Governance challenges in disaster response and way forward: Cyclone Amphan and recent experiences

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Governance challenges in disaster response and way
forward:
Cyclone Amphan and recent experiences
Executive Summary
24 December 2020
Transparency International Bangladesh (TIB)

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Governance challenges in disaster response and way forward:
Cyclone Amphan and recent experiences
Research Advisors
Dr. Iftekharuzzaman, Executive Director, Transparency International Bangladesh (TIB)
Professor Dr. Sumaiya Khair, Advisor- Executive Management, TIB
Mohammad Rafiqul Hasan, Director- Research and Policy, TIB
Research Team
Md. Newazul Moula, Deputy Programme Manager- Research, Climate Finance Governance
Kazi Abusaleh, Assistant Manager- Research, Climate Finance Policy and Integrity
Md. Mahfuzul Haque, Programme Manager, Climate Finance Policy and Integrity
Md Razu Ahmad Masum, Assistant Manager- Research, Climate Finance Governance
M. Zakir Hossain Khan, Senior Programme Manager, Climate Finance Governance
Assistance in Data Collection
Samina Shammi, Research Assistant, Climate Finance Good Governance, TIB
Gratitude
Special thanks to colleagues of the Research and Policy, Civic Engagement, Outreach and
Communication Divisions for their support at various stages of the research. We are also grateful to the
local level data collectors and respondents who have enriched this research report through their
observations at various stages.
Acknowledgment
This study has also benefited from the contribution of Climate Finance Policy and Integrity Project,
funded by the Federal Ministry for Environment, Nature Conservation and Nuclear Safety (BMU).
Contact
Transparency International Bangladesh (TIB)
MIDAS Centre (4th and 5th Floors)
House # 5, Road # 16 (New) 27 (old)
Dhanmondi, Dhaka 1209 Bangladesh
Tel: +8802 48113032, 48113033
Fax: (+880-2) 48113101
Email: info@ti-bangladesh.org
Website: www.ti-bangladesh.org

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Governance challenges in disaster response and way forward:
Cyclone Amphan and recent experiences
Executive Summary
1. Background of the Research
Natural disasters are on the rise in Bangladesh due to climate change. According to the Climate Risk
Index 2019, Bangladesh ranks seventh in the countries most affected by cyclones, floods, and tidal surges.
In last sixteen years, from 1991 to 2006, Bangladesh has experienced six tropical cyclones, and after that,
the scenario has been changed. After that, country experienced more than 15 tropical cyclones in the 14
years during 2007 to 2020. The increased frequency of disasters, including tropical cyclones, floods, river
erosion, salinity intrusion and tidal surges, have been severely affecting 35 million coastal people and 6.5
million char-land people, keeping them in vulnerable conditions. The estimated average annual loss due
to cyclones and tidal surges in Bangladesh is USD 3.2 billion, which is 2.2 percent of the country’s GDP.
Although the number of deaths due to the natural disasters has decreased significantly but the loss and
damage of resources and infrastructures is still higher even than from the less severe disasters due to weak
disaster preparedness and response, lack of regular and proper maintenance of fragile embankments and
dykes. It has been identified that 29.5 million coastal people were impacted in recent disasters including
the super cyclone Amphan, while the number of death is 3,757 with significant loss and damage of
properties. Bangladesh Meteorological Department (BMD) has categorized cyclone Amphan as a Super
Cyclone (Category-5 hurricane) that hit in the coastal areas of Bangladesh on 20th May 2020 with the
wind speed of 240-250 kilometer/per hour along with 10-16 feet tidal surges. Considering all these
features, BMD identified the cyclone Amphan as the most devastating one in the last 20 years. Due to
cyclone Amphan the damage of Sundarbans, the natural shield against cyclones, and its ecosystem along
with the infrastructures insides the forest was also severe. However, deficits in ensuring good governance
are the major hindrance to reduce the loss and damages caused by natural disasters and ensuring
sustainability in disaster preparedness activities.
1.1. Rationale of the Research
 Being a signatory of the Sendai Framework for Disaster Risk Reduction, the Government of
Bangladesh (GoB) is committed to ensure good governance in disaster management and strengthen
the disaster response mechanism for reducing disaster related deaths, and economic losses and
damages.
 The GoB also pledged to reduce economic losses under the target 11.5 of the Sustainable
Development Goals for 2030 by adopting and implementing effective disaster risk management
programs.
 Despite having the Standing Orders on Disaster 2019 along with various guidelines to deal with
disasters, several reports have been published in both electronic and print media about the lack of
good governance in response to the cyclone Amphan as well as previously affected other natural
disasters.
 In particular, after the devastating cyclones Sidr and Aila, the GoB approved several projects with due
importance for the repair and maintenance of the embankments in coastal areas to protect the lives
and livelihoods. However, number of research and media reports haves revealed that those projects
were not implemented properly in due time.

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 The disaster preparedness and response model of Bangladesh is widely appreciated by the
international communities, and also followed by some countries. However, still governance
challenges exist that need to be diagnosed and addressed accordingly.
 There is a lack of in-depth research on how far the progress has been made in practicing the good
governance in dealing with disasters during the last 12 years, in particular since the catastrophic
cyclones of Sidr (2007) and Aila (2009), and recently hit cyclone Amphan.
 Various research of Transparency International Bangladesh (TIB) have identified deficits in
governance in the disaster responses and climate change adaptations in Bangladesh in last decade.
1.2. Objectives of the Research
Major Objective
 To review the progress and the challenges of good governance in responses to recent disasters.
Specific Objectives
 To review the implementation of the agreements, laws, policies and orders related to disaster
management;
 To analyze the progress and deficits of good governance in the light of collective experiences in the
government responses to previous four disasters and the Amphan; and
 To provide recommendations to address the identified challenges in this study.
1.3. Scope of the Research
Under this research, disaster preparedness, relief distribution and rehabilitation activities in response
to Cyclone Amphan, Sidr, Aila, Roanu, and Flood-2019 have been captured, reviewed and analyzed
in light of the governance related specific indicators.
1.4. Methodology
 This study was a qualitative research, but quantitative data was also used where required.
 Under this research, evidence and experiences of TIB’s previously conducted studies on governance
in disaster management during cyclone Sidr, Aila, Roanu, Flood-2019, and also the cyclone Amphan
have been used.
 Findings have been analyzed in the light of seven governance indicators, which are compliance with
the existing legal regime, transparency, efficiency, accountability, participation, corruption and
irregularities, and coordination.
Data Collection Method
 Governance in responses to cyclone Amphan related data were collected from randomly selected 13
Upazila’s of the 6 affected districts. Among the extremely affected Satkhira Sadar, Shyamnagar and
Ashashuni Upazilas of Satkhira district; Koyra and Dacope Upazilas of Khulna district; Amtoli and
Barguna Sadar Upazilas of Barguna district were selected for data collection. Moreover, Sharsha and
Chowgacha Upazilas from Jashore district; Sharonkhola and Rampal Upazilas from Bagerhat district
were also selected as highly affected areas. Besides, Pirojpur Sadar and Mothbaria Upazila from
Pirojpur District were also selected as moderately affected areas.
 Review of Secondary Sources of data: Disaster related laws and regulations; reports and updates of
the Department of Disaster Management (DDM) on losses and damages, relief allocations; previous
research reports of TIB on good governance in responses to major disasters; news from electronic and

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print media on disaster response; other published reports of government and non-government
organizations on disasters.
 Interview as primary sources of information: Key informant interviews (KII) were conducted with
Upazila Project Implementation Officer (PIO), District Relief and Rehabilitation Officer (DRRO),
Bangladesh Water Development Board officials, Representative of the Cyclone Preparedness
Committee (CPP), Affected families, Local journalists, Elected public representatives, Community
leaders, and CSO members.
 Data were collected from both primary and secondary sources from 18th May to 23rd December
2020.
 Findings on the observed specific responses in the light of the good governance related indicators are
presented in four colors based on the compliance with the relevant laws, policies and agreements,
including the Standing Order on Disaster (SOD) and guideline.
Table 1: Specific area of observation in four colors
The instructions in the specific areas have been
complied/followed properly
Complied
The instructions have been partially complied/followed in
certain fields, and deficiencies in the specific areas were
observed
Deficiency in the compliance
Instructions were not complied/followed in the specific areas
Not comply with
No specific information was found in the specific areas
Relevant info was not found
2. Research Findings
2.1. Climate Change and Disaster-related International Treaties: Progress and Implementation
Challenges
A. Paris Agreement on Climate Change
 In Paris Agreement, developed countries committed under the Warsaw International Mechanism
(WIM) as well as ‘polluters pay principle’ to allocate sufficient resources for developing countries to
mitigate the impacts of climate change induced natural disasters and to recover from associated loss
and damages.
Ñ However, there is a lack of institutional capacity to comprehensively assess and report the actual
loss and damages that hinderring compensation-based climate finance from the developed
nations.
Ñ Instead, the GoB is inclining gradually of introducing corporate prescribed burdensome market-
based bond and insurance systems to recover the loss and damages.
 Emphasized on forest conservation and natural resource management to ensure ecosystem-based
adaptation.
Ñ However, despite being one of the worst climate change affected natural disasters prone
countries, with the funding mostly by China, India, and Japan Bangladesh is continuing to set up
coal and LNG based power plants near the environmentally critical areas including the
Sundarbans. Thus, the GoB is implementing the reverse policy of natural resource protection and
forest conservation.
 Increase mutual cooperation and capacity to strengthen the integrated adaptation for disaster
management.
Ñ However, despite having strong commitments to strengthen cooperation and capacity in disaster
response and climate adaptation, the Ministry of Disaster Management and Relief of Bangladesh

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has no specific workplan to enhance cooperation with the signatory countries of the Paris
Agreement and other national agencies.
B. Sendai Framework for Disaster Risk Reduction 2015-2030
The Sendai Framework for Disaster Risk Reduction is adopted in March 2015, and the GoB pledged to
achieve its key objectives. However, following gaps in pledge verses practices are major challenges.
- Though the framework calls for transparency in disaster risk management, there is a lack of
structured guidelines and mechanisms for disclosure of the information on disaster preparedness,
response, relief, and rehabilitation activities both at national and local levels.
- Despite having standing orders to implement disaster-related laws and regulations by the respective
departments, such orders and laws are not followed and implemented properly to prevent
irregularities and corruption in the disaster preparedness, response, and relief activities.
- Deficiency is also identified in areas of ensuring effective coordination in disaster preparedness,
response, relief and rehabilitation activities at different levels (local, national, and institutional)
amongst government and non-government organizations.
2.2. Disaster-related National Laws, Policies and Orders: Challenges in Compliance
A. Disaster Management Act, 2012
 Section 10(2) of the Act provides direction to appoint the Director General (DG) of the DDM.
However, the selection criteria such as required qualifications, specialized knowledge, and
experiences for this position are not outlined. This may lead to irregularities in the recruitment
process and is a loophole to recruit the position to lead the disaster related multi-disciplinary activities
with specialized knowledge.
 In section 12(1), the Act calls to establish a National Disaster Management Research and Training
Institute. Nonetheless, such institute has not been established yet, and therefore, the shortage of
credible research-based information on disasters prevails despite having huge demand.
 Section 29(1) of the Act mandates the citizens to lodge complaints and receive the redress of reported
irregularities, negligence, or mismanagement. However, in reality, the complainants are sometimes
threatened and intimidated as there are no specific guidelines and proper safeguards for the
whistleblowers. Even, under this law there is no specific provision of punishment for negligence in
resolving the complaints by the concerned officials.
B. National Disaster Management Policy, 2015
 The Policy calls for the innovation to update disaster risk management mechanisms, including timely
dissemination of early warning systems. However, little initiative has been taken so far to upgrade the
system and the early warning is disseminated at the local level using the conventional warning system
that is mostly applicable for the ports and the ships in the sea. The warning system is often misleading
to local people as they do not understand the real danger. As a result, citizens remain at risk with the
potential of harming to their lives and properties.
 The Policy also defined that an online database consisting of reports and documents should be
developed in coordination with the concerned organizations. However, no visible progress has been
made in this regard even after five years of adopting the policy. As a result, there is a scarcity of
information on disasters in the public domain.
 There is a clause to ensure quick delivery of cash and supplies from government storage and relief
funds to various levels efficiently and transparently. However, there are some allegations of the delay
to deliver relief items in remote areas, and not receiving any relief materials and receiving less than

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the actual allocation. Despite allocating money for transportation allegations of illegal selling of relief
materials by the concerned officials and local government representatives were also reported.
C. Cyclone Shelter Construction, Maintenance and Management Policy, 2011
 The policy specifically mentioned the obligation of conducting Environmental Impact Assessment
(EIA) in the planning stage of the construction of cyclone shelters. However, in most of the cases,
EIA was not conducted.
 The policy calls for the use of Geographical Information System (GIS) technology in the selection of
shelter locations ensuring proper assessment of surrounding features such as the vulnerability of the
shelter location, vulnerable community, population density, communication system, distance from the
nearest shelter, etc. However, GIS technology is not utilized properly in selecting suitable places for
shelters. Every year several cyclone shelters have been collapsing into rivers and washed away by
riverbank erosion due to faulty selection of shelter locations by political elites.
 There are examples of using undue political influence and administrative power by the local elites to
influence the decisions in the selection of the locations bypassing local citizens' demand.
Consequently, every year several cyclone shelters have been collapsing into rivers and washed away
by riverbank erosion due to faulty selection of shelter locations.
 Community people are supposed to be involved in the construction and maintenance of the shelters.
However, they are hardly employed by the contractors in the construction work, and also engaging
them in management. The case of using shelters for personal use by local political elites is also
identified that prevents the vulnerable community from taking refuse to the shelter during disasters.
D. Standing Orders on Disaster, 2019
 Standing Orders on Disaster, 2019 provided guideline for the construction and maintenance of
infrastructures, including the repair and reconstruction of damaged embankments, shelters, roads, and
dams. However, non-compliance and corruption cases are widely-observed in such activities,
particularly in the construction of the disaster-resilient infrastructures in coastal areas.
 Though there is an improvement but adequate facilities such as food, water, emergency medical care,
and necessary security were not ensured in cyclone shelters during the disaster despite the orders.
 Allegation of corruption and irregularities in relief and rehabilitation activities are also observed,
while there are deficits of resources and initiatives in taking short, medium, and long term relief and
rehabilitation activities including lengthy process and delay in delivering such emergency measures.
 The order also emphasized on the inter-institutional coordination. However, the lack of coordination
among government and non-government organizations in disaster preparedness, response,
humanitarian assistance, and rehabilitation activities is observed.

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Specific areas of observation
Sidr-
2017
Aila-
2009
Roanu-
2016
Flood-
2019
Amphan-
2020
Dissemination of the disaster
forecasts at the national level
Dissemination of the disaster
forecasts at the local level
Disclosure of information on
number of shelters, available
facilities, and services
Disseminate the
hotline/control room number
among the local community
Disclosure of beneficiary list
for relief at local level
Disclosure of reports related to
actual losses and damages
Disclosure of reports related to
relief distribution
Disclosed
Deficiency
Not-Disclosed
No relevant
information
was found
2.3. Transparency
Table 2: State of the transparency in specific areas of disaster responses
 Similar to the findings on previous disasters, there are allegations of not disseminating information in
remote areas about the forecasts and early warnings on cyclone Amphan.
Ñ Besides, there was inadequate initiative to disseminate the hotline/control room number that was
set up at the Upazila level for providing emergency support to the vulnerable communities during
disasters.
Ñ A committee consisting of officials from different levels was formed with the responsibility of
assessing the district and division-wise loss and damage. However, there are deficits in disclosure
of such report in proper way and the beneficiary list for relief at local level is not published in the
public domain.
Ñ Officials from specific ministries are responsible for monitoring the relief work, assessing and
reporting sector-specific and district-based monitoring reports. However, they do not publish such
reports at the local level.

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Specific areas of observation
Sidr-
2017
Aila-
2009
Roanu-
2016
Flood-
2019
Amphan-
2020
Upgrading and modernizing
the warning and the
dissemination system
Building adequate shelters
Emergency rescue operation
Storing facilities of the relief
materials at the local level
Ensuring safety and security
of the affected communities
Ensuring emergency medical
care and sanitation
Measures in emergency
repair of the damaged
educational institutions
Deficiency
Non-
Existence
2.4. Efficiency
Table 3: Specific areas observed under efficiency
 Deficit of 32 percent shelter is identified against the requirements of the total 22,000 shelters.
 Deficits are also identified in emergency rescue operations by local administrations and public
representatives. In some cases, volunteer teams were not formed to conduct such operations in remote
areas. As a result, people living in remote areas remained vulnerable to disasters.
 Deficits are also identified in storing facilities of the emergency relief materials before the disasters,
while unavailability of sufficient storage facility led to the delay in distribution of relief materials
during and after the disaster.
 Incidence of theft and robbery after the cyclone was reported due to lack of security measures such as
police patrolling in some areas.
 There were deficits in measures, particularly in ensuring sufficient vehicles to evacuate people from
remote and vulnerable areas along with their belongings and domestic animals.
 Lack of emergency medical facilities and sanitation support was observed in previous disasters and
Amphan as well.
Ñ During Amphan, respondents claimed that they did not notice activities of any medical team in
their areas after the disaster. Insufficient allocation of resources for transportation and limited
fund for Upazila Health Complex are obstacles to respond to disasters.
Ñ Delay in taking initiatives to re-establish the health care system (to provide supplementary
equipment, manpower at the union and ward level) was observed in the previous disasters.
Ñ Lack of capacity and efficiency of the Department of Public Health Engineering (DPHE) is also
observed in ensuring safe water supply and sanitation in the impacted areas.
 Lack of measures is also identified to repair and rebuild educational institutions in the post-disaster
period; shortage of budget to repair schools and redistribute of educational materials, and shortage of
initiatives in some remote areas to bring back the poor and drop-out school students.

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Specific areas of observation
Sidr-
2017
Aila-
2009
Roanu-
2016
Flood-
2019
Amphan-
2020
Identifying vulnerable
infrastructures (e.g.
embankment, shelter, road,
educational institutions)
Repairing vulnerable
infrastructures (e.g.
embankments, shelters etc.)
before the disaster
Providing the accurate warning
through using mass media
Determining and assessing
accurate loss and damage
Immediate measures to repair
damaged infrastructures
Deficiency
Not Done
No relevant
information
was found
2.5. Accountability
Table 4: Specific areas observed for accountability
 Officials from BMD sometimes circulated misleading information in electronic and print media about
the intensity or potential risks of the disaster, which created confusion among citizens and
stakeholders engaged in disaster preparedness.
 Despite allocating about BDT 190 billion from both the development funds and the Bangladesh
Climate Change Trust Fund (BCCTF) to BWDB for the coastal areas, compare to other affected areas
a small portion of the resources was allocated to the most disaster-affected districts of Khulna,
Satkhira, and Barguna due to political influence in fund allocation.
 There was a lack of initiatives and measures to repair most of the damaged and weak infrastructures,
including the coastal embankments that were built in the 1960s and 1970s.
Ñ A big portion of the climate and development fund (about BDT 190 billion) is allocated for the
Bangladesh Water Development Board (BWDB) to repair and maintain of weak embankments.
However, there are allegations of massive corruption and irregularities in such activities.
Ñ Lack of institutional capacity of BWDB to utilize the allocated resources efficiently and the
allegation of not using the allocated fund fully.
Ñ The poorly maintained infrastructures were unable to prevent tidal surges. Consequently,
inundation of large areas, including human settlement, was reported during cyclone Amphan and
previous disasters that left several communities and thousands of people homeless.
Ñ BWDB has failed to take immediate measures to repair 54 points and 233 km of damaged
embankments after Amphan that allowed tidal water to enter into the community and caused
waterlogging in some worse affected areas. More than 20,000 people of 18 villages of Assasuni
Upazila in Satkhira District took shelter on embankments during Amphan and they are compelled
to stay there since then. No effective rehabilitation measures were taken by the authority to
recover their residence from saline water and to alleviate the miseries of the people, including the
women, children and elderly.
Ñ Cyclone Amphan caused the inundation of 10,552 hectares of agricultural land and washed away
45,000 houses and 26,050 hectares of fish farms. However, cconcerned committees were unable to

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“Due to long term waterlogging agricultural damages in coastal districts will be
higher, let alone other direct loss and damage. After a year of the Amphan estimated
agricultural loss would be approximately Tk 20.35 billion. Besides, there is a high
probability that around 61,602 hectares of land will remain out of agriculture in the
next two to three years due to salinity caused by waterlogging.”
Specific areas of observation
Sidr-
2017
Aila-
2009
Roanu-
2016
Flood-
2019
Amphan-
2020
Effectiveness of Union and Ward
level Disaster Management Standing
Committees
Organize disaster response drill
(Mohorha) regularly
Identify the vulnerable communities
evacuate them before the disaster
Timely measures to protect household
goods, livestock and storage crops
Proper need assessment of the relief
materials
Proper allocation and distribution of
relief materials
Steps to implement the rehabilitation
activities properly
Monitoring of relief distribution and
rehabilitation works
Grievance redress mechanism in local
level
Non-
Existence
Deficit
No relevant
information
found
assess the actual loss caused by inundation and overall loss and damage from the cyclone
Amphan.
Ñ Failure is also noticed to assess and take into account the long-term loss of agriculture, based on
the experience of cyclones Sidr and Aila (e.g. 35% of agricultural land will not recover from the
salinity-related loss of agricultural products and 20% reduction in crop productivity in the
immediate year of the disaster).
Ñ Deficiency is also observed in the planning and allocating incentive for farmers to recover the loss
and damage.
Table 5: Specific areas of observation for accountability
 The Standing Committees on Disaster Management at the Ward and Union levels are found non-
functional in some areas and failed to ensuring the preparation of shelters, food supply,
accommodation, and other facilities in shelters before a disaster.

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 Despite government orders, disaster response drills are not organized regularly with the involvement
of relevant stakeholders.
 Lack of initiative of the concerned administration and public representatives is also observed to
evacuate vulnerable people from the remote char-lands, islands, and haors.
 In most cases, lack of adequate facilities in shelters is also reported by the affected people.
Ñ People could not bring their domestic animals and necessary stuff due to the unavailability of
space in the shelters and transport supports.
Ñ People were remained hungry in some areas as adequate food was not ensured.
Ñ Lack of proper assessment of food for children and the elderly people.
Ñ Lack of separate living rooms and latrines for women, children, the elderly, and physically
challenged people are also observed.
Ñ Security risks, including unavailability of electricity and lighting system at night were observed in
several shelters.
 In most cases, local administration and public representatives did not assess the relief needs, and often
conduct such assessments without physically visiting the affected areas and families. Failure to
conduct a proper assessment of relief needs is also found, which led to food crises in some study areas
during disasters.
 Inadequate allocation of relief is also observed, which resulted from the arbitrary assessment of the
number of affected people and their needs.
Ñ Cash, rice, and corrugated iron sheet have been allocated without considering the actual number of
victims and households.
Ñ There are also allegations of over-allocation in less-affected areas and less allocation in more-
affected areas due to political considerations.
 Respondents also reported that officials responsible for monitoring relief distribution and
rehabilitation activities have not played their due role and did not visit the affected areas. As outlined
in the Standing Orders on Disaster, ‘tag officers’ and district officials were assigned to supervise and
monitor such activities.
 Proper attention was not given to rehabilitate affected people. Deficiency is also observed in giving
priority to renovate the houses of the completely affected families along with the absence of the
emergency measures to restore their livelihood.
 In Amphan, including Sidr and Aila, people had to stay in open spaces, often unprotected, in absence
of effective rehabilitation measures.
 There is no effective mechanism to lodge complaints regarding the distribution of relief. While
respondents alleged that the Upazila administration has not taken cognizance of the complaints
regarding the distribution of relief and in some cases, whistleblowers have been harassed and
intimidated.

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Specific areas of observation
Sidr-
2017
Aila-
2009
Roanu-
2016
Flood-
2019
Amphan-
2020
Consideration of public
opinion in selecting shelter
location before construction
Participation of local people in
construction, maintenance, and
management of the shelter
Participation of local people in
construction, maintenance, and
management of embankments
Participation of local people in
relief distribution and
rehabilitation activities
Deficiency
Non
Participation
2.6. Participation
Table 6: Specific areas of observation for participation
 It is proven from prior application by the BWDB that the integrated participatory water management
(IPWM) model is more effective and cost-saving. However, BWDB left that and does not apply the
model in construction and maintenance works of coastal embankments and dams. Key informants
claimed that as the scope of corruption could be reduced drastically that’s why, BWDB does not
follow the model.
 Cases of ignoring local people's opinions are reported in disaster-related construction work.
Ñ A shelter was built near an engineer’s house in Gulishakhali of Barguna, ignoring the opinions of
the local UP chairman and the affected community. In selecting the location, they did not
consider the vulnerability of the nearby fishing community those have been living in an island
like place, situated on the other side of the river.
Ñ Locational vulnerability and condition of the local communication system were also not
considered in the decision-making process.
 Like other studies of TIB on disasters, respondents informed that local poor people are not hired as
labor in the construction of shelters and dams, and contractors hire people from outside to hide issues
of corruption in the construction works.

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Specific areas of observation
Sidr-
2017
Aila-
2009
Roanu
-2016
Flood-
2019
Amphan-
2020
Irregularities and corruption in
the construction of disaster
resilient infrastructure
(embankment, dams, roads,
shelters)
Undue political influence and
consideration of personal
interest in the construction of
shelters and embankment
Use of shelter for personal
purposes
Undue political interference in
distribution of relief
Yes
2.7. Corruption and Irregularities
Table 7: Specific areas of observation for corruption and irregularities
 There are examples of using undue political and administrative power and influence by the local elites
and politicians
Ñ Several shelters have been washed away due to riverbank erosion recently in Barisal, Lakshipur,
Chandpur, and some other places of the country.
 Similar to the findings of the previous studies, allegation of irregularities in beneficiary selection and
distribution of relief is reported by the respondents in Amphan response.
Ñ Nepotism and arbitrary selection of beneficiaries to distribute relief materials immediately after
the disasters.
Ñ Local people alleged that local government representatives distributed relief and rehabilitation
materials such as cash, corrugated iron sheets among the beneficiaries on political consideration,
which were allocated to repair the damaged houses as part of post-Amphan rehabilitation
activities.
Ñ Allegations of taking undue payments and bribe from beneficiaries to allocate corrugated iron
sheet and money to repair the damaged houses
 Allegation of irregularities is also reported in print and electronic media in the procurement process of
the DDM in the financial year 2019-2020.
Ñ Procurement guideline was not followed to purchase dry food.
Ñ A contractor was not shortlisted due to lack of experience in the relevant field and not fulfilling
the requirements mentioned in the tender documents. However, the contractor was later awarded
another contract by the DDM.
Ñ A contractor was selected and awarded despite an ongoing lawsuit against the organization by
Anti Corruption Commission (ACC) for supplying low quality corrugated iron sheets for relief
and rehabilitation work.

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 Cases of corruption and irregularities of BWDB are also reported in the maintenance and renovation
of coastal embankments.
Ñ Allegations of collusion among BWDB officials, contractors, and local political elites were also
identified in resolving 360 criminal cases related to cutting embankment for shrimp farming in
Ashashuni Upazila. As a result, such illegal cutting is still ongoing.
Ñ Besides, allegations of siphoning project money by the BWDB officials in collusion with
contractors, particularly to award construction work to the preferred contractors through violating
the procurement process.
Ñ A specific allegation was reported where a tender was awarded to a contractor for raising the
height of an old embankment to 3 feet at Gabura Union of Shyamnagar. However, the work was
not done according to the work order and there is an allegation of embezzlement of project money
against BWDB officials and contractors.
Ñ The allegation of the use of low-quality concrete blocks and embezzlement in collusion of
BWDB project official and contractor was reported in the construction of a dam in Charfashion
and Monpura of Bhola.
Ñ Misappropriation and embezzlement of funds in river excavation projects in Khulna and Satkhira
were widely reported in different electronic and print media.
 Various irregularities and corruptions are also reported in the repair and maintenance of coastal
embankment and dams. There are specific allegations of financial loss of BDT 0.0026 to 1.40 billion
due to corruption in four projects related to construction, renovation, and maintenance of coastal
infrastructures. As a percentage of the project budget, these financial losses in each project ranges
from a low of 14.36% to a high of 76.92%. Table-8 provides some examples of irregularities and
corruption of BWDB in disaster management related activities in coastal areas;
Table 8: Corruption in coastal infrastructure construction, repair and maintenance
Project/ Activity
Type
Corruption type
Time-
frame
Total
budget of
the project
(billion tk)
Financial
loss due to
corruption
(billion tk)
Financial
loss due to
corruption
(%)
Water
management
project
Violation of public procurement
law, lack of related experience
and recruiting a parliament
members wife’s organization
2011
9.75
1.40
14.36
Polder
construction
projects in
Barguna and
Patuakhali
Embezzlement of money with a
coalition of contractor and
project officials
2016
0.7203
0.1683
23.37
Manu river
irrigation and
pump house
rehabilitation
Embezzlement of project funds
by influencing procurement
process and collusion of
contractor and project officials
2019
0.5483
0.3442
62.78
Embankment
construction at
Koira of Khulna
Embezzlement of money
without completing the whole
project work
2020
0.0026
0.0020
76.92

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2.8. Coordination
Table 9: Specific areas of observation for coordination
 There are deficits in coordination in works related to the construction and repair of disaster-resilient
infrastructures.
Ñ Despite involving several government agencies, lack of coordination exists in developing uniform
and standard design of shelters, ensuring proper facilities, and maintenance of shelters.
Ñ There are also cases that representatives of local people's initiated repairing a damaged
embankment in Koyra during Amphan. However, the initiative was failed due to not paying the
promised resource by the local MP, and lack of cooperation from the local administration.
 Frequent allegations of coordination gaps between local administration and the local government
representatives are reported in disaster response related activities.
Ñ Delay in delivery of the allocated relief.
Ñ In some cases, the same beneficiary received relief more than once, while others did not receive
much needed relief despite affected heavily due to Amphan.
 Lack of coordination has also been observed in properly assessing the actual loss and damage caused
by disasters, including Amphan, due to lack of proper coordination among the responsible
organizations.
Ñ DDM estimated the total agricultural loss of BDT 2.19 billion in Amphan while the Ministry of
Agriculture presented the figure 54.34 percent less than that of DDM.
3. Overall Observation
 Lack of effective initiatives is observed to comply with international pledges and agreements, national
laws, policies, and orders related to disaster management.
 From the central level, due to a lack of institutional coordination in dissemination misleading
information on the warning has been provided in some areas and that created confusion and
misunderstanding about the emergency warnings at the local level.
 Accused concerned government agencies have not been held accountable for irregularities and
corruption in the construction and maintenance of disaster-related infrastructures (shelters, dams,
roads, etc.). As a result, public suffering and economic losses have increased significantly.
 Due to lack of transparency, accountability, equity, and public participation, the chance of corruption
and irregularities have increased in the construction of disaster-resilient infrastructures; relief, and
rehabilitation work. Due to such governance deficits, the vulnerability of coastal people has increased
Specific areas of observation
Sidr-
2017
Aila-
2009
Roanu-
2016
Flood-
2019
Amphan-
2020
Inter-institutional coordination in
construction of disaster resilient
infrastructure
Coordination among government and
non-government organizations and
volunteers in disaster preparedness
Coordination among government and
non-government organizations in
allocation and distribution of relief
Deficiency
Non-
Existence

17 | P a g e
significantly. Moreover, the chance of deprivation of actually affected households from disaster
management related benefits has increased.
 Lack of capacity and coordination among inter-agencies in identifying the actual needs for relief and
rehabilitation and assessing the loss and damages.
 Lack of measures and proper planning for immediate and long-term rehabilitation or adaptation. As a
result, a section of the extremely poor and vulnerable group of people is migrating to nearby towns and
capitals. And new climate-driven displacement and internal migration is supposed to increase.
 The recommendations of previous studies on good governance in disaster management have not been
considered, and therefore, the recurrence of previous incidents of governance deficits and failure is
observed in recent disasters including Amphan.
4. Recommendations
1. Upgrade and modernize the disaster warning system and, to avoid confusion, disseminate the warning
carefully in a communicable way to the general people.
2. Ensure timely dissemination of early warnings and security-related messages to the local community
in remote and vulnerable areas with the highest priority.
3. Provide priority to the most vulnerable individuals, households and geographical areas to allocate,
and distribute relief and funds; rehabilitation in a transparent manner.
4. Ensure disclosure of information on relief and rehabilitation in national and local levels and
availability of the disaster related information in the public domain.
5. Ensure participation of local level committees, volunteers, and concerned stakeholders in the
emergency disaster preparedness and response activities to mitigate disaster risk with proper
consideration of local vulnerabilities.
6. Ensure adequate shelters with special facilities for women, children, the elderly, and physically
challenged people.
7. Ensure and provide adequate food, water, sanitation, and emergency medical services at the shelters
considering the number of people taking refuse to shelters during disasters.
8. Ensure the construction of disaster-resilient infrastructures (shelters, dams, and polders) and renovate
and reconstruct them applying the community-led participatory approach by engaging local
government institutions.
9. Ensure accountability to stop corruption, irregularities, delay, and misuse of resources in disaster
management activities and provide priority in implementing disaster-resilient infrastructure project in
most vulnerable coastal districts.
10. Ensure judiciary action and exemplary punishment to the accused responsible one or the concerned
departments through transparent investigation of the irregularities and corruption.
11. Taking time-bound and sustainable measures for effective planning and implementation of
rehabilitation activities to restore the livelihoods of the families affected by the disasters, and to create
new livelihood opportunities through building their capacity to deal with the disasters.
12. Adopt a master plan by integrating the knowledge and experiences of countries in water resource
management, like the Netherlands, to deal with natural disasters and to protect the coastal regions
successfully.
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