a case study of the philippines and sri lanka and disaster a case study of the philippines and sri...

Gender and Disaster A Case Study of the Philippines and Sri Lanka

（ジェンダーと災害）

（フィリピンとスリランカの事例研究調査）

August 27, 2015

Japan International Cooperation Agency (JICA)

Main Researchers: Y. Tanaka and A. Nonoguchi

1. What is a risk? What is vulnerability?

2. Why gender?

3. Key points in Gender and Disaster

4. Case study of the Philippines ad Sri Lanka Research Purpose/ Research Question/ Methodology

PL’s and LK’s DRR-related law, policy, and implementation

structures

The gender perspective integrated in PL’s and LK’s DRR

Background of research sites in PL and LK and contents of

JICA projects

Gender-related vulnerability and coping strategy in the sites

5. Summery of key findings

6. Next steps (supplementary field research)

Contents

2

1. What is a risk?

Disasters:

not only earthquakes, floods, and famine, but epidemics, violent

conflicts, and hunger (Blaikie et al. 1994)

not natural events, but the product of social, political, and

economic processes which shape the daily lives of different

groups of people (Blaikie et al. 1994, Fothergill 1998, Hewitt 1983, 1997; Quarantelli 1994; etc.)

Risk:

(Blaikie et al. 1994)

Vulnerability to disasters are not equally distributed (Anderson & Woodrow 1989;

Blaikie et al. 1994; Enarson & Morrow 1998; Oliver-Smith 1986; etc.)

varied by gender, class, ethnicity/caste, age, dis/ability, religion, etc. (Blaikie et al. 1994, Bolin et al. 1998; Enarson 2012; Hewitt 1995; Morrow & Enarson 1996, 1998; Phillips & Morrow

2008; etc.)

Famine is not caused by a decline of food supply (availability approach), but

unequal distribution of food (entitlement approach: control over food) Sen, A. 1981.

susceptibility of a person/community to harm

3

Risk = Hazard x Vulnerability

1. What is vulnerability? Pressure & Release model by Blaikie et al. 1994

Vulnerability: shaped by gender, class, ethnicity/caste, age, dis/ability, religion, etc. (Blaikie et al. 1994)

Access model (by Blaikie et al. 1994) focused on accessibility to resources at the

household level, not control over resources at the individual level

(vs A. Sen’s Capability Approach) 4

1. What is vulnerability? Vulnerability = Exposure + Sensibility + Coping capacity/Resilience

(IPCC 2007)

Vulnerability framework by Turner et al. 2003

5

2. Why gender?

“Vulnerabilities precede disasters, contribute to their

severity, impede effective disaster response, and

continue afterwards.” (Anderson & Woodrow 1989, pp 10)

→ Due to pre-existing unequal gender relations, women are more

likely than men to be vulnerable to disasters

A feminist political ecology perspective by Rocheleau et al. 1996

3 themes (by Rocheleau et al. 1996)

1) Gendered knowledge (local knowledge of everyday life based on women’s

multiple roles) (situated knowledge: Haraway 1991; Harding 1986) → need to

recognize women’s coping capacity

2) Gendered environmental rights and responsibilities (gendered

responsibilities and power relations/ control over resources) (Agarwal 1991) →

need to transform gendered roles and access to/control over resources and

reduce women’s vulnerability

3) Gendered environmental politics and activism (collective movements by

women’s grass-roots groups/organizations) (Merchant 1992; Seager 1993; Hynes 1992) → need to involve women as actors and leaders in disaster risk reduction

(DRR) 6

3. Key Points in Gender and Disaster

Gendered disaster vulnerability

Women are more likely than men to be vulnerable to disasters in

terms of more number of casualty, more time needed for economic

recovery, and at a risk of GBV/VAW post-disasters (Enarson 1999, 2012; Fothergill 2008; Wilson et al. 1998; etc.)

→ how to address their specific needs based on their vulnerabilities

Women are not passive victims, but agents/leaders in DRR

Women have capacity to well cope with disasters and prevent a risk of

future disasters based on their knowledge and experiences (Bari 1992; Blaikie et al. 1994; Chowdhury 2001; Hewitt 1983, 1997; Mitchell etc. 2007; etc.)

→ how to involve women as active agents/leaders in DRR

Diversity among women

Women vary by a difference of place of residence, class (economic

condition), educational level, age, ethnicity/caste, dis/ability, marital

status (single/ married/ divorced/ widowed), etc.

(Fordham 2008; Morrow & Enarson 1996; etc.)

→ how to identify more vulnerable groups of women and address their

needs 7

4. A Case Study (1) Research Purpose

• to identify gendered vulnerability and coping capacity; and

• to identify effective approaches/interventions which promote

women’s active participation and leadership in DRR, based on the

lessons learnt from the JICA projects implemented in PL and LK

Research Question

What kinds of gendered vulnerability and coping capacity should JICA

take into account in formulating a new project so that it can reduce

women’s vulnerability and promote their agency/leadership in DRR?

Methodology – a case study of the Philippines and Sri Lanka

Step 1: review of existing documents

Step 2:

1) key informant interviews (rep. of GOs/NGOs & donors; and

2) focus groups discussions (local women & men involved in JICA

projects

Step 3: analysis (based on the narratives of all interviews)

8

4. A Case Study (2)

Schedule for Field Research

Research Sites

1) The Philippines

• Site : 4 cities/municipalities in the Leyte

• case : “Typhoon Haiyan(Yolanda)” on 8 Nov. 2013

• JICA project : livelihood, DRR plan/hazard map, dike/road

2) Sri Lanka

• site : Iqubal Nagar in Kuchabery DS, Trincomalee

• case : “Indian Ocean Tsunami” on 26 Dec. 2004

• JICA project : housings, livelihood, training, etc.

Country 1st Field Research 2nd Field Research

(planned)

The Philippines July 5 to July 18, 2015 Sep. 22 to Sep. 29, 2015

Sri Lanka July 27 to Aug. 8, 2015 Oct. 14 to Oct. 22, 2015

9

Case of the Philippines

Research Sites

10

Case of Sri Lanka

Research site:

Iqubal Nagar

11

5. Findings (1) DRR related Law, Policy, and Implementing Structures

Law:

Disaster Risk Reduction &

Management Act of 2010

(Republic Act 10121)

Plan:

National Disaster Risk Reduction

& Management Plan (2011-28)

Budget:

Calamity Fund (5% of the total

budget)

Structure:

National : National DRRM

Council

City/Municipality : C/M DRRMC

Barangay : B DRRMC

Law:

Sri Lanka Disaster Management

Act, No.13 of 2005

Policy:

National Policy on Disaster

Management

Plan

National Disaster Management

Plan (2013-17)

National Comprehensive Disaster

Management Plan (2014-18)

Budget:

(No independent budget line)

Structure:

National : National DM Council

District : D DMC

Division : D DMC

GN(Grama Niladari) : GN DM

Committee

The Philippines Sri Lanka

12

5. Findings (2) Gender Perspective integrated in the DRR-related Law, Policy, and

Implementing Structures


Gender Policy

(gender &

disaster)

Magna Carta of

Women

WEDGE Plan

(2013-16)

Yes

Yes

Women’s Charter No

DRR Law &

Policy/Plan

(integration of

a gender

perspective)

Republic Act

10121

Calamity Fund

Yes

Yes (5% of the

total fund for

women)

SL DM Act (No.13

of2005)

National Policy on

DM

No

Yes

Implementation

Structure

(involvement of

National

Machinery

/women)

National DRRM Council

Local DRRMC

Limited

(PCW is not

active)

Yes

National Council

on DM

District DMCC

Local DMC

No (MoWA is

excluded)

Yes

Yes 13

5. Findings (3)

Background of PL and LK’s research sites


Research sites Tacloban, Tolosa, Tanauan,

Basay in the Leyte

Iqubal Nagar in

Kuchchaberi, Trincomalee

Case of a disaster Typhoon Haiyan (Yolanda)

(Nov.8, 2013)

Indian Ocean Tsunami

(Dec.26,2004)

Area Coastal area Coastal area

Main livelihoods Fishery, agriculture, animal

husbandry, small shops,

driving/labor work, etc.

Fishery, agriculture, animal

husbandry, driving/labor

work, etc.

JICA/JPN gov.

Support

Livelihood improvement,

DDR planning (hazard

map), construction/repair

of dikes/roads

Housings & livelihood

improvement

14

5. Findings (4) Gendered Vulnerability and Coping Capacity

1) Preparedness (災害への備え）

Residence

• Living in the coastal area, and no

hill nearby for evacuation

Information/ knowledge

• TV news announced ‘a super

typhoon is coming a week before

• not understand a word “surge”

To protect a house

• Tied up their houses with strings

to protect windows ← traditional

way

Evacuation center

• Identified, but limited # of 2-story

buildings and not enough space

Evacuation goods

• Brought some food & clothes

(those who evacuated in

advance)

Residence

• Lived in the coastal area

Information/knowledge

• No early warning/ no

information

• Never heard of a word

“tsunami”

No evacuation center

• not identified


15

5. Findings (5) Gendered Vulnerability and Coping Strategies/Capacity

2) Response （災害対応）

Evacuation

• Many men stayed at home till

the last minute ← traditionally

taught not to go out during a

typhoon

Physical capacity

• Women not know how to swim

Loss/damage

• Houses washed away

• Lost family members, money,

clothes, etc.

• Flooded rice not eatable

Aftermath

• No food/clothes for a while

• Built a hut w/ available material

• restarted their livelihoods

• Shelter/camp → no partition

Evacuation

• Evacuated only after seeing

tidal waves

• Not evacuate because many

women not dressed yet

Physical capacity

• Women not know how to swim

Loss/damage

• Houses washed away

• Lost family members, money,

clothes, etc.

Aftermath

• Stayed in a mosque (camp)

faced problems of toilets/water → camp management by men

only (Muslim community)


16


3) Recovery（災害からの復興）

Cash for Work

• Women also involved

Shelter Assistance

• Gov. provided PHP 30,000 for

fully-damaged hh ←not enough

Livelihood

• Provided livelihood tools,

including ships, pedi-cabs, pigs

Psychological recovery

• Moved forward for the sake of

children

• Men got pressured due to their

gendered role as a bread

winners and machoism

JICA- Quick Impact Project (QIP)

• Formation of women’s groups

• Training (skills, marketing, etc.)

• Necessary equipment & a

building for production

Temporary Housings

• Sewa Lanka provided

temporary housings for both

Muslim and Tamir survivors

Permanent Housings

• The gov. provided land and

JPN gov. constructed

permanent housings for Muslim

& Tamir survivors

Psychological recovery

• Intersecting of the impact of

conflicts, people (especially

Tamir) got depressed

JICA – T-CUP

• Introduction of Women’s

Coop’s saving & loan activity

• Formation of women’s groups

• Small-scale business by

individuals


17


4) Prevention/Preparedness （次の災害への備え）

Disaster Management Committee

• better functioned in disaster-

prone barangays

• More women involved in the

barangays headed by women

Hazard Map

• JICA supported targeted cities/

municiparities to make hazard

maps by types of disasters

• Community-based hazard

maps developed in a

participatory way in some

barangays, supported by NGOs

No Dwelling Zone

• Only housings prohibited to be

built within 40m from the coast

Disaster Management Committee

• Muslim involved, but not Tamir

Hazard Map

• Local gov. (districts & divisions)

developed hazard maps by

types of disasters

• No identification of vulnerable

groups of people at each

household

Early-warning

• Siren towers constructed

Buffer zone

• Fishermen resettled in the

coastal area

• Tourist hotels also do business

in the coastal area


18

6. Summary of Key Findings(1)

1. Both the Philippines and Sri Lanka have developed DRR-

related policies and legislation system at the national and local

level. The critical issue in both countries, however, is whether or

not they are effectively implemented and operationalized enough

to prepare for a future disaster.

2. The Philippine Commission on Women (PCW), a national

machinery for promoting gender equality, does not necessarily

play a key role in mainstreaming gender in DRR due to a lack of

power and human resources. Instead, the Dept.of Social Welfare

& Dev. (DSWD)and municipalities play important roles for

supporting women in emergency relief, response and recovery in

local areas. Women police were also very active in keeping

security for women. On the other hand, Ministry of Women’s

Affairs in Sri Lanka has attempted to mainstream gender in

National Comprehensive Disaster Management Program, in

collaboration with UNDP and civil societies. 19

3. As pregnant women and women with small children

are identified as one of vulnerable groups, the

identification of the vulnerable is limited to the phase of

preparedness/evacuation, not the phase of recovery, in

both countries. Since vulnerability is closely related to

the pre-existing power relations embedded in a society,

it is important to focus more on gender issues in the

recovery phase.

4. In both countries, women are not excluded from

DRR processes. However, they do not take a decision-

making role, either. The invisibility of obvious gender

discrimination and power-unbalances in both countries

has partly contributed to less active interventions to

encourage women to collectively work for women’s

rights.

6. Summary of Key Findings (2)

20

7. Next Steps The 2nd Field Research: Further information to be collected:

The Philippines (Sep. 22 to Sep. 29, 2015)

1) vulnerability specific to poor women (women with many small

children);

2) constraints which hinder poor women from improving their

livelihoods and driving factors to improve their livelihoods; and

3) factors/elements to differentiate between a caretaker and leader

and between voluntary group work and transformation-oriented

collective activities in the context of the Philippines

4) Training needs for DRR from a gender perspective

Sri Lanka (Oct. 14 to Oct. 22, 2015)

1) socio-cultural background/constraints that hinder women’s

collectively working for not only family wellbeing, but also

women’s rights;

2) factors/elements to promote women’s agency and leadership in

the decision-making process of DRR; and

3) Intersection of the impact of conflicts with a risk of disasters

4) Training needs for DRR from a gender perspective

21

Thank you!

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