Christian Aid South Asia Lessons from South Asia Flood Appeal … › project ›...
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C h r i s t i a n A i d S o u t h A s i a L e s s o n s f r o m S o u t h A s i a F l o o d A p p e a l 2 0 0 7 - 1 2 P r o g r a m m e s i n I n d i a a n d B a n g l a d e s h
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C h r i s t i a n A i d S o u t h A s i a L e s s o n s f r o m S o u t h A s i a F l o o d A p p e a l 2 0 0 7 - 1 2 P r o g r a m m e s i n I n d i a a n d B a n g l a d e s h
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Study:
Sujatha Rita, Shashanka Saadi, Barsha Poricha, Vijayalakshmi Viswanathan and Anshu Sharma (coordinator)
Photographs:
Emdadul Islam Bitu, Imran Ahmed, Sharbendu De and Christian Aid Partners
Media:
Meghna Chawla, Tarun Sharma and Jyotsna Singh - Safer World Communications, www.saferworld.in
C h r i s t i a n A i d S o u t h A s i a L e s s o n s f r o m S o u t h A s i a F l o o d A p p e a l 2 0 0 7 - 1 2 P r o g r a m m e s i n I n d i a a n d B a n g l a d e s h
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Note from the Authors
The fury of floods has been on a distinctly disturbing trend across India and Bangladesh in recent years. In
the short term, the casualty figures due to natural disasters may have shown a slowing trend. This is due to
improved warning and preparedness, as well as the fact that there hasn’t been a disaster with a magnitude of
the South Asian Tsunami or Kashmir Earthquake. However, the economic losses and human hardship are
mounting significantly.
Floods cause the maximum economic loss across all natural disasters. Between 1990 and 2011, floods
accounted for 65% of the $ 43,841,167,000 total economic loss in India. They also accounted for 57% of the
9,27,573,655 people affected. Much of these losses and suffering remain under the radar as the communities
are poor and their economies informal. The personal losses, though amounting to huge magnitudes in their
own rights, do not dent the formal GDP and so do not shake the souls of the media, the government and
people at large.
The work carried out by Christian Aid, its local partners and communities is commendable; particularly since
it takes shape in very challenging settings, with very limited resources and in the face of detrimental policies.
This study is an ongoing effort to document and collectively reflect upon the successes and challenges of
flood responses in the 2007-12 period. It is a forward-looking attempt to learn lessons and plan ahead for an
ever-improving aid system. One that not only helps affected families survive, but also helps trigger rapid
recovery and long-term resilience.
The study, along with the audio-visual documentation going on in parallel, will culminate in a final set of
lessons learnt. The supporting learning aids will help future steps of improving institutional memory and
putting in place capacity building measures.
We are grateful to all colleagues at Christian Aid, their partners, local groups and the communities who have
hosted us during the study process. They have been kind enough to share their stories of both despair and
triumph. We are also thankful to our own colleagues and team members, including the researchers, writers,
photographers, designers and support staff who have made this effort possible.
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Contents
Acronyms 1
Background 3
Approach, Major Accomplishments and Challenges 6
The Lesson Learning Study 8
Inclusion and Human Rights 10
Long-term Resilience 16
Capacity Building 22
Knowledge as Humanitarian Capacity 27
Accountability 31
Advocacy and Networking 34
Planning for the Next Big One 37
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Acronyms
ANHAD Act Now for Harmony and Democracy
BSI Bible Society of India
CA Christian Aid Emergency Response
CAER Christian Aid Emergency
CASA Church’s Auxiliary for Social Action
CCA Climate Change Adaptation
CCDB Christian Community Development of Bangladesh
CT Cash Transfer
DFID Department for International Development
DRCSC Development Research Communication and Services Centre
DRR Disaster Risk Reduction
DSK Dushtha Shasthya Kendra
EHA Emmanuel Health Association
HAP Humanitarian Accountability Partnership
LGBT Lesbian, Gay, Bisexual and Transgender
PGVS Poorvanchal Gramin Vikas Sansthan
SA South Asia
SASY Social Awareness Society for Youths
SEEDS Sustainable Environment & Ecological Development Society
SGP Sariputta Gana Parishad
SNIRD Society for National Integration through Rural Development
VfM Value for Money
VICALP Visionaries of Creative Action for Liberation and Progress
WASH Water, Sanitation and Hygiene
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Background
Though Christian Aid launched the initial South Asia flood appeal in 2007, the
unfolding events led to a series of flood responses in the ensuing months and years.
This included cyclone related floods in Bangladesh, West Bengal, Andhra Pradesh
and Tamil Nadu; and a series of riverine floods in Uttar Pradesh, Bihar and Odisha.
South Asia has been facing an unprecedented increase in its number of disasters, especially over the last five years (2007-
2012). A South Asian fund appeal was launched by CA during the 2007 floods in India and Bangladesh. Since then, the
region has seen a number of flood emergencies. In 2008, the massive Kosi floods, among others, affected Bihar and Uttar
Pradesh. Cyclones Sidr and Aila devastated large parts of West Bengal and Bangladesh in 2007 and 2009 respectively,
causing a severe flood-like situation and badly affecting lives and livelihoods. The year 2009 also witnessed widespread
flooding in Andhra Pradesh, while 2010 saw Cyclone Laila batter the state’s coastal areas. Floods struck Gonda in Uttar
Pradesh in both 2010 and 2011. In December 2011, Cyclone Thane affected large numbers of people on the Tamil Nadu
coast. 2012 saw massive flooding and misery in Assam and the monsoon continues to cause destruction across India and
Bangladesh.
These frequent disasters in rural, poor and marginalised areas have affected the lives of many, including in CA’s regular
operation zones. Working with capable partners across India and Bangladesh, their hard work and that of local
community organisations has yielded fulfilling dividends across almost all humanitarian response interventions.
Alongside the appeal interventions, many programming initiatives have also been carried out in the region that will go a
long way in facilitating better response in the future. The establishment of the Christian Aid Emergency Response
(CAER) group in Bangladesh following Cyclone Sidr is one such example. CAER has completed three phases of response
namely immediate relief, early recovery and rehabilitation. A number of partner organisations have also initiated local
platforms for long-term recovery and risk reduction within their work areas.
India
While Cyclone Sidr and Aila caused extensive damage in West Bengal, India was also ravaged by a series of floods
across Andhra Pradesh, Bihar, Odisha and Uttar Pradesh. The devastating Kosi Floods in Bihar reached unprecedented
proportions in terms of the numbers of persons displaced and livelihoods lost. Cyclones Laila and Thane caused damage
in pockets of Andhra Pradesh and Tamil Nadu. Christian Aid responded through partners including Act Now for
Harmony and Democracy (ANHAD), Church’s Auxiliary for Social Action (CASA), Development Research
Communications and Services Centre (DRCSC), Emmanuel Health Association (EHA), Poorvanchal Gramin Vikas
Sansthan (PGVS), Social Awareness Society for Youths (SASY), Sustainable Environment and Ecological Development
Society (SEEDS), Society for National Integration through Rural Development (SNIRD) and Visionaries of Creative
Action for Liberation and Progress (VICALP). They deployed various relief interventions that ranged from conditional
cash transfers to relief material. In a number of places, this also extended to longer-term actions such as WASH
interventions, the establishment of community-based institutions and support for housing, cyclone shelters and
infrastructure.
Bangladesh
After Cyclone Aila, Christian Aid started emergency response interventions in three unions of Satkhira and two unions
of Khulna district through Christian Community Development of Bangladesh (CCBD), Dushtha Shasthya Kendra (DSK)
and Shushilan. Response and recovery interventions continued in two phases from February 2010 to February 2012.
Emergency response to flooding and water logging was also taken up in four unions of Tala Upazilla in Satkhira
between September 2011 and July 2012.
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The impact of Aila was more severe than Category 4 Cyclone Sidr because it destroyed most of the embankments and
caused saline water intrusion in vast tracts of agricultural land. This devastated the income base of the poor and the
agro-economy of the affected areas. For an extended time period, affected communities were forced to bank on external
support systems of relief and cash transfer by agencies. Those on the margins even had to resort to seasonal migration.
Saline-affected lands became a salt-water desert and the local ecosystem came under severe threat. It was reported that,
in the aftermath of the disaster, means of income generation dipped, health hazards multiplied, women’s reproductive
health was severely affected, children’s education was hampered and school dropout rates increased. Standing crops,
housing and internal communication systems were devastated. Since the usual second crop couldn’t be sown, many
became dependent on only one crop; resulting in a huge labour surplus that further added to the critical unemployment.
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Approach, Major Accomplishments and Challenges
All interventions carried a distinctive overall flavour of Christian Aid’s strategic
approach. This included a focus on positive and inclusive social change; social equity;
a long-term goal of communities free from poverty; and an added focus of reducing
disaster and climate-related risks. Well-framed and quality-based top line
approaches were adopted. However, challenges were faced in maintaining
consistency between this strategic approach and last mile action on the ground.
Christian Aid’s distinctive approach
Some distinctive characteristics of Christian Aid of relevance for the review are:
Aligned with DFID’s Value for Money (VfM) approach
Community based approach (refer Facing up to the Storm)
Approach to positive social change (refer No Small Change)
Emphasis on social equity (refer Introduction to Social Equity Audit)
Vision for a world free from poverty (refer Turning Hope into Action – CA Strategic Framework 2010-12)
Purpose of ending poverty and injustice (refer Partnership for Change – the Power to end Poverty – CA
Strategic Framework 2012)
Strengthening climate resilience (refer Climate Smart Disaster Risk Management)
Programme partnership agreement (PPA)
Participatory Vulnerability and Capacity Assessment (PVCA)
This unique positioning has helped Christian Aid carve out a distinct niche for itself within the humanitarian sector.
There is, however, evidence of a gap in the understanding of these dimensions between Christian Aid’s senior
management and partner organisations’ field staff and community workers.
Major accomplishments
The achievement of Christian Aid South Asia and partners in a programme of such large scale is in itself a creditable
feat. This was spread over very diverse contexts, often inaccessible locations and in very demanding emergency and
conflict situations. Specific `good things’ about the programme include:
Entering and responding across such contexts
Taking a developmental approach in a number of locations
Focus on quality, not just quantity
Inclusive and accountable approach
Points to ponder
Being a widespread and multi-partner, multi-location and multi-emergency programme, the experience also threw up
challenges. It highlighted areas where Christian Aid South Asia and its partners need to think hard and improve systems
and programming for the future. Some critical ones are:
Turning value-based approaches into simple messages that are understood by field personnel
Internal process of documentation and institutional learning
Building the capacity of local partners, field staff and community groups
Investing in research and DRR to make future responses easier
Sustainability of new technologies, particularly for water treatment
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The Lesson Learning Study
A forward-looking review was taken up in 2012 to draw out lessons and improve
future action. Field visits were made to most of the project partners and their sites;
and engagements were held with partner staff, field staff, local groups and beneficiary
families. An audio-visual approach was adopted to draw out strategic lessons in an
easy-to-communicate manner. For each section, a discussion on good practices,
challenges and opportunities has led to general recommendations which are further
broken down into specific ones for CA and field staff. The lessons will be further
developed into capacity building material for partners.
The lessons learnt study
Christian Aid responded to flood and cyclone related emergencies through a number of partners and has reached out to
thousands of people. The journey was filled with numerous learning experiences. Unfortunately, these usually abound
in the stories that are untold beyond the field camaraderie level.
The overall flood response needs to be appreciated for finding the right spaces to intervene; ones that were not always
the most obvious and conventional. Social processes were an integral part of the programming. A people-centric
approach, both in staffing as well as in the way partners worked with communities, made very positive impacts that are
recognised across the board. In select locations, processes of transparency and accountability to beneficiaries, including
implementation of the complaints and response systems under HAP, were very conscious efforts.
The attempt of this study is to capture the experiences; review the challenges and successes; trace ground level stories;
get an assessment of the impact made; and capture all lessons in a manner than can help Christian Aid and partners plan
for the future and build appropriate capacities at all levels.
Specific objectives
Review of the emergency programme in light of the following criteria: appropriateness, timeliness, impact,
effectiveness, efficiency, coherence and, if appropriate, sustainability with reference to the Red Cross Code of
Conduct, HAP and Sphere.
Focus on emergency response to establish the efficacy of the components. Target and establish lessons learned
to inform future design and implementation.
Assess the effectiveness of the internal management of the response by Christian Aid and partners and suggest
appropriate strategies.
Highlight key lessons learnt during the response and rehabilitation stages of the programme so that lessons can
be utilised for future emergency programmes.
Draw clear parallels between the responses across similar events in both the countries, show linkages and
suggest ways for the road to resilience to abate the losses and enhance community based preparedness.
Provide feedback to the assessed in-country partners (both India and Bangladesh), CA South Asia Office, the
India and Bangladesh country offices and the CA Humanitarian Division in order to improve
implementation/design of future emergency programmes (response, early recovery, rehabilitation) and its
integration with CA development work in the aforementioned countries, as well as the countries in the CA fold
with similar disaster profiles.
Create learning materials from the evaluation and impact assessment that are appealing and easy-to-
understand in order to reach out to a larger audience of Christian Aid partners. These lessons would aid in
guiding future emergency programmes in the South Asian region for CA, partners and the wider humanitarian
community.
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Inclusion and Human Rights
Beneficiary selection within Christian Aid and partners has long adhered to the
principle of rigorous selection criteria and transparency. It aims to not just reach
out to the most socially excluded groups, but actually empower them. However, in
situations where a few hundred thousand people are affected, a few hundred
packets of aid can be very difficult to distribute, even within this defined beneficiary
criteria. How do you identify the most vulnerable from within the most vulnerable?
At the same time, how do you ensure that human rights stays at the forefront of
this inclusion policy?
Starting from the identification process itself, CA partners attempt to ensure that each variable in the selection process is
addressed. Focus Group Discussions with the affected communities are used to identify primary beneficiaries. Later on,
a house to house survey is done to verify the selection process. Transparency is ensured through cross-verification with
local government representatives and the criteria are shared with all stakeholders and affected families. In fact, several
local government representatives across Bangladesh were enthusiastic about continuing this process in future disasters.
However, over the course of the study, response and recovery projects were found to have faced familiar challenges such
as the ‘influence of elites and local government’, political pressure, lack of information or misinformation. In projects
across Bangladesh, particularly, beneficiary selection was rendered more difficult due to the lack of communication
systems. This meant that the criteria and final numbers did not always evolve from the communities themselves; and
that the process was often unable to include excluded communities as active participants in selection.
The risk of too little for too many
“Only 500 people got the relief material. It was of very good quality, but most of us didn’t get anything.” This was a
sentiment echoed often across many villages. The quality of relief material was appreciated, but the coverage left many
uncovered, even though the partners agreed that their needs were very difficult to reject. Drawing that critical line in the
beneficiary selection process is a very difficult call, particularly in low intensity floods where life loss has been low, but
economic losses very widespread.
Cases of fights between relatives because one set got relief and another didn't were also commonplace. “Yes, you did
put up lists on the wall on each day of distribution and we know you gave out everything you had brought within our
village itself, but my family was left out.” Recent efforts in implementation of HAP and other accountability measures
have created significant goodwill and faith in the core system of distribution itself. Yet the logic of beneficiary selection is
still hard for the community to see, particularly for those who do not get covered. Improved communication and greater
involvement of community members (besides the mandated elected leaders) needs to be considered to address this area
of concern.
Recommendations could also be sought from the community on ways to reduce such fighting; particularly if there is risk
of theft or bullying from those who were not assisted. However, wherever there is selection within a community, some
problems are sure to arise. Tie-ups with other partners to ensure that entire communities are covered could help resolve
some of the conflicts.
Understanding local power structures and the process of decision making
Local power structures traditionally follow a pattern where resourceful and politically connected people call the shots.
Even in normal times, the decision making process at the local level is mostly controlled by the elite and a select number
of people with influence and wealth. Understanding this dynamic and finding ways to ensure that the general public are
actually given a voice is essential.
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Dependence (pressure?) on local partners
Needs assessment and beneficiary identification is universally recognised as important criteria for effective
humanitarian response. However, field observations show that the complex web of politics and spatial demarcations
within a village makes it very difficult for outsiders to even find the most marginalised communities; let alone identify
beneficiaries from within it. A lot of this work is dependent on the knowledge of local NGOs; who may not have had
earlier experiences of handling emergency responses. This puts unfair pressure on local groups to carry out this complex
task, often with limited resources and inadequate assistance from above. They are also put in the unenviable position of
angering those in their constituency who don’t get the relief. Improved handholding and passing on of tools is needed to
support these implementing agencies, often community-based partners of CA partners themselves.
Partners, particularly those working in new areas, also often handpick officially recognised, well-known socially
excluded groups. This has two inherent risks. The first is missing out less visible but more marginalised sub-groups. The
second is creating problems within the larger community over the long term.
Reaching the unreached in Kurnool, Andhra Pradesh: Aashray
“We will not allow you to go to the Harijan wada. Leave all the food here and we will distribute it to them,” demanded the
community leaders.
The devastation of Cyclone Laila left almost all affected areas under water and the crop fields were completely
submerged with no hope of revival. The villages in Kurnool remained cut off from the connecting towns, with no food or
water.
The overcrowded relief centres were concentrated with humanitarian organisations and Government officials. Yet, there
was still a huge gap between the demand and supply. Relief materials remained concentrated in the hands of a few
dominant communities and the Dalits were given least priority. In fact, losses to these families were always considered
as meagre and estimations were done along these lines. The situation was complicated further by the fact that the Dalit
wadas were cut off and unapproachable.
Aashray immediately mobilised and deployed its field staff in Kurnool and Mahaboobnagar districts to distribute relief
to these families; offer counselling and moral support; and advocate on their behalf. Strong local knowledge of the area
meant that they were able to achieve this goal with relatively few hurdles.
Such examples showcase the dire need for strong teams on the ground that can immediately act. However, they also
raise the larger question of preparedness training and in-depth mapping that allow for such prompt action.
Fulfilling the basic right to shelter in Gabura: CCDB
‘I was living on the embankment for more than three months after Aila. I had no place to go. With four children and a mentally-
challenged husband, I lived on the relief support of the NGOs and later income from the Cash for Work programmes. I received 5
kilos of rice. I had no land of my own, so I built the small house I received from CCDB on my father’s land. Now I have a place to live
a dignified life with my children and husband. I am not worried about risk to my children that we faced many times during our stay
on the embankments’. - Rashida Begum, Charbara village of Gabura Union
Rashida was one among those selected through community consultations and discussion with village elders and leaders.
A tool similar to pair-ranking was indirectly used to determine the most vulnerable with the greatest need for housing
support. However, even the minimum need in the community was too large for the number of houses constructed. In
fact, due to land access or resource issues, many people are still living along the embankments, unable to build
permanent structures.
Water as a caste unifier in Routashi, Odisha: VICALP and SGP
A large village of 350 households, Routashi faced an extreme shortage of pure drinking water. The consumption of
floodwater was leading to serious illness. Most of the tube wells were defunct and the few functioning ones were
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overcrowded and muddy. Even before the September 2011 floods, water had been an issue. Projects sanctioned by the
government had failed here due to the high iron content.
VICALP and SGP responded with a bore well and water-purification plant. The level of excitement among the
community was so high that people even came forward to donate their land to install it.
However, the project went beyond just setting up a Reverse Osmosis (RO) water purification unit. The village was
predominantly Dalit, with around 30% of the households belonging to the upper castes. By setting up an expensive yet
universally required community asset in a Dalit neighbourhood; the intervention hoped to bring in a social
transformation process of dignity and respect. The expectation was that some caste barriers would be broken since
drinking water would have to be taken from a Dalit-run, managed and operated water system. Water, traditionally a
caste divider, was envisaged to become a caste unifier through this intervention.
Through a consultative process, a highland location was chosen - the terrace of the SGP office. The Dr. Ambedkar WASH
committee, comprised of Dalit community members, were trained on operating and maintaining the plant components;
but VICALP will keep overall control until the committee becomes self-sustainable. The idea was to relocate the plant
after a five-year period.
Installed by the BWRDS organisation at a cost of Rs. 500,000, the plant can purify 1,000 litres of water per hour and has
the capacity to produce 6,000 – 8,000 litres of purified water per day. It was decided that 20 litres of water would be
provided per household at a cost of Rs. 4; and the purified water is also supplied to the schools and anganwadi centres.
All households are provided with a day-wise monthly user card. In order to help the enterprise become self-sustaining, a
Rs. 11 membership registration fee and Rs. 120 for a 20-litre can is collected from the users.
Future plans target to register the plant as a business enterprise - ‘Bhim Jal’ - so that the excess water can be bottled and
sold to neighbouring villages, private organisations and others. This transformation into a profit-making social
enterprise can create livelihood opportunities, raising funds for further community development initiatives. Rough
estimates show that after bottling and transportation costs, there can be a profit of Rs. 3-4 per bottle of water. For 1,000
litres per day, this would work out to Rs. 3,000-4,000 as daily earnings.
As of this review, however, less than half of the community was actually using this water. A large number of hand-
pumps with widely varying qualities were still the norm; including one positioned dangerously close to sanitation
facilities. The financial forecast for a treatment and bottling plant therefore seems overly optimistic.
Additionally, while the concept of using community infrastructure as a caste unifier is positive, the approach could be
modified to better suit local realities. Rather than costly imported solutions, household water treatment systems such as
bio-sand filtration could have been more sustainable. In areas like this one, where salinity is also an issue, options such
as solar treatment or other traditional local solutions could have been analysed more closely, before deciding on
imported machinery. A revisit to the plant after a year will help understand its sustainability issues better.
Enabling the most marginalised to rebuild in Prakasm, Andhra Pradesh: SNIRD
When cyclone Laila hit in May 2010, most of the villages on the south coast of Prakasam District suffered severe damage.
While the government did promise financial support for reconstruction, there were several caveats. Site title deeds had
to be sanctioned and the funds would be released only after the construction of the plinth. For the excluded communities
of Yanadis (tribals) and Dalits, finding the resources to accomplish this was a difficult task.
SNIRD first motivated them to apply for these land titles; and then provided Rs. 10,000 to 150 families to complete the
plinth construction. Christian Aid’s prompt funding approval (within three days) was much appreciated considering the
gravity of the situation.
With their full involvement and manual contribution, these families were able to access the Rs. 56, 000 grant sanctioned
under the Indiramma Illuru scheme of the government. SNIRD also tried to keep in mind flood and water logging
problems; encouraging raised foundations. However, these were created with soil taken from the same area. Since they
have not been reinforced or protected with surface lining, erosion is inevitable during the rains.
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Finding abilities in persons with disabilities, Bihar: ANHAD
Abdul Daiyan has been managing the ANHAD programme in Purnea and Araria. He demonstrates with great passion
how the focus of the intervention has shifted from relief to development; and has successfully mainstreamed the
inclusion of persons with special needs along the way. Rani (name changed) is in her early twenties and suffers from a
loco motor disability that has brought with it huge stigma and allied challenges. Surprisingly, she is the one person who
is most willing to come to the front and talk about the work that a group of women are doing in a Jute Training Centre
established by ANHAD in Village Sandalpur, Araria. The women are trained in producing jute items, mainly bags and
folders. Village youth and ANHAD staff are working hard to establish market links so that the effort can sustain as a
women’s group enterprise. In fact, ANHAD has established a private trading entity that aims to build a social business
model to support such social enterprises. So far, the group (and other groups in the area) have been supported under the
long-term recovery and risk reduction phase of the flood programme. However, the focus is now on its sustainability as
an independent entity after the withdrawal of funding support in 2013. This will indeed be a challenging task, in
particular because the pricing of the products being put in the market so far is often below production costs, supported
by a subsidy through the project.
Good practices / innovations Challenges Opportunities to be explored
Looking beyond just
‘inclusion’ to empowering and
placing responsibility with the
most marginalised
communities.
Prescribed selection processes
where beneficiary criteria and
numbers emerge from the
community themselves
through focus group
discussions.
Hardware projects such as
drinking water that aspire to
become self-sustaining.
Complex political webs and spatial
demarcations, which make finding
and indentifying, marginalised
communities very difficult.
Lack of nuanced understanding and
documentation of inclusion, due to
which field operatives encounter
challenges.
The community is at a nascent stage
to anchor long-term projects and
community ownership needs
strengthening. Investments may
need to be made on domain experts
to train the community on running
social enterprises with sound social
and economic parameters.
The buy-in of all stakeholders on the
larger vision of hardware projects
has yet to be established. The
symbolic sense of ‘social
transformation’ is at a peripheral
level.
The representation of women, youth
and other minority groups is
inadequate across several projects.
Rather than imposing alien technologies
such as RO systems, ecosan toilets and
concrete houses, locally appropriate
alternatives could be explored. (This is
also discussed in the chapter Long-term
Resilience.)
Participatory tools across all stages of
programme implementation already
exist and can be simplified for better
deployment.
A number of organisations are doing
parallel work in this field, so a more
collaborative and networking approach
could be helpful.
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Recommendation 1: There is a critical need to develop a nuanced understanding of socially excluded groups and power
structures; engaging these groups as active stakeholders; and to influence specific inclusion policies.
Specific Recommendations
Christian Aid
Document complexities of the inclusion issue, relevant strategies and best practices of inclusion of Dalits and
Adivasis.
Strengthen context specific strategies to look at inclusion of women, children, PWDs, the poor, religious
minorities and LGBTs.
Local partners
Undertake power analysis to help identify the most marginalised during an emergency.
Deploy tools such as PVCA and social audits to encourage participation.
In all interventions/strategies designed to empower marginalised groups, consider long-term sustainability; the
transfer of technical know-how; reduced risks and capacity building.
Collaborate and network with other NGOS in the area for optimal coverage of affected communities; and to
converge resources for increased effectiveness.
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Long-term Resilience
‘Linking relief, rehabilitation and development’ has been around as a disaster
response concept for a long time. Yet, its integration in field level implementation
needs improvements in resolution. Major achievements have been made in the form
of investments in livelihood re-establishment programmes and in the formation of
community-based organisations to take the local cause forward. More needs to be
done on links with development planning; and a good starting point could be issues
that directly influence future risk.
At the same time, technology has been both a great boon as well as a huge challenge
in humanitarian response. Decades of work on intermediate technologies to build a
clearer understanding of appropriateness has yet to make things simple enough at
the ground level. The promotion of local technologies will still be more sustainable
than importing industrial technologies without sufficient capacity building and
investment in long-term maintenance.
‘Building’ a sense of security from cyclones in Kamarkhola: DSK
Post Cyclone Aila, the construction of a cyclone shelter has created a sense of security among the most vulnerable
community in Kamarkhola, Bangladesh. This solid, elevated, multi-storied construction is the first of its kind in the area;
providing security from further cyclones and storm surges. The Kamarkhola Union Junior High School cum Cyclone
Shelter now serves multiple purposes; as a school, a training centre for the project, a community meeting hall and, of
course, a cyclone shelter. It has facilities for 1,000 people including four latrines (two for women); a rain water harvesting
system with a plastic tank; a tube well on the first floor to access water when the building is inundated; and a solar panel
to provide light to all rooms and toilets. The land was donated by a villager with the passion to provide ‘education for
all’. Not only has it reduced school dropout rates in the area, but it has provided a new hope through security. In fact,
construction techniques were taught to the headmaster and villagers to allow them to supervise the contractors directly.
Disaster preparedness training, given especially to the women, has had a positive impact both on their ability to respond
to future cyclones; and on their confidence and social standing within the community.
However, since the school is not yet supported by the local government, the teachers and headmaster are currently
volunteers. This may not be sustainable unless local authorities take on the financial responsibility to run it.
INNOVATIVE TECHNOLOGIES
Indigenous knowledge; simple technology
There is a significant amount of research that shows the richness of traditional wisdom and indigenous knowledge on
disaster risk reduction and response in communities across India and Bangladesh. This can be tapped to a great degree
and augmented with simple, cost effective and easy-to-maintain tools. Some examples from the project areas that are of
great value include: shelter design based on local resources; river monitoring to improve flood warnings; ecosystem
based livelihood models; and shelter belt plantations.
Community buy-in on livelihood recovery in Khulna: DSK...
In Aila affected communities across Kamarkhola and Sutarkhali unions of Dacope Upazilla, DSK involved the local
people in making boats and nets. As a result, the boats have become fully resilient to local conditions and the nets are
appropriate for the specific fishing culture – a detail many organisations fail to take into account in their interventions.
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This increased community ownership of the process, as well as reducing costs and timelines. Supported by regular
monitoring and technical support from DSK staff, it helped people access the core supplies to restart their livelihood.
But missed opportunities on local housing
Local skilled masons were used to construct houses and toilets in Munshiganj in Satkhira and Dacope in Khulna,
expanding their knowledge of resilient features. Again, this increased local buy-in, brought down expenses and
crunched the timeframe.
However, a number of missed opportunities emerged in terms of integrating local housing practices. A flood-resilient
housing design is evident across the area. These houses are built with a combination of bamboo or wood sticks and mud.
In case of high tide, flooding or inundation, the mud of the wall may wash out but the basic structure remains intact,
protecting the families from any major injuries. Low-cost and easy to maintain, such designs may have helped promote
sustainability in the reconstruction process.
Tapping traditional shelter techniques in Rajasthan: SEEDS
Unprecedented flash floods across Barmer, Rajasthan, in 2006 left a majority of the villagers in the affected areas
homeless. Reconstruction in this area was a community-centred initiative with Village Development Committees (VDCs)
formed in all 15 villages covered under the project. A crucial part of the design process was looking at the long-term
sustainability and ecological footprint of the reconstruction.
For example, thermal comfort becomes a major consideration in the desert where summer temperatures reach 50°C and
winter temperatures dip to freezing point. The difference between the inside temperatures of a concrete house and a
vernacular one is found to be up to 8°C. This was a large part of the consideration for SEEDS to maintain local and time
tested materials and technologies. The houses were therefore built in complete compliance with local environmental and
cultural nuances.
The local circular design was retained, as were the thatched `breathing’ roofs for thermal comfort. Yet, at the same time,
long-term risk reduction was incorporated by introducing interlocking blocks, proper foundations and structural bands.
The mud blocks local to the area were stabilised with 5% cement and compressed for strength.
Water filters move drinking water closer in Khulna and Satkhira
“We had no worries about drinking water during the first six months after Aila. We got water from individuals and NGOs on a
regular basis. We also got drinking water supply from NGOs when the ring embankment broke and our villages inundated again.
We had limited worries. But after that, we again started the long journey to get water from two – three miles away; walking to the
ponds and PSFs in other villages. We shared the problem in our group meetings and talked with the frontline staff. We thought
plastic tankers for everyone would be the best option. But there was not enough money to buy plastic tanks for every family and also
it would not reduce our hardship to fetch water from long distances. PSF can be a good option, we thought. After long discussions,
we chose some ponds that were in a relatively better condition, with less salinity in the water. PSFs were set up in places where we
can all have access. Our children are now able to go to school as we don’t need to send them or take them with us on a six-mile
journey to fetch water.” - Women in Khulna and Satkhira districts
The lives of Aila-affected and water logged people in Khulna and Satkhira districts were dramatically changed through
Pond and Sand Filter (PSF) technology. For generations, these communities have used ponds as a source of drinking
water. Saline water from the cyclone and subsequent water logging had wreaked serious damage to the soil structure of
the ponds. More than 90% of them were unable to be recovered even after three years. The crisis intensified when the
primary emergency response phase ended and the supply of drinking water from the NGOs dried up. Families began
walking up to 3-5 miles to fetch 10-20 litres of drinking water. Since the men are generally away in search of work, this
task fell to the women and children. PSF, instituted in the recovery phase, helped repair and re-activate these ponds.
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LIVELIHOOD PROGRAMMES
Long-term livelihood support across Bangladesh: Sushilan
I lived on the main metal road for more than two months with my family after Aila. Poisonous snakes, dogs, and people stayed side
by side. I became dependent on the relief of NGOs and individuals. My life changed after getting training on vegetable cultivation,
some cash and seeds from Shushilan. I got a net (approximately 25 yards) to protect the vegetable seedlings, cash money of BDT
300.00 and fast-growing seeds like sweet pumpkin, lau, sweet gourd, bitter gourd, cucumber and ladies fingers. I started on a small
plot of land and saved some money. I was able to help my husband support our family. After some time, I took a loan of BDT 5000.00
from our samiti to expand. Now I have taken lease of 5.5 bigha (approximately 1.5 acres) of land and I am growing vegetables using
the knowledge and technology I have learned from trainings. I can grow 5-10 mon (200 – 400 kg) of vegetables each week. I sell those
to the local market and am now able to rebuild my household. My children are going to school and we eat three meals a day. Now I
feel safe and independent.” – Champa Rani of Jaliakhali, Ward 3 in Munshiganj Upazilla, Satkhira
“I lost everything during Aila - my small shop and the fishes from my pond. I tried to restart my small pond-based fisheries, but I
could not save the fishes. I had no idea which fish could survive in the saline water. Then I got training on tilapia production from
Shushilan and received cash to buy fish and food for quick growth. It grows so fast that I can get 4000-5000 BDT every week from
selling the fish. I don’t need to use any chemical fertiliser or unnatural food for tilapia’s growth. Now, I have repaired my small shop
with the income from tilapia and am supporting my family’s three meals, education and other basic needs. I feel like a dignified
person.” - Abdul Huq from Munshiganj, Satkhira
“Most organisations work for a short time and go away, but CA partners were with us right from the beginning of the disaster. They
not only gave us direct support, but also stayed with us as an umbrella; offering suggestions and psychological support to keep us
fighting against all odds after losing everything.” - Rokeya Begum and other women in Khesra union and Munshiganj union
From FDG participants to local government representatives, continued support over the long term was stated by many
as being critical to increasing coping capacity. The project design integrated livelihood restoration and income
generation as key components; focused mainly on agriculture – the core source of livelihood. In several affected areas,
especially Aila hit zones, CA and local partners continued support for nearly two years. Small and marginal farmers’
groups were facilitated in Munshiganj and women’s groups in Kamarkhola. This ensured a critical link between
response and development processes towards food security and employment. In the agro-economy of the region, this
was essential. A total of 1,813 people received support to restart their livelihoods including small businesses, grocery
shops, vegetable gardening, livestock, petty business, fish culture, crab fattening and handicrafts.
The distribution of seeds for leafy and some saline tolerant vegetables also provided much needed food security to the
families. This leafy vegetable production was apparently abundant enough to fulfil major food gaps in the first six
months. In the later stage, it emerged as a core income-generating scheme. Training on ‘scientific methods’ also helped
families protect their vegetable gardens from water-logging and saline water intrusion.
While the projects did help revive small trade, local government representatives felt that there was a gap in the need
assessment process; missing the opportunity to promote diversified livelihood options. Women participants shared that
training and financial support for sewing, tailoring, embroidery, handicrafts and computers would be useful; all of
which have an expandable market at local and district level. On the other hand, male participants were interested in
training and support on nurseries, driving and repairing of power tillers, poultry, livestock and hatcheries.
Fostering food security and re-establishing livelihoods in Bihar: PGVS
In my opinion, we (poor and marginalised groups) benefitted the most from the livelihood kit given by PGVS-CA. Earlier, we were
never able to afford good quality tool kits for construction and repairing houses. We were excited when the LH Kit was distributed
because it meant we could now access our livelihood, re-establish our culture and protect our family. – Mr Bhagirath, Mason,
Barakhurwa
Chronic food insecurity was rife across Triveniganj, Bihar, post the 2008 Kosi floods. Food distribution had helped to
meet short-term needs; but a more durable solution to hunger was critical. PGVS took the initiative to support farmers
with seed fair, soil testing and other technical consultations. This not only helped them regain confidence and re-
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establish farming, but drove improved farming and marketing activities. Kitchen garden kits were also distributed.
Aided with effective tips on agricultural technologies, these women were able to grow vegetables in their compounds or
on other small pieces of land.
Masons, carpenters, labourers, cycle repair workmen and painters were provided with specific livelihood kits that
helped them resume their work.
‘Tailoring’ livelihoods in Bihar: ANHAD
The socio-economic conditions of the region showed a dire need to equip women with livelihood skills and awareness of
their rights. ANHAD began with two women empowerment centres in Basai and Amour, Purnea, in November 2010.
These imparted literacy and vocational skills in tailoring and cutting. The number of centres doubled the following year,
expanding to K. Nagar and Jokihat (Araria).
The opening of every new centre was an uphill task; facing resistance from various quarters. With strict social norms for
women and literacy rates as low as 10% in some villages, it was even difficult to find coordinators who encouraged
women's participation.
Once established, getting the women to the centres was the next challenge; convincing them to take time out of their
daily household chores. Yet once they started, the centres became a second home to regularly meet, study and learn new
things. Aside from the vocational training, literacy classes and weekly interactions on various core topics were begun.
Each centre has one qualified instructor per course and a programme coordinator. About 280 women had been trained in
embroidery, cutting and tailoring or jute work across the four centres as of October 2011. The ANHAD team has been
busy setting up a marketing chain for the different products. A legal entity for this is being set up in Purnea and sub-
centres will run from various villages. In each village, a core team of 5-10 women have been identified. They are being
trained on overseeing the assembly lines from production to marketing.
However, despite all efforts, the social and harvesting season compulsions kept the programme from achieving its full
potential. While it would be desirable to time training according to the off-seasons; the time frame for response and
stringent back donor requirements do not always allow such flexibility.
Issues also arose around costing. The jute footmats produced by the women’s groups were sold below the break-even
point throughout the project duration. Not building in financial viability right from the beginning will make it difficult
for the groups to sustain the enterprise in the long-term.
Climate – an additional filter
The inclusion of climate change adaptation (CCA) along with the integration of disaster risk reduction (DRR) in disaster
response has posed new challenges to the application of appropriate technologies. The bar has been raised in terms of
worst-case scenarios to be met, given the variability and unpredictability of events including cyclones, cloudbursts, flash
floods and water stresses. A menu of available technologies, with well-captured conditionality for deployment, is
needed for partners to be able to evaluate and select solutions that will be effective, efficient, sustainable, scalable and
replicable. Some of these are mapped over the course of this report including pond and sand water filtration systems;
saline-resistant seeds; and adaption of traditional housing techniques to deal with new threats.
The developmental challenge
While there seems to be clarity on linking relief with long term recovery, as manifest in livelihood and shelter-related
programmes, the developmental link is a little more challenging to establish and address. Though development planning
requires an entirely different level of conceptualisation, time-frame and approach, there is potential to arrive at this.
Several CA partners are mainstream development organisations in their non-disaster roles and the fundamentals of
development are strong.
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Recommendation 2:
Long-term resilience requires effective techniques and technologies that are simple enough to be locally,
culturally and environmentally sustainable; as well as a focus on livelihoods at the household level.
Specific Recommendations
Christian Aid
Integrate long–term resilience into the programme design and main funding lines; including in emergency
budgets.
Encourage projects that tap into local solutions and encourage long-term development through recovery
programmes.
Local Partners
Strike a balance between widening the beneficiary base and keeping quality control.
Establish partnerships with local technical resource groups (such as universities) to pre-identify locally
appropriate technical solutions for the areas of intervention.
Diversify livelihoods and risks; and ensure that these are financially viable in an enterprise model.
For structural interventions (including schools, houses, cyclone shelters and WASH) ensure that designs,
materials, technology and labour (as far as possible) are local and sustainable.
Good practices / innovations Challenges Opportunities to be explored
Training on sustainable livelihoods
such as saline tolerant vegetable
seeds for the most vulnerable
households.
Involvement of communities in
restoring the fishing nets ensured
appropriateness, increased the
ownership of the families, reduced
costs and saved time. The local
practice and knowledge on the
technology was enhanced and
transferred to the next generation.
Putting women at the centre of
livelihood agendas and catering to
their specific needs.
Intervention that endures as it
banked on prevailing local
materials, technologies and skill
sets.
A dependency on ‘hybrid’ seeds
which are not suitable for all saline
and water-logging prone areas.
More technology solutions are
required.
Limited information and
knowledge that makes it difficult
to analyse the socio-environmental
context. For example, some of the
livestock and poultry died after
distribution to the affected families
due to salinity.
Limited material supply in the
local market.
The number of houses built as
against the need was too small.
Overall, opportunities were missed
on using local materials and
techniques to make the projects
more sustainable.
Local systems and knowledge on
long-term resilience already exist
and can be easily researched and
applied.
The interventions can be linked to
long-term developmental
programmes running in the area.
Local technical resource groups can
be partnered with for
developmental initiatives.
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Capacity Building
As responses grow increasingly complex, building the understanding of donors on
ground realities and the capacity of local partners to handle these diverse situations
is critical.
For example, new tools such as cash transfer are fast emerging as an instrument of
choice for humanitarian relief worldwide. However, these are tools that require a
careful balance between flexibility and effective use. The principles need greater
clarity in organisational strategies and in the minds of the implementation staff.
CASH TRANSFER
Unconditional and Conditional Cash Transfer
Meant to be timely relief that helps affected people recover as quickly as possible; cash transfer (CT) owes its origins to
Amartya Sen’s entitlement discourse. This argues that a predominant cause of famine is not availability, but accessibility.
Theorists have long debated that injecting cash into the local economy during an emergency can help restore the
fragmented system. On the other hand, it is also argued that such infusions could lead to an increase in local prices and
spark internal conflicts. In many cases, the desired impact may elude perception; either because the true choices are not
recognised or due to the scale of funds being too small to have any significant impact.
Another part of the debate is the question over unconditional (where the money is transferred or given without any
liability) versus conditional cash transfers (where the money is tied down to a specific activity like livelihoods or house
reconstruction).
These complexities mean internal understanding and capacity building of implementing partners is urgently required to
successfully tap the opportunities that this tool offers.
While it has been used as an emergency response tool in other countries; it was a pilot experience for CA in India.
Therefore, the cash transfers had an element of conditionality with a spirit that was unconditional.
Letting people prioritise their own needs in Odisha: VICALP and SGP
“In a traumatic situation where people have lost everything, including their health, a direct cash transfer programme is the best
remedy to help people recover basic needs and livelihoods. In our Jajpur CT experience, it was found that people have numerous
requirements since they had lost everything. In this context, it is necessary to let her/him be given an opportunity to decide which
requirements he/she needs to meet immediately.” - VICALP staff with a changed mindset towards cash transfer projects
In the four most affected villages of Bari block (Sreerampur, Krushnanagar, Haladibasanta and Anikhona), assessments
revealed that food, shelter reconstruction and livelihood support were the most urgent needs. Since the floods, 90% of
the villagers had taken loans from local moneylenders in order to buy seeds and begin re-cultivation. Each loan carried
an interest rate of 5% per month. Ironically, the plantation had had limited success due to crop infestations.
Though VICALP was initially hesitant to try new methods, the fully functioning markets made it appropriate to
distribute relief in the form of cash transfers. The cash element was unrestricted (allowing beneficiaries to decide where
to spend their money), but fixed value vouchers were used to specifically support the longer-term livelihoods objective.
The vouchers were tied to items such as seeds, fertiliser and fishing nets. Local traders were identified to meet all the
requirements, with pre-agreed payment methods and frequency.
Through a participatory approach, villagers were asked to categorise themselves into ‘most affected’ (51 households)
‘moderately affected’ (204 households) and ‘partially affected/host community’ (255 households). Those who were
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registered as ‘most affected’ received the maximum cash sum - Rs. 4,000 and a Rs. 1,000 agricultural voucher.
The ‘moderately affected’ received Rs. 2,500 and a Rs. 1,000 voucher and the partially affected/host community received
the Rs. 1,000 voucher. This enabled VICALP to reach four entire villages and a total of 510 households. However, during
the early stages, VICALP had not shared openly what the relief would be and the fact that different categories would
receive different amounts. This led to a problem in one village where they all asked for an equal amount of money
instead of it being stratified by need.
Another challenge came in determining what form the cash transfer would take. Of the three banks, two rejected
outright the idea of setting up 510 bank accounts. Capacity constraints and policies limited them to a maximum of five
new accounts per day. The third said it would take at least two weeks. Thus, cash was selected as the easiest medium.
The cash transfers and vouchers were successful in providing food and shelter, as well as reviving the agriculture and
fishing livelihoods of the most needy. On the other hand, the linkages between disaster response and development were
not evident following this stage. For example, the shelters were built in the usual temporary structure without
incorporating any vulnerability reduction features for future emergencies. Cash transfers themselves were seen as a one-
time response without any continued support.
Cash-for-work schemes to restore internal communication systems in Bangladesh
In areas like Tala, Munshiganj, Gabura and Kamarkhola, all the internal roads were fully damaged. Participatory
analysis revealed that infrastructure repair and a way to earn were the most critical needs. In a participatory process, CA
partners finalised the scheme selection after analysing the immediate risks and needs of the people. In Khesra union,
Gabura and Kamarkhola, the embankment along the river was selected; the main protection for most of the villages from
flooding and salt-water intrusion. In Kamarkhola, earth work by villagers helped repair the embankment breach,
stopping tidal water and clearing water-logging nearly a year after the Aila cyclone.
The cash transfer process gave the families increased freedom to respond to their needs; with a higher degree of
ownership. Cash for work and cash for training (which was only done in water-logged areas of Tala Upazilla) helped
them to buy rice and other essential non-food items, access health services, repay loans and build up some assets like
livestock and poultry. Some used the money to repair their houses, while others were able to pay for their children’s
education.
Partner to partner training: PGVS and ANHAD
PGVS and ANHAD are two partners of Christian Aid who come with different focus and skill sets. They worked in
different parts of the country before converging in North Bihar for flood response work in the Kosi Basin. PGVS has a
social basis, but focuses on working towards making technology work for the poor and the marginalised. It has taken a
scientific approach to community disaster response, through monitoring flood levels and mapping incremental
inundation. Their developmental approach to disaster risk reduction has seen the formation of disaster management task
forces and conduct of mock drills. ANHAD works to build people’s movements and has a deep-rooted livelihood and
rights approach to disaster management. Faced with the need to carry out DRR training and capacity building within its
work areas in Araria and Purnea, ANHAD called upon the capacities of PGVS whose teams were working in the
neighbouring district. Resource persons from PGVS conducted training programmes in ANHAD’s work areas, wherein
community groups were trained on local DRR techniques. In the process the ANHAD staff and volunteers also got
oriented. This was a rare example of cross-partner collaboration and learning and such mechanisms need to be replicated
and scaled up as part of CA’s institutional strategy.
Deploying new technologies: SEEDS
Disaster response and risk reduction is now an established field with known principles that are universally applicable;
and which have been imbibed and are in practice by all partners. At the same time, practices are locally contextual and
need to adapt and be appropriate to the specific social, cultural and environmental conditions of the specific site. Flood
responses in Barmer in Rajasthan and Balasore in Odisha are examples of how locally appropriate technologies can help
find more suitable solutions than the standard ones. While carrying out post-flood shelter reconstruction, SEEDS used
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Stabilised Compressed Earth Block (SCEB) technology in Barmer. This used local earth to produce building blocks on
site. Limited amounts of cement were used to stabilise the earth and manual compression machines compressed the
blocks to produce material that was resistant to disasters and yet low on carbon and energy footprints. Simply adapted
moulds were used to make interlocking blocks that built walls resistant to earthquakes. In Balasore, the same technology
was repeated, but fly ash from a nearby industrial unit was used as the basic material instead of earth. Since the earth in
this coastal area was too sandy and unsuitable, the freely available and abundant fly ash was the more appropriate
choice.
Mason training in Rajasthan: SEEDS
Local masons were engaged at all levels of SEEDS’ recovery process after the 2006 flash floods in Barmer. As a result of
using local masons at the forefront of the construction, the skills could remain embedded in the community even after
the relief phase was over. The design retained local traditions, but added elements for long-term risk reduction.
Therefore the training covered block making (using locally available mud, stabilising it with 5% cement and
compressing it for strength); as well as safer construction techniques for flood and earthquake-prone areas such as
proper foundations and structural bands for strength. The idea of ‘interlinking’ blocks cut out the need for mortar.
The technology itself was kept basic, with masons being trained on manual block making machines. In fact, the five
manual machines and four strategically located block fabrication units were entirely managed by community workers
themselves. Following the training, most of the houses were built by these 23 trained masons.
These machines were left with the community on completion of the project. However, they have not continued to be
used. Despite the skills and equipment having been transferred, the stabilised interlocking mud blocks did not make an
entry into the local market or practice. The primary reason appears to be the short time span and limited scale of the
project, which was unable to make a dent in the existing supply chains and the market demand.
Long-term capacity building of project teams and communities
Training and capacity building have been recognised and included in almost all programmes under the flood appeal.
The question that remains to be answered, however, is how to make the capacity building initiatives last beyond the
terms of the projects and create a long-term impact. Unfortunately, most interventions have remained dependent on the
project funding and show little signs that the initiatives will sustain beyond the withdrawal of the partner agencies. One
of the main constraints is that capacity is primarily being viewed as training. A number of non-training capacity issues
including attitudes, resource flows, technologies and the operational environment are overlooked, often for want of
capacity and resources within the implementing partners themselves. There is a need to take a long-term view of
research, education and training with appropriate quality control mechanisms; awareness generation programmes based
on behaviour change communications; and organisational development that supports long-term capacity building as a
mainstay rather than as ad-hoc one-off training events.
Good practices / innovations Challenges Opportunities to be
explored
The participation of women and the
most marginalised groups in cash-for-
work programmes has increased
women’s accessibility to income and
is slowly changing gender-biased
perceptions.
Training on indirect agro-activities
such as producing vermicompost,
saline tolerant crops and vegetables
has created a scope of diversified
income options for the poor and
women-headed households.
Humanitarian capacity as a composite asset is a
challenge that cuts across governments, civil
society organisations, community groups,
academia and the enterprise sector. Such
convergence is a significant challenge with very
little efforts currently focussing on it.
The capacity of frontline workers and the field
staff of partner agencies itself is a very
significant challenge. Most partners report a
difficulty in recruiting, and more importantly
retaining, appropriately qualified staff for such
activities. There are very few institutions
Advocacy on opening
bulk bank accounts in
remote locations can
not only ease project
implementation; but
can also build the
long-term resilience
and capacity of the
communities.
Within partners, there
is immense scope for
cross learning.
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Joint initiatives of CA partners on
capacity building are helping
establish an internal learning
mechanism; tapping resources in one
partner agency to build learning in
others.
Creating local institutions and
strengthening and converging
existing ones is an effective
independent way of building
capacities and is more sustainable
than provision of these services to
communities.
imparting such training and creating such
resources for the sector.
The international relief community’s experience
of cash distribution has been limited. There are
both positive as well as challenging arguments
to this form of relief.
Sphere guidelines for shelter reconstruction
were not considered all through and not all
shelters constructed were of a quality that could
withstand future disasters.
In some cases, the money offered seemed
limited for shelter construction. There was a
possibility of the residents getting into a debt
trap.
The ongoing core
programmes of CA
and partners can be
used to anchor and
institutionalise long-
term capacity building
initiatives.
Recommendation 3:
Skills need to be strengthened across levels, with a focus on new mechanisms such as cash transfer; and
virtual platforms built upon for better resource mobilisation and technical capacity.
Specific Recommendations
Christian Aid
Invest in capacity building of partners.
Establish a virtual platform to encourage cross learning between partners.
Research challenges in the deployment of emergency mechanisms such as HAP and cash transfer; and refine
their implementation systems to ease operations at the ground level.
Local Partners
Invest in capacity building of field staff.
Look at long-term capacity issues of local players such as CBOs, volunteers, local leaders and construction
workers. Make their capacity building an integral part of the programme, activities and budgets.
Ensure that specific sector-wise knowledge is available with project teams (especially in technical areas like
shelter and WASH).
Develop specific skill sets on emerging mechanisms such as cash transfer and HAP.
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Knowledge as Humanitarian Capacity
Local indigenous practices and coping mechanisms have evolved over the years.
These are usually integrated into the fabric of the society, offering sustainable and
long-term alternatives. There is a dire need to dig out, build on and integrate such
mechanisms into our work. Wherever these have been made the basis of local
response and risk reduction interventions, both in India and Bangladesh, a positive
response has been received on their effectiveness, appropriateness and local
acceptance. Additional locally appropriate solutions also need to be better
researched and integrated.
Incorporating flood-resistant features in Odisha: SEEDS
In 2007, after severe flooding across Balasore in Odisha, SEEDS incorporated locally appropriate flood resistant features
in its reconstruction. The site selection and raised plinth kept in mind future climate resilience. A retaining wall of blocks
and mortar provided a stable base and protection against erosion.
Since 400 houses with sanitation units had to be constructed in widely dispersed locations within a short period of 6
months, a modular prefabricated approach was taken. This included 12 pile foundations connected with a plinth band
that can bear the pressure of the expanding and contracting soil prevalent in the area; and pre-fabricated pillars for the
frame structure.
Since fly ash was freely available as a waste product from a nearby thermal unit, it was used to create blocks for the
walls. Not only did they have a lower embodied energy, as they do not require firing, but they also required no mortar
due to their ‘lock and key’ design.
Traditional techniques revive livelihoods in North and South 24 Parganas: DSRSC
In the wake of Cyclone Aila, the North and South 24 Parganas in West Bengal were devastated. Most of the people in the
affected area lost all their cultivable land and livestock. As the quantum of relief also wound down, DSRSC began
searching for ways to revitalise livelihood options.
Extensive surveys were conducted in the affected blocks including the number of ponds, livestock and agricultural lands
that were destroyed due to saline water. A volunteer team was formed to raise awareness and advise farmers.
Consultation meetings were organised with experts, local and donor agencies and affected farmers to determine the
immediate new direction.
In the short term, just after the water receded, some seeds of vegetable crops and saline tolerant paddy were collected
and distributed. In most cases, the seedbeds were prepared centrally and the farmers were given the seedlings to
transplant.
In the medium term, the project looked at the plantation of fuel-fodder-firewood plants on the riverbank; relay crop
farming; land shaping; saline and deep-water paddy; and the creation of indigenous variety seed stores. In fact, almost
all the groups now have grain banks.
Three years after Aila, the land shaping and addition of more and more organic matter had considerably reduced the
salinity of the soil, actually levelling off the production to normal rates.
People’s confidence in native seeds and vegetables also grew stronger, seeing for themselves how they are more resilient
than hybrid ones. Sac cultivation, desalination, rainwater harvesting and trellis cultivation have begun to be accepted
models in the area. The community has even started developing small nutrition gardens, which have become the source
of family nutrition and supplementary income.
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These models are now being advocated with various line departments such as Horticulture and Fisheries, with an aim to
introduce them into existing employment schemes. In parallel, the status of early warning systems in the region began to
be assessed and were developed further in consultation with government. Community based disaster risk adaptation
forums were created at village, panchayat and block levels.
Innovation and local knowledge for warning and assessments in UP: PGVS
A number of examples emerged wherein local innovations and existing knowledge have been effectively deployed to
enhance humanitarian capacity. In Gonda, Uttar Pradesh, river monitoring systems were established locally by erecting
poles with scales marked on them. Local volunteers moved around, in boats when required, to monitor the level of
water at different strategic points. Along with this, a participatory map was drawn of houses that get inundated with
different levels of water, using the corresponding benchmark points. The result was a better understanding of the
relationship between water levels and flooding. Since the scale was local, people could relate to the figures and also keep
a real-time update as volunteers conducted their recording and dissemination exercises each morning and evening.
Interestingly, in that region and across Bangladesh, local methods also exist for rescue systems. Earlier gourds used to be
dried and strung together as a floatation belt. Now, the same method has been adapted using empty PET bottles.
Community based knowledge management in Bihar: ANHAD
The potential of local groups to host and disseminate knowledge was exemplified in ANHAD’s interventions on flood
resilience in Purnea and Araria Districts of Bihar. This potential of local knowledge initiatives to aid recovery and reduce
risk was brought to the fore through the work of Youth Clubs aligned to Nehru Yuvak Kendra for long term sustenance;
local Self Help Groups and interested community groups in bringing together local governance stakeholders,
community leaders and women; and the cross-linking with other partner organisations such as PGVS for knowledge
resource persons. Training programmes, economic activities and the promotion of an enterprise model all make the
approach an attractive option for a long term strategy.
Good practices / innovations Challenges Opportunities to be explored
Tools and techniques that can lead to
locally generated and real time
information on impending risks, both
short term such as floods and long term
such as climate variability impacts. These
serve communities that find it
challenging to draw such information
from mainstream sources.
An ecosystem-based approach that
brings together various aspects of
environment, livelihoods and resilience.
Working with local construction
workers, artisans and youth groups to
embed knowledge in the local
community.
There is an erosion of the value
attached to traditional knowledge.
Aspirations are driving modern
inappropriate technologies.
There is no identified anchor
where such knowledge can reside.
In most cases, the roles of the local
partners in knowledge creation
were not clearly evident. There is
also a significant need to link up
with other local NGOs to share
learning and prepare robustly in
the event of another disaster.
Communities across the work
areas are a rich repository of
this local knowledge. Some of
the partners are already tapping
this and can be used to catalyse
larger-scale efforts. This can also
help promote long-term
resilience.
Knowledge management is
being increasingly seen as a core
focus area of disaster
management; offering wider
funding opportunities for such
projects.
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Recommendation 4:
Indigenous knowledge and local coping mechanisms must be collated and shared; and best practices,
challenges and evidence of change documented for continued learning.
Specific Recommendations
Christian Aid
Invest in research and documentation of local practices and appropriate new technologies as part of
programme design and main budget lines; using it for advocacy and skill building among CA and partners.
Local Partners
Document field initiatives and projects thoroughly (including photographs, case studies and challenges) to
ensure project learning is transferrable.
Look internally at capacities within the communities themselves while designing solutions.
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Accountability
Appropriateness, timeliness, effectiveness, efficiency and adherence to international
codes and ethics are not the responsibility of CA alone. This can only be effective
when partners, field staff, and local community-based groups that are part of the
channel are also in sync. In addition, cross cutting issues such as assessment,
documentation and inclusion have to be horizontally integrated across programme
components, but also vertically down to the last implementing link. Partners have
demonstrated high levels of understanding and performance. More, however, needs
to be done with local, last mile organisations and community groups.
The themes and their vertically reducing capacities
Good programme design looks at appropriateness, timeliness, impact, effectiveness, efficiency, coherence and
sustainability with reference to the Red Cross Code of Conduct, HAP and Sphere. Crosscutting issues of needs
assessment and targeting, documentation, participation, capacity building, disaster risk reduction and gender and
disability need to be an integral part of all programme components. The appreciation and capacity to adapt and apply
keeps reducing as one moves vertically down the implementation ladder. The need for capacity building is the most
acute at the last link – the field staff of local partners and the community group leaders.
Timeliness and effectiveness – Two areas of success: Case from Bangladesh
Across Munshiganj, Kamarkhola, Khulna and Khesra, CA and partners responded in an extremely timely manner,
helping ensure relief that supported people’s survival and reduce mortality. Local government representatives shared
that CA and its partners had been with the affected people from the very beginning, which helped them to appreciate
the context and manage needs. In fact, the first support was received within a day of the Aila cyclone.
The relief packages themselves were tailored to local needs. As Amzad Hossain, from Charabara of Gabura union
commented, “the relief package was very good, useful and covered most of the needs of the families. There was not only
rice, oil and salt, but also suji and sugar. The non-food items of the packages helped the families to cope with the threat
of winter while we were living on the embankments. There were items for almost everyone in the family, especially for
women and children”. Women participants from both Khulna and Satkhira district shared that, “the dry food we
received on day three or four from CA was critical for us. We had been living on the roads, embankments and higher
ground, even in the water. We had no support to survive. We had no shelter on our head, no food with us, no money to
buy a single grain of rice; we became beggars and most destitute people, looking for anything that we could eat. The
shops were closed and we could not get anything on credit for two weeks. The polythene sheets we received with the
first package gave us a roof during the rainy weather, while the water-purification tablets helped us to reduce stomach
diseases”.
Addressing immediate needs of Cyclone Laila: SNIRD
When Cyclone Laila struck Prakasam and Nellore districts in Andhra Pradesh in 2010, SNIRD responded immediately to
address the core needs. A relief camp was set up on the same day itself in ABM College; providing two meals a day for
250 families over the next two days. The approval to undertake relief activities was obtained over the phone to avoid any
delay. Half hourly updates were sent to CA initially. Obtained on credit, food was also distributed to 200 pregnant and
lactating mothers and 567 children below the age of five. About 1,500 people from excluded communities and groups
were provided food and non-food materials. The promptness of the initiative and the flexibility in granting approvals by
CA meant that the most needy could be reached immediately.
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Local community based mechanisms for accountability: Uttar Pradesh, India
In the recurrently flood-affected communities in Gonda, Uttar Pradesh, PGVS and CASA carry out relief interventions in
the form of immediate food, shelter and non-food aid. Both organisations have established credible accountability
mechanisms through local community strengthening. CASA has established robust HAP mechanisms, which are
adhered to by the local implementing partners. PGVS has established a local platform called Mazha Manch, which has
been capacitated to document relief needs, work out delivery systems with the aid agency, track the relief aid being
delivered and make public the entire process with details. Though the more visible face of Mazha Manch is to carry out
advocacy with the government to address rights based issues and target pressing local needs, the mechanism in itself
also serves to create a very localised accountability process. The display of beneficiary lists as decided in public
consultation meetings, publicity on complaints mechanisms and the sharing of phone numbers of senior functionaries all
led to a spike in the number of complaints being registered by community members. At the same time, all of these
complaints were addressed to a point of closure. This eventually ensured a local environment where there was more
harmony and far fewer complaints by discontented groups than usual.
Good practices / innovations Challenges Opportunities to be
explored
Public display of information on the
amount of relief material that ensures
transparency in the handling of resources
by aid agencies.
Participation of community groups in
verifying and finalising beneficiary lists
has drastically reduced the number of
complaints on being left out.
Establishment of complaint redressal
mechanisms and public display of contact
details of senior staff has led to a number
of complaints getting registered, but
equally has led to complainants being
satisfied in the end.
HAP is rapidly making its way into
practice at the grassroots level as evident
in a number of locations.
Budget disclosures have created problems for
local staff, as interest groups get attracted.
Politicisation increases when local opposition
groups use information to target groups in
power. It was reported that constant larger
engagement and public meetings can
ameliorate this effect, but that takes much
more time and effort of implementing staff.
Transparency on budget sharing is often
opposed by other organisations. (One of the
CA partners shared their budget on housing
and latrine construction, which the
community accepted and donors appreciated.
However, it was taken as a challenge by other
NGOs working in that area.)
The increasing
accessibility to HAP
tools offers
opportunities to
lean and be a part
of the partnership.
Some partners have
already taken the
lead on
accountability. This
experience within
the network can be
utilised to further
develop
accountability
initiatives.
Recommendation 5: Accountability principles adopted explicitly as a way of working can help promote timeliness, as well as
downward accountability both within the organisation and for elected representatives.
Specific Recommendations
Christian Aid
Simplify and communicate HAP principles more effectively down to partner level.
Understand the local challenges and risks in implementation of accountability mechanisms; and build in
flexibility where needed.
Local Partners
Train field staff on accountability principles and processes. As far as possible, aim to transfer responsibilities of beneficiary selection, procurement and monitoring to the
community themselves through a system of truly representative committees. While doing this, ensure that local
power plays do not derail inclusion efforts.
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Advocacy and Networking
Advocacy is often seen as a long-term and relatively passive intervention. It,
however, forms an integral part of holistic humanitarian relief. With limited
resources available, civil society organisations must make efforts to mobilise larger
state intent and tap into related capacities to benefit communities. In addition,
advocacy is necessary where flood risks are magnified due to poor developmental
projects that are leading to recurrent disasters and need for relief.
Meeting need and resource gaps
One of the biggest challenges faced in relief work has been the very large magnitude of populations affected and the
relatively very limited resources available with the partners for relief distribution. While, on one hand, this poses
challenges of beneficiary selection, the larger aim needs to be to link the needy with the larger state welfare resources
that often lapse unutilised. Good research, communication and advocacy are needed to address this aspect. At the same
time, partnerships with existing long-term local players can help influence local practices – which isolated efforts have
not been able to sustain.
Fighting for the rights of the displaced in eastern UP: CASA
CASA is continuously engaged in advocacy at different levels on issues of preparedness, mitigation and management. In
2010, a survey across nine districts of Eastern UP revealed that the number of families displaced due to soil erosion
during floods was continuously increasing. The government’s Calamity Relief Fund (CRF) guidelines have no provisions
regarding this kind of displacement. CASA organised the displaced community in all the districts, facilitating a
convention at regional level and a demonstration at state level for formulation of a separate rehabilitation policy.
…With disaster volunteers taking it to a new level
In 2010, five villages of Fakharpur block, Bahraich district, were eroded by the flow of the river Ghaghara. About 50
houses were being washed away daily as villagers scrambled towards higher ground. Disaster Youth Volunteers had
been in regular contact with district and state level officials for the last three years about this menace, but no concrete
steps had been taken. In response to the insensitivity of government on these issues, they called a meeting of their
members and decided to go on a hunger strike at Sangawa embankment. On 26th September 2010, at 11:00 am,
approximately 1,000 affected villagers commenced their hunger strike. Intimidations of jail by the District
Administration had no impact and the youth volunteers’ 14 point memorandum finally yielded some benefits for the
community. These included four extra boats for search and rescue, two community kitchens, visits by medical
professionals every two days and supply of necessary medicines, the provision of chlorine tablets and three large
temporary shelters.
Caught between embankments in Gonda: PGVS
About 200,000 people live in between the Ghaghra and Saryu rivers near their confluence in Gonda, Uttar Pradesh.
Ghaghra often floods violently. With the slope of the land being towards the Saryu, the water used to pass through the
settlements and flow out into the Saryu. In 2006, the government constructed embankments along both rivers in this
stretch. However, the Ghaghra floods are too strong to be held back by the embankment as built, so it breaches its banks
and floods the settlements anyway. The Saryu embankment holds the water back from flowing out, thus leading to long-
term flooding. Residents have to resort to breaching the Saryu embankment to let the water out, which is seen by the
government as an illegal activity. CA partners are currently in their third consecutive year of flood relief in this area.
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If not advocacy, what will prevent relief from becoming a perennial event in this land of manmade floods? A local
community organisation called ‘Mazha Manch’ is engaging with the government to take up such local issues on behalf of
the community.
Collective learning and advocacy
As a part of inter-agency groups, partners have begun collectively engaging with governments and international
organisations such as ECHO and the United Nations. In Bangladesh, such collective action has led to broad agreements
on shelter packages in terms of designs, costs and materials.
Good practices are being showcased through platforms such as SPHERE and ISDR where the work of some CA partners
has been acknowledged and recognised.
Recommendation 6:
Engagement with the government, donors, the private sector and academic institutions is necessary to
influence social inclusion policies, mainstream risk reduction and reduce dependence on recurrent relief.
Specific Recommendations
Christian Aid
Bring partners together for national and regional advocacy targeting governments, regional groupings such as
SAARC and international organisations.
Local Partners
Engage proactively in inter-agency groups and other multi-stakeholder platforms for collaborative advocacy.
Engage with governments at the state and national level to influence the policy environment, and at the local
level to turn policy into action.
Engage with local academic institutions to study and articulate the complex macro-issues.
Prepare documents with effective content using appropriate media to support advocacy efforts.
Explore partnerships with the private sector to mainstream small-scale innovations and initiatives to influence
the market.
Good practices / innovations Challenges Opportunities to be explored
Local community platforms are emerging
as strong champions by bringing together
community interest groups and engaging
with governments to pursue their
humanitarian and developmental rights.
Collective advocacy efforts are increasing
the strength and impact of networking
with governments and international
organisations.
Adequate time and resources are
rarely dedicated to advocacy
efforts.
Documentation and background
preparation to effectively
advocate is limited.
New platforms such as inter-
agency groups offer immense
opportunities for synergised
advocacy.
Networking-based advocacy
can offer a comprehensive way
to address ecosystem issues and
concerns.
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Planning for the Next Big One
Increasingly dense habitation in hazard prone areas, marginalisation of the poorest
and impending threats of climate change impacts leave no doubt that the future
holds increasingly devastating disasters. Floods, in particular, are set to be a regular
phenomenon with increasing impact. Though life loss may be contained through
ongoing DRR efforts, economic losses and hardships are on an alarming trend. CA
and partners have no choice but to anticipate the next big one, and prepare for it
right now using lessons learnt from this review and others.
Our own disaster preparedness plan
Interventions have aimed to include DRR and have addressed communities with words that urge them to anticipate and
prepare for future disasters. The same needs to be practiced in our own programming. Worst case scenarios need to be
evolved, management plans formulated and the entire end-to-end solution practiced so that the day it is needed, it will
be functioning at peak efficiency.
Partners who are generally involved in developmental programmes and are new to humanitarian response need to be
aided with concerted capacity building measures.
The language and terminology needs to be clarified and made consistent throughout the implementation network so
that the field staff of local partners and the community mobilisers are able to understand and communicate the core
philosophies on which CA operates.
Capacities of last mile field operators need to be built to appreciate and be able to implement programmes designed at
another level, but founded on core principles.
Debates need to be taken up on the appropriateness of technologies. Efforts need to be initiated to carry out research and
development activities to identify, adapt and promote local technologies to the extent possible.
It has been anticipated that a mega disaster, killing a million people, is a high possibility in South Asia. It is time to start
preparing for it!
Recommendation 7:
Programmes need to acknowledge and integrate the challenges of climate change and growing numbers of
climate refugees, as well as growing urban risk and poverty.
Specific Recommendations
Christian Aid
Lay down a clear flood management and response framework with sets of guidelines and capacity building
measures.
Map the increasing uncertainties related to climate change and urban disasters to ensure their inclusion in
future flood programmes.
Local Partners
Study the changes in risks at the local level and identify specific strategies/actions needed.
Prepare organisational disaster management and risk reduction plans.