Professional Documents
Culture Documents
12061
Efficient and effective disaster management will prevent many hazardous events from becoming
disasters. This paper constitutes the most comprehensive document on the natural disaster management framework of Cameroon. It reviews critically disaster management in Cameroon, examining the various legislative, institutional, and administrative frameworks that help to facilitate
the process. Furthermore, it illuminates the vital role that disaster managers at the national,
regional, and local level play to ease the process. Using empirical data, the study analyses the
efficiency and effectiveness of the actions of disaster managers. Its findings reveal inadequate disaster management policies, poor coordination between disaster management institutions at the
national level, the lack of trained disaster managers, a skewed disaster management system,
and a top-down hierarchical structure within Cameroons disaster management framework. By
scrutinising the disaster management framework of the country, policy recommendations based
on the research findings are made on the institutional and administrative frameworks.
Keywords: civil protection, disaster management, disaster management framework,
disaster risk management, hazard mitigation, risk assessment
Introduction
Cameroon is situated in Sub-Saharan Africa. This region of Africa is most vulnerable
to disasters because of the economic, environmental, physical, and social factors
that negatively affect the capacity of people to secure and protect their livelihoods
(Bhavnani et al., 2008). Although it may not be feasible to stop hazardous events from
occurring, efficient and effective disaster management will prevent many of them
from becoming disasters. Disaster management usually involves prediction, warning,
emergency relief, rehabilitation, and reconstruction. The main approach of disaster
risk reduction (DRR) is proactive engagement in all phases of the disaster cycle
(mitigation, preparedness, response, recovery, as well as prevention). The objective
is to improve the safety, security, and economic stability of a country, region, city,
community, and/or society that is vulnerable to disaster risks. Since disasters constitute impediments to the United Nations Millennium Development Goals (UNDP,
2004), development practices that inculcate risk management have been incorporated
in the disaster management cycle of DRR. Disaster risk management measures are
designed to protect livelihoods and the assets of communities through the process of
planning and the implementation of measures aimed at preventing/reducing the risk
of disasters, mitigating the severity/consequences of disasters, and achieving emergency preparedness and a rapid and effective response to disaster and post-disaster
Disasters, 2014, 38(3): 562586. 2014 The Author(s). Disasters Overseas Development Institute, 2014
Published by John Wiley & Sons Ltd, 9600 Garsington Road, Oxford, OX4 2DQ, UK and 350 Main Street, Malden, MA 02148, USA
recovery and rehabilitation (Pelling, 2003; UNDP, 2004). The United Nations
International Strategy for Disaster Risk Reduction (UNISDR, 2005) recognises that
effective disaster management is a key element of good governance and governments
have been urged to make disaster mitigation a key element of their governance
programmes. Although there have been rapid advances in DRR and disaster management nationally and globally, empirical evidence points to several instances of
dysfunctional disaster management institutions at the global, regional, national, state,
and local level (Gopalakrishnan and Okada, 2007).
Each national government has primary responsibility for taking effective measures to reduce disaster risk in order to protect its population, infrastructure, and
other assets from the impacts of natural hazards and disasters (UNCED, 1992:
UNESCO, 1994; WCDR, 2005). Institutional capacity-building that involves a decentralised emergency management system, community participation, a legislative framework, training, education, knowledge-sharing, and international cooperation is
necessary to ensure a systematic, structured, and balanced approach to risk reduction
(World Bank, 2007). Many countries have a disaster management framework that is
enshrined in government policy, yet a wide gap still exists between theory, principles
embodied in disaster management, and implementation of disaster management
policies. Frequently this has led to governments being more reactive than proactive.
To meet the national and international challenges of disaster management, concerted action through bilateral, regional, and international cooperation and partnerships is needed. International organisations have been urged to mobilise adequate
resources, including financial, human, and technological means, to assist nations in
the field of disaster reduction. A particular focus of this initiative is to help those developing nations that are most vulnerable to the impacts of related hazards (UNESCO,
1994; WCDR, 2005).
Cameroon has reinvigorated its efforts to address growing disaster risks in a proactive way, including the development of strategies and mechanisms to reduce the
potential consequences of disasters prior to the event. In view of Cameroons high
exposure to natural hazards and disasters, the government has assumed primary
responsibility for creating and directing all of the various state institutions and administrative bodies involved in disaster management. The government also has established pragmatic partnerships with regional and global organisations that can assist
with DRR while providing overall development support. As will be shown later in
the paper, despite these measures, the country has failed to achieve reasonable success in disaster management.
The disaster management process generally pursues a top-down hierarchical approach
to the administration and implementation of activities, with more emphasis on disaster response than on risk prevention and mitigation. Although government policy
on civil protection in the country recognises other state and non-state actors, their
role in disaster management is not very clear. Empirical data, obtained from disaster
managers through fieldwork conducted over six months in Cameroon in 2007, reveal
lacunae in understanding, applying, and implementing policies, with potentially dire
563
564
ramifications for the management of hazardous events. A review of disaster management institutions in Cameroon exposes significant flaws in their structure and
in their ability to contribute effectively to the implementation of DRR. By evaluating the various legislative, institutional, and administrative frameworks, this study
presents the case for a thorough overhaul of Cameroons institutional and administrative components of disaster management.
The disaster management framework assessed here includes the following themes:
civil protection in Cameroon;
565
566
of government funds for risk mitigation. The integration of early warning into emergency management planning is very limited. The legislation needs to be updated to
identify and isolate clearly the burgeoning risks posed by natural hazards and their
potentially devastating consequences.
Since 2005, the Government of Cameroon has adopted a multi-agency and multidisciplinary approach via DRR policies, practices, and programmes that target natural, technological, and human-induced hazards. According to the general national
strategy on the prevention of risks and disaster management in Cameroon:
Before a hazard or disaster, put in place a National Risk Observatoryorganise
and establish a contingency plan designed to obtain, analyse, and disperse information on the major risks in an effort to protect populations and minimise any impacts
on life and property.
During a crisis, develop an emergency intervention planaimed at helping affected
populations and to monitor the disaster and assist victims.
Box 2. Legislation on disaster risk management in Cameroon
Law No. 67-LF-9 of 12 June 1967 concerning the general organisation of civil defence in the country.
Presidential Decree No. 68-DF-7 of 15 January 1968 concerning the safeguard and protection of civil installations
of vital importance in the country.
Presidential Instruction No. 02/CAB/PRC of 18 January 1968 emphasising the safeguard and protection of important civilian infrastructure in the country.
Presidential Instruction No. 16/CAB/PRC of 1 September 1972 concerning the organisation of rescue efforts in
the country.
Decree No. 74/199 of 14 March 1974 concerning operations focused on the exhumation and transfer of corpses.
Law No. 86/016 of 6 December 1986 concerning the general reorganisation of civil protection in the country.
Presidential Instruction No. 005/CAB/PR of 24 August 1987 concerning the monitoring of the nations security.
Decree No. 96/054 of 12 March 1996 concerning the composition and the duties of the National Council for Civil
Protection.
Decree No. 98/031 of 9 March 1998 concerning the organisation of emergency and relief plans.
Decree No. 98/147 of 17 July 1998 concerning the organisation of MTAD.
Decree No. 2002/018 of 18 January 2002 ratifying the Framework Convention for Emergency Aid in Civil Defence
adopted at the Geneva Convention on 22 May 2000.
Prime Ministerial Decision No. 037/PM of 19 March 2003 creating a National Risk Observatory with a principal
role in identifying high risk regions in the country and in introducing necessary measures on disaster prevention
and mitigation in these areas.
Decree No. 2004/009 of 24 April 2004 concerning the reorganisation of MTAD.
Decree No. 2004/320 of 8 December 2004 making civil protection one of the three main functions of MTAD.
Presidential Decree No. 2005/124 of 15 march 2005 establishing an emergency telecommunications service for
disaster prevention and mitigation.
Order No. 037/PM of 19 March 2003 on the creation and functioning of the National Risk Observatory.
Decree No. 2005/104 of 13 April 2005 concerning the organisation of MTAD.
Decree No. 2005/327 of 6 September 2005 on the management of civil aviation security crises in the country.
Source: author. Based on a range of sources, including MTAD/DCP (2005, 2007, 2009), as well as numerous internet websites and civil
protection documents.
After a disaster, inform the affected population and public about the risky zones
and . . . produce a map of the various risksto guide against subsequent dangers
and reinforce the preventive action of citizens. Rehabilitation measures are also put
into action.
The strategy also recommends creating a national humanitarian fund for critical
intervention following a disaster. Furthermore, the Government of Cameroon and
UNDP aim to introduce an urgent operational plan and to organise a sub-regional
conference on disaster management and prevention within the central African subregion.
The Government of Cameroon is also taking steps to sensitise, inform, and educate
the population vis--vis basic regulations concerning civil protection. It acknowledges difficulties in engaging in these activities owing to a shortage of financial
resources, the lack of a culture of prevention among the populace, and insufficient
interest in civil protection in the private sector (MTAD/DCP, 2005).
The limited influence that natural hazards seem to exert on the shaping of policies
and development decisions is a major constraint on achieving sustainable development.
Cameroons Poverty Reduction Strategy Paper recognises the role of hazards and
related vulnerabilities in determining the nature and pace of socioeconomic development (Government of Cameroon, 2003). Left unchecked, Cameroon will witness
increases in socioeconomic losses associated with natural hazardsas the number of
people in hazard risk zones searching for agrarian livelihoods continues to grow.
The findings of this research could help to inform plans to perform a legislative
review during the design of a new natural hazard mitigation policy. Such a policy
could provide the regulatory structure needed to link all existing policies and programmes relevant to vulnerability reduction and development planning.
Ministries
Table 1 outlines the ministries involved in civil protection.
The functions of the national/regional ministries and organs that play a supportive
role are not very explicit. At the national level, there is no evidence of strong horizontal
567
568
Ministry of Communications
Ministry of Defence
Ministry of Tourism
Ministry of Transport
Source: author. Produced from a range of documentary sources, including Bhavnani et al. (2008) and
MTAD/DCP (2009), as well as http://www.cameroon50.cm/en/documents/publications.html and http://
www.onr.cm.
integration and collaboration between ministries. The specific role of ministries prevents them from developing their own disaster management frameworks, and limits
the latitude of disaster managers to initiate strategies that may facilitate their work,
as well as their interaction with other stakeholders nationally and internationally.
Box 4. Key local, national, and international organs and bodies that cooperate
with the DCP
National Disaster Prevention and Management Programme (NDPMP)
National Fire Service (NFS)
Emergency Medical Services (EMS)
National Institute of Geological and Mining Research (NIGMR)
National Institute of Cartography (NIC)
Cameroon Red Cross (CRC)
Local representative of the United Nations Development Programme (UNDP)
Local representative of the International Federation of Red Cross and Red Crescent Societies (IFRC)
Local representative of the United Nations High Commissioner for Refugees (UNHCR)
Local representative of the World Health Organization (WHO)
Local representative of the United Nations Educational, Cultural and Scientific Organisation (UNESCO)
Local representative of the United Nations Childrens Fund (UNICEF)
Local representative of the International Committee of the Red Cross (ICRC)
AZOMARC FOUNDATION and other national and local NGOs recognised by MTAD.
National Civil Defence Council (NCDC)exists on paper but not operational
National Risks Observatory (NRO)only a mechanism
Source: author. Produced from a range of sources, including MTAD/DCP (2005, 2007), Nana (2005), MTAD/DCP and UNDP (2006), and
http//www.onr.cm.
569
570
Local government
Local councils and municipalities have responsibility for improving the living conditions of the people in their locality. Although councils are important players in
disaster management in local areas, government legislation does not mention their
specific role in performing this function. Councils are the smallest local authorities in
the divisions and sub-divisions of the country and are divided into city councils2 and
divisional councils. While government delegates (appointed by the central administration) and elected mayors head city councils, only mayors control the divisional
councils. The main missions of the councils, as specified in law,3 include enhancement of the living conditions of inhabitants and promoting local development. In
performing these tasks they have the right to request assistance from the population, civil society organisations, other local and regional authorities, the state, and
international partners. They can also participate in the upkeep and management, where
necessary, of social advancement and reintegration centres and in organising and
coordinating relief operations for needy persons. Many councils, though, are constrained by the disaster management power structure and limited resources. For
example, Wum Divisional Council, in Northwest Region, has confronted serious
challenges with respect to the survivors of the Lake Nyos disaster of 1986 who were
resettled in camps in its jurisdiction.
Non-governmental organisations
National and local NGOs and humanitarian organisations complement government
action in vulnerable communities, although their role is not made explicit in government policy.
Local NGOs
Local NGOs4 are also important players in disaster management in Cameroon.
Organisations such as the Movement for Democracy, Development, and Transparency,
the Research and Development Association, and the Global Centre for Compliance,
Hazard, and Disaster Management are engaged in lobbying, advocacy, and disaster
mitigation actions. Tadzong Esther Mofor, the founder of the latter body, was made
the 2003 United Nations (UN) Sasakawa Laureate for disaster reduction. Apart from
providing support to victims of technological accidents in the country, including
the Nsam petroleum fire disaster in Yaound, Mofors NGO offered disaster reduction services and support to local communities in Cameroons Northwest Region.
Other disaster management stakeholders
Civil society actorscommunity-based organisations, the private sector, the scientific community, and volunteers, for instanceare vital stakeholders in supporting the
implementation of DRR at all levels (WCDR, 2005). Government policy requires
citizens, including mayors, parliamentarians, traditional chiefs, and civil society leaders, to support civil protection action in all its dimensions (MTAD/DCP, 2005). It is
unclear, though, on how responsibility for disaster management is shared, and the
level and/or degree of linkages and interaction between the different agencies.
Research community
Academics, researchers, and scientists also have a great impact on disaster management in Cameroon. Academics work primarily in the universities, but some serve as
advisers on disaster management issues to a number of directors and ministers. The
571
572
National Institute of Geological and Mining Research is the leading voice on natural
hazards in Cameroon. Its scientists are involved in technical research on contemporary risks and natural hazards all over the national territory. Some researchers are
members of the international scientific teams monitoring the degassing of Lake Nyos
and Lake Monoum (Kling et al., 2006). Their advice to senior government officials
has had an important bearing on the overall technical disaster management approach
to the Lake Nyos disaster (Bang, 2008, 2009).
Numerous articles and books have been published on disaster research in Cameroon.5
The majority of these publications are on the technical/scientific aspects of natural
hazards/disasters. While considerable scientific academic work has been done on
natural hazards/disasters, social and anthropological research still lags behind: scant
information is available on these aspects in relation to natural hazards in Cameroon.
Social groups
Many civil society groupings have been formed by members of local communities
that have been affected by disasters. In Northwest Region, the Mr. Bamenda Organisation and the Buabua-Kimbi Lake Nyos Survivors Cultural and Development Association were set up in 2003 to highlight the plight of the Lake Nyos disaster victims.
From MarchAugust 2007, these social groups, together with local NGOs such as
the Movement for Democracy, Development, and Transparency and the Research
and Development Association, embarked on a crusade to collect 5,000 signatures in
order to petition the government on neglect of Lake Nyos disaster survivors. They also
took an unprecedented step in lobbying parliamentarians to reject the 2008 budget
if some funds were not allocated for investment in the Lake Nyos disaster resettlement camps.
Global experience of hazard-prone areas underscores the fact that community-based
organisations are major actors in DRR. Their efforts have improved development
outcomes and increased the capacities of high-risk communities to cope with disasters (UNISDR, 2007).
government in managing and preventing catastrophes. Principal achievements, according to UNDP (2003), included: successful training activities; greater awareness of
and sensitisation in disaster reduction; emergency relief for the victims of floods and
volcanoes; and the elaboration of a UN inter-agency contingency plan. A key activity
in 200307 was the organisation and coordination of a response to emergency situations, as indicated in the contingency plan prepared by United Nations Office for the
Coordination of Humanitarian Affairs (UNOCHA) experts. This included a preventive approach that was oriented towards the reinforcement of national capacities
for the prevention of disasters and its integration into development processes. The
plan also called for the implementation of a sub-regional catastrophe and crisis management initiative to identify the means of creating a cooperation mechanism for
Central African countries, with the support of UNDP and other UN agencies and
development partners (UNDP, 2003).
UNDP, through its local office in Yaound, liaises regularly with relevant government departments to organise workshops and seminars on DRR in Cameroon.
It convened a series of workshops that laid the foundation for the establishment of a
National Risk Observatory for DRR in 2003. In September 2005, a United Nations
Environment Programme (UNEP)UNOCHA team, together with local Cameroon
scientists, visited Lake Nyos to assess the natural dam and the potential flood hazard
at the lake (Kling et al., 2006). UNDP is a principal player in disaster management
in Cameroon, assuming a central role alongside the government and other international development agencies.
Bilateral cooperation
The Government of Cameroon also engages in international cooperation with other
countries, which involves the sharing of experiences and the provision of resource
assistance for risk reduction and disaster management. Substantial financial, material,
and technical support was received from the international community during the
Lake Nyos disaster of 1986; several countries continue to supply external support for
ongoing post-disaster technical mitigation activities in the area. France, Japan, and
the United States have given financial support for the Nyos and Monoum Degassing
Project.6 Belgium, France, Germany, and Japan have given technical support for this
573
574
project, involving the provision of human resources and scientific materials (Kling
et al., 2006).
National policy elaborates on Cameroons relationship with France in the sphere
of civil protection. The Government of France, via its Cooperation and Cultural
Action Department at the French Embassy, signed a convention with the Government of Cameroon in 2006 on the provision of material assistance for civil protection.
The main objectives centre on reinforcing civil protection, enhancing prevention of
natural hazards, and facilitating management of crises or disasters (MTAD/DCP,
2005, 2007).
Source: author.
The legal framework is explicit about the power structures pertaining to disaster
management policy at the highest level. The president of the republic has the right to
make disaster management policy. In theory, the National Council for Civil Protection also can define policies intended for endorsement by the president, mostly
via a presidential decree. The MTAD, through the DCP, is responsible for implementing policies in the 10 regions of the country, via the regional governors, the
administrative heads of the regions. Next in line are the administrators of the divisions
and the sub-divisions within the regions. At the lowest level are the government
delegates and the mayors of councils within the divisions. This structure shows that
disaster management interventions remain extremely top-down: key decisions or
policies are taken at the higher levels and enforced downwards following the hierarchy.
During an emergency, however, a crisis committee can be initiated at the divisional
and regional level to handle the situation pending further instruction from above.
The ability to take disaster management initiatives at the local level with limited
(financial and material) resources has a huge impact on disaster victims. This is more
serious in situations where they have to wait for a long time for resources from the
regional and national level.
575
576
577
578
The DCP has produced reports on the state of civil protection in Cameroon since
2002, yet empirical research indicates that many disaster managers still do not know
of their existence. Only 23 per cent of those interviewed were aware of the publication; all were working in government ministries in Yaound. Disaster managers in
the regions and the divisions did not know of them. Those who were aware of their
existence did not have good knowledge of the purpose or the content of the reports,
since most did not have copies, even though they are supposed to be distributed free
of charge to all ministries involved in disaster management. Further interviews with
disaster managers at the local level confirmed that most lack disaster management
reference materials. When engaging with the topic, these managers take and follow
instructions and directions from above without any working documents or guidelines to help them function. In part this is because most of them are government
administrators whose responsibilities are very wide ranging, and not restricted to
disaster management alone.
Assessment of Cameroons hazard mitigation programme
Most disaster managers attached to government ministries said that Cameroons
hazard mitigation programme is a success, while a majority of the others rated it as
between fair and poor. However, 35 per cent stated that it is improving, and emphasised that it needs more financial, human, and material resources and even more
commitment by government to enhance further. A few disaster managers reported
that the programme is not working well. This set of disaster managers, which does not
have very strong ties to the government administration, and is mostly composed of
academics and mayors of opposition-controlled councils, noted that the lack of
implementation of government disaster management policies was a major challenge
to the process. The poor enforcement of disaster management legislation, a shortage of skilled and trained disaster management personnel, and a dearth of adequate
financial and material resources were also cited as fundamental constraints on the
effective functioning of disaster management in the country. Reference was constantly made to landslide-prone areas. People were and are living on slopes in risky
areas without land and building permits and nothing is being done to protect them
or to reduce the risk. Other managers also confirmed that the entire disaster management process is more reactive than proactive and they believe that this is one
matter that warrants urgent attention.
Natural hazard risk assessment
Most disaster managers rate the risk of a natural hazard in Cameroon as between
moderate and high, with 65 per cent believing that the risk is high. Their assessment
is informed mostly by their knowledge of the geology of Cameroon and recent
geophysical, geological, and hydro-meteorologically-induced hazards. While most
scientists drew on their technical knowledge (of the geology of Cameroon and its
tectonic setting) to support their reasoning, politicians and administrators mainly
used examples of past and frequent hazards, such as landslides, the toxic gas emissions
from crater lakes, and volcanic eruptions, to reinforce their argument. Disaster managers perceptions of natural hazard risk are significant because they are likely to
influence their level of preparedness and contingency planning for future events.
Vulnerability preparedness and resilience
Many disaster managers believe that Cameroon is making sufficient progress in addressing the risks posed by gas emissions from crater lakes and volcanic eruptions, but
that the country is not yet adequately prepared to tackle the high risk of natural
hazards. Respondents attitudes and responses to questions on this issue varied depending on their portfolios, position, responsibilities, and the sectors in which they worked.
Most disaster managers in the government sector seemed to be protective of government action on preventive measures to reduce the impact of natural hazards in the
country. They argued that Cameroon is well prepared to deal with the physical risks
posed by some crater lakes in the country. A majority referred to the Nyos and
Monoum Degassing Project as a major success in mitigating the risk of poisonous
gases in Lake Nyos and Lake Monoum. They also pointed out that a risk assessment
of the gas content of the many other crater lakes on the Cameroon Volcanic Line will
be conducted, although no details were provided. Others reported that the government also is taking steps to monitor the volcanic activity of Mount Cameroon,
supplying more scientific equipment, such as seismographs, to the Ekona Geology
Research Institute in Southwest Region. Many disaster managers without government administrative functions classified vulnerability preparedness in the country as
low. Irrespective of sector, however, most respondents thought that progress is being
made to improve the governments monitoring and mitigation of the various risks
facing the country, including technological, human-induced, and natural hazards.
Similar management strategies for technological, human-induced, and natural
hazards are another important reason for the countrys continuous problems in this
area. Some key disaster management players think that more human, financial, and
material resources should be earmarked for proactive natural hazard mitigation
measures, since, while not as frequent as road accidents, for instance, their impact
often results in a greater death toll and more damage to property.
Another natural hazard preparedness limitation that disaster managers highlighted
was the lack of a natural disaster management plan for the country. This would
prioritise hazards within the different sectors of the country and outline a plan of
action to deal with them. Without this plan, there is no clear and consistent pattern of
or method for pre-hazard/disaster planning, and government action remains limited
to post-disaster relief and rehabilitation efforts, which frequently are characterised
by confusion and corruption.
Some disaster managers acknowledged that many problems exist within the administrative process that hinder decision-making and the application of preventive disaster
measures. While denied by the government administrators who double as disaster
managers, other principal disaster management stakeholders think that the countrys
complex administrative and power structure is partly to blame for the ineffective
579
580
and slow implementation of disaster management initiatives. Some argue that the
civil administrators who are empowered with taking important disaster management decisions at all levels do not have the relevant knowledge, and, in many cases,
use such opportunities for political purposes. These respondents pointed out that, in
a crisis, the civil administrators often select the members of crisis committees along
party lines rather than prioritising competent individuals with ample knowledge to
handle the situation. Many disaster managers believe an administrative process that is
highly politicised is an impediment to efficient disaster management and risk reduction in Cameroon.
Policy recommendations
The following policy recommendations aim to correct the limitations highlighted
in the analysis and research findings:
The organisational structure under the MTAD should be revised to clarify the
working relationships and operational procedures vis--vis the other ministries
and agencies that provide support services to the DCP.
Government disaster management legislation and policy should address natural
hazards and disasters separately from technological and human-induced hazards.
This is because natural disasters occur on a different scale and frequency and in
different geographical locations and often require different contingency planning
than other disasters.
The responsibilities of disaster managers and the MTAD committees at the national,
provincial, and local level should be well defined to avoid duplication of functions.
The government should decentralise responsibilities and resources for DRR to
relevant regional or local authorities to avoid administrative bottlenecks.
Government disaster management policy should focus more on proactive measures that should address all phases of the disaster management cycle.
A monitoring and evaluation process should exist to track the progress of disaster
management programmes.
A comprehensive risk, vulnerability, and hazard assessment of the physical environment of the country should be carried out and a hazard risk map produced.
Disaster management and DRR programmes should concentrate on the socioeconomic and technical aspects, while risk reduction information should be provided regularly to strengthen interaction between risk reduction authorities and
the public at large.
The Government of Cameroon should train staff or recruit personnel knowledgeable in disaster management to work alongside government administrators at the
national, regional, and local level.
There is a need to deepen knowledge of the variety, type, and extent of disaster
risks across the country, as well as of geographical coverage.
Disaster management institutions should be adequately funded.
The national disaster reduction policy should be linked to relevant development plans.
Conclusion
The disaster management system of any country or organisation is the basis upon
which its activities can be assessed, although disaster management policies and plans
often are not put into practice. Cameroon has made significant progress in DRR,
especially in terms of policies, institutions, and organisations (see Figure 2). The
DCP in the MTAD has three basic functions to coordinate all of the other organs and
bodies involved in civil protection, facilitating their activities and assisting their
operations: (i) the general organisation of all civil protection activities in the country,
including liaising with national and international civil protection agencies; (ii) the
general coordination, management and supervision of civil protection activities within
the national territory; and (iii) the provision of material and financial assistance to all
of the countrys agencies involved in civil protection. At the national level, other
organs that, together with the DCP, are expected to play a central role in civil protection in the country are the National Risk Observatory and the National Council
for Civil Protection, which are under the auspices of the presidency. The remaining
principal emergency and disaster management intervention agencies include other
government ministries, international organisations, NGOs, and research institutions. This paper has shown that there is greater institutional clarity in Cameroon on
preparedness and the response activities of national, regional, divisional, and municipal
disaster management authorities than there is on organisational responsibilities for
ongoing mitigation and risk reduction actions.
Figure 2. The main institutions involved in disaster management in Cameroon
Source: author.
581
582
The policy framework focuses more on response mechanisms and merely espouses
DRR; it does not specify it as a mode of operation or as a priority. There are no
comprehensive and explicit laws that show how the disaster management policy is
applicable to institutions and to the managerial process for the entire territory. There
are no comprehensive strategies and programmes and no coherent and coordinated
needs analyses have been undertaken. The government recognises non-state agencies and communities in disaster management but it does not stipulate their roles.
Local NGOs and the private sector are yet to be recognised sufficiently as important
in the disaster management process. The disaster management policy framework still
relies on command and control without adequate provision for personal initiatives,
resulting in disaster managers having a very low esteem, and interest in disaster
management. In addition, disaster management institutions and the disaster management process face funding constraints that impact on their effectiveness. Good governance requires that the state facilitate, not dominate, the sharing of decision-making
power among all disaster management stakeholders (World Bank, 2007). According
to Bhavnani et al. (2008), no Sub-Saharan African country has a holistic DRR legal
framework that includes urban and regional plans, building codes, and bylaws for their
enforcement to protect against natural hazards.
This papers findings are in line with some conclusions of the Africa Regional
Strategy for DRR. It identified the following major challenges for the region: limited
risk identification and assessment; a lack of effective institutionalisation of DRR;
weak integration of DRR in national development plans; and inadequate training
in and research on DRR and the dissemination of relevant information (African Union
et al., 2004).
This empirical research also has revealed that disaster managers generally are not
conversant with disaster management legislation and regulations and many more
are not updated regularly on contemporary civil protection issues. While most key
government personnel involved in disaster management believe that the process is
successful, their peers at the regional and lower levels hold a contrary viewpoint. The
general opinion is that, although Cameroon faces a high risk of natural hazards,
preparedness to tackle them remains at a very low level. The disaster management
framework is still far from robust, yet it provides the basic foundation for the process.
However, a major challenge continues to lie in shifting from emergency response
to wider risk reduction strategies, as well as in the need for national policies to
recognise disaster management as a development activity aimed at protecting the
development process.
Correspondence
Henry Ngenyam Bang, 37 Whitworth Court, Norwich NR6 6GN, United Kingdom.
E-mail: henrybang2001@yahoo.com
Endnotes
1
References
African Union et al. (2004) African Regional Strategy for Disaster Risk Reduction. http://www.unisdr.org/
files/4038_africaregionalstrategy1.pdf (accessed on 2 April 2013).
Ayonghe, S., G. Mafani, E. Ntasin, and P. Samalang (1999) Seismically activated swarm of landslides, tension cracks, and a rock fall after heavy rainfall in Bafaka, Cameroon. Natural Hazards.
19(1). pp. 1327.
Ayonghe, S., B. Ntasin, P. Samalang, and E. Suh (2004) The June 27, 2001 landslide on volcanic cones
in Limbe, Mount Cameroon, West Africa. Journal of African Earth Sciences. 39(35). pp. 435439.
583
584
Bang, H.N. (2008) Disaster risk management in Cameroon two decades following the tragic Lake
Nyos gas disaster. In J. Walter et al. (eds) Proceedings of the Second International Disaster and Risk
Conference, Short and Long Abstracts, Davos, Switzerland, 2529 August 2008. pp. 400.
Bang, H.N. (2009) Natural Disaster Risk, Vulnerability and Resettlement: Relocation Decisions following the
Lake Nyos and Monoum Disasters in Cameroon. Doctoral thesis. University of East Anglia, Norwich, UK.
https://ueaeprints.uea.ac.uk/10574/ /1/Thesis_bang_h_2009.pdf (accessed on 2 April 2014).
Bhavnani, R., S.Vordzorgbe, M. Owor, and F. Bousquet (2008) Report on the Status of Disaster Risk Reduction in the Sub-Saharan Africa Region. Commission of the African Union, United Nations International
Strategy for Disaster Reduction, and the World Bank,Washington, DC. http://www.unisdr.org/files/
2229_DRRinSubSaharanAfricaRegion.pdf (accessed on 2 April 2013).
Binks, R.M. and D. Fairhead (1992) A plate tectonic setting for Mesozoic rifts of West and Central
Africa. Tectonophysics. 213(12). pp. 141159.
Coulon, C. et al. (1996) The Mesozoic to early Cenozoic Magmatism of the Benue Trough (Nigeria);
geochemical evidence for the involvement of the St Helena Plume. Journal of Petrology. 37(6).
pp. 13411358.
Deruelle, B. et al. (2000) Eruption simultanes de Basalte Alcalin et Hawaiite au Mont Cameroun
(28 Mars17 Avril 1999). Comptes rendus de lacadmie de sciences. pp. 525531.
Dumort, J. (1968) Notice explicative sur la feuille Douala Ouest. Gologue du Bureau de Recherches
Geologigues and Minires Ayant Travaill Pour le Compte de la Direction des Mines et de la
Geologie du Cameroon, Paris.
Fairhead, J. and C. Green (1989) Controls on rifting in Africa and the regional tectonic model for
the Nigeria and east Niger rift basins. Journal of African Earth Sciences. 8(24). pp. 231249.
Freeth, J. and R. Kay (1987) The Lake Nyos gas disaster. Nature. 7000(325). pp. 104105.
Freeth, J., W. Kling, M. Kusakabe, F. Tchoua, and K. Tietze (1990) Conclusions from Lake Nyos
disaster. Nature. 348(6298). p. 201.
Gopalakrishnan, C. and N. Okada (2007) Designing new institutions for implementing integrated
disaster risk management: key elements and future directions. Disasters. 31(4). pp. 353372.
Government of Cameroon (2003) Cameroon Poverty Reduction Strategy Paper. Ministry of
Economic Affairs, Yaound.
Hedberg J. (1968) A Geological Analysis of the Cameroon Trend. PhD thesis. Princeton University,
Princeton, NJ.
IFRC (International Federation of Red Cross and Red Crescent Societies) (2001) Cameroon:
floods and landslides. Information bulletin No. 01. 29 June. http://www.ifrc.org/docs/appeals/rpts01/
cmfllaib1.pdf (accessed on 2 April 2014).
Kling, G. et al. (1987) The 1986 Lake Nyos gas disaster, Cameroon, West Africa. Science. 236(4798).
pp. 169175.
Kling, G. et al. (2005) Degassing Lake Nyos and Monoun: defusing certain disaster. Proceedings of
the National Academy of Sciences of the United States of America. 102(40). pp. 1418514190.
Kling, G. et al. (2006) Technical Report on the January 2006 Field Expedition to Lakes Nyos and Monoun,
Cameroon. Follow-up report of the US OFDA Technical Project, Cameroonian NyosMonoun
Degassing Program. Office of U.S. Foreign Disaster Assistance, Yaound.
Krajick, K. (2003) Efforts to tame second African Killer Lake. Science. 299(5608): pp. 805807.
Kusakabe, M., T. Ohsumi, and S. Aramaki (1989) The Lake Nyos gas disaster: chemical and isotopic
evidence in waters and dissolved gases from three Cameroonian crater lakes, Nyos, Monoum and
Wum. Journal of Volcanology and Geothermal Research. 39(23). pp. 167185.
Kusakabe et al. (2008) Evolution of CO2 in Lakes Monoun and Nyos, Cameroon, before and during
controlled degassing. Geochemical Journal. 42(1). pp. 93118.
Lambi, C.M. (1989) The dynamic landscape around Akum and Santa (Bamenda Highland Region)
landslides. Revue de geographic du Cameroun. 3(1). pp. 6578.
Lambi, C.M. (1991) Human interference and environmental instability: the Case of the Limbe
landslide. Cameroon Geography Review. 1(1). pp. 4452.
Lockwood, J., J. Costa, M. Tuttle, J. Nni, and S. Tebor (1988) The potential for catastrophic dam
failure at Lake Nyos maar, Cameroon. Bulletin of Volcanology. 50(5). pp. 340349.
Lockwood, J. and R. Meyer. (1989) Origin and age of the Lake Nyos maar, Cameroon. Journal of
Volcanology and Geothermal Research. 39(23). pp. 117124.
Lockwood, J. and R. Schuster (1991) Geologic hazards at Lake Nyos, Cameroon, West Africa. Association
of Engineering Geologists News. 54(2). pp. 2829.
Mosima, E. (2011) Centre: Plan Cameroon intensifies strategies for disaster risk reduction. Cameroon
Tribune. 19 October. https://www.cameroon-tribune.cm/index2.php/index.php?option=com_content
&view=article&id=65587:centre-plan-cameroon-intensifies-strategies-for-disaster-risk-reduction&
catid=55:centre (accessed on 2 April 2014).
MTAD/DCP (Ministry of Territorial Administration and Decentralisation/Department of Civil
Protection) (2005) Prevention des risques et gestion des catastrophes au Cameroon. Contribution de la protection
civile au Cameroon a la conference des catastrophes de Kobe ( Japon). MTAD, Yaound.
MTAD/DCP (2007) Rappaort sur letat de la protection civile au Cameroun, 2006. A Lecole de la protection
civile. Ministre de lAdministration Territoriale et de la Dcentralisation (MINATD), Yaound.
MTAD/DCP (2008) Rapport sur letat de la protection civile au Cameroun 2007-2008, Securiser le milieu
professionnel. MINATD, Yaound.
MTAD/DCP (2009) Cameroon civil protection report, 2008/2009. Civil defence through life-saving actions.
MINATD, Yaound.
MTAD/DCP and UNDP (United Nations Development Programme) (2006) Rapport sur letat de la
protection civile au Cameroun, 2005. Cap sur la sauvegarde de notre cadre de vie. MTAD, Yaound.
Nana, J. (2005) Cameroon Civil Defence Directorate. MINATD, Yaound.
Neba, A. (1999) Modern Geography of the Republic of Cameroon. 3rd edition. Neba Publishers, Bamenda.
Ngwa, N.E. (1992) Responding to unmet food needs of displaced persons or refugees: a case study
for new approaches in Kousseri town and Nyos area of the Republic of Cameroon. GeoJournal.
27(4). pp. 323330.
Nni, J. (1984) Le volcan actif du Mont Cameroun( ligne du Cameroun) gologie et ptrologie du volcan. Doctoral
thesis. University of Paris XI, Paris.
Othman-Chande, M. (1987) The Cameroon volcanic gas disaster: an analysis of a makeshift response.
Disasters. 11(2). pp. 96101.
ParBleu Technologies (2004) Landslide Assessment and Prevention of Future Risks, Monts Bamboutos, Cameroon.
http://www.treemail.nl/privateers/cameroun/bambout6.htm (accessed on 2 April 2014).
Pelling, M. (ed.) (2003) Natural Disasters and Development in a Globalizing World. Routledge, London.
Shanklin, E. (1988) Beautiful deadly Lake Nyos: the explosion and its aftermath. Anthropology Today.
1(4). pp. 1214.
Sigurdsson H. et al. (1987) Origin of the lethal gas burst from Lake Monoun, Cameroon. Journal of
Volcanology and Geothermal Research. 31(12). pp. 116.
Sigvaldason, G.E. (1989) International conference on Lake Nyos disaster, Yaound, Cameroon,
1620 March 1987: conclusions and recommendations. Journal of Volcanology and Geothermal Research.
39(23). pp. 97109.
Suh C.E. et al. (2003) The 1999 and 2000 eruptions of Mount Cameroon: eruption behaviour and
petrochemistry of lava. Bulletin of Volcanology. 67(4). pp. 267281.
UNCED (United Nations Centre for Environment and Development) (1992) United Nations Conference
on Environment and Development. UNCED, New York, NY.
UNDP (United Nations Development Programme) (2003) 2002 Report on the Thematic Trust Fund for
Crisis Prevention and Recovery. Bureau for Crisis Prevention and Recovery, Geneva.
UNDP (2004) Reducing Disaster Risk: A Challenge for Development. UNDP, Geneva.
585
586
UNESCO (United Nations Educational, Scientific and Cultural Organization) (1994) Yokohama
Strategy and Plan of Action for a Safer World. World Conference on Natural Disaster Reduction,
Yokohama, Japan, 2327 May 1994. http://www.ifrc.org/Docs/idrl/I248EN.pdf (accessed on
2 April 2014).
UNISDR (United Nations International Strategy for Disaster Reduction) (2005) World Conference
on Disaster Reduction, Kobe, Hyogo, Japan, 1822 January 2005. http://www.unisdr.org/2005/
wcdr/wcdr-index.htm (accessed on 2 April 2014).
UNISDR (2007) Acting with Common Purpose. Proceedings of the First Session of the Global Platform
for Disaster Risk Reduction, Geneva, Switzerland, 57 June 2007. http://www.preventionweb.net/
globalplatform/2007/first-session/docs/session_docs/GP-Acting-with-common-purpose.pdf
(accessed on 2 April 2014).
World Bank (2007) OP 8.00 Rapid Response to Crises and Emergencies. World Bank, Washington, DC.
http://go.worldbank.org/IKGMVADFB0 (accessed on 2 April 2014).
Zogning, A. (1988) Le Mont Cameroun, un volcan actif: contribution a` letude de geographie physique applique.
Doctoral thesis. University of Yaound, Yaound.
Zogning, A., C. Ngouanet, and O. Tiafack (2007) The catastrophic geomorphological processes in
humid tropical Africa: a case study of the recent landslide disasters in Cameroon. Sedimentary
Geology. 199(12). pp. 1327.