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depend on their will”, . obvious in the Third World, but evident over time even in our own

largely suburban context. His position is, as he has always stated, “conservative anarchist” and the chances of a rapprochement between himself and his Marxist critics are slim indeed. “Change will only come about through the simultaneous and complementary action of people ‘at the grassroots’ and those in positions from which they can influence or make government decisions” he argues pragmatically, “even the smallest opportunities must be seized.”

And of course, changes are occurring. While the stack of books on squatter settlements continues to grow and as these articles are being read, the reality makes them out of date. Since Geoffrey Payne’s article was written the Turkish example has altered: muhtars are now elected by the mahalles but are paid by the Government and are, in effect, public servants. They are required to see that, for the time being, the gecekondu do not expand, while new measures to support the previous waves of immigrants to the cities are introduced. The taxi-dolmus no longer run and public and authorised private bus services operate between geGekondu and Ankara city centre. All settlers are entitled to deeds for their house plots which may be registered after architects’ offices have surveyed the sites and declared them to the government. For the householders a government plan of house upgrading is being implemented. Admittedly, this means the inhibition of further squatter settlements, but improving opportunities in the regions may stem the flow to the cities. Thus, in the Gedez region a partial change-over to animal husbandry, improved markets and road communications and an expanding mining industry contribute to the relative prosperity of the area.

Of course, the Gediz example which I have used here as a counterpoint to the theme of these three books, only fits where it touches. We need our debates, we need our attempts at overview, but the reality of current experience can be a powerful mediator to the smugness of armchair criticism.

Paul Oliver Oxford Polytechnic, UK

FREDERICK C. CUNY, Disasters and Development. Oxford University Press, New York, Oxford UK 1983. 278 pp. illus.

There is no evidence that there are more natural disasters in this century than in any other, or that they are occurring with increasing frequency; it merely seems like it. News media, both the press and television, bring reports of disasters into our homes within hours of their impact; charitable organisations make their appeals to which we respond, perhaps to assuage our guilt at being safe and far away from them. Continental plate theory has entered the classroom; geophysicists stand on the edge of craters before our eyes; feature programmes are made of major catastrophes. All this media attention has made us more aware of the scale of natural disasters and carefully selected photographs, and texts of the appeals, ensure that we are conscious of the human suffering involved. But, as Frederick Cuny points out in his book, media reports may be exaggerated or harmful in the effects they have on readers and viewers while responses to appeals frequently result in immense quantities of unwanted commodities being sent to disaster areas to create more problems for relief bodies. Stereotypical images of ‘panic’ or ‘disease’ are perpetuated by inaccurate reporting while voluntary agencies are obliged to emphasise emergencies that can be graphically portrayed in order to raise funds. The kind of vulnerability analysis and pre-disaster planning which is the responsibility of government is not easily communicated visually.

Disasters and Development was commissioned by Oxfam America and was supported in part, by the Tinker Foundation and others. Its author, Fred Cuny, is the head of Intertect, probably the most experienced of all consultancy firms concerned with disasters. His unrivalled involvement in the field means that he has had first-hand

knowledge of such major disasters as the Managua earthquake of 1972, the 1976 earthquake in Guatemala and the cyclone and floods in Andhra Pradesh in 1977. On these and other events he draws for illustration, though under-playing his role and that of Intertect in the recovery process. In fact, the depersonalised tone of the work is to be regretted, for its objectivity tends to eliminate the insights and observed cameos that could have brought the benefits of his Ion, (7 experience to bear upon some of the issues that he discusses.

With Ian Davis, Cuny was consultant to the Office of the United Nations Disaster Relief Co-Ordinator in the preparation of the UNDRO report Shelter After Disuster: Guidelines for Assistance (New York, 1982). This work, with its chapters divided and sub-divided and with its innumerable lists seems to reflect Frederic Cuny’s method in his book. Though the UNDRO Guidelines is more narrow in scope the approach is not dissimilar. Not surprisingly, there is an overlap of information and comment, both works observing, for example, that few of the ‘key staff personel’ engaged in relief and reconstruction programmes have had previous disaster relief training. Cuny. however, has more room to expand on such statements and to discuss some of the serious implications of, say, the lack of accountability of relief agencies. The effectiveness of his points is frequently weakened by its lack of specificity: the shortcomings of a number of the volags (voluntary agencies - relief work produces its own language) is hinted at and their failures not identified. One suspects that this reflects to some extent his relationship to Oxfam (not blameless in its relief work) or the editorial hand of Susan Abrams, but perhaps it is due to his reluctance to offend. Certainly the impact is ncutralised when he states that “Governments have been known to show favoritism in the distribution of relief supplies and even missionaries have been found using aid as a means of furthering their own religious objectives”. Fc\\ consciences will bc disturbed by SO mild a

censure. Perhaps it is this reticence which led him to use ‘The Borracho Hurricane’ as a

demonstration of the workings of the relief system. The events at Borracho were. like the Republic itself, Fred Cunyis invention. Thck “do not rctlect on the ability or capacity of any individual or agency. Most agency names are fictitiou\” he states guardedly. As part of a scenario for a role-play simulation exercise. the account of the relief programme might be useful, but as anyone who has employed such training technique knows, even in the confines of a few rooms the results are often chaotic and unpredictable. In a book. with no opportunities to test the validity of the fiction, the account serves little purpose.

Far better therefore, is the long chapter on Programa Kuchuba’l. the reconstruction programme following the Guatemalan earthquake among the Cakchiquel-speaking Indians (Kuchuba’l = ‘working together’ in Cakchiqucl). The book originated as a study of Programa Kuchuba’l and was expanded to its present form. The most rewarding part still lies in this case study. Though much of the account revolves around the introduction of safe building techniques the methods of achieving participation, the training of builders, the problems of organisation and strategies for financing and the initiation of other works including the improvement of rural roads makes instructive reading. The evolution of the programme was from “development through disaster” to “planting the seed” Cuny summarises, falling back on the catchphrases and metaphors with which the field is rife and which are often so misleading: “quick and dirty”. “firefighting”, “shotgun approach” among them.

Nevertheless, the case study of Programa Kuchuba’l begins to meet the promise of the book’s title. Cuny has been one of the first to observe that disasters and their aftermath in recovery can be significant steps towards development as money is released. governments are obligated to show compassion and responsibility to the stricken. new technologies are introduced through aid programmes and expectations are awakened. Unfortunately the theme is not pursued in depth. One reason is that the book is consistently a-political: the potential for development in one system, or the repression of the forces that could lead to constructive change in another, are not examined. Another is the fact that while some measures related to development through appropriate

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technologies have been made sporadically, few organisations - whether volags, NGOs or governmental - have shown willingness to change their philosophies from meeting emergency needs to directing recovery towards long-term development.

Illustrated with clear diagrams and unsensational photographs, simply written (though with one major titling error, p. 198) and including a glossary and short bibliography, Disasters and Development is a useful, non-technical guide to the field which would provide material for debate in training courses and be a valuable primer for officials engaged in relief and recovery. But if Fred Cuny can be induced to put pen to paper again, I - for one - hope that he will draw directly on his personal experience and not pull his punches in the process.

Paul Oliver Oxford Polytechnic, UK

BRIAN GLOVER et al., Water Supply and Sanitation Project Preparation Handbook. Three Volumes, The World Bank, 1983, 172 pp, 332 pp, 388 pp.

The World Bank has added three new technical papers to its useful series. These together form a ‘Water Supply and Sanitation Project Preparation Handbook’. Brian Glover wrote Volume 1: Guidelines, which is Paper Number 12. For Volumes 2 and 3 (Paper numbers 13 and 14) Glover was joined by Nicholas Burnett and Michael McGarry to present Case Studies. The handbook is well-written and should prove of very great value for Third World engineers and for others associated with water and sanitation projects in developing countries.

Several times during the past few years I have heard representatives of international agencies claim that ample funds are available for properly prepared and properly presented projects. I am not sure that this is still true. However, the converse is certain - however much an organisation may deserve help to improve its water supply and sanitation, it will stand no chance at all of getting international funding without proper project preparations. It has sometimes been claimed that organisations anxious to obtain funds do not know how to present their cases. Expertise in project planning is scarce in developing countries and there have been no generally accepted standards or procedures. This excuse is no longer valid. Brian Glover and his colleagues have provided excellent guidelines and case studies to show how the several stages of project preparation should be carried out.

The Handbook deals mainly with what may be broadly described as technological aspects of water supply and sanitation. The myth that project planning is the sphere for economists is dispelled. Terms like ‘opportunity cost’, ‘sensitivity analysis’ and ‘benefit- cost ratio’ are hardly mentioned. A good and experienced engineer, reasonably aware of broad sociological and economic issues, should have no difficulty in understanding everything in these books. With some advice on a few particular topics and a reasonable staff to do the ‘leg-work’ and detailed design he should be able to prepare projects for his own area. Of course experience is essential for the sound professional judgements necessary for comparing alternatives, but the Guidelines give clear indications of information required to make such comparisons.

The first volume gives guidelines for the various stages of project preparation. An introduction sets the whole procedure in context - from an awareness of the need for improved services to feedback for future projects. Guidelines are then given for the identification report, the pre-feasibility report, and the feasibility report. The interaction between all parts of the process is made quite clear. A final chapter gives a guideline for rural work which suggests what should be done for a programme consisting of many similar components but where detailed design is not appropriate.

The information to be given in the reports is fully described and the author is to be