Project Document DR4...Field application of DRR recovery based (rehabilitation and reconstruction)...

National Disaster Management Agency (BNPB) United Nations Development Programme

Country: INDONESIA

Revised Project Document

Project Title: Disaster Risk Reduction based Rehabilitation and Reconstruction (DR4)

UNDAF Outcome(s): UNDAF Outcome (3): Protecting the vulnerable and reducing vulnerabilities

Expected CP Outcome(s):

Outcome (4.2): Capacities of government and communities for disaster preparedness and reduction have been developed

Expected Output(s):

Output 1: DRR based rehabilitation and reconstruction guidelines strengthened, enacted and established

Output 2: Institutional systems that support DRR based recovery (rehabilitation and reconstruction) strengthened and established

Output 3: Field application of DRR based recovery (rehabilitation and reconstruction) practices, methodologies, guidelines and tools with feed-back mechanism to the policy framework

Output 4: Recovery measures in the disaster-affected areas implemented, guided by GoI’s Post Disaster Needs Assessment (PDNA) and Post-disaster Rehabilitation and Reconstruction Action Plan.

Implementing Partner: Badan Nasional Penanggulangan Bencana (BNPB)

Responsible Parties:

United Nations Development Programme (UNDP)

Badan Nasional Penanggulangan Bencana (BNPB)

I. SITUATION ANALYSIS

From a Reactive Post-Disaster Approach to Proactive Pre-Disaster Risk Reduction Experiences in implementing and coordinating disaster recovery processes in Aceh after the 2004 tsunami and earthquake and in Yogyakarta after the 2006 earthquake have made the Government of Indonesia (GOI) keenly aware of the need to change from its pre-tsunami focus on a reactive approach after disasters to proactive disaster risk reduction before disasters. As a result, the GOI now embraces strong proactive disaster risk reduction based on pre-disaster planning, mitigation and preparedness that entails putting comprehensive, cross-sectoral recovery policies, regulations and practices in place that aim to address and mitigate the underlying development related causes of disasters. The GOI has made impressive progress towards making disaster risk reduction a national and local community development priority as illustrated below.

Enactment of the new Disaster Management Law. After passing a new, visionary disaster management law, the GOI enacted it by issuing a set of eight detailed regulations, several of which signed in 2007 by the President for national and provincial level implementation. One of these new regulations established the new National Disaster Management Agency (BNPB) as a coordinating agency. New Provincial Disaster Management Agencies (BPBD) are also being set up in each province. Both have the mandate, at their respective levels of government, to coordinate the work of GOI line ministries and agencies related to disaster risk management. This coordination mandate includes all disaster risk reduction (DRR), rehabilitation and reconstruction (recovery) and emergency management. The head of the provincial and district/municipality agency will be of a much higher governmental rank than in the past, as they will now be ranked just below the Governor. This sends a clear message that disaster risk management is of high importance both at the national level as well as at local government levels as a part of the GOI decentralization process. Another of the new regulations resulting from the DM law establishes the legal and regulatory basis for provincial governments to make disaster risk reduction (DRR) a part of their development process funded with local government budgets.

GOI Makes Disaster Risk Reduction (Mitigation) a Well-Funded Development Priority. The National Development Planning Agency (BAPPENAS) has formally included DRR as a key role within its Directorate of Special Areas and Disadvantaged Regions. It has also formally made DRR one of the nation’s nine (9) development priorities and has included substantial budgets for DRR in the last three GOI Annual Workplans. Budgeting for DRR has also been integrated into the Rehabilitation and Reconstruction Guidelines endorsed in 2010 through Perka 17/2010, and which requires that a minimum 10% of Rehabilitation and Reconstruction resources should be allocated for DRR.

Emerging National DRR Model. Meanwhile, based on the GOI adopted ISDR Hyogo Framework for Action on DRR and the ISDR guidelines for establishing national DRR platforms, the GOI’s BNPB and BAPPENAS jointly established an ongoing national action planning process to put a National Action Plan on DRR (NAP-DRR) in place. The process of review and updating the NAP-DRR will be based on an improved version using the “DRR Convergence Group” model that was initiated by a group of interested donors, INGOs and the UN TWG-DRR (see www.un.or.id/untwg/3w/index.asp). Based on ISDR’s 2009 Report on the review of the national platforms for DRR in the Asia and Pacific regions, it is noted that more countries have adopted the NAP-DRR model.

GOI National and Provincial DRR Programme Initiatives. With UNDP support the GOI has initiated two key DRR projects. The “Safer Communities Through Disaster Risk Reduction in Development (SC-DRR) is being implemented by BAPPENAS at the national level and at the Provincial level the “Making Aceh Safer Through Disaster Risk Reduction in Development” (DRR-A) project is being implemented by NAD Provincial Government (see project summaries at www.undp.or.id).

http://www.un.or.id/untwg/3w/index.asp

http://www.undp.or.id/

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Supporting Disaster Risk Reduction in Indonesia’s Communities

Establishment of National DRR “Platform”. A government led National DRR Platform (stakeholder forum), established in 2008, has been functioning as a permanent forum for representatives of all DRR stakeholders and will use the NAP-DRR process as a tool for DRR coordination, partnering and gap/needs analysis. Important, initial attempts have been made by provincial governments to prepare their own “local” action plans on DRR (LAP-DRR) in Yogyakarta, Central Java and Aceh. For example, the Aceh provincial government set-up a working group on DRR and recently called a meeting for this DRR working group for the purpose of developing a detailed LAP-DRR for Aceh that will be structured and used in the same way as the NAP-DRR based on the DRR Convergence Group model described above. Other provinces have expressed their interest to the SC-DRR Executive Board members (BAPPENAS, BNPB, MOHA and UNDP) for projects to support the development of this DRR model in their provinces. Most importantly, the third corner of this emerging three-way model for identifying disaster risks and developing plans to address them and reduce disaster risks will be linked, eventually, to multi-hazard risk assessments (see adjacent diagram “Putting It All Together - Supporting Disaster Risk Reduction in Indonesia’s Communities”).

Overall Integration and Coordination of DRR Activities throughout Indonesia. Broad overarching links are being established by painstakingly setting up a range of long-term coordination bodies and mechanisms outside projects through which national and local DRR project activities can be linked. These coordination bodies and mechanisms can be summarized as follows:

• As mentioned above, the GOI led National DRR Platform and its coordination mechanism the National Action Plans on DRR (the NAP-DRR is based on the ISDR Hyogo Framework for DRR) that will be the basis for measuring progress towards mainstreaming DRR throughout Indonesia

• The emerging provincial government led Provincial DRR Platforms and their corresponding Local (Provincial) Action Plans on DRR (LAP-DRR)

• The DRR Convergence Group of multi-lateral, bi-lateral and INGO agencies and its on-line coordination mechanism (described above - see www.un.or.id/untwg/3w/index.asp)

• The UN TWG-DRR and its cross agency coordination mechanism the UN JSP-DRR programme (Local Government to Local Government learning and sharing meetings linked to specific new DRR activities, linking experiences from provincial DRR activities to the national policy decision-making process through ensuring local participation in national policy development processes.)

Gender. Disasters affect men and women differently. Women tend to be more vulnerable to hazards because of differential and, more often than not, more limited access to resources. Women can be more easily subordinated in terms of their gender role. Numerous studies have shown that the effects of natural disasters are not gender neutral. Gender has also influenced the condition of male and female survivors significantly although changing gender roles occurred as a result of the disaster. Differences can also be observed in the way men and women faced poverty due to loss of livelihoods and property. For instance, women or widows face difficulties to keep or inherit property because such decisions are often made though discussions among the male members of the family. Women’s property traditionally includes jewellery - a rapidly convertible form of income once sold – because in crisis situations the nature of such an asset is mobile/liquid (Oxfam 2005). Women also lack work opportunities due to their domestic burdens and socio-cultural boundaries placed on them (Oxfam 2005, ILO 2006). Women also face greater problems with regard to inter alia reproductive health and gender-based violence (Oxfam 2005) - especially after a disaster. In general it can be concluded that women are more disadvantaged than men due to gender roles in society and that there is thus a need to address women’s rights and to support their capacity to participate actively in the process of decision making from the lowest level


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(village level) up to the higher level in the process of rehabilitation and reconstruction including mitigating the effects of disaster (Oxfam 2005; HRC UCLA 2005; EC 2006; Suraiya 2007). The recovery process represents an important opportunity to mainstream a balanced gender approach in development planning because previous development processes that did not adequately consider the vulnerabilities or capacities of men, women, children or the elderly are one common development related cause of increased disaster risks. Gender based vulnerabilities and the capacity to identify recovery and risk reduction strategies by groups of men, women, children and the elderly previously not involved in development planning are critical inputs needed for DRR guided recovery planning in that it is by its nature post-disaster development planning. Making a gender sensitive perspective a part of the recovery planning process will contribute to the long-term establishment of gender sensitive development during normal non-disaster recovery periods.

Never Again A Disaster Like This! – Disaster Risk Reduction Based Recovery A basic issue local government officials from Aceh and Yogyakarta continue to raise based on recent experience is the need for recovery assessments and programming processes that will help them identify and put in place ways to keep disasters from happening again. Based on this local government input as well as on national government experience with the Aceh and Jogjakarta recovery processes, the GOI’s BNPB is beginning to articulate approaches to disaster recovery in-line with the most current international thinking on disaster recovery strategies as captured in the following international definitions. In 2004, the UN International Strategy for Disaster Reduction (ISDR) published the following definition for “recovery, rehabilitation and reconstruction”:

“Decisions and actions taken after a disaster with a view to restoring or improving the pre-disaster living conditions of the stricken community, while encouraging and facilitating necessary adjustments to reduce disaster risk. Recovery (rehabilitation and reconstruction), affords an opportunity to develop and apply disaster risk reduction measures”

A clearer and more evolved definition developed by the UN Inter-Agency Standing Committee (IASC) Cluster Working Group (CWG) is as follows:

“Recovery begins early in a humanitarian setting. It is a multi-dimensional process, guided by development principles. It aims to generate self-sustaining nationally and community owned disaster resilient processes for post-crisis recovery. Early recovery encompasses the restoration of basic services, livelihoods, shelter, governance, security and the rule of law, environment and social dimensions, including the reintegration of displaced populations. It stabilizes human security and addresses underlying risks that contributed to the crisis.”1

The GOI’s established National Disaster Management Agency (BNPB) through its Department of Rehabilitation and Reconstruction has started the major task of building the foundations needed for good recovery planning and implementation through identifying, developing and putting-in-place needed new rehabilitation and reconstruction guidelines, partnership agreements and improved practices. While proceeding independently on its own, BNPB has also reached out to the international community at large and UNDP specifically for assistance on this substantial task. In the last year, BNPB has also keenly participated in the global process jointly initiated by The World Bank, European Union and UNDP to develop a post-disaster needs assessment (PDNA) process intended to better define human recovery needs. The GOI views the PDNA as a potentially very valuable tool and see Indonesia as a country where such an assessment system can be designed, tested and developed into a final product for its own use as well as by others in the region or world. Recent tasks taken by BNPB and others in Indonesia on planning for recovery are as follows.

Post Disaster Needs Assessment (PDNA) Workshop I, 28-29 April 2008. In April 2008, an international workshop led by BNPB was held in Jakarta attended by key stakeholders interested in building on the Damage and Needs Assessment (DALA) process to develop an improved, comprehensive approach to assessing recovery (rehabilitation and reconstruction) needs. Key stakeholders and participants included BNPB, BAPPENAS, UNDP, The World Bank and the European Union. During the workshop, GOI

1 This second definition is an extract from “Guidance Note on Early Recovery” prepared by the IASC Cluster Working Group, October 2007. See also Clarification of Terms in Annex 1.

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representatives posed the idea of preparing a project framework for support from donors attending the meeting to further develop not only a post disaster needs assessment process, but, more broadly, a comprehensive rehabilitation and reconstruction (recovery) needs assessment, planning and monitoring processes that would include a pre-disaster recovery planning process based on electronic information databases and maps loosely referred to as an “information preparedness” system. Four key components were discussed as the starting point for such a framework that included support for the 1) further development, enactment and making operational the GOI’s Rehabilitation and Reconstruction Guidelines (RRG) BNPB would soon be preparing (see paragraph below), 2) design and institutionalization of an RRG training programme, 3) implementation of the RRG training and design and 4) establishment of an information preparedness system for rehabilitation and reconstruction. This project document takes these ideas as a starting point and, based on a series of discussions with BNPB’s Department of Rehabilitation and Reconstruction and BAPPENAS, addresses support for other critical recovery planning needs. Post Disaster Needs Assessment (PDNA) Workshop II, 3-4 November 2008. In November 2008, an international workshop was held in Jakarta attended by the same stakeholders as the first workshop to discuss progress to date and next steps. The aim of the workshop was to 1) identify the most viable institutional arrangements, including the international organizations involved in the PDNA, in supporting the development of Indonesia’s Rehabilitation and Reconstruction Guidelines, 2) ensure the incorporation of humanitarian assistance immediate post-disaster assessment into Rehabilitation and Reconstruction Guidelines, and 3) agree on the course of joint actions by the workshop participants to support the development and enactment of Rehabilitation and Reconstruction Guidelines.

Post Disaster Needs Assessment (PDNA) Public Consultation Workshop, April - June 2011. A series of initiatives has taken place, including the drafting of PDNA Guidelines, internal consultation within BNPB, consultation with Bappenas and line ministries, UNDP, and the World Bank, as well as with UN Agencies and NGOs, culminating in the incorporation of inputs into the final version of the PDNA Guideline scheduled to be enacted in the second half of 2011.

Initiation of BNBP’s Rehabilitation and Reconstruction Policy, Regulatory and Operational Framework. BNPB has initiated a process to develop, socialize with other ministries and local governments, refine and finalize two key sets of policy documents on rehabilitation and reconstruction. This initiative includes the development of 1) draft Guidelines on Rehabilitation and 2) draft Guidelines on Reconstruction appropriate for the current Indonesian context. At the 28-29 April 2008 Post Disaster Needs Assessment (PDNA) Workshop, UNDP was specifically asked to support the GOI process of fully developing, enacting and establishing these draft Guidelines on Rehabilitation and Reconstruction. UNDP was also asked to 1) support the development and implementation of the finalized guidelines, and 2) support BNPB in its effort to design and institutionalize a training programme and identify an information preparedness system that would support the Rehabilitation and Reconstruction planning and re-development decision making process. UNDP was also asked by BNPB to prepare a long-term project designed to support the process of making these and other guidelines related to rehabilitation and reconstruction operational and for putting them into practice in partnership with local governments. Further to the above requests, since 2008 UNDP through DR4 has provided facilitation to the overall development process of the revised Rehabilitation and Reconstruction Guidelines (RRG), which were officially endorsed by BNPB through PERKA No. 17/2010 in November 2010. The guidelines went through a process of regular Expert Opinion Team meetings, public consultation at local and national level involving GoI institutions, NGO/INGO, academician, practitioners, donors, and private sectors. Furthermore, analytical mapping and drafts on relevant operational guidelines of the RRG have also been produced, towards finalization of the comprehensive RRG formulation in 2011.

Identifying a Comprehensive, BNPB Coordinated Recovery Needs Assessment Process. Great interest has been expressed by both BNPB and BAPPENAS (due to BAPPENAS’ role in budgeting rehabilitation and reconstruction programmes) for support from UNDP to assist in developing a more sensitive recovery (rehabilitation and reconstruction) needs assessment process based on “home-grown” Indonesian initiatives. Indonesia’s PDNA process has been built on the Damage and Loss Assessment (DALA) platform currently adopted and established by the GOI but modified to result in a model more sensitive to community

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identified needs and sustainable development considerations. The GOI has adopted and applied the DALA process on numerous occasions in Indonesia. It also played a key leadership role through ASEAN by helping apply the DALA process in Myanmar after Cyclone Nargis. For the first time in Asia, the Myanmar DALA was also integrated in a joint report with the initial humanitarian needs assessment. However, while the GOI appreciates the strengths of the DALA (developed by UN’s ECLAC based on 25 years of disaster loss and needs assessment experience) – the GOI’s BNPB, BAPPENAS and much of the international community also recognize that the DALA process has its limitations. There is a growing consensus that a comprehensive approach to an Indonesian PDNA process would include the initial humanitarian disaster and needs assessments done in the first 12 to 72 hours after the disaster and then continue through all assessments that follow the DALA process. This would be done by using a set of common “beginning-to-end” indicators that can be carried through the recovery process from day one, through the immediate PDNA process for identification of immediate early recovery needs through to the completion of final reconstruction activities (see early recovery definition in Annex 1). Common “beginning-to-end” indicators would allow a way to continuously assess and monitor progress using a common baseline leading to better accountability, better adjust to rapidly changing understanding of recovery needs and better reflect the perceived needs of affected communities through the whole recovery process. This process also offers an important opportunity to mainstream gender sensitivity into the DRR and recovery process – an area that has not been adequately addressed so far by DRR or recovery stakeholders. OCHA has been leading a process with Indonesian Humanitarian agencies and NGOs that resulted in the development of a common set of questions organized by recovery cluster (go to www.humanitarianreform.org/humanitarianreform/Default.aspx?tabid=70 for background information on the Cluster Approach). One of the key issues, other than identifying the needed questions for the questionnaire, was agreement on common indicators with a view to being able to 1) achieve the goals identified above, 2) anticipate linkages through these common indicators to the PDNA early recovery assessment process still being developed and also the GOI adopted Damage and Loss Assessment (DALA) process and 3) prepare a joint report on Damage, Loss, and Needs Assessment Some key elements of an Indonesian PDNA process would include, among other things, developing a more comprehensive integrated process built upon a set of common indicators that 1) better link needs identified during early humanitarian needs assessments with early recovery, rehabilitation, reconstruction and later with normal development processes, 2) identify recovery strategies that are more sensitive to future community needs not just lost assets or immediate humanitarian needs, 3) recognize that, so far, Indonesian local governments feel recovery assessments have not adequately identified the systemic underlying development related causes, 4) clearly identify measures that local governments can take to prevent future disasters as part of recovery, 5) are sensitive to needs identified by the affected communities and 6) take a forward planning perspective rather than the blunt replace-what’s-been-lost hindsight approach of the current GOI DALA process.

Harmonising GoI’s Post-disaster Recovery Planning at national and local levels. Following the conduct of the PDNA the government will produce a master plan for rehabilitation and reconstruction, which is often referred as the Action Plan for Rehabilitation and Reconstruction (Rencana Aksi Rehabilitasi dan Rekonstruksi, RENAKSI). The RENAKSI document will serve as the main reference for post-disaster programming by the government. As such it provides guidance to relevant government departments at the national and local levels to allocate funds to support the rehabilitation and reconstruction programs. RENAKSI is a typical nationally-owned process in Indonesia’s practice of post-disaster recovery programming. This document is important as it attempts to clarify recovery priorities, avoids duplication, provides a framework for allocation of resources by both national and local governments, and further presents the gaps between the actual recovery needs and the available government resources, thereby allowing international development partners to contribute in addressing the gaps. In the event that a disaster is declared as a local/regional disaster, a similar framework shall apply through the conduct of a PDNA and the subsequent formulation of the local RENASKI. The DR4 Project provided support to strengthen recovery planning at the local level that was initiated during recovery response to post-earthquake in West Java July 2009. As it is at the national level, the local RENAKSI served as the main reference for rehabilitation and reconstruction of the affected areas in West Java in 2009.

http://www.humanitarianreform.org/humanitarianreform/Default.aspx?tabid=70

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Indonesia Multi Donor Fund Facility for Disaster Recovery: A Framework for Participation of International Development Partners in Supporting Rehabilitation and Reconstruction. The Jakarta Commitment, signed in 12 January 2009 stipulates the leadership of national government in managing international aid for development. In this context, the participation of international development partners in the post-disaster recovery efforts should be in line with the national priorities defined by the government and their support be provided under government’s leadership and management. In December 2009, following the earthquake that struck West Sumatera in September 2009, a Memorandum of Understanding was signed by Bappenas as representative of GoI, United Nations, and the World Bank, for establishing the Indonesian Multi Donor Fund Facility for Disaster Recovery (IMDFF-DR). The IMDFF-DR is a facility to enable GoI and Development Partners to respond to disasters in a more rapid, flexible manner and provide transparent and accountable management of the complementary international funds. A series of consultations and meetings have been held among the responsible parties to accelerate the follow through of the IMDFF-DR. In April 2010, a document on Framework for the IMDFF-DR was introduced, which was comprised of three main parts, namely, (i) the framework for participation of international agencies in rehabilitation and reconstruction, (ii) the elaboration and operationalization of the IMDFF-DR, and (iii) its implementation to the recovery efforts in West Sumatera2. The document was publicly discussed and the forum agreed on a set of follow through actions, mainly on operationalization the IMDFF-DR as a financing mechanism. There have been significant development since then, much is attributable to the contribution and support of this DR4 project, and now the IMDFF DR is fully established with its Steering Committee, Technical Committee and Secretariat. As it stands today, the IMDFF-DR has two windows that are managed respectively by UNDP and the World Bank. The first window, managed by UNDP3, corresponds with support for early recovery and full recovery programs in sectors such as livelihoods, governance, environment, and small-scale infrastructure. The second window, managed by the World Bank, is concerned with support for recovery programs in housing sectors and large-scale infrastructures.

2 Indonesian Multi Donor Fund Facility for Disaster Recovery and Framework for Participation of International Agencies in West Sumatera Recovery, compiled by and Inter-Agency Team facilitated by Recovery Advisor, United Nations Resident Coordinator’s Office in Jakarta, April 2010. 3 UNDP has developed a comprehensive Operations Manual for the IMDFF-DR’s UN window.

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II. STRATEGY The above analysis illustrates the extremely important steps the GOI is taking and the strong foundation it is building as the imperative for 1) creating the required supportive environment for disaster risk reduction throughout communities in Indonesia and 2) as part of that, initiating the process of establishing recovery policies and practices that better guide and monitor successful recovery planning and implementation guided by disaster risk reduction principles. Making disaster risk reduction a core part of recovery will ensure “Never-Again-A-Disaster-Like-This-Recovery” by identifying and mitigating development and governance related causes. The ultimate aim of the DR4 project is to help the GOI ensure that core systems are established to ensure that disaster recovery takes place in a way that better considers the real needs of any given disaster affected community based on the establishment of a) disaster recovery guidelines operating based on adequate pre-disaster information, recovery planning and needs analysis systems b) pre-established agency working relationships and core recovery practices and c) identified underlying development related causes of a given disaster. As a part of pre-disaster recovery planning and post-disaster needs assessments, ways to counteract underlying causes of disasters must be considered and accounted for as a part of recovery programming so disaster risk reduction becomes a normal part of and affected communities governance and development planning processes. In short, the project addresses recovery as an opportunity to reduce the effect of future disasters by making disaster risk reduction a normal part of the affected communities governance and development planning processes resulting in a “Never-Again-A-Disaster-Like-This-Recovery” process. Mutual Reinforcement among Project Components and with Other Related Projects. The DR4 project will be implemented by pursuing the four outputs and their targets of respective project activities in a simultaneous manner. The outputs and activities of the project can be commenced at approximately the same time without one component being reliant on another component to start. To optimize results, the project will ensure that implementation of each output or activity is synchronized one to another, so that accomplishments of one project output or activity will reinforce and contribute to the other outputs or activities in moving forward. A similar approach will be applied to efforts to coordinate the DR4 with other DRR projects in Indonesia. The DR4 Rights Based Approach. The new Disaster Management Law 24/2007 passed in 2007 is wide-ranging in affording individual rights to Indonesian citizens for protection from disasters. This law also has teeth. It lists penalties in the form of substantial fines and jail sentences applicable to individuals and organizations, including those of the government, public and private sectors, for failing to abide by the law. The law includes specific language on direct protection and response services in disasters and outlines the rights of individuals to information, education and training on disaster risk reduction. The DR4 will develop strategies to ensure that these still new and not widely known or understood principles are built into all project activities and programme development strategies. A Rights Based Approach Strategy will be prepared as a part of the inception planning process. The DR4 Rights Based Approach project strategy will be rooted in: • Use of Disaster Management Law 24/2007 to ensure local and national government agencies as well

as public and private organizations undertake their responsibility to the fullest extent to protect the citizens of the communities they influence

• Empowering under-represented or economically disadvantaged groups at national and local levels by providing opportunities for leadership, governance and development planning inputs and policy decision making process

• Awareness raising to ensure citizens and organization understand their rights and responsibilities under the law and consequences for obstructing or not acting to address disaster risk management needs

Gender Strategy. Among the numerous gender discriminatory issues in Indonesia one important area that can most effectively be addressed as a part of a development related DRR based recovery programme is the very low representation of women in the public arena where development planning decisions and disaster risk reduction measures are being identified and implemented. This can be addressed, for example, by developing strategies to ensure that women and other under-represented

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groups such as the elderly and children are better represented in the development planning and DRR strategy decision-making processes as well as in the risk assessment processes developed as a part of the vulnerability and capability assessments. A second area that can be addressed, to a lesser extent, is violence against women (studies show that violence against women increases after disasters). Also, for example, strategies will be developed to incorporate gender sensitivity as part of recovery planning and the post-disaster needs assessment components of this programme. Gender disaggregated information sources that the DR4 will apply to develop gender strategies include 1) the Labor Force Survey (SAKERNAS), 2) the National Socio-Economic Survey (SUSENAS) and 3) the Social Indicators on Women in Indonesia/ Women and Men in Indonesia available from the Central Bureau of Statistics (BPS). UNDP/BCPR has developed the document “UNDP’s Eight Point Agenda for Women Empowerment and Gender Equality” and based on these principles, UNDP/CPRU Indonesia has prepared a DRR gender mainstreaming strategy this is being applied to the CPRU DRR project design and implementation process of all projects entitled “Establishing a Gender Mainstreaming Strategy within the Crisis Prevention and Recovery Unit” that will be used as guidance for DR4 implementation. Copies of these documents can be downloaded from the UNDP Indonesia Web Site. The gender mainstreaming strategy in this project design aims to ensure that the differential needs and interests of men and women are accommodated equally. However women’s empowerment will be emphasized since women tend to be more vulnerable to disasters. At the same time, women play significant roles and have contributions to make in DRR. The DR4 project strategy will be rooted in: • Valuing women, children and elderly peoples knowledge and capacity for contributing essential

components to DRR strategies without which full success can not be reached • Empowering women and women’s organizations at national and local levels by providing

opportunities for leadership, governance participation, development planning inputs and input to the policy decision making process

• Increasing the knowledge of governance organizations on DRR related gender issues Coordination of UNDP Supported DRR Projects through Project Board Arrangements. Links are being forged between the “Safer Communities through Disaster Risk Reduction in Development” (SC-DRR) the GOI’s flagship national umbrella DRR programme and the “Making Aceh Safer Through Disaster Risk Reduction in Development” (DRR-A). UNDP, OCHA and UNCT Coordination. Both UNDP and OCHA are working to support capacity building of the new National Disaster Management Agency (BNPB). UNDP/CPRU will arrange regular coordination meetings with OCHA and to ensure that project activities are coordinated and any potential duplications avoided. Since UNDP/CPRU focuses on development related DRR issues and OCHA is building the response and preparedness capacity of BNPB there is a small risk that duplication could take place. Further to this, UNDP and OCHA have worked closely to finalize and get approval for the United Nations Joint Strategic Programme on Disaster Risk Reduction (UN JSP-DRR) project that will further strengthen the UN Technical Working Group on Disaster Risk Reduction (UN TWG-DRR) and its ability to coordinate all UN Agency DRR related programmes by establishing the UN TWG-DRR in the Office of the RC/HC. When this mechanism is in place, coordination of all UN Agency DRR programmes will be done through a more centralized process of information sharing and gap analysis. Overall Integration and Coordination with DRR Programme and Project Activities throughout Indonesia. UNDP/CPRU is also supporting the establishment of broader overarching links among disaster risk reduction initiative in Indonesia by painstakingly setting up a range of long-term coordination mechanisms outside project frameworks that national and local DRR project activities can be linked to. These coordination bodies and mechanisms include: • The GOI led National DRR Platform and its coordination tool the National Action Plan on DRR (NAP-

DRR based on the ISDR Hyogo Framework for Action on DRR) that will be the basis for measuring progress towards mainstreaming DRR throughout Indonesia

• The DRR Convergence Group of multi-lateral, bi-lateral and INGO agencies and its on-line coordination mechanism (see page 2 and www.un.or.id/untwg/3w/index.asp)

• The UN TWG-DRR and its cross agency coordination mechanism the UN JSP-DRR programme Local Government to Local Government learning and sharing meetings linked to specific new DRR activities, linking experiences from provincial DRR activities to the national policy decision-making process through ensuring local participation in national policy development processes


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Common Disaster Needs Assessment and Monitoring Process. Special attention will also be paid to the current OCHA led process of establishing a common approach pre-agreed by all cluster stakeholders for doing humanitarian needs assessments. This process will be integrated with the development of a Post Disaster Needs Assessments (PDNA) under Output 3 so common indicators can be used from the humanitarian needs assessments in the first 12-72 hours of a disaster, through Human Recovery Needs Assessment (HRNA) to the GOI’s Damage and Loss Assessment (DALA) to better inform the early and long-term recovery planning, programming and progress monitoring processes. Selection of Project Location. Much of the DR4 project will be carried out at the national level. However, RRG training and testing of recovery tools and methodologies developed will be done at the local level through district or provincial government agencies. Currently the GOI, through its SC-DRR programme has identified priority provinces based on currently available disaster risk information. These provinces will form the starting point for prioritization or identification of local level activities. However, in the case of the PDNA, provinces where disasters may have just taken place will take priority since actual disaster affected areas will provide better opportunities for the GOI to test and refine its methodologies. Decentralization Sensitive Approach to Establishment of Rehabilitation and Reconstruction Guidelines (RRG). While the DR4 will support the development and enactment of the RRGs in initial stages as a part of Output 1 activities, the training programme of Output 1 is part of the establishment process at the local level as training will be focused on making priority Provincial and District Government Agencies competent at applying the RRG in addition to target national level line ministries. In Output 2, the activities will focus on the development of needed relationships and partnerships between national level agencies and local government agencies as well as between local government agencies. All of the activities in Output 3 are focusing on the development and application of standards, tools or practices that will be used by local government, such as the PDNA, Early Recovery and Sustainable Recovery Frameworks, manifested in Rencana Aksi Rehabilitasi dan Rekonstruksi (referred to as Renaksi – Action Plan of Rehabilitation and Reconstruction) including Monitoring and Evaluation scheme). While Output 4, guided by all 3 outputs as above, will enable any necessary early recovery and longer-term recovery measures to be implemented in post-disaster areas. Advocating for a Post-Disaster Sustainable Recovery Framework. The DR4 project along with other development partners and international agencies will advocate the development of a Post-Disaster Sustainable Recovery Framework, comprising the components of policy and regulations, financing mechanisms, recovery programme planning, and stakeholders’ coordination. In line with the emerging needs to accelerate and enhance the establishment of IMDFF-DR, incorporating support to establishment of IMDFF-DR within overall support in strengthening institutional framework in post-disaster recovery is seen to be a strategic measure of DR4 Project. Such framework has now been manifested in Rencana Aksi Rehabilitasi dan Rekonstruksi (referred to as Renaksi – Action Plan of Rehabilitation and Reconstruction) including Monitoring and Evaluation scheme. This Renaksi is prepared by the GOI at the national level following the PDNA of a major disaster. Development of a more detailed Renaksi by the affected sub-national government is being advocated. Precedence has been set with the post-earthquake recovery response in West Java as of July 2009. With view to foster the accountability aspects of the recovery process, DR4 aims to strengthen current M & E scheme embedded in the Renaksi by actively engaging community participation in monitoring of the recovery process through CBM-RR (community-based monitoring on rehabilitation and reconstruction) and also through longitudinal studies to analyze the impacts of recovery response to affected communities. A part of this framework is a sound governance structure that will guide the participation of different actors in supporting post-disaster recovery. The DR4 will therefore commission a thorough study on the institutional scanning of key GOI agencies with the mandates on disaster response, their corresponding / underlying regulations, and also the financing mechanism of the disaster response programs. To some extent, the study will also look at the international agencies as well as national non-government organizations that have either the mandate/commitment or capacity to respond to disaster response and recovery. As such, this study will lay a solid ground for inter-agency coordination and synergy of programs and financing for disaster-response and recovery.

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Another key aspect in fostering a sustainable recovery is the financing mechanism both by the government and also by the international development partners. As stated above, DR4 Project includes provision of support for strengthening of IMDFF-DR within the overall support towards advocating a sound institutional framework in post-disaster recovery. The IMDFF-DR provides a strategic venue where not only the financial allocation is decided upon but also the key priorities for recovery are determined. Through IMDFF-DR, the international community and development partners are presented with information on the actual needs for both early recovery and recovery and the actual resources that can be provided by the government. The gaps between needs and available government resources are expected to be met by the contribution of the international community and development partners. It is therefore necessary to have a common reference for recovery programming in which the needs are clearly spelled out and also the corresponding resources to be provided by the government are concisely presented. This common reference is the action plan for recovery that is known as RENAKSI. . As referenced above, it has been a standard practice for post-disaster response in Indonesia that the government will publish a master plan for post-disaster rehabilitation and reconstruction, that is locally known as RENAKSI. The RENAKSI is developed based on the data and information obtained from a post-disaster assessment. In the past the assessments have been focused heavily on the damages and losses caused by the disaster but paid less attention to the human recovery needs. In view of strengthening the current practice, the DR4 project advocates for a formulation of the RENAKSI that is based on the data and information generated from a sound/solid post-disaster needs assessment (PDNA), in which both the damages/losses and human recovery needs are equally considered. The project will therefore make considerable provision to provide technical assistance and capacity development to national and local governments for PDNA and RENAKSI formulation process. In delivering the assistance, the project will build its approach on lessons learned from previous disasters, such as the West Java earthquake in July 2009, where the support to strengthen recovery planning processes at the local level was initiated. Early Recovery to Sustainable Recovery measures. While the components of regulatory, institutional framework, and methodology and tools are being refined and strengthened, an essential component to support is the recovery measures in the disaster-affected areas. Early Recovery4 and Recovery5 measures and advise provided by UNDP are guided by its global Early Recovery and Recovery principles and frameworks, GoI’s Action Plan for Rehabilitation and Reconstruction document, and based on good practices and approaches extracted from its empirical interventions. The early recovery measures at the country level focuses on strengthening post-crisis governance, facilitate an effective local-level early recovery, and support a coordinated early recovery planning. The latter is significant to ensure an effective longer-term recovery planning and implementation.

III. OUTPUT AND ACTIVITIES The strategic approach to addressing the issues described in above sections is embodied in the following immediate development objective. Immediate Development Objective

Strengthen the capacity of GOI national and local government agencies to coordinate and implement gender sensitive, pre and post disaster recovery planning processes and practices based on disaster risk reduction principles.

Outputs 4 Early recovery is a multidimensional process of recovery that begins in a humanitarian setting. It is guided by development principles that seek to build on humanitarian programmes and to catalyse sustainable development opportunities. It aims to generate self sustaining, nationally owned, resilient processes for post crisis recovery. It encompasses the restoration of basic services, livelihoods, shelter, governance, security and rule of law, environment and social dimensions, including the reintegration of displaced populations. UNDP Policy in Early Recovery, February 2008. 5 The International Strategy for Disaster Reduction (ISDR) defines recovery as the “decisions and actions taken after a disaster with a view to restoring or improving the pre-disaster living conditions of the stricken community, while encouraging and facilitating necessary adjustments to reduce disaster risk”.

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The following four project outputs are designed to contribute to the achievement of the DR4 project’s immediate development objective above.

Output 1: Establish Rehabilitation and Reconstruction Guidelines – Disaster risk reduction (DRR) based rehabilitation and reconstruction guidelines strengthened, enacted and established

Output 2: Build Institutional Systems for Rehabilitation and Reconstruction –

Institutional systems strengthened and established that support disaster risk reduction (DRR) based recovery (rehabilitation and reconstruction)

Output 3: Apply Rehabilitation and Reconstruction Practices and Tools –

Field application of disaster risk reduction (DRR) based recovery (rehabilitation and reconstruction) practices, methodologies, guidelines and tools with feedback mechanism to policy framework

Output 4: Recovery responses implemented in the disaster-affected areas –

Recovery measures to the disaster-affected areas implemented, guided by GoI’s Post Disaster Needs Assessment (PDNA) and Post-disaster Rehabilitation and Reconstruction Action Plan (RENAKSI).

A more detailed description of Outputs I, 2, 3, and 4 based on the strategic approach identified above, are broken down into activity-by-activity as follows:

Output 1: Establish Rehabilitation and Reconstruction Guidelines - Disaster risk reduction based rehabilitation and reconstruction guidelines strengthened, enacted and established

The purpose of this output is to support the full development and initial institutionalization of the GOI’s draft Rehabilitation and Reconstruction Guidelines across line agencies and down to the provincial level. Overall, this output is designed to support the further development, enactment and establishment of the GOI’s draft Rehabilitation and Reconstruction Guidelines. It will support the socialization, updating and finalization of the recently prepared guidelines including identification of gender and rights based strategies. This output will then support the identification of an institutional training delivery mechanism, the design of a programme to train GOI inter-ministerial and local government staff on the use and application of the guidelines. Finally all processes and products generated by this output will be documented and disseminated to ensure that lessons learned are made a part of national and local policy, legal and regulatory support framework and available from broader sharing. Activity 1.1 Enactment of socialized and updated disaster risk reduction based rehabilitation and reconstruction guidelines

This activity will support BNPB to socialize, update and finalize the Draft Rehabilitation Guidelines and the Draft Reconstruction Guidelines so that they can be enacted. The socialization, updating and finalization process will be done based on inputs from relevant government line agencies, local governments and their agencies (provincial, district and urban governmental agencies) as well as key GOI recovery partners including key public and private sector partners, the international community, etc. The new decentralized nature of the GOI will be a key consideration and gender mainstreaming and rights based strategies will also identified and designed and then integrated into the guidelines.

Specific project inputs contributing to the achievement of this activity may include but are not limited to the following: • Socialize disaster risk reduction based rehabilitation and reconstruction guidelines with

mainstreamed gender and rights based approach among disaster o Study, identify and design gender mainstreaming and rights based strategies to be

incorporated in rehabilitation and reconstruction guidelines (RRG) o Socialize, update and finalize gender mainstreaming and rights based strategies to be

incorporated in rehabilitation and reconstruction guidelines as part of guidelines socialization process

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• Update and finalize disaster risk reduction based rehabilitation and reconstruction guidelines with mainstreamed gender and rights based approach

• Enact disaster risk reduction based rehabilitation and reconstruction guidelines with mainstreamed gender and rights based approach and issue to line agencies and provincial governments

Activity 1.2 Design, institute and run training programmes for disaster risk reduction based rehabilitation and reconstruction guidelines (RRG)

This activity will support the identification of a training delivery mechanism through which GOI staff from government line agencies and provincial, district and urban governments can be trained on the use and application of the final enacted rehabilitation and reconstruction guidelines. The training deliver mechanism will be mainstreamed as a part of normally required, long-term government staff training and professional development programme(s). Once the training mechanism has been identified, the training programme will be developed, tested and then delivered intensively through to the end of the three-year project period. Continuation of the training programmes after the project will be a normal part of government staff training by the GOI with its own resources. Specific project inputs contributing to the achievement of this activity may include but are not limited to the following: • Assess feasibility and capacity of existing GOI training institutions, their staff and other GOI staff

development training mechanisms for hosting or mainstreaming into it the planned RRG training program: o Develop a gender mainstreaming strategy as required to meet the gender mainstreaming

needs of anticipated training mechanisms; o Study the differences between national line agency training needs and local government

training needs and identify the resulting variations in training institution or training delivery mechanisms required;

• Identify rehabilitation and reconstruction guidelines (RRG) training delivery mechanism, define TOT requirements and develop programme for required institutional strengthening measures (if needed) o Study, identify and design gender mainstreaming and rights based strategies required of

selected GOI training institutions or mechanisms. • Design and develop the rehabilitation and reconstruction guidelines (RRG) training programme

and its training modules: o Study and identify the range of different training programmes and models required by the

range of training recipients identified such as national government line agencies, local governments and their agencies (i.e. provincial, district and urban governmental agencies);

o Study, identify and design required gender mainstreaming and rights based training modules needed for the range of different training packages;

o Design and develop initial training courses and modules, do required TOT, and initiate the initial test training roll-out;

o Design and develop a training monitoring and evaluation process that will result in a process for updating training programmes as needed;

o Develop plan for establishing a RRG Mentoring Advisory Group (MAG), design a process of after-training follow-up mentoring programmes for RRG trainees and design an institutionalization programme for the MAG.

• Deliver the planned initial two and a half (2½) year recovery and reconstruction guidelines (RRG) training programme and training modules through identified training institutions and mechanisms;

• Deliver two (2) year RRG MAG after-training follow-up mentoring programme; • On-going monitoring, evaluation and updating of training programmes.

Activity 1.3 Knowledge Management - Capture and disseminate lessons learned through good practice and process documentation

In order to support a broader knowledge sharing process and to fully support future evaluations and assessments of benchmarks, progress or setbacks regarding approaches and processes used to

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strengthen institutions to better support disaster risk reduction, lessons learned (what can be done better and what can be done differently) and good practices need to be documented and made widely available. Design and implementation of specific process documentation and knowledge sharing systems will be done to ensure these project activities support a broader knowledge sharing process and ensure that project lessons learned are made a part of national and local policy, legal and regulatory support framework and expanded capacities. The tasks required to undertake this activity include but are not limited to the following:

• Collecting data and information such as key process documentation at periodic intervals on

progress in implementation and impacts achieved; • Producing a series of reports with analysis and interpretation of this information; • Study, identify and design gender mainstreaming and rights based knowledge management

strategies to be built into all RRG activities; • Convening workshops or seminars for partners and interested stakeholders to review findings

and determine what revisions and adjustments are needed to improve performance and effectiveness of activities;

• Conduct lessons-learned workshops or seminars as input into refining the development of materials for local government capacity building on disaster risk reduction so that they can be used in other provinces of Indonesia;

• Making changes or revisions to workplans and operating procedures to ensure that these lessons and revisions are incorporated in future activities;

• Producing guidelines on the subject matter under review, which can be used by others both in Aceh and elsewhere in Indonesia; and

• Using relevant lessons to influence improvement and/or issuance of supportive policy and regulations at both local and ultimately national level through UNDP-BAPPENAS project of SC-DRR

Output 2: Build Institutional Systems for Rehabilitation and Reconstruction Institutional systems strengthened and established that support disaster risk reduction based recovery (rehabilitation and reconstruction)

Output 2 is designed to support the GOI’s BNPB to identify and put in place needed interagency recovery, rehabilitation and reconstruction terms of reference, protocols, agreements, standards, SOPs and pre-agreed financial mechanisms. This will be done for 1) BNPB and BAPPENAS, 2) other GOI line agencies (including line-agency/local government agencies agreements and protocols as well as intra-provincial agreements and protocols) and 3) GOI and key national community based organizations (CBOs) or non-governmental organizations (NGOs) involved in disaster recovery. Activity 2.1 Strengthen BNPB and BAPPENAS and the interagency relationships for enhanced recovery (rehabilitation and reconstruction) operations

This activity has supported an initial assessment of BNPB and BAPPENAS’ as well as other stakeholders’ recovery, rehabilitation and reconstruction capacities and needs. A critical part of this assessment included an assessment of needed interagency terms of reference, protocols, agreements, standards, SOPs and pre-agreed financial mechanisms required to establish smooth interagency recovery, rehabilitation and reconstruction operational relationships before they are needed for a disaster. Based on the assessment and by means of other related initiatives, the DR4 project has supported the establishment of a platform for facilitating and financing expedited post disaster recovery responses involving the international humanitarian community. Indonesian Multi Donor Funding Facilities for Disaster Recovery (IMDFF DR) has been activated since 18 November 2010, and its Secretariat established under the Bappenas Ministrial Decree no. 30/MPPN/HK/03/2011 dated 17 March 2011. DR4 project has been supporting the establishment of this IMDFF-DR Secretariat, and continues to provide support with respect to the formulation of the Secretariat’s Standard Operating Procedures (SOP). It is planned that further operational support will still be provided, upon continuing request from the Technical Committee of the IMDFF-DR, specifically from Bappenas and BNPB.

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Given that the GOI effectively serves as the insurer of last resort to communities affected by disasters as well as its own assets, faculties and infrastructure, this output will also support an assessment of the need and cost/benefit analysis of possible financial risk transfer mechanisms that can reduce GOI economic losses due to disasters and implement pilot activities to test those mechanisms. Specific project inputs contributing to the achievement of this activity may include but are not limited to the following: • Assess key BNPB and BAPPENAS recovery, rehabilitation and reconstruction capacities

o Determine institution building, staffing, staff training, budget, etc. capacity gaps and needs; o Develop capacity building plan and strategy for supporting and implementing it.

• Assess BNPB and BAPPENAS gender policies and rights based policies linked to recovery operations and staffing and develop a capacity building strategy as needed;

• Develop and apply a range of needed interagency BNPB and BAPPENAS recovery, rehabilitation and reconstruction terms of reference, protocols, agreements, standards, SOPs and pre-agreed financial mechanisms (this not only includes those mechanisms needed between BNPB and BAPPENAS but also between BNPB/BAPPENAS and other relevant agencies such as, for example, Public Works);

• Assess recovery, rehabilitation and reconstruction risk transfer financial mechanisms and identify and apply needed adjustments;

• Assess financial risk transfer mechanisms that can reduce GOI economic risks due to disasters and implement pilot activities to test those mechanisms.

Activity 2.2 Strengthen institutional relationships and partnerships that support recovery (rehabilitation and reconstruction) operations among GOI agencies, national non-governmental organizations, community based organizations (CBO), and international humanitarian community, as well as other stakeholders in post disaster recovery.

This activity will support initial capacity and needs assessments of priority-selected government line agencies, local government agencies and the key stakeholders mentioned above. national involved in post-disaster recovery. A critical part of these assessments will include an assessment of needed interagency and inter-organizational terms of reference, protocols, agreements, standards, SOPs and pre-agreed financial mechanisms required to establish smooth recovery, rehabilitation and reconstruction operational relationships and partnerships before they are needed for a disaster. A crucial part of this assessment will be an assessment of province-to-province mutual support agreements and protocols.

Based on the above assessments, this activity will support the development of selected priority agreements and mechanisms needed along with the interagency meetings required to resolve and work out their details. It will also support selected application and operationalization of the agreements and mechanisms.

Specific project inputs contributing to the achievement of this activity may include but are not limited to the following: • Assess key GOI agency recovery capacities and identify priority needs for strengthened working

inter-relationships/partnerships among GOI agencies; • Assess key provincial government recovery capacities and identify priority needs for

strengthened working inter-relationships/partnerships among provinces; • Assess key national CBOs and NGOs as well as international humanitarian community recovery

capacities and identify priority needs for strengthened working inter-relationships/partnerships with GOI agencies;

• Based on assessment learning develop a gender and rights based strategy; • Develop prioritized workplan for preparing needed interagency recovery terms of reference,

protocols, agreements, standards, SOPs and pre-agreed financial mechanisms; • Develop range of draft priority interagency recovery terms of reference, protocols, agreements,

standards, SOPs and pre-agreed financial mechanisms; • Develop and design a socialization programme for a consensus based process of finalizing draft

interagency recovery terms of reference, protocols, agreements, standards, SOPs and pre-agreed

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financial mechanisms with input from relevant government line agencies, local governments and their agencies (provincial, district and urban governmental agencies) as well as key GOI recovery partners including public and private sector partners such as MBPI, PMI, international community, etc.;

• Prepare the final interagency recovery terms of reference, protocols, agreements, standards, SOPs and pre-agreed financial mechanisms for enactment or issuance and support the relevant GOI agency to enact and issue them;

• Develop a strategy for the design, institutionalization, funding and implementation of a training programme to help support the implementation and proper use by local authorities of these agreements and mechanisms.


In order to support a broader knowledge sharing process and to fully support future evaluations and assessments of benchmarks, progress or setbacks regarding approaches and processes used to strengthen institutions to better support disaster risk reduction, lessons learned (what to do and what not to do) and good practices need to be documented and made widely available. Design and implementation of specific process documentation and knowledge sharing systems will be done to ensure these project activities support a broader knowledge sharing process and ensure that project lessons learned are made a part of national and local policy, legal and regulatory support framework and expanded capacities. The following tasks are required to undertake this activity: • Collecting data and information such as key process documentation at periodic intervals on


strategies to be built into all institution building activities; • Convening workshops or seminars for partners and interested stakeholders to review findings

and determine what revisions and adjustments are needed to improve performance and effectiveness of activities;

• Conduct lessons-learned workshops or seminars as input into refining the development of materials for local government capacity building on disaster risk reduction so that they can be used in other provinces of Indonesia;




Output 3: Apply Rehabilitation and Reconstruction Practices and Tools - Field application of disaster risk reduction (DRR) based recovery (rehabilitation and reconstruction) practices, methodologies, guidelines and tools with feed-back to policy framework

Output 3 is designed to 1) develop and field test an Indonesian Post Disaster Needs Assessment (PDNA) tool based on common “beginning-to-end” indicators that link initial humanitarian assessments to rehabilitation and reconstruction assessments as needed by the GOI to better assess the recovery needs of disaster-affected communities and better monitor the effectiveness of recovery programmes based on community identified needs, 2) develop and initiate a “disaster information preparedness system” that uses common “beginning-to-end” indicators that will support Indonesia’s recovery planning, assessment and monitoring processes and 3) identify other needed recovery guidelines, standards and common “beginning-to-end” indicator frameworks for livelihoods, housing and community related infrastructure (critical facilities and lifeline infrastructure).

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Activity 3.1 Develop and establish an Indonesian Post Disaster Needs Assessment (IPDNA) process building on the current GOI adopted Damage and Loss Assessment (DALA) process that is disaster risk reduction based, community needs centered, gender sensitive and based on a framework of common “beginning-to-end” indicators linked to humanitarian needs assessments

As discussed in the strategy section of this document, the GOI has been keen to develop an Indonesian Post Disaster Needs Assessment (IPDNA) process that builds on and brings together into one common framework the current cluster based, humanitarian needs assessments and the GOI adopted Damage and Loss Assessment (DALA) processes now in place in Indonesia. This activity will begin with an inventory, study and lessons-learned assessment of all disaster related humanitarian, recovery, rehabilitation and reconstruction assessment and monitoring methodologies, resulting reports and actions taken that were done after target disasters where DALA was also used and pertinent to the Indonesian PDNA development context. Special attention will be placed on the identification and development of a framework of common “beginning-to-end” indicators that can be used throughout the entire post-disaster recovery process starting with initial 24-72 hour humanitarian needs assessment through the final reconstruction activities. This framework of common “beginning-to-end” indicators is intended to be used for needs identification as well as monitoring. Tied to the above studies, there will also be studies of the links between poverty, gender issues, livelihood and disaster impacts and a final process to identify new or modify existing rapid assessment methodologies that will identify these links and reverse them as a part of resulting Indonesian recovery, rehabilitation and reconstruction programmes. Workshops and focus groups will be used to socialize and the results of these studies, to discuss their implications and to develop ideas for the design of an Indonesian Post Disaster Needs Assessment (IPDNA) and recovery monitoring framework. The result of the above studies and meetings will become the basis for designing a comprehensive Indonesian Post Disaster Needs Assessment (IPDNA) and recovery monitoring and evaluation framework appropriate to the Indonesian context and that is sensitive to community perceived needs, disaster risk reduction principles, gender mainstreaming, poverty alleviation, livelihood strengthening and linked to the HFA-DRR framework for reporting. Again workshops and focus groups will be used to socialize and discuss the implications and improvements of the IPDNA model(s) developed. Once a model(s) have been developed and deemed ready for field-testing they will be applied to selected disasters for refinement and improvement. Specific project inputs contributing to the achievement of this activity may include but are not limited to the following:

• Carry out an inventory, study and lessons-learned assessment of all disaster related

humanitarian, recovery, rehabilitation and reconstruction assessment and monitoring methodologies, resulting reports and actions taken that were done after target disasters where DALA was also used, where common humanitarian assessments were done and where joint disaster needs reports and flash appeals have been prepared;

• Study links between poverty (using local level human development index calculations per current GOI practice), gender based differentials in economic participation, livelihood and disaster impacts and identify rapid assessment methodologies that will identify these links and uncover ways to reverse them as a part of resulting Indonesian recovery, rehabilitation and reconstruction programmes;

• Analyze results of the above studies and recommendations and develop a Indonesian Post Disaster Needs Assessment process and related recovery monitoring framework that is sensitive to community perceived needs, disaster risk reduction principles, gender mainstreaming, poverty alleviation and livelihood strengthening;

• After a disaster, field-test and apply the new assessment and monitoring process and linked recovery, rehabilitation and reconstruction programme framework after a disaster and carefully document the results, lessons learned and process for review and improvement in Indonesia and elsewhere. Alternatively, develop a methodology field-test and apply the new assessment and monitoring process where no disaster has taken place or in areas where previous disaster information is known and comparable as a baseline for the test.

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• Based on the field-test/application results, develop a process for establishing the new IPDNA through preparation, issuance and implementation of GOI guidelines

Activity 3.2 Develop and establish a “disaster information preparedness system” combined with early warning/disaster impact information based on common “beginning-to-end” indicators that will support Indonesia’s recovery (rehabilitation and reconstruction) planning, assessment and monitoring processes

One of the most important elements of successful recovery is area-based, hazard-by-hazard preparation for recovery prior to the next disaster. This means that baseline information needed to determine and compare the pre-disaster conditions of a given affected community to its post-disaster and post-recovery conditions using a pre-agreed framework of common “beginning-to-end” indicators is in place and easily to refer to during the recovery process. It is important that such a system be linked directly to specific, area based early warning systems and existing disaster impact assessments (disaster scenarios or disaster risk assessments/maps) so that pre-disaster recovery planning is based on our best estimate of disaster impacts on a hazard-by-hazard basis. The GOI’s BNPB and BAPPENAS currently refer to such a system as “disaster information preparedness”. This activity will begin with an assessment of existing literature, research, programmes and work on disaster information preparedness systems and early warning and disaster impact information systems in Indonesia or relevant to Indonesia that support a) pre-disaster recovery planning, b) post-disaster recovery needs assessment and c) recovery planning and monitoring. The study of links between poverty, gender issues, livelihood and disaster impacts that were done as part of Activity 3.1 above will be used as the basis for ensuring that adequate information about these links is also considered to be a critical part of as “disaster information preparedness”. From these studies, recommendations will be prepared for the establishing a “disaster information preparedness” system based on the framework of common “beginning-to-end” indicators identified in activity 3.1. These recommendations will also consider linkages and information overlaps such a “disaster information preparedness” system should and will have with the Disaster Risk Management Information System (DRMIS) being put in place under the SC-DRR coordinated by BAKOSURTANAL and the national and five regional Emergency Operations Centers (EOCs) being put in place by BNPB. Based on this, pilot strategies for testing and then establishing a disaster information preparedness system will be developed and implemented in selected, priority high-risk target areas of Indonesia. As a part of this, pilot strategies for testing and then establishing early warning systems with integrated disaster impact predictions that support the process of disaster risk reduction and development planning, recovery, rehabilitation and reconstruction programmes will also be developed and implemented in selected, priority high-risk target areas of Indonesia. Specific project inputs contributing to the achievement of this activity may include but are not limited to the following:

• Assess existing literature, programmes and work on disaster information preparedness systems

and early warning/disaster impact information systems that support a) pre-disaster recovery planning, b) post-disaster recovery needs assessment and c) recovery planning and monitoring;

• Develop and implement pilot strategies for testing and then establishing disaster information preparedness systems in place;

• Develop and implement pilot strategies for testing and then establishing early warning systems with integrated disaster impact predictions that support the process of disaster risk reduction and development planning, recovery, rehabilitation and reconstruction programmes;

• Develop a methodology to field-test and apply the new assessment and monitoring process where no disaster has taken place or in areas where previous disaster information is known and comparable as a baseline for the test;

• Based on the field-test/application results, develop a process for establishing the new area based DRMIS/early warning/disaster impact information system through preparation, issuance and implementation of GOI guidelines and pilot implementation if selected high disaster risk provinces.

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Activity 3.3 Develop recommendations for recovery (rehabilitation and reconstruction) guidelines, standards and monitoring frameworks based on common “beginning-to-end” indicators for livelihoods, housing and community related infrastructure (critical facilities and lifeline infrastructure)

While general guidelines have been established since 2010 for recovery (the rehabilitation and reconstruction) guidelines as a part of this project under Output 1 above, the GOI’s BNPB is also charged with and planning the development of a full range of disaster recovery related operational guidelines and standards. This project will support a small but critical portion of that work that is linked to early recovery processes such as restoring livelihoods and income, providing safe temporary, transition or permanent housing and restoring critical facilities and lifeline infrastructure in local communities. This activity will support BNPB to work with the appropriate line ministries to develop initial recommendations for guidelines and standards on livelihoods, housing and community related infrastructure (i.e. critical facilities and lifeline infrastructure). For example, this activity can support the development of the guidelines illustratively indicated below for restoring livelihoods and livelihood alternatives:

• Diversification of economic activities; • Strengthened livelihood resilience to disasters; • Livelihood insurance programmes such as unemployment insurance or crop insurance; • Business continuity planning for small enterprises.

This activity may also support the development of housing related guidelines or standards as indicated by the illustrative examples below:

• Guidelines for temporary emergency shelter; • Transition shelter and permanent shelter; • Disaster resistant, locally appropriate construction of non-engineered houses; • Safe building construction training and certification of disaster resistant building artisans; • Establishment of systems to require permits for the construction of disaster resilient houses; • Training of local permitting and house construction inspectors; • Development of standards for safe building materials production; • Formalizing safe construction testing such as the house-by-house, post construction

hammer/shake testing pioneered in Yogyakarta. Community related infrastructure includes critical facilities such as schools, hospitals, health clinics, police departments, or emergency management offices and lifeline infrastructure such as local water supply systems, local irrigation systems, access roads, power supply systems or local telecommunication systems. Regarding the development of recovery guidelines and standards for community related infrastructure, this activity could support the development of the following illustrative guidelines and standards.

• Preparedness of health services to deal with mass casualties; • Guidelines for delivery and operation of water and electricity supply after disasters; • Improved building standards for construction of new or retrofitting of existing unsafe schools,

hospitals, critical government, etc.; • Hazard-specific vulnerability assessments of transportation, communications and water-

sanitation systems; • Guidelines for quickly restoring infrastructure critical to local livelihoods such as irrigation

systems, power supply, transportation systems, etc.; • Design of back-up services from adjacent provinces, districts or communities and related

agreements for providing and quickly restoring critical services such as health services, education programmes, security or emergency management services.

Specific project inputs contributing to the achievement of this activity may include but are not limited to the following:

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• Assess existing global literature, guidelines and standards on livelihoods, housing and

community related infrastructure guidelines and develop recommendations for applications in Indonesian context;

• Develop a prioritized strategy and workplan for preparing the most needed guidelines or standards;

• Prepare draft guidelines and standards for livelihoods recovery and rehabilitation appropriate to the Indonesian context;

• Prepare draft guidelines and standards for housing recovery, rehabilitation and reconstruction starting with the emergency housing phase through to the reconstruction phase (that clearly address the issue of transition housing);

• Prepare draft guidelines and standards for recovery, rehabilitation and reconstruction of community related infrastructure (critical facilities and lifeline infrastructure);

• Develop and design a socialization programme for a consensus based process of finalizing draft guidelines and standards with input from relevant government line agencies, local governments and their agencies (provincial, district and urban governmental agencies) as well as key GOI recovery partners including key public and private sector partners such as MBPI, PMI, the international community, etc.;

• Prepare the final guidelines and standards for enactment or issuance and support the relevant GOI agency to enact and issue the final guidelines and standards;

• Develop a strategy for the design, institutionalization, funding and implementation of a training programme to help support the implementation and proper use by local authorities or relevant line agencies of the enacted guidelines and standards.


In order to support a broader knowledge sharing process and to fully support future evaluations and assessments of benchmarks, progress or setbacks regarding approaches and processes used to strengthen institutions to better support disaster risk reduction, lessons learned (what to do and what not to do) and good practices need to be documented and made widely available. Design and implementation of specific process documentation and knowledge sharing systems will be done to ensure these project activities support a broader knowledge sharing process and ensure that project lessons learned are made a part of national and local policy, legal and regulatory support framework and expanded capacities. The following tasks are required to undertake this activity:

• Collecting data and information such as key process documentation at periodic intervals on


strategies that will be built into the IPDNA, DRMIS activities and Guidelines/Standards development process

• Convening workshops or seminars for partners and interested stakeholders to review findings and determine what revisions and adjustments are needed to improve performance and effectiveness of activities;

• Conduct lessons-learned workshops or seminars as input into refining the development of materials for local government capacity building on disaster risk reduction so that they can be used in other provinces of Indonesia.




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Output 4: Recovery responses implemented in the disaster-affected areas – Recovery measures in the disaster-affected areas implemented, guided by GoI’s Post Disaster Needs Assessment (PDNA) and Post-disaster Rehabilitation and Reconstruction Action Plan (RENAKSI).

The merging of recovery measures into the DR4 programme was first tested during the recovery response following the West Java earthquake in July 2009. In collaboration with UN-OCHA, DR4 project supported the early recovery coordination, and strengthened the capacity of national and local governments in the process of post-disaster needs assessment and formulation of recovery planning (Renaksi). This particular support to West Java has also enabled the field application of the HRNA methodology and tools for the first time. Learning from the positive results and experiences, it was then agreed by Project Board of DR4 in February 2010 to adopt more comprehensive recovery measures, which include provision of direct support to the affected regions in the areas of governance, livelihoods, environment, infrastructure, and DRR mainstreaming into the umbrella of DR4 project. Output 4 is designed to put into practice the Early Recovery and Sustainable Recovery principles and tailor these to the local circumstances of the disaster-affected areas. The process would involve strengthening post-crisis governance and cover specific support for recovery planning at national and local levels, including facilitation to conduct Post-Disaster Assessment (PDNA). The findings and recommendations from the PDNA will then serve as the basis of a comprehensive RENAKSI by the GOI. The output would also support early recovery and recovery activities at the local level, including re-activation and stabilization of local livelihoods, re-activation of local public administration, etc. Efforts will be made to coordinate measures and approaches to early recovery activities and build a foundation for longer-term recovery. The Early Recovery and Recovery measures employed by the project will focus on the sectors of governance, livelihoods, and basic infrastructure, incorporating disaster risk reduction, conflict prevention, gender, and environmental management.

Activity 4.1 – Support GoI in planning and implementing post-earthquake recovery in West

Sumatera province through the Recovery Initiative for Sumatera Earthquake (RISE) sub-project, including recovery response to the post-earthquake and tsunami in Mentawai.

The Recovery Initiative for Sumatera Earthquake (RISE) sub-project was initiated following a series of earthquakes measuring 7.9, 6.2, and 6.8 on the Richter scale which struck the Indonesian island of Sumatra on 30 September and 1 October 2009 resulting in 1,117 deaths, 1,214 seriously injured and wide-spread destruction of housing, public buildings and infrastructure.

The RISE project strategy has been designed to incorporate both short-term (up to six months) and medium- term (6-24 months) activities and will strengthen linkages between the early- and the longer-term recovery phases being developed by the GoI and its development partners.

The focus of UNDP activities will support the GoI reconstruction activities, as expressed in the Rencana Aksi, and will focus on 1) support to local government to plan, coordinate and monitor recovery activities; 2) promoting the safe demolition of damaged buildings and waste management by linking environmental factors and the use of appropriate building materials; 3) training in disaster resistant building techniques and promoting alternative construction methods; and 4) strengthening livelihood activities. Each stage of the process will be approached from both an environmental and a livelihood perspective.

The above mentioned four components, together with cross-cutting themes of gender, social cohesion, and mainstreaming environment constitute the main strategy for the RISE programme.

Specific activities of RISE sub-project are as follows:

• Restore and enhance local government capacities to plan, coordinate and implement recovery activities;

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• Provide support to local government in the environmental management of recovery, including the immediate removal of earthquake waste and recycling of appropriate materials;

• Support local government to support the repair and reconstruction of houses using ‘build back better’ approaches;

• Provide opportunities for the restoration and enhancement of the livelihoods of affected populations;

• Enhance capacity of the ER Cluster to undertake coordination through the preparation of analysis and tools which can be used by the GOI in the coordination of early recovery in current and future recovery activities.

Mentawai

On 25 October 2010, an earthquake of magnitude 7.2 SR and 10 km depth struck 78 km southwest of Pagai Selatan Mentawai, West Sumatra. Minutes later, this earthquake was followed by a tsunami and series of aftershocks of which some have been quite severe. The events have resulted in severe damages and losses to the population in parts of Mentawai Islands. Tremors have been felt as far as Padang and Bengkulu.

Mentawai Islands is a district of West Sumatera province with a land area of 6,011 square km and a coastal line that is 1,402 km long. It is in the west of Sumatera island, off the Indian Ocean. Mentawai Islands consist of 4 main islands i.e. Siberut, Sipora, Pagai Utara, and Pagai Selatan Islands and another 98 small islands, and is administratively divided into 10 sub-districts and 43 villages.

The total population of the Mentawai Islands is 70,174 people, with a growth rate 1.68 percent per year. The most populated sub-districts are Sikakap at Pagai Selatan Island, Sipora Utara, Pagai Selatan, and Pagai Utara.

Four sub-districts have been directly affected by the earthquake and tsunami, namely Pagai Selatan, Pagai Utara, Sipora Selatan, and Sikakap. 509 people were killed, 17 wounded, 21 missing, and 11,425 people were displaced in four sub-districts in Mentawai District, West Sumatra. The most affected areas are within 11 villages namely Bosua and Beriulo at Sipora Island, Malakopak, Sinakak, Bulasat, and Makalo at Pagai Selatan Island, Betumonga, Saumanganyak, Taikako, and Silabu at Pagai Utara Island. Mentawai Islands is one of the less-developed areas in the country. The GoI has therefore directed recovery efforts to Mentawai to not only incorporate specific interventions required to minimize the impacts of the disaster, which could further deteriorate the economic conditions of the region, but also to accelerate the development process through improving transportation infrastructure.

The scope of the post-disaster rehabilitation and reconstruction for Mentawai Islands includes the following:

a) rehabilitation and reconstruction, including relocation of settlements. This will be implemented gradually between 2011 to 2012 in the areas of Pagai Utara, Pagai Selatan, and Sipora;

b) development acceleration, which will be implemented gradually between 2011 to 2013 by building vital transportation infrastructure to open up inter-island access.

The recovery response to Mentawai earthquake and tsunami is incorporated in the existing RISE sub-project, and will focus on: 1. strengthening capacities of national and local authorities to lead and manage post-disaster

needs assessment, and coordination of post-disaster early recovery and recovery efforts; 2. strengthening capacities of national and local authorities to plan and implement post-disaster

recovery activities; 3. restoring functional capacity of local governance to ensure provision of basic social and public

services; 4. restoring livelihoods and developing economic opportunities of the affected population; and 5. ensuring that risk-reduction principles are incorporated into recovery measures.

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Activity 4.2 – Support GoI in planning and implementation of post-volcanic eruption recovery in DI Yogyakarta and Central Java provinces through the Merapi Recovery Response (MRR) sub-project.

The Merapi Recovery Response (MRR) was initiated following the volcanic eruption disaster of Mt Merapi that first erupted on 26 October 2010, spewing out hot clouds and volcanic ash. The eruption came suddenly, with very little advanced indications suggesting increased volcanic activity. Four districts with a total population of 182,446 (53,315 households) have been affected by the eruption, namely Boyolali, Magelang and Klaten in Central Java Province and Sleman in DI Yogyakarta Province. The most affected districts are Magelang (4 sub-districts, 39 villages) and Sleman (3 sub-districts, 7 villages). As of 1 December 2010, total fatalities had reached 347 people, and 605 people had major injuries. A total of 59,854 people had been displaced. 524 IDP camps spread over 14 sub-districts in 4 Districts in Yogyakarta and Central Java Provinces. UNDP recovery response will incorporate short-term (up to six months) and medium-term (6-24 months) activities. These will support the GoI’s recovery, rehabilitation and reconstruction activities as outlined in the Rencana Aksi Rehabilitasi dan Rekonstruksi (RENAKSI), and will focus on: 1. strengthening capacities of national and local authorities to lead and manage post-disaster

needs assessment, and coordination of post-disaster early recovery and recovery efforts; 2. strengthening capacities of national and local authorities to plan and implement post-disaster

recovery activities; 3. restoring functional capacity of local governance to ensure provision of basic social and public

services; 4. restoring livelihoods and develop economic opportunities of the affected population; and 5. ensuring risk-reduction principles incorporated in recovery measures.

UNDP’s plan for recovery support is based on the Post-Disaster Needs Assessment (PDNA) that comprises the components of Damage and Loss Assessment (DaLA) and Human Recovery Needs Assessment (HRNA). Consultative and participatory processes have been used, specifically through HRNA, capturing the perceptions of the community on their problems and priorities through direct interview and focus group discussions.

IV. RESULTS AND RESOURCES FRAMEWORK Intended Outcome as stated in the Country Programme Results and Resource Framework: 4.2. GOI and communities capacity to respond to and recover from disasters and conflicts is more effective and timely

Outcome indicators as stated in the Country Programme Results and Resources Framework, including baseline and targets: Outcome Indicators

• Existence of sustainable post-crisis recovery frameworks, guidelines and methodologies in line with international practices and standards • Ability of GOI to carry out recovery coordination and programming with minimal external support

Baseline :

1) Existence of sustainable post-crisis recovery frameworks, guidelines and methodologies in line with international practices and standards;

2) Ability of GOI to carry out recovery coordination and programming with minimal external support

Target

• Sustainable recovery framework adhering to decentralized mechanism and incorporating internationally-acknowledged smart practices is prescribed and utilized • GOI post-crisis recovery coordination and programming mechanism effective and efficient in attaining minimum 75% of the GOI’s Recovery Action Plan set up in response

to an emerging major crisis with not more than 25% external support

Applicable Key Result Area (from 2008-11 Strategic Plan): Crisis Prevention and Recovery

Partnership Strategy: The project will be nationally executed by the National Disaster Management Agency (BNPB) under the guidance of a Project Board (PB) consisting of BNPB as Chair (executive), the National Development Planning Agency (BAPPENAS) as Vice-Chair (senior beneficiary), the , Ministry of Home Affairs (MOHA) (senior beneficiary) and the United Nations Development Programme (UNDP) (senior supplier) as initial board members. Board membership may be expanded to include other GOI or public/private agencies as agreed to by the board. Strategic partnerships will also be established as needed with key public and private partners at international, national, provincial, district levels, sub-district and village levels.

Project Title & ATLAS Award ID: DR4 “Disaster Risk Reduction Based Rehabilitation and Reconstruction” (00051822)

INTENDED OUTPUTS OUTPUT TARGETS FOR (YEARS) INDICATIVE ACTIVITIES RESPONSIBLE PARTIES INPUTS

Output 1: Disaster risk reduction (DRR) guided rehabilitation and reconstruction guidelines strengthened, enacted and implemented

2009-2010

• Socialize rehabilitation and reconstruction guidelines (RRG)

• Develop preliminary gender mainstreaming and rights based strategies

• Capture and disseminate lessons learned • Update and finalize rehabilitation and

reconstruction guidelines (RRG)

Activity Result 1.1

Enactment of socialized and updated disaster risk reduction based rehabilitation and reconstruction guidelines

Activity Result 1.2

• BNPB with TA and operational support from UNDP

$ 322,978

• Consultants • Contractual

Services • Travel • Misc. Expenses

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Indicators:

• No. of gov’t agencies, local gov’ts, NGOs, CBOs and communities that contribute to development and finalization of RRG, its gender mainstreaming and rights based strategies

• No. of RRG actions in place and operational by GOI agencies, local gov’ts, NGOs, CBOs and communities within 2 years of enactment

• No. of GOI agency and local gov’t staff that have received RRG training and are in positions where training can be used within 2 years of enactment

• Extent to which gender and rights based issues have been built into final RRGs

• Extent to which training programme is sustainably embedded in the normal GOI staff dev’t process

• Quality of training programme delivery based on external course evaluations and trainee course evaluations

• Existence and extent of training follow up mentoring and advisory programme

• Extent to which RRG guideline dev’t, enactment process and RRG training programme design, its dev’t and execution has been documented and made available throughout Indonesia and Asia

• Assessed sustainability of project initiatives

• Quality of monitoring systems included integration of learning and knowledge mgmt systems

Baseline:

Draft rehabilitation and reconstruction guidelines prepared by BNPB consultants; not yet socialized, reviewed, refined or finalized

• Identify RRG training delivery mechanism • Design and develop RRG training

programme • Deliver RRG training programme • Capture and disseminate lessons learned

2011

• Finalization of RRG operational guidelines • Deliver RRG training programme

• Capture and disseminate lessons learned

Design, institute and run training programmes for disaster risk reduction based rehabilitation and reconstruction guidelines (RRG)

Activity Result 1.3

Knowledge Management - Capture and disseminate lessons learned through good practice and process documentation

INTENDED OUTPUTS OUTPUT TARGETS FOR (YEARS) INDICATIVE ACTIVITIES RESPONSIBLE INPUTS

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PARTIES

Output 2: Institutional systems strengthened and established that support DRR guided rehabilitation and reconstruction strengthened and established

Indicators:

• No. and effectiveness of recovery (R&R) partnerships and coordination mechanisms among GOI agencies, CSOs, public and private sector organisations and local communities

• No. and quality of GOI recovery (R&R) partnership agreements, TORs, protocols, standards, SOPs, financial mechanisms which are in place

• Pilot risk transfer projects completed, lessons learned documented and recommendations for risk transfer mechanisms being considered by GOI

• Extent to which gender and rights based issues have been built into agreements, protocols, SOPs and financial mechanisms



Baseline:

DM Law and regulations to date; Lessons learned from Aceh and Yogjakarta recovery; Draft rehabilitation and reconstruction guidelines

2010

• Assess BNPB, BAPPENAS and other GOI Agency recovery (rehabilitation and reconstruction) capacities and partnership agreement needs

• Develop manual and SOP documents related to recovery support under the framework of interagencies cooperation.

• Support to establishment of IMDFF-DR


2011

• Develop recommendation and put in place needed interagency recovery (rehabilitation and reconstruction) partnership agreements, TORs, protocols, standards, SOPs and financial mechanisms,

• Support to strengthening IMDFF-DR


Activity Result 2.1

Strengthen BNPB and BAPPENAS the interagency relationships for enhanced recovery (rehabilitation and reconstruction) operations, and support to establishment of IMDFF-DR

Activity Result 2.2

Strengthen institutional relationships and partnerships that support recovery (rehabilitation and reconstruction) operations among GOI agencies, national non-governmental organizations, community based organizations (CBO), and international humanitarian community, as well as other stakeholders in post disaster recovery.

Activity Result 2.3


• BNPB with TA and operational support from UNDP

$ 113,270



INTENDED OUTPUTS OUTPUT TARGETS FOR (YEARS) INDICATIVE ACTIVITIES RESPONSIBLE PARTIES

INPUTS

Output 3: 2010 Activity Result 3.1 • BNPB with TA and $ 102,730

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Field application of DRR guided recovery (rehabilitation and reconstruction) practices, methodologies, guidelines and tools with feed-back to the policy framework

Indicators:

• No. and quality of studies and recommendations developed for a) recovery needs assessment and monitoring frameworks, b) early warning and disaster impact information system and info preparedness systems and c) livelihoods, housing and community infrastructure guidelines

• GOI adoption of an improved comprehensive recovery needs assessment and monitoring framework

• No. of pilot combined early warning and disaster impact info systems and info preparedness systems in operation

• Extent to which gender and rights based issues have been built into IPDNA, DRMIS, etc



Baseline:

DM Law and regulations to date; Lessons learned from Aceh and Yogjakarta recovery; DALA process in place; PDNA Workshops; Draft rehabilitation and reconstruction guidelines

• Assess disaster related humanitarian and recovery (rehabilitation and reconstruction) needs assessment and monitoring methodologies and develop recommendations for improved GOI processes

• Assess and recommend disaster impact information systems that can support recovery (rehabilitation and reconstruction) planning, assessment and monitoring processes with specific support to selected areas

• Capture and disseminate lessons learned • Develop recommendations for recovery

guidelines, standards and monitoring frameworks for a) livelihoods, b) housing and c) community related infrastructure (critical facilities and lifeline infrastructure)


2010-2011

• Develop, field apply and test an improved comprehensive recovery needs assessment and monitoring framework sensitive to community perceived needs, disaster risk reduction principles, livelihood strengthening, gender mainstreaming, and poverty alleviation

• Develop and establish pilot disaster impact information systems that can support recovery planning, assessment and monitoring processes


Develop and establish an Indonesian Post Disaster Needs Assessment (I-PDNA) process building on the current GOI adopted Damage and Loss Assessment (DALA) process that is disaster risk reduction guided, community needs centered, gender sensitive and based on a framework of common “beginning-to-end” indicators linked to humanitarian needs assessments

Activity Result 3.2

Develop and establish a “disaster information preparedness system” combined with early warning/disaster impact information based on common “beginning-to-end” indicators that will support Indonesia’s recovery (rehabilitation and reconstruction) planning, assessment and monitoring processes

Activity Result 3.3

Develop recommendations for recovery (rehabilitation and reconstruction) guidelines, standards and monitoring frameworks based on common “beginning-to-end” indicators for livelihoods, housing and community related infrastructure (critical facilities and lifeline infrastructure)

Activity Result 3.4


operational support from UNDP



INTENDED OUTPUTS OUTPUT TARGETS FOR (YEARS) INDICATIVE ACTIVITIES RESPONSIBLE PARTIES

INPUTS

Output 4: • UNDP Direct $ 889,953 (RISE)

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Recovery measures in the disaster-affected areas implemented, guided by GoI’s Post Disaster Needs Assessment (PDNA) and Post-disaster Rehabilitation and Reconstruction Action Plan (RENAKSI) Indicators:

(1) The extent to which local BPPDs in West Sumatra, Central Java and Yogyakarta are strengthened and able to undertake PDNA and recovery coordination with minimal external support.

(2) The availability of PDNAs, combining data/information on damages/losses as well as human recovery needs.

(3) The availability of local RENAKSI(s), including its implementation guidelines, to guide recovery processes in West Sumatra, Central Java and Yogyakarta.

1.a. By 2011, 80% of targeted BPBD staff are trained on PDNA and recovery coordination.

1.b. By 2011, 50% of targeted local BPBD offices have developed SOPs on PDNA, recovery coordination, and RRG.

1.c. By 2011, 50% of targeted local BPBD offices are provided with essential infrastructure for information/data preparedness.

2.a. By 2011, the PDNA for Merapi is completed.

2.b. By 2011, the PDNA for Mentawai is completed.

3.a. By 2011, the RENAKSI for Merapi is completed.

3.b. By 2011, the RENAKSI for Mentawai is completed.

Activity Result 4.1

1.1 Undertake capacity assessment

1.2 Provide training to BPBD staff

1.3 Develop SOPs on PDNA, recovery coordination and RRG.

1.4 Provide software and other resources to targeted BPBDs.

Activity Result 4.2

2.1. Undertake training on PDNA to local government officials.

2.2. Provide resources required to undertake the PDNA exercise.

2.3. Strengthen the networking/cooperation of local government and national government for finalization of the PDNAs.

Activity Result 4.3

3.1. Facilitate the data processing and analysis.

3.2. Facilitate the recovery programming processes/exercises.

3.3. Strengthen the networking/cooperation of local government and national government for finalization of the RENAKSI(s).

Implementation $ 575,000 (MRR)



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(4) The percentage of affected local government offices in West Sumatra, and Yogyakarta and Central Java, having their functional capacities restored to provide corresponding public services.

(5)The percentage of affected communities accessing livelihood support for economic recovery, including the number/percentage of women/women-headed households benefiting from livelihood assistance.

(6)The existence of DRR mainstreaming strategies for West Sumatra, Yogyakarta and Central Java, to guide the recovery processes in the respective local regions.

Baseline:

TBC

4.a. By 2011, 50% of targeted local government offices/entities have their functional capacities restored.

5.a. By 2011, 50% of affected communities regain sustainable livelihoods.

6.a. By 2011, an analytical framework on mainstreaming DRR into recovery planning is in place.

6.b. By 2011, 80% of targeted stakeholders have been exposed to the said framework.

Activity Result 4.4

4.1. Undertake assessment of affected offices and their corresponding disrupted services.

4.2. Provide resources required for restoring functional capacities of the affected offices.

Activity Result 4.5

5.1. Undertake a thorough assessment on livelihood recovery needs.

5.2. Provision of grants to affected communities.

5.3. Develop strategic commodities through value-chain based analysis.

Activity Result 4.6

6.1. Recruit TAs

6.2. Formulation of the analytical framework through inclusive workshops.

6.3. Undertake cold lava study for Merapi disaster; undertake ethnographic study on local Mentawai response to disaster; develop accelerated development strategy for Mentawai.

6.4. Disseminate those studies through public workshops.

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V. ANNUAL WORK PLAN

VI. MANAGEMENT ARRANGEMENTS Institutional Arrangement

A Project Board (PB) has been established, and consists of Badan Nasional Penanggulangan Bencana (BNPB), Badan Perencanaan Pembangunan Nasional (Bappenas, Kementerian Dalam Negeri (Kemendagri), and United Nations Development Programme (UNDP). The Project Board is responsible for providing strategic policy guidance and advice to ensure the relevance of the project to GOI and UNDP priorities, and establish a liaison mechanism to ensure alignment of the direction and approach of the DR4 project to the policies and directives. The board’s membership may be expanded to include other GOI agencies, public and private organizations as agreed to by the board.

With the directions of a National Project Director, the Project Board is responsible for making by consensus, management decisions for a project. In order to ensure UNDP’s ultimate accountability, Project Board decisions should be made in accordance to standards that shall ensure management for development results, best value money, fairness, integrity, transparency and effective international competition.

Three roles within the Project Board are designated and described as follows:

BNPB as Executive, representing the project ownership to chair the Project Board, and responsible for managing the project. BNPB (Deputy for Rehabilitation and Reconstruction) has designated a National Project Director (NPD) and Deputy National Project Director (D-NPD) for this project.

BAPPENAS and KEMENDAGRI as Senior Beneficiaries, representing the interests of those who will ultimately benefit from the project. The Senior Beneficiary’s primary function within the Board is to ensure the realization of project results from the perspective of project beneficiaries.

UNDP as Senior Supplier, representing the interests of the parties concerned which provide funding and/or technical expertise to the project. The Senior Supplier’s primary function within the Project Board is to provide guidance regarding the technical feasibility of the project.

Representatives of other stakeholders can be included in the Board as appropriate and agreed by the existing Board.

Oversight and Implementation Arrangement

CPRU at UNDP is serving the Project Assurance role, which supports Project Board by carrying out objective and independent project oversight and monitoring functions, as well as providing technical and advisory services relevant to project implementation. The CPRU team is and will continue to be supported by technical expertise on disaster risk reduction from UNDP’s Bureau for Crisis Prevention and Recovery (BCPR).

A Project Management Unit (PMU) has been established and hosted in the Deputy of Rehabilitation and Reconstruction Office of BNPB. A National Project Manager (NPM) has also been designated to lead and manage the PMU. The NPM is responsible for the management and decision-making for the project, within the constraints laid down by the Project Board.

A senior Recovery and Disaster Risk Reduction (RDRR) Advisor will be appointed to provide technical and programme advice to the Project Board and the PMU. The RDRR Advisor will provide programme/technical advice in support of the successful implementation of the DR4 project. The RDRR Advisor will advise on how to establish technically sound, state of the art recovery planning processes that will lead to achieving the DR4 project objective and outputs based on sound diaster risk reduction principles. The Advisor will coordinate with and seek support from other UNDP-supported DRR initiatives in Indonesia and the Asia/Pacific regions as needed.

Institutional arrangement of the project is illustrated in the Figure 1 - Project Organisation Structure below.

Management of Sub-Projects Relevant to implementation of specifically Output 4 of the project, the PMU is and will be responsible for managing sub-projects that are initiated to respond to certain post-disaster recovery needs, i.e. West

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Java and West Sumatera earthquakes. A team Coordinator will be appointed for both projects, and shall report to the NPM on a regular basis. These sub-projects will be implemented by the government with the support of UNDP as the responsible party, and progress and achievements will be reported regularly to the PMU and Project Board. Implementation of activities Delivery of the various activities of this project will be undertaken through partnerships with local and national authorities, national NGOs, civil society groups, the private sector, and international organizations. In making decisions about what implementation approach or partner to use, priority will be given to prospects for efficiency and effectiveness in delivery. Wherever possible, local and provincial capacities will be directly engaged. Implementing partners will be selected and engaged through a range of mechanisms as appropriate, including competitive processes (grant application processes, requests for proposals, invitations to bid, etc.). Modalities for delivery arrangements will be tailored as required by the context and circumstances. Delivery arrangements may include mechanisms such as Letters of Agreement for implementation of specific components or activities by Government departments and UN partners, provision of technical assistance and capacity building to Government and civil society, and implementation of services through international NGOs, national and local NGOs, the private sector or others.

UNDP Support Services UNDP will provide project support services to the Project Management Unit. UNDP will also provide support as needed to delivery agents/partners of the project that are needed for sound implementation of the project. UNDP’s support will include: • Human resources management, including recruitment and contracting, of national and

international technical advisors and project support and monitoring staff. • Procurement of goods and services, i.e. Consultants, equipments, for the delivery of the project. • Support for financial management.

Assets and Equipments UNDP will keep separate records for equipment and vehicles purchased for the purposes of this project. As per UNDP rules and regulations, equipment and vehicles purchased with project funds will remain UNDP property until formally transferred or otherwise disposed of. Transfer/disposal of vehicles will be decided following a joint consultation between the GOI and UNDP.

Figure 1. Project Organization Structure

Project Management Unit DRR-RR

Project Board DRR-RR

Senior Beneficiary

BAPPENAS (National Development Planning Agency); KEMENDAGRI

(Ministry of Home Affairs)

Executive

BNPB

(National Disaster Management Agency)

Senior Supplier

UNDP

Project Assurance

CPRU-UNDP

Direct Implementation Project Support

CPRU-UNDP

Project Organisation Structure DRR-RR

Component 1 Post-disaster Recovery

Guidelines and Regulatory Framework

Component 2 Post-disaster Recovery Institutional Framework

Component 3 Post-disaster Recovery

Methodologies and Tools Application

Component 4 Post-disaster recovery activities (managed by respective PITs -

Project Implementation Teams)

PIT West Java

2009-10 (completed)

PIT West Sumatera

2009-11

(ongoing)

PIT DIY & Central Java 2010-

(ongoing)

Any future recovery activities

VII. MONITORING FRAMEWORK AND EVALUATION In accordance with the programming policies and procedures outlined in the UNDP User Guide, the project will be monitored through the following: Within the annual cycle

On a quarterly basis, a quality assessment shall record progress towards the completion of key results, based on quality criteria and methods captured in the Quality Management table below.

An Issue Log shall be activated in Atlas and updated by the Project Manager to facilitate tracking and resolution of potential problems or requests for change.

Based on the initial risk analysis submitted (see annex 1), a risk log shall be activated in Atlas and regularly updated by reviewing the external environment that may affect the project implementation.

Based on the above information recorded in Atlas, a Project Progress Reports (PPR) shall be submitted by the Project Manager to the Project Board through Project Assurance, using the standard report format available in the Executive Snapshot.

a project Lesson-learned log shall be activated and regularly updated to ensure on-going learning and adaptation within the organization, and to facilitate the preparation of the Lessons-learned Report at the end of the project

a Monitoring Schedule Plan shall be activated in Atlas and updated to track key management actions/events

Annually

Annual Review Report. An Annual Review Report shall be prepared by the Project Manager and shared with the Project Board and the Outcome Board. As minimum requirement, the Annual Review Report shall consist of the Atlas standard format for the QPR covering the whole year with updated information for each above element of the QPR as well as a summary of results achieved against pre-defined annual targets at the output level.

Annual Project Review. Based on the above report, an annual project review shall be conducted during the fourth quarter of the year or soon after, to assess the performance of the project and appraise the Annual Work Plan (AWP) for the following year. In the last year, this review will be a final assessment. This review is driven by the Project Board and may involve other stakeholders as required. It shall focus on the extent to which progress is being made towards outputs, and that these remain aligned to appropriate outcomes.

The monitoring framework for this project is intended to achieve the following purposes.

• Results-Orientation: Ensure appropriate measurement and assessment of project performance to effectively improve performance and achieve results.

• Quality Assurance: Ensure quality in project activities supported through this project to ensure best possible benefit for beneficiaries, through monitoring project delivery and identifying issues that need corrective action and ensure that additional assistance is provided early.

• Accountability: Ensure accountability in the use of project resources through heavy emphasis on financial reviews to make sure that funds are being appropriately used to achieve project outputs, and that the implementing agents have sufficient controls in place to demonstrate that funds are being used appropriately.

• Transparency: Ensure transparency in project activities, finances, and results to all stakeholders. • Learning: Ensure that the project has learning mechanisms for purposes of improving ongoing

implementation and guiding new initiatives, and to identify key lessons learned and successes stories from project implementation in relation to mainstreaming disaster risk reduction into the development planning and implementation processes of UNDP, the Government and development partners.

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In order to achieve the above purposes, the monitoring framework for this project will apply the following measures:

• Appropriate Resourcing of Monitoring: The project will dedicate staffing to ensure proper implementation of monitoring systems, including monitoring officers and financial monitoring assistants, as well as financial resources for monitoring purposes.

• Lessons from Previous Projects: The project will seek to address lessons from previous evaluations and assessments of UNDP/CPRU projects regarding monitoring systems.

• Field-Oriented: Priority is placed on active on-site field monitoring and regularly scheduled field visits to all activities supported by this project, to ensure close interaction with implementing agents.

• Template-Based System: The project will seek to apply a template-based system to structure monitoring information and ensure its collection on a regular basis.

• Joint Monitoring: Monitoring should include joint monitoring activities with Government and other partners at various levels.

• Operational Effectiveness: Ensure proper application of UNDP's internal control framework, and reviews of operational effectiveness.

• Downward Accountability: The project will seek to identify monitoring approaches that promote downward accountability in the monitoring framework.

Financial Monitoring. The project’s financial resources will be managed through a series of controls at various levels. All financial transactions are monitored, recorded, analyzed and reported through UNDP’s newly introduced ATLAS Enterprise Resource Planning (ERP) system. Financial monitoring includes:

• Monitoring and reviewing financial reports of implementing agents against agreed project budgets to ensure fairness of expenditure;

• Verifying accuracy and completeness of financial information, including review of supporting documents and test of expenditure details;

• Requesting clarification or additional information as required to verify and justify expenditures; • Providing advice and technical assistance to implementing partners and contractors on measures

necessary to enhance their project financial management in line with UNDP standards and norms; • Payments by implementing agents that are not in line with approved expenditures and which do not

have adequate supporting details and documentation can be rejected for reimbursement by UNDP.

Audit. Regular audit will be conducted as guided by the Project Management Implementation Guidelines (PMIG) released in 2009.

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VIII. LEGAL CONTEXT This document together with the CPAP signed by the Government and UNDP which is incorporated by reference constitute together a Project Document.

(a) The Revised Basic Agreement for Technical Assistance signed 29 October 1954 between the United Nations, the International Labour Organisation, the Food and Agriculture Organisation of the United Nations, the United Nations Educational, Scientific and Cultural Organisation, the International Civil Aviation Organisation, and the World Health Organisation and the Government of the Republic of Indonesia,

(b) The Standard Agreement on Operational Assistance signed 12 June 1969 between the United Nations, the International Labour Organisation, the Food and Agriculture Organisation of the United Nations, the United Nations Educational, Scientific and Cultural Organisation, the International Civil Aviation Organisation, the World Health Organisation, the International Telecommunication Union, the World Meteorological Organisation, the International Atomic Energy Agency, the Universal Postal Union, the Inter-Governmental Maritime Consultative Organisation and the United Nations Industrial Development Organisation and the Government of the Republic of Indonesia,

(c) The Agreement signed 7 October 1960 between the United Nations Special Fund and the Government of the Republic of Indonesia, and

(d) all CPAP provisions apply to this document. Additionally, this document together with the CPAP signed by the Government and UNDP which is incorporated by reference constitute together the instrument envisaged in the Supplemental Provisions to the Project Document. Consistent with the above Supplemental Provisions, the responsibility for the safety and security of the implementing partner and its personnel and property, and of UNDP’s property in the implementing partner’s custody, rests with the implementing partner. The implementing partner shall:

a) Put in place an appropriate security plan and maintain the security plan, taking into account the security situation in the country where the project is being carried;

b) Assume all risks and liabilities related to the implementing partner’s security, and the full implementation of the security plan.

UNDP reserves the right to verify whether such a plan is in place, and to suggest modifications to the plan when necessary. Failure to maintain and implement an appropriate security plan as required hereunder shall be deemed a breach of this agreement. The implementing partner agrees to undertake all reasonable efforts to ensure that none of the UNDP funds received pursuant to the Project Document are used to provide support to individuals or entities associated with terrorism and that the recipients of any amounts provided by UNDP hereunder do not appear on the list maintained by the Security Council Committee established pursuant to resolution 1267 (1999). The list can be accessed via http://www.un.org/Docs/sc/committees/1267/1267ListEng.htm. This provision must be included in all sub-contracts or sub-agreements entered into under this Project Document.”

http://intra.undp.org/bdp/archive-programming-manual/docs/reference-centre/chapter6/sbaa.pdf

http://www.un.org/Docs/sc/committees/1267/1267ListEng.htm

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IX. ANNEXES

Project Document DR4...Field application of DRR recovery based (rehabilitation and reconstruction)...

Documents

Transcript of Project Document DR4...Field application of DRR recovery based (rehabilitation and reconstruction)...