68953



Cambodia
Post-Ketsana Disaster Needs Assessment




                   Part I: Main Report




             A Report prepared by the Royal Government of Cambodia
  With support from the World Bank, GFDRR, UN System, ADB and ADPC
                                         Under the Leadership of the
             Cambodian National Committee for Disaster Management



                                             Phnom Penh, March, 2010
 Cambodia PDNA




                                    FOREWORD
Typhoon Ketsana hit Cambodia on September 29/30, 2009, causing incredible damage
and loss, affecting some 50,000 families, leaving 43 people dead and 67 severely
injured.

Originating in the middle of the Pacific, Typhoon Ketsana swept through the
Philippines, Vietnam and the Lao PDR before it ended its destructive path in our
country. All our Northern provinces have been affected by severe storms and flush
floods and most nearby provinces by less severe, but still devastating flooding. Most of
the affected provinces are among the poorest of our country. The damages and losses
caused by this natural disaster are of magnitude that will gravely compromise the
development efforts undertaken so far and seriously set back the dynamism that
characterized our economy in the last decade.

Our Government acted quickly to the news of the catastrophe by dispatching immediate
emergency help and evacuating people, in close collaboration with local authorities, and
the spontaneous and generous support by many donors. On behalf of the Royal
Government of Cambodia, I would like to express our deepest gratitude to our partners
in development for their active participation in the relief activities, which brought vital
help to the disaster-stricken population. The emergency support was overseen by the
Office of the Prime Minister and the National Committee for Disaster Management, with
the active participation of the armed forces, volunteers groups and the Cambodian Red
Cross, which liaised efficiently with provincial and district disaster management offices,
non-governmental organizations and donor agencies.

Recognizing the longer-term impact of the Ketsana disaster, the Government decided to
undertake to assess the damages and the losses caused by the disaster in order to
evaluate the needs for recovery and reconstruction. Such an exercise was a first for the
Government. It responded to two of our concerns, namely to identify the scope of the
investments needed to recover from the Ketsana disaster and to identify the
investments needed to ensure that they will be disaster-resilient. Indeed, if our future
investments are not disaster-resilient, we would have to restart at square one all over
again, every time another natural disaster strikes.

The Report – Post-Disaster Needs Assessment (PDNA) – that I am honored to present to
you evaluates the damages and losses registered in a number of sectors, affected by the
Ketsana Typhoon, and thus goes much beyond emergency aid requirements as it
addresses medium- and longer term needs for recovery, high-resilience reconstruction
and sustainable restoration of livelihoods of the affected population.



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 Cambodia PDNA



This Report, undertaken in November 2009, is the result of a joint initiative between
the Royal Government of Cambodia, its partners in development and civil society
organizations. Based on a proven methodology, originally developed in the early 1970s,
by the United Nations Economic Commission for Latin America and the Caribbean,
continuously expanded and updated, the PDNAs are now accepted throughout the
world as a means for objective and realistic valuation of the damage and losses caused
by a disaster.

The ‘Recovery Effort’ to be undertaken by the Government urgently will enable the
sectors to reach their pre-disaster levels. This, we hope, should be achieved within 24
months. But there are also the longer-term needs that our PDNA Report defines as
‘reconstruction needs’ that will enable the sectors to improve their ‘disaster-resilience’
in order to ensure that in the longer term all our development investments, especially in
infrastructure, will contribute to permanently minimize the risks of future disasters on
our population and our environment. This is a crucial challenge that we have to address
urgently, especially with the climate changes under way.

Our Report clearly states the magnitude of the problems created by the Ketsana
Typhoon and, we hope, informs, as accurately as possible, our partners in development
on the extent of our medium and longer-term resource requirements, the priorities set
and on how to achieve them.

That we can present such a comprehensive Report was possible thanks to the
outstanding work done by the various assessment teams, composed of over 100
individuals from government agencies, civil society organizations and partners in
development. I am taking this opportunity to express, on behalf of the Government, our
sincere appreciation for the excellent work done by the various assessment teams and
to thank wholeheartedly all those who have been involved in preparing the PDNA.

In particular, I wish to acknowledge with deep gratitude the seminal financial support
received from the Global Facility for Disaster Reduction and Recovery (GFDRR) to carry
out the PDNA and to sincerely thank the World Bank for their precious support and role
in coordinating all the efforts that have led to the confection of this Report for whose
content and presentation the Government assumes all responsibility.

The Ketsana disaster also highlighted some basic issues in emergency responses and
disaster-risk reduction management. Section IV of the Report goes to great length in
showing what we have to do in order to fundamentally improve Cambodia’s disaster
risk management capacities. The Government fully endorses all the proposals and
priorities outlined in Section IV and appeals to its partners in development to give
highest attention to this vital aspect in the recovery process.




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 Cambodia PDNA



We are looking forward to discuss the PDNA with our partners in development to
whom I wish to reiterate the Cambodia’s People and Government profound gratitude
for the work done by them in our country and especially for the quick and generous
efforts that they have so efficiently deployed in helping us facing first the humanitarian
needs caused by the Ketsana disaster and now, we are sure, its longer term
consequences.



                                                                     H.E. Dr. Nhim Vanda

                                             Senior Minister in charge of Special Mission

                 First Vice-President of the National Committee for Disaster Management




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                              ACKNOWLEDGMENTS
The Post-Ketsana Disaster Needs Assessment (PDNA) is the result of a joint initiative of the
Royal Government of Cambodia, Cambodia’s Partners in development and Representatives
from civil society organizations. The PDNA was a new endeavor, undertaken in the wake of
the Ketsana Disaster, to assess damage and losses and resource requirements for recovery,
and as such demanded a tremendous effort from everybody involved in this seminal
exercise.

The PDNA team wishes to acknowledge this outstanding effort and to sincerely thank the
government representatives who participated in the PDNA process, both at the national,
provincial and district levels.

The assessment team was composed of a cross-agency group, led by the National
Committee for Disaster Management (NCDM). A wide range of line ministries, including the
Ministry of Public Works and Transportation (MPTW), Ministry of Rural Development
(MRD), Ministry of Industry, Mines, and Energy (MIME), Ministry of Water Resources and
Meteorology (MoWRAM), Ministry of Interior (MoI), Ministry of Environment (MoE),
Ministry of Agriculture, Forestry, and Fisheries (MAFF), Ministry of Social Affairs, Veterans,
and Youth Rehabilitation (MoSVY), Ministry of Economy and Finance (MEF), Ministry of
Education, Youth, and Sports (MoEYS), Ministry of Health (MoH), Ministry of Women’s
Affairs (MoWA), Ministry of Land Management, Urban Planning, and Construction
(MLMUPC), participated very actively in this exacting process as did the Cambodian Red
Cross (CRC) and technical experts from a range of agencies, including the World Bank (WB),
Asian Disaster Preparedness Center (ADPC), United Nations Economic and Social
Commission for Asia and the Pacific (UNESCAP), Asian Development Bank (ADB), World
Health Organization (WHO), United Nations Development Program (UNDP), Food and
Agriculture Organization (FAO), UNICEF, Save the Earth, Caritas, Oxfam GB, Plan
International, and Netherlands Development Organization (SNV).

The PDNA Report was compiled by Veasna Bun (Task Team Leader and WB-PDNA Lead),
Manuel Cocco and Brett Jones (PDNA Secretariat and PDNA Report Team).

The involvement of over a hundred agents and technicians from government agencies, civil
society organizations, and the country’s partners in development, in data collection and
analysis, made this PDNA a success. Without their time, valuable insights, and active
support, the team’s fieldwork could not have been so productive. A special thank goes to
the Team Assistants that made possible all the logistical arrangements, and without whom
the whole exercise would not have been possible.



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 Cambodia PDNA



We also wish to acknowledge with deep gratitude the overall financial support provided for
this assessment by the Global Facility for Disaster Reduction and Recovery (GFDRR), with
special thanks and appreciation extended to its Secretariat, the African, Caribbean, and
Pacific Group of States (ACP), Australia, Belgium, Brazil, Canada, Denmark, the European
Commission, Finland, France, Germany, India, Ireland, Italy, Japan, Luxembourg, the
Netherlands, Norway, Spain, Sweden, Switzerland, Turkey, the United Kingdom, the United
States, UNISDR, and the World Bank.

Photographs used in this publication were taken by the assessment team unless otherwise
indicated. To all of these contributors the team would like to express its deepest thanks and
appreciation.




                                                        The PDNA Team and the World Bank




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 Cambodia PDNA




Contents
FOREWORD ..................................................................................................................... 1
ACKNOWLEDGMENTS ...................................................................................................... 4
EXECUTIVE SUMMARY ................................................................................................... 14
   Damage and Loss ................................................................................................................... 14
   Macro-Economic Impact......................................................................................................... 17
   Livelihood and Other Social Impacts ....................................................................................... 17
   Disaster Risk Management Requirements ............................................................................... 18
   Recovery and Reconstruction Requirements ........................................................................... 18
   EXECUTIVE SUMMARY (Khmer) .............................................................................................. 20
SECTION I : THE 2009 KETSANA TYPHOON IN THE SOCIO-ECONOMIC CONTEXT OF
CAMBODIA .................................................................................................................... 29
   1.1 Typhoon Ketsana’s Immediate Impact .............................................................................. 29
   1.2 First Responses................................................................................................................. 30
   1.3 Social and Economic Background of the Affected Areas ..................................................... 31
   1.4 Vulnerability to Natural Disasters ..................................................................................... 32
SECTION II: SUMMARY OF ASSESSMENT AND SECTORAL REPORTS ................................. 35
   2.1 PDNA Methodology .......................................................................................................... 35
      2.1.1 Rationale ............................................................................................................................................35
      2.1.2 Methodology ......................................................................................................................................36
   2.2 Summary of Damage and Loss .......................................................................................... 38
   2.3 Infrastructure Sector ........................................................................................................ 40
      2.3.1 Transport ............................................................................................................................................40
      2.3.2 Water Supply and Sanitation .............................................................................................................45
      2.3.3 Water Management and Irrigation ....................................................................................................51
      2.3.4 Energy ................................................................................................................................................54
   2.4 Social Sectors ................................................................................................................... 59
      2.4.1 Housing ..............................................................................................................................................59
      2.4.2 Health .................................................................................................................................................64
      2.4.3 Education ...........................................................................................................................................70
   2.5 Productive Sector ............................................................................................................. 75
      2.5.1 Agriculture, Livestock, and Fisheries ..................................................................................................75
      2.5.2 Industry and Commerce .....................................................................................................................79
   2.6 Cross-Cutting Issues .......................................................................................................... 83
      2.6.1 Environment.......................................................................................................................................83
      2.6.2 Public Administration .........................................................................................................................93

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SECTION III: MACRO-ECONOMIC AND SOCIAL IMPACTS .................................................. 98
  3.1 Macro-Economic Impact .................................................................................................. 98
     3.1.1 The Pre-Ketsana Cambodian Economy ..............................................................................................98
     3.1.2 Impact of Typhoon Ketsana on the Economy ..................................................................................101
  3.2 Social Impact .................................................................................................................. 102
     3.2.1 Impact on Livelihoods and Income ..................................................................................................102
     3.2.2 Other Social Impacts ........................................................................................................................105
     3.2.3 Vulnerable Groups ...........................................................................................................................107

SECTION IV: DISASTER RISK MANAGEMENT IN CAMBODIA ........................................... 109
  4.1 Country Risk Profile ........................................................................................................ 109
  4.2 Institutional and Legal Framework for Disaster Risk Management ................................... 109
     4.2.1 National Level ..................................................................................................................................109
     4.2.2 Sub-National Level ...........................................................................................................................110
     4.2.3 Roles and Responsibilities ................................................................................................................110
     4.2.4 Administrative Procedures and Policies ...........................................................................................110
  4.3 Disaster Risk Management in the Poverty Reduction Strategy and Country Development
  Plans ................................................................................................................................... 111
  4.4 Assessment of Disaster Preparedness and Response Interventions .................................. 112
     4.4.1 National and Sub-National Risk Assessment ....................................................................................113
     4.4.2 Early Warning Systems at the National and Sub-National Levels ....................................................114
     4.4.3 Public Awareness .............................................................................................................................114
     4.4.4 Capacity Building ..............................................................................................................................115
     4.4.5 Disaster Response ............................................................................................................................115
     4.4.6 Mainstreaming and Financing Disaster Risk Reduction ...................................................................116
  4.5 Priorities for Disaster Risk Reduction in Cambodia........................................................... 117
     4.5.1 Reducing Risk in the Recovery Process ............................................................................................117
     4.5.2 Priority Medium- and Long-Term Needs..........................................................................................118

SECTION V: RECOVERY AND RECONSTRUCTION REQUIREMENTS .................................. 123
  5.1 Guiding Principles for Recovery....................................................................................... 123
  5.2 Overview of Sector Requirements ................................................................................... 125
  5.3 Strategic Priorities .......................................................................................................... 126
     5.3.1 Transport (USD 91 million) ...............................................................................................................126
     5.3.2 Agriculture, Livestock, and Fisheries (USD50-70 million).................................................................127
     5.3.3 Water Management and Irrigation (USD 8 million) .........................................................................128
     5.3.4 Industry and Commerce (USD 10 million) ........................................................................................128
     5.3.5 Education (USD 2 million) ...............................................................................................................129
     5.3.6 Housing (USD 14 million).................................................................................................................130
  5.4 Additional Sector Recovery Needs .................................................................................. 131
     5.4.1 Infrastructure Sector ........................................................................................................................131
     5.4.2 Social Sectors ...................................................................................................................................131
     5.4.3 Cross-Cutting Sectors .......................................................................................................................132


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Cambodia PDNA



 5.5 Tentative Donor Commitment by Sector ......................................................................... 133




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List of Boxes
Box 1: Resin, A Non-Timber Forest Product ........................................................................................................86
Box 2: Typical Livelihood Changes in Koh Khorndin, Stung Treng District .........................................................105
Box 3: Who Are the Most Vulnerable In Cambodia? .........................................................................................107

List of Maps
Map 1: Geographic Areas of Cambodia Affected by Typhoon Ketsana ...............................................................29
Map 2: Provinces with Pronounced Health Affects ..............................................................................................65

List of Figures
Figure 1: Distribution of Damage and Loss by Sector --------------------------------------------------------------------------- 16
Figure 2: PDNA Connecting Emergency Response with Longer-Term Reconstruction and Development -------- 36
Figure 3: Population Served by Clean Water in Urban Areas ----------------------------------------------------------------- 46
Figure 4: Permanent, Semi-Permanent, and Temporary Residential Buildings, 2008 (%) ----------------------------- 59
Figure 5: Health System Organization----------------------------------------------------------------------------------------------- 65
Figure 6: Protected Areas of Cambodia with IUCN Designation-------------------------------------------------------------- 84
Figure 7: Economic and Sector Performance, 2004-2009 ---------------------------------------------------------------------- 98
Figure 8: Impact on Economic Growth, 2009 ------------------------------------------------------------------------------------ 101
Figure 9: Poverty Score by Province, 2007 ( >100=Poorer; <100=Richer) ------------------------------------------------ 103
Figure 10: Employed Population by Industrial Sector, 1998 and 2008 --------------------------------------------------- 104

List of Tables
Table 1: Summary of Damage and Loss (USD) ------------------------------------------------------------------------------------ 15
Table 2: Recovery and Reconstruction Needs (USD) ----------------------------------------------------------------------------- 19
Table 3: Affected Assets by Typhoon Ketsana and Flash Floods (As of October 26, 2009) ---------------------------- 34
Table 4: Summary of Damage and Loss (USD) ------------------------------------------------------------------------------------ 38
Table 5: Road Classification and Management Responsibilities ------------------------------------------------------------- 41
Table 6: Physical Damages to Transport Sector ---------------------------------------------------------------------------------- 41
Table 7: Summary of Effects of Typhoon Ketsana on Transport Sector ---------------------------------------------------- 43
Table 8: Recovery Needs for Transport Sector In the Short, Medium, and Long Term (USD) ------------------------- 44
Table 9: Damage and Loss in Water and Sanitation Sector (USD million) ------------------------------------------------- 49
Table 10: Recovery and Reconstruction Needs Assessment In Water and Sanitation Sector (USDmillion) ------ 51
Table 11: Summary of Damage and Loss in Water Management and Irrigation Sector (USD million) ------------ 53
Table 12: Recovery and Reconstruction Needs Assessment For Water Management and Irrigation (USD
million) --------------------------------------------------------------------------------------------------------------------------------------- 53
Table 13: Electricity Sector at a Glance --------------------------------------------------------------------------------------------- 54
Table 14: Description of Electricity Sector in Affected Provinces ------------------------------------------------------------- 55
Table 15: Impact of Disaster on Energy Sector in Affected Area s (%) ------------------------------------------- 56
Table 16: Damage and Loss in Energy Sector ------------------------------------------------------------------------------------- 57
Table 17: Cost of Estimated Needs in Energy Sector (USD thousand) ------------------------------------------------------ 58
Table 18: Household Assets in the Affected Areas ------------------------------------------------------------------------------- 60
Table 19: Number of Houses Affected, by Province ------------------------------------------------------------------------------ 61
Table 20: Damage and Loss in Housing, by Province (USD) ------------------------------------------------------------------- 62
Table 21: Recovery and Reconstruction Needs Assessment for Housing, by Province (USD) ------------------------- 63
Table 22: Damage and Loss in Health Sector (USD) ----------------------------------------------------------------------------- 66
Table 23: Submerged Health Centers and Health Posts ------------------------------------------------------------------------ 67
Table 24: Regulatory Framework and Policy Development for Health Sector -------------------------------------------- 70
Table 25: Number of Schools Affected by Floods and Wind ------------------------------------------------------------------- 71
Table 26: Schools Affected by Floods vs Total Number of Schools in Affected Provinces ------------------------------- 71


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Table 27: Projected Cost for Repair and Replacement of Flood-Affected School Buildings --------------------------- 73
Table 28: Recovery Framework and Additional Reconstruction Efforts for Education (USD) ------------------------- 75
Table 29: Summary of DaLA for Agriculture Sector (USD million)------------------------------------------------------------ 77
Table 30: Summary of Needs for Agriculture, Livestock, and Fisheries (USD) -------------------------------------------- 78
Table 31: Micro- and Agro-Industrial Enterprises in Affected Provinces --------------------------------------------------- 80
Table 32: Impact on Industrial Sub-Sectors (USD) -------------------------------------------------------------------------------- 81
Table 33: DaLA Needs Recovery Framework for Industry and Commerce (USD) ----------------------------------------- 83
Table 34: Damage and Loss for Industry and Commerce (USD) --------------------------------------------------------------- 88
Table 35: Recovery Framework for the Environment (USD) -------------------------------------------------------------------- 91
Table 36: Recovery of Public Administration Buildings (USD) ----------------------------------------------------------------- 97
Table 37: Prices of Second-Grade Rice (NeangMenh)In Selected Provinces Post Ketsana (USD) ------------------ 102
Table 38: Prices of Rice in Phnom Penh Post Ketsana (USD) ----------------------------------------------------------------- 102
Table 39: Types of Shocks/Risks in Selected Provinces ------------------------------------------------------------------------ 106
Table 40: Illustrative Examples for Integrating Risk Reduction Into Cambodia’s Recovery Process -------------- 117
Table 41: Priorities for Disaster Risk Reduction in Cambodia --------------------------------------------------------------- 120
Table 42: Key Elements of Disaster Risk Management ----------------------------------------------------------------------- 123
Table 43: Summary of Damage, Loss, and Needs Assessment (DLNA) --------------------------------------------------- 125
Table 44: Transport Sector Recovery in the Short, Medium, and Long Term (USD) ----------------------------------- 127
Table 45: Agriculture, Livestock & Fisheries Recovery Cost in Short, Medium, and Long Term (USD) ----------- 128
Table 46: Water Management & Irrigation Recovery Cost in Short, Medium, and Long Term (USD) ------------ 128
Table 47: Industry and Commerce Recovery Cost in the Short, Medium, and Long Term (USD) ------------------- 129
Table 48: Overall Education Recovery Cost in the Short Term (USD) ------------------------------------------------------ 130
Table 49: Housing and Shelter Recovery Cost in the Short, Medium, and Long Term (USD) ----------------------- 130
Table 50: Summary of Recovery Framework and Tentative Donor Commitment -------------------------------------- 133




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                                    ACRONYMS

AC               Asphalt Concrete
ADB              Asian Development Bank
ADPC             Asian Disaster Preparedness Centre
AOP              Annual Operational Plan
ASEAN            Association of South East Asian Nations
AUSAID           Australian Agency for International Development
BBB              Build Back Better
CC               Climate Change
CCA              Civil Aviation Authority
CCA              Common Country Assessment
CCDM             Commune Committee for Disaster Management
CF               Community Forest
CMDG             Cambodian Millennium Development Goals
CPA              Community Protected Area
CRC              Cambodian Red Cross
CSES             Cambodian Socio-Economic Survey
CSF              Commune Sangkat Fund
DaLA             Damage and Loss Assessment
DANA             Damage and Needs Assessment
DBST             Double Bitumen Surface Treatment
DCDM             District Committee for Disaster Management
DFID             Department for International Development
DIPECHO          Disaster Preparedness Programme European Commission Humanitarian
                 Aid Department
DRM              Disaster Risk Management
DRR              Disaster Risk Reduction
EAC              Electricity Authority of Cambodia
EC               European Commission
ECHO             EC Humanitarian Aid Department
ECLAC            Economic Commission for Latin America and the Caribbean
EDC              Électricité du Cambodge
EWS              Early Warning System
FAO              Food and Agriculture Organization of the United Nations

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FGD              Focus Group Discussion
GFDRR            Global Facility for Disaster Reduction and Recover
GTZ              Deutsche Gesellschaft für Technische Zusammenarbeit
HDI              Human Development Index
HDMC             Health Disaster Management Committee
HFA              Hyogo Framework for Action
ILI              Influenza-Like-Illness
ISDR             International Strategy for Disaster Reduction
IUCN             International Union for the Conservation of Nature
JICA             Japan International Cooperation Agency
LDC              Least Developed Country
LWF              Lutheran World Federation
MAFF             Ministry of Agriculture, Forestry and Fisheries
MEF              Ministry of Economy and Finance
MIME             Ministry of Industry, Mines and Energy
MLMUPC           Ministry of Land Management, Urban Planning and Construction
MOD              Ministry of Defense
MOE              Ministry of Environment
MOEYS            Ministry of Education, Youth and Sports
MOH              Ministry of Health
MOI              Ministry of Interior
MOINF            Ministry of Information
MOP              Ministry of Planning
MOSVY            Ministry of Social Affairs, Veterans, and Youth Rehabilitation
MOU              Memorandum of Understanding
MOWA             Ministry of Women Affairs
MOWRAM           Ministry of Water Resources and Meteorology
MPWT             Ministry of Public Works and Transports
MRC              Mekong River Commission
MRD              Ministry of Rural Development
NAPA             National Adaptation Programme of Action to Climate Change
NCDM             National Committee for Disaster Management
NEMP             National Emergency Management Plan
NGO              Non Government Organization
NIS              National Institute of Statistics
NPO              National Professional Officer

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NSDP             National Strategic Development Plan
NTFP             Non-Timber Forest Product
ORS              Oral Rehydration Salts
PA               Protected Area
PCDM             Provincial Committee for Disaster Management
PDNA             Post Disaster Needs Assessment
PDoWRAM          Provincial Department of Water Resources and Meteorology
PPP              Public-Private Partnership
PSDD             Project in Support of Democratic Development through Decentralization
                 and Deconcentration
REDD             Reduced Emissions from Deforestation and Forest Degradation in
                 Developing Countries)
REE              Rural Energy Enterprise
RGC              Royal Government of Cambodia
SNAP             Strategic National Action Plan
SNV              Netherlands Development Organization
UN/ISDR          United Nations International Strategy for Disaster Reduction
UNDAF            United Nations Development Assistance Framework
UNDMT            UN Disaster Management Team
UNDP             United Nations Development Program
UNICEF           United Nations Children's Fund
UNRC             United Nations Resident Coordinator
VOC              Vehicle Operating Cost
WFP              World Food Programme
WHO              World Health Organization
WS               Wildlife Sanctuary
WSS              Water Supply and Sanitation
WW               Waste Management
WWL              World Wildlife Fund




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    Cambodia PDNA                    EXECUTIVE SUMMARY




                                 EXECUTIVE SUMMARY
Typhoon Ketsana hit Cambodia between September 29 and October 5, 2009. Fourteen out
of 24 provinces were affected by the storm and subsequent flash floods. The typhoon left
43 people dead, 67 people severely
injured, and destroyed homes and
livelihoods of some 49,000 families, or
about 180,000 people, the equivalent
of 1.4 percent of Cambodia’s total
population. Most of the affected
districts are among the poorest in the
country. The widespread damage to
property, livelihoods, and public
infrastructure in these areas will have
a long-term impact.

About 80 percent of the Cambodia’s
territory lies within the Mekong River and Tonle Sap Basin, known to have large fluctuations
of water levels between the dry and wet seasons. This causes an annual cycle of droughts
and floods, damaging agricultural production and livelihoods and constraining economic
growth and poverty alleviation. It is estimated that floods cause agricultural losses of USD
100–170 million each year. Natural disasters have always had a substantial impact in the
rural areas where about 80 percent of Cambodia’s poor reside (CSES 2007). However, the
Ketsana Typhoon had a destructive power not seen in decades.

Damage and Loss

Damage and loss from Typhoon Ketsana in Cambodia were concentrated in Stung Treng, the
south of Preah Vihear, the north of Kampong Thom (by far the most badly hit), and the west
of Siem Reap Provinces. The typhoon was followed by flash floods that submerged parts of
Ratanak Kiri, Mondul Kiri, Kratie, Oddar Meanchey, Banteay Meanchey, Battambang,
Kampong Cham, Kampong Chhnang, Preah Sihanouk, and Kampot Provinces, exacerbating
its destructive impact. .

The Government acted quickly, delivering immediate emergency aid, greatly helped in this
by its many partners in development1. Recognizing, however, the long-term effect of the
typhoon on vulnerable people and the affected areas’ development perspectives, the Royal
Government of Cambodia, through the Ministry of Economy and Finance (MEF) as well as

1‘Partner in development’ is normally used by aid recipient countries to characterize donor countries,
while ‘development partners’ is used by donor countries when speaking of aid recipient countries.

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the National Committee for Disaster Management (NCDM), with the assistance from the
World Bank and in partnership with its partners in development, carried out a
comprehensive Post-Disaster Damage, Loss, and Needs Assessment (PDNA) to ascertain the
extent of the damage and loss caused by the event, and to define a comprehensive and
feasible recovery plan. Such a comprehensive exercise was a first for the Government, and
attests to its determination to assume its responsibilities with regard to disaster
preparedness. The PDNA estimated the total damage and loss caused by Typhoon Ketsana
to be USD 132 million (damage: USD 58 million and loss: USD 74 million).

Table 1 presents an overall summary of damage and loss broken down by sectors. The
productive sector is the most affected (56% of all damage and loss), followed by the social
sectors (26%), and the infrastructure sector (18%). Damage and loss of the cross-cutting
sectors (environment and public administration) can be considered as negligible when
compared to the sectors.

                              Table 1: Summary of Damage and Loss (USD)

                           Table 1: Summary of Damage and Losses (DaLA)
                                                              Disaster Effects, US$
                   Sector and Subsectors
                                                      Damage        Losses         Total
             Infrastructure                          17,259,051    11,487,577     28,746,628
             Transport                              14,388,832     11,076,698     25,465,530
             Water Supply and Sanitation                  64,339      392,689          457,028
             Water Management and Irrigation          2,779,000        13,000         2,792,000
             Energy                                       26,880        5,190         32,070
             Social Sectors                          39,548,563     3,333,813     42,882,376
             Housing and Shelter                     15,281,952     3,294,398     18,576,350
             Health                                       57,072       39,415           96,487
             Education                              24,209,539              -     24,209,539
             Productive Sectors                       1,051,124    59,008,162     60,059,286
             Agriculture, Livestock and Fisheries         91,270   56,420,846     56,512,116
             Industry & Commerce                         959,854    2,587,316         3,547,170
             Cross-Cutting Sector                        205,358      102,767           308,125
             Environment                                  31,073      98,367           129,440
             Public Administration                       174,285        4,400          178,685
             TOTAL                                   58,064,096    73,932,319    131,996,415

                                   Source: PDNA Team Elaboration (2009).

The largest impact in the productive sector was on the agriculture, livestock, and fisheries
subsectors. Agriculture alone provides more than 30 percent of the Cambodia’s gross
domestic product (GDP) and is also the mainstay of rural economy in terms of providing

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 Cambodia PDNA                   EXECUTIVE SUMMARY




food security. In terms of agricultural impact, the typhoon affected 10 provinces, destroying
40,136 hectares and damaging 67,355 hectares of rice crop just before harvest. The loss of
potential meat production was also high. Total Damage and Loss for the
agriculture/livestock and fisheries subsector as a whole amounts to USD 56 million.
Regarding the industry and commerce subsector, damage and loss amount to USD 3.5
million and concern essentially the micro- and agro-enterprises which play a crucial role in
the economic development of the country.


The damage and loss caused by Ketsana Typhoon in the infrastructure sector (USD 28.7
million) is concentrated in the transport subsector (USD 25.5 million). Typhoon Ketsana
damaged road networks in 18 provinces (urban, national, provincial, and rural roads).
Losses result primarily from higher vehicle operating costs and longer freight and passenger
   Figure 1: Distribution of Damage and Loss by Sector     travel times associated with
                                                           deteriorated road conditions.
                                               Social      Damage       in     the   transport
    Infrastruct
    ure Sector
                              Cross-          Sector       subsector        is     particularly
                             cutting            26%
        18%                   0,1%                         consequential since the road
                                                           sector provides the vital access to
                                                           production and markets and is
                        Productive
                          Sector                           thus essential for economic
                           56%                             growth and poverty reduction.
                                                           Regarding the water management
                                                           and irrigation subsector, damage
                                                           (USD 2.8 million) was largely due
                Source: PDNA Team Elaboration (2009).      to the removal of the stone
                                                           pitching from the bed of the
canals because of the high velocity of the water flow and also of the erosion of the stone
masonry along the bank slopes of the canals. Finally, damage and loss suffered in the water
supply and sanitation subsector (USD 0.5 million) varies according to the various provinces,
with the largest impact being in Kampong Thom, Stung Treng, and Kratie. Damage to pipe
networks leading to disruption of water supply and affecting revenue generation was the
primary cause of damage and loss in the urban water supply system. In the rural areas, the
impact was largely due to the flooding of tube wells and latrines and soil subsidence below
the platform of the wells leading to cracks and eventually resulting in surface runoffs.

In the social sectors (USD 42,8 million), damage and loss was largest in the education
subsector (USD 24 million), followed by housing (USD 18,5 million) and health. Schools
suffered most from the Typhoon (12% of the total schools in Cambodia were affected);
many had to be closed either because of direct flooding or due to inaccessibility. The poor
quality of non-reinforced concrete floors used in the construction of school buildings and
the loosely fitted roof tiles were the primary cause of damage to the school buildings. In the

                                              16
 Cambodia PDNA                  EXECUTIVE SUMMARY




case of housing, the provinces of Kampong Thom, Preah Vihear, Ratanak Kiri, and Kratie are
the most affected. In the health sector, while the majority of health centers continue to be
in good condition, the existing problem of poor access to health care by the vulnerable
population was further magnified by the impact of this typhoon and the subsequent
flooding.



Macro-Economic Impact

Typhoon Ketsana inflicted an estimated loss of USD 17 million (Riel 69 billion) on the GDP
through essentially its detrimental impact on rice crops. The loss in rice production
represents a reduction of economic growth of 0.2 percent for 2009, thus reducing the
expected growth rate for 2009 of 2.1 percent to 1.9 percent.

While the impact on fiscal revenues can be considered as insignificant, it is, however,
expected the Ketsana disaster’s impact on the expenditure side to be important, due to the
financing of the medium- and long-term reconstruction needs. The draft 2010 budget law,
submitted to the National Assembly in December 2009, projects lower overall revenues in
2009 due to slower economic growth, but higher overall expenditures. The need to rebuild
physical infrastructure and restore livelihoods will certainly increase the fiscal deficit and
hence require additional domestic and foreign financing.

Livelihood and Other Social Impacts

The poverty level in the 14 provinces hit by Typhoon Ketsana is above the national average,
and the Ketsana disaster will doubtless increase this inequality. Household incomes in these
provinces rely primarily on rice farming, crop farming, and access to common property
resources such as fish and non-timber forest products (NTFPs) to sustain livelihoods. All
these activities have largely suffered from the typhoon. The conditions are likely to become
even more severe in 2010, because before the typhoon struck, approximately 49,000
families were already suffering from food shortage and as a great proportion of the rice
crop that would have been harvested in November and December 2009 was damaged or
destroyed, potential off-farm jobs from the rice harvest have also been lost. Households
headed by women, the elderly, and families with disabled members as well as ethnic
minorities living in the mountainous regions of Ratanak Kiri, Mondul Kiri, Stung Treng, and
Kampong Thom Provinces are particularly vulnerable to losses of rice production.




                                             17
 Cambodia PDNA                   EXECUTIVE SUMMARY




Disaster Risk Management Requirements

Typhoon Ketsana highlights some of the fundamental areas for reform in Cambodia’s
emergency response and disaster risk reduction systems. The process of data collection and
management for assessing damages and losses and tracking emergency assistance has to be
improved, along with capacity building activities for both the line ministries and national
and sub-national Committees for Disaster Relief to facilitate their participation in the
recovery process. Cambodia’s early warning system should also be improved through
appropriate investments to make it more efficient, Disaster Risk Management (DRM)
mainstreamed into the activities and policies of Cambodia’s line ministries and its
institutional and legal basis strengthened.

Recovery and Reconstruction Requirements

The proposed Typhoon Ketsana recovery framework aims to respond to the reconstruction
and livelihood restoration needs of the affected communities, while laying down the
foundation for longer-term risk reduction measures to protect population and communities
against possible future natural disasters. For this reason, it is imperative for the recovery
process to be guided by three key principles, namely: (i) transparency, (ii) accountability and
results-based implementation, and (iii) community-based, people-centered, and equitable
approaches to mitigating future risks.

The priority sectors identified by the PDNA for recovery include: (i) transport, (ii)
agriculture, (ii) water management and irrigation, (iv) industry and commerce, (v)
education, and (vi) housing; and the priorities have been regrouped according to the short
term (0-6 months), medium term (1-2 years), and long term (1-5 years) needs.

The priorities in the transport sector include reconstruction of national, provincial, and rural
road networks damaged by the typhoon and development of specific standards for road
construction and maintenance—particularly for the most flood-prone areas.

The recovery of the agriculture sector is crucial, especially with the potential threat to food
security in most of the affected provinces. The proposed recovery framework includes
priority activities ranging from continuing assistance in form of seed, fertilizer, and
equipment; scaling up ongoing cash-for-work, food-for-work, and local employment-
generation schemes; and creating hazard-resilient agricultural systems.

The needs for water management and irrigation include repair of damaged irrigation
schemes, development of a water management strategy for flood and drought risk
reduction, as well as increasing the hazard-resilient standards of structures related to
irrigation in the long term.



                                              18
 Cambodia PDNA                         EXECUTIVE SUMMARY




Table 2 summarizes the requirements for the priority sectors.

                         Table 2: Recovery and Reconstruction Needs (USD)




   Note: For Education, only Short Term recovery is considered in the Recovery Framework for Typhoon Ketsana.
   The additional reconstruction effort should be part of other stand alone programs.

                                   Source: PDNA Team Elaboration (2009).

The industry and commerce sector has outlined the following four priorities: repair and
replacement of damaged machinery and equipment; upgrading of machinery to make it
hazard-resilient; supporting regulatory framework and capacity building; and lastly,
undertaking public awareness on disaster risk reduction among the private sector.

The recovery for the education sector will target the facilities that are still damaged,
prioritizing by examining, on a case-by-case basis, together with the photographic evidence,
school enrollment records and total number of classrooms to determine short-, medium-,
and long-term priorities.

In the housing sector, the priority will be to repair/and Build Back Better (BBB) the
destroyed and most damaged houses in the short term and to review the housing standards
and hazard-resilient construction in the medium and long term.

For the sectors that are not identified as a priority, the recovery program would still be
guided by the same principles and will integrate disaster risk management in the process.

                                                      19
    Cambodia PDNA                   EXECUTIVE SUMMARY




                            EXECUTIVE SUMMARY (Khmer)

                                         esckþIsegçb
                                                                 ú
         xül;BüúHektsaNa (Ketsana) )ane)akbk;mkelIRbeTskm<Caeday)ankMeTcpÞHsMEbgrbs;RbCa
BlrdæGs;CaeRcInxñg bgákarxUcxatdl;sMNg;GKarCaeRcIn nigbNþaleGaymanTwkCMnn;y:agxøaMgenAcenøaH
    I
éf¶T26 ExkBaØa dl;éf¶TI05
Extula qñaM2009 muneBlEdl
                            øÜ
xül;BüúHenHbnßy\T§iBlrbs;xneTA
Casm<aFRtUBic vij CamYynwgkmøaMg
xül;manel,ÓnyWtCagmun nigman
ePøógFøak;eCaKCaMy:agxøaMg     .
eyagtamKN³kmµaFikarCati
RKb;RKgeRKaHmhnþray (NCDM)
      M           ú
extþcnYn 14 kñgcMeNamextþTaMg
24 )anTTYlrg\T§iBlBIxül;BüúH
nigTwkCMnn;Edl)anekIteLIgPøam²
CabnþbnÞab;enaH .2 xül;BüúHenH
                                                   ;
)aneFVIeGaymanmnusSsøab;cMnYn 43 nak; rgrbYsF¶ncMnYn 87 nak; nigRbCaBlrdæRbEhl 49>787
                                    M            i
RKYsar)at;bg; pÞHsMEbg nigR)ak;cNUl edIm,IcBa©wmCIvit . man RbCaBlrdæcnn 180>000 MY
                                                                   Iw
nak;EdlTTYlrg\T§iBl ¬TaMgedaypÞal; nigeday Rbeyal¦ Edlesµng 1/4° énRbCaCnsrub .
                                 ßi                      u ú
RsukPaKeRcInEdlTTYlkarxUcxatKWstenAkñúgcMeNamRsukRkIRkbMptenAkñgRbeTs                            .
karxUcxaty:agxøaMgdl;RTBüsm,tiþ       CIvPaBrs;enA                                   ú
                                                       nigehdæarcnasm<½n§saFarN³enAkñgtMbn;TaMgenaH
nwgmanplb:HBal;ry³eBlEvgeTAelIkarrs;enArbs;shKmn_ .


2
    NCDM                     M
           éf¶TI26 Extula qña2009
                                                20
 Cambodia PDNA                    EXECUTIVE SUMMARY




                                                                                 ú
        eRKaHmhnþrayFmµCatikalBIGtItkal manplb:HBal;KYreGaykt;sm�al;enAkñgtMbn;CnbTEdlman
                                                    ú
RbCaCnRbmaN 79>8 PaKryRtUv)an):an;sµanfars;enAkñgtMbn;RkIRkTaMgenaH (CSES, 2007) . TwkdIRbeTs
   ú                            w
km<CaRbEhl 80 PaKrylatsn§genAkñúgGagTenøemKg� nigTenøsab EdlRtUv)ans�al;famankarERbRbYlkm<s;
                                                                           Ü
TwkrvagrdUvR)aMg nigrdUvvsSa . ktþaenHbNþaleGaymanvdþRbcaMqñaMéneRKaHraMgs¶t nigTwkCMnn;Edlbgákar
xUcxatdl;plitkmµksikmµ nigCIvPaBrbs;RbCaBlrdæ nigCaktþaraMgsÞHdl;kMeNInesdækic© nigkarkat;bnßy
PaBRkIRkeTotpg . mankar):an;saµ nfaeRKaHTwkCMnn;)anelbRt)ak;CIvitmnusSRbEhl 100 nak;Caerogral;qñaM
                              w
nigbgákarxatbg;EpñkksikmµGs;TkR)ak;BI 100 eTA 170 landulaø rGaemrikCaerogral;qñaM .
       karxUcxat nigkarxatbg;
                                                                    ú          ú
         karxUcxat nigkarxatbg;EdlbNþalmkBIxül;BüúHektsaNaenAkñgRbeTskm<Ca RtUvepþateTAelI
                                                     M
extþsÞwgERtg PaKxagt,ÚgextþRBHvihar PaKxageCIgextþkBg;FM
                                                                                    Social
                     ;
¬EdlrgkarxUcxatF¶nFr¶ bMput¦ nigPaKxaglic extþesomrab . cture
                                                          Infrastru       Cross-
                                                                          cutting
                                                                                    Sector
                                                                                     26%
                                                           Sector
                                                  i
xül;BüúHenH)annaMmkCamYynUvTwkCMnn;Paø m²EdlCn;lcPaKCa      18%
                                                                           0,1%


eRcInénextþrtn³KIrI mN�lKIrI RkecH ]tþrmanC½y bnÞaymanC½y             Producti
                                                                         ve
                                                                       Sector
)at;dMbg kMBg;cam kMBg;qañ Mg RBHsIhnu nigkMBt                          56%


edaybEnßmkarxUcxat nigkarxatbg;kan;EteRcIneLIgEfmeTot .
        edayTTYls�al;\T§iBlry³eBlEvgrbs;xül;BüúHenH eTAelIRbCaCnEdlgayrgeRKaHenaH rdæaPi)al
                       i
Edltamry³RksYgesdækc© nighirBaØvtßú (MEF) RBmTaMgKN³kmµaFikarCatiRKb;RKgeRKaHmhnþray (NCDM)
           Y                                 ú
edaymanCMnyBIsMNak;FnaKarBiPBelak nigsßitkñgPaBCaédKUCamYybNþaédKUGPivDÆn_déTeTot )aneFVIkarvay
                                                                            U
témøkarxUcxat karxatbg; nigtRmUvkar bnÞab;BImaneRKaHmhnþray (PDNA) d¾TlMTUlayedIm,IrkeGayeXIj
visalPaBénkarxUcxat nigkarxatbg;EdlbNþalmkBIeRKaHmhnþrayenH RBmTaMgedIm,IkMNt;EpnkarsþareLIgvij
                  MU
EdlmanlkçN³TUlTlay nigGacGnuvtþ)an . PDNA )an):an;saµ nfakarxUcxat nigkarxatbg;srub Edl
                                                     Y
bNþalmkBIxül;BüúHektsaNaenH KitCaTwkR)ak;mancMnn 132 landuløarGaemrik EdlkñgcMnnenH         ú Y
                       MY
karxUcxatKitCaTwkR)ak;cnn 58 landuløarGaemrik nigkarxatbg;KitCaTwkR)ak;cMnYn 74 landuløarGaemrik .



                                               21
 Cambodia PDNA                        EXECUTIVE SUMMARY




       tarag 1 bgðajGMBeI sckþIsegçbTUeTAénkarxUcxat nigkarxatbg;EdlRtUv)anEbgEckeTAtamvis½y
epSg² . Bak;B½n§nwgcMENkénkarxUcxat nigkarxatbg;srub vis½yplitPaBmancMENkPaKryx<s;CageK
                                                       ½
¬56°¦ bnÞab;mktamvis½ysg�m ¬26°¦ nigehdæarcnasm<n§ ¬18°¦ cMENkÉvis½ybnÞab;bnSMmanplb:H
     i
Bal;tctYcbMputGackat;ecal)an ebIeRbobeFobnwgvis½ydéTeTot .

                              tarag 1 ³ esckþIsegçbkarxUcxat nigkarxatbg; (DaLa)
      vis½y nigGnuvis½y                          plb:HBal;éneRKaHmhnþray KitCaduløarGaemrik
                                        karxUcxat                karxatbg;                   srub
ehdæarcnasm<n§ ½                          17>259>051               11>487>577                28>746>628
       Ú
dwkCBa¢n                                  14>388>832                11>076>698               25>465>530
    ;
p�tp�g;Twk nigGnam½y                           64>339                  392>689                   457>028
RKb;RKgTwk nigFarasaRsþ                     2>779>000                   13>000                 2>792>000
famBl                                           26>880                     5>190                  32>070
vis½ysg�m                                 39>548>563               3>333>813                 42>882>376
karpþl;leM nAdæan nigTICRmk               15>281>952                 3>294>398               18>576>350
suxaPi)al                                       57>072                  39>415                    96>487
karGb;rM                                   24>209>539                                        24>209>539
vis½yplitPaB                                1>051>124               59>008>162                60>059>286
ksikmµ bsustV nigensaT                          91>270              56>420>846               56>512>116
]sSahkmµ nigBaNiC¢kmµ                          959>854               2>587>316                3>547>170
vis½ybnÞab;bnSM                               205>358                  102>767                  308>125
brisßan                                        31>073                   98>367                   129>440
rdæ)alsaFarN³                                 174>285                      4>400                 178>685
srub                                       58>064>096             73>932>319                131>996>415


                                                   22
 Cambodia PDNA                       EXECUTIVE SUMMARY




         plb:HBal;FMbMputenAkñúgvis½yplitPaB KWekItmanelIvis½yksikmµ bsustV nigensaT . vis½y
                              ú
ksikmµEtÉkÉgpþl;plitplkñgRsuksrub (GDP) eRcInrbs;RbeTskm<úCaeRcInCag 30 PaKry ehIyk¾CaEpñk
                         i                          i
d¾sMxan;kúñgkarKaMRTesdækc©CnbTBak;B½n§nwgkarpþl;snþsuxes,óg . xül;BüúHenH)anCH\T§iBlelIextþcMnYn 10
             øi
eday)anbMpcbMpøajdMNaMRsUvcMnYn 40>136 hicta nigeFVeI GayxUcxatcMnYn 67>355 hictaEdlsuT§EtmuneBl
                i
RbmUlplbnþc . karxatbg;plitkmµsac;EdlmanskþanuBlenaH k¾mankRmitx<s;pgEdr edayeFVeI Gay DaLa
                  ½                 MY
srubsRmab;visyenH manTwkR)ak;cnn 56 landuløarGaemrik . enAkñúgvis½y]sSahkmµ nigBaNiC¢kmµ
                                                            ú
mIRkUshRKas nigksishRKasEdledIrtYnaTIy:agsMxan;enAkñgkarGPivDÆesdækic©Cati RtUv)anTTYlrgpl
         ¶
b:HBal;Fn;F¶rbMputBIxül;BüúHenH .
                                              ½                                         Ú
          karxUcxat nigkarxatbg;ehdæarcnasm<n§RtUv)anepþateTA elIvis½ydwkCBa¢n . xül;BüúHenH
                          øÚ        ú                     Ú ú             Ú           Ú
)anbgákarxUcxatdl;RbB½n§pvfñl; enAkñgextþcMnYn 18 ¬pøvkñgRkug pøvCati pøvextþ nigpøvCnbT¦ .    Ú
karxatbg;Cacm,g KWbNþalmkBIkarcMNaykan;Etx<s;eTAelIdMeNIrkaryanynþ nigeBlevladwkCBa¢ÚnTMnij
                                                                                   nkarxUPaB
nigGñkdMeNIrkan;Etman ry³eBlyUrEdlBak;B½n§nwgsßanPaBpøÚvdundab . plb:HBal;évis½yplitcxatenH manlkçN³
                                                                               ú 56°
KYreGaykt;sm�al; CaBiess edaysarvis½ys<anfñl; mantYnaTIy:agsMxan;enAkñgkarpþl;Rck cUleTAdl;RbCaCn
Edlrs;enAtamTICnbT nigmansarsMxan;edIm,IQaneTAseRmceKalbMNgeFVeI GaymankMeNInesdækic© nig
kat;bnßyPaBRkIRk . cMeBaHkarRKb;RKgTwk nigFarasaRsþ karxUcxatKWPaKeRcInedaysarkarykfµecjBI
k,alRbLayenAtambeNþajExSTwk edaysarlMhUrExSTwkEdlmanel,ÓnelOn nigkarceRmaHfµkMe)artamCRmal
mat;RbLay . CacugeRkay karxUcxat nigkarxatbg;EdlTTYlrgenAkñúgvis½yp�t;p�g;Twk nigGnam½y mankar
                                  i                                     ú                 w
ERbRbYl enAtambNþaextþEdlTTYl\T§uBl edaymanplb:HBal;FMbMputenAkñgextþkMBg;FM sÞgERtg nigRkecH .
karxUcxatelIbNþajlUEdlnaMeGaymankarbg¥ak;dl;karp�t;p�g;Twk                          i            I
                                                                            nigCH\T§Bldl;karbegátR)ak;cMNUl
KWCabuBVehtud¾cm,génkarxUcxat nigkarxatbg;cMeBaHRbB½n§p�t;p�g;TwkenAkñúgTIRkug . enAtamtMbn;CnbT
                                                 Ú                                           Ú
plb:HBal;manPaKeRcInKWeday sarTwkCMnn;Cn;licGNþglU nigbg�n; nigkarRsukdITabCa)atGNþg EdlnaMeGay
mankareRbH ehIyCacugeRkay bNþaleGaypulTwkRcaleLIgelI .
       enAkñúgvis½ysg�m karxUcxat nigkarxatbg;manTMhMFMbMputenAkñúgvis½yGb;rM bnÞab;mkKWlMenAsßan nig
suxPaB . salaeronCaeRcInRtUv)anrgkarxUcxaty:agxøaMgedaysarxül;BüúHektsaNa ¬salaeroncMnYn 12° enA
  ú        ú                 i
kñgRbeTskm<CaRtUv)anTTYlrg\T§BlenH¦ ehIysalaeronCaeRcIncaM)ac;RtUv)anbiTTVaredaysarTwkCMnn;edaypÞal;

                                                   23
    Cambodia PDNA                      EXECUTIVE SUMMARY




                                                                       I
b¤edayKµanlT§PaBcUleTAdl;brievNsalaeron . KuNPaBGn;rbs;kRmal\dæeFVBIebtugmin)anbgðab;)anl¥ Edlyk
            ñú
mkeRbIR)as;kgkarsagsg;GKarsalaeron nigek,ÓnRbk;dMbUlEdlmin)antMerobeGayRtUvRCugKñal¥KWCabuBVehtud¾
                                                                                                  i
cm,génkarxUcxatGKarsalaeron . cMeBaHkrNIpÞHsMEbg extþkMBg;FM RBHvihar rtnKIrI nigRkecHRtUv)anrg\T§BlF¶n;
F¶rbMput . enAkñúgvis½ysuxaPi)al xN³EdlmN�lsuxPaBPaKeRcInenAl¥CaFmµta bBaðaEdlRbCaCngayrgeRKaH
               ú
mankarlM)akkñgkarTTYl)anesvaEfTaMsuxPaBEdlmanRsab;enaH kan;EtF¶n;F¶rbEnßmeTotedaysarplb:HBal;én
xül;BüúHkMNacenH nigTwkCMnn;CabnþbnÞab; .
          plb:HBal;Epñkm:aRkUesdækic©
          edaymanplb:HBal;PaKeRcIneTAelIdMNaMRsUv b:Eu nþplb:HBal;tictYceTAelIRbPBkMeNIndéTeTotenaH man
kar):an;sµanfa xül;BüúHenH)anbgáeGaymankarxatbg;KitCaTwkR)ak;cMnYn 17 landuløarGaemrik ¬69 Ban;lan
                                  ú
erol¦éntémøbEnßmeTAelIplitplkñgRsuksrub . karxUcxatd¾KYreGaykt;sm�al;enH )aneFVIeGaymankarFøak;cuH
kMeNInesdækic©rhUtdl;cMNuc 0/2° sRmab;qñaM 2009 . dUecñHkarenHnaMeGaymankarkat;bnßyGRtakMeNIn
sRmab;qñaM 2009 Edl)anmkBIkar):an;sµankalBIedImqñaM BIcMnYn 2/1 ° mkenARtwmEt 1/92 ° vij . 3
        plb:HBal;eTAelIR)ak;cMNUlsareBIBn§minTMngCamanlkçN³KYreGaykt;sm�al;eLIy b:Eu nþplb:HBal;eTA
                                                                       ú
elIkarcMNayGacmansarsMxan; . karpþl;hirBaØb,TansRmab;esckþRI tUvkarkñgry³eBlmFüm nigry³eBlEvgGac
                                                                            ú
Caplb:HBal;KYreGaykt;sm�al;eTAelIlMhsareBIBn§ . dUcEdl)anBnül;enAkñgesckþRI Bagc,ab;fvikasRmab;qñaM
                                                                  ú
2010 Edl)andak;CUnrdæsPakalBIExFñeÚ naH R)ak;cMNUlCarYmenAkñgqñaM 2009 GacmanticCagbNþaqñaMmun²
edaysarkMeNInesdækic©Edlmanel,Ónkan;EtyWty:av cMENkÉkarcMNaycaM)ac;CarYmenAkñúgqñaM 2009 nwgkan;Etx<s;
CagbNþaqñaMmun² . dUcenH karpþl;hirBaØb,TanEdlRtUvkarCacaM)ac;edIm,Iksagehdæarcnasm<½n§rUbv½nþeLIgvij nigsþar
                                                                                  ú
CIvPaBrs;enA nwgbegáIn»nPaB . ehtudUecñH tRmUveGaymankarpþl;hirBaØb,TanbEnßmTaMgkñgRsuk nigBIbreTs .




3
                                                                                              u
   RbsinebItYelxEdl)anBüakrN_ecjBIsßab½ndéTRtUv)aneRbIR)as; nigeRbIR)as;cMNuc 0/2 °énkarFøak;cHkMeNInenaH
kMeNIn sRmab;qñaM 2009 KW IMF ¬-2/9¦ WB ¬-2/4¦ ADB ¬-1/7¦
                                                      24
    Cambodia PDNA                          EXECUTIVE SUMMARY




           plb:HBal;eTAelICIvPaBrs;enA nigplb:HBal;vis½ydéTeTot
                           ú
         kRmitPaBRkIRkenAkñgextþTaMg 14 EdlrgkarbMpøicbMpøajedayxül;BüúHektsaNa mankRmitx<s;Cag
kRmitmFümrbs;Cati ehIyxül;BüúHenHnwgeFVeI GayvismPaBenaHmankarekIneLIg . cMNUlrbs;RKYsarenAkñúg
extþTaMgenH BwgEp¥k Cacm,geTAelIkareFVEI RscMkar nigkarTTYl)anePaKRTBüBIFmµCati dUcCaRtI nigplitpléRBeQI
EdlminEmnCaeQIh‘ub (NTFPs) edIm,IciBa©wmCIvit . ral;skmµPaBTaMgGs;enH PaKeRcIn)anrgplb:HBal;BI
xül;BüúHenH . sßanPaBTaMgenHGacnwgkan;EtF¶n;F¶renAkñúgqñaM 2010 edaysarmunekItmanxül;BüúHenH manRbCaCn
RbmaN 49>000 RKYsar)an nigkMBugrgeRKaHedaysarkgVHes,ógGahar4 rYceTAehIy ehIysmamaRtd¾FM
                                          ú                                                  i
éndMNaMRsUv EdlGacRtUv)anRbmUlplenAkñgExvicäika nigExFñÚ qñaM2009 enH RtUvrgkarxUcxat nigbMpøcbMpøajGs; .
dUcenH nwgnaMeGay)at;bg;kargarEdlFøab;EteFVIenAeBlTMenrBIkargarERscMkar bnÞab;BIkarRbmUlplRsUv Edl
                                                            ú
RbkbedayskþanuBlmk . karvaytémø)anbgðajfa enAkñgPUmi b¤XMumYy RkumRbCaCn nigRKYsarRkIRkbMput
                              øi
EdldMNaMRsUvrbs;xøÜnRtUv)anbMpcbMpøajTaMgRsugenaH KWCaRkumEdlgayrgeRKaHxøaMgbMput CaTUeTAKWRKYsarEdlman
                                                                                    ú
RsþI mnusScas;CaemRKYsar nigRKYsarEdlmansmaCikBikar . RkumCnCatiedImEdlrs;enAkñgtMbn;x<s;rabextþrtnKIrI
            w                    ßi ú
mN�lKIrI sÞgERtg nigkMBg;FM k¾stenAkñgcMeNamRbCaCnEdlgayrgeRKaHbMputpgEdr .
           lkçxN�tRmUvsRmab;karRKb;RKghaniP½yeRKaHmhnþray
          xül;BüúHektsaNapþl;»kasdl;RbeTskm<úCa edaysareRKaHmhnþrayenH)aneFVIeGayelceLIgnUvvis½y
                                       ú       I
CamUldæanmYycMnYnsRmab;kMENTRmg;enAkñgRbB½n§eqøytbeRKaHGasnñ nigkarkat;bnßyhaniP½yeRKaHmhnþrayrbs;
           ú
RbeTskm<Ca . dMeNIrkarRbmUl nigRKb;RKgTinñn½yenAkñúgkarvaytémøkarxUcxat nigkarxatbg; nigenAkñúgkar
tamdanCMnYyeRKaHGasnñ KYrEtRtUv)anEklm¥eGaykan;EtRbesIreLIg rYmCamYynwgskmµPaBksagsmtßPaBsRmab;
RksYgBak;B½n§ nigKN³kmµaFikarCMnYyeRKaHmhnþrayfñak;Cati nigfñak;mUldæan edIm,IsRmbsRmYlkarcUlrYmrbs;xøÜn
                                                                 ú
enAkñúgdMeNIrkarsþareLIgvijenH . RbB½n§RbkasGasnñrbs;RbeTskm<Ca KYrEtRtUv)anvaytémø ehIyKYrEtmankar
                                                                                        ú
vinieyaKeTAkarEklm¥RbB½n§enHeGaymanPaBRbesIreLIg . DRM KYrEtRtUv)andak;bBa©ÚleTAkñgskmµPaB nig
                                            ú
eKalneya)ayrbs;RksYgBak;B½n§rbs;RbeTskm<Ca ehIykic©karbEnßmKYrEtRtUv)aneFVIeLIg edIm,IBRgwgmUldæansßab½n
nigmUldæanc,ab; sRmab;RkbxN�karRKb;RKghaniP½yeRKaHmhnþrayrbs;RbeTskm<Ca .   ú

4
    NCDM   bTbgðajkalBIéf¶TI 10 Exvicäika qñaM 2009
                                                      25
 Cambodia PDNA                     EXECUTIVE SUMMARY




        lkçxN�tRmUvsRmab;karsþar nigkarksageLIgvij
                                                                                ú
           RkbxN�sþareLIgvijbnÞab;BIxül;BüúHektsaNaEdl)anesñeI LIgsRmab;RbeTskm<Ca maneKalbMNgeqøy I
tbcMeBaHtRmUvkarsagsg;eLIgvij nigkarsþareLIgvijrbs;shKmn_EdlTTYlrgplb:HBal; RsbeBlkMBugbegáIt
mUldæansRmab;viFankarkat;bnßyhaniP½ysRmab;ry³eBlkan;EtEvg edIm,Ikat;bnßyplb:HBal;éneRKaHmhnþray
                                                 I
TaMgLaynaeBlGnaKt . edIm,IbeBa©óskarbegáthaniP½yRsedogKñanaeBlGnaKtdl;RbCaCn nigshKmn_
                                                   w
dMeNIrkarsþareLIgvij sMedAdwknaMedayeKalkarN_KnøHcMnYnbIKW ¬i¦tmøaPaB ¬ii¦KNenyüPaB nigkarGnuvtþeday
Ep¥kelIlT§pl nig ¬ iii ¦viFIsaRsþEdleFVIeLIgenAshKmn_ edayykcitþTukdak;elIRbCaCn nigEdlmansmFm’
edIm,Ibn§ÚrbnßyhaniP½ynaeBlGnaKt .
                                                                                 Ú
          vis½yGaTiPaBEdlRtUv)ankMNt;eday PDNA sRmab;karsþareLIgvijenH rYmmanpøvfñl; ksikmµ FarasaRsþ
]sSahkmµ nigBaNiC¢kmµ Gb;rM niglMenAdæan ehIyGaTiPaBTaMgenHRtUv)anRbmUlpþMúCaRkumeLIgvijGaRs½yeTAtam
esckþRI tUvkarry³eBlxøI ¬0-6 Ex¦ ry³eBlmFüm ¬1-2 qñaM¦ nigry³eBlEvg ¬1-5 qñaM¦ . taragxageRkam
¬tarag 2¦ segçbGMBIlkçxN�tRmUvsRmab;vis½yGaTiPaBTaMgenH .




                                                26
 Cambodia PDNA                         EXECUTIVE SUMMARY




                              tarag 2 ³ tRmUvkarsþareLIgvij nigkarsagsg;eLIgvij
                                                       I
                                        tarag 2 ³ esckþsegçbtRmUvkar
                                                  tRmUvkarsþareLIgvij KitCaduløarGaemrik
    vis½y nigGnuvis½y
                                    ry³eBlxøI        ry³eBlmFüm ry³eBlEvg                       srub
ehdæarcnasm<n§ ½                      7>114>206 13>406>626 85>960>511                      106>481>343
       Ú
dwkCBa¢n                              5>124>206 9>264>626 76>360>511                        90>749>343
    ;
p�tp�g;Twk nigGnam½y                                       500>000         4>250>000          4>750>000
RKb;RKgTwk nigFarasaRsþ               1>690>000 2>792>000 3>500>000                           7>982>000
famBl                                   300>000           850>000          1>850>000          3>000>000
vis½ysg�m                            14>075>690 2>648>500                  2>480>000         19>204>190
karpþl;leM nAdæan nigTICRmk          12>089>000 2>087>800                                   14>176>800
suxaPi)al                                 86>690          560>700          2>480>000         3>127>390
karGb;rM                              1>900>000                                               1>900>000
vis½yplitPaB                           5>960>000 12>800>000 41>200>000                       59>960>000
ksikmµ bsustV nigensaT                 5>000>000 10>000>000 35>000>000                       50>000>000
]sSahkmµ nigBaNiC¢kmµ                    960>000 2>800>000                 6>200>000           9>960>000
vis½ybnÞab;bnSM                          196>085 2>396>000 2>803>600                          5>395>685
brisßan                                 181>000 2>232>400 2>803>600                           5>217>000
rdæ)alsaFarN³                             15>085          163>600                               178>685
srub                                27>345>981 31>251>126 132>444>111                      191>041>218
karRKb;RKgeRKaH mhnþray                                                                       8>937>000

                     ú             Ú                                 Ú
        GaTiPaBenAkñgvis½ydwkCBa¢n rYmmankarksageLIgvijnUvbNþajpøvfñak;Cati extþ nigenACnbT Edlrg
                                                                            Ú
karxUcxatBIxül;BüúHenH nigkarbegáItbTdæanCak;lak;sRmab;karksag nigkarEfTaMpøvfñl; CaBiesssRmab;tMbn;gay
TTYlrgeRKaHBITwkCMnn;bMput .

                                                     27
 Cambodia PDNA                       EXECUTIVE SUMMARY




         karsþareLIgvijnUvvis½yksikmµ mansarsMxan; CaBiessedaymankarKMramkMEhgd¾xøaMgkøaeTAelIsnþsux  i
es,ógenAkñúgbNþaextþEdlTTYlrgeRKaHbMput . RkbxN�sþarsm,TaEdlRtUv)anesñeI LIgrYmmanskmµPaBGaTiPaB
                          ú                                            I
cab;BIkarbnþkarpþl;CMnYykñgTRmg;Cakarpþl;RKab;BUC CI nigsmÖar³ karbegánEpnkarpþl;R)ak;edIm,Ikargar karpþl;
                               I
es,ógedIm,Ikargar nigEpnkarbegátkargarmUldæan nigkarbegáItRbB½n§ksikmµEdlFn;nwgeRKaHfñak; .
                                                                                          I
        tRmUvkarkarRKb;RKgTwk nigFarasaRsþ rYmmankarCYsCulRbB½n§FarasaRsþEdlxUcxat karbegátyuT§saRsþ
                                                                                   I
RKb;RKgTwksRmab;karkat;bnßyhanIP½yeRKaHTwkCMnn; nigeRKaHraMgs¶Üt RBmTaMgkarbegánbTdæanrcnasm<n    ½
                                                ú
EdlFn;nwgeRKaHfñak; EdlBak;B½n§nwgFarasaRsþenAkñgry³eBlEvg .
         vis½y]sSahkmµ nigBaNiC¢kmµ )anKUsbBa¢ak;GMBIGaTiPaBcMnYnbYn EdlmandUcCakarCYsCul
nigkardak;CMnYs eRKOgynþ nig]bkrN_EdlxUcxat kareFVeI GayeRKOgynþkan;manlkçN³TMenIbEdlGacFn;nwg
eRKaHfñak; karKaMRTRkbx½N�niytkmµ nigkarksagsmtßPaB ehIycugeRkayKWkarelIkkm<s;karyl;dwgCa
                                           ú
saFarN³GMBIkarkat;bnßyhaniP½yeRKaHmhnþraykñgcMeNamvis½yÉkCn .
         enAkñúgvis½ypþl;TICRmk GaTiPaBKWkarCYsCul¼karsagsg;pÞHEdlRtUv)anbMpøicbMpøaj nigrgkarxUcxatxøaMg
bMputeGaymanPaBRbesIreLIg enAkñúgry³eBlxøI nigkarBinitübTdæanpþl;TICRmk nigkarsagsg;EdlFn;nwgeRKaHfñak;
enAkñúgry³eBlmFüm nigry³eBlEvg .
         cMeBaHvis½yEdlminRtUv)ankMNt;Cavis½yGaTiPaBenaH kmµviFIsþarsm,TanwgenAEtRtUvdwknaMedayeKalkarN_
                                  ú
dUcKña ehIynwgdak;bBa©Úl DRM enAkñgdMeNIrkarenH .




                                                   28
                          SECTION I : THE KETSANA TYPHOON IN THE SOCIO-ECONOMIC CONTEXT
 Cambodia PDNA            OF CAMBODIA




                      SECTION I :
   THE 2009 KETSANA TYPHOON IN THE SOCIO-ECONOMIC
                CONTEXT OF CAMBODIA
1.1 Typhoon Ketsana’s Immediate Impact

Cambodia is among the four Southeast Asian countries that were affected by Typhoon
Ketsana. Between September 26 and October 5, 2009, the typhoon pursued a path of
destruction across Southeast Asia. After submerging 80 percent of the greater metropolitan
area of Manila in the Philippines, and wrecking life and property across central Vietnam, the
Ketsana front ran an estimated 150 kilometers from the northeastern Lao PDR border
toward the center of Cambodia, moving across Stung Treng, the south of Preah Vihear, the
north of Kampong Thom (by far the most badly hit), and the west of Siem Reap, flattening
houses and damaging buildings before it was downgraded to a tropical depression, with
slower winds but heavy rains. The rest of the provinces affected were not directly hit by the
storm, but indirectly, through rain and ensuing floods, which in some cases continued up to
one week after the storm had passed. The subsequent flash floods submerged parts of
Ratanak Kiri, Mondul Kiri, Kratie, Oddar Meanchey, Banteay Meanchey, Battambang,
Kampong Cham, Kampong Chhnang, Preah Sihanouk, and Kampot Provinces.

                 Map 1: Geographic Areas of Cambodia Affected by Typhoon Ketsana




                                               29
                            SECTION I : THE KETSANA TYPHOON IN THE SOCIO-ECONOMIC CONTEXT
    Cambodia PDNA           OF CAMBODIA




The initial Damage Assessment carried out by the Government indicated that up to 14
provinces with 73 districts and 336 communes had been affected by the storm and
subsequent flash floods.5 The typhoon left 43 people dead, 67 people severely injured, and
some 48,800 families were directly affected by the loss of their homes or livelihood ( 6,210
families were evacuated). Though loss of life was not as high as in other countries, as many
as 180,000 people were affected (directly or indirectly), the equivalent of 1.4 percent of the
country’s population.

More than 210 houses were completely destroyed, more than 804 severely damaged, and
more than 10,500 buildings damaged. There has also been widespread damage to property,
livelihoods, and public infrastructure, which will have a long-term impact on the
communities’ livelihoods.

Most of the affected districts were among the poorest in the country. The weighted average
of the poverty headcount based on the number of affected families is 49 percent, against a
national average of 30 percent.6 The loss of livelihoods incurred by the typhoon will further
maintain the affected communities in poverty, and nullify some of the progress made in
recent years.

1.2 First Responses

The Government immediately responded to the news of the disaster by mobilizing the
national and local administrations, armed forces, and volunteer groups to rescue stranded
people and provide immediate relief, including temporary shelter, medicine, and food. The
Office of the Prime Minister and the National Committee for Disaster Management (NCDM)
oversaw the immediate response efforts. The Cambodian Red Cross (CRC) and the country’s
many partners in development efficiently supplemented the Government’s efforts with
quick relief actions.

Recognizing the vulnerability of the affected people, the Government gave high priority to
restore livelihood opportunities, while starting rehabilitating the most urgent infrastructure.
Senior officials from the Government met with bilateral and multilateral agencies to discuss
the impact of the floods that resulted from Typhoon Ketsana and to mobilize emergency
assistance. The National Committee for Disaster Management (NCDM) was mandated to
coordinate all emergency operations including the distribution of relief items.

The Cambodian Red Cross also took immediate action, working in close coordination with
the provincial and district disaster management offices and local authorities to deliver basic
goods and services in the most effective way to the most affected people. All the country’s

5   National Committee for Disaster Management, October 26, 2009.
6   World Bank Poverty Profile and Trends in Cambodia, 2007.

                                                   30
                          SECTION I : THE KETSANA TYPHOON IN THE SOCIO-ECONOMIC CONTEXT
    Cambodia PDNA         OF CAMBODIA




partners in development played an important role during the emergency response phase,
working with the local authorities in the distribution of emergency aid. Non-governmental
agencies like Oxfam, Care, Action Aid, Muslim Aid, and Church World Service responded
with relief materials in their own project areas. The European Commission through its EC
Humanitarian Aid department (ECHO) is contributing EUR 2,000,000 for Cambodia, Lao PDR,
and Vietnam. UNICEF provided USD 143,000, WFP USD 875,000, and other organizations
reported assistance to Ketsana-affected areas through their ongoing programs.

1.3 Social and Economic Background of the Affected Areas

The Kingdom of Cambodia is located in mainland Southeast Asia, between latitudes 10° and
15° North and longitudes 102° and 108° East. Its boundaries run along 2,572 kilometers with
Thailand (west and northwest), Lao PDR (northeast), Vietnam (east and southeast), and the
Gulf of Thailand (southwest) for a total surface area of 181,035 square kilometers.

The total population of Cambodia is 13.38 million people.7 Cambodia is a Least Developed
Country (LDC), with a GDP per capita of USD 8238 and an estimated 34.7 percent of the
population below the national poverty line.9 Administratively, the country is divided into 23
provinces plus the Phnom Penh municipality with a total of 185 districts and 1,621
communes.10

The country’s economy is mainly agrarian, with about 80 percent of its population living in
rural areas11 and being engaged in two main economic activities: agriculture and inland
fisheries. Agriculture and Livestock represent 18.8 percent of Cambodia’s GDP and mainly
consists in rain-fed, subsistence yearly rice crops facilitated by the seasonal flooding of the
Tonle Sap. Inland fisheries, on the other hand, account for 9.3 percent of Cambodia’s GDP,
and fish represents about three quarters of the total animal protein intake of the local
people. Rice and fish, therefore, form the staple diet of most rural Cambodians and are key
factors for the sustainability of local livelihoods.

Typhoon Ketsana hit the poorest areas. The level of poverty in the 14 affected provinces
was already 40–45 percent prior to the typhoon while the poverty rates for rural areas and
Cambodia as a whole is 39 percent and 35 percent respectively. Households in this area rely
primarily on rice farming, crop farming, and access to common property resources such as
fish and non-timber forest products.



7 Royal Government of Cambodia Census, 2008.
8 International Monetary Fund Estimate, 2008.
9 National Strategic Development Plan 2006–2010, released 2005.
10 National Institute of Statistics, 2004.
11 Royal Government of Cambodia Census, 2008.



                                                 31
                            SECTION I : THE KETSANA TYPHOON IN THE SOCIO-ECONOMIC CONTEXT
 Cambodia PDNA              OF CAMBODIA




Typhoon Ketsana also hit the poorest people. Of the households affected, the most badly
hit were the poorest, as they usually have their housing located in the most vulnerable
areas and using the cheapest materials and construction techniques.

The informal economy is critical for the survival of many people and has become more
vulnerable after the disaster. Informal off-farm activities such as transplanting, harvesting,
weeding, planting, clearing bush or forest, unskilled work in the construction, services, and
manufacturing sectors in major cities, which secondarily support their living, were already
affected by the 2008 food-price crisis and the 2009 economic downturn (caused by the
global financial crunch). The slowdown of Cambodia’s economy has led to a reduction in the
demand for unskilled labor, something that already had reduced rural household incomes.
The months of November and December are usually the period when rural households are
busy with harvesting and selling labor for agricultural farming, and also the period when
they can accumulate additional cash that they use as a safety net when there is a food
shortage. Typhoon Ketsana brings heavy additional stress to rural livelihoods by markedly
affecting these job opportunities.

The conditions are likely to be even more severe in 2010. According to the NCDM,12
approximately 49,000 families were experiencing a food shortage prior to the disaster. The
livelihoods of rural households still rely mainly on agricultural farming and access to
common property and public goods and services, and rural families often have less access
and lower savings to cope with unexpected shocks. Damages caused by a natural disaster
such as Typhoon Ketsana can push non-poor households into poverty and further push poor
households into the depths of the poverty cycle (see Table 3).

1.4 Vulnerability to Natural Disasters

The major natural disasters facing Cambodia are floods and droughts. The southwest
monsoon begins around mid-May and lasts until the end of October, and is responsible for
three quarters of the country’s annual rainfall. As a result, floods along the Mekong River,
the Tonle Sap Lake, and the tributaries are recurrent and often turn into major disasters.
Mekong River floods affect the provinces of Kandal, Kampong Cham, Kratie, Prey Veng,
Stung Treng, Svay Rieng, and Takeo. Flash floods in tributaries around the Tonle Sap Lake
affect several other provinces as well. Delays or early ending of the monsoon rains and
erratic rainfalls (volume and period) contribute to agricultural droughts.

A large segment of the population lives in the flood plains of the Mekong and Tonle Sap
Watersheds. Natural disasters have had significant impacts on the country’s people and
economy. For example, floods accounted for 70 percent of rice production losses between
1998 and 2002, while drought accounted for 20 percent. Cambodia is one of the countries

12   National Committee for Disaster Management, November 10, 2009.

                                                  32
                        SECTION I : THE KETSANA TYPHOON IN THE SOCIO-ECONOMIC CONTEXT
 Cambodia PDNA          OF CAMBODIA




at a relatively high economic risk from multiple natural hazards. About one tenth of the
total area of the country is estimated to be at risk from two or more hazards. Moreover,
31.3 percent of the population and 34.5 percent of GDP are estimated to live in areas of risk
from two or more hazards (Dilley et al. 2005).

Urban vulnerabilities are accumulating. As the population in the Mekong floodplain of
Cambodia continues to increase mainly due to rural–urban migration, and as major cities
such as Phnom Penh and Siem Reap urbanize rapidly—often without adequate land use
planning—newer vulnerabilities continue to accumulate. The lack of building codes that
respond to the country’s needs and their weak enforcement, as well as the lack of proper
drainage in urban centers also increase the vulnerabilities of urban dwellers.

Rural vulnerabilities also are increasing. On the rural front, where about four fifths of the
population (and 90 percent of the poor) reside, livelihoods—agriculture, fisheries, and
forestry—are the more and more subject to frequent floods and droughts. Deforestation
and subsequent soil erosion, inadequate irrigation systems, and water conservation
measures to protect against drought have all contributed to increase rural people’s
vulnerability to natural disasters.

Eighteen percent of the land area of Cambodia is categorized as protected areas. Forests are
intensely exploited and deforestation contributes to loss of biodiversity, land degradation,
and soil erosion, which increases vulnerability to flooding. Population growth, development,
and increasing industrialization all contribute to additional pressures on the environment.
Development upstream of the Mekong River and its tributaries also contributes to increased
river pollution.

An estimated 72 percent of Cambodians are dependent upon fishing and agriculture for their
livelihoods. With 30 percent of the population living below the poverty line and some 15
percent subsisting in extreme poverty, the population is highly vulnerable to the impact of
disasters on food security.

Any major disaster in Cambodia may quickly overwhelm present coping mechanisms. An
effective, multi-hazard national disaster preparedness and response system is essential to
efficiently manage an emergency and avoid the rapid escalation of a relatively small-scale
disaster into a major national crisis.




                                             33
                                       SECTION I : THE KETSANA TYPHOON IN THE SOCIO-ECONOMIC CONTEXT
     Cambodia PDNA                     OF CAMBODIA




         Table 3: Affected Assets by Typhoon Ketsana and Flash Floods (As of October 26, 2009)
                                           Social Sector                               Agricultural Sector                   Infrastructure Sector

                                                                                                                        Rural
                                                                                                                         Road
                                                                              Rice                        Livestock    Damaged
                                                                 Casualti    Seedli                                     / Line
                     Co Food    Evacu               Dispe                             Trans
                                                                                             Subsi                                  National  Irrigati
No. Province    Dist                                               es          ng                                        (km)
                     m Short     ate/
                                      Affect Destro
                                                    rse/                              plante
                                                                                             diary                                   Roads,      on
                        age/           ed/    yed/                            (ha)           Crop                                 Province –   Syste
                                Famil               Hous                              d Rice
                        Famil         House House                                              s                                 City Damaged    m
                                  y                   e                                (ha)           Cow      Pig
                          y                                                                  (ha)                                     (m)      (Site)
                                                                                                     (Head    (Head
                                                                       Inj                             )        )
                                                                 De
                                                                       ur
                                                                 ath
                                                                       ed
1     Preah     8   37   2,87    1,8   2,74      1         -      -      -    -        3,22   -       14        -       -          -      1,60       3
      Vihear             7       67    5                                               6                                                  0
2     Oddar     5   17   1,50    -     -         3         -      -     -     -        1,13   25      -         -       7          8,0    -          4
      Meanche            6                                                             3                                           50
      y
3     Ratanak   6   34   4,85    30    778       13        156    3     1     -        3,78   1,4     730       1,53    8          7,0    4,00       1
      Kiri               0       0                                                     6      90                4                  00     0
4     Siem      12 61    1,07    -     -         60        29     8     1     -        3,25   1,0     11        209     40         10,    78,8       14
      Riep               4                                              6              0      85                                   000    62
5     Kampon    10 35    1,35    -     -         6         185    3     -     856      6,26   -       -         -       54 km      100    4,78       9
      g. Cham            6                                                             6                                                  5
6     Kratie    6   38   3,50    60    2,98      13        -      -     -     148      3,79   377     7         -       4          -      -          9
                         0       0     4                                               3
7     Stung     5   27   3,95    53              -         -      -     -     -        3,71   -       -         -       2          400    5,90       1
      Treng              7       7                                                     6                                                  0
8     Kampon    8   64   22,3    2,9   2,90      109       428    2     4     213      19,3   -       60        11      81         -      5,45       50
      g Thom             36      06    6                          0     8              89                                                 0
9     Mondul    2   9    2,45    -     -         -         -      -     -     -        1,07   49      -         -       3          614    12,0       3
      Kiri               8                                                             3                                                  00
10    Banchea   6   23   790     -     -         10        -      -     2     -        7,69   -       -         -       22         460    5,63       5
      y                                                                                3                                                  5
      Meanche
      y
11    Battamb   3   6    1,34    -     1,14      -         -      -     -     -        -      -       -         -       6          400    3,60       -
      ang                3             6                                                                                                  0
12    Kampot    2   15   -       -               3         6      3     -     -        -      -       -         -       5          -      1,81       1
                                                                                                                                          0
13  Kampon      -   -    -       -     -         -         -      2     -     -        -      -       -         -       -          -      325        -
    g
    Chhnang
14 Preah        -   -    -       -     -         -         -      4     -     -        -      -       -         -       -          -      1,08       -
    Sihanou                                                                                                                               0
    k
 Total          73 336 48,7      6,2   10,5      218       80     4     6     1,21     53,3   3.0     822       1.75    313,17     166,73 km         102
                       87        10    59                  4      3     7     7        25     26                4       km
    Note: These figures are the result of the preliminary assessment by NCDM and therefore are not always
    consistent with the final figures that were calculated during the PDNA.
    Source: Preliminary Assessment by National Committee for Disaster Management (26 October 2009).




                                                                             34
 Cambodia PDNA         SECTION II : SUMMARY OF ASSESSMENT AND SECTORAL REPORTS




                            SECTION II:
           SUMMARY OF ASSESSMENT AND SECTORAL REPORTS


2.1 PDNA Methodology
2.1.1 Rationale

Section I describes the impact of Typhoon Ketsana and the immediate response by the
Royal Government of Cambodia (RGC) and its partners in development. In addition to the
emergency response, and in order to develop a recovery plan to ensure future disaster risk
reduction (DRR), a more comprehensive in-depth assessment of the damage, loss, and
needs of affected communities had to be undertaken.

A multi-agency Post Disaster Needs Assessment (PDNA) for Cambodia was carried out in
November 2009 using available resources from the Global Fund for Disaster Risk Reduction
(GFDRR). The PDNA exercise was led by the National Committee for Disaster Management
(NCDM), with the support of the World Bank and other development partners.

The four main objectives of the PDNA exercise were:

       1. Estimate the overall human and socio-economic impact of the disaster
          (damages, losses, macro-economic impact, and impact on livelihoods) in the
          country as a whole and in the affected areas;

       2. Outline the basic recovery and reconstruction needs for the affected areas
          (based on the needs for each economic sector) by preparing a PDNA and
          recovery framework report;

       3. Incorporate Build Back Better (BBB) principles and disaster risk management
          (DRM) activities into the recovery and reconstruction efforts proposed; and

       4. Enhance the capacity of the government and international agencies to carry out
          the Human Impact Assessment, Damage and Loss Assessment (DaLA), Needs
          Assessment, and Recovery Framework within the UN-ECLAC PDNA methodology.

The advantages of undertaking a PDNA are:

       1. First, ensure credibility in the final Recovery and Reconstruction assistance that
          Cambodia will request from the international donor community;



                                            35
 Cambodia PDNA              SECTION II : SUMMARY OF ASSESSMENT AND SECTORAL REPORTS




          2. Second, institutionalize and spread the use of the PDNA methodology to derive
             standard, comparable results and to improve the future DRM strategic planning
             for the country;

          3. Third, provide credible evidence in the requests for recovery grants or loans
             from development partners; and

          4. Fourth, improve accuracy and completeness of the assessment. Past
             assessments—while likely to have over-estimated damages—have tended to
             under-estimate economic losses.
2.1.2 Methodology

The Post Disaster Needs Assessment (PDNA) provides a methodology to assess damages
and post disaster recovery needs in a way that can provide a framework for the planning of
coordinated recovery efforts across different sectors with a risk reduction focus.13

                        Figure 2: PDNA Connecting Emergency Response with
                            Longer-Term Reconstruction and Development



                                 Post Disaster Recovery
                                                               Reconstruction
        Plans
                                                                         Development
                                                                         Development
        and                Emergency Response
                                                          Needs Assessment
        Programs
        Data



          Before                                     After
Source: PDNA Team Elaboration (2009).

The approach for this assessment follows the Post Disaster Needs Assessment and Recovery
Framework (PDNA/RF) methodology developed jointly by the World Bank, the United
Nations Development Program (UNDP), and the European Commission (EC) to complement
and enhance the Damage and Loss Assessment (DaLA) methodology, which is the backbone
of most post disaster analyses. Originally designed by the UN Economic Commission for
Latin America and the Caribbean (ECLAC) in the 1970s, the DaLA methodology has been
used in post disaster analyses around the world and has been continuously strengthened
and refined.


13   From UNDPs Post Disaster Recover Needs Assessment Methodology and Toolkit.

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The methodology was used to determine the value of lost assets and the magnitude of
losses on economic flows, and to define reconstruction requirements for each sector. See
The Handbook for Estimating the Socio-Economic and Environmental Impact of Disasters14
by ECLAC for more information on this methodology, as well as specific sector assessment
methodologies recently developed by specialized UN agencies.

The sectors assessed in this report are:

      •    Infrastructure: Energy, Transport, Water Management and Irrigation, and Water
           Supply and Sanitation;

      •    Social: Education, Health, and Housing and Shelter;

      •    Productive: Agriculture, Livestock, and Fisheries and Industry and Commerce; and

      •    Cross-Cutting: Environment and Public Administration.

This assessment will analyze three main aspects:

      (a) “Damage� (direct impact) refers to the impact on assets, stock (including final goods,
          goods in process, raw materials, materials, and spare parts), and property valued at
          agreed replacement (not reconstruction) unit prices. The assessment considers the
          level of damage (i.e., whether an asset can be rehabilitated or repaired, or has been
          completely destroyed).

      (b) “Loss� (indirect impact) refers to flows that will be affected (e.g., production decline,
          reduced incomes, and increased expenditures) over the time period until the
          economy and assets have recovered. These will be quantified at present value. The
          definition of the time period is critical. If the recovery takes longer than expected,
          losses might increase significantly.

      (c) “Economic and social effects� (sometimes called “secondary impacts�) include
          macro-economic and fiscal impacts; livelihood, employment, and income impacts;
          and social impacts. The analysis aims to measure the impact of the disaster on
          variables such as economic growth, unemployment, and poverty at the national and
          sub-national levels.

The assessment of damage and loss provides a basis for determining recovery and
reconstruction needs. The assessment of damage provides a basis for estimating
reconstruction requirements, while the estimation of loss provides an indication of the
reduction or decline in economic activity and in personal and household income arising
from disasters. The two estimates are combined to establish overall needs to achieve full

14   Economic Commission for Latin America and the Caribbean (ECLAC), 2003

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 Cambodia PDNA           SECTION II : SUMMARY OF ASSESSMENT AND SECTORAL REPORTS




recovery of economic activities at the macro-economic level and at the level of individual
persons or households.

The conduct of the PDNA involved a number of stages, beginning with the collection of
baseline information and data on damage, provided by different line ministries and offices;
the use of other official statistical information; and information collected directly from local
authorities and communities. The assessment teams reviewed and verified data through
special field visits to and surveys in affected areas, and included triangulation and
independent verification.

2.2 Summary of Damage and Loss

The total value of damage and loss amounts to USD 132 million, of which USD 58 million
represent the destruction of physical assets in the affected areas, while USD 74 million
represent estimated losses in production and economic flows.

                        Table 4: Summary of Damage and Loss (USD)




                              Source: PDNA Team Elaboration (2009).

Of the countries hit by Typhoon Ketsana, the damage and loss figures for Cambodia are
lower than those for the Philippines and Vietnam but comparable to those of the Lao PDR.


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These figures include overall damage and loss sustained by the entire society, including
both public and private sector entities, and cut across all sectors of economic activities.15

Loss exceeds Damage…and will last longer. Damage represents only 44 percent of the total
economic impact of Typhoon Ketsana, while the rest (almost two thirds) is loss. Economic
loss represents indirect impact in terms of reduced income, increased operational costs, or
extraordinary expenses that had to be faced after the disaster. While the destruction or
damage to assets occurred at the time or in the aftermath of the storm, the indirect impact
on daily activities unfortunately will last well beyond it until at least the assets are fully
repaired and/or restored. This is one of the reasons why speed and efficiency of the post
disaster recovery and reconstruction activities are critical.

Almost half of the total damage and loss across all sectors occurred in agriculture, livestock,
and fisheries: 43% representing USD 56.5 million. This high damage and loss estimate is due
to the substantial loss suffered as the storm and floods ruined or damaged vast extensions
of rice paddies close to the harvest. Of all the possible agricultural losses, destruction of
crops near to harvest is the most devastating, as it means a complete loss of the crop value
once all costs (e.g., upfront investment, labor, and opportunity costs) have been incurred.
Besides its economic value as such, rice is the backbone of the local economy and rural
livelihoods as it is the major staple food and a typical exchange commodity in rural areas.
Moreover, the agricultural sector was already under stress due to the recent food price
crisis and the global financial crisis. The combined effect of previous stresses and the impact
of the natural disaster has the potential of seriously jeopardizing food security in the most
affected areas, among other things.

Transport, Education, and Housing were also severely affected by the Ketsana disaster. The
road network was damaged in 18 provinces. The rural laterite roads, given their
vulnerability, were particularly hard hit. Repairing the most critical road segments is crucial
to restoring access to services in the most isolated areas. The total impact on the Transport
sector is estimated at USD 25.5 million, almost 20 percent of the total damage and loss. In
the Education sector, 138 schools were completely destroyed and about 1,200 seriously
damaged (12 percent of the country’s schools).The estimated damage and loss figures for
education is almost as high as for Transport (USD 24 million). Finally, the Housing sector also
incurred high damage and loss, estimated at USD 18.5 million (almost 15 percent of the
total DaLA).


15This is the first time that such a comprehensive analysis of the disaster effects has been carried out in
Cambodia. For this PDNA exercise, an ambitious list of 15 sectors was originally designed. Due to
problems mobilizing the sector teams, insufficient quality analysis or excessive delays in the delivery,
Post and Telecom, Cultural Heritage, and Tourism assessments had to be dropped, while Bank and
Finance and Gender and Child Protection will be limited to qualitative analysis that will integrate
different sections of the report (but will not be included as a separate sector assessment).

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These figures do not reflect all the human misery in terms of displaced people, homeless
families, and whole villages that have to be relocated, people living presently in temporary
improvised shelters. The restoration of people’s livelihoods in the short term becomes thus
even more critical.

Water Management and Irrigation, Water Supply and Sanitation, and Industry and
Commerce have suffered less, but still in a sizeable way. Given the importance of water
management for the economic and social development of the country, and its close
relationship to flood protection and agricultural production, the damage and loss calculated
for this sector is important (USD 2.8 million). Industry and Commerce should be taken into
account as the major part of its USD 3.5 million damage and loss assessment occurs in agro-
industry. Finally, the damage and loss in Water Supply and Sanitation roughly estimated at
USD 0.5 million, is limited, but still significant.

The impact on Energy, Health, Environment, and Public Administration sectors is relatively
small. The damage resulting from the typhoon and its economic impact on these sectors can
be considered as almost negligible. However, the Ketsana disaster has exposed significant
vulnerabilities in these sectors, and enabled to draw useful recommendations to further
improve their disaster-resilience for possible future disasters.



2.3 Infrastructure Sector
2.3.1 Transport

Pre-Ketsana Situation

Cambodia’s Transport sector comprises roads, railways, inland water transport,
international sea traffic through the ports in Preah Sihanouk and Phnom Penh, and
domestic and international air traffic centered on Cambodia’s two international airports in
Phnom Penh and Siem Reap. Much of the country’s original transport infrastructure was
destroyed or substantially degraded by decades of war.

The road network is composed of arterial roads that are managed by the Ministry of Public
Works and Transport (MPWT) and rural roads managed by the Ministry of Rural
Development (MRD). There are 2,117 kilometers of single digit and 3,146 kilometers of
double-digit national roads, 6,441 kilometers of provincial roads, and 28,000 kilometers of
rural roads.




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A vibrant transport sector is essential to both economic growth and the poverty reduction.
The government and our partners in development have made substantial efforts to improve
road access. Much of this access has now been damaged or even destroyed by Typhoon
Ketsana.

                   Table 5: Road Classification and Management Responsibilities
                                            Length              Number of Bridges      Management
       Road Classification
                                             (Rate)                (Length)             Authority
 Single-Digit National Roads           2,117.0 km    5.3%             589 (17,643m)
 Double-Digit National Roads           3,145.6km     7.9%             698 (15,710m)        MPWT
 Provincial Roads                      6,441.0km    16.2%             904 (16,309m)
 Rural Roads                            28,000km    70.5%                        N/A       MRD
                                      39,703.6km 100.0%             2,445 (58,340m)
 Total Length
                                                                       1764 Culverts
Source: MPTW and MRD (2009).

Disaster Impact on Transport

The transport sector in Cambodia suffered both direct and indirect damages, not only to the
roads but also to drainage structures and other connecting infrastructure like bridges and
culverts.

                             Table 6: Physical Damages to Transport Sector

      Road Classification             Length (km)        Damage Length (km)    Percentage of Damage
Urban and National Roads                5,262.0                  48.5                  0.92%
Provincial Roads                        6,441.0                  38.2                  0.59%
Rural Roads                             28,000.0                 543                   1.94%
                                  Source: Source: MPTW and MRD (2009).




        Rural Road Damaged by Ketsana                    Temporary Toll Wooden Pass after Ketsana

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 Cambodia PDNA           SECTION II : SUMMARY OF ASSESSMENT AND SECTORAL REPORTS




       PR 2620 Flooded during Ketsana               PR 2620 Damage after Ketsana

As reported by the local population and authorities, the floods submerged and destroyed
whole sections of the roads. Heavy transport and other vehicles, nevertheless, caused
additional damage due to the poor quality of the foundations and sub-grades and their
exposure to prolonged wet conditions. Water erosion damaged most embankments and
slopes as they were inadequately compacted In addition and drainage systems often non-
existent or inadequate, especially with respect to low-lying roads.

Proximity to tributaries—rivers, streams, and water basins—was also a factor. Secondary
roads of all levels (i.e., national, provincial, and rural) and bridges suffered major damage.
Minor damage to other roads occurred primarily because of flooding, fallen trees,
inadequate construction materials (soil), and poor standards of road design.

The evaluation of damage is based on field visits, with preliminary assessments done by the
MPTW and MRD. Damage in other provinces is based on the MPTW and MRD reported
damage length for both fully and partially damaged sections. To calculate the cost of direct
damage, the types of damage were separated and multiplied by the unit cost per kilometer
of road, linear meter of bridge, or cell of pipe/box culvert and weighted against whether it
had to be reconstructed, repaired, or maintained. Total direct damage to the transport
sector is estimated at USD 14.39 million.

Loss mainly incurs in the form of higher vehicle operating costs (VOC) and longer freight and
passenger travel times associated with the worsened road conditions on key urban,
national, provincial, and rural roads. The use of temporary means (e.g., boats, koyun, and
longer alternative road routes) and improvised repairs with low standards of construction
and materials in order to accommodate temporary traffic further exacerbated the losses.
The higher volume of traffic is expected to continue for an extended period of time during
the recovery. The increase in VOC due to the damaged roads results in faster depreciation
of vehicles and higher fuel consumption, thus creating greater demand for imports. If loss of
roads is correlated to the volume of traffic, rural roads pale in comparison to urban,

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national, and provincial ones. Most of rural road users, however, have no choice besides
using the damaged rural roads with higher vehicle operating costs.

The calculation of the losses is complicated because of the lack of traffic data, the most
important factor. Our assumptions were based on previous studies and also on a survey
distributed to commune chiefs, villagers, and road users. Taking into account an annual
traffic growth of 10 and 5 percent on each road, respectively, with and without the disaster,
the total indirect damage (loss) to the transport sector can be estimated at USD 11 million,
under the assumption that it would take six to eight months to restore the affected roads to
their condition prior to the typhoon and flooding.

Damages and losses to the transport sector vary according to road classification and traffic
volumes. Siem Reap Province was the most severely damaged, followed by Ratanak Kiri,
Battambang, Banteay Meanchey, and Preah Vihear.



              Table 7: Summary of Effects of Typhoon Ketsana on Transport Sector

 No     Province Name      Damage Length (km)   Damages (USD)        Losses (USD)    Total (USD)
  1   Kampong Thom                  58.90               945,595.80    1,171,821.46    2,117,417.26
  2   Battambang                    34.70             1,392,491.29    1,085,385.27    2,477,876.56
  3   Kampot                         8.21               473,973.00      729,316.42    1,203,289.42
  4   Kep                           11.90               464,000.00      307,070.78      771,070.78
  5   Kratie                        11.60               326,000.00      234,790.20      560,790.20
  6   Stung Treng                   14.98               407,320.00      292,529.40      699,849.40
  7   Ratanak Kiri                  75.40             1,704,127.46      551,633.38    2,255,760.84
  8   Oddar Meanchey                25.71               456,310.59      771,101.96    1,227,412.55
  9   Banteay Meanchey              65.11             1,369,749.43      612,460.78    1,982,210.21
 10   Kampong Cham                  12.14               463,477.73    1,075,706.43    1,539,184.16
 11   Pailin                        27.00               405,200.00      203,616.58      608,816.58
 12   Mondul Kiri                   32.50               937,600.00      257,095.10    1,194,695.10
 13   Siem Reap                    183.74             3,448,567.60    2,955,944.17    6,404,511.77
 14   Kampong Chhnang               36.25               367,458.75       65,403.07      432,861.82
 15   Preah Vihear                  30.60             1,204,337.23      525,493.86    1,729,831.09
 16   Kandal                         0.70                11,682.80      114,455.38      126,138.17
 17   Koh Kong                       0.25                 4,960.00       70,688.87       75,648.87
 18   Preah Sihanouk                 0.08                 5,980.24       35,344.44       41,324.68
         TOTAL                     629.77            14,388,831.91   11,076,698.15   25,465,530.06
Source: PDNA Team Elaboration (2009).




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Recovery Framework for Transport

Across all levels of government and types of transport that is, roads, railways, inland water
transport, ports and main airports, significant progress needs to be made in the restoration
and rehabilitation of the physical infrastructure in order to ensure a transportation network
connecting all parts of the country, as well as with neighboring countries. High priority must
thus be given to ensuring that the transportation network is properly maintained, and to
encouraging and promoting the participation of the private sector in operations and
maintenance. The specific standards of road construction and maintenance, which are even
more important for flooded zones, also must be strengthened and properly implemented.

In order to provide emergency response, 7 urban, 7 national, 6 provincial, and 34 rural
roads have to be repaired immediately. The roads were selected according to their priorities
and the degree of economic return to the economy.

In addition, the medium-term recovery should address the extant roads while long-term
activities should include synthetically upgrading the existing structure of low-level roads by
raising them 0.5 meters, adding a crushed stone base course, and integrating drainage
structures every 300 meters in the flooded areas.

The addition of a crushed stone base is a prerequisite for the long-term rehabilitation; it
enables the follow-on application of Asphalt Concrete (AC) for urban, national, and
provincial roads; and the Double Bitumen Surface Treatment (DBST) for rural roads, in
alignment with the government policy for the next 5-10 years. Since the current standard
slope of roads is 1:2 or less, which was a factor in the instability and rapid damage of the
whole network, applying a 1:3 slope must become imperative.

                          Table 8: Recovery Needs for Transport Sector
                           In the Short, Medium, and Long Term (USD)

                        Short Term       Medium Term         Long Term             Total per
   Type of Road
                       (0-6 Months)       (1-3 Years)        (3-5 Years)          Road Type

 Urban                      563,797.85        346,912.25                   0.00      910,710.10
 National                   621,679.61        163,943.46      15,496,500.00       16,282,123.07
 Provincial                 135,728.69      1,071,290.06      13,366,750.00       14,573,768.74
 Rural                    3,803,000.00      7,682,480.00      47,497,261.00       58,982,741.00

         TOTAL            5,124,206.15      9,264,625.76      76,360,511.00       90,749,342.91
Source: PDNA Team Elaboration (2009).




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2.3.2 Water Supply and Sanitation

Pre-Ketsana Situation

Rural Water Supply and Sanitation

The Cambodian Millennium Development Goals (CMDG) Progress Report indicates that 61
percent of the rural population has access to rural water supply, and 19 percent to rural
sanitation. According to the 2004 Cambodia Socio-Economic Survey (CSES) and the 2004
Cambodia Inter-Census Population Survey (CIPS), a number of the provinces have been
found to have "good if not very good" coverage for rural water supplies: Svay Rieng (93
percent) Prey Veng (92 percent), Takev (74 percent), and Kampong Cham (70 percent). A
number of other provinces (Kandal (66 percent), Kampong Speu (68 percent), and Kampot
(61 percent)) are "doing well". Provinces with lower levels of coverage (up to 2004) were
Kampong Chhnang (56 percent), Kratie (56 percent), and in particular Stung Treng (33
percent). At the same time, Prey Veng (6.8 percent), Kampong Chhnang (7.7 percent), and
Kampong Speu (8.5 percent) have the lowest levels of access to sanitation. Moving toward
the CMDG targets is obviously a significant challenge.

Qualifying the progress of access to improved water and sanitation is heavily dependent on
the definitions used and agreed upon by various institutions and organizations. 16 It is
evident and has been highlighted by Levisay and Chea (2006)17, that different major
surveys/studies in Cambodia have used different definitions (National Census (1998),
Cambodia Inter-Census Population Survey (CIPS) 2004, and Cambodia Socio-Economic
Survey 2004 (CSES)), resulting in a variance in the generated data. "It is worth noting that,
while an internationally accepted definition (based on access to improved water supply
which provides at least 20 liters per day per person, (which) is not further than 1,000
meters away) is being used elsewhere, this is not applied in Cambodia".18 However, the
Asian Development Bank has quoted the following definition of access to improved water
supply in Cambodia, which seems to be based on the former Seila/MoP criteria (and still in
use as an indicator in the commune database): "Improved water is defined by the
government as reasonable access (within 150 meters throughout the year) to household
connections, public standpipes, boreholes, protected dug wells, protected springs, or
rainwater collection (system)."19



16 UNICEF/WHO Joint Monitoring Program definitions:
http//www.wssinfo.org/en/122_definitions.html.
17 Levisay and Chea. 2006. Cambodia Rural Water Supply Coverage Analysis Project Report, Water and

Sanitation Program/MRD. http//www.wsp.org/UserFiles/file/212007120531_cambodia.pdf.
18 Levisay and Chea.
19 Asian Development Bank, July 2008. Kingdom of Cambodia: Preparing the Second Rural Water Supply

and Sanitation Sector Project, Technical Assistance Report.

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Urban Water Supply and Sanitation

Recent estimation show20 that access to safe water in urban areas in 2008 was 71.6 percent,
the reported actual implementation of provision of piped water to the urban population,
however, was only 52 percent.21

There are currently 103 water utilities across
Cambodia, including private and public utilities.
Among those, two entities are autonomous, 14
entities are under direct supervision by the
Ministry of Industry, Mines, and Energy (MIME),
and 87 utilities are located in urban areas.

The Royal Government of Cambodia (RGC) set up
a policy to encourage private-sector participation
in the urban water supply sector as the private sector could provide piped water to 21
percent of the total population of the country (13,381,740 inhabitants); yet, the part of the
private sector in this is still very limited. The majority of urban water supply is still provided
by public utilities, reaching an estimated 1,057,157 people. Among these, 83.3 percent
(880,056 people) are under the service of the Phnom Penh Water Supply Authority.

                      Figure 3: Population Served by Clean Water in Urban Areas



                                 Pop Unserved     Pop Served



                                                   48%
           52%

                                                                      Total urban pop: 2,614,440

                                                                      Pop served: 1,338,174

                                                                      Pop not served: 1,276,266
Source: Department of Potable Water Supply (2009).

Among the affected provinces, the coverage of water supply prior to the typhoon was: Siem
Reap 14 percent, Kampong Cham 28 percent, Kampong Thom 63 percent, Kratie 28 percent,

20   Cambodia Millennium Development Goals Progress Report.
21   Department of Potable Water, Ministry of Industry, Mines, and Energy.

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Stung Treng 42 percent, Ratanak Kiri 14 percent, and Preah Vihear 13 percent. The high cost
of the distribution networks and facilities (e.g., treatment plants) and the ‘pro-poor’ tariff
setting are factors that limit the expansion of water supply, which essentially still relies on
loans and grants from our partners in development.

Disaster Impact on Water Supply and Sanitation

In late September, 14 provinces reported that their water supply and sanitation systems
were, to varying degrees, affected by Typhoon Ketsana. The level of impact, however,
varied throughout the affected provinces. It was reported that three provinces—namely,
Kampong Thom, Stung Treng, and Kratie—were severely affected, while the level of impact
varied from slight to moderate in the other provinces.

The water supply and sanitation sector was mainly
affected by floodwaters brought by the typhoon.
The magnitude of damage and loss to the sector
was moderate. In the urban water supply system,
the flood caused a short disruption of water supply,
due mainly to pipe network or intake structure
damage leading to temporary closure. The revenue
of most water utilities experienced a decline in the months following the disaster because
of the short-term disruption of operations and the misreading of water meters that were
submerged in floodwaters. A total number of 16 utilities (8 public and 8 private) were
affected by Typhoon Ketsana. Many suffered minor damage and loss.

In rural areas, the typhoon caused little damage to the structures of the rural water supply
and sanitation systems flooding being the main effect of
the typhoon on the water supply and sanitation facilities.
The only damage that was seen to be caused by the
typhoon was the soil subsidence of soil below the well
platforms submerged in floodwaters. This led to cracks in
the platforms, making the wells more vulnerable to
pollution, caused by surface runoffs. This damage,
however, cannot solely be attributed to Typhoon Ketsana.
Poor construction quality and design as well as poor maintenance of the system also played
a large role.

Although the damages to the physical assets of rural water
and sanitation system were not significant, floodwaters
overwhelmingly inundated a large number of wells (800)
and latrines (1,600) in the affected communities causing
fecal contamination to the drinking water sources. The


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contamination puts the health of the communities at risk of diarrhea and other water-
related diseases, especially for communities that relied on wells and surface water as the
main drinking water source.

More importantly, the restricted access to sanitation in the affected areas exacerbated
water pollution during the flood. Feces that had been disposed indiscriminately in fields
contributed significantly to the contamination of water sources. It was also observed that
women and children were the most vulnerable as flooded toilets prompted women to go
far from home to defecate, and mainly at night for the sake of privacy. Children played and
swam in the floodwaters, exposing them to the risk of water-borne diseases that could
jeopardize long-term growth and even survival.

The total damage to water supply and sanitation caused by Typhoon Ketsana can be
estimated at USD 0.06 million (of which, USD 0.05 million for the urban water supply).

The urban water supply sector incurred most of the damage, with damage to rural
sanitation being negligible. For water supply utilities, the estimation of damage was
relatively simple to ascertain. It was based on the observations of and the reporting by the
utilities on the level of damage. For rural water supply, however, various assumptions based
on field observations were required (e.g., the cracked or damaged well platforms). In
addition, the level of damage was weighted for different provinces according to the severity
of the reported damages.

Damage to urban sanitation (waste water and solid waste) was not assessed in detail by the
assessment team. However, it was reported that Siem Reap (148,000 citizens) was the only
major urban area (more than 40,000 inhabitants) affected by Typhoon Ketsana. Several
areas were completely flooded for up to one week, with roads blocked and municipal
services disrupted. The brown water was mixed with the flood and was likely to have
impacted people downstream who use the river water for all their domestic needs.

The substantial portion of the typhoon’s impact on the water supply and sanitation sector
was the indirect economic loss to water supply. It is estimated that the economic loss in the
water supply and sanitation sector totaled USD 0.39 million, of which USD 0.06 million was
a loss in revenue for the water supply utilities, and USD 0.33 million was the cost for
cleaning and disinfecting contaminated wells.

To date, however, none of the contaminated wells have been cleaned and disinfected.
People have continued to use the water in the wells for drinking purposes despite the poor
quality. The estimation of economic loss in the water supply sector was mainly made based
on the reported revenue by utilities (for piped water supply system), and the estimated cost
for cleaning and disinfecting wells including other related costs (e.g., rural water supply).



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As for rural sanitation, although the data on affected latrines in rural communities was also
reported by the PDRD, there was no concrete evidence showing damage to the physical
assets of rural sanitation facilities. The only observation that was made was that some
latrines were flooded during the typhoon, which caused disruption to latrine operations.
The assessment team therefore concluded that the physical damage and economic loss in
rural sanitation due to Typhoon Ketsana was minimal or negligible.

The results of the assessment show that the overall impact of Typhoon Ketsana on WSS was
relatively contained in strict economic terms.

From the rural water supply and sanitation (WSS) perspective, the provinces that were
affected most severely are Kampong Thom, Siem Reap, and Kratie. The less-affected
provinces were Battambang, Mondul Kiri, Pailin, and Kep. From the urban WSS perspective,
the provinces affected most severely were Kampong Thom, Siem Reap, and Kampong Cham
while Ratanak Kiri, Stung Treng, Kratie, and Preah Vihear were the least affected.

            Table 9: Damage and Loss in Water and Sanitation Sector (USD million)
                                           Disaster Effects                   Ownership
    Sub-Sector Component
                                  Damage         Loss         Total      Public       Private
 Urban Water Supply                 0.05         0.06         0.11        0.10          0.01
 Rural Water                        0.01         0.33         0.34        0.34            -
 Rural Sanitation                     -            -            -           -             -
 Total                              0.06        0.39          0.46        0.44          0.01
Source: PDNA Team Elaboration (2009).

Recovery Framework for Water Supply and Sanitation

The Recovery Strategy for Water Supply and Sanitation (WSS) in the affected areas is based
on strategic considerations linked with the national development objectives for Cambodia,
in particular, the National Strategy for Rural Water Supply and Sanitation. The construction
design standards of WSS facilities and other
response mechanisms require urgent
attention (e.g., disaster preparedness
building; early warning and response
mechanism) at all governmental levels.

The long-term recovery program and the
reconstruction needs for urban water supply
systems do not take into account future
expansion of water supply. At this stage,
consideration has been given to more robust
intake structures, taking into consideration, in particular, potential climate change effects.



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Actions and their resulting outputs for the WSS recovery will focus on the following
activities:

Medium Term (2 years)

   •   Damage to urban water supply must be repaired to ensure that customers continue
       to have access to safe water;

   •   All contaminated wells need to be cleaned up as soon as possible. Priority will be
       given to hand-dug wells as they are more likely to be contaminated than tube wells;
       and

   •   Severely affected areas will require priority interventions: Kampong Thom, Kratie,
       Siem Reap, and Kampong Cham.

Long Term (5 years)

   •   Quality reconstruction needs to be in place for all piped water systems to minimize
       future damage by disaster;

   •   Major structural damages to the rural water supply need to be repaired;

   •   Rural water supply system (mainly wells) needs to be improved to prevent, as much
       as possible, floodwater entering the water source;

   •   New construction of the water supply system needs to be of quality, including
       systems built by communities;

   •   Sanitation and hygiene promotion needs to be in place in the affected communities
       to make people understand possible fecal contamination of the water source due to
       flooded toilets or open defecation;

   •   A new latrine design should be available at low cost in the flood-prone areas to
       reduce the risk of fecal contamination in floodwaters; and

   •   Provincial authorities such as the PDRD should have the capacity to cope with
       disasters, and be equipped with necessary equipment to allow them to clean
       contaminated water in the immediate aftermath of a disaster.




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                    Table 10: Recovery and Reconstruction Needs Assessment
                           In Water and Sanitation Sector (USDmillion)
                      Sub-Sector                      Medium Term            Long Term
 Urban Water Supply System                                0.15                  1.25
 Rural Water Supply                                       0.35                  1.25
 Rural Sanitation                                           -                   1.50
 Preparedness Program and Capacity Building                 -                   0.25
 Total                                                    0.5                   4.25
Source: PDNA Team Elaboration (2009).

The long-term recovery outcomes of the project are directly related to the
recommendations made in the Capacity and Recovery Consideration Sections.

Monitoring and Evaluation indicators/benchmarks are to be developed (e.g., improvement
of water points, hygiene education sessions, health improvement indicators, and
effectiveness of preparedness program) for all stages of implementation activities.
2.3.3 Water Management and Irrigation

Pre-Ketsana Situation

The importance of water in the economic development of Cambodia is clearly indicated by
the contribution of agriculture to the national gross domestic product (GDP). In 2004,
agriculture contributed 32.9 percent to the total GDP at current prices. The water sector is
also important to the social development of the country, as about 82 percent of the
Cambodian population (2005 figure) live in rural areas and most of them depend on
agriculture. Consequently, the Royal Government of Cambodia (RGC) emphasizes efficient
water resources management, especially irrigation and agricultural development, which are
core strategies for reducing rural poverty and enhancing food security—the two
development problems that rank highest in the national development agenda. Despite the
impressive economic performance of the past five years, poverty levels in Cambodia are still
high (about 34.7 percent of the population in 2004), particularly in rural areas, which
account for 90 percent of the poor.

Management of the water sector is still at an early stage of development: Sector and sub-
sector performance indicators have not yet been established for monitoring and evaluating,
particularly in the irrigation. The National Strategic Development Plan 2006–2010 (NSDP)
and the Asian Development Bank’s Country Strategy and Program 2005–2009 have
established broad performance indicators applicable to the water sector, including: (i) areas
under irrigation, (ii) economic losses from floods and droughts, (iii) sustainability of
irrigation schemes, (iv) progress in the development of policy and an institutional
framework, and (v) progress in the development of an information management system.



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Disaster Impact on Water Management and Irrigation

Water management and irrigation systems in 11 provinces were reported to be affected by
Typhoon Ketsana in late September. The level of impact varies throughout the affected
provinces. Reports from MoWRAM show that Kampong Thom and Kampong Cham were the
most severely affected provinces, while the level of impact varied from slight to moderate
in other provinces.

Most of the information required for estimating damage and loss in the water management
and irrigation sector was provided by the Provincial Department of Water Resources and
Meteorology (PDoWRAM).

Water Management

According to Kampong Cham PDoWRAM damage reports, two flood protection dikes were
affected by Typhoon Ketsana. Prior to the typhoon, the Tomnup Thma Koul Dike protected
the Kampong Cham Town area from high water levels of the Mekong River. Typhoon
Ketsana affected this dike causing 170 meters of weakened slopes to slide into the Mekong
River. The Tomnup Phdav Chum Dike protected the rural residents in six communes and
3,319 hectares of wet season rice fields in Kampong Cham Province from the Mekong’s high
waters. Site visits showed that the extent of damage varied widely, ranging from moderate
to significant erosion of bank slopes and the presence of big holes in the middle of the dike.

Irrigation

According to PDoWRAMs damage report, up to 75 irrigation systems in four provinces were
hit by Typhoon Ketsana. The extent of damage varied from moderate to heavy. Most of the
structures were not damaged, often only the stone pitching for the protection of the canal
bed downstream of the structure were swept away by the high-velocity water flow. In other
cases, the stone masonry protecting canal bank slopes crumbled under the erosion of the
downstream bank slope. Three irrigation systems in Kampong Thom Province were visited
between November 15 and 19, 2009), namely: Tomnup 30 Kanha, Tomnup Roluos, and
Doun Pov Canals. They were all repaired by Kampong Thom PDoWRAM.

Effects

The direct damage to water management and irrigation sector was estimated at USD 2.779
million. Indirect loss, which involves farm water use (only dry season rice) and selling fish
from the reservoir, was estimated at USD 0.013 million. Total damage and loss thus reached
USD 2.792 million. A detailed estimate for each province is shown in Tables 11-14.




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                         Table 11: Summary of Damage and Loss in Water
                         Management and Irrigation Sector (USD million)
             Item                  Total Damage        Direct Damage      Indirect Damage
 Total                                 2.792               2.779                0.013
 Water Management                      1.100               1.100
 Irrigation                            1.692               1.679               0.013
Source: PDNA Team Elaboration (2009).

Recovery Framework for Water Management and Irrigation

Actions for the water management and irrigation recovery must focus on the following
activities:

Short Term (0-6 months)

    •   Repair the most damaged water management and irrigation schemes to ensure that
        they can protect the urban and rural residents, and that the farmers can continue to
        get water for the rice fields, with priority to the most damaged areas (e.g., Kampong
        Thom and Kampong Cham Provinces).

Medium Term (2 years)

    •   Rehabilitate and upgrade all affected water management and irrigation schemes,
        and improve and strengthen the reservoir/storage area capacity; and

    •   Develop a water management strategy to reduce flooding and droughts.

Long Term (5 years)

    •   Quality reconstruction needs to be in place for all headwork, distribution systems,
        and drainage systems to minimize future damages by a disaster;

    •   New construction needs to ensure good standards; and

    •   Provincial Departments of Water Resources and Meteorology must reinforce their
        capacity to cope with disasters (in particular the newly established departments).

                    Table 12: Recovery and Reconstruction Needs Assessment
                       For Water Management and Irrigation (USD million)
Sub-Sector                      Short Term             Medium Term            Long Term
Water Management                                          1.100                 1.500
Irrigation                        1.690                   1.692                 1.500
Capacity Building                                                               0.500
Total                             1.690                   2.792                 3.500
Source: PDNA Team Elaboration (2009).


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2.3.4 Energy

Pre-Ketsana Situation

Cambodia has one of the lowest electrification rates in Asia with 17.2 percent of its
population of 13.4 million22 connected to a power supply. Most of the electrification is
concentrated in Phnom Penh and a few cities, while outside the provincial towns, power
supply is rare. Only about 6 percent of rural households have access to electricity, and
another 3 percent own some type of individual power-generating unit. About 91 percent of
rural households in Cambodia do not have access to electricity.

Table 13 shows the installed capacity and the energy supplied in 2008.

                                 Table 13: Electricity Sector at a Glance
                            Description                                2008                    %
     Energy Capacity (MW)                                             384.60                  22.33
     Energy Generated (GWh)                                           1,484.1                  80
     Energy Imported from Thailand (GWh)                               274.1                   15
     Energy Imported from Vietnam (GWh)                                100.1                    5
     Total Energy Available (GWh)                                     1,858.4                 100
                                                                              23
     Overall Loss (%)                                                 10.44
     Energy Sold to Last Consumer (GWh)                               1,664.4
     Number of Registered Consumers                                   487,426
Note: *Overall losses of 10.4 percent are lower than expected for Cambodia due mainly to a short volume of
HV and MV transmission, as most of the energy is generated and used in the Phnom Penh area. Technical
losses in rural areas are estimated at 30 percent.
Source: Report on the Power Sector of Cambodia, EAC (2009).

Electricity power consumption per capita in 200824 was about 88 kWh per year, the lowest
in the region. The four neighboring countries have a higher consumption rate: Thailand
(1,984.3 kWh), Vietnam (597.7 kWh), Lao PDR (254 kWh), Myanmar (92 kWh). In contrast,
electricity tariffs are among the highest in the world, ranging from US cents 9 to 23 per kWh
in Phnom Penh to US cents 20–USD 1 per kWh in rural areas. There is no national grid, and
towns are supplied by isolated systems.



22 Provisional figures of 2008 census.
23
    Overall losses of 10.4 percent are lower than expected due mainly to a short volume of HV and MV
transmission, as most of the energy is generated and used in the Phnom Penh area. Technical losses in rural
areas are estimated in a 30 percent.
24 World Bank Data Finder. International Energy Agency, Energy Statistics and Balances of Non-OECD

Countries and Energy Statistics of OECD Countries.

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As this overview shows, electricity is a nascent sector in Cambodia. In particular, across the
eight provinces affected by Typhoon Ketsana, namely Kampong Cham, Kampong Thom,
Siem Reap, Kratie, Ratanak Kiri, Stung Treng, Oddar Meanchey, and Preah Vihear, the
capacity installed and energy sold to consumers account only for 11 percent of the national
total.

                    Table 14: Description of Electricity Sector in Affected Provinces
         Province        Number of    Number of      Installed     Energy        Energy      Energy Sold
                         Consumers    Licensees      Capacity     Imported      Generated   to Consumers
                                                       MW           GWh           GWh           GWh
Kampong Cham               31,577         25           18.6          27.6         24.5          44.8
Kampong Thom               9,013          9             3.2          0.0              4.6       3.6
Kratie                     6,418          5             2.1          1.9              4.4       5.0
Preah Vihear               2,699          4             1.7          0.0              1.4       1.1
Ratanak Kiri               2,667          2             2.0          0.0              5.8       5.0
Siem Reap                  23,289         15           12.0          0.0              1.4      117.6
Stung Treng                2,423          2             1.7          0.0              3.5       3.1
Oddar Meanchey             3,387          3             0.7          10.5             0.5       10.5
Affected Provinces         81,473         65           42.0         190.6         46.0          40.0
Subtotal
Affected Provinces v.       17%          27%            11%          11%              3%        11%
Country
Country Total             487,426        236          384.6        1,664.4       1,484.1       374.3
                        Source: Report on the Power Sector of Cambodia, EAC (2009).

Following the baseline conditions shown in the table above, more than a quarter of the
total number of licensees (27 percent) supply energy to only 17 percent of the registered
customers who live in the affected provinces, representing only 11 percent of the total
energy consumption. Table 14 also suggests that the size of the licensed grids operated in
the affected provinces is smaller than in the rest of the country. In reality, the grids in rural
and provincial areas are similar in size, while the grid for the greater metropolitan area of
the capital accounts for half of the consumers in the country, and about 70 percent of the
installed capacity and the energy consumed. The baseline status of the electrical
infrastructure in the affected provinces is shown in detail in Annex 1.

Disaster Impact on Energy

The impact of the Ketsana disaster on the electricity sector was low: only 8.6 percent of the
consumers were affected with some cut of supply, while the impact on electricity suppliers
was estimated at just USD 32,070. Given the low rate of electrification, averaging 9.6
percent in these eight provinces, only a 0.8 percent of their population was affected by
damages to their power supply. Table 15 summarizes the percentages of customers,
consumption rates, and total population impacted across the affected areas.

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                 Table 15: Impact of Disaster on Energy Sector in Affected Areas (%)

                         Number of      Capacity    Average Supply      Electrification   Population
                         Customers       (KVA)        (kWh/Day)              Rate          Affected
Affected v. Baseline         8.6          8.2             2.1                9.6             0.8
                       Source: Report on the Power Sector of Cambodia, EAC (2009).

The results show an almost negligible impact on energy infrastructure. The most affected
facilities had very weak resilience and failed to follow building standards. Only 10 electricity
suppliers reported some damage and/or loss with a total DaLA of about USD 32,000.
Damage was calculated using actual reconstruction costs incurred by the Rural
Electrification Enterprises (REEs). These costs were compared to the average market price in
the country. The general opinion of the suppliers that were interviewed was that Typhoon
Ketsana was not very different from other storms during the wet season. Electricité du
Cambodge (EDC) did not report officially any damage or loss.

Losses were calculated using average monthly consumption before Typhoon Ketsana, and
the tariff of each particular supplier (every licensee sets its own sales tariff). Another factor
considered was the Incremental Operating Costs after the disaster. For instance, in the case
of the damaged dam at the micro-hydro plant, the supplier had to rent a diesel generator to
maintain supply, incurring very high operating costs. On the other hand, some suppliers
reduced their costs, because the damaged supply meant an overall reduction in the diesel
used and, therefore, in the usual operating costs.

In the case of the assessment demand was considered as a constant, since no variation was
measured. The suppliers interviewed did not report any change on the client demand side.
Damage and loss are detailed in Table 16.

Recovery Framework for Energy

The electrical infrastructure, after only two months, has been restored to pre-Ketsana
levels. However, needs have been identified for better protecting the rural communities
against a similar disaster, and they are detailed below for the short, medium, and long term.

Short Term (0-6 months)

   •    Rapid restoration of power supply in the affected areas. At the moment, the supply
        has been totally restored in the eight affected provinces, with the exception of the
        reconstruction of a 60 kVA micro-hydro plant dam presently using a rented diesel
        generator to supplying energy. The owner will assume all costs of reconstruction;




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   •   Clarify responsibilities and accountabilities
                                                            Table 16: Damage and Loss in Energy
       among line ministries–NCDM, MIME, and the                           Sector
       corresponding      provincial  departments,               System Description
       Electricity Authority of Cambodia (EAC) and          Capacity (KVA)                    3,479
       Électricité du Cambodge (EDC), a task to be
                                                            Number of Customers               7,036
       given to the Disaster Risk Management
       section; and                                         Damage to Assets
                                                            Generator/Power Plants           1 Micro
   •   Design an Energy Sector Post Disaster Action                                           Hydro
       Plan that would be followed by responsible                                             Dam
       agencies as well as public and private               Length of Lines (M)               2,240
       suppliers and that would include emergency           Number of Poles (Wood)             49
       procedures and post disaster recovery                Number of Meters                   53
       actions.
                                                            Number of Meter Boxes              20

Medium Term (2 years)                                       Number of Transformers              1
                                                            Costs On Assets (USD)
   •   Train REEs in technical standards and increase
                                                            Generator/Power Plants           10,000
       their awareness of risks and vulnerabilities;
       and                                                  Cost of Lines                     2,500
                                                            Cost of Poles                     1,478
   •   Institutional capacity building for MIME and         Cost of Meters and Meter          3,103
       EAC’s officers, as well as for EDC staff in          Boxes
       regard to the Energy Sector Post Disaster            Cost of Transformers              9,800
       Action Plan, including workshops and disaster        Total Cost of Damages (USD)      26,880
       drills, both at the national and province levels,
                                                            Operation Losses
       and always in coordination with NCDM.
                                                            Estimated Revenue Losses          5,430
Long Term (5 years)                                         (USD)
                                                            Total IOC (USD)                   -240
Given an estimated growth in demand averaging 30            Total Losses (USD)                5,190
percent a year for the next five years, sector needs
are not directly related to the recovery from Typhoon       Total Cost of Damages and        32,070
Ketsana. The MIME with support from international           Losses (USD)
donors has developed a strategy to absorb the                 Source: Report on the Power Sector of
expected demand with a reliable energy supply at a                    Cambodia, EAC (2009).
reasonable price. New investments in transmission,
generation, and distribution would help Cambodia to
exit the status of the least electrified country in Asia.

For the purpose of this report, long-term needs will only include those in direct relation to
disaster recovery, and not those pertaining to the general power sector development. It


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must be remarked that although improved infrastructure is important, clear procedures and
a sound institutional organization are also critical. The sector needs to set up a sustainable
structure in the long run through strong sector management, transparent regulations, clear
procedures, wide channels of communications, and good coordination among the line
ministries: only then will resilience increase and the sector better withstand disasters. In
particular, the following needs have been identified:

   •    New regulations that integrate specific mandates of sector agencies into one single
        National Protocol for Disaster Response;

   •    Awareness-raising campaigns at the village level to inform rural consumers of the
        vulnerabilities of their electrical installation, appropriate ways of using electricity,
        and instructions and actions to take in case of disaster; and

   •    Insurance system to protect private and public suppliers against natural disaster
        impacts. This insurance scheme would be partly financed by the government and
        donors through a special Post Disaster Recovery Fund. Technical assistance would be
        needed to administrate this fund.

Some of the above-mentioned needs like institutional capacity building, an insurance
system, and new DRM regulations, could be developed by the core Disaster Risk
Management section and so, implemented by the NCDM, with support from specific sector
agencies.
                 Table 17: Cost of Estimated Needs in Energy Sector (USD thousand)
Needs                                                                                Cost
Short Term (0-6 Months)
   Rapid Restoration of The Supply in Affected Areas                                  50
   Clarification of Responsibilities among Agencies                                   100
   Design Energy Sector Post Disaster Action Plan                                     150
   Subtotal                                                                           300
Medium Term (2 Years)
   Training of REEs                                                                   350
   Institutional Capacity Building                                                    500
   Subtotal                                                                           850
Long Term (5 Years)
   Energy Section of National Protocol for Disaster Response                          350
   Communication Campaigns For Energy-Related Disaster Awareness                      500
   Power Supplier Insurance System against Natural Disasters                         1,000
   Subtotal                                                                          1,850




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 TOTAL                                                                                    3,000
                     Source: Report on the Power Sector of Cambodia, EAC (August 2009).

In summary, the power sector needs USD 3 million in a five-year timeframe in order to be
better protected against natural disasters. Most of the investments relate to institutional
low capacity, poor coordination, and lack of incentives, procedures, and regulations. About
a third of the estimated cost would address the upgrading of “weak� infrastructure in order
to increase resilience against similar disasters.




2.4 Social Sectors
2.4.1 Housing

Pre-Ketsana Situation

Before Typhoon Ketsana, the situation                 Figure 4: Permanent, Semi-Permanent, and
in the housing sector was the                          Temporary Residential Buildings, 2008 (%)
following: (i) only 57 percent of the
residential and partly residential
buildings were permanent; (ii) about
25 percent were semi-permanent; and
(iii) 18.5 percent were temporary. In
rural areas, nearly half of the
structures were either temporary or
semi-permanent.25

The tenure status of dwellings/
households indicates that the vast
majority of houses are occupied (96.2
percent), while rented houses                   Source: General Population Census 2008
represent 0.4 percent, rent-free houses 0.34 percent, and others just 0.03 percent. In the
affected areas, the percentages are similar.




25   General Population Census 2008.

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Assets owned by Cambodian households in the affected versus unaffected areas provide an
indication of the economic situation. A television is owned by about 58 percent of
households, while in the Ketsana-affected areas the figure is 47 percent. A motorcycle is
owned by about 37 percent of households, whereas in the affected areas it is 33 percent.
Only 4.08 percent own cars/vans at the national level, and a mere 0.03 percent in the
affected areas. A hand tractor is owned by about 3.11 percent of the population and only
0.04 percent by those affected by the typhoon. Finally, a personal computer is owned only
by about 3 percent of the general population, but in the affected areas it is an insignificant
0.01 percent. The information of household-owned assets in the affected areas is shown in
Table 18 below. 26

                                   Table 18: Household Assets in the Affected Areas

                No. of    No. of                                                Household Assets
 Provinces                            Radio    TV      Phone   Cell      Computer Bicycle Motorcycle     Car /   Boat     Big      Hand
                 HHs      people
                                                               Phone                                      Van             Tract.   Tract.
 Banteay
                144,658    677,872    53,920 85,322    2,136   77,015        3,695   113,983   62,139    7,110   7,907    1,467    18,530
 Meanchey
 Battambang     209,702   1,025,174   89,678 124,828 3,202     110,707       6,519   151,745   100,929   10,406 10,774    2,785    19,365
 Kampong
                368,114   1,679,992 147,812 222,162 4,355      149,592       6,352   360,703   175,405   13,557 20,400    1,703    10,112
 Cham
 Kampong
                100,801    472,341    43,872 52,912    1,103   32,127        1,562   92,126    35,481    2,575   23,647   231      3,204
 Chhnang
 Kampong
                133,878    631,409    55,159 60,602    1,367   42,896        2,309   131,545   50,325    3,619   15,878   658      2,798
 Thom
 Kampot         129,646    585,850    53,935 58,269    1,028   45,160        2,023   128,127   44,906    2,983   2,463    169      1,705
 Kratie          65,323    319,217    26,983 29,509     779    25,783        1,195   44,283    27,617    2,399   6,500    219       903
 Mondul Kiri     12,270     61,107     4,351   3,557    140     5,712        243      4,251     7,932     690     160      33       586
 Preah Vihear    33,115    171,139    13,794 6,646      187     9,308        553     19,060    13,037     807    1,008    108      4,119
 Ratanak Kiri    27,485    150,466     9,017   8,110    314    12,293        639     13,603    18,084    1,526   1,644     99       633
 Siem Reap      179,754    896,443    71,017 112,831 2,722     105,247       7,550   174,077   101,015   11,391 11,403    448      4,465
 Preah
                 44,656    221,396    13,794 6,646      187     9,308        553     19,060    13,037     807    1,008    108      4,119
 Sihanouk
 Stung Treng     20,922    111,671    11,192 5,850      293     9,492        572     14,179     8,524     862    5,688     91       523
 Oddar
                 38,398    185,819    13,115 13,255     525    14,153        625     24,705    14,887    1,166    200      98      5,266
 Meanchey
                                      Source: Cambodia General Population Census 2008.

Disaster Impact on Housing

Dwellings were impacted in 14 different provinces and were first reported in early October
2009. The level of impact, however, varies according to the affected provinces. Four
provinces, namely Kampong Thom, Preah Vihear, Ratanak Kiri, and Kratie, were severely
affected, while the level varied from slight to moderate in the other provinces.




26   General Population Census 2008.

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                          Table 19: Number of Houses Affected, by Province
     Affected Provinces        Fully Destroyed      Partially Destroyed      Total Number Affected
 Kampong Thom                        109                   2,906                          3,015
 Siem Reap                            60            not reported                             60
 PreahVihear                           1                   2,745                          2,745
 OddarMeanchey                         3            not reported                              3
 Ratanak Kiri                         13                     778                            791
 Kampong Cham                          6            not reported                              6
 Kratie                               13                   2,984                          2,997
 BanteayMeanchey                      10            not reported                             10
 Battambang                             -                  1,146                          1,146
 Kampot                                3            not reported                              3
 Total                                218                  10,559                        10,776
Source: Field Assessment and National Committee for Disaster Management reports, 2009.

A total of 10,776 affected houses, of which 218 were fully destroyed, were reported by the
local authorities. Details of affected houses by province are shown in Table 19 above.


Strong winds, flashfloods, and aftermath
effects caused damage to structures,
buildings, and household assets, and
disrupted economic activity in the
affected areas. In general, the incomes of
the affected households experienced a big
cut in the months following the disaster,
as dwellers were occupied by the
construction of temporary shelter and the
restoration of community livelihoods. The
total household income loss is estimated
at USD 3,294,398.
                                                   One of the fully destroyed houses in Kampong Thom
Damage to household assets was Province. Photo taken by Assessment Team on visit to
generally not counted or reported at the affected areas, November 15-20, 2009.
either the national or local levels. The
assessment of damage to household assets was calculated based on samples/interviews
with household heads made in both the most severely affected areas (e.g., Sandan District
in Kampong Thom Province) and the least affected areas (e.g., some districts in Siem Reap
Province). It is not as straightforward as the structural damage assessment.




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                     Table 20: Damage and Loss in Housing, by Province (USD)
     Affected Provinces                        Damage                     Loss           Total Effects
                                Damage to             Damage to         Amount             Amount
                                 Structure           Assets/Stock
  Kampong Thom                          3,913,434            483,140        921,734           5,318,308
  Siem Reap                              340,200              42,000         18,343             400,543
  Preah Vihear                          3,118,500            385,000        839,191           4,342,691
  Oddar Meanchey                          17,010               2,100              917            20,027
  Ratanak Kiri                          1,397,088            118,020        241,822           1,756,930
  Kampong Cham                            34,020               4,200             1,834           40,054
  Kratie                                3,457,566            426,860        916,231           4,800,657
  Banteay Meanchey                        56,700               7,000             3,057           66,757
  Battambang                            1,299,564            160,440        350,351           1,810,355
  Kampot                                  17,010               2,100              917            20,027
  Total                            13,651,092              1,630,860      3,294,398         18,576,350
Source: PDNA Team Elaboration (2009).

After the interviews and samples were conducted, the team established replacement costs
for both structures and assets, and made some assumptions based on field observations. In
addition, the level of damage was weighted for different provinces according to the severity
of the reported damage. Total damage to household and structure assets and to the
associated losses in each province is shown in Table 20 above. The total damage to the
housing sector caused by Typhoon Ketsana is USD 15,281,952, of which USD 13,651,092
represents the damaged structures and USD 1,630,860 the assets.

Similarly to water supply and sanitation sector, women and children were the most affected
by the impact on housing in the communities where the typhoon hit. Damage to houses and
household assets (e.g., kitchens) prompted many women to construct temporary shelters,
get clean water from secured sources that were generally distant from their places, and
prepare food for their families. Many children who escaped the calamity appeared on
casualty lists; most had no school to attend; and playing and swimming in the floodwaters
                                                  increased their risk of immediate and long-
                                                  term water-borne diseases.

                                                         The total economic losses accounted in the
                                                         housing sector are USD 3,294,398. This
                                                         number represents the loss of income of
                                                         the affected households in terms of the
                                                         opportunity cost of spending time to
                                                         rehabilitate and reconstruct rather than
                                                         earn income through regular activities.
                                                         Losses associated with income-earning

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opportunities based on household assets were not estimated as the more formal income-
earning opportunities were estimated in the Industry and Commerce Assessment, and the
necessary level of detailed information on damaged assets used for informal economic
activities is not available.

To date, only a few fully destroyed houses have been reconstructed, but most of the less
damaged houses have been repaired. To rehabilitate their houses, many owners had access
to housing credits from the local commercial banks (which are traditionally risk-averse and
charge high interest rates) or they took loans from friends and relatives.

Recovery Framework for Housing

The recovery strategy for the housing sector is based on the generic recovery
considerations mostly linked with the development of national policy and sector strategies.
The design of disaster-resilient standards for design and construction should receive urgent
attention. Priority actions for recovery should focus on the following activities:

Short Term (0-6 months)

    •    Fix the damaged homes/structures and rebuild the core structures of fully destroyed
         homes/structures; and
    •    Provide temporary shelter and basic support.
Medium Term (2 years)
    •    Completely reconstruct fully destroyed houses;
    •    Conduct a design standards review/compliance; and
    •    Raise community awareness by conducting a "Disaster Resilience and Climate
         Change Adaptation" program.

   Table 21: Recovery and Reconstruction Needs Assessment for Housing, by Province (USD)
                          Needs for Reconstruction                            Funding Required

Immediate                                                                          12,089,000
    1.   Fixing the Damage Parts and Construction of Core Part of Structure        11,980,000
    2.   Temporary Shelter and Basic Support                                          109,000
Medium                                                                              2,087,800
    1.   Reconstruct the Fully Destroyed Houses                                     1,237,800
    2.   Design Standard Review/Compliance                                            350,000
    3.   Community Awareness "Disaster Resilience and CC Adaptation"                  500,000
TOTAL                                                                              14,176,800
Source: PDNA Team Elaboration (2009).


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2.4.2 Health

Pre-Ketsana Situation

In the early 1990s, the Ministry of Health started a sector reform process and in 1996
approved a Health Coverage Plan. This plan divides the country into 73 operational districts
within the 24 provinces. Each operational district covers a population between 100,000 and
200,000 and comprises 10¬20 health centers and one referral hospital. Each health center,
therefore, covers a population of about 10,000. Health centers are expected to deliver a
“minimum package of activities� that includes basic curative, preventive, and promotional
services provided both in the facility and through outreach. Community participation is
obtained through village health support groups and health center management
committees. Referral hospitals provide a “complementary package of activities� while
national institutes, national hospitals, national programs, and training institutions provide
third-level service. By the end of 2008, there were 8 national hospitals, 77 operational
districts, 76 referral hospitals, 957 functional health centers, and 108 health posts. The
Ministry of Health comprises three directorates at the national level: Health Services,
Finance and Administration, and Inspection.

The development of the Cambodian health system is guided by the Health Strategic Plan
2008–2015 (HSP2), which addresses the policy direction of the health needs and health
improvement of the population in the eight years to come. Quality health services greatly
contribute to the long-term process of poverty reduction, enhancement of the economy,
and social development. A natural disaster of significant magnitude could impede or divert
the delivery of such strategic health services.

The Vision developed by the HSP2 is “to enhance sustainable development of the health
sector for better health and well-being of all Cambodian, especially of the poor, women and
children, thereby contributing to poverty alleviation and socio-economic development.�

In the Health Sector, the Mission of the Ministry of Health is “to provide stewardship for the
entire health sector and to ensure a supportive environment for increased demand and
equitable access to quality health services in order that all the peoples of Cambodia are able
to achieve the highest level of health and well-being.�27




27   Second Health Sector Strategic Plan 2008–2015.

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                          Figure 5: Health System Organization




Source: Ministry of Health, 2008

                   Map 2: Provinces with Pronounced Health Affects




               Source: PDNA Team Elaboration (2009)




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Disaster Impact on Health

The typhoon left 43 people dead, 67 people severely injured, and some 48,787 families
directly affected (of which 6210 were evacuated). Though loss of life was not as high as in
other countries, about 180,000 people were affected (directly or indirectly), which is
equivalent to 1.4 percent of the population. Map 2 shows the provinces where the affects
to the health sector were more pronounced.

Following Typhoon Ketsana, varying levels of damage to health sector facilities with related
service disruption were reported in eight provinces: Ratanak Kiri, Kampong Thom, Stung
Treng, Siem Reap, Preah Vihear, Kratie, Kampong Cham, and Prey Veng. In total, 234 health
centers and 45 health posts, of which 27 health centers and 9 health posts (which
represents respectively 11.5 and 20 percent of the total numbers in the affected provinces)
were submerged up to half the building's height (2.50 m), resulting in loss of drugs and
medical supplies as well as damage to medical and office equipment and patient records. A
small number of health centers/posts were totally submerged, in particular Taveng health
center and Tabok and Talao health posts in Ratanak Kiri Province. The MoH health officers
from Kampong Kor health center in Kampong Thom Province and Taveng health center in
Ratanak Kiri Province reported that these facilities were severely affected (50 percent
replacement cost).

While the majority of health centers were in reasonably sound condition, the existing
problems of poor access to health care by vulnerable populations were magnified by the
flooding. According to the provincial health departments, an estimated 175,667 people
required medical care and treatment during the typhoon and floods and in the immediate
aftermath, and could not reach their related health facility.

                        Table 22: Damage and Loss in Health Sector (USD)
       Provinces          Damage to Structure:    Damage to Equipment:   Loss of Income (USD)
                           Health Centers and       Furniture, Medical
                              Posts (USD)            Equipment, and
                                                     Medicine (USD)
 Ratanak Kiri                      1,400                  55,072                8,002
 Kampong Thom                         600                      0                4,581
 Stung Treng                            0                      0                1,354
 Siem Reap                              0                      0               12,954
 Preah Vihear                           0                      0                1,348
 Kratie                                 0                      0                2,388
 Kampong Cham                           0                      0                6,141
 Prey Veng                              0                      0                2,647
 Sub-Total                          2,000                 55,072               39,415
 Total (D and L)                                           57,072               39,415
 TOTAL (D+L)                                             96,487
Source: PDNA Team Elaboration (2009).


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                      Table 23: Submerged Health Centers and Health Posts
  Province                      Existing         Existing      Submerged       Submerged
                            Health Centers     Health Posts   Health Centers   Health Posts
  Ratanak Kiri                     10               10              5               6
  Kampong Thom                     56                -              3               -
  Stung Treng                      10                3              3               -
  Siem Reap                        26                4              4               -
  Preah Vihear                     13               19              2               1
  Kratie                           25                9              2               2
  Kampong Cham                     45                -              2               -
  Prey Veng                        49                -              6               -
Source: PDNA Team Elaboration (2009).

The picture illustrates the impact on
Taveng health center in Ratanak Kiri
Province. The center was not able to
provide health care services either
during or immediately after the
typhoon.

Of all the provinces, Kampong Thom
and Ratanak Kiri were the most
affected. The majority of the health
centers in the affected provinces were
constructed as single story buildings
with five rooms: This was then a risk
factor underlying the disaster and creating a potential for future losses. The health officers
in Ratanak Kiri reported that the Veun Sai health center, being located in an area with high
risk of flooding, was totally inundated. In fact, the annual rainy season submerges the Veun
Sai almost every year.

Recovery Framework for Health

Recovery Considerations

Health facilities and health services are a community's lifeline in normal times and are
especially critical in times of disaster. Sometimes, however, they are severely damaged or
left unable to function in the aftermath of a disaster. To enhance the potential long-term
benefits of health protection, the sites for the construction of health facility must be
appropriately selected and take into account an improved design and better construction
standards. Resources for maintenance and repair of health facilities should be planned
adequately in annual operational plans (AOPs).




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In order to reduce the risk of future loss from disasters, all affected health centers should be
retrofitted following the new design of health facility construction. Also, relocation of some
health centers to safe areas will have to be considered.

Short Term (0-6 months)

   ï‚·   Health Outreach Services (this should be managed within funding approved for 2010
       AOPs. Additional resources may be sought only if there is any large disease outbreak
       occurs)

       — Provide preventive and curative health care services to affected populations,
         including basic maternal and child health services

       — Conduct health Outreach Activities in Typhoon Ketsana affected villages, as part
         of routine health outreach activities from health centers and with support from
         VHSG, in order to provide preventive and curative care. This will include basic
         health education on hygiene; the use of abate to control mosquitoes (in dengue
         affected areas); vaccination of children and women; distribution of clean delivery
         kits and contraceptives; Vitamin-A and de-worming medicines for children and
         postpartum women; iron/foliate acid supplementation for pregnant and
         lactating women; insecticide impregnated bed nets to families in the most
         affected areas for the prevention of vector borne diseases; treatment of
         diarrheal diseases with Oral Rehydration Salts (ORS); monitoring of the
         nutritional status of children under five; active disease surveillance and response
         for all cases presenting symptoms ranging from Influenza-Like-Illness (ILI) to
         acute respiratory infection/pneumonia, diarrhea, dengue fever, measles (fever
         and rash).

       — Surveillance data must be analyzed frequently to detect outbreaks and to plan
         appropriate responses.

   ï‚·   Restoration of priority public health and care services (Total: USD 86,690). Supply of
       drugs, medical equipment and laboratory test kids can be done from the existing
       stock available at central medical stores and from the national programs.

       — Urgent repair of damaged infrastructure and equipment. Total: USD 86,690.

       — Supply replenishment (mostly antibiotics against acute respiratory infection;
         diarrheal diseases as well as insecticide treated bed nets, clean delivery kits,
         contraceptives, and vector control supplies are required to equip the mobile
         teams visiting affected villages and in preparation for possible outbreaks).




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       — For malaria and dengue fever, rapid diagnostic tests and anti-malarial drugs are
         needed for affected provinces. These interventions are essential for preventing
         the recurrence of numerous vector-borne diseases in flood-affected areas.

Medium Term (2 years)

   ï‚·   Capacity building (Total: USD 360,700. This should be taken into consideration during
       2010 AOPs revision or 2011 AOPs planning)

       — Providing the HDMC with a data management system, training on health disaster
         management, strengthening communicable disease surveillance systems for the
         prevention and control of disease outbreaks, etc. Total: USD 180,000

       — Strengthening Rapid Response Teams at sub national level. Total: USD 40,000.

       — Conducting training workshop on PDNA among provincial disaster management
         committee. Total: USD 40,000

       — WHO Technical Assistance: Salary and Operating/communication costs for
         National Professional Officer (NPO). Total: USD 100,700

   ï‚·   Community education and awareness-raising programs (this should be integrated
       with minimum package of activities and through community network for health)

       — Education on prevention from drowning.

   ï‚·   Regulatory framework and policy development (Total: USD 200,000. This should be
       taken into consideration during 2010 AOPs revision or 2011 AOPs planning)

       — Develop and implement policies, protocols, standard guidelines, and hazard-
         specific manuals to respond to disasters. Total: USD 200,000.

Long Term (5 years)

   ï‚·   Replacement and upgrade (Total USD 2,480,000). These figures are initial estimates,
       and not based on detailed engineer design assessments.

       — Retrofitting and moderate upgrade of 30 health centers. Total: USD 2,000,000.

       — Upgrade of 48 health posts. Total: USD 480,000.




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            Table 24: Regulatory Framework and Policy Development for Health Sector
                                                           Short       Medium
                        Priority                                                  Long Term     Total
                                                           Term         Term
 Adequate Provision of Temporary Outreach Services              0            0            0           0
 Restoration of Priority Public Health and Care Services   86,690            0            0      86,690
 Replacement and Upgrade of Facilities, Medical
                                                                   0         0     2,480,000   2,480,000
 Equipment and Supplies
 Capacity Building                                                 0    360,700           0     360,700
 Community Education and Awareness Raising Program                 0         0            0             0
 Regulatory Framework and Policy Development                       0    200,000           0     200,000
 Total                                                     86,690       560,700    2,480,000   3,127,390
Source: PDNA Team Elaboration (2009).



2.4.3 Education

Pre-Ketsana Situation

Eighteen of the twenty-four provinces and municipalities of Cambodia reported some
disruption of services to schools as a result of Typhoon Ketsana. Heavy rain caused flash
floods in the more remote Northern provinces, with floodwaters rising at a rate of one
meter per hour giving little chance to evacuate materials from the schools constructed in
river valleys. High winds damaged the roof tiles of many schools as the tiles are not
normally tied down and are held in place only by their own weight. In other cases, the
floods were lasting longer with disruption of access resulting in schools being closed. Four
students were killed by the storm. In total 1,169 schools were reported by provincial
education offices to be affected as shown in the Table 25.

While the impact of the storm was felt throughout most of Cambodia, a comparison of the
total number of schools with those affected by the storm shows that the northern and
north-central provinces of Oddar Meanchey, Stung Treng, Siem Reap, Ratanak Kiri, Kratie,
Kampong Thom, Preah Vihear, Kampong Cham, and Mondul Kiri were the worst hit.




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                     Table 25: Number of Schools Affected by Floods and Wind
No.       Province       Preschool    Primary     Lower     Upper     Total               Other
                                                Secondary Secondary
1   Kampong Thom           26         86        14         6        132    2 students died
2   Kampong Cham           12         86        28                  126
3   Kratie                 12         46        15                   73
4   Prey Veng                                                        50    2 students drowned
5   Banteay Meanchey       2          29         4                   35
6   Ratanak Kiri           0          38         3                   41    16,000 books, fences damaged
7   Siam Reap                       358          3                  361
8   Oddar Meanchey                                                  146
9   Preah Vihear                                                     39
10  Mondul Kiri            3           5                             8
11  Phnom Penh                        10         3                   13
12  Kampong Chhnang                    3                             3
13  Stung Treng                     109                             109
14  Koh Kong                           2                             2
15  Pursat                             9                             9
16  Kampot                 8           5                             13
17  Kandal                 8           1                             9
18  Battambang         Flooded only 2 days; 3 rooms in Tual Til primary school collapsed; School Aid Japan is
                       helping with the reconstruction.
Source: PDNA Team Elaboration (2009).

      Table 26: Schools Affected by Floods vs Total Number of Schools in Affected Provinces
        Province             Total Number        Number Affected by Floods        Percentage Affected
  Oddar Meanchey                     189                    146                            77
  Stung Treng                        157                    109                            69
  Siem Reap                          590                    361                            61
  Ratanak Kiri                       178                     41                            23
  Kratie                          318                        73                            23
  Kampong Thom                    599                       132                            22
  Preah Vihear                    215                        39                            18
  Kampong Cham                   1,060                      126                            12
  Mondul Kiri                      90                         8                            9
  Prey Veng                       727                        50                            7
 Banteay Meanchey                589                         35                            6
 Phnom Penh                      232                         13                            6
 Kampot                          481                         13                            3
 Pursat                          362                          9                            2
 Koh Kong                        130                          2                            2
 Kandal                          702                          9                            1
 Kampong Chhnang                 366                          3                            1
 Total                          9,431                       1169                           12
Source: PDNA Team Elaboration (2009).

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Disaster Impact on Education

Most affected schools experienced disruptions either because the school was flooded or
because access to the school was impeded. The length of disruption to teaching varies
considerably, but all schools are now believed to have resumed teaching and enrollment
has returned to pre-storm levels.

Wind damage to schools came primarily from tiles being blown off the roof, but also from
falling trees. In general, the modern concrete school construction withstood the winds
while the traditional timber buildings of villages were much more vulnerable. Temporary
school buildings of thatch and bamboo were damaged but easily repaired with the
resources of the communities that constructed them. Old timber school buildings in bad
states of repair became even more dangerous after the storm: The risk of falling tiles from
insect ridden timber roofs was sufficient to force their closure.

Flood damage in Ratanak Kiri was extensive because the rapid increase in water levels
allowed no time to evacuate materials from the schools. In other provinces, the damage
was mostly due to poor quality, non-reinforced concrete floors whose sub-surface crumbled
with the flooding. In many cases where there were no construction defects in the flooded
buildings, the teachers and students cleaned up and teaching returned to normal with no
permanent damage to the building.

Most of the damage observed during field visits to inspect flood-damaged schools was to
buildings that were already in a very bad state of repair before the storm. In 90 percent of
the surveyed schools, the damage to the inspected school buildings could be attributed to
old structures or poor construction. The engineers reported on the current conditions of the
buildings, and estimated costs of repair pertained to bringing the building up to an
acceptable standard for teaching rather than strictly to repair flood or wind damage. Timber
buildings with infested woodwork or termites are, in general, more economically replaced
than repaired because of the difficulty in obtaining high-quality timber. The
recommendation for thatch and bamboo buildings used as temporary classrooms is also to
replace the building with a modern concrete structure that provides a better teaching
environment and protection from wind and storms. The expected number of buildings that
will need replacement for all of the 1,169 flood-affected schools is 248 buildings, with an
additional 1,110 school buildings needing repair.

The estimated cost of replacement is USD 147 per square meter. A typical five-classroom
building measures 360 square meters; the cost of replacement amounts to USD 52,920 per
building to be replaced. The cost of repair work is estimated at an average USD 20 per
square meter, which represents 14 percent of replacement costs. Furniture costs were
estimated at 10 percent of civil works, equipment at 5 percent, and materials at 2 percent.
As damage reports were compiled for the Northern provinces where the flashfloods caused


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the most damage to furniture, materials, and equipment, these figures could be further
refined.

    Table 27: Projected Cost for Repair and Replacement of Flood -Affected School Buildings
 Type of School/Facility   Number of     Repair and       Furniture     Equipment   Education
                            Buildings   Replacement         (USD)         (USD)     Materials
                                         Cost (USD)                                   (USD)
 Full Destruction
  Preschool                         5        264,600
  Primary                         124     11,324,880
  Lower Secondary                  24      1,270,080
  Upper Secondary                   5        264,600
 Partial Damage
  Preschool                        19        136,800           48,168       6,840       2,736
  Primary                         838      6,033,600        2,083,018     301,680     120,672
  Lower Secondary                 195      1,404,000          320,890      70,200      28,080
  Upper Secondary                  58        417,600           81,864      20,880       8,352
 Totals                         1,358     21,166,160        2,533,939     399,600     159,840
 Grand Total                                           $24,209,539
Source: PDNA Team Elaboration (2009).

Recovery Framework for Education

Preliminary analysis shows that the full needs of the storm-affected areas would be beyond
the scope of the resources immediately available to MoEYS. However, interest has been
expressed by NGO’s working in the storm-affected areas in assisting with the response.
Funds may also be made available from the existing Asian Development Bank or World
Bank-financed programs providing assistance to MoEYS, so a measured immediate response
targeting the most in-need schools is feasible. The engineering reports from the
Department of Construction provide the basis for prioritizing responses to the areas most in
need.

To prevent the recurrence of disasters like Typhoon Ketsana, the MoEYS needs to have a
program to maintain school construction and upgrade or replace buildings that are not safe
in high winds, floods, or other natural disasters. The next typhoon to hit Cambodia may not
take the same path, so these programs must cover all provinces, not just the currently
affected areas.

Although possible improvements in building design to withstand high winds and floods were
noted, in general the currently recommended designs of MoEYS proved suitable for the
extreme winds and unusual flooding caused by Typhoon Ketsana. The buildings that were
most affected were already in very poor condition and in need of repair or replacement.

The assessment of the cost of repairs and replacement reflects the poor initial condition of
the facilities in the affected region, and highlights the lack of maintenance of education

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facilities in Cambodia. Table 27 shows that the total estimated cost of replacement and
repair works for all flood-affected buildings is USD 24,209,539. Of this, however, only the
short term needs, amounting to USD 1,900,000 will be part of the Ketsana recovery
framework for education. The additional reconstruction effort should be part of any other
stand alone program within the Ministry of Education school rehabilitation program, to
ensure that DRM is properly streamlined into the national planning.

In the short term, a more-focused response is needed to target the education facilities still
having difficulties repairing damage to buildings. The detailed engineering reports on the
buildings surveyed in two provinces, covering 12 percent of the flood-affected schools,
provide a means for doing this. These reports can be examined on a case-by-case basis,
together with an inspection of the photographic evidence, school enrollment records, and
total number of classrooms to determine which buildings require repairs or replacement
should be a priority.

The Department of Construction estimates that between 5 and 10 percent of the buildings
surveyed to date require immediate intervention for schools to resume normal teaching.
This needs to be verified when the compilation of all the reports is complete and when they
have been screened and prioritized. An estimated USD 1.9 million will be required in the
short term to meet these immediate needs.

Short Term (0-6 months)

   ï‚·   Emergency replacement of buildings not suitable for repair. Total: USD 1,500,000;

   ï‚·   Emergency repair of buildings not suitable for teaching. Total: USD 200,000;

   ï‚·   Furniture, equipment, and education materials for new and repaired schools. Total:
       USD200,000; and

   ï‚·   Total investment. Total: USD 1,900,000.

Medium and Long Term (2-5 years, outside the direct recovery and reconstruction program)

   ï‚·   Replacement of buildings that would be uneconomical to repair, or are unsuitable
       for teaching purposes. Total: USD 13,124,160;

   ï‚·   Repair of storm-affected buildings to insure that they will be safe in the event of
       future storms, floods, or other natural disasters. Total: USD 7,992,000;

   ï‚·   Furniture, equipment, and education materials for new and repaired schools. Total:
       USD 3,093,380;

   ï‚·   Planned maintenance of all school buildings in Cambodia (RGC Annual Budget);

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     ï‚·   Systematic upgrading of existing school buildings to make them safer in high winds
         and more resistant to floods and other natural disasters (RGC Annual Budget); and

     Table 28: Recovery Framework and Additional Reconstruction Efforts for Education (USD)

                   Priority                    Short       Medium       Long Term        Totals
                                               Term*        Term

 New Construction to Replace Buildings Too
                                               1,500,000   11,624,160            0    13,124,160.00
 Badly Damaged to Repair

 Repair of Buildings Unsuitable for Teaching    200,000     7,792,000            0     7,992,000.00

 Furniture, Equipment, and Materials            200,000     2,893,380            0     3,093,380.00


                                                                        RCG Annual
 MoEYS Maintenance Program for Schools                 0            0                             0
                                                                            Budget

 Total                                         1,900,000   22,309,540            0    24,209,540.00
*Note: For Education, only short term recovery is considered in the Recovery Framework for Typhoon
Ketsana. The additional reconstruction effort should be part of other stand alone programs.

Source: PDNA Team Elaboration (2009).




2.5 Productive Sector
2.5.1 Agriculture, Livestock, and Fisheries

Pre-Ketsana Situation

Agriculture provides more than 30 percent of Cambodia’s gross domestic product (GDP). Of
the 85 percent of the population living in the rural areas, more than 60 percent depend
directly on agriculture, forestry, and fisheries for their livelihoods. Around 27 percent of the
country’s population are considered poor, and 90 percent of poor people live in rural areas.
Agriculture is thus not only the biggest contributing sector to GDP but also the mainstay of
the rural economy providing food security and a marketable surplus to a very large cross
section of Cambodia’s the population.28

The agriculture resources primarily consist of about 2.8 million hectares of cultivated land,
of which 91 percent is devoted to rice and the remaining 9 percent to other food or
industrial crops (primarily rubber). There are also the fishery resources of the Mekong River

28Program Design Document for Institutional Capacity Building and Management Support Program,
Ministry of Agriculture, Fishery, and Forestry and Ministry of Water Resources and Meteorology,
Technical Working Group on Agriculture and Water, June 2009.

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and Tonle Sap Great Lake. The bulk of the population has been, and remains, rice farmers
who supplement their income from fishing, or fishers who supplement their income from
rice farming. In addition, in some parts of the country, livestock provides a major
component of household assets. Growth in agriculture has been volatile, but continues to
be low at 5-5.5 percent of GDP for the period 2006–2008. Any growth in agriculture has
been mainly due to increasing production of paddy rice. Hence, agriculture, livestock, and
fisheries have been the main drivers of social and economic growth in rural Cambodia.29

In terms of international price commodity, rice contributes significantly and enables the
country to export surplus production.30 Although food security at a national level has been
achieved, at the household level it is still a concern. The poor are also net buyers of food
and therefore rising prices often go beyond their purchasing power; this situation leads to
transitory food insecurity. Last year when the price rise of food commodities was quite
steep globally, the effects were evident in Cambodia. For example, the prices of rice in 2008
witnessed the highest level of increase of the last few years with wide variations throughout
the cropping season, which caused considerable food insecurity among the poor at the
household level. Food insecurity in Cambodia became more acute with a shortfall in local
production as well as with rising food prices.

Disaster Impact on Agriculture, Livestock, and Fisheries

On September 29, 2009 Typhoon Ketsana lashed the northeast to northwest areas of the
central provinces of Cambodia. In addition to previous floodings, it brought more rainwater,
floods, and havoc to at least 10 provinces—impacting agriculture considerably. The Ministry
of Agriculture, Forestry, and Fisheries (MAFF), in the revised estimates of November 27,
2009, reported that the typhoon, in those 10 affected provinces, destroyed the rice crop to
the extent of 49,136 ha, while 67,355 hectares were partially destroyed. It is important to
highlight that when the typhoon struck, rice was nearing the harvesting stage. At this stage,
anticipated losses are expected to be at their peak. It is a critical stage of crop growth cycle,
and losses cannot be recovered in the case of damage. Damage to livestock was reported as
70 cows/buffaloes dead along with 271 pigs and a large number of poultry resources.

Summary of Damage and Loss Assessment

The impact of Typhoon Ketsana on agricultural, especially the rice crop, livestock, and
fisheries, has been addressed as part of the Post Disaster Needs Assessment (PDNA) by the
agriculture sub-sector teams, in close coordination with other related sectors/sub-sectors’
Damage and Loss Assessment (DaLA) to avoid double counting.31 The economic DaLA32 for

29 Agriculture and Rural Sector in Cambodia, Asian Development Bank Evaluation Study, Reference
Number: SAP: CAM: 2009-32, Sector Assistance Program Evaluation, September 2009.
30 http://faostat.fao.org/site/567/default.aspx#ancor.
31 See UN-ECLAC DaLA Methodology and references in the Annexes.
32 See the Methodology Section of the Annexes for a detailed explanation on the calculation.



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this PDNA is limited to the following two main impacts: (a) impact of the typhoon and
flooding on the rice crop; and (b) effect on agriculture, livestock, and fisheries.

In order to assess the overall impact of the typhoon and flooding on agriculture, the DaLA of
the rice crop followed four steps and the resulting extent of the effect was estimated at
USD 49 million. Similarly, the DaLA for livestock was carried out following four steps. The
overall effect on livestock was found to be USD 7.32 million. For fisheries, no secondary
data were available; hence the primary data were used to assess only two provinces. Two
other provinces covered under the field mission reported no damage to the fisheries sector.
Field-level functionaries also reported no significant damage to the fisheries. The
assessment also reveals that the effect to fisheries was confined to only USD 140,994. Table
29 summarizes the damage and losses to rice crop, livestock, and fisheries.

                Table 29: Summary of DaLA for Agriculture Sector (USD million)
                     Agriculture           Livestock             Fisheries          Total
Damage                    --                   0.0870               0.0042           0.0912
Loss                   49.28                     7.23                 0.14            56.65
Total                  49.28                    7.317               0.1442          56.7412
                                Source: PDNA Team Elaboration (2009).

While pursuing the DaLA for agriculture, some critical gaps were found in baseline data (not
updated, incomplete, and sometimes missing). Efforts are in place to improve agricultural
statistics, but there is still a long a way to go. Rapid assessment reporting and response
mechanisms are not objective, formal, or mandatory. The capacity of National Committee
on Disaster Management (NCDM) has to be strengthened in order to make it a more
effective coordinating agency even for the repository of baseline data.

Recovery Framework for Agriculture,
Livestock, and Fisheries

In Cambodia, historically, the agriculture
sector has been hard hit by the hydro-
meteorological       disasters—particularly
from floods and drought. Damage to the
sector adds considerably to the damage
and loss sustained nationally. It is this
increasing loss to the sector, coupled with
food security concerns, that has
heightened the need for risk reduction in
the sector. The issue of food security has been on the forefront in Cambodia recently due to
rising food prices globally. The risk in agriculture is on the rise, due to an increasing number
of disasters as well as to the fluctuating price front. Further, existing vulnerabilities and risk
become more pronounced by external factors: (i) volatile food prices—deterioration of


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purchasing power; (ii) economic crises—unemployment and income losses; and, (iii) climate
variability and change—increased risk of hydro-meteorological disasters.

Transitory food insecurity linked to these risks may result in chronic food insecurity and
affect long-term human capital development. The following strategic frameworks will
contribute to long-term risk reduction.

    1. Short-term “emergency response� needs to be linked to sustainable rural economic
       development and development of effective social safety nets;

    2. Risk transfer mechanisms (micro-credit, insurance, capacity building at the
       household level, alternate livelihood opportunities, etc.) are to be put in place
       insulating the poor and marginal farmers as well as less risk-bearing households
       from the emerging risks; and

    3. Coordinated strategies and actions based on reliable and updated information are
       essential to address risk reduction issues.

            Table 30: Summary of Needs for Agriculture, Livestock, and Fisheries (USD)
                               Priorities/Interventions                                   Budget (USD)
Short Term (0-6 months)
 Emergency Food Aid                                                                      5–10 million
ï‚· Seasonal Supply of Seeds
ï‚· Supply of subsidized fertilizers, Input tools, livestock and fishery resources
ï‚· Cash for work, Food for work in large scale to generate local employment
ï‚· Prevention of epidemics
Medium Term (2 years)
 Continuing assistance – seeds, fertilizer, tools, capital and capacity building         10–20 million
    including awareness
ï‚· Enhanced green trade buffer
ï‚· Micro-credit, Livelihood Relief Fund
ï‚· Agribusiness and rural entrepreneurship
ï‚· Gender sensitive employment generation
Long Term (5 years)
 Building institutional capacity of key agencies (NCDM, MAFF etc) and providing          35–45 million
    policy support for their coordinating roles with concerned line
    departments/ministries
 Bringing in financial risk transfer mechanisms to reduce risk in agriculture sector –
    institutionalization of micro-credit, crop insurance etc
 Creating resilient agricultural assets – fisheries and livestock
ï‚· Forward and Backward linkages of Agriculture, Industry and Commerce

Source: PDNA Team Elaboration (2009).




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For the Post Disaster Needs Assessment (PDNA), the interventions and programs were
chosen based on the above strategic framework. The immediate interventions focused,
however, on providing food, cash, and/or a combination of it or on other needed elements,
revealed by the DaLA findings. The starting point for the interventions was to support the
restoration of livelihoods of the affected households. Areas close to poor people’s
livelihoods include cash-for-work, food-for-work, subsidized inputs supply, access to
productive assets, and access to non-exploitive credit, for example. The PDNA, as listed
below, combines all this variety of needs within the particular context of Cambodia as well
as in synergy and convergence with other ongoing efforts undertaken by multiple actors.

Financial Instruments for Agriculture, Livestock, and Fisheries

     •   Prioritization/re-appropriation of emergency lending and food aid programs of
         bilateral and multilateral donors;

     •   Focus on agriculture risk reduction initiatives of such establishments as development
         partners and International NGOs; and

     •   Budgetary support from the Royal Government of Cambodia.



2.5.2 Industry and Commerce

Pre-Ketsana Situation

Industry accounted for 27.5 percent of the country’s GDP in 2008,33 with 643 factories
registered with the Ministry of Industry, Mining, and Energy (MIME) and representing a 14
percent growth if compared to 2007.34Most of those factories were garment factories. The
production of all factories was little more than USD 3,550 million.35

In 2008, there were 32,619 micro- and small enterprises.36 This figure shows a small
increase of 0.55 percent compared to that in 2007.37 The total value of production was
estimated at about USD 658.5 million, representing a 3.24 percent increase from 2007.
Approximately, 97,000 people are employed in micro- and small enterprises.



33 EIC data, compiled from NIS and MEF.
34 Annual Report of the Ministry of Industry, Mining, and Energy 2008.
35 Calculated from the figures in Annual Report of the Ministry of Industry, Mining, and Energy 2008.
36 The typology of industry enterprises was taken from the definitions in the SME Development

Framework 2005. Micro-enterprises are defined to employ less than or equal to 10 people, while small
enterprises are assumed to have 11-50 employees. The medium size is supposed to have between 51 and
100 people working in that company. The large ones must have at least 100 employees.
37 Calculated from the figures in Annual Report of the Ministry of Industry, Mining, and Energy 2008.



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The micro- and small enterprises play a crucial role in the country’s economic development
since most Cambodians depend on micro- and small enterprises to sustain their livelihoods.
The businesses range from making ice, soy, and fish sauce to pure drinking water
production. There are 14,050 agro-industrial firms, most of which are involved in rice
milling.38 Table 31 shows the number of micro-industry, agro-enterprises, and commercial
establishments in each affected province for 2008.

                 Table 31: Micro- and Agro-Industrial Enterprises in Affected Provinces
              Provinces                 Micro-Industry        Agro-Industry       Commercial Enterprises
 Banteay Meanchey                                501                 326                       9,780
 Battambang                                      826                 351                       8,802
 Kampot                                        3,950               2,876                       6,156
 Kampong Cham                                  2,719               2,429                      21,513
 Kampong Chhnang                                 909                 823                       6,850
 Kampong Thom                                  5,784               5,040                      10,333
 Kratie                                          853                 506                       2,566
 Mondul Kiri                                      85                  44                         887
 Oddar Meanchey                                   89                  51                       1,628
 Preah Vihear                                     66                    3                      3,469
 Ratanak Kiri                                    166                  51                       2,391
 Siem Reab                                     1,783               1,368                       1,463
 Preah Sihanouk                                  145                    -                      9,235
 Stung Treng                                     182                 182                       1,080
 Total                                        18,058              14,050                      86,154
Source: Figures for micro- and agro-industrial enterprises are compiled from the figures in the Annual Report
of the Ministry of Industry, Mining, and Energy (MIME) 2008 and SME List 2008 by MIME. Figures for
commercial enterprises are taken from the Preliminary Results of Nationwide Establishment Listing of
Cambodia 2009 by NIS and Listing of Business Establishments in Cambodia’s Provincial Towns and Selected
Urban Areas by IFC.

Disaster Impact on Industry and Commerce

Agro- and micro-industrial firms were the most affected. Small, medium, and large
industrial enterprises were only slightly affected, with negligible or no impact. Most
damages in industry occurred to machinery and equipments. In agro-industry, the damage
to machinery and equipment is estimated at USD 932,104, and for micro-industry at USD
27,750. Losses due to the interruption of production amount to USD 2,418,955 in agro-
industry and USD 168,361 in micro-industry.

Damages to inventories in the commercial sector were meager. According to the PCDM
officials interviewed, commercial residents and street vendors were usually well prepared
to resist normal flooding since the water level usually rises slowly, allowing enough time for

38   Calculated from the figures in Annual Report of the Ministry of Industry, Mining, and Energy 2008.

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them to protect their inventories. Damage to commercial housing and other related assets
were included in the housing sector. The commercial loss due to forced closure is only USD
2,655. Most commercial owners were able to restore their activities and restart their
businesses soon after the disaster. The average number of forced closure was estimated to
be only one day in the most affected areas, and in the end this is the reason for the
relatively small losses in this sector.

Total damage at the national level is estimated to be around USD 959,850, and losses at
approximately USD 2,589,970. As a result, total damage and loss amount to about USD
3,549,800. Table 32 shows damage and loss in the industrial sub-sectors.
                         Table 32: Impact on Industrial Sub-Sectors (USD)
                Sector                  Damage                  Loss          Damage and Loss
Agro-Industry                             932,104             2,418,955           3,351,059
Micro Industry                              27,750              168,361             196,111
Commercial                                       -                2,655               2,655
Total                                     959,854             2,589,971           3,549,825
Source: PDNA Team Elaboration (2009).

From the information that the officials from the Ministry of Economy and Finance (MEF)
collected during their field survey on banking and finance, no damage was reported to
banks and financial institutions. As the demand for money to repair housing and household
assets increased after the disaster, demand for loans from banks and financial institutions
also rose. At the same time, delay in debt payment also occurred. Although most of the
demand was met by banking and financial institutions, the increase in demand for money
provided an opportunity for informal money lenders who could raise interest rates; as a
consequence, living standards were negatively affected.

Recovery Framework for Industry and Commerce

In order to rehabilitate and reconstruct the industrial and commercial sector, the following
four strategies are outlined:

    Short Term (0-6 months):

        ï‚·    First of all, reparation and restoration of the functioning of the sectors needs to
             be carried out in the short run. A program for damaged and destroyed
             machinery and equipment should be established, mainly for agro-and micro-
             enterprises so that production capacity can be restored to levels prior to the
             disaster. The budget for this program is estimated at USD 960,000.




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Medium Term (2 years)

   ï‚·   Upgrading machinery and equipment is the second priority, which can be carried
       out in the medium and long term. This will increase production capacity and
       reduce cost, improving the sector in general.

   ï‚·   Furthermore, better machinery and equipment will increase resilience to future
       disaster, which help reduce capital damages.

   ï‚·   Capital improvement program for agro-, micro-, and small enterprises will be
       created to provide loans to micro-finance institutions so that agro-, micro, and
       small enterprise owners can borrow at subsidized rates to upgrade their
       machinery and equipment.

   ï‚·   The budget for this program is estimated to be USD 2,000,000 for the medium
       term and USD 5,000,000 for the long run.

Medium to Long Term (2-5 years)

   ï‚·   Develop regulatory framework and capacity building. Industrial and commercial
       regulatory framework for disaster management and capacity building of
       provincial and local authorities are essential in the medium and long term.

       — The regulatory framework should focus on timely information and processes
         for immediate response. Training of officials from relevant ministries on post
         disaster data collection also would facilitate future assessments.

       — Capacity building activities can be conducted in the medium term at the
         province level, before moving to the local level in the long term.

       — The budget for the medium term is about USD 500,000 and it is expected to
         increase to USD 700,000 for the long term.

   ï‚·   Improve awareness of the local business communities. Raising the awareness and
       general knowledge on natural disasters among business owners and employees
       should be carried out in the medium and long term.

       — In the medium term, the proposed training should focus on the province
         level while in the long term; the seminars should go down to district level.

       — The budget for the medium term is expected to be USD 300,000 and another
         USD 500,000 is estimated for the long-term activities.



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             Table 33: DaLA Needs Recovery Framework for Industry and Commerce (USD)
No.                Priority            Short Term  Medium Term        Long Term      Total
                                      (0-6 months)    (2 years)        (5 years)
1        Urgent reparation and
         replacement of damaged             960,000                -                -           960,000
         machinery and equipment
2        Upgrading machinery and
         equipment to make it more
                                                  -        2,000,000        5,000,000          7,000,000
         resilient against future
         damages
3        Regulatory framework and
         institutional capacity building          -          500,000          700,000
                                                                                               1,200,000
4        Public Awareness of disaster
         prevention (entrepreneurs)               -          300,000          500,000           800,000

Total                                       960,000        2,800,000        6,200,000          9,960,000
Source: PDNA Team Elaboration (2009).




2.6 Cross-Cutting Issues
2.6.1 Environment

Pre-Ketsana Situation

Forests are one of the most important economic and environmental resources of the
country, covering over 60 percent (111,020 square kilometers) of the total surface of
Cambodia.39 In 1993, the Royal Government of Cambodia (RGC) introduced private
industrial forest concessions as a management instrument for commercial forestry
operations, an important source of government revenue and of employment for the local
people, but also a cause of land degradation and deforestation, as the system was unable to
prevent illegal and unsustainable logging. The Government’s Declaration on Suspension of
Forest Concession Logging of 2001 led to an immediate halt in legal concession logging, and
by mid-2003 no new concession management plans were approved. However, illegal
logging continued in a number of concessions, and in 2003 the RGC decided to establish the
Community Forest (CF) as a management mechanism with local, voluntary participation in
forest resource management, in order to implement development and ensure a sustainable
use of forest resources.



39   Royal Government of Cambodia, Ministry of Environment, Status of the Environment, 2004.

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Currently, there are 176 CFs consisting of 439 villages, 118 communes, and 61 districts in 16
different provinces (SOE 2004).40 In total, 45,161 households are included in the different
CFs, covering 107,381 hectares of land, most of which is degraded forest area.

There are 23 protected areas (PAs) in Cambodia, covering a total of 3,194,471 hectares
(equivalent to 17.64 percent of the country). Similarly to Community Forests (CF), the
Ministry of Environment (MoE) developed community protected areas (CPA) to involve local
communities in PA sustainable management. Up to December 2008, there were 82 CPAs
established, involving 167 villages for a total of 18,121 households on 89,527 hectares in 17
different PAs.

The protected areas are divided in four management zoning systems: (i) a core zone, where
only park rangers and researchers are allowed; (ii) a conservation zone, where entry is
managed by the park director and small-scale NTFPs is allowed under strict control to
support local ethnic minorities' livelihood; (iii) a sustainable use zone, where development
and investment activities may be allowed under special circumstances by the RGC; and (iv) a
community protected area zone, where the community can be granted land ownership (i.e.,
residential lands, paddy fields, and field gardens).

                   Figure 6: Protected Areas of Cambodia with IUCN Designation




                                   Source: MoE, ADB, and UNEP (2003).

40Update (June 2009) still to be made official: 377 CFs covering 347,730 ha and additional 13 sites that
have the potential to be CF (covering additional 20,203 hectare). This indicates a total CF potential in
Cambodia of 390 CFs covering an area of 367,943 hectare.

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Disaster Impact on the Environment

The path of the tropical storm touched only four of the affected provinces, all of them very
rich in forest resources. From the Northeastern Lao PDR border toward the center of the
county, the Ketsana front ran an estimated 150 kilometers through Stung Treng, the south
of Preah Vihear, the north of Kampong Thom (which was by far the most badly hit), and the
west of Siem Reap, before it was downgraded to a tropical depression, with slower winds
and heavy rains. The rest of the provinces were indirectly affected by the rain and the
subsequent floods, which in some cases continued up to one week after the storm had
passed. The total forest area affected is an estimated 234,426 hectares, of which 12,893
hectares were completely destroyed.41

The storm and subsequent floods affected many environmental-related assets: water
(quality and access), fish stocks and fisheries, agro-ecosystems and crops, forests and
protected areas, for example. They also impacted the services that some of these
ecosystems provide (e.g., as a storm buffer, erosion and landslide alleviator, a source of
income, and a source of traditional medications). In particular, as the provinces struck were
among the most rural and the poorest, the impact was more pronounced on those
communities that rely heavily on the forest by-products, like the CPA and CF communities.

Human Development Impact

Most rural households practice a multi-livelihood strategy. Gathering non-timber forest
products (NTFPs) remains a crucial component of household survival strategies in most rural
areas, providing a source of both subsistence and cash income to offset seasonal food
shortages. While average annual income from NTFPs may account for about 40 percent of
total household income, it accounts for only 25 percent in the “richest� group (where off-
farm activities and livestock provide the bulk of income), but for 90 percent of the total
income for the “poorest.�42

This valuation methodology identified overall loss due to Typhoon Ketsana mainly as the
loss of income for these affected CPAs and CFs. Even if the overall figures are small
compared to other sectors (like infrastructure or production), their relative impact on the
local economy and the livelihoods of these communities is very significant. It is estimated
that the disaster disrupted the collection of NTFPs; it will take up to six months before
communities will be able to restore the pre-disaster volume of collection by exploiting other
areas. The impact on human development in terms of disruption of sources of cash income,
therefore, has been considerable.




41   See the Methodology Section of the Annexes for a detailed explanation on the calculation.
42   Cf. UNDP, National Human Development Report Lao PDR, 2001.

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In Kompong Thom and Stung Treng Provinces, in the CPAs living inside Bang Per’s Wildlife
Sanctuary (WS), like the Chi Auk-Boueng Prey community (see Annexes), the impact of
Typhoon Ketsana was particularly dramatic. These communities are extremely poor and are
mostly composed of Kuipeople, a cultural minority, and therefore are more vulnerable. The
poorest people in the rural areas are those who depend most heavily on non-timber forest
products (NTFPs), not only as their major source of cash income, but also as a major
component of food security in the household economy. These communities have seen how
the storm virtually destroyed 30 percent of the chutil trees, from which they extract a resin
for insolating fishing boats, making candles, and selling to the local markets and exporters.
Typhoon Ketsana destroyed both their crops and the chutil (their traditional safety net to
offset the food shortage), making their
situation critical. A similarly critical          Box 1:Resin, A Non-Timber Forest Product
situation stands for Tonle Sap’s fishing
communities.                                  Since the 1980s, resin tapping has become the most
                                                    important source of cash income for rural households.
The situation of other communities in               Estimates of annual production range from 11 to 18
potentially affected PAs (like Phnom                thousand tons, of which 8–14 thousand tons were
                                                    exported to Vietnam and Thailand. The remainder is
Kulen National Park and Preah Vihear                sold locally to meet domestic demand of more than
Protected Landscape) has yet to be fully            250,000 Cambodian households to seal and
assessed. Although the PA authorities did           waterproof their boats each year, and to varnish
not identify or report any damage, it does          furniture and houses. The annual revenue of resin
not mean there was none. The Macro-                 sourced from 5 of the 15 forested provinces is
                                                    approximately USD 5–8 million.
Economic and Social Impacts section of
this Report further analyzes the situation          Studies on resin harvest and processing in Mondul Kiri
of such cultural minorities and other               province indicate that the yield per tree is 30-40
similar vulnerable groups.                          liters/year (Evan et al. 2003). In 2004, dry season price
                                                    ranged from Riel 21,000–23,000 per 30 liter-container
Summary of Damage and Loss Assessment               and Riel 8,000–18,000 per 30 liters in the wet season.
                                                    Average income per family was USD 340 per year
                                                    based on data from four villages. Thus, total income
Many of the major impacts of the storm              for the four villages was estimated at USD 61,000 per
were related to multiple sectors of the             year. Most of the proceeds were used to purchase rice
economy besides Environment, given its              for household consumption. Currently, resin products
cross-cutting nature and its implications           fetch Riel 60–70,000 per 30-liter container.
with many human activities. Typhoon                   Source: Tola (2009) and IOM (2009)
Ketsana        impacted        agricultural
ecosystems, crops, tree plantations, livestock, and fish stocks; the access to water and its
potential contamination; the infrastructure affected by floods and/or mudslides; and many
other environment-related impacts have been addressed in the sectoral reports; they are
not included here to avoid double counting.43 The Damage and Loss Assessment for the
cross-sector Environment is limited to two main impacts: (a) impact of the storm and


43   See UN-ECLAC DaLA Methodology and References in the Annexes.

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flooding in urban waste management; and (b) effect on forest ecosystems and protected
areas.

Impacts on Urban Waste Management

Siem Reap (148,000 citizens) was the only major urban area (more than 40,000) affected by
Typhoon Ketsana. Several areas of the city were completely flooded for up to one week,
with roads blocked and municipal services disrupted. Solid waste is disposed at a site within
the city’s boundaries for posterior open burning. Solid waste management and garbage
collection are a responsibility of the Department of Environment (DoE), and therefore are
included here. The environmental degradation caused by inadequate disposal of waste can
be expressed by the contamination of surface and ground water through leakage, soil
contamination through direct waste contact or leakage, air pollution by burning of wastes,
spreading of diseases by different vectors like wind, birds, insects, and rodents, or
uncontrolled release of methane by anaerobic decomposition of waste. In the particular
case of the Ketsana flooding in Siem Reap, the flood could have potentially caused sanitary
and environmental havoc through contamination of surface water if landfills had been hit
and damaged by floods, or if uncollected garbage had been spread by the floods to other
city areas. However, the damages and losses were very contained, and no economic impact
has been reported by the provincial authorities.

Concerning the garbage collection service, the provincial authorities intensified their efforts
with additional personnel and more frequent collection for the flooded areas as soon as
they became accessible. They were able to restore the normal status within the first week
after the flooding (by mid-October) and did not report any increased costs, arguing that the
officials and civil servants and workers voluntarily accepted the extra workload, the case
being an emergency. Therefore, no economic losses have been accounted to the waste
management.

Impacts on Forest Ecosystems and Protected Areas

The replacement cost of the damaged hectares only represents the minimum replacement
cost if there is replantation.44 In this case, the total damage can be estimated at USD31,073.

The losses have been calculated as the disruption of income from non-timber forest
products (NTFPs) collection for the affected community protected areas (CPA) and
community forests (CF).




 Estimation by the Office for Forest Management of the Forest Administration (FA), MAFF, 2002. See
44

Methodology for more details on the calculation.

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                                                          Table 34: Damage and Loss for Industry and
An estimated 1,995 hectares of CPAs and                                 Commerce (USD)
3,770 of CFs were destroyed.45 Using these                Total Damages            31,073.14
assumptions, the losses were calculated at                Losses (CPA)                  34,037.57
USD34,038 to CPAs and USD64,329 to CFs, for               Losses (CF)                   64,329.13
a total loss of USD98,367.                                Total Losses                  98,366.70
                                                          Total DaLA                   129,439.84
                                                               Source: PDNA Team Elaboration (2009).


Recovery Framework for the Environment

Urban Waste Management

Following the national Waste Management guidelines and objectives,46 the Recovery
Framework for Environment will propose the following priorities:

        ï‚·    Improvement of waste management regulatory framework and institutional
             capacity: legislation related to waste management must be updated and
             expanded, and the government capacity strengthened;

        ï‚·    Improvement of waste collection systems and upgrading of disposal sites do not
             necessarily have to be difficult or expensive. The existing clean development
             mechanisms (CDM) financing opportunities for solid waste management will be
             explored to facilitate the financial feasibility of these projects; and

        ï‚·    Public awareness and participation programs for waste management will be
             developed through environmental education and training programs that involve
             active CSO participation with the objective of increasing general public
             knowledge about SWM best practices.

Environment: Strategic Priorities for Environmental Management

Building on the strategic development objectives for the Environment of Cambodia, 47 and
its latest formulations,48 the Recovery Framework for Environment will focus on the
following principles:


45 See Methodology for more details on the calculation.
46 Royal Government of Cambodia Sub-Decree on Solid Waste Management No 36, 1999.
47’The Rectangular Strategy of the Royal Government of Cambodia, Rectangle I (Enhancement of the

Agricultural Sector), Side 4 (Forestry Reform) outlines the following principles: (i) sustainable forest
management policy; (ii) protected area system; and (iii) community forestry.
48 “Environmental Management in Cambodia: Lessons and Experiences�, by H.E. Mok Mareth, Senior

Minister, Minister of Environment, 2007.

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         ï‚·   Support environmental valuation for Cambodia: A thorough and detailed
             environmental valuation for the country will broaden the environmental
             knowledge of all stakeholders will facilitate the prioritization and decision-
             making processes related to environmental management and will also facilitate
             future assessment exercise (for disasters or for CC scenarios valuation) and
             financing for environmental management;

         ï‚·   Enhance community-based forest and protected area management: Involving
             local communities in the real planning, decision-making process, and forest and
             PA management will secure but also regulate their rights of use, ensuring equity
             and benefit distribution but also preventing encroachment and illegal activities;
             will foster sustainable management of natural resources and support the
             environmental protection; and will improve food security, income generation,
             and ultimately livelihoods, linking with the broad poverty reduction strategies
             and community development objectives; and

         ï‚·   Integrate the disaster risk management and climate change adaptation agendas
             with that of environmental management: from the national to the province
             level, and involving not only provincial DoEs but also PA authorities, forest
             administrators, and communities. Disaster risk management (DRM) can be
             mainstreamed as a strategy for community-based resource management and
             area conservation management plan. Community-based DRM can complement
             current strategies, focusing on strengthening people’s adaptive capacities to the
             impact of natural hazards, climate change, and environmental degradation.

Short Term (0-6 months)

    ï‚·    Urban Waste Management

         — No immediate economic impact was reported, so no action is proposed.

    ï‚·    Forest and Protected Area Management

         — Immediate recovery and potential food emergencies in Bang Per Wildlife
           Sanctuary and Tonle Sap Biosphere communities,49 which have reported
           substantial impact on their livelihoods through disruption of NTFPs collection
           and destruction of crops.

         — Two supervision missions to identify community impact to and mid-term needs
           for Phnom Kulen National Park and Preah Vihear Protected Landscape,50 which

49 USD  50,000 for Bang Per and USD 75,000 for Tonle Sap are estimated as the financial needs to restore
their livelihoods.
50 USD 10,000 estimated to carry out a supervision mission and assess mid-term needs for these PAs.



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            host communities that may have been moderately impacted (even if the PA
            authorities did not report any damage).

         — Disaster Risk Management capacity development program that will probably be
           designed for the National Committee for Disaster Management should involve
           the MoE and MAFF and include DRM for the environment.51

         — Total investment: USD 181,000.

Medium Term (2 years)

     ï‚·   Urban Waste Management

         — Regulatory framework and institutional capacity building: Establish a waste
           management coordination and information center for Cambodia (USD 200,000).

         — System improvement in Siem Reap: Estimated USD 1 million (including financing
           through CDM opportunities).

         — Public awareness campaign in Siem Reap, estimated USD 50,000.

         — Total investment: USD 1,250,000.

     ï‚·   Forest and protected area management

         — Environmental valuation study at the national level: USD 150,000.

         — CPA and PA management in Bang Per, Phnom Kulen, P Vihear, and Kulen-
           Promtep (estimated USD 1.32 per hectare per year). Total: USD 752,400.

         — Disaster risk management and climate change adaptation capacity development
           program for provincial DoEs.52Total: USD 80,000.

         — Total investment: USD 982,400.




51 The additional cost of including Protected Areas and Forest Administration Authorities in the proposed
“Strengthen Sub-national capacity to implement Community-based Disaster Risk Management
Interventions� is estimated in an additional USD 36,000.
52 Estimated at USD 20,000 per province (only for four affected provinces: Stung Treng, Preah Vihear,

Siem Reap and Kampong Thom).

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Long Term (5 years)

     ï‚·     Urban Waste Management

           — Regulatory framework and institutional capacity building: Capacity building for
             Siem Reap municipality: USD 60,000.

           — System improvement in four main cities in the North (additional four): Estimated
             USD1 million (including CDM development, USD 250,000 each).

           — Recycling program (Siem Reap): Estimated USD 250,000.

           — Total investment: USD 1,310,000.

     ï‚·     Forest and Protected Area Management

           — Environmental valuation study at the national level (annual update system, USD
             15,000 per year): USD 45,000.

           — Extend CPA and PA management to years 3–5 for the same PAs (estimated cost
             USD 1.32 per hectare per year): Total: USD 1,128,600.

           — Disaster risk management and climate change adaptation response systems for
             provincial DoEs (USD 80,000 per province).53Total: USD 320,000.

           — Total investment: USD 866,600.
                       Table 35: Recovery Framework for the Environment (USD)
                                                            Short      Medium      Long
         Area                     Priority                                                     Totals
                                                            Term         Term      Term
                  Regulatory Framework and
                                                              0        200,000    60,000      260,000
                  Institutional Capacity Building
 Urban Waste      Improving Waste Collection Systems
                                                              0      1,000,000  1,000,000    2,000,000
 Management       and Upgrading of Disposal Sites
                  Public Awareness and Participation          0      50,000      250,000      300,000
                  Total                                       0       1,250,000 1,310,000    2,560,000
                  Environmental Valuation                     0        150,000    45,000      195,000
  Forest and      CBA and PA Management                   145,000      752,400  1,128,600    2,026,000
      PA          DRM and CC Adaptation Programs
                                                           36,000       80,000   320,000      436,000
 Management       for Environment
                  TOTAL Forest and PA                     181,000      982,400  1,493,600    2,657,000
                  Total                                   181,000     2,232,400 2,803,600    5,217,000
                                     Source: PDNA Team Elaboration (2009).


53Estimated at USD 80,000 per province, for the four most affected provinces: Stung Treng, Preah Vihear,
Siem Reap and Kampong Thom.

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Proposed Partnerships and Financial Mechanisms

   ï‚·   Urban Waste Management

       — Regulatory framework and institutional capacity building: the European
         Commission has been active in this sector in Cambodia (Integrated Environment
         Information System in Siem Reap, INTEGRITAS); capacity building and policy
         reinforcement in waste management; others: related UN agencies, like WHO and
         UNEP.

       — System improvement: The private sector through the establishment of public-
         private partnerships (PPP) should take the lead. The World Bank and Asian
         Development Bank can provide expertise for the development of solid waste
         management-CDM that will strengthen the financial feasibility of system
         upgrades and foster investment opportunities.

       — Public awareness: Implemented by local NGO/CSO, and funded by various
         donors.

   ï‚·   Forest and Protected Area Management

       — Environmental evaluation: The Asian Development Bank and the World Wildlife
         Fund (WWF), given their experience in Tonle Sap and assessing Cambodian
         biodiversity. The UN Environmental Program and the World Bank (WB) also have
         done some excellent work in environmental economics and can leverage on the
         expertise of the World Bank Institute and similar research institutions.

       — CBA and PA management: It is expected that the next global agreement on
         climate change–even if not the boldest–will foster an exceptional increase in
         REDD/CDM for forestry funding schemes in the medium and long term. That is
         the reason why such an ambitious investment plan has been proposed. The
         projects will be sponsored primarily by donors and global funds, and
         implemented by agencies and CSOs such as WB, UN-REDD, WWF, etc.

       — Disaster risk management and climate change (CC) adaptation: It is expected
         that the next global agreement on CC will also increase the adaptation funding
         exceptionally. The projects would therefore be financed by such new generation
         adaptation funds from such institutions as the Global Fund for Disaster Risk
         Reduction (GFDRR) and the Rockefeller Foundation, and would be implemented
         by the partners as the WB, ISDR, and ADPC.



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2.6.2 Public Administration

Pre-Ketsana Situation

This section covers an estimation of the damages to the public administration sub-sector.
Losses are considered minimal as the sector continued functioning throughout the storm,
and so are not considered. The public administration sub-sector is defined here as
commune, district, and provincial own offices and functions, as all other technical line
ministries and offices are directly managed by respective national ministries. Hence,
respective damage and loss have been presented in the sector papers (for instance,
damages and loss to agriculture and its sector office/branch buildings and functions were
assessed by the agriculture team and presented in the sector report above). In other words,
in this chapter on the public administration sub-sector, only damages and loss to commune,
district and provincial offices (Sala Khum, Sala Srok, and Sala Khet) and disruptions to their
functions will be estimated.

Commune/Sangkat Offices.54 Commune offices in pre-Ketsana’s conditions varied in terms
of physical structures, facilities,(such as resource centers, filing, and record keeping) as well
as their utilization. There are 1,621 communes in Cambodia. The Asian Development Bank
supported Commune Council Development Projects (CCDPs) phase 1 and 2 allowed the
Royal Government of Cambodia to construct a total of 697 new commune offices in 23
provinces outside the capital Phnom Penh. The remaining 924 communes are operating in
their existing buildings with varying degrees of quality. Most are in poor condition and in
need of renovations or require completely new construction. Presently, there is no pipeline
project/plan to deal with these 924 commune offices.

District/Khan.55 Cambodia has 193 districts/khans, and municipalities. District/municipal
offices are usually made of concrete, but the majority of the buildings were built before
1993. District authorities have so far not been given substantial functions (unlike the
commune and provincial authorities) and have operated as an arm of the province. The new
law on the administrative management of the capital, provinces, municipalities, districts,
and Khathe district/municipality will soon require office space, facilities, equipment, staff,
and its own budget to undertake the newly transferred functions.

Provinces. The 23 provinces and the Capital of Phnom Penh are presently considered as the
most functional tier of sub-national administrations with better offices, facilities,
equipment, and staffing. This tier also has the human resources and network capacity to
deal with the aftermath of natural disasters (such as, conducting damage assessments, and
reporting and providing immediate assistance). The National Committee for Disaster

54
     Sangkat is the urban equivalence of commune.
55
     Khan is the urban equivalence of district.

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Management (NCDM) and the Cambodian Red Cross (CRC) have branches in each of the
provinces and are decentralizing some of their functions to the provinces to conduct
damage assessments following natural disasters.

Disaster Impact on Public Administration

The damage to the public administration sector from Typhoon Ketsana was limited in scope,
causing direct damages to a commune building and minor roof damage to the district
military and police headquarters in Kampong Thom Province (see picture and estimation of
direct damages below). In addition, the typhoon caused damage in Ratanak Kiri Province,
with floods damaging buildings in Andong Meas and Taveng Districts. Administrative
documents and civil registration records in these two remote districts were seriously
damaged by the floods (see below pictures). The governor and police commissioner of
Andong Meas District state that these two headquarters will need to be relocated to higher
grounds and that they have no plans to move back to the two buildings.

Prior to the field assessment, the team gathered baseline information and reports from the
NCDM, CRC, provincial governors’ offices, a limited number of NGOs, ADB, and UNDP.
However, information related to the damage and loss incurred by the above-defined “public
administration sub-sector� is very limited. Only Kampong Thom and Ratanak Kiri Provinces
reported physical damage to commune and district buildings and records. In this respect,
the team decided to conduct a field assessment on damages to the public administration
sub-sector in Ratanak Kiri, Kampong Thom, and Siem Reap Provinces (November 13-20,
2009). Assessments of damage in other provinces, districts, and communes were carried out
through email and phone calls.

In total, direct damage and loss to the public administration sub-sector caused by Typhoon
Ketsana is estimated at USD 178,685. This includes costs to repair damaged structures and
facilities as well as relocation of two offices in low-lying areas.

Picture 1: Andong Meas, Ratanak Kiri




District Office under Ketsana’s Water and After   Remaining records in newly rented office


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Taken on 30 September 2009 and 14 November 2009

Picture 2: Sandan, Kampong Thom




A view from the back                                   and from the entrance

Losses for this sector are considered minimal and have not been calculated. While there are
some losses due to building closures and relocation, these have not been factored into the
overall calculations.

In terms of other considerations, Typhoon Ketsana has unavoidably deepened the burden
on government expenditures and compounded the negative effect of the global economic
crisis on overall revenues. It should be also noted that although the government was able to
collect revenues in excess (if compared with its annual planned figures shown in the annual
budget law) in 2007 and 2008, a similar trend is not foreseen for 2009. As explained in the
draft 2010 budget law, which was submitted to the National Assembly recently, overall
revenues in 2009 would be lower while overall expenditures in 2009 would be higher than
the figures in the adopted law. As such, the government has already spent from its national
reserves to stimulate the economy. In other words, there will be a higher deficit than
expected in 2009.


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Optimistically, however, the draft 2010 budget law forecasts 3 percent of GDP (USD 11,774
million) and a decreased budget deficit from 6.08 percent of GDP in 2009 to 5.3 percent of
GDP in 2010.For the public administration sub-sector, the draft bill predicts a significant
decrease of provincial revenues in 2010, hence requiring increased transfer (of about 71
percent) from the treasury if compared to the 2009 budget law.

The draft law does not show specific lines of expenditures for Typhoon Ketsana recovery.
The bill actually focuses on the same prioritized sectors as in 2009 with a significant increase
for security and defense. There is no provision made for the public administration sub-
sector recovery due to the Ketsana disaster.



Recovery Strategy for Public Administration

The 2010 Commune Sangkat Fund (CSF) allocation was endorsed by the Royal Government
of Cambodia on October 14, 2009. Compared to 2009, the CSF allocation is slightly
increased for all communes according to the formula. There is no special increase for
Ketsana-affected communes to cover the damage they incurred.

Short Term (0-6 months)

   •   Repair damaged buildings, room beams, fences, and cut and remove fallen trees for
       the district offices and police offices;

   •   Provide funds for rental of temporary premises while repair is undertaken;

   •   Replace/photocopy administrative and civil registration records damaged by the
       storm; and

   •   Repair furniture damaged by the storm.

Medium and Longer Term (2-5 years)

   •   Consider retrofitting of public administrative building in high-risk areas;

   •   Relocate offices in vulnerable areas when possible; and

   •   Ensure vulnerability to natural hazards is taken into account in the placement and
       construction of new public buildings.




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                    Table 36: Recovery of Public Administration Buildings (USD)
                                               Short Term
                                                                Medium Term
                 Recovery                     (0-6 Months)                         Total
                                                                  (2 Years)

 Building Repair and Relocation                  5,885            160,000         165, 885
 Equipment                                       9,200                             9,200

 Rental of New Office During Reconstruction                        3,600           3,600

 Records                                          800
 TOTAL                                          15,085            163,600         178,685
Source: PDNA Team Elaboration (2009).




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                            SECTION III:
                 MACRO-ECONOMIC AND SOCIAL IMPACTS
3.1 Macro-Economic Impact
3.1.1 The Pre-Ketsana Cambodian Economy

After a remarkable economic performance over the past 15 years and with a record double-
digit growth for four straight years from 2004 to 2007, the Cambodian economy started to
shrink in 2008 and is expected to fall significantly in 2009, in part due to the impact of the
global downturn. The growth of GDP slowed to 6.7 percent in 2008 and is projected to
decline to 2.1 percent in 2009.56 Most indicators pointed to a slowdown in the economy,
and some others suggested a possible bottoming out in the first half of 2009. Only a
recovery in the tradable sectors (including tourism) will drive growth to the levels Cambodia
used to have, and any recovery is very much dependent on a rebound in the global
economy (in particular in the United States, the European Union, and the Korean markets).

                      Figure 7: Economic and Sector Performance, 2004 -2009
       Economic Growth, 2004 - 2009                        GDP Composition by Main Sectors
                                                   100%        5       5         5        6         5     5

                                                               38     39        38        39       39     38


                                                    50%        22     25        25        27       27     29


                                                               34     31        32        29       29     28
                                                      0%
                                                             2004    2005      2006     2007      2008   2009p
                                                                    Agriculture, Forestry & Fisheries
                                                                    Industry
                                                                    Services

Source: MEF (2009).

Cambodia’s agricultural sector represented 29 percent of GDP in 2008 and continued to
show good prospect in 2009 even though garment exports and the tourism and
construction sectors become more depressed. The annual paddy rice production in 2008
expanded by 6.7 percent over that of 2007; it has a continued positive outlook for 2009
despite sporadic droughts, floods. The sector employs some 60 percent of the country’s

56The government projected 2.1 percent growth for 2009. Other institutions projected negative growth
for 2009: International Monetary Fund (-2.7), World Bank (-2.2), and Asian Development Bank (-1.5).

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labor force whose income is subject to large swings with commodity prices (including rice,
cassava, and rubber) and weather dependence. Garment exports, the country’s key foreign
exchange industry, started slowing down at the end of 2008 and growth become negative
by the first half of 2009, with exports falling by 26 percent. A similar trend is visible in the
tourism and construction sectors. While tourist arrivals grew by 5.5 percent in 2008,
indicators from the first half of 2009 pointed to a decline of -1.1 percent over that of 2008.
The tourism sector is expected to slowly recover by the end of 2009 while the construction
sector is expected to bottom out. Construction projects approved during the first six
months of 2009 dropped by an annualized rate of 25 percent.

Construction is projected to bottom out with visible signs of rebound by 2010, reflecting
gradually growing capital inflows to the sector. Lending from commercial banks to the
construction sector grew 26 percent by mid-2009, regaining ground for recovery in 2010.
But flows of credit to the real estate sector remain subdued with no clear signs of
stabilization before the end of 2009. Over the first half of 2009, there was evidence of stress
on the corporate sector, including a 40 percent plummeting of new firm registration for
businesses and the closure of 16 percent of the garment factories (net of opening). The
observed corporate vulnerability and the impact on employment, wages, and poverty are
expected to lead to increased nonperformance loans by the end of 2009.

The external sector is stable but the accumulation of the foreign exchange reserve has
slowed down. Gross foreign reserve growth slowed markedly and grew merely by a year-on-
year rate of 6 percent in June 2009, reaching USD 2.18 billion. The growth was much lower
than its average annual rate of 34 percent over the past three years. External accounts still
show a large current account deficit, but have adequate financing. Several flows are “self-
correcting� (e.g., lower garment exports partly offset by lower raw material imports).
Although private capital inflows (i.e., FDI and to a lesser extent remittances) have slowed
down, external assistance remains strong, and FDI showed some signs of bottoming out in
2009.

On public finance, revenue is expected to shrink. The impressive growth in domestic
revenues since 2004 averaging 25 percent per annum may not materialize in 2009. Over the
first half of 2009, all key revenues—mainly tax revenue, non-tax revenue, and capital
revenue—pointed to an annualized decline of -12 percent, -22 percent, and -48 percent
respectively. Weak tourism receipts and import duties (including shrinking construction
materials-related imports) put the revenue collection target under increasing strain. At the
same time, expenditures increased by 12 percent and are likely to continue to increase,
especially with fiscal packages introduced earlier this year to boost the economy and tax
holidays extended for key supporting industries. As a result, the fiscal deficit is projected to
widen to -6.1 percent of GDP (up from -2.8 percent in 2008) and additional foreign and
domestic financing is also expected to expand.



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The USD 253 million (Riel 1,053 billion) fiscal deficit (before grants) is financed by external
assistance (grants and loans). Hence, the deficit may not require any domestic financing;
despite cash deposits have stayed steady at USD 694 million by June 2009. In addition, in
December 2008, donors pledged disbursements for 2009 at around USD 1 billion, a level
slightly higher than that of 2008.

The prime minister recognized the impact of the global crisis in February 2009 and launched
the preparation of a three-pronged response: macroeconomic and financial sector policies;
fiscal policies; and sector responses. The results have not yet responded to expectations,
given the constraints the Government is still facing.

In the area of response under monetary policy, the Central Bank, after focusing on excess
growth in credit during the first half of 2008 (with, appropriately, a doubling of reserve
requirements effective July 2008 and a tripling of capital requirements over three years,
decided in September 2008), focused on the issues of tight liquidity and banking sector
risks. Two sub-decrees on banking governance and fit and proper tests were introduced in
November 2008. An overdraft facility of USD 100 million was created in January 2009. The
reserve requirements were brought down from 16 to 12 percent in February 2009. A 15
percent restriction ceiling on real estate lending introduced in July 2008 was also removed
in February 2009. Banking sector supervision was intensified, with assistance from the Asian
Development Bank and the International Monetary Fund. The law on Financial Lease was
adopted in May 2009 to secure the rights and duties of all parties involved in financial lease
operations. The Central Bank in June 2009 created an Executive Commission for Developing
the Inter-Bank and Exchange Market to regulate the bonds and securities of the Central
Bank.

A higher fiscal deficit is expected as the government introduced a number of stimulating
fiscal packages to support domestic demand. The 2009 budget law was amended and
adopted by the parliament in May 2009 to provide additional financing for priority activities
to save the economy, which included additional tax holidays for key investments (e.g.,
agriculture and garment industry), tariffs and VAT incentives for supporting industries,
funds allocated to train laid-off workers, and a 20-percent wage increase of civil servants.
The Public Financial Management reform program has been reinforced to improve
efficiency of budget execution and its policy management. Marked progress was evident,
including closing additional unused government accounts, 18 government ministries and
institutions using ANZ Royal Bank services for salary payments, extending the use of
commercial bank (ACLEDA) in handling state revenue and expenditure transactions,
including the payment of government salaries in rural areas. Twenty-five ministries have set
up the departments of internal audit and 13 are operational.




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3.1.2 Impact of Typhoon Ketsana on the Economy

The impact of Typhoon Ketsana on the economy is mainly through the agriculture sector—
damage to the rice crop. 49,000 hectares of rice were destroyed by the storms and floods
and 67,000 hectares were affected, resulting in a total loss of 130,000 tons of paddy rice.
The impact on livestock was minimal as 70 cows/buffaloes, 270 pigs, and 12,000 poultry
were killed.


The impact on the other three drivers               Figure 8: Impact on Economic Growth, 2009
of the economic growth—garment
export, construction, and tourism—
were minimal. The typhoon affected
a small number of family-based agro-
enterprises and micro-enterprises
because the provinces are not
industrial based. The typhoon and
floods did not cause damage to major
construction as big residential and
commercial construction projects are
concentrated in the capital city of
Phnom Penh and in major urban
areas.
                                              Source: MEF (2009) and PDNA (2009).
With a major impact on the rice crop
but a minimal impact on other sources of growth, it was estimated that the typhoon
brought a loss of USD17 million (Riel 69 Billion) of value-added to GDP. This shock would
lead to 0.2 percentage point reduction in economic growth for 2009, thus reducing the
growth rate for 2009 from earlier estimates of 2.1 to 1.9 percent.57

The impact on fiscal revenues is unlikely to be significant, but the impact on expenditures
could be important. The financing for medium- and long-term needs will have a significant
impact on the fiscal space. As explained in the draft 2010 budget law, which was submitted
to the National Assembly in December, overall revenues in 2009 will be smaller due to the
slower economic growth, while the overall necessary expenditures in 2009 will be higher.
The financing needed to rebuild physical infrastructure and livelihoods after the typhoon
will create an even higher deficit and therefore will require additional domestic and foreign
financing.



57If projected growth figures from other institutions are used and applying 0.2 percentage point of
reduction in growth, the 2009 figures are: International Monetary Fund (-2.9), World Bank (-2.4), and
Asian Development Bank (-1.7).

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The rice prices in the affected provinces and elsewhere remained stable thanks to the rice
harvest season. Rice and other basic food item prices largely remained stable in November,
according to the FGDs with villagers, commune councils, and provincial officials in Stung
Treng and Kampong Thom. Rice prices data collected by the Ministry of Agricultural,
Fisheries, and Forestry (MAFF) confirmed this conclusion. Rice prices in Battambang, Preah
Sihanouk, and Banteay Meanchey were stable in October and November. The rice prices
that were collected by the National Institute of Statistics to produce the monthly consumer
price index also showed relative stability during the aftermath of the typhoon.

     Table 37: Prices of Second-Grade Rice (NeangMenh) In Selected Provinces Post Ketsana (USD)
Battambang                     October 7        October 14      October 28    November 11    November 18
(Rice Mill Battambang)            1,700            1,950           1850          1900            1750
Preah Sihanouk                 October 9        October 12      November 13   November 16    November 20
(PsarLeu)                        2500              2500            2000          2000           2000
Banteay Meachey                October 7        October 14      October 28    November 11    November 18
(Rice Mill O Ambil)               1,869            1,875           1725          1725            1725
Source: CPI, National Institute of Statistics (2008).

                       Table 38: Prices of Rice in Phnom Penh Post Ketsana (USD)

                  Type of Rice                          July         August      September      October

           Quality No.1, Phaka Kanhey                   2,735        2,753         2,758         2,765

            Quality No.2, Neang-Menh                    2,230        2,245         2,245         2,250
Source: CPI, National Institute of Statistics (2008).

3.2 Social Impact
3.2.1 Impact on Livelihoods and Income

The typhoon hit 14 provinces where the poverty level was relatively high compared to other
provinces. A calculation of the poverty score58by the Ministry of Planning and the Ministry
of Interior’s National Committee for Decentralization and Deconcentration using five main
indicators from the Commune/Sangkat database showed that except Kampong Chhnang,
Kampot, Kampong Cham, and Preah Sihanouk, 2007’s poverty score for other disaster-
affected provinces in the Northeast, North, and Northwest (i.e., Mondul Kiri, Kratie, Ratanak
Kiri, Stung Treng, Preah Vihear, Oddar Meanchey, Banteay Meanchey, Siem Reap, and

58The calculation of a provincial score has four steps. First, five indicators—(i) percentage of households
who have access to a water supply 150 meters from the dwelling; (ii) percentage of households with a
thatched roof; (iii) percentage of primary school age children not attending school; (iv) percentage of
adult literacy age 15-45; and (v) proportion of births attended by a skilled health personnel—are chosen
to calculate a score for a commune. Then, the commune scores in a district are used to calculate an
average score for the district. And finally, district scores are used to calculate an average score for the
province.

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Kampong Thom) are between 100 and 110. This means that these provinces are relatively
poorer than those in the East, South, and Southwest.

             Figure 9: Poverty Score by Province, 2007 ( >100=Poorer; <100=Richer)




              Source: Commune Database Poverty Score (2007).

The level of poverty in these provinces was already 40–45 percent prior to the typhoon
while the poverty rates for rural areas and Cambodia as a whole were 39 and 35 percent
respectively. Poverty estimates using Cambodian’s household survey in 2004 suggested that
45 percent of population in the upland region were living below the national poverty
line.59If it is assumed that the poverty rate in the mountainous region was reduced by 4
percentage point from 2004 to 2007 (paralleling the reduction in rural poverty), the rate of
poverty in the mountainous region would have been around 41 percent in 2007.

The general profiles of households in these provinces suggested that households rely
primarily on rice and other crop farming, and access to common property resources such as
fish and non-timber forest products. Agriculture, rice farming in particular, is the major
source of food consumption and sources of income, which provide staple food for dietary



59Knowles (2006), A new set of poverty estimates for Cambodia, 1993/94 to 2004, Report to the EAS
Country Units of the World Bank, Washington DC.

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consumption and 60–80 percentage of total household income.60Results from General
Population Census of Cambodia 2008 released in August 2009 show that as much as 72
percent of 7 million people in the Cambodian labor force, which also applicable to rural
population in these 14 provinces, are dependent on agriculture.

The opportunity cost of Typhoon Ketsana and the global economic downturn has meant a
loss of informal, off-farm activities (e.g., clearing land, planting, weeding, transplanting, and
harvesting,) and urban unskilled labor (i.e., in the construction, manufacturing, and service
sectors). For rural households, November and December represent an accelerated period of
income generation, either harvesting their own crops or selling their labor to other farms:
These jobs were decimated with Typhoon Ketsana. The slowdown of Cambodia’s economy
has led to a reduction in the urban/peri-urban unskilled labor demand in general and
affected remittances to the rural economy.

                 Figure 10: Employed Population by Industrial Sector, 1998 and 2008
                            100
                                             78
                                  80                             72

                                  60                                            Agriculture
                     Percentage




                                                                                Industry
                                  40
                                                      18                  19    Service
                                  20                                  9
                                                  4
                                  0
                                     1998                     2008
                   Source: MoP, General Population Census of Cambodia, 1998 and 2008.

While rural Cambodians are highly vulnerable to risks and shocks (see Risk Profile, Section
IV), the typhoon and its subsequent flash flood was another blow to the current livelihoods
of Cambodian rural households in the provinces. The conditions are likely to be more severe
in 2010 because approximately 49,000 families were already in a food shortage situation
before the typhoon61and the Ketsana has damaged additional hectares of rice crop that
would have been harvested in November and December.



60 Estimates on average income and sources of income of rural households in Cambodia, like in other
developing countries, remain very challenging because rural households do not have regular monthly
salaries or earnings. Their income from selling rice or other subsidiary crops depends heavily on
favorable weather, thus providing unstable income over time. However, to the best of the knowledge and
findings from the FGDs in two different villages each in Stung Treng and in Kampong Thom Provinces, the
average Cambodian in a rural area earned approximately Riel 300,000–450,000 (USD 73-110). 2008 GDP
per capita was around USD 740 per year or USD 62 per month.
61 NCDM, Presentation on November 10, 2009.



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              Box 2: Typical Livelihood Changes in Koh Khorndin, Stung Treng District

 Income from rice cultivation: In this village, almost all of the families cultivate 1-2 ha of wet rice from May
 to July. There are about 214 ha in total under cultivation, and average yields range from 1.5 to 2 tons per
 ha. This gives an approximate total annual yield for the village of 374.5 tons, equivalent to 2.9 tons per
 household/family. Around 20 ha were reported to be destroyed by the disaster. Assuming the rice price
 now is Riel 1,000 per kg (an average of 35 tons lost) or Riel 35,000,000 (USD 8,537) were lost to Ketsana.

 Income from other crops: The village is involved in dry season and riverbank cultivation crops like maize,
 cucumbers, vegetables, water melons, and soybean. Income from this varies, with fluctuations reflecting
 market demand. During the FDG, 9 ha of crops were reported to have been destroyed by the disaster.

 Fishing: Half of the households—69 out of 130— rely on fishing to earn their living. The price for a typical
 catch before Ketsana, keeping in mind that it can double in provincial markets, ranged from Riel 2,700 to
 5,500 per kg. On average, these households have a gross income of about Riel 6,162,200 per year. Labor,
 gasoline, and daily expenses are around Riel 1,546,238 per year. This yields an estimated net income per
 year of Riel 4,546,963 (USD 1,154). Based on these figures for the 69 households, we can estimate an
 annual gross income to the village from fishing alone of at least USD 79,625. The loss of fishing activities
 and income are estimated at one month in peak season, compounded by an escalation in the price of fish to
 as much as Riel 8,000 to 15,000 per kg. The increase of fish prices is attributed to lower catches and higher
 demand by an influx of lowland people to the provinces.


Source: FGDs Note, Stung Treng.

Although extreme cases of starvation in the affected villages have not happened, in part
due to immediate relief efforts and traditional household and community coping
mechanisms, the impact in 2010 and beyond should not be under-estimated as the level of
food insecurity is at risk and coping mechanisms are under threat. After the tropical storm,
immediate relief efforts were provided by the government, the Cambodian Red Cross, and
international and national partners in development. Household- and community-level
coping mechanisms, such as exploiting common-pooled resources and borrowing food or
cash from relatives or friends, also provided short-term relief. In the past, rural households
have dealt with natural disasters by migrating short-distances for agricultural work and
seeking loans from informal moneylenders and Micro-Finance Institutions (MFIs). These
solutions work over the medium term for certain members of the household (i.e., adults)
and expose others (i.e., women and children) to vulnerabilities. Unlike past disasters,
however, the effects of Typhoon Ketsana are likely to be more severe after the rice harvest
season ends in January 2010 and to remain severe until the next harvest season. Also
expected to come under pressure are common-pooled resources like forests and fisheries.
3.2.2 Other Social Impacts

Selling durable assets and pulling children out of school have not yet widely occurred, yet
studies in the past suggest differences. A nationally representative survey with 2,200
households nationwide conducted by the Cambodia Development Resource Institute in May


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200862showed that selling jewelry, watches, cows, buffaloes, pigs, and poultries were
options that helped households cope with rapidly rising food prices in early 2008. Taking
children out of school to help with domestic work and to find food were also common. As a
last resort, agricultural and residential plots were sold to stem the further deterioration of
living conditions.

The Ketsana shocks may bring even more serious social threats. Based on the conclusion
from the FGDs in Stung Treng and Kampong Thom, villagers and local authorities said that
they had not observed an increase in domestic violence, a deterioration of community
solidarity, or an escalation of local crime.63 In some cases, by contrast, villagers and local
authorities said that household-level solidarity had been strengthened as husbands and
wives doubled their efforts to earn a living.

                        Table 39: Types of Shocks/Risks in Selected Provinces

                                                               Shock/Risk
       Study Site                              Idiosyncratic                              Covariant
                          ï‚· Illness                                              ï‚· Crop loss or low yields
                          ï‚· Death of household head, loss of household head      ï‚· Border closings
Banteay Meanchey
                            due to migration or abandonment
and
                          ï‚· Landlessness/loss of land
Battambang
                          ï‚· For demobilized soldiers, arrears in government
                            payments
                          ï‚· Illness                                              ï‚· Economic/labor market
                          ï‚· Unemployment                                           shocks
Phnom Penh                ï‚· Death of household head, loss of household head
                            due to migration or abandonment
                          ï‚· Loss of housing

                          ï‚· Illness (including water-borne diseases)             ï‚· Floods and drought
                          ï‚· Death of household head, loss of household head      ï‚· Low rice yield
Prey Veng                   due to migration or abandonment                      ï‚· Low demand for
                          ï‚· Landlessness/loss of land                              agricultural labor


                          ï‚· Illness (i.e., HIV/AIDS, TB, diarrhea, cholera, and ï‚· Crop loss due to drought,
                            malaria)                                              wild animals, and insect
Ratanak Kiri and Mondul
                          ï‚· Malnutrition                                          infestation
Kiri
                          ï‚· Landlessness                                        ï‚· Wildfires
                          ï‚· Livestock death caused by disease                   ï‚· Flash floods
Note: The table summarizes shocks identified during interviews in case study sites. It is not a representative
and exhaustive analysis and should be taken as illustrative.
Source: Muny et al. (2004) and IOM (2009).


62Impact of High Food Prices in Cambodia.
63Villagers admitted domestic violence and sexual abuse were existed in their communities before
Ketsana. But they have not seen any signs of immediate rising during the aftermath of Ketsana.

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While 30 percentage of the Cambodian population lives below the poverty line, in general a
large proportion of Cambodians in both urban and rural areas are vulnerable to
idiosyncratic risks (e.g., illness, death of household head, and loss of land) and covariant
shocks such as natural disasters (e.g., flood, drought, insect infestation, fires, and wildfires)
and economic-wide crisis. These shocks are particularly desperate if they occurred in rural
and urban poor families. Livelihoods of rural households still rely mainly on agricultural
farming and access to common property resources and fewer assets and lower savings to
cope with such shocks. Table 39 provides typical risks/shocks Cambodians have been facing
although the study did not cover all 14 provinces that were hit by Typhoon Ketsana. Shocks
caused by natural disaster or health can push non-poor households into poverty and
further-push poor households into the depth of the poverty cycle.
3.2.3 Vulnerable Groups
Within villages and communes, it was confirmed that             Box 3: Who Are the Most Vulnerable
the poorest groups64 and households not only had                             In Cambodia?
                                                                • People with disabilities
their rice crops totally destroyed, but they had few            • Internally displaced persons and
assets or savings to cope with the aftermath—in brief,            repatriated refugees
they were the most vulnerable. The poorest                      • Demobilized soldiers
households are usually households headed by single              • Children, especially orphans and street
women who have been widowed, divorced, or                         children
                                                                • Abandoned elderly
abandoned by their husbands, the elderly who have               • Women who are head of household
been abandoned by their children, disabled husbands,            • HIV/AIDs individuals
and HIV/AIDs spouses.65                                         • Ethnic minorities in the mountainous
                                                                  regions
The indigenous groups who traditionally live in the             • Sexual abuse victim
mountainous regions of Ratanak Kiri, Mondul Kiri,               • Human trafficking victims
                                                                • Land mine and UXOs victims
Stung Treng, and Kampong Thom Provinces were
among the most vulnerable groups. They number                    Source: Provincial Profiles, Stung Treng,
approximately 100,000–190,000 (NGOF 2006), with                  Kratie, Siem Reap, OddarMeanchey,
about half living in Ratanak Kiri and Mondul Kiri.66             Preah Sihanouk, BanteayMeanchey, and
                                                                 Kampong Cham.
Within households, it appeared that women, children,
and the elderly were the most vulnerable during the disaster and in the post-disaster

64 The lists of the poorest and next poorest households are available in almost all villages of the 14
provinces. The lists can be obtained either through the Identification of Poor Household Program at the
Ministry of Planning in Phnom Penh or the Department of Planning in each province. They are a very
important source of information for targeted interventions.
65 The Provincial Profiles are prepared annually by the Provincial Department of Planning using the

Commune/Sangkat database and provide figures and types of vulnerable groups in their respective
provinces.
66 There are 20 ethnic minorities living in the upland regions: Kui, Punong, Stieng, Tumpuan, Jarai,

Kreung, Brao, Kachak, Lun, Kavel, Khaonh, Kraol, Mil, Thmon, Kanchrok, Poar, Suoy, Khmer Daoem, Suoy,
Soch, and R’ong.

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period. During the typhoon and floods, children and the elderly were reported to have
fallen ill because they were evacuated to sites where the necessary facilities (e.g., toilet,
clean water, and shelter) and their hygienic conditions were below standards. After the
disaster, while the male adults spent time outside the village or in some cases traveled to
cities for work, women often had to take on significantly increased responsibilities to do
household chores and sustain families.




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                          SECTION IV:
            DISASTER RISK MANAGEMENT IN CAMBODIA
4.1 Country Risk Profile

Cambodia is one of the most disaster-prone countries in Southeast Asia. The country’s
National Poverty Reduction Strategy (NPRS) explicitly identifies natural disasters,
particularly flood and drought, as critical factors that increase the socio-economic
vulnerabilities of the rural poor, including placing a disproportionate burden of coping with
the effects of disasters. Over the past ten years, Cambodia has been affected by a series of
exceptional floods and by widespread but highly localized agricultural droughts. While
agricultural      production        is
dependent on this annual flooding
cycle, particularly severe floods in
recent years (notably 2000, 2001,
and      2002),    together     with
prolonged periods of dry weather,
have       caused       considerable
economic damage, losses in rice
production, and a number of
fatalities. The country had not
faced a typhoon or severe storm
until Typhoon Ketsana hit on
September 29, 2009.

4.2 Institutional and Legal Framework for Disaster Risk Management
4.2.1 National Level

The Royal Government of Cambodia established the National Committee for Disaster
Management (NCDM) fifteen years ago, recognizing that the country’s geographic context
exposed it to natural disaster and perceiving that a country-wide coordinating body was
needed to manage the respective risks. The NCDM is headed by the prime minister as
president with membership comprising all ministers, as well as representatives of the Royal
Cambodian Armed Forces, Cambodian Red Cross, and Civil Aviation Authority.

The NCDM is composed of five departments: (i) Emergency Response and Rehabilitation; (ii)
Administration and Finance; (iii) Information and Relations; (iv) Preparedness and Training;
and, (v) Search and Rescue. It also has a working group on Disaster Coordination, Response,
and Recovery with five sub-working groups (Emergency Response; Food Security; Health;

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Small-Scale Infrastructure, Hygiene, Water, and Sanitation; and, Preparedness and
Mitigation).
4.2.2 Sub-National Level

The Committees for Disaster Management branch into the provinces, districts, and
communes, and retain similar governing structures and officers across all levels. The
Provincial Committees for Disaster Management (PCDM) are designed to mirror the NCDM,
with the provincial governor as the head and membership drawn from the provincial
departments of the ministries as well as representatives from the police, army,
gendarmerie, and the Cambodian Red Cross. At the district level, district chiefs and relevant
officers should be designated members of District Committees for Disaster Management
(DCDM). In some provinces, Disaster Management Committees exist at the commune level.
4.2.3 Roles and Responsibilities

The Disaster Management Committees at the sub-national level are intended as a
coordination body and are responsible for providing overall guidance to all its members.
They are responsible for coordination, facilitation, and guidance to all line ministries and
also play a coordination role with other development partners for overall disaster
management activities in the province, rather than the actual implementation of programs.
Line ministries are the agencies tasked with implementation. Similarly, the PCDM/DCDM
offices are responsible for synthesizing overall information about disaster management
and/or damage and needs reports based on information received from concerned sectors
and then submitting a comprehensive report to the
NCDM.
4.2.4 Administrative Procedures and Policies

The national efforts for laying out policy on disaster
management have evolved since 2001, including a
number of decrees, circulars, and orders for setting up
national as well as sub-national institutional
mechanisms. The key national decrees issued by the
Royal Cambodian Government are: Decree No.
0202/040 of 2002 on the Establishment of the NCDM;
Sub-Decree No. 30 of 2002 on the Organization and
Functioning of the NCDM; Sub-Decree No. 61 of 2006 on
the Establishment of the CCDM; Circular No. 01 of 2002
on Disaster Preparedness and Response; Circular No. 02
of 2001 on Reduced Preparedness and Disaster
Management; Provincial Dey Ka (Order) of 2007 on the
Establishment of Disaster Management Commissions; and, Provincial Order of 2007 on the

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Establishment and Functioning of the PCDM. In addition, the Government through the
NCDM issues an annual Circular on Disaster Preparedness and Response, which is shared
with all stakeholders prior to the beginning of flood season.

A Disaster Management law has been drafted and is under review by the Ministry of
Interior; it addresses mechanisms for national and local authorities, division of
responsibilities, and the role of private companies and international organizations.

In early 2009, the Royal Cambodian Government with the cooperation of the National
Committee for Disaster Management (NCDM) and the Ministry of Planning (MoP) launched
the Strategic National Action Plan for Disaster Risk Reduction 2008–2013 (SNAP–DRR). The
objective is to foster a multi-stakeholder partnership to reduce the social, economic, and
environmental impact caused by natural and human-induced hazards by incorporating
disaster risk reduction into the policies, strategies, and plans across all sectors at all levels.
Some of the most relevant project stakeholders are UN-ISDR and ADPC, which have been
providing technical support in the development of the SNAP in Cambodia with funding from
the European Commission.

4.3 Disaster Risk Management in the Poverty Reduction Strategy and
Country Development Plans

The National Strategic Development Plan (NSDP) for 2006–2010 synthesizes the goals and
objectives of the Rectangular Strategy, National Poverty Reduction Strategy (NPRS), and
Cambodia Millennium Development Goals (CMDG). It does not directly address disaster risk
reduction (DRR) but incorporates it in the areas of social welfare, water resources
management, agriculture, and rural development. Within these priority sectors, the DRR
activities that have been identified include: protecting rural areas from the natural hazards
of flood and drought; enabling communities for disaster preparedness and risk reduction;
and, reducing the vulnerability of the poor to external shocks, including natural hazards.67

In 2006, the government approved the National Adaptation Program of Action to Climate
Change (NAPA). Both the SNAP–DRR and the NAPA seek to address Cambodia’s vulnerability
to hazards, although the latter focuses on responding to extreme weather events and slow-
onset changes in climate and the former focuses on wider issues. Both complementary to
and supportive of the NAPA, the SNAP–DRR has designated activities to synergize
implementation and monitoring of both plans.

At the national level, some key ministries included disaster risk management in their core
programs. The Ministry of Education, Youth, and Sports (MoEYS), for instance, is
implementing a mainstreaming disaster risk reduction into educational sector by including

67   National Strategy for Disaster Preparedness, Chapter IV: Key Strategies and Actions (2009).

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DRR practical measures and concepts into the national school curricula of grade 8 in two
main subject matters, geography and earth science. The Ministry of Health (MoH) is
implementing “Safer Hospitals� campaigns and DRR integration into the health sector with
the support of World Health Organization (WHO), as a part of the support to World DRR
Campaigns promoted through the International Strategy for Disaster Reduction (ISDR) for
Cambodia. Both initiatives are supported by the European Commission. The Ministry of
Water Resources and Meteorology (MoWRAM) is playing an active role in providing flood
and weather forecasting and early warning information to national and sub-national
government agencies, local authorities, and the public through television, national radio,
and local newspapers. In the aftermath of a natural disaster, the Ministry of Agriculture,
Forests, and Fisheries supports the immediate recovery of the agricultural sector by
providing rice seed and fuel.

Similarly, at the sub-national level where development partners are implementing disaster
risk management (DRM) projects, disaster risk reduction measures have been integrated
into the local development plans. This is particularly true in four provinces seriously
affected by Typhoon Ketsana. In Kratie Province, for example, ongoing projects relating to
DRR are being carried out by the ADPC, Action Aid, Oxfam GB, Oxfam Australia, and other
local partners. These provinces and its districts and communes recently have included
disaster risk reduction measures in their three-year investment programs. In stark contrast,
little progress has been made in the three provinces lacking DRR projects: Kampong Thom,
Ratanak Kiri, and Siem Reap.

Despite a number of key government policies and pronouncements recognizing the
importance of disaster risk reduction, the actual practice of government institutions and
local governments remain focused primarily on responding after the occurrence of a
disaster event. While some government ministries are already implementing DRR activities
and projects, their efforts need more coordination to create synergies with other ministries,
local governments, international organizations, non-governmental organizations, and civil
society are not fully realized. The SNAP–DRR facilitates the identification of disaster risk
reduction activities of the various government ministries and agencies, and consolidates
them into a single comprehensive program of action.

4.4 Assessment of Disaster Preparedness and Response Interventions

One of the challenges identified by the Government for effective disaster risk management
is the limited capacity of the National Committees for Disaster Management (NCDM). The
NCDM tends to convene primarily in response to natural disasters and while interested in
risk reduction activities, still lacks both the technical skills and the budget to do so. To make
the shift from disaster response toward a disaster risk reduction approach, the NCDM needs
to increase its human resources and technological capacity. A second challenge is the lack of
Disaster Risk Management (DRM) legislation. Although the institutional and legal

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framework mandates that the NCDM and its Secretariat have the primary responsibility for
disaster management, the exact legal authority of the Committee to exercise its
responsibilities has to be clarified and the budget raised. Passage of the draft DRM law will
provide the legal basis for a DRM budget and further define the respective responsibilities

Similar challenges have been identified at the sub-national level. The existing decrees and
sub-decrees establish province-, district-, and commune-level committees for disaster
management, but implementation of responsibility is limited by capacity and funding. Non-
governmental organizations or external support in targeted provinces have lead to the
development of plans for disaster response based on the roles and responsibilities assigned
at the national level, but there is still little capacity to implement them due to lack of
resources, awareness, and training. There is an urgent need for plans to be put in place to
cover multi-hazard, large-scale emergencies. In the event of a prolonged impact of flooding
and another province-wide emergency, the challenges of responding to two simultaneous
disasters could become overwhelming. The section below provides detailed information on
the assessment of preparedness and response capacity for different DRM interventions.
4.4.1 National and Sub-National Risk Assessment

There is no overall national risk assessment, and important tools like hazard, vulnerability,
and risk maps are not in place. However, some progress has been made at the sub-national
level. For example, the Flood Probability Maps of 14 communes in Leuk Dek District of
Kandal Province and Peam Ro District of Prey Veng Province are being prepared by the
Mekong River Commission Secretariat under its Flood Management and Mitigation
Program. Similarly, in 2007, the World Food Program (WFP) supported the Department of
Geography to produce a drought map at the commune level in selected provinces like
Banteay Meanchey, Siem Reap, Kampong Thom, Kampong Cham, Kampong Speu, Prey
Veng, and Svay Rieng. There are thus already some useful examples of risk maps, but they
cover only small areas where projects have occurred and are not always comprehensive
enough.

Statistical information on local risks, hazards, and vulnerabilities has been generated under
various externally aided projects but there is no system yet at the national and sub-national
levels to update such information on a periodic basis or to collect and synthesize all
information and analyze where key gaps in risk mapping occur. In practice, hazard data and
vulnerability information are collected, updated, and disseminated by individual national
authorities and development agencies to serve their project purpose.




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4.4.2 Early Warning Systems at the National and Sub-National Levels

The Ministry of Water Resources and Meteorology (MoWRAM) is mandated to produce and
disseminate forecasts to the entire country. At the same time, the Regional Flood
Management and Mitigation Center of the Mekong River Commission is responsible for
producing and disseminating flood forecasts and early warning information for its member
states in the Lower Mekong Basin, including Cambodia. At the local level, the Cambodian
Red Cross plays an important role in disseminating flood forecasts to the communities. The
forecast and early warning information is disseminated regularly during flood season (June
to November) through television, mass media, FM and AM radio channels, and local
newspapers.

However, the capacity of MoWRAM across all levels is limited due to insufficient funding,
dated communication systems, and lack of equipment. The monitoring of floodwaters,
droughts, and other disasters is reasonably effective; the forecast and early warning
information from the national level usually reaches existing networks at the provincial but
not the commune level. During Typhoon Ketsana, it was noted that the affected provinces
(e.g., Kampong Thom, Ratanak Kiri, and Siem Reap) could not communicate in a timely
manner with the authorities and residents of their communes, resulting in higher damage.
4.4.3 Public Awareness

There is a high degree of awareness among local people and authorities about annual
flooding and drought; however this has not yet translated into a better preparedness
strategy at the province and district levels. Specific awareness-raising components have
been incorporated in projects being implemented by development organisations, and the
disaster management committees have been participating in educating local people on
disaster risks and impacts. For example, in Kratie Province, where Action Aid, ADPC, Oxfam
GB, and the Cambodian Red Cross have ongoing projects, public awareness campaigns are
being carried out and IEC materials are disseminated to the local people. However, in
provinces like Kampong Thom, Ratanak Kiri, and Siem Reap, which were part of the PDNA,
there are no activities related to public awareness. Moreover, several commune-level
officials said that when they communicated information about the typhoon to villages,
there was general disbelief and some families living very close to the swollen rivers decided
against evacuation. As in other disciplines, where externally funded projects are being
implemented, the provincial information and culture department is involved in designing
and disseminating disaster-specific awareness material. There is no sustained mechanism to
educate local people on a regular basis.




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4.4.4 Capacity Building

As mentioned in earlier sections, the existing capacities of all the disaster management
committees from national to commune as well as in the line ministries to deal with disasters
are still largely insufficient. There is a need for a strategy for upgrading the skills of national
and sub-national officials resulting in inconsistent understanding of disaster management,
lack of adherence to regional or international protocols, and inconsistent decision-making
at the local-level intervention. No accreditation, evaluation, or feedback system exists
either for the current training programs or for skill improvement activities carried out by the
Cambodian Red Cross and other developmental partners. The NCDM has a separate training
unit but so far has not developed a strategy for conducting regular training for its members
from line ministries. There is also an urgent need for more resources, especially once the
strategy is adopted in order to upgrade its own skills in coordinating with other technical
agencies, research institutes, and universities to develop capacity building programs.
Sporadic training and capacity building activities are being conducted by external partners
for disaster management officials at the province, district, and commune levels, but the
scope and coverage are limited to the project areas.
4.4.5 Disaster Response

In the aftermath of Typhoon Ketsana and the subsequent flooding, the National Emergency
Coordination Center with the National Committee for Disaster Management (NCDM)
assumed a more strategic coordination role than in past disasters. During the response
phase, the NCDM streamlined information regarding relief distribution and the need for
emergency relief, including food, clothing, medical supplies, and other emergency kits. The
emergency response and relief activities were undertaken by humanitarian organizations,
including national and international non-governmental organizations (NGOs) and the
Cambodian Red Cross.

The Damage and Loss Assessment (DaLA), however, suffered for lack of systemic protocols,
making it difficult to carry out and resulting in imprecise data. The communes reported their
damages to the provinces mainly in hard copy handwritten forms. These forms were later
sent as a hard copy or by fax first to the national-level line ministries and later from the
national line ministries to the NCDM. In the end, the damage figures varied substantially
between the line ministries and the NCDM.

Tracking relief distribution, either within the government or among NGOs, proved difficult
in the absence of a coherent tracking system. The NCDM is presently not in a position to
give a total figure on relief distributed by the government as each line ministry delivers its
own assistance through its department. All information must be shared with the NCDM. The
NCDM needs a database or a system for tracking assistance distributed by NGOs or other
development partners. While the NGOs have all been willing to share their figures


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individually, the Government needs a central repository for data, that enables it to track a
collective figure of external emergency relief assistance.

Search and rescue activities were undertaken in the provinces by the Royal Cambodian
Armed Force (RCAF), with the help of local authorities and the provincial armed forces like
the police, army, and military police. However, there is no effective system of command and
control that allows personnel from a variety of departments to work in a coordinated
response mechanism and provide logistical and administrative support to operational staff
by avoiding duplication of efforts. In addition, equipment for emergency response at the
sub-national level is extremely limited to inexistent. For example, local police officials in
Kratie reported having to borrow boats from private citizens to undertake search and
rescue operations. Similarly, the provincial capacity for immediate response and
coordination with humanitarian agencies is very weak due to a paucity of skilled human
resources and lack of a systematic inventory of available resources that can be mobilized
during major emergencies.
4.4.6 Mainstreaming and Financing Disaster Risk Reduction

Typhoon Ketsana highlighted the need to improve Cambodia’s disaster risk financing
system. Following the experience from major flooding in 2000, the Government reports that
it allocates budget for disaster response annually. However, none of the provinces visited
on the Provincial Damage and Needs Assessment (PDNA) could cite the exact amount
allocated. Officials from NCDM noted that funds for emergency relief are allocated to the
line ministries from the Office of the Council of Ministers and the line ministries following
the line ministries’ request. The line ministries then allocate the budget to provincial line
departments annually. It became evident during this assessment that the streams of
funding to the provinces for emergency relief could be neither traced nor ascertained.

At the sub-national level of government, the annual budget for disaster risk reduction
activities is virtually inexistent. Disaster Management Committees in the provinces, districts,
and communes depend on foreign-funded projects for disaster preparedness and disaster
responses.




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4.5 Priorities for Disaster Risk Reduction in Cambodia
4.5.1 Reducing Risk in the Recovery Process

Rather than simply reconstruct facilities and basic services, the recovery process provides a
physical opportunity as well as a basis for the collective motivation to introduce or expand
structural (physical) or non-structural risk reduction elements. Recovery must absolutely
include disaster risk reduction plans to avoid that the country runs the risk of re-creating
the very same conditions of vulnerability for returning villagers or the next generation.

Table 40: Illustrative Examples for Integrating Risk Reduction Into Cambodia ’s Recovery Process
                 Infrastructure Sector                                       Productive Sector
ï‚· Introducing DRR assessments for the construction        ï‚· Promoting diversified income opportunities and
      of new roads, bridges, and other major                     supplementary income generation in high-risk
      infrastructure.                                            areas.
ï‚·   Integration hazard awareness into land-use            ï‚·    Promote effective programs of crop
      planning.                                                  diversification, including the use of hazard-
ï‚·   Ensuring building codes integrate DRR and ensure             resistant crops.
      compliance and enforcement of building codes.       ï‚·    Integration of emergency, food security, poverty
ï‚·   Promote the increased use of hazard-resilient                alleviation, and rural development program.
      designs (e.g. flood proofing and seismic safety)
      in housing programs in hazard-prone areas.
                       Social Sector                                            Cross-Cutting
ï‚·     Promoting hazard-resilient construction for new ï‚· Strengthening capacities to protect ecosystems
      schools and hospitals.                              that can help reduce disaster risk.
ï‚·     Incorporating DRR into the school curriculum.   ï‚· Combating environmental degradation that
ï‚·     Implementing disaster preparedness plans in         enhances disaster risk (i.e., deforestation).
      schools and hospitals.                          ï‚· Reducing the vulnerability of female-headed
ï‚·     Public awareness campaigns that can change          households to disaster.
      individual behavior and encourage reducing
      household risk.
                                    Source: PDNA Team Elaboration (2009).

However, planning to integrate disaster risk reduction (DRR) into the recovery process is
essential but not sufficient by itself. Equal attention and resources need to be invested in
the long-term policy commitment and disaster risk management (DRM) systems in order to
affect real change.

Typhoon Ketsana highlights some of the fundamental problems that the Government faces
in its emergency responses and DRR systems and that it intends to address in a timely
manner. The key lesson learned from the recent floods clearly shows that a robust DRM
system is required: One connects the institutional and legal provisions to the communities,
draws on best practices learned from sub-national disaster risk management projects, and


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institutionalizes these practices into Cambodia’s DRM system. The following are key
priorities areas where focus will be given in the national program of risk reduction.
4.5.2 Priority Medium- and Long-Term Needs

Disaster Risk Reduction (DRR) implementation should be a national and local priority with a
strong institutional commitment and adequate budgeting, including: finalizing and receiving
endorsement of the existing national disaster management policy and legislation;
strengthening the national and sub-national disaster response and DRM coordination
mechanism—particularly in provinces affected by Typhoon Ketsana; conducting institutional
assessments of national and sub-national disaster management committees, their
effectiveness, resource allocation, and training needs; and, institutional capacity building of
the Committees for Disaster Management at the province, district, and commune levels.

Strengthen the national and sub-national capacity to implement disaster risk management
interventions, including: integrating DRM/DRR into national development policies and
planning in specific sector-ministries at the national and sub-national levels; developing and
implementing disaster-resilient sector adaptation plans based on the SNAP—particularly for
agriculture, water resources, health, and education.

Identify, assess, and monitor hazard risks and enhance early warning systems, including:
assessing the technical capacity of the Department of Hydrology and Meteorology at the
province level and thus generate information critical to improving the early warning
systems; establishing a disaster management information system at the national and sub-
national levels to compile data of hazard, vulnerability, and risk information based on
existing data; setting up and equipping database systems for maintaining, updating, and
sharing information; and, developing multi-hazard early warning systems at the national,
sub-national, and commune levels.

Use knowledge, innovation, and education to build a culture of safety and resilience,
including: establishing mechanisms to exchange information between national and sub-
national levels; promoting DRR education and training at the national, sub-national, and
commune levels; promoting gender and cultural sensitivity training as integral components
of DRR; and, instilling public awareness of DRR across all geographic regions.

Mainstream DRR into policies and programs of relevant government ministries, including:
incorporating DRR in the National Poverty Reduction Strategy and National Development
Plans based on the priority activities of the SNAP; integrating DRR into climate change
adaptation programs; promoting food security to enhance community resilience; promoting
appropriate structural and non-structural mitigation measures; incorporating DRR into land-
use planning and other technical measures; and, developing a funding mechanism to
address disaster risks at the national and sub-national levels.


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Strengthen disaster preparedness for effective response at all levels, including:
strengthening national and sub-national mechanisms and capacities for preparedness and
response, such as enhancement of coordination and communication systems; preparing and
periodically updating disaster preparedness and contingency planning; establishing
emergency funds; and, strengthening data management and collection in the emergency
response phase.




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                                               Table 41: Priorities for Disaster Risk Reduction in Cambodia
                                                                                                                          68
                                                                                                             Time Frame
                                                                                                                                                       Total Needs
                         Disaster Risk Reduction Components                              2009-2010      2009-                               2009-
                                                                                                                       2009-2012                          (USD)
                                                                                                        2011                                2013
     1   Prioritized DRR Implementation with a Strong Institutional Commitment at the National and Sub-national Levels
         Finalize and receive endorsement of the existing national disaster
 1.1
         management policy and legislation.
         Strengthen the national and sub-national disaster response and DRM
 1.2     coordination mechanism, especially in provinces affected by Typhoon
         Ketsana.
                                                                                                                                                         262,000
         Conduct institutional assessments of national and sub-national disaster
 1.3     management committees, their effectiveness, resource allocation, and
         training needs.
         Build the institutional capacity of the Committees for Disaster
 1.4
         Management at the provincial, district, and commune levels.
     2   Strengthen National and Sub-national Capacity to Implement Disaster Risk Management Interventions
         Integrate DRM/DRR into national development policies and planning in
 2.1
         specific sector-ministries at the national and sub-national levels.
         Develop, based on the SNAP, national sector adaptation plans, covering
 2.2     such key sectors as agriculture, education, health, transport, and water                                                                        690,000
         resources.
 2.3     Implement sector adaptation plans at the local level by each sector.
     3   Identify, Assess, and Monitor Hazard Risks and Enhance Early Warning
         Establish a disaster management information system at the national and                                                                                  69
 3.1                                                                                                                                                 6,022,000
         sub-national levels to compile data on hazard, vulnerability, and risk and to


68The time frame for the DRM priorities has been fixed based on the SNAP-DRR (2008–2013) implementation period.
69For activity 3.3, the estimated cost is USD 5 million. However, exact cost would be calculated based on the assessment of existing hydro-met stations and
services as per 3.2.



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      strengthen the system for maintaining, updating, and sharing information.
      Assess the technical capacity of the Department of Hydrology and
3.2   Meteorological at the provincial level and thus generate information
      critical to improving the early warning systems.
      Develop a comprehensive, multi-hazard early warning system at the
3.3
      national, sub-national, and commune levels.
4     Use Knowledge, Innovation and Education to Build a Culture of Safety and Resilience
      Establish mechanisms for information exchange between the national and
4.1
      sub-national levels.
      Promote DRR education and training at the national, sub-national, and
4.2
      community levels.
                                                                                                           478,000
      Promote gender and cultural sensitivity training as integral components of
4.3
      DRR.
      Promote public awareness of DRR at the national, sub-national, and
4.4
      community levels.
5     Mainstreaming Disaster Risk Reduction into Policies and Programs of Relevant Government Ministries
      Incorporate DRR into the National Poverty Reduction Strategy and National
5.1
      Development Plans based on the priority activities of the SNAP.
5.2   Integrate DRR into climate change adaptation programs.
5.3   Promote food security to enhance community resilience.
                                                                                                           763,000
5.4   Promote appropriate structural and non-structural mitigation measures.
5.5   Incorporate DRR into land-use planning and other technical measures.
      Develop a funding mechanism to address disaster risks at the national and
5.6
      sub-national levels.
6     Strengthen Disaster Preparedness for Effective Response at All Levels
      Strengthen national and sub-national mechanisms and capacities for
6.1   preparedness and response, such as enhancement of coordination and                                   722,000
      communication systems.




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      Prepare and periodically update disaster preparedness and contingency
6.2
      plans.
      Strengthen systemic protocols of the national recovery process, including a
6.3
      data system to keep track of emergency relief and recovery assistance.
6.4   Strengthen data management and collection of damage figures.
      TOTAL                                                                           8,937,000




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                          SECTION V:
          RECOVERY AND RECONSTRUCTION REQUIREMENTS


5.1 Guiding Principles for Recovery

In recent years, disasters have come to be studied as socio-environmental by nature and linked
with socially created risk. In this view of risk, a disaster event occurs from the confluence of
both a hazardous phenomenon, such as the Ketsana storms, and the vulnerable conditions of
the affected communities. Vulnerability is intimately related to social processes in hazard-prone
areas and is also usually related to the social fragility, environmental susceptibility, or lack of
economic resilience of the population.

But natural disasters also provide an opportunity to increase the awareness of the public and
policy-makers about a country’s exposure to disaster risks and explore strategies to reduce this
risk. A reconstruction and recovery program that fails to take into account a country’s initial
exposure to risk is sowing the seeds for future disasters. The fundamental objective is that risks
must be reduced in the recovery process to avoid repeating the disaster.

                           Table 42: Key Elements of Disaster Risk Management
         Disaster Risk Reduction and Transfer                      Disaster / Emergency Management
       Risk                 Risk               Risk       Preparedness         Emergency       Rehabilitation
  Identification         Reduction         Transfer                             Response       and Recovery
 Hazard                Physical /        Insurance /      Early warning        Humanitarian    Rehabilitation /
 Assessment            Structural        reinsurance of   and                  assistance      Reconstruction of
 (Frequency,           Mitigation        public           communications                       damaged
 magnitude and         Works             infrastructure   systems                              infrastructure
 location)                               & private assets
 Vulnerability         Land use          Financial        Contingency          Clean up,       Macroeconomic
 Assessment            planning and      market           planning             temporary       stabilization and
 (population &         building codes    instruments                           service         budget
 assets)                                 (CAT bonds,                           restoration,    management
                                         weather index
                                         hedge funds)
 Risk Assessment       Economic          Privatization of Emergency            Damage          Revitalization of
 (a function of        incentives for    utilities        responder            Assessment      affected sectors
 hazard &              pro-mitigation                     networks
 vulnerability)        behavior
 Hazard                Education,        Calamity funds   Shelter facilities   Mobilization of Incorporation of
 monitoring and        training and      (regional /      & evacuation         recovery        disaster risk
 forecasting (GIS,     awareness of      national or      plans                resources       reduction in
 mapping &             risks and         local reserve                         (public,        reconstruction
 scenario building) prevention           mechanisms)                           multinational,  activities
                                                                               insurance)
Source: Samoa: Post Disaster Needs Assessment, draft (November 2009).




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Table 42 outlines the key elements of comprehensive disaster risk management. Activities fall
broadly into two areas: long-term planning actions that aim to reduce communities’ overall risk
of disaster losses, and event-centric activities that seek to prepare for specific scenarios, and
respond, manage, and recover from emergencies as they arise. The Cambodia Recovery
Framework aims to respond to the rehabilitation and recovery needs of the affected
communities, but in tandem, lay down foundations for longer-term planning to reduce overall
losses and better address disaster risk management.

The following set of guiding principles should govern the implementation of Cambodia’s
recovery and reconstruction program to ensure that the same conditions that put the
population and assets at risk are not recreated. The purpose of these principles is to enhance
the effectiveness of recovery and reconstruction efforts, increase transparency and
accountability, and ensure that resources are translated into results on the ground. The
principles seek to guide a reconstruction program that will build back stronger and more
resilient communities and draw on lessons learned from recovery and reconstruction programs
in other countries.

   ï‚·   A Transparent, Accountable, and Results-Based Recovery and Reconstruction Program

       — The recovery program should have a straightforward system for monitoring
         activities, tracking funds, and evaluating projects and programs that will be
         implemented by all stakeholders, including the provision of regular and transparent
         reporting against all funding sources.

       — All agencies involved in the recovery, reconstruction, and rehabilitation program
         should undertake appropriate audits of their activities and funds and make the
         results publicly available at regular intervals.

   ï‚·   Community-Based, People-Centered, and Equitable Approaches

       — Community-based, participatory approaches that engage local communities in
         decision-making, implementation, and monitoring of activities should be adopted to
         increase the quality and speed of reconstruction, align projects with real needs, and
         lower the risk of misuse of funds.

       — Projects should maximize the use of local initiatives, resources, and capacities.
         Planning and execution should be based on local knowledge, skills, materials, and
         methods, taking into account the need for affordable solutions.

       — Although disasters increase the vulnerability of all, groups who are already
         disadvantaged may need special assistance and protection. Particular priority should
         be given to the poor, female-headed households, orphans, and people with
         disabilities.

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       — The capacity of local communities should be built at every stage of the relief and
         recovery effort, with a focus on reducing vulnerability to future disasters.

   ï‚·   Mitigating Future Risks

       — Risks need to be systematically incorporated into all aspects of Cambodia’s recovery
         program and all stakeholders must place a priority on future safety in the planning
         and implementation of the recovery process. Moreover, developing and
         strengthening institutions, mechanisms, and capacities to build resilience to hazards
         should be an inherent characteristic throughout all sectors involved in the recovery
         process.

5.2 Overview of Sector Requirements

The sector Damage, Loss, and Needs Assessment is presented in Table 43. The sector needs are
the result of the independent sector assessments that were summarized in Section III. They are
not constrained by resource availability and, therefore, reflect a comprehensive plan for
recovery in the sector as well as measures to ensure heighted resilience to future natural
disasters.

                 Table 43: Summary of Damage, Loss, and Needs Assessment (DLNA)




                                 Source: PDNA Team Elaboration (2009).




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5.3 Strategic Priorities

This Post Disaster Needs Assessment (PDNA) proposes Transport (roads), Agriculture, Water
Management and Irrigation, Industry and Commerce, Education, and Housing as priority areas
of focus in the recovery process.

The priority requirements listed below are the output of the sector teams’ participation in the
PDNA and while government and development partners played a key part in this mission, the
recommendations do not represent priorities formed in formalized, in-depth consultations with
donors and the government, nor do they take into account available funding. Rather, they
represent areas that merit particular attention and areas where the short-, medium-, and
longer-term interventions are deemed most critical.
5.3.1 Transport (USD 91 million)

A total of USD 90.7 million is needed for the recovery and rehabilitation of the damaged
physical infrastructure of the national, provincial, and rural road networks. Creation of specific
standards for road construction and maintenance in flood-prone zones should be developed
and implemented as a part of the recovery process.

Short Term (0-6 months): Road sections damaged by Typhoon Ketsana (7 urban, 7 national, 6
provincial, and 34 rural roads) require repair. The candidate roads were selected based on the
priorities of the ministries and represent roads essential for normal economic activity.

Medium Term (2 years): The remaining flood-damaged roads should be synthetically upgraded
by elevating the roads 0.5meters to a crushed stone base course and adding additional
drainage structures every 300meters in flood-prone areas.

Long Term (5 years):To reduce the potential for future damage, laying down a crushed stone
base will allow posterior application of Asphalt Concrete (for urban, national, and provincial
roads) and Double Bitumen Surface Treatment (for rural roads), in alignment with the
government policy for the next 5–10 years. Longer-term planning should also consider applying
a slope of 1:3 rather than the current standard slope of 1:2 to increase stability and resilience to
damage.

Potential Financial Instruments: Designate USD 20 million of the government budget for annual
road maintenance (which will increase to USD 40 million per year in the long term); USD 15
million was allocated by the People’s Republic of China; USD 3.5 million by ADB from existing
projects to support the recovery of the national road N. 56 and urban roads in Siem Reap
Province; and other donors such as the World Bank Recovery Project. The cost of the overall
transport sector recovery in the short, medium, and long term is summarized below.



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             Table 44: Transport Sector Recovery in the Short, Medium, and Long Term (USD)
 Type of Road         Short Term        Medium Term      Long Term        Total per Road Type

Urban                    563,797.85        346,912.25                0               910,710.10
National                 621,679.61        163,943.46       15,496,500            16,282,123.07
Provincial               135,728.69       1,071,290.06      13,366,750            14,573,768.74
Rural                   3,803,000.00      7,682,480.00      47,497,261            58,982,741.00
Total                  5,124,206.15      9,264,625.76      76,360,511             90,749,342.91
Source: PDNA Team Elaboration (2009).

5.3.2 Agriculture, Livestock, and Fisheries (USD50-70 million)

A total of USD 50-70 million is needed for the recovery and rehabilitation of the Agriculture,
Livestock, and Fisheries Sector, including increasing the food security in the affected areas. The
following activities have been deemed priority recovery needs in this sector:

Short Term (0-6 months): Increase the volume of emergency food aid sent to the most critically
affected provinces to avoid transitory food insecurity and arrest food price rises; enhance the
seed supply for the subsequent dry season (e. g., rice, maize, cassava, sweet potato, vegetables,
mung bean, groundnut, soybean, and sesame); supply fertilizers, tools, livestock, and fishery
resources to the most affected farmers and fishermen; and establish large-scale cash-for-work,
food-for-work, and local employment generation schemes.

Medium Term (2 years): Continue short-term assistance schemes (e.g., seed, fertilizer, tools,
capital, and capacity building) to strengthen the recovery process; develop policy options to
increase the Green Trade buffer of 7,000 tons of rice-equivalent reserves and replenish the
emergency stock; enhance agriculture and livestock production and small agri-business/rural
entrepreneurships through the provision of seed, tools, micro-credit, livelihood relief funds,
extensions, and other means; focus on gender-sensitive alternative employment generation to
compensate loss of livelihoods in the immediate post disaster period.

Long Term (5 years): Strengthen the national capacity for emergency response to food crises
(focusing on the institutional capacity of agencies such as NCDM, MAFF, and MoWRAM); build
capacity at the household level (e.g., focusing on small holders and creating storage facilities,
seed banks, and grain banks); integrate emergency, food security, poverty alleviation, and rural
development programs; promote crop insurance as a risk-transfer mechanism; strengthen the
link between agriculture and industry and commerce to reduce risks and to increase incomes
and production; support the commercialization of agriculture, livestock, and fishery products;
and create resilient agricultural fisheries and livestock assets ensuring community participation.

Potential Financial Instruments: Prioritization/re-appropriation of emergency lending and food
aid programs of bilateral and multilateral donors; retroactive financing of government

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emergency agricultural relief; agriculture risk reduction initiatives of traditional development
partners, international NGOs, etc.; and budgetary support from the Royal Government of
Cambodia.

 Table 45: Agriculture, Livestock & Fisheries Recovery Cost in Short, Medium, a nd Long Term (USD)
                      Short Term          Medium Term            Long Term              Total

  All Priorities     5–10 million         10–20 million         35– 45 Million      50– 75 million
Source: PDNA Team Elaboration (2009).

5.3.3 Water Management and Irrigation (USD 8 million)

Actions for Water Management and Irrigation recovery will focus on the following activities:

Short Term (0-6 months): Repair the most severely damaged irrigation schemes to protect the
urban and rural residents, and ensure that farmers can continue to access water for agricultural
cultivation.

Medium Term (2 years): Rehabilitate and upgrade affected irrigation schemes and strengthen
the reservoir/storage area capacity. The development of a water management strategy that
reduces flood and drought risks should also be considered a medium-term priority.

Long Term (5 years): Retrofit all existing networks, distribution systems, and drainage systems
to a minimum standard in order to reduce future damages by a disaster; and design all of the
new irrigation systems with disaster-resilient standards. Moreover, the staff of Provincial
Departments of Water Resources and Meteorology should be trained to increase their capacity
to respond to and prepare for natural disasters—in particular the newly established.

Potential Financial Instruments: Funds from MoWRAM Strategic Development Plan 2010–2012
and support from the ADB project for rehabilitation of the existing irrigation infrastructure.

 Table 46: Water Management & Irrigation Recovery Cost in Short, Medium, and Long Term (USD)
           Sector            Short Term        Medium Term          Long Term            Total
Water Management                          -         1,100,000           1,500,000         2,600,000
Irrigation                        1,690,000         1,692,000           1,500,000         4,882,000
Capacity Building                         -                 -             500,000           500,000
Total                             1,690,000         2,792,000           3,500,000         7,982,000
Source: PDNA Team Elaboration (2009).

5.3.4 Industry and Commerce (USD 10 million)

In order to rehabilitate and reconstruct the industrial and commercial sectors damaged in
Typhoon Ketsana, the following priorities are outlined:



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Short Term (0-6 months): Repair the most damaged and replace the destroyed machinery and
equipment, primarily for agro- and micro-enterprises, so that the production can be restored to
the level prior to the disaster.
Medium Term (2 years): Upgrade inefficient machinery and equipment to increase production,
reduce costs, strengthen resilience to future disasters, and reduce future capital damage. A
capital improvement program for agro-, micro-, and small enterprises should also be created
through the provision of loans to micro-finance institutions so that agro, micro, and small
enterprise owners can borrow at subsidized rates to upgrade their machinery and equipment.
Long Term (5 years): Improve the industrial and commercial regulatory framework to integrate
DRM into the national planning of Industry and Commerce; train officials from relevant
ministries on post disaster data collection for Industry and Commerce; raise the awareness and
general knowledge of local business owners and employees (focusing first on the province level,
and progressively down to district level) about natural disasters.

Potential Financial Instruments: Government budget, the private sector, and international
development partners like the World Bank or the Asian Development Bank.

       Table 47: Industry and Commerce Recovery Cost in the Short, Medium, and Long Term (USD)
                         Priority                      Short     Medium        Long        Total
                                                       Term       Term         Term
1     Urgent Reparation and Replacement of Damaged     960,000            -           -    960,000
      Machinery and Equipment
2     Upgrade Machinery and Equipment to Make It             -   2,000,000    5,000,000   7,000,000
      More Resilient against Future Damages
3     Regulatory Framework and Capacity Building             -    500,000      700,000    1,200,000

4     Raise Awareness of Entrepreneurs                       -    300,000      500,000     800,000
                        Total                          960,000   2,800,000    6,200,000   9,960,000
Source: PDNA Team Elaboration (2009).

5.3.5 Education (USD 2 million)

The recovery program for Education will be concentrated on the short term and targeted to the
education facilities that are still having difficulties repairing damage to buildings. The
Department of Construction detailed engineering reports can provide the basis for prioritization
by examining, on a case-by-case basis, together with the photographic evidence, school
enrollment records and total number of classrooms to determine short-, medium-, and long-
term priorities. It should be noted however that on a more mid and long term basis there is the
need to rebuild and repair the schools that are vulnerable at a national level, and is
recommended that the Ministry of Education include this priority in its school rehabilitation
program.



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Potential Financial Instruments: RGC annual budget (the full needs would be beyond MoEYS
resources), reallocation of existing Asian Development Bank- or World Bank-financed programs,
and international NGOs.

                   Table 48: Overall Education Recovery Cost in the Short Term (USD)
                                 Priority                                        Short Term
New Constructions to Replace Buildings Too Badly Damaged to Repair                      1,500,000

Repair Buildings Unsuitable For Teaching                                                200,000
Furniture, Equipment, and Materials                                                     200,000
MoEYS Maintenance Program for Schools                                                      0
                                  Total                                                 1,900,000
Source: PDNA Team Elaboration (2009).

5.3.6 Housing (USD 14 million)

The following strategic considerations have to be taken into account to achieve a sustainable
recovery plan:

Short Term (0-6 months): Repair damaged houses and provide temporary shelter to families
that are still homeless.

Medium Term (2 years): Rebuild the core structures of fully destroyed private houses and
structures; review design standards for private houses; and increase community awareness on
disaster-resilient building standards.

Potential Financial Instruments: Government budget, international development partners such
as the World Bank and the Asian Development Bank.

        Table 49: Housing and Shelter Recovery Cost in the Short, Medium, and Long Term (USD)
                      Priority                          Short Term       Medium Term           Total
Repair Damaged Houses                                      11,980,000               -          11,980,000

Temporary Shelter and Basic Support                          109,000                -             109,000
Reconstruction of Completely Destroyed Houses                        -      1,237,800           1,237,800
Design Standard Review/Compliance                                    -        350,000             350,000
Community Awareness on Disaster Resilient Housing                    -        500,000             500,000
Total                                                     12,089,000        2,087,000          14,176,800
                                      Source: PDNA Team Elaboration (2009).




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5.4 Additional Sector Recovery Needs

The following needs are not ranked by priority but are grouped by sector: These sectors are
equally important and disaster resilience should be considered in any recovery or sector
improvement plans. More details about sector needs are presented in Section II of this Report.
5.4.1 Infrastructure Sector

Water Supply and Sanitation (WSS), USD 4,750,000: In the short term, restore access to the
most critical WSS facilities (cleaning contaminated wells). In the medium and long term,
rehabilitate rural and urban WSS structures damaged in the storm; and design new latrines in
flood-prone areas to reduce the risk of fecal contamination in floodwater.

Energy, USD 3,000,000: In the short term, design an energy sector Post Disaster Action Plan that
includes emergency procedures and post disaster recovery actions. In the medium and long
term, upgrade “weak� grids following national standards (i.e., stronger poles, lines of larger
section, appropriate earthing, and insulation); develop Rural Energy Enterprises (REEs) technical
standards and provide DRM training; build institutional capacity of the Ministry of Industry,
Mines, and Energy (MIME), Electricity Authority of Cambodia (EAC), and Electricité du
Cambodge (EDC) as part of the energy sector Post Disaster Action Plan through workshops,
disaster drills—both at the national and province levels—in coordination with the NCDM;
introduce new regulations that integrate specific mandates of sector agencies into one single
National Protocol for Disaster Response; develop communication campaigns at the village level
to inform residents of the vulnerabilities of their electrical facilities appropriate ways of using
electricity, and instructions and actions to take in case of a disaster.
5.4.2 Social Sectors

Health, $3,127,390: in the short term, improve provision of health care services; investigate
reported disease outbreak and provide appropriate treatment; provision of medical equipment
and supplies; and restore priority public health and care services to the pre-disaster situation.
In the midterm, replace and upgrade health facilities to improve quality of health service
delivery beyond the pre-disaster situation; develop a data management system for the Health
Disaster Management Committee (HDMC) and comprehensive standard reporting format;
further strengthen communicable disease surveillance systems for the prevention and control
of disease outbreaks; develop community education and awareness raising programs; and
establish guidelines and funding mechanism for rapid response following disasters. Long term
priorities include: replace and/or upgrade health centers and posts in flood prone areas;
establish an early warning and alert system of impending disasters; develop a regulatory
framework and adequate policies to streamline DRM into Public Health Management and
health infrastructure development. Proposed Partnerships and Financial Mechanisms include



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technical assistance from the WHO, government resources and resources from other
development partners.
5.4.3 Cross-Cutting Sectors

Environment, USD 5,217,000: In the short term, address the immediate recovery and potential
food emergencies in Bang Per Wildlife Sanctuary and Tonle Sap Biosphere communities and
undergo an economic valuation of the environment. In the medium and long term, increase
forest and protected areas management, introduce DRM and a Climate Change (CC) Adaptation
capacity development program for provincial Departments of Environment (DoE); establish
waste management competence and an information center to ensure resilience against future
disasters; improve the regulatory framework on DRM and CC Adaptation; introduce emergency
response systems for provincial DoEs. Proposed Financial Mechanisms for Urban Waste
Management include: the European Commission (EC), which is active in Siem Reap through the
INTEGRITAS project; relevant UN agencies such as the WHO and UNEP; the private sector,
through the establishment of public-private partnerships; and the WB/ADB for the
development of a Solid Waste Management-Clean Development Mechanism (CDM) that will
strengthen the financial feasibility of upgrading the systems and foster investment
opportunities. Proposed Financial Mechanisms for Forest and Protected Area Management
include: the ADB, WWF, UNEP, and WB/WBI for environmental valuation; REDD/CDM for
forestry funding schemes; agencies and CSOs (e.g., the WB, UN-REDD, and WWF) for CBA and
protected area management implementation; and new generation Adaptation funds, GFDRR
funds, and the Rockefeller Foundation for funding DRM and CC Adaptation capacity building
programs, with the WB, ISDR, and ADPC as implementing partners.

Public Administration, USD178,685: In the short term, repair damaged buildings, room beams,
fences; cut and remove fallen trees for the district offices and police offices; provide funds to
rent temporary premises while repairs are undertaken; replace and photocopy administrative
and civil registration records that were damaged; and repair or replace damaged furniture. In
the medium and long term, retrofit public administrative buildings in high-risk areas, relocate
vulnerable offices whenever possible; and ensure vulnerability to natural hazards is taken into
account in the placement and construction of new public buildings.




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Cambodia PDNA                                SECTION V : RECOVERY AND RECONSTRUCTION REQUIREMENTS




5.5 Tentative Donor Commitment by Sector

                Table 50: Summary of Recovery Framework and Tentative Donor Commitment

                                                         Summary of Recovery Framework
                                                                     Planned Development               Recovery Needs, US$
                     Priority Sector and Subsectors
                                                                      Partner Commitment Short Term Medium Term Long Term                     Total
Infrastructure
Transport                                                             RGC, P.R. China, ADB, WB     5,124,206      9,264,626    76,360,511   90,749,343
Urban Roads                                                                                         563,798        346,912              -      910,710
National Roads                                                                                      621,680        163,943     15,496,500   16,282,123
Provincial Roads                                                                                    135,729      1,071,290     13,366,750   14,573,769
Rural Roads                                                           WB                           3,803,000      7,682,480    47,497,261   58,982,741
Water Management and Irrigation                                       MOWRAM, ADB, WB              1,690,000      2,792,000     3,500,000    7,982,000
Water Management                                                                                           -     1,100,000      1,500,000    2,600,000
Irrigation                                                            ADB                         1,690,000      1,692,000      1,500,000    4,882,000
Capacity Building                                                                                           -              -      500,000      500,000
Social Sectors
Housing and Shelter                                                   RGC, ADB, WB                12,089,000      2,087,800            -    14,176,800
Repair damaged houses                                                 WB                         11,980,000                -           -    11,980,000
Temporary shelter and basic support                                                                 109,000                -           -       109,000
Reconstruction of completely destroyed houses                         WB                                    -    1,237,800             -     1,237,800
Design standard review/compliance                                                                           -       350,000            -       350,000
Education                                                             RGC, ADB, WB, INGOs         1,900,000                            -     1,900,000
Replace buildings that are too badly damaged to repair                WB                          1,500,000               -            -    1,500,000
Repair of buildings which are unsuitable for teaching                                               200,000               -            -      200,000
Furniture, Equipment and Education materials                                                        200,000               -            -      200,000
MoEYS Maintenance program for Schools                                                                    TBD            TBD          TBD              -
Productive Sectors
Agriculture, Livestock and Fisheries                                  RGC, DPs, INGOs            5-10 million 10-20 million 35-45 million 50-75 million
Priority 1: Food, fertilizer, seeds                                                                     TBD            TBD          TBD           TBD
Priority 2: Cash for work, seeds, replenish emergency stock                                             TBD            TBD          TBD           TBD
Priority 3: Capacity building and policy support                                                        TBD            TBD          TBD           TBD
Industry & Commerce                                                   RGC, Private Sector, WB        960,000      2,800,000    6,200,000     9,960,000
Reparation and replacement of damaged machinery and equipment         WB                            960,000              -              -      960,000
Upgrade machinery and equipment to make it disaster-resilient                                               -    2,000,000     5,000,000     7,000,000
Regulatory framework                                                                                      -        500,000       700,000     1,200,000
Small industru and agirbusiness recovery                              WB
Raise awareness of entrepreneurs                                                                            -      300,000       500,000       800,000
Disaster Management                                                                                                                          8,937,000

                                                Source: PDNA Team Elaboration (2009)




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