Every year Bangladesh faces a number of calamities from cyclones, floods and other natural hazards. Although the impacts from these hazards in terms of loss of lives have considerably been reduced over the years, the threats on economic losses continue to loom. It has therefore become imperative to incorporate elements of risk reduction into every development activity, including the response and recovery phase.

The UNDP, along with the Government of Bangladesh, and the Department for International Development – DFID (UK) launched the “Comprehensive Disaster Management Program”, in 2003, which marked a shift in paradigm by introducing disaster risk reduction into its programs and activities. This was demonstrated in the post disaster assistance during the series of floods that affected Bangladesh from July to September, 2004.

Risk Reduction during Emergency Phase 
During the 2004 floods, risk reduction was initiated right at the relief and response phase itself. Along with providing basic needs such as water and sanitation, health care, clothing and other household essentials; crop seeds were distributed among 36,835 families, vegetable seeds among 226,199 families and seeding among 7,647 families, under its non-humanitarian food program. The objective was to ensure that the farmers did not loose the crop season, which in turn would have affected food security and increased poverty among sections of the population already poverty stricken. Apart from the non-humanitarian food program other assistance included; provision of materials for repairing houses to a total of 36,012 households, paying the board fees for 1000 female students, enabling them to sit for the Secondary School Certificate Examination, thereby ensuring the continuity of their education and avoiding the threat of an early marriage.

Risk Reduction during Recovery Phase
Assistance in the recovery phase was two-fold; construction of houses for those whose houses were washed away during the floods and cash for work (CFW) to help the economic recovery. Both the projects under the recovery phase introduced a number of long-term risk reduction initiatives. 

Flood resistant construction was employed while designing these new houses. This included simple and cost effective methodologies, such as: stabilizing the earthen plinth with cement additive capping, making them resistant to erosion, building concrete footing, locally known as ‘kaatla’, to protect the bottom of the bamboo poles by raising them above the plinth level, making it long-lasting. In addition to the traditional methods of seasoning, the bamboos used in these new dwellings were further treated with local sump oil, kerosene and bitumen, thus making them more durable. Rainwater gutters made of spilt PVC pipes were used to prevent dampening of the lower parts of the house. They also help to collect rainwater providing an alternate source of arsenic free water. The houses were relatively cheap and affordable to maintain. Local material and craftsmanship was used and had a demonstration value, as was evident by neighbors visiting to observe the construction work. Women were employed in the construction giving them a sense of ownership. 

The Cash for Work (CFW) project provided employment opportunities for a total of 87,234 flood affected people, to enabling them to rebuild their lives. It also helped to mitigate the adverse impacts of future floods on the poor, by rebuilding the community facilities. This included building of embankments, re-excavation of canals and ponds, raising of mounds, community places, homesteads, market places, flood shelters, harvesting grounds etc above the high flood level through turfing and compaction, in 500 unions of 24 hard-hit districts. Due to this embankment, about 185 metric tons of paddy was saved from the flash floods in early April. Women are said to have benefited most from the CWF project.

The projects are currently being implemented in partnership with several international, national and local NGOs, along with the local elected bodies, disaster management committees and local administration, and with the effective participation of community people. The project is progressing through intensive consultation and knowledge sharing between UNDP and the partner NGOs for efficient, effective and transparent management, coordination, implementation, monitoring and reporting processes. `Therapeutic recovery’ is a unique aspect of this recovery program, as the affected community fully participated in rebuilding their community, fast-tracking their recovery. The CFW program also bolstered the economy of the rural people. Local markets also benefited as materials for construction was bought locally. Local masons also found employment. The involvement of the local partner NGOs is ensuring long-term benefits of the project. 

Although the UNDP approach of incorporating disaster risk reduction into recovery has been unique, and has been well accepted by the partner NGOs and the communities, it posed a big challenge to properly translate the plan into action. UNDP had difficulty in introducing the concept of risk reduction in the recovery phase to its partners who were reluctant in trying new ways of operations. Inadequate monitoring of the field level NGOs resulted in poor communication with the beneficiary community. Issues of quality control of materials used, differences with the partners in the employment of beneficiaries - employment of male and female staff, poor financial reporting etc. leading to delays in financial transaction and disbursement of funds, further delaying the project implementation. 

Though the recovery programs are not completed, it provided a lot of insights for UNDP. Several lessons are learnt from the implementation of the project. For the sustainability of the benefits of the program it is recommended that donors fully support the recovery needs to maximize the fund utilization. It is also recommended that implementing partners share a common understanding of risk reduction issues to avoid issues during the implementation. Since the program is still ongoing, it is yet to be seen if introducing risk reduction aspects into the UNDP recovery program actually provides the desired dividend. 

Ms Dilruba Haider is Assistant Resident Representative, UNDP, Bangladesh. She can be contacted at dilruba.haider@undp.org