Rakotondrasoa Faramalala
Public Administration
Department
Parahyangan Catholic University Bandung
Indonesia
INTRODUCTION
Implementation of public policy is the process of implementation
of decisions. Implementation of talk can characterize
a time
of public action where
the decision confronts reality through
the implementation of government directives, here was a topic on the implemented policy
public DRM in Madagascar. The original idea for this study comes from the statistical material losses and casualties which do
not improve as it predicted in public policy. Since the year
1995 until 2005,
including Madagascar did not
yet know the practical mitigation strategy,
the statistic does
not surprise
given that even the state does not mastered the reduction of vulnerability strategy. But from the year 2005, since the
Hyogo
Framework
launched in 2010 that strictly
requires the intervention of
the state in mitigation and environmental impacts. An emergency evaluation at
each cyclone
passage was made and found that despite all the efforts made, the
number of victims do not stop and do not im-
proved: 70% ravaged houses, social infrastructure has 72% destroyed: schools, hospitals, road, rapid increase
of diseases, agricultural infrastructure and agriculture 80% destroyed, casualties:
1500-2000 losses at each cyclone
passage, and economic
losses estimated up to 100 million US
dollars
per
year . This means that the
same
situation
is repeated at each cyclone passage. So that
is why we speak in this study the problems on the implementation of public policy by
speaking from the legislation adopted up to the real implementation. Yet we must not forget that despite the repetitive situation
in
case of cyclone
or flood, it finds a
consequent evolution
on the preparation of the community face the passages
of aleas (random or unpredictable event) thanks to the implementation
of public policy
because before, all the houses are totally destroyed or at least 95%, social infrastructure completely destroyed. But what interests us here
this
is the rea- son for this slight
improvement. The issues it what are the factors that block implementation. To better understand the subject we
will divide into 2 parts, in the first
part: the general
presentation of public policy DRM and in the 2nd part of
the implementation DRM public policy.
Theoritical Framework. The Top down
approach to implementing is a system of command and control of the government in the pro- ject, which concerns the general basic population or the community directly concerned. The top
down system has: (1) Coherent and clear goals
but also articulated at the
top of the hierarchy, goals in public policy are clear and formal with
the Hyogo Framework. (2)
Knowledge of the
causes and relevant effects, analyzes were made even before public policy writing (3) a clear hierarchy
of powers, in Madagascar, the Decentralization of the management of risk
and disasters is one
of the faces showing
the hierarchization of the system. (4) Rules at the top and the policy
is in line with the rules,
the
national office of risk
and
disaster management as well as the ministry of interior established the rules according to the
regulation. (5) Resources / ability
to run up. The top-down
approach is rational global approach to
planning. It is compatible with democracy
in mind, then the elected delegate the authority to implement the
non-elected officials (civil servants) who are accountable
to the democratically
elected
representatives in the community. The
employees of the national office and the employees of the Ministry of Interior are the non-
elected. However, raise the
most depressants can
implement the policy
with
the standards that citizens do not understand,
which could also bypass
their rational
preferences. When
this happens, top-down is no longer implemented, but
tactics.
The top-down perspective assumes that the
objectives of the policy can be specified by
decision and that the
application can be
completed successfully by setting up certain
mechanisms
(Palumbo and Calista 1990, p13). The essential
point is that policymakers possess a strong capacity of implementers controller and all players.
Van
Meter and Van Horn (1975). The government has a large
role to check the
activities of NGOs which are
the principals actors of the implementation in Madagascar
.And Mazmanian and Sabatier (1978, p18): the
implementation
is related with the decision taken by the authorities in the public policy. Jeffrey Pressman and Aaron Wildavsky (1973) discuss the extent to which the successful implementation
depends on the links
between the various agencies and
departments to
local. This level that involves the community in the
forefront of the responsibility. And
this shows the necessity of fokontany of power and committee members who are elected democratically.
In all the top-down theory is based on the hierarchical level of power coming up at the
community level, which is unquestionably with public policy
and the implementation of risk management
and disaster Madagascar.
Top-down theory and repetition problems of
the community
after the passage
of a cyclone
Decentralization is one of the policies in the public policy
DRM in Madagascar. This system has had great success and since
it does not support the Top-Down theory that explains very clearly
the prior analysis before the writing of public policy
but in particular the hierarchization.
Yet this does not prevent
the failures
of this theory, because the problem is that there is always an alarming repetition
of the problems after the passage of cyclone or inundation, the first step
of this theory and also the 2nd stage plays
the key role. These are: first, have a clear objective
and
coherent then knowledge relevant causes
and effects. Despite the clear and coherent
objectives raised by
the
Hyogo Framework,
Madagascar must specify its own goals to make
it more clear and Coherent because if the results are not satisfactory, it is in the consistency
of public policy which knows a gap. This incoherence necessarily disrupts the goals that are also not
very specific. In evoking the hierarchization;
the lowest level cannot not jog
to the highest level
because of resources
lack
of. So have to prioritize
in the first step of how this theory
possesses the resources and skills. The lens
does
not realize perfectly
without the cohesion and
cohesion
must consider the resources including
the
ability to achieve
the goal.
For top-down theory that focuses on the role
of policy makers in the control. What made fail failed the hierarchization or
decentralization of DRM because yes the
highest level (NodRm)
only controller or too plays the role of controller
which prevents a good cooperation and slowed all activities. That is why situations repeat them-
selves every year. That is why
we also talk about
role of NGOs because top-down theory according to Jeffrey
Pressman and Aaron Wildavsky (1973)
emphasizes the closer
links between Ministers, organizations and the local community on the implementation
and success the implementation of public policy.
In connection with
the problems of implementation, we can say directly that an implementation may fail in this top-down theory
of whether
one of the pillars is not at the level to under- stand
the objective. The talking of a few low-
level studies of local committees of DRM.
The theory is the top-down theory
key
of the of public policy
implementation in Madagascar. There are
invaluable results despite the
problems encountered. And hierarchization
levels (decentralization), goals, causes the knowledge,
relevant effects, rules, resources and Capacities play a very important role in achieving the
objectives.
RESEARCH
METHODS
All of this research study
were made since
the year
2012 within the local community, risk management
and disaster committees in each level and interviews
with
officials of national office on DRM in Madagascar and with
responsible within CARE international also. The
research is divided into 2 parts: the experiences I even within
CARE International and analysis of data.
1. By experiences
I will like to put clear from the beginning that
my humanitarian work at Care International Madagascar has an incentive to do more research
on DRM Madagascar, particularly on the effectiveness of
public policy. Care International is an NGO that implement public policy DRM Madagascar.
The
first step of the research was the participatory research
method: to map resources,
risk mapping, seasonal
calendar, historical
time- line, Venn diagram. This method
has
two major objectives: to involve the local community to analyze their situation, and take
out the problems and threats faced by the community
during the year. Much of this analysis was made
with the SWOT method. Because it is the same
community that suggests solutions to their problems after having presented the straights of their locality. This means
solving
the problems in using their own way. This working party
has been out of the emergency preparation plans written by the same
Committees themselves and assisted by
assistants
Social mobilization
like
me. After these analyzes, so we could know all the problems of the community before, during and after the hurricane and inundation. The solutions achievable within the community and the responsibilities of each committee member during
the passage of a alea. Almost all towns and fokontany in the eastern part of Madagascar were able to plan their preparation for
emergencies. The number of established plan is around 200 in end of 2013, and these plans are updated annually by the same
committees.
The method of participatory
research de- marches
was based on the concept LCSM (Living Condition of Securization Menage:
Household ability
to respond to basic needs such
as
education, health,
food and nutrition, housing, infrastructure and environment)
2.
Data and field visit
analysis
After the implementation of public
policy, made by the state or NGOs, we could know the
problems encountered. First data
obtained demonstrate direct problem of public policy and
the weakness of
the State
taking responsibility. The second type of analysis shows how
target communities perceive public policy
implementation.
The second type of data collected was in the DRM national office in Madagascar and
within CARE
International Madagascar
has evoked their qualitative
work on the implementation of this public policy.
RESULTS AND
DISCUSSIONS
A. OVERVIEW OF PUBLIC POLICY IN MADAGASCAR DRM
1. Origin
of DRM in Madagascar
Why Decentralization of DRM it is so
important and urgent
priority
for
the state Com-
pared to many
others?
Madagascar is The Most country climate shocks exposed in Africa after-Comoros.
The country is regularly
affected by cyclones, floods and
drought. It is
estimated that almost
quarter of the population (Approximately 5million people) live in risk areas. Madagascar is among the top 10 countries with the highest index of
mortality risks associated with cyclones. The country is between medium risk and high risk (6 Index),
with an average of 30-100 deaths per year,
Slightly lower than that of
Bangladesh
(Class 8), of the Philippines, with a goal similar risk level
to that of India , the Dominican
Republic and Haiti. Madagascar is an island at risk in matters of natural disasters especially flooding and cyclone. Madagascar's east
coast
is
classified
as
2nd red area
in the Indian Ocean (cyclone: each
year,
7 to
12 cyclones spend months from October up to April). Cyclones are a constant
threat
to the people living on the coast of Madagascar. For example, the 2008
hurricane season, the damage is estimated at $ 176 million, affected
535,000 peoples,
causing 106 deaths, damaging
4% of schools, 6% of basic health centers, and
1.1 million hectares of rice
fields. In 1994, cyclone Geralda: 400 dead and 40 000 persons dis-
placed
2.
Decentralization of
DRM Madagascar
Law No. 2003 - 010 of 5 September 2003 national policy
is about Disaster and Risk Management (DRM): firstly, determine the national
policy of DRM; secondly, general provisions: it provides the mechanisms and measures to en- sure, in any
status of risk and disasters, whatever
their nature, origin and importance
of the service requirements necessaries of life of the population and Its
defense. Thirdly, the
implementation: they define the guidelines and priority
devices to
follow in terms of risk management and disaster in the short, medium or
long term. Fifth, structure: an instance of design and supervision including elected parliamentarians: an instance of management, coordination,
monitoring and sup- porting of programs and actions. Sixth, financing
mechanisms: annual finance laws establish
financial mechanisms to manage financial Risks and disasters based on the need in including
national level: a budget allocation for prevention
and
mitigation; a contingency fund; a budget al-
location for
rehabilitation
and reconstruction.
And finally,
the final provisions. It is the laws
that are
consistent public policies in the decentralization of DRM.
STRUCTURE
GOALS
Empower the area, district and commune. Improve coordination between area, district, town and community. Make easier and faster the emergency activities. Reduce the vulnerability of the population (by themselves). Increase the resilience rate of population (by themselves).
3. Actors implemented DRM public policy in Madagascar
State. As a designer of public policy, the state should be one of the actors of implementation. Even if the state does not fully participle in implemented public policy, it has the duty to check NGOs while NGOs follow the plan per- forms. Consult NGOs on the problems encountered on implementation step, but especially re- vise public policy with these other actors.
NGOs. NGOs have a ver y impor tant role in the implementation of public policy of DRM in Madagascar, because the state lacks financial means, then the NGOs work for public policy is executed as it is written. The main NGO actors in DRM Madagascar are: CRS (Catholic Relief Service), United Nations services as WFP (World Food Program), FAO, CARE, and the divers associations such as the Red Cross. During the past 15 years, these NGOs were the first rescuers after passing aleas in Madagascar but above the cyclone passage. Approximately 85% of the economic, social losses are restored by these NGOs. Before, for example in 1990, these NGOs do not yet occupied the situation before alea passage :prevention and mitigation, one of the two phases of the DRM. A few years later, with the decentralization of public policy on DRM, Madagascar was forced to adopt new policy requiring the reduction of the vulnerability of the population , the key is to success in the disaster and risk reduction (DRR). This phase of the DRR is fully occupied by NGOs because this phase requires much more financial and material but also human. These NGOs share territories prior to settle for good organizing work in each region.
NGOs. NGOs have a ver y impor tant role in the implementation of public policy of DRM in Madagascar, because the state lacks financial means, then the NGOs work for public policy is executed as it is written. The main NGO actors in DRM Madagascar are: CRS (Catholic Relief Service), United Nations services as WFP (World Food Program), FAO, CARE, and the divers associations such as the Red Cross. During the past 15 years, these NGOs were the first rescuers after passing aleas in Madagascar but above the cyclone passage. Approximately 85% of the economic, social losses are restored by these NGOs. Before, for example in 1990, these NGOs do not yet occupied the situation before alea passage :prevention and mitigation, one of the two phases of the DRM. A few years later, with the decentralization of public policy on DRM, Madagascar was forced to adopt new policy requiring the reduction of the vulnerability of the population , the key is to success in the disaster and risk reduction (DRR). This phase of the DRR is fully occupied by NGOs because this phase requires much more financial and material but also human. These NGOs share territories prior to settle for good organizing work in each region.
Community. We saw above
that the
community is one of the actresses on DRM in
Madagascar,
it is the victim of
disasters. Yet we do not let just
remain as a victim but has to fight against these disasters, while increasing
levels of
resilience and decreasing
vulnerability. The community is the first responsible of their daily lives. By intermediary of these NGOs, the community
is invited to an analysis by itself to provide a bet- ter
solution to its situation. So the community is one of the players in the
implementation of the DRM
public policy in Madagascar.
B. IMPLEMENTION OF DRM POLICY IN MADAGASCAR
1. Problems of Implementation
a. Money
Throughout the area
in Madagascar, the
financial resources still pose
problems. Yet the
state test to look for funding, on the inside (for
the ministerial budget) and outside
(through the intermediary services of the United Nations and
other donors). Despite everything, the money
is still not enough to implement public policy.
Since the global economic crisis, many donors have closed
their wallet or
at
least have a
lower half their financial support to poor countries as many
African states including
Madagascar. Rich countries
like the
US have reduced
their funding and have changed their method of
financing, requires more maturity on demand,
more control and monitoring in the implementation. Was facing such consequences which result
is evident in the implementing of public policy. Funding
is reduced to half, possible work also
reduced.
We must not forget that even installing
DRM Decentralization
in Madagascar; the budget is still centralized in the center; is that there
has
inefficiency and fiscal imbalance ministerial:
95% for the ministry, 1,5% for the regions, and
3,5% for the municipalities. So the regions budgets
are very low then it is from the level of the region
that
has so much work to do.
By realizing public policy, there are some remarks as the level of study of the community
in the perception of public policy that affects implementation. During the connection with the community
through training or local infrastructure installation,
the
employees of the
NGO notes that it is very
difficult to explain to the
community the risk of their daily activities; it is very difficult to make out an analysis of a community by itself. All this because of their rather low level of
study. Therefore, it takes more time
than expected, and also more
material means to make
more easy the understanding of the committees.
During the Decentralization of DRM, a difficulty as there is on the right people sought to form committees. Because
the committees required
someone skills more than others and
have a minimum capacity to
be
able transferring
information to the basic community; which is really
very
difficult for fokontany
that are far from the city. Some 20 members of committees that possess 2 to 5 peoples who can read and write,
and this has a
serious impact on the issuance, the collection of all information in the
DRM or the in- formation play a very important role in the DRM. And this leads up to miscommunication
because there is
poor understanding.
Lack of municipal budget; although
the municipality has made efforts on the budget for
the DRM, the budget is still not enough. Lack of national budget; the national budget is Insufficient,
so the state always call to international aid.
The bulk of the work is done by NGOs. despite the decentralization of DRM Madagascar, some
area do not-have yet committees regional, municipal or district while because lack of budget and because the state does not find these
areas as
priority areas
Certain regions (coastal areas)
do not-have the preparation plan for
emergency
because there's no NGOs while the
state cannot do nothing because financial default, we cannot forget
that big share of financial resources to execute all activities
are
from external
aids. Favoritism reign since decentralization in the community
in an emergency situation. The committees tend to
favor their families when there is distribution of aid for victims and homeless. Often this leads to social
conflict.
c. Public Policy
The 3rd problem arises on the same public policy, public policy is not yet specified, that is to say, it is too general and focuses only
on the vagaries frequent as the
flood and cyclone, while
there are also aleas that the state neglected
its existence as drought or locust
invasion. In an emergency,
the implementation often encounter
this
problem because
of generalization of any public policy
in DRM. Much does not correspond
to the real situation; take as an example the cyclone crossing
in southern of Madagascar
and
the east. In the east after ,the
cyclone
pas-
sage about 2weeks after that period, there
is still
strong rain precipitation, instead, in the south
which represents a very dry
climate, after a cyclone passing, time become very dry. The risk is
very different, and disasters also. Yet, in the con-
tent of public policy, relief after cyclone passage is the same while
it should be different because
an aunt
or plastic shitting
are
not necessary in
the south because it is
very
hot and there is no
rain, they only serve them in canoes sail. Having said that
it is necessary to differentiate public policies
even
in a single domain.
2. The Role
of
NGOs in
the Implemented
DRM Public Policy
By Jeffrey
Pressman and Aaron Wildavsky (1973), the link between implementing
agency,
ministry and the local community is very important in the success of the public policy implementation and
because
we
already talked
at length about the ministry or NodRm,
so we'll start talking NGOs implementation as first implementer
NGOs play
an
important role in implemen-
tation than the state. First, it is the NGOs that have
set
up and execute the
Decentralization of
DRM in Madagascar (vangaindrano, Vatomandry, Brickaville, Fenerive Est, Toamasina) The regionals
committees,
district committees, and
communal committees, locales
committees were installed by CARE NGO: around 60 LCDRM
and
with more than thousand members on one project called Soa Fiarina. After this installation,
it is
the NGO that also strengthen the capacity of each committee
level. This analysis focuses
mainly the field of DRM committees to make
known what is the risk
and
disaster management,
all necessary definitions.
But above
all teach
how to defend the increasing
rate of disasters, increase resilience. Through the intermediary
of NGOs, 80% members of each of the committees
have received full training to make an analysis of
their situation before writing the emergency
plan (for the same community). The emergency plan helps the community to memorize all necessary
activities before, during and after the hurricane. This plan is not only useful for memories these activities
but also engages the community to execute together all
that
is written in this plan.
NGOs do not react just before the arrival
of aleas (eg cyclone), they are there and ready when the vagaries arriving despite the fact that
the community
should know all necessary precautions to deal with the
vagaries, there are al-
ways the victims and
first arrived on seats are
NGOs. They are for first aid: health (cure diseases), nutrition
(food distribution to the homeless,
...), housing (to the homeless a place on: common
aunt, ...); after first aid, they
begin the rehabilitations of destroyed infrastructure: road, school, hospital, administrative office, rice fields, dam through the intermediary
of VCT or ACT money
against live or food against work ... benefiting
more than 32,000 people in
the districts of
Brickaville and Vatomandory, the most
severely affected areas of cyclone Giovanna in
2012, . Even if the aids which have been made by
NGOs
are not sufficient for the population, at
least this much allege food security problem or
others present on the shoulders
of the community for at
least one year.
In Madagascar, NGOs, before settling divides the scene of jobs. Some prefer
to work in the west, certain want in East, or others working
in the South West, it depends on each NGO. But
the most interesting
region for NGOs are the eastern part of
Madagascar because the
vagaries are
more
frequent and striking, yet even in the extreme south which is often hit by famine be-
cause of drought.
Some people have trouble finding room, and NGOs
and associations are the first came
to rescue
the victims before
the arrival of the
state.
3. Influence of NGOs (Care International
Case) in Public Policy and the
Implementation of DRM
As we saw above, the NGO has an important place within the
implementation of public
policy. Here we
take the case of the NGO
CARE INTERNATIONAL
installed in Madagascar since 22 years. The influence of NGOs has also an important place in the community
and
the state. Because NGOs are much more
influential within the community
in relation to the
state. Care is an NGO that works usually
live
in the management of risk and disasters. There
are
two programs within CARE: the emergency pro- gram and development program. The
emergency
program is implemented only after the passage of randomness,
particularly a cyclone or inundation. The development program focuses on the long-term work that lasts at
least
2 years
but still focus in DRR. CARE is an
international NGO
very
strong and well reputed in Madagascar, it works with several donors and recognized by
its strong continuity
of work. It is also an NGO that
implements the DRM policy in Madagascar. One can even say
that it is with the NGO CARE that
all
DRM committees of eastern Madagascar was
able to establish their contingency plan:
more
than 60
contingency plans
established.
As we
know from above, the DRM Committees are experiencing great difficulty in financial term to
realize the
activities set forth in their successive
plan. Because and some NGOs like CARE
can influence the state to revise the public policy of
the true situation, or advocacy within the state to empower those committees. If we take for example the financial problem in the local or municipal committee: after the vulnerability scans with
the community; having realized that the
lack of financial means was one of the major obstacles
to the realization of the contingency
plan; after taking the decision with the community on the
solution of these problems, the project manager
on behalf of the community wrote a request to the authorities
to give
those committees so that
they can make economic
activities to strengthen
their financial resources. This helps a lot the
committees,
because without money nothing they can while they cannot get money without
the agreement of
successive Authorities. Advocacy is one way
of CARE and other NGOs to
improve public policy and implementation
as well.
4. Solutions proposed facing problems
The Stakeholders in the
implementation must allow
committees
to do the activities
that improve their financial resources to facilitate the realization
of
each
activity enunciated
in
the plane
of emergencies preparation. The state on
the other side must improve
the funding application
system, recruit new employees who are specialists in financing request and have already experienced successes
in financing demand in other organisms. Yet we
must
always strengthen the
control over the management of these donations, whether in NGOs or at NODRM. Transparency
is one of the weapons that
the
system has needs.
Set up the Decentralization DRM through- out Madagascar, but not only in the eastern are- as, because all regions in Madagascar are at risk because Madagascar is
an island.
Saw the Baseness of committees’
educational level installed by
the
Decentralization DRM requires that the state and responsible NGOs reinforce the number
of simulation exercises. This allows the local community to under-
stand the role of each in time intemperate. If the
members of committees cannot ensure 100% transfer message to the community, the simulation exercise is one
of the most feasible and cost
effective solutions. Increase or create for fokontany who have never practiced this system. It also is possible
to increase the brackets used during all training and preparations, people who can neither read nor write are more flexible with the
images. This means that the budget on the
sup- ports of material have to increase.
We must not forget that even if a
type
of aleas happens in two
or three regions east of
Madagascar,
the consequences are not necessarily the same. Scientifically, it should be different,
so the preparations should be
different too. Stakeholders must put in place since
the beginning of the hurricane season all possible alternatives to avoid surprises and bad results: to prepare for the effects of wind and inundation but not only winds.
CONCLUSION
To conclude, we can say that the implemented DRM public policy
in Madagascar met with
several problems in the financial sector is the most dominant. And
this
financial problem can lead to several other problems like communication, material or human. But we can also say that the adaptation of public policy
at
the community level is very difficult. Yet regarding the
implemented DRM has seen
more success than
failure for regions that were already decentralized.
REFERENCES
Decentralisation
a Madagascar, 2010, 20p
Law 2003 - 010 On 5 September 2003
On national policy Desaster and Risk Management
in Madagascar
Mazmanian, D.A. and
Sabatier, P.A. (1983), Implementation and Public
Policy. Glen-
view, III.: Scott,
Foresman
Plan decontingence national cyclones et inondations; Ministry
of Interior; National of
fice of Risks and disasters Management, Madagascar,2012,48p
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