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Here are 5 steps in which the RAY (Reconstruction Assistance on Yolanda) plan can be improved
Ondoy in 2009. Sendong in 2011. Pablo in 2012. This year, we have seen how Typhoon Yolanda (Haiyan) caused massive devastation and loss of lives in the Eastern Visayas region. The Philippines will certainly face more, as climate change is likely to increase the intensity of typhoons in the region.In these disasters, which seem to be the “new normal” for the Philippines, a key learning among groups working on reducing disaster risks, is that disasters are not merely a result of fast-rising floods, earthquakes, storm surges, etc. – they are much more a function of people’s vulnerability.
This vulnerability comes from numerous reasons, most notably the lack of a decent income, inappropriate location and durability of homes, limited access to basic services and emergency infrastructure. When coupled with short-sighted development plans, lack of community engagement in decisions on communal infrastructure and land use planning, and extreme imbalance on the ownership of resources, you have a perfect formula for crisis.
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High marks for RAY
The National Economic and Development Authority (NEDA) recently released the government’s rehabilitation blueprint for areas affected by Typhoon Yolanda. The Reconstruction Assistance on Yolanda (RAY) is an initiative that will be managed and coordinated by the Office of the Presidential Assistant for Rehabilitation and Recovery.
The official government release says that coordination between all stakeholders will be based on “common recovery and reconstruction goals with standards set by government, which will also be responsible for managing implementation risks and addressing bottlenecks.”
The overall cost for recovery and reconstruction has been initially estimated at PhP 360.8 billion (US$8.2 billion). The value of estimated damage has been adjusted upwards to incorporate “quality improvements, adoption of affordable disaster-resilient standards and relocation of facilities to safe areas.” The plan foresees the private sector as “a major source of finance for these needs.”
The RAY plan contains many positive points: Among the important highlights of RAY is the main principle of building better and safer infrastructure, recognising that the disaster affected men and women differently, accepting the importance of community participation, and acknowledging that Yolanda will increase poverty. (READ: How Yolanda cancelled progress on poverty reduction)
Build back better
However, the RAY plan can do more to ensure that affected communities recover better. Here are 5 steps in which it can be improved:
1) Tackle underlying poverty
In order to make the disaster risk reduction plans work, there needs to be a much greater emphasis on reducing poverty. If Eastern Visayas was already very poor to begin with prior to Typhoon Yolanda, we must have the ambition to address the root causes of vulnerability and inequality that exist in the area.
Families and communities not in poverty are able to mitigate the effects of natural disasters better and recover quicker. This then has the added benefit of increasing people’s capacity for self recovery and self reliance to future events. The challenge, however, is that the poor are affected more and take longer to recover, which further widens the inequality between the rich and the poor.
2) Strengthen capacities of LGUs to respond to disasters.
Typhoon Yolanda showed that the capacity and resolve of LGUs was clearly a factor in saving lives. The island town of Tulang Diyot in Cebu for example had zero casualties. This will require a transfer of financial and technical resources to the frontline of future disaster responses, and support for strengthening local governance and accountability.
Building local capacity should go hand in hand with strengthening capacity of local civil society organizations, churches and the people themselves on preparedness and relief.
3) Make certain that concerns and needs of communities are considered.
Reconstruction projects should take into account the knowledge and cultural preferences of local people, thus ensuring effective results. In Albay, for example, evacuation centers include a place for keeping animals – because people won’t leave their homes if they can’t bring key assets with them.
4) Transparency from government.
Being transparent about where aid goes will help government empower the citizens to be fully engaged in the recovery process. They will have the chance to know how resources are being used, and work with civil society to ensure that the money is spent on agreed plans. They will be able to monitor the performance of local authorities and companies to ensure aid and economic investments are cost effective and fully maximized.
5. Build broad multi-stakeholder ownership of reconstruction plans.
The RAY made reference only to the private sector as key actors in the rehabilitation process. It has indicated a mechanism to engage them through the expansion of private-public partnerships.
What is lacking is expectations on how civil society, community based organizations, people’s groups, non-governmental organizations (NGOs) and citizens in general will participate. While the RAY does not give indication on how this will be achieved, there has been some positive first steps by the Presidential Assistant for Recovery and Rehabilitation Panfilo Lacson in getting input from different sectors.
This has largely been seen after the RAY was released, and the result of these consultations is yet to be seen in implementation plans going forward. This process needs to be maintained, if not scaled up so as to see community ownership of RAY.
Lessons from Yolanda
A key lesson then from Typhoon Yolanda is that the people of our hazard-prone country need a bolder vision that delivers a climate-resilient, innovative, durable, solution-oriented, economic regeneration of the disaster zone that prioritizes the poorest and most vulnerable people, and results in safer and more resilient communities.
What Former Senator Lacson and his team will be faced with, among so many challenges, are massive political conflict and bureaucratic management – to make sure that rehabilitation will reach all, especially the vulnerable sectors, and will not be along party lines.
Let’s all push our government for its RAY plan to be a ray of hope for Typhoon Yolanda survivors. – Rappler.com
Atty. Eunice Agsaoay-Saño was the legal adviser to the Disaster Risk Reduction Network in the Philippines (DRR Net Philippines) in its advocacy and lobbying work for the enactment of the Philippine Disaster Risk Reduction and Management Law of 2010. She is married to Climate Change Commissioner Yeb Saño.
DRRNet Philippines is part of the Disaster Risk Reduction-Climate Change Adaption (DRR-CCA) Coalition composed of Aksyon Klima, Christian Aid, Center for Disaster Preparedness, DRRNet Philippines, Oxfam and World Vision, who are committed to providing support to the recovery, rehabilitation and better future of Typhoon Yolanda affected communities.
Image from Gov.ph.
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