddy. Estimated 103,840 baskets (2,160 in the form of animals, sewing machines,
□ Monastery hall rebuilt as cyclone metric tons) of rice paddy worth approximately small scale trading assistance, gardening
shelter. Monastery walkway entrance USD 224,672 of income for the whole village and farming, fishing boats and gear, artisanal
and stupa hall also reconstructed. tract or 476 USD per household. tools.
Renovation of Ordination Hall. □ Provision of vegetable seed packets to 170 □ Seven bridges, three jetties, five water ponds,
□ Three toilets built and two MSP drinking vegetable growers. Potential income generation four village roads, gas fires, electricity and
water tanks installed within the monastery of approximately 200 USD per household in telephone lines and community centres built or
compound in Seik Gyi village and three the village tract. improved through the use of local labour. One
toilets built in Kyun Chaung village. □ Construction/renovation of small-scale infra- dam improvement.
□ 33 wells renovated and two reservoir structure, including improved roads in Tha Leik □ Approximately 64,000 mangrove plants
tanks installed. Gyi, Tha Leik Kalay and Mae Nyo, ii) repaired planted and a support plan created. Mangrove
footbridges in Tha Leik Chaung, Tha Leik Too plantation and preservation with community
□ Betel leaf lessons learned document. Myaung and Poe Swa and iii) improved farm- engagement.
□ DRM workshops, an initial preparedness to-market road. □ Establishment of a village committee for
plan and 25 ducks provided by project Disaster Risk Management and Disaster
partner Mingalar Myanmar. Preparedness.
□ The creation of five community centres, one of
which functions as a nursery/primary school.

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 41

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 42

3.2.2. Summary
ASEAN volunteers are making a valuable contribution to
communities, complementing the assistance provided by the
Government and national and international organisations.
The ASEAN Volunteers Programme guarantees daily
interaction between the volunteers and Myanmar nationals,
promotes transparency and creates a space for meaningful
community participation that over time fosters trust,
confidence and cohesion, in the spirit of ASEAN’s people-
centred approach.

The ASEAN Volunteers Programme can be expanded

through the creation of a database of ASEAN volunteers that
can be mobilised at short notice in the event of a disaster
in one or more ASEAN countries. If the programme is
expanded in the future, then ASEAN volunteers can play an
important role in strengthening ASEAN expertise in DRR.

“ The best thing about this project is that

the ASEAN volunteers are living together
in our village ... they know what we really
need, our concerns as part of our families.
I will always remember their strong
commitment to rebuild our village through
mass meetings. The villagers are now
more active in community consultation
activities.”

U Maung Naing, Tha Leik Gyi Village Tract

<<

Leader. Recognising the efforts of the project

and the ASEAN volunteers.

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 43
3.3. Humanitarian Hub Coordination
The TCG’s effective facilitation of relief and recovery
efforts at the national level presented an opportunity for
ASEAN to further strengthen the coordination between
the Township Coordination Committees (TCCs) and
humanitarian agencies working in affected communities.
At the 4th Meeting of the ASEAN Humanitarian Task Force
(AHTF) held on 12 July 2008, participants agreed to a
proposal to establish TCG-Integrated Regional Hubs. The
proposal was subsequently submitted to the 41st ASEAN
Ministerial Meeting, held on 21 July 2008, as part of the
AHTF Chairman’s Recommendations.
The ASEAN Ministerial Meeting held in Singapore in July
2008 extended the mandate of the TCG for another year
to continue the relief and early recovery phase. It also
endorsed the establishment of a coordination structure for
the regional hubs and a mechanism to facilitate the Periodic
Reviews and recovery planning.
52-07-022_(i-vii),001-069 new 13_G.indd 43
In October 2008, four ASEAN Hub Officers were stationed in
the regional coordination hub sub-offices, which UNOCHA
had established, to replicate the TCG at the community
level and to further strengthen coordination amongst
TCG members, the Government, and other national and
international humanitarian agencies. Hub sub-offices were
established to facilitate township coordination in Bogale,
Labutta, Pyapon and Yangon.
This chapter elaborates on milestones at the field level,
where ASEAN has defined its role through its involvement
in communities and partnerships. Activities in the field have
centred on TCG-endorsed community projects, capacity
building and advocacy to local government on behalf of
communities.
“ The achievements of the past nine
months in ASEAN’s humanitarian
operations in Myanmar have shown
ASEAN’s potential as a regional
mechanism in the international
humanitarian arena, that ASEAN can
play proactive roles in bridging national
interest and international assistance, and
is increasingly competent to coordinate
complex humanitarian operations. It has
put substance to the ASEAN Charter and
has brought ASEAN closer to the people. ”
Dr. Surin Pitsuwan, Secretary-General of ASEAN
<<
7/14/09 3:04:21 AM
 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 44

3.3.1. Strengthening TCG Coordination Roles

at the Community Level
ASEAN’s presence in the hubs serves to promote the TCG
coordination mechanism through close collaboration with
UNOCHA and the Government at the township and village
level. The collaboration of ASEAN and UNOCHA hub teams
has led to a major improvement in the quality and breadth
of information from coordination meetings, at which minutes
are written in both English and Myanmar. ASEAN teams co-
located in the hubs also play an important role in facilitation
of meetings and provision of logistical support.

Each hub faces a different set of hurdles, so that the

activities and achievements of each vary. However, all hubs
have succeeded in strengthening coordination under the
TCG by maintaining a positive relationship with the local
government authorities and UNOCHA.

Since ASEAN co-located with UNOCHA in Labutta, the

hub has been successful in having the District Peace and
Development Council (DPDC) chair the general coordination
meetings. Addressing concerns and exchanging information
are the key goals of the meetings so greater access to local
authorities for international staff can improve the flow of
information among key stakeholders.

In the Yangon hub, ASEAN initiated regular coordination

meetings in Kyauktan Township, one of the townships
affected by Cyclone Nargis. With the support of the township
authorities, ASEAN and UNOCHA successfully established ASEAN and UNOCHA hub co-location.
<<

regular coordination activities beginning in October 2008, Map shows the coverage of each hub.
resulting in more coordinated assistance to the affected
communities.

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 45
3.3.2. Facilitating the Periodic Review
The TCG instituted the Periodic Review as a means of
assessing, monitoring and reporting on the situation and needs
of the people and communities affected by the cyclone.
The Periodic Reviews I and II were jointly led by ASEAN,
in consultation with local government authorities. Data
collection at the household level is the principal responsibility
of the hub teams. During each household survey period,
the hubs are responsible for ensuring credible information
flows from the hub to Yangon, organising safe and accurate
logistical plans, and observing strict guidelines concerning
research ethics. Detailed planning and close coordination
with the local authorities and humanitarian community
have helped avoid major complications. Logistics planning
for selected survey villages has been enhanced through
collaboration with UNOCHA, MIMU, and township
authorities.
The implementation of the first Periodic Review in November
2008 provided an entry point for the hub teams to introduce
52-07-022_(i-vii),001-069 new 13_G.indd 45
and make themselves familiar to stakeholders. Furthermore,
the Periodic Review was the first opportunity for each hub to
acquaint itself with the geography of its respective working
area and enhance the capacities of hub team members
for community monitoring and logistics management. For
example, in the Bogale hub the Periodic Reviews have
been instrumental in strengthening relationships with the
government officers, NGOs and UN staff, while allowing
the team to create a good rapport with stakeholders in the
Township.
In the Yangon hub, the Reviews have been catalysts for
the hub team to cover an area larger than the existing
coordination hub structure. This has allowed the team to
explore and develop contacts in places where no coordination
mechanism was yet in place. The Yangon hub has also
helped UNOCHA and the MIMU in the development of a
database of township profiles, particularly in the northern
townships in Yangon Division.
7/14/09 2:04:46 AM
 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 46

3.3.3. Bringing ASEAN Closer to

the People
ASEAN hubs are vital in promoting ASEAN’s goals at the
community level. The hubs foster better communication
between the AHTF in Yangon and humanitarian communities
in the affected townships. Apart from facilitating coordination
between local authorities, NGOs and stakeholders, each hub
is also mandated to promote ASEAN within communities.
Since Myanmar is a relatively new member of ASEAN,
raising awareness about the role of ASEAN in the region is
important.5

Since establishing the hub offices, ASEAN’s profile has

improved substantially at the community level owing to the
distribution of visibility materials, the consistent presence of
the AHTF, and the professionalism of the hub staff. Efforts
have been made to explain ASEAN’s mission in Myanmar,
especially at village meetings where such information may
not be common knowledge.

5
Myanmar became a member of ASEAN on 23 July 1997.

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 47

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
3.3.4. Building Safer, Disaster-Resilient Communities
With recovery now focused on the medium and long-term,
and the second rainy season since Cyclone Nargis having
already started, Disaster Risk Reduction (DRR) is now a
priority. ASEAN relies on the hubs to promote DRR through
the organisation and facilitation of DRR-related training in
both larger towns and in villages. DRR training projects
seek to prepare communities for future Nargis-type events
and other natural hazards such as drought, floods, fire,
earthquakes and landslides.
The nature of support for DRR differs in each hub, depending
on the local needs and the cooperation of other agencies.
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48
The capacity in each hub likewise differs and comprehensive
DRR activities covering the township level are not always
possible owing to a shortage in human personnel and
capacity. In Labutta, the hub has helped the township DRR
committee through involvement in DRR Technical Working
Group Meetings and DRR training sessions, which has also
involved members of the Township Disaster Preparedness
Committee (TDPC). The Yangon hub has been involved
in the development of a Myanmar Action Plan for DRR
(MAPDRR), which will provide a comprehensive national
framework on DRR activities at all levels.
7/13/09 7:50:56 PM
 49

3.3.5. Meeting the Needs of

Vulnerable People
Working closely with communities over the past nine months,
ASEAN has witnessed the plight of those made vulnerable
by Cyclone Nargis. In Labutta, ASEAN was instrumental
in persuading local authorities to allow greater access to
information, invaluable to project planning for populations
displaced by a disaster.

The vulnerability and livelihood constraints the population

faced in Ah Mar village in Pyapon Township provided one of
the key motivations for ASEAN to intensify its partnerships
with the Government and other agencies. An initial dialogue
with the TCC chairman involved the United Nations High
Commissioner for Refugees (UNHCR), ASEAN and
UNOCHA and sought to address the immediate concerns
at the community level. Continuous engagement with the
local authorities resulted in the provision of land for 60
temporary shelters, constructed by UNHCR and Solidarité,
a French NGO, with latrines provided by the International
Organisation for Migration (IOM).

Similar activities were also conducted in Yangon, where

the hub was involved in inter-agency activities, such as
providing hygiene kits in Dedaye Township following an
outbreak of skin disease among children.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 50

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 51

3.3.6. Strengthening Local

Capacity
To re-affirm the hub mandate to strengthen the TCG and
bring ASEAN closer to the people, many hub activities have
been implemented to strengthen the capacity of local NGOs,
government authorities and villagers. Hub staff members
have been involved in various trainings and workshops
including the Sphere, humanitarian accountability, report
writing, field coordination and the use of GPS.6

In the Labutta hub, there are many organisations working

to provide training. However, many of them found it difficult
to find suitable locations to conduct their trainings. In
response, the hub financed and established a training hall
which local organisations and communities can use without
charge. In the first six months the training hall hosted more
than 12 training sessions and accommodated over 400
participants.

In Pyapon, ASEAN worked closely with UNOCHA and the

Asian Disaster Preparedness Centre (ADPC) through its
“Consultation Workshop on Disaster Risk Management/
Reduction (DRM/R)” on 6 April 2009. The workshop
brought together 54 participants from NGOs, UN agencies
and Government departments from Pyapon and Kyaiklat
Townships. The workshop sought to reach a common
understanding on DRM/R among the humanitarian agencies
and Government officials; the ASEAN regional context on
DRM/R and initiatives in relation to Myanmar; existing and
planned DRM/R activities by different humanitarian and UN
agencies in Pyapon District; on measures to prepare for
the upcoming monsoon season by the Assistant Township
Education Officer (ATEO); and a decision on some initial
steps to form a DRR/M Consultative Working Group or
Forum to further promote DRM collaboration and knowledge-
sharing.

6
Sphere was launched in 1997 by humanitarian NGOs, the Red Cross
and Red Crescent movement. It identifies minimum standards that should
be attained in disaster assistance across five sectors: water supply and
sanitation, nutrition, food aid, shelter and health services.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 52

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 53

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
3.3.7. Summary
Throughout ASEAN’s nine-month involvement in hub
operations, township authorities have demonstrated greater
openness to sharing information and active participation
in activities in areas where access for outsiders may be
limited.
Mr. Antonio Massella, UNOCHA Deputy Head of Office
and Field Coordinator observed that, ‘‘Close coordination
between the hub humanitarian community and government
authorities was strengthened with the presence of ASEAN
Hub Officers at the field level. ASEAN’s co-location with
52-07-022_(i-vii),001-069 new 13_G.indd 54
54
UNOCHA completes the representation of the tripartite
structure at the field level. This had marked benefit to
collaborative actions with local authorities that translated
into real gains for vulnerable populations.”
ASEAN Hub Officers are paving the way towards adding
value to existing mechanisms at the township level,
addressing gaps together, and exploring opportunities with
local authorities by building trust and confidence, despite
facing problems with geography, non-parallel expectations
and challenging mandates.
7/14/09 2:06:05 AM
 55

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 56

Chapter IV
The Way Forward

“We welcomed the success of the ASEAN-led

mechanism to help the victims of Cyclone Nargis
and pledged to continue supporting Myanmar in its
recovery efforts following the launching of the Post-
Nargis Recovery and Preparedness Plan (PONREPP).
We also welcomed the decision of our Foreign
Ministers to extend the mandate of the ASEAN
Humanitarian Task Force (AHTF) and
the Tripartite Core Group until July 2010.”

Chairman’s Statement of the 14th ASEAN Summit,

<<

Cha-am, Thailand – February 2009.

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 57
4.1. Challenges on the Path Towards Recovery
Achievements have been made but much remains to be done
in helping to build back the lives of those affected by Cyclone
Nargis. Significant efforts have been made to ensure that aid
reaches survivors of the cyclone. Basic education has been
re-established for over half a million children, food aid has
reached over one million people, and 930,000 patients have
received health consultations, with no significant increase
in morbidity. However, 130,000 families – equal to half a
million people – are living in vulnerable shelters that may not
52-07-022_(i-vii),001-069 new 13_G.indd 57
withstand another monsoon season, while agriculture remains
one of the least-funded sectors in the response, and progress
in the rehabilitation of livelihoods for landless households
remains slow.7 To address these gaps, the TCG must work
to accelerate assistance in Nargis-affected areas.
The TCG has successfully facilitated international
assistance for cyclone-affected areas in the relief and early
recovery phase. However, as the recovery phase has set
in, the original mandate of the TCG has not been adjusted
to satisfactorily meet the shifting development context.
If not addressed urgently this will impede the work of the
international community, working together with national
partners and communities. It is necessary for the mandate
of the TCG concerning the coordination of resources and the
facilitation of access to Nargis-affected areas to evolve.
The momentum of assistance established among the
international community during the early months of the
relief operation must be recaptured. USD 691 million is
required for the three-year recovery process described
in the PONREPP. Donor support pledged to date needs
turning into firm commitments.
The recovery experience after other disasters has shown that
the receiving of international assistance depends strongly
on the effectiveness of the coordination and implementation
structure in place. The post-tsunami recovery process
in Indonesia – where 93 per cent of the USD 7 billion in
international pledges was received – demonstrates this
phenomenon. The Indonesian government put in place
a transparent and accountable coordinating structure
supported by the international community. Ensuring that
assistance is effectively targeted to those in need is key to
inspiring donor interest and commitment.
7
The Revised Appeal was launched on 10 July 2008, appealing for USD 477
million to cover 103 projects in such sectors as Agriculture, Education, Food,
Health, Protection of Women and Children, Shelter, and Water and Sanitation.
As of 8 June 2009, 67% of the requirement in the Revised Appeal was met.
7/14/09 3:25:01 AM
 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 58

4.2. The Continued Role of ASEAN

ASEAN’s engagement following Cyclone Nargis is an
example of how a regional system can complement and
strengthen coordination between a national government
and the international community.
□ ASEAN understands the local development context
of the region in terms of its history, social and cultural
endowments, geographical characteristics and economic
institutions. This knowledge is valuable to ASEAN’s
approach to its relief and recovery efforts and can better
define the principles of “build back better” in a post-
disaster recovery process suited to the local context.
The approach of “building back better” necessitates the
incorporation of DRR into the existing policies of the
affected country. In this respect, ASEAN can promote
greater involvement of and support from neighbouring
countries in providing and exchanging knowledge,
experience and expertise. The ASEAN Agreement
on Disaster Management and Emergency Response
(AADMER) will serve as a framework for this exchange.
efforts. The Periodic Reviews and the Social Impacts
Monitoring reports assess humanitarian needs in affected
areas, the pace of recovery and the socio-economic
impact of recovery activities. ASEAN should continue
to facilitate the monitoring and evaluation efforts in the
recovery stage.
□ ASEAN supports the development and
implementation of the PONREPP. In partnership with
the UN and the international humanitarian community,
ASEAN has been deeply involved with recovery in
Myanmar by helping the development and implementation
of the Post-Nargis Recovery and Preparedness Plan
(PONREPP). The PONREPP, which outlines a three-
year recovery plan from 2009 to 2011 and complements
the Government’s reconstruction plan, takes a people-
centred approach in promoting productive, healthy,
and protected lives for the people affected by Cyclone
Nargis.

□ The ASEAN-led TCG facilitates international

humanitarian assistance in Myanmar. ASEAN
facilitates communication between the international
humanitarian community and the Government at all
levels. ASEAN works at the highest policy level, such as
at the ASEAN-UN International Pledging Conference,
the AHTF, and the TCG. At the local level, ASEAN
coordination works through its hub offices established in
the affected townships, which strengthen coordination
between the international community and local
government.

□ ASEAN facilitates the monitoring and evaluation

of relief and recovery activities. ASEAN led the
development of the Post-Nargis Joint Assessment
(PONJA), which provides baseline information for
reviewing, monitoring and evaluating relief and recovery

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 59

4.3. The Way Forward

The mandate for the ASEAN-led coordinating mechanism
has been extended to July 2010, giving rise to four needs: i)
to strengthen the TCG structure; ii) to secure greater donor
support; iii) to bring ASEAN recovery programmes closer to
the needs of the affected people; and iv) to link the recovery
effort to the country’s long-term development framework.

Improving the TCG

Coordination Structure
The authority of the TCG should be expanded in terms of
coordinating resources and operations, and monitoring
and evaluating relief and recovery activities. A seamless
transition in the coordination structure from the relief to the
recovery phases requires the adaptation of the existing
structure so that it may better cope with the complex and
challenging recovery process ahead.

The improved structure must be efficient and inclusive under

the TCG, in which ASEAN, the Government and the UN play
an integrated coordinating role. The structure of the TCG
facilitates the creation of effective policies, budgets, operation
coordination, and in-field operations. The new structure
must build on the existing TCG coordinating units rather
than establishing new entities, and must accommodate the
views of all stakeholders fairly, including donors and NGOs.
Furthermore, to better facilitate international assistance, the
TCG should be responsible for providing access to areas
affected by the cyclone.

As defined in the PONREPP, an effective TCG in the

recovery phase should:
□ Coordinate the Recovery Forum, in which all recovery
stakeholders can engage in strategic discussions on
recovery in Nargis-affected areas.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 60

□ Facilitate and monitor funding for recovery implementation

in a transparent, accountable and participatory manner.
□ Manage a unified Recovery Coordination Centre that
can effectively coordinate and execute recovery
programmes and activities.
□ Facilitate recovery activities in the field through the
Recovery Hub Office and Township Coordination
Committee (TCC).

At the Recovery Forum level, the existing role of the TCG

needs to be broadened to accommodate issues relevant
to the acceleration of the recovery phase as it moves into
medium and long-term recovery.

An effective Recovery Forum should have:

□ ASEAN and the UN to support and work in partnership
with the Government.
□ Greater Government engagement.

□ Effective representation and active participation of

relevant stakeholders, including donors and NGOs.
□ Commitment to address strategic/relevant policy issues
concerning recovery of Nargis-affected areas.
□ Commitment from all participants to follow the outputs.

The existing processes for obtaining funding should be

continued and acknowledged within the TCG coordination
mechanism. If new funding mechanisms prove necessary
they must be coordinated with existing ones.

For programme coordination, the new Recovery Coordination

Centre (RCC) will benefit from lessons learned during the
relief phase and will also make use of the coordination
mechanism established during recovery after the Indian
Ocean Tsunami. The RCC can benefit from such resources
as MIMU, the Periodic Reviews, the Social Impacts Monitoring
report, and the work of Recovery Working Groups.

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 61
An effective Recovery Coordination Centre must:
□ Establish a database on recovery programme
coordination, which can also be a donor assistance
database. This database will include information on
planning and monitoring and evaluation, and will build
on the database system established by MIMU during
the relief operation. The system can adopt the model
applied in the Aceh-Nias recovery programme.
□ Create a unified unit/secretariat connected to the Recovery
Forum, Recovery Coordination Centre and Recovery
Hubs.
□ Participate in the budgeting and allocation of funds
from donors and stakeholders, with a view towards
implementation.
□ Effectively collaborate with Government programmes.
□ Effectively monitor and evaluate the use of funds and at all levels is vital. The multiple secretariats that have
maintain a transparent auditing system.
At the field operation level, the Recovery Hub system should
build on the collaboration of ASEAN and UNOCHA. Only
one coordination system at the hub level is necessary to
support the TCCs. Cluster meetings at the township level
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are being consolidated to accommodate the presence and
leadership of district and township representatives and the
international community.
An effective Recovery Hub must:
□ Possess an effective coordination structure at the hub
level, supported by the RCC and Recovery Forum, which
will also serve as a problem solving body.
□ Promote strong hub teams, which can benefit from the
experience of ASEAN and UNOCHA collaboration during
the relief operation.
□ Facilitate programme implementation by agencies in
affected townships.
□ Cooperate effectively with TCCs.
A unified and integrated recovery coordination mechanism
worked during the relief operation under ASEAN, the
Government and the UN, or others should be integrated
under the TCG system. The AHTF office in Yangon must be
strengthened so it may better work with the UN coordination
system under the UN Resident Coordinator (UNRC) and
the Government.
7/14/09 2:48:49 AM
 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 62

ASEAN and UN Shared Roles

NDPCC
Tripartite Core Group

ASEAN, Government of the Union of Myanmar, United Nations

Recovery Forum
UN ASEAN

Recovery UN ASEAN
Coordination Centre
ASEAN UN

Township
UN ASEAN UN ASEAN Coordination
ASEAN UN ASEAN UN
Committees

Yangon Pyapon Bogale Labutta

Recovery Hubs

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 63

Securing Donor Support in the

Recovery Process
The international community supported the establishment
of an AHTF Office in Yangon and the creation of the TCG
mechanism. The mechanism depends on their continued
support. The international community continues to engage
in the coordination mechanism and implementation of the
recovery programme through:
□ Participation in the Recovery Forum, which should allow
greater engagement of the international community in
the discussion of policy and strategic issues related to
post-Nargis recovery.
□ Sharing relevant expertise needed in the recovery
process.
□ Continuation of funding support.

□ Participation in recovery implementation oversight.

□ Participation in the RCC. There are five areas in which ASEAN’s involvement is
necessary:
□ Participation in working groups and cluster meetings at
the Yangon and hub levels. □ Livelihoods: agriculture, fisheries and employment,
including the development of village level infrastructure.
□ Communication with all TCG stakeholders.
□ Shelter: to engage in efforts to facilitate safe housing and
settlement.
Bringing ASEAN Recovery
□ Improving services in education.
Programmes Closer to the People
□ Health service improvement.
The TCG has now been extended until July 2010 to continue □ Disaster risk reduction with a focus on community-based
the coordination of international support in the post-Nargis
DRM.
recovery process. ASEAN member countries should
support and contribute to the process to ensure an effective
At the Recovery Forum level, ASEAN member countries
working mechanism that is capable of addressing recovery
can play a strategic role in the post-Nargis recovery phase
challenges. ASEAN member countries should demonstrate
through the transfer of knowledge and experience. The
their full support to the continued recovery process by
successful recovery following the Indian Ocean Tsunami in
committing new pledges.
Indonesia and Thailand can provide an example for Nargis-
affected areas. ASEAN member countries can support the

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
TCG by engaging in policy dialogue based on the lessons
learned from Nargis recovery. Within the framework of the
AADMER, other ASEAN member countries can also share
their experience and expertise in promoting their disaster
risk reduction initiatives.
At the budget facilitation level, ASEAN member countries
should contribute to the running of the TCG coordination
mechanism.
At the recovery coordination level, ASEAN member countries
can transfer their own tools including a database, aid
tracking and recovery management information systems,
and monitoring and evaluation, for utilisation in the RCC.
ASEAN member countries can give tasks to experienced
officials with assisting in the management of the RCC.
52-07-022_(i-vii),001-069 new 13_G.indd 64
64
The Government is expected to assume a greater leadership
role in coordination and should carry out the following:
□ Provide sufficient authority to the TCG so that it may
better conduct its role in facilitating support to the Delta.
□ Outline clear policies and regulations related to
international assistance to the Nargis-affected areas.
□ Contribute sufficient resources and actively participate in
the RCC.
□ Facilitate hub/township level coordination and actively
engage in solving problems on the ground.
7/14/09 1:21:00 AM
 65

Coordinating Post-Nargis Recovery

Efforts with the Government’s
Development Strategy
The extension of the TCG mandate provides an opportunity
for ASEAN to engage in a recovery policy dialogue on
Myanmar at the regional level. Following the framework of
the ASEAN Charter, this dialogue would ensure progress
towards realising an ASEAN Community by 2015, and
a regional commitment to achieving the “Millennium
Development Goals” by 2015.8 Myanmar will benefit from
capacity-building support provided by regional neighbours,
donor agencies and international organisations.

Commitment from donors and international development

partners is essential to the sustainability of the recovery
effort, which depends on their on-going integration into the
country’s long-term development strategy. International
donors have demonstrated a greater readiness to
cooperate with Myanmar in humanitarian relief following
Cyclone Nargis. However, many remain reluctant to commit
resources for long-term development. ASEAN will be vital
in forging pragmatic partnerships between the Myanmar
Government, the region and the international community.

Moving from the relief phase to the recovery process, ASEAN

will need to continue to develop strategic partnerships with
the international community for the post-Nargis development
effort. The AHTF is working closely with the Government to
create a coordinated strategy for development with Myanmar
within the framework of the ASEAN Charter following the
expiration of the TCG mandate. ASEAN will support regional
development cooperation initiatives by ensuring that its
post-Nargis efforts are closely coordinated with the UN and
other international development actors.
To achieve this, ASEAN needs to further define its strategy
– following the framework of the PONREPP – to guide the
recovery process in Myanmar in a manner that explicitly
links recovery to long-term development while enlarging
the role of respective ASEAN member countries in the
recovery process. The TCG mandate has only been
extended until July 2010. Concrete initiatives for regional
cooperation, which can link recovery and development

8
The Millennium Development Goals are eight goals to be achieved by 2015 that respond to the world’s main development challenges. The MDGs are drawn from
the actions and targets contained in the Millennium Declaration that was adopted by 189 nations and signed by 147 heads of state and governments during the UN
Millennium Summit in September 2000.

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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis
in Nargis-affected areas, must be quickly formulated and
implemented. Accordingly, an appropriate institutional
framework will be required to deliver this refined strategy,
requiring adaption of the AHTF and TCG to support this
new phase.
At the 6th AHTF Meeting held on 2 July 2009 in Jakarta,
members agreed to adapt the role of the AHTF to improve
communication with Government ministries concerning
the synchronisation of the recovery plan and the country’s
development framework. To this end, the AHTF and TCG
52-07-022_(i-vii),001-069_G.indd 66
66
must work closely with relevant ministries such as the
Ministry of Social Welfare, Relief and Resettlement;
Ministry of Planning and Economic Development;
Ministry of Agriculture; Ministry of Health and Ministry of
Education.
The 6th AHTF Meeting encouraged ASEAN member countries
to support the implementation of coordinated recovery and
sustainable development programmes, focused on capacity
building, to ensure a smooth transition from the ASEAN and
TCG to the normal Government mechanism.
7/13/09 8:00:36 PM
 67
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 A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis 68

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52-07-022_(i-vii),001-069_G.indd 68 7/13/09 8:00:37 PM

 Contributing Writers: Photography:

Adelina Kamal ASEAN Hub Coordinators

Anggiet Ariefianto ASEAN volunteers
Hnin Nwe Nwe Chan Christopher Davy
Joseph Viandrito Periodic Review/Ohnmar Win
Kyaw Myat Tha Periodic Review Enumerators
Lwin Lwin Aung
Mai Phuong Tang Editing and Design:
Natthinee Rodraksa
Naw Primrose Christopher Davy
Dr. Niken Gandini
Philipp Danao
Sok Phoeuk
Thaw Thar Khaing
Wanna Suksriboonamphai
Dr. William Sabandar

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The Association of Southeast Asian Nations (ASEAN) was established on 8

August 1967. The Member States of the Association are Brunei Darussalam,
Cambodia, Indonesia, Lao PDR, Malaysia, Myanmar, Philippines, Singapore,
Thailand and Viet Nam. The ASEAN Secretariat is based in Jakarta, Indone-
sia.

For inquiries, contact:

Public Outreach and Civil Society Division
The ASEAN Secretariat
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General information on ASEAN appears online at

the ASEAN Website: www.asean.org

Catalogue-in-Publication Data

A Bridge to Recovery: ASEAN’s Response to Cyclone Nargis

Jakarta: ASEAN Secretariat, July 2009

363.34595
1. ASEAN – Disaster Management
2. Social Action – Emergency Management

ISBN 978-602-8411-10-3

The text of this publication may be freely quoted

or reprinted with proper acknowledgement.

Copyright ASEAN Secretariat 2009

All rights reserved

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 size=10x10 in sun=7.5 mm size=10x10 in

A Bridge to Recovery:
ASEAN’s Response to
Cyclone Nargis
On 2 and 3 May 2008, Cyclone Nargis swept in from the Bay of Bengal
and struck Myanmar’s Yangon and Ayeyarwady Divisions, resulting in large-
scale loss of life and destruction of infrastructure, property and livelihoods.
Approximately 140,000 people were killed or unaccounted for following the
cyclone. Cyclone Nargis is the 8th deadliest cyclone recorded and by far the
worst natural disaster in the history of Myanmar.

Acknowledging the unprecedented scale of the disaster, ASEAN rose to the

challenge and actively collaborated with the Government of Myanmar to
allow international relief workers to operate in the country. Since then, the
organisation has played an instrumental role in coordinating both the initial
response to the disaster and the transition towards medium and long-term
recovery.

Printed in Bangkok
July 2009 Myanmar, July 2009

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