The country is one of the worst sufferers of all cyclonic casualties in the world.

Its
geographic location is the biggest contributing factor for the proneness to disasters.
Due to the funnel shaped coast, Bangladesh often becomes the landing ground and
breeding place of catastrophic cyclones formed in the Bay of Bengal. The high number
of casualties is due to the fact that cyclones are always associated with storm surges. The
Bangladesh Red Crescent Society Cyclone Preparedness Program (CPP) is being a joint
venture with the Government of Bangladesh, The CPP is an organic component of the
nations institutional early warning system as clearly defined in the Standing Order
on Disasters. The BDRCS CPP program is the most successful and an effective model
program of its kind in the South-East Asian region. CPP is an effective, grass-root oriented,
disciplined and tightly knits organization which is dedicated to the task of protecting the
population along with community capacity build up activities. This programme based on
the voluntary service of community people and their technical skills and commitment to
ensure sufficient warning dissemination, shelter management, search & rescue and first
aid services enabling them to cope with the approaching cyclone. This study has been

Vol. 2 No. 2 December 2009 u 15

carried out to find the communities perspective about the volunteers performance in
time of disaster event.
Keywords: Preparedness, warning dissemination, rescue, first aid, risk reduction.

Bangladesh is one of the most disaster-prone countries in the world. Its geographic
location is the biggest contributing factor for the proneness to disasters. Due to the
funnel shaped coast, Bangladesh often becomes the landing ground and breeding
place of catastrophic cyclones formed in the Bay of Bengal. An average of 1-3 severe
to moderate cyclonic storms hit each year, with associated storm surges as much as 13
meters higher than normal in extreme cases, which can reach as far as 70 km inland (Ali
1999). From 1960 to 2002, a total of 173 depressions have been formed, out of which
66 major cyclonic storms and tidal surges have hit the Bangladesh coast. The propensity
and extent of disasters has increased due to the effects of the climate change. After the
devastating cyclone of 1970 that perished half a million lives, the League of Red Cross,
now the International Federation was requested by the UN general assembly to undertake
a leading role in pre-disaster planning for the country. The Cyclone Preparedness
Programme (CPP) of Bangladesh Red Crescent Society (BDRCS) came into being in 1972.
In June 1973, the Government of Bangladesh approved this new CPP programme and
undertook the financial responsibility for some of the recurring expenses and setup a
joint programme management mechanism. These programs disseminates cyclone early
warning messages through volunteers to the most at risk villages and assist especially the
weakest members of communities to seek refuge in cyclone shelters. This programme
based on the voluntary service of community people and their technical skills and
commitment to ensure sufficient warning, shelter management, search & rescue and
first aid services enabling them to cope with the approaching cyclone. This study has
been carried out to find the communities perspective about the volunteers performance
in time of disaster event. For clear understanding the paper divided into two parts. Part
A describes background and system how the program is working and volunteers role on
it and second part assess the volunteers activities.

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The idea of CPP started in 1965 when the National Society requested the International
Federation of Red Cross and Red Crescent Societies (IFRC) formerly the League of Red
Cross and Red Crescent Societies to support the establishment of warning system for the
population living in the coastal belt. In 1966, the International Federation and Swedish
Red Cross began the implementation of a pilot scheme for Cyclone Preparedness which
consisted of warning equipments and was operational in 299 locations. In response
to 1970s request of the United Nations General Assembly a new strategy of Cyclone
Preparedness Programme was developed in 1972 and as a result in 1973, CPP evolved as
a joint venture programme of BDRCS and Ministry of Food and Disaster Management of
the Government of Bangladesh.
The Cyclone Preparedness Programme disseminates cyclone early warning messages
through its extensive radio network (130 stations) to districts along the coastal belt.
Approximately 42,000 volunteers deliver the messages to most at risk villages and assist
especially the weakest members of communities to seek refuge in cyclone shelters. In total
there are different governmental & non-governmental organizations have constructed
about 2,852 (DMB, 2010) cyclone shelters in the coastal belts of 16 Districts of the country.
Out of 2,852 shelters, investigation reveals that 2,590 shelters are useable while 262 are
not. These shelters are laid out to take up to 1,500 people and can serve as schools and
community centres during normal times. Cyclone Preparedness Volunteers also get
involved in rescue, First Aid activities and the distribution of relief items. Outside the 4
months cyclone season they run public awareness activities such as staging educational
dramas and simulation exercises. Increasingly volunteers also contribute to longer- term
mitigation activities such as planting suitable trees as wind breaks along the coast.

The goal of the CPP is to minimize loss of lives and properties in cyclonic disaster by
strengthening the capacity in disaster management of the coastal people of Bangladesh.

1.
2.

Disseminate cyclone warning signals issued by the Bangladesh Meteorological

Department to the community people.
Assist People in taking shelter.

Vol. 2 No. 2 December 2009 u 17

3.
4.
5.
6.
7.
8.

Rescue distressed people affected by a cyclone.

Provide First Aid to the people injured by a cyclone.
Assist in relief and Rehabilitation operations.
Assist in the implementation of the BDRCS Disaster Preparedness Plan.
Assist in participatory community capacity build-up activities.
Assist in the co-ordination of disaster management and development activities.

CPP is a mechanism which relies on technical skills and volunteers commitment for
ensuring that all potential victims of an approaching cyclone are given sufficient warning
to 20 million coastal people so as to enable them to move to safe sites including cyclone
shelters and safe buildings. The system starts with the collection of meteorological data
from the Bangladesh Meteorological Department (BMD), which issues bulletins including
the designated warning signals of an approaching cyclone. The bulletins are transmitted
to the 6 zonal offices and the 37 upazila level offices (sub-district) over HF radio.
The upazila offices in turn, pass it to unions and lower level through VHF radios. The
union team leaders then conduct the unit team leaders immediately. The unit team leaders
with his volunteers spread out in the villages and disseminate cyclone warning signals
almost door to door using megaphones, hand sirens and public address system. (Fig. 1)

Fig. 1: Cyclone Preparedness Programme (CPP) Mechanism

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- Age between 18-35

- Permanent resident of the locality
- Ability to read & write
- Committed, have time & opportunity to render services
- Self supported
- Honest, sincere & people oriented
- Favorable attitude for voluntary work
- Strong, stout & healthy

For maintaining a high level of efficiency the volunteers are given training on the Red
Cross and Red Crescent movement, cyclone and its behavior, warning signals and their
dissemination, evacuation, sheltering, rescue, first aid and relief operation. Further there
are basic and refresher training of the volunteers.
The Cyclone Preparedness Programme (CPP) covers 37 Upazilas of 13 districts in
the coastal areas. In each unit the 10 male volunteers and 5 female volunteers divided
into 5 groups, 3 in each. Volunteers have been trained to play a crucial role in the
dissemination of cyclone warnings, evacuation, rescue, first aid emergency relief and in
the usage of radio communication equipment. The CPP relies on technical skills and
volunteers commitment to ensure that potential victims of an approaching cyclone are
given sufficient warning, enabling them to move to safe sites. (Fig. 2)

Fig. 2: Dissemination of Cyclone warning signals

Vol. 2 No. 2 December 2009 u 19

The coastal area of Bangladesh is

historically recognized as the venue for
disasters of catastrophic proportions
especially the eastern coast of Coxsbazar.
Since 1898 Coxsbazar and Chittagong
coast line has been hit by 28 tropical
depressions and cyclones the worst two
being in 1991 where 138,000 were killed
and 1997 where around 10,000 were killed
(BBS, 1992). The CPP network in Coxs
Bazar covers seven sub-districts (Teknaf,
Ukhia, Kutubia, Moehskhali, Chokoria,
Pekua and Sadar) which include the
catchment area with the population of
over two millions. The CPP is responsible
for disseminating cyclone early warning
through 5 HF and 25 VHF radio stations
and awareness to the population at large
(Fig. 3).

A total of 200 villagers were surveyed

about the activities performed by the
CPP volunteers in pre, during and post
Fig. 3: Study area Coxs Bazar in Bangladesh
disaster phase. Questionnaires include
activities like warning signals and their dissemination, evacuation, sheltering, search
& rescue, first aid and relief operation. This paper also brought up community people
expectations and suggestions for CPP volunteers. It includes all the seven sub-districts of
Coxsbazar district.
The country is one of the worst sufferers of all cyclonic casualties in the world. The
high number of casualties is due to the fact that cyclones are always associated with
storm surges. Storm surge height in excess of 9m is not uncommon in this region. For

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example, the 1876 cyclone had a surge height of 13.6 m and in 1970 the height was
9.11 m (WARPO, 2005). In fact, the 1970 cyclone is the deadliest cyclone that has hit
Bangladesh coastline. With a wind-speed of about 224 km per hour and associated storm
surge of 6.1 to 9.11m, it was responsible for deaths of about 300,000 people. A list of
devastating cyclones is given in (Table 1).
Table 1: Major cyclones that hit the Bangladesh coast
Date

Name

Death toll

November 1, 1876

The great cyclone

2,00,000

30,00,000

November 12, 1970

Bhola cyclone

470000

110,00,000

April 29,1991

1991 cyclone

138882

1,37,98,275

November 15, 2000

Cyclone Sidr

3363

89,23,259

Cyclone Aila

193

39,28,238

25 May, 2009

Affected population

Source: Disaster Management Bureaus and Karmakar, S., 1989

Fig. 4: Villagers primary sources of early warning/ disaster signals

Radio still is the main source of early warning to the community people in the coastal
areas of Bangladesh. Unavailability of electricity, cheap, portability, use of battery and
usability with fishing boat at sea for fishermen made radio is the primary source of getting
cyclone warnings (Fig. 4). After that CPP volunteers is the sources of early warningin
the community. People also getting warnings from local government offices, members,
chairmen, television, mobile, newspaper etc.

Vol. 2 No. 2 December 2009 u 21

Fig. 5: Understanding of the CPP disseminated signals

92 % community people said that they understand the CPP dessiminated signals (Fig. 5).
In Bangladesh cyclone signals ranges from 1 to 10 depending on their location and wind
speed. But for easy understanding of community people these 10 signals were divided in
the 3 flag system (Fig. 6). Signal 11 means all communication system has brakon. But it
is found that still there is 8 % people do not know or lack of orientation with this signal
system.

Fig. 6: Signal flag of CPP program

Fig. 7: Whether CPP volunteers give any idea about easy and safe way to go to the shelters

22 u Journal of South Asia Disaster Studies

Community people know where is the shelter and how to go there easily. But in time
of emergency, villagers actually decide at the last moment to evacuate their houses and
go to cyclone shelter (Fig. 7). In that moment high wind speed, dark night, broken trees
branches, destroyed houses, with rain and tidal surge, specially elderly, women, children
faces much difficulty in reaching cyclone shelter. Sometimes they loss the location or
can not reach at the shelter in time. So CPP volunteers also give them an idea how to go
the closest cyclone shelter in time of early warning dessimination. People decide to go to
cyclone shelter at the last moment because some reasons, they includes

Lack of capacity of cyclone shelter

Lack of drinking water & sanitation facilities

Lack of separate places & separate facilities
for women

No space for livestock

Old, unsafe building structure
Unhygienic environment

Fear of losing livestock and asset

House is more secure than shelter

Insecurity
False warning

No or poor approach road

Fig. 8: Whether the CPP volunteers maintain the cyclone shelter.

Almost 80% community people said that CPP volunteers maintain the cyclone shelters
(Fig. 8). The reason behind that the land owner who donated that land for shelter usually
a volunteer also. So he felt a ownership of that shelter and try to maintain that all
the time. But some times it require major repair work that is much costly and cannot
possibile by the volunteers. The way they CPP volunteers maintain the shelter includes

Cleaning & washing

Ensure security
Operating community schools

Prepare space by arranging chair & table

Special care on children, pregnant
women, disable, old people

Vol. 2 No. 2 December 2009 u 23

Fig. 9: Whether the CPP provides rescue services during disaster

About 79% respondent said that volunteers provide rescue services to the community
people during and after disaster (Fig. 9). After disaster actually all people involved in
rescue operations. CPP volunteers have training so they can do it effectively and can lead
the rescue team in their activities. CPP performed rescue activities includes

Bring injured people into safety with

Banana raft, life jack
Take them to the doctors for

treatment

Engrave the dead bodies
Search remote places for rescue

Give orientation on search & rescue to

community people
Rescue group formation
Clearing road, fit for communication

Fig. 10: Whether the CPP volunteers provide first aid support to the disaster victims

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Most of the people respond that volunteers provide first aid to the affected population
(Fig. 10). Only 14% people siad no.but it also depend on the availability of the firstaid
box, medicine, skill of the volunteer, necessary materials etc. it is also depend on the
severity of illness of the population. Types of first aid support provided by CPP to the
victims includes

First aid & primary medicine

bandage for wound
Carry them to safe place
Send to hospital

Give orientation on First Aid to

community people
Give/ arrange blood

Fig. 11: Whether CPP Volunteers provide any services during emergency
relief distribution

CPP volunteers also involved in emergency relief operation including all activities damage
asssessment, beneficiary selsction, distribution etc. Villagers also mentioned that after
disaster many organization come with relief items but they invilved their own people in
beneficiary selsction and distribution. But most of the organization mobilize CPP in the relief
distribution process (Fig. 11). Role of CPP volunteers in emergency relief services includes

Damage assessment
Beneficiary list preparation
Transportation / carrying of relief
items
Distribute relief materials

Maintaining security
Coordination with UP office
Organize relief distribution

Vol. 2 No. 2 December 2009 u 25

Fig. 12: Required educational qualification of the volunteers

The average expectation for the education level of is class VIII to SSC. But fot better
managemnt, planning, coordination with the local government, they asked for some
educated person of graduation level. As it is voluntary service and only required in the
emergency period of several days so they think it is quite logical and relevant. But most
of the people having in degree level education actually do not live in the village and
sometimes do not any feel interest to work voluntarily in the disaster time (Fig. 12).

Lack of skill in signal dissemination,

shelter, rescue

Signal dissemination equipments
Lack of willingness

Manpower limitation
Lack of rescue instrument

Scarcity of volunteers
Unable to understand signal
importance
Repair capacity

Villagers also give some suggestions so that volunteers work can be better and they will
get more services from volunteers. Villagers advices to better maintenance of the cyclone
shelters through

26 u Journal of South Asia Disaster Studies

Make a committee for shelter

management
Ensuring water supply & sanitation
facilities
Repairing cyclone shelter routinely
Equipped with minimum
instruments (first aid, rescue, mega
phone etc) in shelter
Use of shelter in community
activities
Assigned volunteers for specific
activities

Tree plantation around shelter

boundary
Permanent Guard/cleaner
Green belt, supply instrument, repair
shelter & shelter yard
Cleaning & washing the shelter
Training on maintenance and safety
of cyclone shelter

The initiatives needed to enhance the capacity of CPP in search and first aid work

Proper training on first aid and search

& rescue

Supply of rescue instruments

Supply of sufficient first aid kits

Develop community trainers group

Provide them TOT
Regular basic and refresher training
for the volunteers

Fig. 13: The required training for CPP Volunteers

Villagers identified a number of trainings need to be provided to the volunteers. From

the table it is clear that the main four impotant training needs are search & rescue, first
aid, eraly warning dessimination and relief management (Fig. 13).

Vol. 2 No. 2 December 2009 u 27

Fig. 14: Villagers expectation regarding ideal volunteers mentality

Community people also express their expectation about the mentality and behavior of
the volunteers. As their acceptance and role in mobilizing community is very important
during any disaster event so they should possess some qualities. Generous, industrious
mentality and polite behavior are the three main point that villagers identified. Initiatives
need to be taken to improve the performance of CPP volunteers (Fig. 14)

Increase number of volunteers each

group
Increase volunteers capacities on first
aid, rescue
Provide rescue instrument
Provide first aid facilities
Prepare detail local work plan
Participation in local govt.
development activities
Regular training

Better coordination with local

government
Involvement in awareness building
activities
Volunteers need and performance
evaluation
Enhance coordination
Recognition
Monitoring performance

Strengths:The following are the strengths of CPP

1. Volunteers organization
2. Spirit, commitment and dedication of the volunteers
3. Rooted in the community

28 u Journal of South Asia Disaster Studies

4. Use of the emblem of Red Cross (symbol of impartiality and neutrality) and the
service-orientation of the organization
5. Check and balance through the policy and management committees, constituted
with the representatives from the Government and the Red Crescent Society.
So it is clear that CPP volunteers play very important role in warning dissemination,
shelter management, search & rescue, First aid and relief distribution activities.

710 km long coast line of Bangladesh with numerous off-shore islands are inhabited by
11 million people who are direct beneficiaries of the programme and they depend on
CPP. Its devoted and committed volunteers are well organized to face any eventualities
for saving lives and properties of their own communities. These extra ordinary volunteers
team need to be supported for the very well being of the 11 million coastal people
of Bangladesh. Generally in the pre-disaster, during the disaster and the immediate
aftermath (24 72 hrs) the CPP volunteers and the communities themselves are the only
people/ organizations that respond. CPP is an effective, grass-root oriented, disciplined
and tightly knits organization which is dedicated to the task of protecting the population
along with community capacity build up activities. Its 42675 volunteers are respected
and becoming increasingly integrated and influential within their community and
with the local government agencies. They exhibit a high level of commitment to their
programme and readiness to meet the community requirements for better disaster
preparedness. Since the inception of cyclone preparedness programme in 1972, a total
of 178 depressions have formed in the Bay of Bengal out of which 20 intensified into a
severe cyclonic storm. The programme faced all the situation with determination and
courage and gradually achieved greater success in moving people to shelters and saving
live and property of the coastal people.

Ali, A. (1999), Ghurnijhar (Cyclone), Bangla Academy, Dhaka.

Bangladesh Meteorological Department (2005) List of Major Cyclonic Storms from 1960 to 2004 which
causedhuge loss of lives and properties in Bangladesh, BMD, Dhaka (unpublished document).
BBS, (1992). Bangladesh Population Census, 1991, Community Series, Coxs Bazar, Bangladesh Bureau of
Statistics, Dhaka.
CDMP, (2006), Preparing for Climate Change, Climate change Cell, Component 4B of Comprehensive Disaster
Management Programme, Dhaka.
Disaster Management Bureau (DMB), Ministry of Food and Disaster Management, Government of
Bangladesh. http://www.dmb.gov.bd/

Vol. 2 No. 2 December 2009 u 29

DMB (1997), Standing Orders on Disaster, Disaster Management Bureau, Dhaka.

DMB (2010), National Plan for Disaster Management, Disaster Management Bureau, Dhaka.
Karmakar, S., 1989. Natural Disasters in Bangladesh: A Statistical Review. Paper presented at the seminar on
Impact of Information Towards Mitigation of Natural Disasters, held on January 7-8, 1989 at BANSDOC,
Dhaka, Bangladesh.
WARPO, (2005). National Adaptation Program of Action (NAPA): Water, Coastal Areas, Natural Disaster &
Health Sector, Water Resources Planning Organization (WARPO), Dhaka.

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