disasters volume 38 issue 3 2014 [doi 10.1111_disa.12061] bang, henry ngenyam -- general overview of...

General overview of the disaster management framework in Cameroon

Henry Ngenyam Bang Environmental Compliance and Risk Management Consultant, ANOVO UK Ltd., United Kingdom

Efficient and effective disaster management will prevent many hazardous events from becoming disasters. This paper constitutes the most comprehensive document on the natural disaster manage-ment framework of Cameroon. It reviews critically disaster management in Cameroon, exam-ining 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 dis-aster 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

IntroductionCameroon 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 con-stitute 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 emer-gency preparedness and a rapid and effective response to disaster and post-disaster

doi:10.1111/disa.12061

Disasters, 2014, 38(3): 562586. 2014 The Author(s). Disasters Overseas Development Institute, 2014Published by John Wiley & Sons Ltd, 9600 Garsington Road, Oxford, OX4 2DQ, UK and 350 Main Street, Malden, MA 02148, USA

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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 man-agement 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 meas-ures 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 decen-tralised emergency management system, community participation, a legislative frame-work, 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, con-certed action through bilateral, regional, and international cooperation and partner-ships 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 devel-oping 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 pro-active 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 admin-istrative bodies involved in disaster management. The government also has estab-lished 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 suc-cess 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 dis-aster 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

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ramifications for the management of hazardous events. A review of disaster man-agement institutions in Cameroon exposes significant flaws in their structure and in their ability to contribute effectively to the implementation of DRR. By evalu-ating the various legislative, institutional, and administrative frameworks, this study presents the case for a thorough overhaul of Cameroons institutional and adminis-trative components of disaster management. The disaster management framework assessed here includes the following themes: civil protection in Cameroon;

legislation and policies; institutions engaged in disaster management; the administrative framework and power structure of Cameroon; and the main actors involved in disaster management.

An appraisal of contemporary disaster management practices based on empirical data also is presented, followed by some fundamental policy recommendations.

Civil protection in CameroonCivil protection is a common umbrella term that covers the risks posed by natural hazards/disasters, technological hazards, biological hazards, and human-induced hazards. It is a concept, mission, and service that entails the permanent protection of people and property against environmental risks, disasters, and their impacts.1 According to the Government of Cameroon, civil protection is the shared responsi-bility of the state, municipalities, non-governmental and humanitarian organisations, and the people who are beneficiaries of such services. To counter the risks and threats to the country from various hazards, the government has created a National Disaster Prevention and Management Programme, which prioritises disaster preven-tion and the mitigation of disaster risks as areas of action. The programme collaborates with the United Nations Development Programme (UNDP), under the auspices of the Ministry of Territorial Administration and Decentralisation (MTAD), which is politically powerful. The stronger and more politically powerful the supervising ministry, the easier it is for the National Disaster Prevention and Management Programme to coordinate disaster management (Bhavnani et al., 2008). This pro-gramme has enabled the government to put in place a legal framework for the pre-vention and management of emergencies, national plans for disaster prevention, and initiatives for the prevention, education, and sensitisation of populations in emer-gency situations. Many laws have been developed over the years to regulate civil protection in Cameroon, but the management of risk and disasters has been integrated into the overall government administrative machinery and governance structure. By address-ing all risks and hazards in the country generally, peculiar problems of natural hazards/disasters have not been tackled properly. Box 1 shows the different risks, hazards, and/or disasters in Cameroon from 19802011.


Legislation and policiesThe process to construct a more comprehensive legal framework for civil protection in Cameroon began shortly after independence in 1960; various laws, decrees, and presidential and prime ministerial instructions exist on the subject (MTAD/DCP and UNDP, 2006; MTAD/DCP, 2007). Legislation has been revised and modified since 1967, but the various ordinances and acts do not provide a framework that dem-onstrates a clear linkage between disaster mitigation and development planning in the country. The revised and modified policies and laws on disaster risks (see Box 2), scattered across different sectors, are masked within the general regulation on civil protection in Cameroon and are not very explicit. The existing legislation covers mainly emergency preparedness, disaster response, and recovery programmes. There is limited incorporation of risk reduction approaches in legislation and no guidelines for stakeholder involvement and cross-sectoral interven-tions. There is no mention of budgetary provisions and rules that enable the allocation

Box 1. Different risks, hazards, and/or disasters in Cameroon from 19802011

Three gas disasters: two gas emissions from crater lakes, Lake Monoum (1984) and Lake Nyos (1986), and one industrial gas accident in Nsimalen (1996).

Three volcanic eruptions of Mount Cameroon (October 1982, MarchApril 1999, and May 2000).

Sixteen tornadoes/storms/thunder strikes in the South, Far North, and Adamawa and North Regions.

Twelve major floods: Kribi (1998); Lagdo (1998); Maga (1998); Far North (Diamare, 1996, 1998, 1999); Douala (2000) and Limbe (2001); Mokolo and Kolofata (August 2007); Nkolbisson, Yaounde (April 2008); Garoua, (July 2008); and Mayo Danay (July 2010).

Twelve major landslides: Bakombo (Melong), June 1998; Oyamabang (Yaounde), August 1990; Pinyin (Santa), September 1992; Bafaka Balue (Ndian), September 1995; Guoata (Dschang), September 1997; Sho (Belo), September 1997; Baingoh (Belo), July 1998; Anjin (Belo), September 1998; Yaounde (Centre Region), August 1998; Ron (Nwa), September 2001; Limbe (Southwest Region), June 2001; Magha (Wabane), July 2003.

Twenty fire disasters: bushfires in Faro and Deo Division (Adamawa Plateau), 1994; Mokolo (Yaounde), 1998; Nsam Efoulan (Centre Region), 1998; Sangmelima market (South Region), 1998; Bafoussam market (West Region), 1999; Limbe market (Southwest Region), 2000; Essos market (Centre Region), 2001; military headquarters ammu-nition depot (Yaounde), 2001; Oyom-Abang (Centre Region), 2001; Kumba market (Southwest Region), 2005; Congo market (Douala), 2009, 2010, 2011; Bertoua Central market (East), 2010; Idabato II (Bakassi), 2010; Ngo Nkolbiteng market (Kribi), 2010; PSS Nkambe (Ndonga-Mantung Division), 2010; Tiko market (Southwest Region), 2010; Mboppi market (Douala), 2011.

Six armed conflicts and acts of vandalism: Kotoko-Arab Choas, 1993; Bakassi, 1997; East Region; 1997; Meiganga, 1997; Moloundu, 1997; Boyo (1998).

Three cases of destruction by elephants: Far North (Diamare, 1996, 1998, and 1999).

Nine epidemics: cholera (North and Far North, 1996, 1998, 1999); meningitis (Far North, 1998; 695 cases); Red diarrhoea (East, 1997; Messock, 1998; and Mbalmayo, 1999); Menchum Division (2010); Far North (2011).

An average of 1,000 road accidents per year.

Three aeroplane crashes: 3 December 1995 (Cameroon Airlines 737-200; 72 people killed); 30 August 1984 (Cameroon Airlines 737-200; 2 people killed); and 5 May 2007 (Kenya Airways Boeing 737-800; 114 people killed).

Famine/drought/locust invasion: Far North (1998, 1999, 2001); Maroua (2011).

Source: author. Based on a range of sources, including MTAD/DCP (2005, 2007, 2009), as well as numerous internet websites and civil

protection documents.


of government funds for risk mitigation. The integration of early warning into emer-gency 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 multi-disciplinary approach via DRR policies, practices, and programmes that target natu-ral, 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 informa-tion 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 impor-tant 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 sub-region. The Government of Cameroon is also taking steps to sensitise, inform, and educate the population vis--vis basic regulations concerning civil protection. It acknowl-edges 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 develop-ment (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 pro-grammes relevant to vulnerability reduction and development planning.

Institutions engaged in disaster managementThe national policy on disaster management in Cameroon, published by the Depart-ment of Civil Protection (DCP), recognises a multi-agency DRR effort. However, not all government agencies and non-governmental organisations (NGOs) involved in disaster management are mentioned in it and their roles are not defined. The agencies that collaborate with the DCP include government ministries, municipali-ties, civil society, and NGOs. Linkages between all agencies involved in disaster management need to be fostered and strengthened.

Government sector

MinistriesTable 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


integration and collaboration between ministries. The specific role of ministries pre-vents 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.

Department of Civil ProtectionThe DCP in the MTAD is a key operational agency for civil protection in Cameroon. Decree No. 2005/104 of 13 April 2005 accorded it responsibility for organising and

Table 1. Government ministries involved in civil protection in Cameroon

Ministry of Agriculture and Rural Development Ministry of Basic Education

Ministry of Communications Ministry of Defence

Ministry of Economy, Planning and Regional Development Ministry of Energy and Water Resources

Ministry of Environment and Nature Protection Ministry of Forestry and Wildlife

Ministry of Higher Education Ministry of Industry, Mines and Technological Development

Ministry of Labour and Social Security Ministry of Lands and Titles

Ministry of Livestock and Fisheries Ministry of Public Health

Ministry of Public works Ministry of Scientific Research and Innovation

Ministry of Secondary Education Ministry of Social Affairs

Ministry of Territorial Administration and Decentralisation Ministry of Tourism

Ministry of Transport Ministry of Urban Development and Housing

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.

Box 3. Main responsibilities of the DCP

General organisation of civil protection in the country as a whole.

Initiate cooperation on civil protection issues between national and international organisations.

Coordinate all institutional structures concerned with civil protection.

Develop studies and research on civil protection issues in times of war and peace in partnership with relevant organisations.

Engage in training and capacity-building for all personnel involved in civil protection in partnership with the Department of Human Resources.

Control the transfer of corpses.

Assess requests for compensation and financial assistance from disaster victims.

Control financial and material aid meant for disaster victims.

Coordinate disaster relief and rescue operations.

Coordinate the deployment of back-up and auxiliary services.

Coordinate logistical operations.

Source: author. Produced from a range of sources, including MTAD/DCP (2005, 2007, 2009) and http//www.onr.cm.


coordinating civil protection activities pertaining to natural and human-induced disasters throughout the country (MTAD/DCP, 2009). Decree No. 2004/320 of 8 December 2004, concerning the organisation of the government, made civil protec-tion the second most important function of the Ministry of Territorial Administration and Decentralisation (MTAD/DCP and UNDP, 2006). Box 3 lists the key responsi-bilities of the DCP, including the production of an annual report on the state of civil protection in Cameroon. However, the structure of plans does not cover specific time-bound or target-related activities and monitoring and evaluation provisions. In 2002, the DCP launched an annual publication (in French) on the state of civil protection in Cameroon. Entitled Rapport sur letat de la protection civile au Cameroon, the report consists of different themes related to varied aspects of natural, human-induced, and technological hazards and disasters that affect the country. The goal is to supply regular updates to disaster managers on the state of civil protection and on government action on the mitigation of hazards and disasters. By 2010, six editions of the publication had been produced. The most recent edition (in English), dated 2009 and entitled Civil defence through life-saving actions, addresses a range of issues, such as natural and technology-related hazards in 200809, emergency medicine and first aid policy, and techniques, strategies, and knowledge (MTAD/DCP, 2009). The 200708 edition, on the subject of Securiser le milier professionnel (Security in a profes-sional work environment), focuses on risk and security at work. It highlights govern-ment assistance to victims of diverse catastrophes in the country, including accidents,

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.


ethnic conflicts, and floods. Both provide an account of government measures, strategy, and partnerships in regard to the implementation of civil protection meas-ures on national territory. However, empirical evidence (analysed below) indicates that these responsibilities are not always translated into desired action. Since the report deals with all civil protection issues, topical matters concerning natural hazards and disaster risks are not addressed properly. Field observations and empirical infor-mation show that most governmental and non-governmental institutions that are expected to cooperate with the DCP do not have the booklets. Box 4 contains a sum-mary of all of the local, national, and international organs and bodies that cooperate with and are coordinated by the DCP. The government requires an estimated annual budget of 46.7 billion CFA francs (GBP 467 million) to tackle civil protection problems in the country (MTAD/DCP, 2005). Owing to a lack of financial resources, the DCP is allocated only around 500 million CFA francs (GBP 500,000) per annum (MTAD/DCP, 2005). Disaster management, therefore, suffers from inadequate financial support due to the low prior-ity accorded to DRR in Cameroons national budget.

Local governmentLocal councils and municipalities have responsibility for improving the living con-ditions 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 adminis-tration) and elected mayors head city councils, only mayors control the divisional councils. The main missions of the councils, as specified in law,3 include enhance-ment of the living conditions of inhabitants and promoting local development. In performing these tasks they have the right to request assistance from the popula-tion, 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 con-strained 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 govern-ment policy.


National NGOs and development agenciesGovernment policy does not recognise all national NGOs and development agen-cies as major disaster management actors in Cameroon. Only the Cameroon Red Cross (CRC) is recognised in the operational structure for disaster management, yet other national development agencies, such as Plan International and Helvetas, have been organising workshops on DRR and providing humanitarian assistance, especially to disaster victims in different parts of the country. These NGOs helped to mitigate the socioeconomic risks associated with the resettlement of the Lake Nyos disaster survivors (Bang, 2009). Plan International organised a workshop on the vulnerabil-ity of children during crises and disasters in Cameroon in Yaound on 13 October 2011 to mark the International Day for Disaster Reduction, as well as a workshop on DRR in 2009 to develop local strategies for the prevention of disasters (Mosima, 2011). The CRC played a significant role in assisting the victims of the floods in Douala in August 2000 and of the floods and landslides that struck Magha in August 2003 (IFRC, 2001; ParBleu Technologies, 2004). It is important to note, however, that these NGOs have a small resource base with which to perform their routine functions in the sphere of post-disaster relief and humanitarian assistance.

Local NGOsLocal 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 reduc-tion services and support to local communities in Cameroons Northwest Region.

Other disaster management stakeholders

Civil society actorscommunity-based organisations, the private sector, the scien-tific 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 lead-ers, 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 communityAcademics, researchers, and scientists also have a great impact on disaster manage-ment 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


National Institute of Geological and Mining Research is the leading voice on natural hazards in Cameroon. Its scientists are involved in technical research on contempo-rary 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 groupsMany civil society groupings have been formed by members of local communities that have been affected by disasters. In Northwest Region, the Mr. Bamenda Organisa-tion and the Buabua-Kimbi Lake Nyos Survivors Cultural and Development Asso-ciation 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 resettle-ment 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 disas-ters (UNISDR, 2007).

International development organisationsRatification of multilateral agreements translates into a commitment by the govern-ment to undertake disaster management projects, including the provision of finan-cial and technical resources from international agencies. The main international development organisations involved in disaster management in Cameroon are UNDP (the focus of the remainder of this subsection), the United Nations Childrens Fund (UNICEF), and the World Health Organization (WHO). UNDP plays a crucial role in influencing disaster management in the country through awareness, education, training, and the provision of technical expertise in various ways. Notably, it has published a document on its website on the state of civil protection in Cameroon. Between 1997 and 2002, UNDP embarked on a project in Cameron to reinforce the managerial, material, and infrastructural capacities of the


government in managing and preventing catastrophes. Principal achievements, accord-ing 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 situa-tions, as indicated in the contingency plan prepared by United Nations Office for the Coordination of Humanitarian Affairs (UNOCHA) experts. This included a pre-ventive 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 man-agement 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 gov-ernment 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 inter-national development agencies.

International Organisation for Civil ProtectionNational policy documents mention that the government enjoys an excellent relation-ship with the International Organisation for Civil Protection. Under its auspices, the government ratified the Framework Agreement on Civil Protection Assistance in Mali in 2002. The International Organisation of Civil Protection has given technical support to Cameroon through realisation of the National Programme for the Preven-tion and Management of Risks. Two pending projects that require its assistance are a document on the creation of a sub-regional centre for civil protection in Cameroon and the development of an urgent intervention plan (Nana, 2005; MTAD/DCP, 2005).

Bilateral cooperationThe 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


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 Govern-ment 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).

Cameroons administrative framework and power structureAdministrative framework

Cameroons disaster management administrative framework is interwoven with its governance structure. It can be grouped into three levels: national; regional; and local. These three levels have institutions that function under the auspices of the MTAD. The MTAD is represented by the 10 regions of the country,7 which are adminis-tered by governors.8 At the local level, each region is split into divisions headed by senior divisional officers.9 The divisions are further separated into sub-divisions. Each sub-division is broken up into districts under the authority of a district head. The basic administrative units (subdivisions and districts) have local government councils,10 which also play a vital part in disaster management, as mentioned above. One limitation is the absence of a separate coordination body or organisational framework that provides the administrative structure for a natural hazard mitiga-tion policy. Hence, disaster management decisions, especially during a crisis, are made by presidential/ministerial/regional decree, resulting in agencies offering dupli-cate services. The absence of a separate coordination body also implies that there is no designated agency to guide and coordinate activities, or to monitor the quality of post-disaster services in the short and the long term. This contributed to the dire socioeconomic problems faced by the Lake Nyos disaster survivors (Bang, 2009).

Power structure

Disaster management administration in Cameroon involves a network of different administrative and institutional structures that form a hierarchical top-down power structure (see Figure 1). This framework is similar to those that manage other state affairs. The intention is to decentralise its management in accordance with Article 1 (2) of the Constitution, which states that the Republic of Cameroon shall be a decen-tralised unitary state. Law No. 2004/017 of 22 July 2004 on decentralisation11 and deconcentration12 of powers is applied by the MTAD. Although Cameroon has espoused decentralised implementation of disaster management interventions, the devolution of authority, competencies, and responsibilities, including human and financial resources, to lower administrative levels is limited.


Figure 1. Cameroons administrative and power structure for disaster management

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 Pro-tection also can define policies intended for endorsement by the president, mostly via a presidential decree. The MTAD, through the DCP, is responsible for imple-menting 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.


The administrative processGovernment disaster management guidelines for the administrative authorities briefly describe the main activities to be considered before, during, and after an event. The three main areas to consider in the pre-disaster periods are: knowledge of the admin-istrative units; understanding of risks; and awareness of the means of actions. The key issues for the disaster phase include: basic laws on civil protection and relief plans; information management; the setting up of a joint crisis committee by the governor or senior divisional officer; the creation of command posts; and the implementation of relief organisation plans. Post-disaster management focuses on two fundamental administrative processes: the joint crisis committee evaluation meeting; and the general report on the man-agement of the disaster (MTAD/DCP, 2008). During a crisis, primary actions can be initiated at the national, regional, or local level, depending on the nature and the magnitude of the natural hazard, although decision-making is in accordance with the top-down hierarchical structure. When a disaster strikes, the emergency response plan can be launched at various levels by the competent authorities. On receipt of reliable information on a potential disaster, the competent authorities can take the following steps, in any order: communicate with higher authorities; initiate emer-gency relief and humanitarian activities; inform the public through various commu-nication means; alert or warn vulnerable populations, if necessary; and appoint and convene a crisis commission to manage the disaster. If any competent regional or local authority encounters a disaster that is beyond its capacity to cope, given available means and resources, it has to inform immediate bosses, including an appraisal of the situation and what steps, if any, have been taken to contain matters. Any decisions that may require major relief operations or human, material, and financial support will be taken by the higher authorities and then channelled downwards. Lower authorities will be responsible for implementing them under the supervision of the higher authorities. This administrative process for the pre- and post-disaster phases is barely addressed in the governments disaster management policy and it does not provide any details of what is actually required or expected during this process. In the pre-disaster phase, for instance, disaster-prone zones are to be recognised, but they are not shown clearly. Some disaster managers have stated, furthermore, that policy is not very explicit and needs to be simplified and that top priority areas need to be clarified. The administrative process is also very complicated with different administrative authorities accorded the power to perform similar functions. Often this leads to duplication of functions and confusion, constraining the management of relief and rescue operations, as occurred during the Lake Nyos disaster (Bang, 2009).

The main disaster management actorsThe main disaster management actors in Cameroon are civil servants and politicians; most of whom are local government administrators trained at the LEcole Nationale dAdministration et de Magistrature (ENAM) (National School of Administration


and Magistracy) in Yaound. ENAM trains most of Cameroons administrators at the divisional, regional, and national level. These administrators, who are called governors, senior divisional officers, and divisional officers, govern the 10 regions (formerly called provinces), divisions, and sub-divisions, respectively. At the tail of this structure are government delegates and mayors on the councils. The ministers, governors, senior divisional officers, divisional officers, and govern-ment delegates are all civil servants appointed by presidential decree. They function as government administrators in their areas of jurisdiction, with disaster management being one of the issues that they have to tackle. Mayors, meanwhile, are democrati-cally elected. Appointed officials tend to be very protective of the government when discussing disaster management issues whereas elected mayors tend to give a more candid opinion of disaster management in the country. Research evidence seems to suggest that government administrators politicise disaster management, especially during election campaigns (Bang, 2009). Disputes between opposition parties and the government have manifested themselves in recent years about the role of opposition-controlled councils in disaster management, as their functions seem to be comple-mentary to those of the mayors. How these disaster managers obtain their power certainly affects disaster management and the other activities of the councils.

Implications for disaster managementThe disaster management framework determines the extent to which existing legis-lation adequately covers DRR policies. Disaster managers are expected to understand and buy into the provisions of the legislation in order to implement DRR strategies. Empirical data were used to comprehend how Cameroons disaster management structure, policy, and process influence the contemporary management of natural hazards/disasters in the country. Interviews were conducted with government civil servants and opposition politicians with disaster management responsibilities, as well as with scientists and academics (researching the risks posed by natural hazards) who influence government policies directly or indirectly. Hereafter they are referred to as disaster managers, although they comprise a mixed lot with varying degrees of disaster management activism. These disaster managers were interviewed to garner their perspectives on different issues concerning natural hazards/disasters and dis-aster management in Cameroon.

Awareness of government laws and regulations on disaster managementThe vast majority (88 per cent) of disaster managers interviewed were aware of the existence of government legislation or regulations relating to disaster management in the country, although very few possess in-depth knowledge of their content and how they should be enforced. Most have only superficial knowledge of the legisla-tion and regulations and flagged a lack of more detailed information on their applica-tion and enforcement, even in their own sectors. Many could not give any further details on the policies or the relevant aspects to which the laws refer.


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 publica-tion; 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 guide-lines 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 programmeMost 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 empha-sised 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 short-age 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 con-stantly 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 man-agement process is more reactive than proactive and they believe that this is one matter that warrants urgent attention.

Natural hazard risk assessmentMost 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 man-agers 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 address-ing 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 depend-ing on their portfolios, position, responsibilities, and the sectors in which they worked. Most disaster managers in the government sector seemed to be protective of govern-ment 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 govern-ment 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 govern-ment 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 admin-istrative 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


and slow implementation of disaster management initiatives. Some argue that the civil administrators who are empowered with taking important disaster manage-ment 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 reduc-tion in Cameroon.

Policy recommendationsThe 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 meas-ures 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 envi-ronment of the country should be carried out and a hazard risk map produced.

Disaster management and DRR programmes should concentrate on the socio-economic and technical aspects, while risk reduction information should be pro-vided regularly to strengthen interaction between risk reduction authorities and the public at large.

The Government of Cameroon should train staff or recruit personnel knowledge-able 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 pro-tection 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 institu-tions. 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.


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 agen-cies 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 manage-ment process face funding constraints that impact on their effectiveness. Good gov-ernance 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.

CorrespondenceHenry Ngenyam Bang, 37 Whitworth Court, Norwich NR6 6GN, United Kingdom. E-mail: [email protected]


Endnotes1 For more information see http://www.onr.cm (accessed on 20 March 2014).2 Owing to their special nature, certain urban centres may be granted special status, and permitted

to have a city council.3 Sections 18 under the general provisions of Law No. 2004/018 of 22 July 2004 specify rules appli-

cable to councils.4 Law No. 99/014 of 29 December 1999 allows legally declared and authorised associations to acquire

the status of NGOs in Cameroon. Local NGOs are established by Cameroonians and are mostly involved in community development programmes.

5 Dumort (1968); Hedberg (1968); Nni (1984); Freeth and Kay (1987); Kling et al. (1987, 2005, 2006); Othman-Chande (1987); Sigurdsson et al. (1987); Lockwood et al. (1988); Shanklin (1988); Zogning (1988); Fairhead and Green (1989); Lambi (1989, 1991); Lockwood and Meyer (1989); Kusakabe, Ohsumi, and Aramaki (1989); Sigvaldason (1989); Freeth et al. (1990); Lockwood and Schuster (1991); Binks and Fairhead (1992); Ngwa (1992); Coulon et al. (1996); Ayonghe et al. (1999, 2004); Neba (1999); Deruelle et al. (2000); Krajick (2003); Suh et al. (2003); Zogning, Ngouanet, and Tiafack (2007); Bang (2008; 2009); Kusakabe et al. (2008).

6 The principal objective of the project, which started in 2000, is to mitigate the risk of another gas explosion in Lake Nyos and Lake Monoum through degassing.

7 The 10 regions of Cameroon are Adamawa, Centre, East, Far North, Littoral, North, Northwest, South, Southwest, and West.

8 Each region is under the authority of a governor who resides in the headquarters. The governor rep-resents the head of state in the region and is the custodian of state authority therein. He/she is the representative of both the government and each minister. In this capacity, therefore, he/she repre-sents the state in all civil and legal matters. The governor is responsible for the enforcement of laws and ensures law and order by applying the legislation and regulations in force.

9 The division is managed by a senior divisional officer who is under the direct hierarchical authority of the governor of the region. He/she is the custodian of state authority within the administrative unit and represents the government and each minister. He/she is responsible for ensuring that legislation and regulations are enforced and sees to it that all government initiatives aimed at foster-ing development in the division are implemented.

10 Cameroon currently has a total of 339 councils of all types, including the 12 city councils (com-munauts urbaines) of the 10 headquarters of the regions.

11 This refers to the various means of distributing decision-making more widely in order to bring it closer to the point of service or action or the transfer of power and authority from the central gov-ernment to the local level.

12 This refers to the transfer of central administration powers to representatives in different local areas. Power is delegated by the president of the republic to governors and senior divisional officers via ministers.

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effective disaster management

natural disaster

disaster risks

disaster cycle mitigation

actions of disaster

postdisaster doi

risk management consultant

risk of disasters