christian aid south asia lessons from south asia flood appeal … › project ›...

C h r i s t i a n A i d S o u t h A s i a L e s s o n s f r o m S o u t h A s i a F l o o d A p p e a l 2 0 0 7 - 1 2 P r o g r a m m e s i n I n d i a a n d B a n g l a d e s h

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Study:

Sujatha Rita, Shashanka Saadi, Barsha Poricha, Vijayalakshmi Viswanathan and Anshu Sharma (coordinator)

Photographs:

Emdadul Islam Bitu, Imran Ahmed, Sharbendu De and Christian Aid Partners

Media:

Meghna Chawla, Tarun Sharma and Jyotsna Singh - Safer World Communications, www.saferworld.in


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Note from the Authors

The fury of floods has been on a distinctly disturbing trend across India and Bangladesh in recent years. In

the short term, the casualty figures due to natural disasters may have shown a slowing trend. This is due to

improved warning and preparedness, as well as the fact that there hasn’t been a disaster with a magnitude of

the South Asian Tsunami or Kashmir Earthquake. However, the economic losses and human hardship are

mounting significantly.

Floods cause the maximum economic loss across all natural disasters. Between 1990 and 2011, floods

accounted for 65% of the $ 43,841,167,000 total economic loss in India. They also accounted for 57% of the

9,27,573,655 people affected. Much of these losses and suffering remain under the radar as the communities

are poor and their economies informal. The personal losses, though amounting to huge magnitudes in their

own rights, do not dent the formal GDP and so do not shake the souls of the media, the government and

people at large.

The work carried out by Christian Aid, its local partners and communities is commendable; particularly since

it takes shape in very challenging settings, with very limited resources and in the face of detrimental policies.

This study is an ongoing effort to document and collectively reflect upon the successes and challenges of

flood responses in the 2007-12 period. It is a forward-looking attempt to learn lessons and plan ahead for an

ever-improving aid system. One that not only helps affected families survive, but also helps trigger rapid

recovery and long-term resilience.

The study, along with the audio-visual documentation going on in parallel, will culminate in a final set of

lessons learnt. The supporting learning aids will help future steps of improving institutional memory and

putting in place capacity building measures.

We are grateful to all colleagues at Christian Aid, their partners, local groups and the communities who have

hosted us during the study process. They have been kind enough to share their stories of both despair and

triumph. We are also thankful to our own colleagues and team members, including the researchers, writers,

photographers, designers and support staff who have made this effort possible.


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Contents

Acronyms 1

Background 3

Approach, Major Accomplishments and Challenges 6

The Lesson Learning Study 8

Inclusion and Human Rights 10

Long-term Resilience 16

Capacity Building 22

Knowledge as Humanitarian Capacity 27

Accountability 31

Advocacy and Networking 34

Planning for the Next Big One 37


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Acronyms

ANHAD Act Now for Harmony and Democracy

BSI Bible Society of India

CA Christian Aid Emergency Response

CAER Christian Aid Emergency

CASA Church’s Auxiliary for Social Action

CCA Climate Change Adaptation

CCDB Christian Community Development of Bangladesh

CT Cash Transfer

DFID Department for International Development

DRCSC Development Research Communication and Services Centre

DRR Disaster Risk Reduction

DSK Dushtha Shasthya Kendra

EHA Emmanuel Health Association

HAP Humanitarian Accountability Partnership

LGBT Lesbian, Gay, Bisexual and Transgender

PGVS Poorvanchal Gramin Vikas Sansthan

SA South Asia

SASY Social Awareness Society for Youths

SEEDS Sustainable Environment & Ecological Development Society

SGP Sariputta Gana Parishad

SNIRD Society for National Integration through Rural Development

VfM Value for Money

VICALP Visionaries of Creative Action for Liberation and Progress

WASH Water, Sanitation and Hygiene


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Background

Though Christian Aid launched the initial South Asia flood appeal in 2007, the

unfolding events led to a series of flood responses in the ensuing months and years.

This included cyclone related floods in Bangladesh, West Bengal, Andhra Pradesh

and Tamil Nadu; and a series of riverine floods in Uttar Pradesh, Bihar and Odisha.

South Asia has been facing an unprecedented increase in its number of disasters, especially over the last five years (2007-

2012). A South Asian fund appeal was launched by CA during the 2007 floods in India and Bangladesh. Since then, the

region has seen a number of flood emergencies. In 2008, the massive Kosi floods, among others, affected Bihar and Uttar

Pradesh. Cyclones Sidr and Aila devastated large parts of West Bengal and Bangladesh in 2007 and 2009 respectively,

causing a severe flood-like situation and badly affecting lives and livelihoods. The year 2009 also witnessed widespread

flooding in Andhra Pradesh, while 2010 saw Cyclone Laila batter the state’s coastal areas. Floods struck Gonda in Uttar

Pradesh in both 2010 and 2011. In December 2011, Cyclone Thane affected large numbers of people on the Tamil Nadu

coast. 2012 saw massive flooding and misery in Assam and the monsoon continues to cause destruction across India and

Bangladesh.

These frequent disasters in rural, poor and marginalised areas have affected the lives of many, including in CA’s regular

operation zones. Working with capable partners across India and Bangladesh, their hard work and that of local

community organisations has yielded fulfilling dividends across almost all humanitarian response interventions.

Alongside the appeal interventions, many programming initiatives have also been carried out in the region that will go a

long way in facilitating better response in the future. The establishment of the Christian Aid Emergency Response

(CAER) group in Bangladesh following Cyclone Sidr is one such example. CAER has completed three phases of response

namely immediate relief, early recovery and rehabilitation. A number of partner organisations have also initiated local

platforms for long-term recovery and risk reduction within their work areas.

India

While Cyclone Sidr and Aila caused extensive damage in West Bengal, India was also ravaged by a series of floods

across Andhra Pradesh, Bihar, Odisha and Uttar Pradesh. The devastating Kosi Floods in Bihar reached unprecedented

proportions in terms of the numbers of persons displaced and livelihoods lost. Cyclones Laila and Thane caused damage

in pockets of Andhra Pradesh and Tamil Nadu. Christian Aid responded through partners including Act Now for

Harmony and Democracy (ANHAD), Church’s Auxiliary for Social Action (CASA), Development Research

Communications and Services Centre (DRCSC), Emmanuel Health Association (EHA), Poorvanchal Gramin Vikas

Sansthan (PGVS), Social Awareness Society for Youths (SASY), Sustainable Environment and Ecological Development

Society (SEEDS), Society for National Integration through Rural Development (SNIRD) and Visionaries of Creative

Action for Liberation and Progress (VICALP). They deployed various relief interventions that ranged from conditional

cash transfers to relief material. In a number of places, this also extended to longer-term actions such as WASH

interventions, the establishment of community-based institutions and support for housing, cyclone shelters and

infrastructure.

Bangladesh

After Cyclone Aila, Christian Aid started emergency response interventions in three unions of Satkhira and two unions

of Khulna district through Christian Community Development of Bangladesh (CCBD), Dushtha Shasthya Kendra (DSK)

and Shushilan. Response and recovery interventions continued in two phases from February 2010 to February 2012.

Emergency response to flooding and water logging was also taken up in four unions of Tala Upazilla in Satkhira

between September 2011 and July 2012.


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The impact of Aila was more severe than Category 4 Cyclone Sidr because it destroyed most of the embankments and

caused saline water intrusion in vast tracts of agricultural land. This devastated the income base of the poor and the

agro-economy of the affected areas. For an extended time period, affected communities were forced to bank on external

support systems of relief and cash transfer by agencies. Those on the margins even had to resort to seasonal migration.

Saline-affected lands became a salt-water desert and the local ecosystem came under severe threat. It was reported that,

in the aftermath of the disaster, means of income generation dipped, health hazards multiplied, women’s reproductive

health was severely affected, children’s education was hampered and school dropout rates increased. Standing crops,

housing and internal communication systems were devastated. Since the usual second crop couldn’t be sown, many

became dependent on only one crop; resulting in a huge labour surplus that further added to the critical unemployment.


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Approach, Major Accomplishments and Challenges

All interventions carried a distinctive overall flavour of Christian Aid’s strategic

approach. This included a focus on positive and inclusive social change; social equity;

a long-term goal of communities free from poverty; and an added focus of reducing

disaster and climate-related risks. Well-framed and quality-based top line

approaches were adopted. However, challenges were faced in maintaining

consistency between this strategic approach and last mile action on the ground.

Christian Aid’s distinctive approach

Some distinctive characteristics of Christian Aid of relevance for the review are:

Aligned with DFID’s Value for Money (VfM) approach

Community based approach (refer Facing up to the Storm)

Approach to positive social change (refer No Small Change)

Emphasis on social equity (refer Introduction to Social Equity Audit)

Vision for a world free from poverty (refer Turning Hope into Action – CA Strategic Framework 2010-12)

Purpose of ending poverty and injustice (refer Partnership for Change – the Power to end Poverty – CA

Strategic Framework 2012)

Strengthening climate resilience (refer Climate Smart Disaster Risk Management)

Programme partnership agreement (PPA)

Participatory Vulnerability and Capacity Assessment (PVCA)

This unique positioning has helped Christian Aid carve out a distinct niche for itself within the humanitarian sector.

There is, however, evidence of a gap in the understanding of these dimensions between Christian Aid’s senior

management and partner organisations’ field staff and community workers.

Major accomplishments

The achievement of Christian Aid South Asia and partners in a programme of such large scale is in itself a creditable

feat. This was spread over very diverse contexts, often inaccessible locations and in very demanding emergency and

conflict situations. Specific `good things’ about the programme include:

Entering and responding across such contexts

Taking a developmental approach in a number of locations

Focus on quality, not just quantity

Inclusive and accountable approach

Points to ponder

Being a widespread and multi-partner, multi-location and multi-emergency programme, the experience also threw up

challenges. It highlighted areas where Christian Aid South Asia and its partners need to think hard and improve systems

and programming for the future. Some critical ones are:

Turning value-based approaches into simple messages that are understood by field personnel

Internal process of documentation and institutional learning

Building the capacity of local partners, field staff and community groups

Investing in research and DRR to make future responses easier

Sustainability of new technologies, particularly for water treatment


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The Lesson Learning Study

A forward-looking review was taken up in 2012 to draw out lessons and improve

future action. Field visits were made to most of the project partners and their sites;

and engagements were held with partner staff, field staff, local groups and beneficiary

families. An audio-visual approach was adopted to draw out strategic lessons in an

easy-to-communicate manner. For each section, a discussion on good practices,

challenges and opportunities has led to general recommendations which are further

broken down into specific ones for CA and field staff. The lessons will be further

developed into capacity building material for partners.

The lessons learnt study

Christian Aid responded to flood and cyclone related emergencies through a number of partners and has reached out to

thousands of people. The journey was filled with numerous learning experiences. Unfortunately, these usually abound

in the stories that are untold beyond the field camaraderie level.

The overall flood response needs to be appreciated for finding the right spaces to intervene; ones that were not always

the most obvious and conventional. Social processes were an integral part of the programming. A people-centric

approach, both in staffing as well as in the way partners worked with communities, made very positive impacts that are

recognised across the board. In select locations, processes of transparency and accountability to beneficiaries, including

implementation of the complaints and response systems under HAP, were very conscious efforts.

The attempt of this study is to capture the experiences; review the challenges and successes; trace ground level stories;

get an assessment of the impact made; and capture all lessons in a manner than can help Christian Aid and partners plan

for the future and build appropriate capacities at all levels.

Specific objectives

Review of the emergency programme in light of the following criteria: appropriateness, timeliness, impact,

effectiveness, efficiency, coherence and, if appropriate, sustainability with reference to the Red Cross Code of

Conduct, HAP and Sphere.

Focus on emergency response to establish the efficacy of the components. Target and establish lessons learned

to inform future design and implementation.

Assess the effectiveness of the internal management of the response by Christian Aid and partners and suggest

appropriate strategies.

Highlight key lessons learnt during the response and rehabilitation stages of the programme so that lessons can

be utilised for future emergency programmes.

Draw clear parallels between the responses across similar events in both the countries, show linkages and

suggest ways for the road to resilience to abate the losses and enhance community based preparedness.

Provide feedback to the assessed in-country partners (both India and Bangladesh), CA South Asia Office, the

India and Bangladesh country offices and the CA Humanitarian Division in order to improve

implementation/design of future emergency programmes (response, early recovery, rehabilitation) and its

integration with CA development work in the aforementioned countries, as well as the countries in the CA fold

with similar disaster profiles.

Create learning materials from the evaluation and impact assessment that are appealing and easy-to-

understand in order to reach out to a larger audience of Christian Aid partners. These lessons would aid in

guiding future emergency programmes in the South Asian region for CA, partners and the wider humanitarian

community.


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Inclusion and Human Rights

Beneficiary selection within Christian Aid and partners has long adhered to the

principle of rigorous selection criteria and transparency. It aims to not just reach

out to the most socially excluded groups, but actually empower them. However, in

situations where a few hundred thousand people are affected, a few hundred

packets of aid can be very difficult to distribute, even within this defined beneficiary

criteria. How do you identify the most vulnerable from within the most vulnerable?

At the same time, how do you ensure that human rights stays at the forefront of

this inclusion policy?

Starting from the identification process itself, CA partners attempt to ensure that each variable in the selection process is

addressed. Focus Group Discussions with the affected communities are used to identify primary beneficiaries. Later on,

a house to house survey is done to verify the selection process. Transparency is ensured through cross-verification with

local government representatives and the criteria are shared with all stakeholders and affected families. In fact, several

local government representatives across Bangladesh were enthusiastic about continuing this process in future disasters.

However, over the course of the study, response and recovery projects were found to have faced familiar challenges such

as the ‘influence of elites and local government’, political pressure, lack of information or misinformation. In projects

across Bangladesh, particularly, beneficiary selection was rendered more difficult due to the lack of communication

systems. This meant that the criteria and final numbers did not always evolve from the communities themselves; and

that the process was often unable to include excluded communities as active participants in selection.

The risk of too little for too many

“Only 500 people got the relief material. It was of very good quality, but most of us didn’t get anything.” This was a

sentiment echoed often across many villages. The quality of relief material was appreciated, but the coverage left many

uncovered, even though the partners agreed that their needs were very difficult to reject. Drawing that critical line in the

beneficiary selection process is a very difficult call, particularly in low intensity floods where life loss has been low, but

economic losses very widespread.

Cases of fights between relatives because one set got relief and another didn't were also commonplace. “Yes, you did

put up lists on the wall on each day of distribution and we know you gave out everything you had brought within our

village itself, but my family was left out.” Recent efforts in implementation of HAP and other accountability measures

have created significant goodwill and faith in the core system of distribution itself. Yet the logic of beneficiary selection is

still hard for the community to see, particularly for those who do not get covered. Improved communication and greater

involvement of community members (besides the mandated elected leaders) needs to be considered to address this area

of concern.

Recommendations could also be sought from the community on ways to reduce such fighting; particularly if there is risk

of theft or bullying from those who were not assisted. However, wherever there is selection within a community, some

problems are sure to arise. Tie-ups with other partners to ensure that entire communities are covered could help resolve

some of the conflicts.

Understanding local power structures and the process of decision making

Local power structures traditionally follow a pattern where resourceful and politically connected people call the shots.

Even in normal times, the decision making process at the local level is mostly controlled by the elite and a select number

of people with influence and wealth. Understanding this dynamic and finding ways to ensure that the general public are

actually given a voice is essential.


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Dependence (pressure?) on local partners

Needs assessment and beneficiary identification is universally recognised as important criteria for effective

humanitarian response. However, field observations show that the complex web of politics and spatial demarcations

within a village makes it very difficult for outsiders to even find the most marginalised communities; let alone identify

beneficiaries from within it. A lot of this work is dependent on the knowledge of local NGOs; who may not have had

earlier experiences of handling emergency responses. This puts unfair pressure on local groups to carry out this complex

task, often with limited resources and inadequate assistance from above. They are also put in the unenviable position of

angering those in their constituency who don’t get the relief. Improved handholding and passing on of tools is needed to

support these implementing agencies, often community-based partners of CA partners themselves.

Partners, particularly those working in new areas, also often handpick officially recognised, well-known socially

excluded groups. This has two inherent risks. The first is missing out less visible but more marginalised sub-groups. The

second is creating problems within the larger community over the long term.

Reaching the unreached in Kurnool, Andhra Pradesh: Aashray

“We will not allow you to go to the Harijan wada. Leave all the food here and we will distribute it to them,” demanded the

community leaders.

The devastation of Cyclone Laila left almost all affected areas under water and the crop fields were completely

submerged with no hope of revival. The villages in Kurnool remained cut off from the connecting towns, with no food or

water.

The overcrowded relief centres were concentrated with humanitarian organisations and Government officials. Yet, there

was still a huge gap between the demand and supply. Relief materials remained concentrated in the hands of a few

dominant communities and the Dalits were given least priority. In fact, losses to these families were always considered

as meagre and estimations were done along these lines. The situation was complicated further by the fact that the Dalit

wadas were cut off and unapproachable.

Aashray immediately mobilised and deployed its field staff in Kurnool and Mahaboobnagar districts to distribute relief

to these families; offer counselling and moral support; and advocate on their behalf. Strong local knowledge of the area

meant that they were able to achieve this goal with relatively few hurdles.

Such examples showcase the dire need for strong teams on the ground that can immediately act. However, they also

raise the larger question of preparedness training and in-depth mapping that allow for such prompt action.

Fulfilling the basic right to shelter in Gabura: CCDB

‘I was living on the embankment for more than three months after Aila. I had no place to go. With four children and a mentally-

challenged husband, I lived on the relief support of the NGOs and later income from the Cash for Work programmes. I received 5

kilos of rice. I had no land of my own, so I built the small house I received from CCDB on my father’s land. Now I have a place to live

a dignified life with my children and husband. I am not worried about risk to my children that we faced many times during our stay

on the embankments’. - Rashida Begum, Charbara village of Gabura Union

Rashida was one among those selected through community consultations and discussion with village elders and leaders.

A tool similar to pair-ranking was indirectly used to determine the most vulnerable with the greatest need for housing

support. However, even the minimum need in the community was too large for the number of houses constructed. In

fact, due to land access or resource issues, many people are still living along the embankments, unable to build

permanent structures.

Water as a caste unifier in Routashi, Odisha: VICALP and SGP

A large village of 350 households, Routashi faced an extreme shortage of pure drinking water. The consumption of

floodwater was leading to serious illness. Most of the tube wells were defunct and the few functioning ones were


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overcrowded and muddy. Even before the September 2011 floods, water had been an issue. Projects sanctioned by the

government had failed here due to the high iron content.

VICALP and SGP responded with a bore well and water-purification plant. The level of excitement among the

community was so high that people even came forward to donate their land to install it.

However, the project went beyond just setting up a Reverse Osmosis (RO) water purification unit. The village was

predominantly Dalit, with around 30% of the households belonging to the upper castes. By setting up an expensive yet

universally required community asset in a Dalit neighbourhood; the intervention hoped to bring in a social

transformation process of dignity and respect. The expectation was that some caste barriers would be broken since

drinking water would have to be taken from a Dalit-run, managed and operated water system. Water, traditionally a

caste divider, was envisaged to become a caste unifier through this intervention.

Through a consultative process, a highland location was chosen - the terrace of the SGP office. The Dr. Ambedkar WASH

committee, comprised of Dalit community members, were trained on operating and maintaining the plant components;

but VICALP will keep overall control until the committee becomes self-sustainable. The idea was to relocate the plant

after a five-year period.

Installed by the BWRDS organisation at a cost of Rs. 500,000, the plant can purify 1,000 litres of water per hour and has

the capacity to produce 6,000 – 8,000 litres of purified water per day. It was decided that 20 litres of water would be

provided per household at a cost of Rs. 4; and the purified water is also supplied to the schools and anganwadi centres.

All households are provided with a day-wise monthly user card. In order to help the enterprise become self-sustaining, a

Rs. 11 membership registration fee and Rs. 120 for a 20-litre can is collected from the users.

Future plans target to register the plant as a business enterprise - ‘Bhim Jal’ - so that the excess water can be bottled and

sold to neighbouring villages, private organisations and others. This transformation into a profit-making social

enterprise can create livelihood opportunities, raising funds for further community development initiatives. Rough

estimates show that after bottling and transportation costs, there can be a profit of Rs. 3-4 per bottle of water. For 1,000

litres per day, this would work out to Rs. 3,000-4,000 as daily earnings.

As of this review, however, less than half of the community was actually using this water. A large number of hand-

pumps with widely varying qualities were still the norm; including one positioned dangerously close to sanitation

facilities. The financial forecast for a treatment and bottling plant therefore seems overly optimistic.

Additionally, while the concept of using community infrastructure as a caste unifier is positive, the approach could be

modified to better suit local realities. Rather than costly imported solutions, household water treatment systems such as

bio-sand filtration could have been more sustainable. In areas like this one, where salinity is also an issue, options such

as solar treatment or other traditional local solutions could have been analysed more closely, before deciding on

imported machinery. A revisit to the plant after a year will help understand its sustainability issues better.

Enabling the most marginalised to rebuild in Prakasm, Andhra Pradesh: SNIRD

When cyclone Laila hit in May 2010, most of the villages on the south coast of Prakasam District suffered severe damage.

While the government did promise financial support for reconstruction, there were several caveats. Site title deeds had

to be sanctioned and the funds would be released only after the construction of the plinth. For the excluded communities

of Yanadis (tribals) and Dalits, finding the resources to accomplish this was a difficult task.

SNIRD first motivated them to apply for these land titles; and then provided Rs. 10,000 to 150 families to complete the

plinth construction. Christian Aid’s prompt funding approval (within three days) was much appreciated considering the

gravity of the situation.

With their full involvement and manual contribution, these families were able to access the Rs. 56, 000 grant sanctioned

under the Indiramma Illuru scheme of the government. SNIRD also tried to keep in mind flood and water logging

problems; encouraging raised foundations. However, these were created with soil taken from the same area. Since they

have not been reinforced or protected with surface lining, erosion is inevitable during the rains.


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Finding abilities in persons with disabilities, Bihar: ANHAD

Abdul Daiyan has been managing the ANHAD programme in Purnea and Araria. He demonstrates with great passion

how the focus of the intervention has shifted from relief to development; and has successfully mainstreamed the

inclusion of persons with special needs along the way. Rani (name changed) is in her early twenties and suffers from a

loco motor disability that has brought with it huge stigma and allied challenges. Surprisingly, she is the one person who

is most willing to come to the front and talk about the work that a group of women are doing in a Jute Training Centre

established by ANHAD in Village Sandalpur, Araria. The women are trained in producing jute items, mainly bags and

folders. Village youth and ANHAD staff are working hard to establish market links so that the effort can sustain as a

women’s group enterprise. In fact, ANHAD has established a private trading entity that aims to build a social business

model to support such social enterprises. So far, the group (and other groups in the area) have been supported under the

long-term recovery and risk reduction phase of the flood programme. However, the focus is now on its sustainability as

an independent entity after the withdrawal of funding support in 2013. This will indeed be a challenging task, in

particular because the pricing of the products being put in the market so far is often below production costs, supported

by a subsidy through the project.

Good practices / innovations Challenges Opportunities to be explored

Looking beyond just

‘inclusion’ to empowering and

placing responsibility with the

most marginalised

communities.

Prescribed selection processes

where beneficiary criteria and

numbers emerge from the

community themselves

through focus group

discussions.

Hardware projects such as

drinking water that aspire to

become self-sustaining.

Complex political webs and spatial

demarcations, which make finding

and indentifying, marginalised

communities very difficult.

Lack of nuanced understanding and

documentation of inclusion, due to

which field operatives encounter

challenges.

The community is at a nascent stage

to anchor long-term projects and

community ownership needs

strengthening. Investments may

need to be made on domain experts

to train the community on running

social enterprises with sound social

and economic parameters.

The buy-in of all stakeholders on the

larger vision of hardware projects

has yet to be established. The

symbolic sense of ‘social

transformation’ is at a peripheral

level.

The representation of women, youth

and other minority groups is

inadequate across several projects.

Rather than imposing alien technologies

such as RO systems, ecosan toilets and

concrete houses, locally appropriate

alternatives could be explored. (This is

also discussed in the chapter Long-term

Resilience.)

Participatory tools across all stages of

programme implementation already

exist and can be simplified for better

deployment.

A number of organisations are doing

parallel work in this field, so a more

collaborative and networking approach

could be helpful.


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Recommendation 1: There is a critical need to develop a nuanced understanding of socially excluded groups and power

structures; engaging these groups as active stakeholders; and to influence specific inclusion policies.

Specific Recommendations

Christian Aid

Document complexities of the inclusion issue, relevant strategies and best practices of inclusion of Dalits and

Adivasis.

Strengthen context specific strategies to look at inclusion of women, children, PWDs, the poor, religious

minorities and LGBTs.

Local partners

Undertake power analysis to help identify the most marginalised during an emergency.

Deploy tools such as PVCA and social audits to encourage participation.

In all interventions/strategies designed to empower marginalised groups, consider long-term sustainability; the

transfer of technical know-how; reduced risks and capacity building.

Collaborate and network with other NGOS in the area for optimal coverage of affected communities; and to

converge resources for increased effectiveness.


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Long-term Resilience

‘Linking relief, rehabilitation and development’ has been around as a disaster

response concept for a long time. Yet, its integration in field level implementation

needs improvements in resolution. Major achievements have been made in the form

of investments in livelihood re-establishment programmes and in the formation of

community-based organisations to take the local cause forward. More needs to be

done on links with development planning; and a good starting point could be issues

that directly influence future risk.

At the same time, technology has been both a great boon as well as a huge challenge

in humanitarian response. Decades of work on intermediate technologies to build a

clearer understanding of appropriateness has yet to make things simple enough at

the ground level. The promotion of local technologies will still be more sustainable

than importing industrial technologies without sufficient capacity building and

investment in long-term maintenance.

‘Building’ a sense of security from cyclones in Kamarkhola: DSK

Post Cyclone Aila, the construction of a cyclone shelter has created a sense of security among the most vulnerable

community in Kamarkhola, Bangladesh. This solid, elevated, multi-storied construction is the first of its kind in the area;

providing security from further cyclones and storm surges. The Kamarkhola Union Junior High School cum Cyclone

Shelter now serves multiple purposes; as a school, a training centre for the project, a community meeting hall and, of

course, a cyclone shelter. It has facilities for 1,000 people including four latrines (two for women); a rain water harvesting

system with a plastic tank; a tube well on the first floor to access water when the building is inundated; and a solar panel

to provide light to all rooms and toilets. The land was donated by a villager with the passion to provide ‘education for

all’. Not only has it reduced school dropout rates in the area, but it has provided a new hope through security. In fact,

construction techniques were taught to the headmaster and villagers to allow them to supervise the contractors directly.

Disaster preparedness training, given especially to the women, has had a positive impact both on their ability to respond

to future cyclones; and on their confidence and social standing within the community.

However, since the school is not yet supported by the local government, the teachers and headmaster are currently

volunteers. This may not be sustainable unless local authorities take on the financial responsibility to run it.

INNOVATIVE TECHNOLOGIES

Indigenous knowledge; simple technology

There is a significant amount of research that shows the richness of traditional wisdom and indigenous knowledge on

disaster risk reduction and response in communities across India and Bangladesh. This can be tapped to a great degree

and augmented with simple, cost effective and easy-to-maintain tools. Some examples from the project areas that are of

great value include: shelter design based on local resources; river monitoring to improve flood warnings; ecosystem

based livelihood models; and shelter belt plantations.

Community buy-in on livelihood recovery in Khulna: DSK...

In Aila affected communities across Kamarkhola and Sutarkhali unions of Dacope Upazilla, DSK involved the local

people in making boats and nets. As a result, the boats have become fully resilient to local conditions and the nets are

appropriate for the specific fishing culture – a detail many organisations fail to take into account in their interventions.


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This increased community ownership of the process, as well as reducing costs and timelines. Supported by regular

monitoring and technical support from DSK staff, it helped people access the core supplies to restart their livelihood.

But missed opportunities on local housing

Local skilled masons were used to construct houses and toilets in Munshiganj in Satkhira and Dacope in Khulna,

expanding their knowledge of resilient features. Again, this increased local buy-in, brought down expenses and

crunched the timeframe.

However, a number of missed opportunities emerged in terms of integrating local housing practices. A flood-resilient

housing design is evident across the area. These houses are built with a combination of bamboo or wood sticks and mud.

In case of high tide, flooding or inundation, the mud of the wall may wash out but the basic structure remains intact,

protecting the families from any major injuries. Low-cost and easy to maintain, such designs may have helped promote

sustainability in the reconstruction process.

Tapping traditional shelter techniques in Rajasthan: SEEDS

Unprecedented flash floods across Barmer, Rajasthan, in 2006 left a majority of the villagers in the affected areas

homeless. Reconstruction in this area was a community-centred initiative with Village Development Committees (VDCs)

formed in all 15 villages covered under the project. A crucial part of the design process was looking at the long-term

sustainability and ecological footprint of the reconstruction.

For example, thermal comfort becomes a major consideration in the desert where summer temperatures reach 50°C and

winter temperatures dip to freezing point. The difference between the inside temperatures of a concrete house and a

vernacular one is found to be up to 8°C. This was a large part of the consideration for SEEDS to maintain local and time

tested materials and technologies. The houses were therefore built in complete compliance with local environmental and

cultural nuances.

The local circular design was retained, as were the thatched `breathing’ roofs for thermal comfort. Yet, at the same time,

long-term risk reduction was incorporated by introducing interlocking blocks, proper foundations and structural bands.

The mud blocks local to the area were stabilised with 5% cement and compressed for strength.

Water filters move drinking water closer in Khulna and Satkhira

“We had no worries about drinking water during the first six months after Aila. We got water from individuals and NGOs on a

regular basis. We also got drinking water supply from NGOs when the ring embankment broke and our villages inundated again.

We had limited worries. But after that, we again started the long journey to get water from two – three miles away; walking to the

ponds and PSFs in other villages. We shared the problem in our group meetings and talked with the frontline staff. We thought

plastic tankers for everyone would be the best option. But there was not enough money to buy plastic tanks for every family and also

it would not reduce our hardship to fetch water from long distances. PSF can be a good option, we thought. After long discussions,

we chose some ponds that were in a relatively better condition, with less salinity in the water. PSFs were set up in places where we

can all have access. Our children are now able to go to school as we don’t need to send them or take them with us on a six-mile

journey to fetch water.” - Women in Khulna and Satkhira districts

The lives of Aila-affected and water logged people in Khulna and Satkhira districts were dramatically changed through

Pond and Sand Filter (PSF) technology. For generations, these communities have used ponds as a source of drinking

water. Saline water from the cyclone and subsequent water logging had wreaked serious damage to the soil structure of

the ponds. More than 90% of them were unable to be recovered even after three years. The crisis intensified when the

primary emergency response phase ended and the supply of drinking water from the NGOs dried up. Families began

walking up to 3-5 miles to fetch 10-20 litres of drinking water. Since the men are generally away in search of work, this

task fell to the women and children. PSF, instituted in the recovery phase, helped repair and re-activate these ponds.


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LIVELIHOOD PROGRAMMES

Long-term livelihood support across Bangladesh: Sushilan

I lived on the main metal road for more than two months with my family after Aila. Poisonous snakes, dogs, and people stayed side

by side. I became dependent on the relief of NGOs and individuals. My life changed after getting training on vegetable cultivation,

some cash and seeds from Shushilan. I got a net (approximately 25 yards) to protect the vegetable seedlings, cash money of BDT

300.00 and fast-growing seeds like sweet pumpkin, lau, sweet gourd, bitter gourd, cucumber and ladies fingers. I started on a small

plot of land and saved some money. I was able to help my husband support our family. After some time, I took a loan of BDT 5000.00

from our samiti to expand. Now I have taken lease of 5.5 bigha (approximately 1.5 acres) of land and I am growing vegetables using

the knowledge and technology I have learned from trainings. I can grow 5-10 mon (200 – 400 kg) of vegetables each week. I sell those

to the local market and am now able to rebuild my household. My children are going to school and we eat three meals a day. Now I

feel safe and independent.” – Champa Rani of Jaliakhali, Ward 3 in Munshiganj Upazilla, Satkhira

“I lost everything during Aila - my small shop and the fishes from my pond. I tried to restart my small pond-based fisheries, but I

could not save the fishes. I had no idea which fish could survive in the saline water. Then I got training on tilapia production from

Shushilan and received cash to buy fish and food for quick growth. It grows so fast that I can get 4000-5000 BDT every week from

selling the fish. I don’t need to use any chemical fertiliser or unnatural food for tilapia’s growth. Now, I have repaired my small shop

with the income from tilapia and am supporting my family’s three meals, education and other basic needs. I feel like a dignified

person.” - Abdul Huq from Munshiganj, Satkhira

“Most organisations work for a short time and go away, but CA partners were with us right from the beginning of the disaster. They

not only gave us direct support, but also stayed with us as an umbrella; offering suggestions and psychological support to keep us

fighting against all odds after losing everything.” - Rokeya Begum and other women in Khesra union and Munshiganj union

From FDG participants to local government representatives, continued support over the long term was stated by many

as being critical to increasing coping capacity. The project design integrated livelihood restoration and income

generation as key components; focused mainly on agriculture – the core source of livelihood. In several affected areas,

especially Aila hit zones, CA and local partners continued support for nearly two years. Small and marginal farmers’

groups were facilitated in Munshiganj and women’s groups in Kamarkhola. This ensured a critical link between

response and development processes towards food security and employment. In the agro-economy of the region, this

was essential. A total of 1,813 people received support to restart their livelihoods including small businesses, grocery

shops, vegetable gardening, livestock, petty business, fish culture, crab fattening and handicrafts.

The distribution of seeds for leafy and some saline tolerant vegetables also provided much needed food security to the

families. This leafy vegetable production was apparently abundant enough to fulfil major food gaps in the first six

months. In the later stage, it emerged as a core income-generating scheme. Training on ‘scientific methods’ also helped

families protect their vegetable gardens from water-logging and saline water intrusion.

While the projects did help revive small trade, local government representatives felt that there was a gap in the need

assessment process; missing the opportunity to promote diversified livelihood options. Women participants shared that

training and financial support for sewing, tailoring, embroidery, handicrafts and computers would be useful; all of

which have an expandable market at local and district level. On the other hand, male participants were interested in

training and support on nurseries, driving and repairing of power tillers, poultry, livestock and hatcheries.

Fostering food security and re-establishing livelihoods in Bihar: PGVS

In my opinion, we (poor and marginalised groups) benefitted the most from the livelihood kit given by PGVS-CA. Earlier, we were

never able to afford good quality tool kits for construction and repairing houses. We were excited when the LH Kit was distributed

because it meant we could now access our livelihood, re-establish our culture and protect our family. – Mr Bhagirath, Mason,

Barakhurwa

Chronic food insecurity was rife across Triveniganj, Bihar, post the 2008 Kosi floods. Food distribution had helped to

meet short-term needs; but a more durable solution to hunger was critical. PGVS took the initiative to support farmers

with seed fair, soil testing and other technical consultations. This not only helped them regain confidence and re-


1 9

establish farming, but drove improved farming and marketing activities. Kitchen garden kits were also distributed.

Aided with effective tips on agricultural technologies, these women were able to grow vegetables in their compounds or

on other small pieces of land.

Masons, carpenters, labourers, cycle repair workmen and painters were provided with specific livelihood kits that

helped them resume their work.

‘Tailoring’ livelihoods in Bihar: ANHAD

The socio-economic conditions of the region showed a dire need to equip women with livelihood skills and awareness of

their rights. ANHAD began with two women empowerment centres in Basai and Amour, Purnea, in November 2010.

These imparted literacy and vocational skills in tailoring and cutting. The number of centres doubled the following year,

expanding to K. Nagar and Jokihat (Araria).

The opening of every new centre was an uphill task; facing resistance from various quarters. With strict social norms for

women and literacy rates as low as 10% in some villages, it was even difficult to find coordinators who encouraged

women's participation.

Once established, getting the women to the centres was the next challenge; convincing them to take time out of their

daily household chores. Yet once they started, the centres became a second home to regularly meet, study and learn new

things. Aside from the vocational training, literacy classes and weekly interactions on various core topics were begun.

Each centre has one qualified instructor per course and a programme coordinator. About 280 women had been trained in

embroidery, cutting and tailoring or jute work across the four centres as of October 2011. The ANHAD team has been

busy setting up a marketing chain for the different products. A legal entity for this is being set up in Purnea and sub-

centres will run from various villages. In each village, a core team of 5-10 women have been identified. They are being

trained on overseeing the assembly lines from production to marketing.

However, despite all efforts, the social and harvesting season compulsions kept the programme from achieving its full

potential. While it would be desirable to time training according to the off-seasons; the time frame for response and

stringent back donor requirements do not always allow such flexibility.

Issues also arose around costing. The jute footmats produced by the women’s groups were sold below the break-even

point throughout the project duration. Not building in financial viability right from the beginning will make it difficult

for the groups to sustain the enterprise in the long-term.

Climate – an additional filter

The inclusion of climate change adaptation (CCA) along with the integration of disaster risk reduction (DRR) in disaster

response has posed new challenges to the application of appropriate technologies. The bar has been raised in terms of

worst-case scenarios to be met, given the variability and unpredictability of events including cyclones, cloudbursts, flash

floods and water stresses. A menu of available technologies, with well-captured conditionality for deployment, is

needed for partners to be able to evaluate and select solutions that will be effective, efficient, sustainable, scalable and

replicable. Some of these are mapped over the course of this report including pond and sand water filtration systems;

saline-resistant seeds; and adaption of traditional housing techniques to deal with new threats.

The developmental challenge

While there seems to be clarity on linking relief with long term recovery, as manifest in livelihood and shelter-related

programmes, the developmental link is a little more challenging to establish and address. Though development planning

requires an entirely different level of conceptualisation, time-frame and approach, there is potential to arrive at this.

Several CA partners are mainstream development organisations in their non-disaster roles and the fundamentals of

development are strong.


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Recommendation 2:

Long-term resilience requires effective techniques and technologies that are simple enough to be locally,

culturally and environmentally sustainable; as well as a focus on livelihoods at the household level.


Christian Aid

Integrate long–term resilience into the programme design and main funding lines; including in emergency

budgets.

Encourage projects that tap into local solutions and encourage long-term development through recovery

programmes.

Local Partners

Strike a balance between widening the beneficiary base and keeping quality control.

Establish partnerships with local technical resource groups (such as universities) to pre-identify locally

appropriate technical solutions for the areas of intervention.

Diversify livelihoods and risks; and ensure that these are financially viable in an enterprise model.

For structural interventions (including schools, houses, cyclone shelters and WASH) ensure that designs,

materials, technology and labour (as far as possible) are local and sustainable.


Training on sustainable livelihoods

such as saline tolerant vegetable

seeds for the most vulnerable

households.

Involvement of communities in

restoring the fishing nets ensured

appropriateness, increased the

ownership of the families, reduced

costs and saved time. The local

practice and knowledge on the

technology was enhanced and

transferred to the next generation.

Putting women at the centre of

livelihood agendas and catering to

their specific needs.

Intervention that endures as it

banked on prevailing local

materials, technologies and skill

sets.

A dependency on ‘hybrid’ seeds

which are not suitable for all saline

and water-logging prone areas.

More technology solutions are

required.

Limited information and

knowledge that makes it difficult

to analyse the socio-environmental

context. For example, some of the

livestock and poultry died after

distribution to the affected families

due to salinity.

Limited material supply in the

local market.

The number of houses built as

against the need was too small.

Overall, opportunities were missed

on using local materials and

techniques to make the projects

more sustainable.

Local systems and knowledge on

long-term resilience already exist

and can be easily researched and

applied.

The interventions can be linked to

long-term developmental

programmes running in the area.

Local technical resource groups can

be partnered with for

developmental initiatives.


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Capacity Building

As responses grow increasingly complex, building the understanding of donors on

ground realities and the capacity of local partners to handle these diverse situations

is critical.

For example, new tools such as cash transfer are fast emerging as an instrument of

choice for humanitarian relief worldwide. However, these are tools that require a

careful balance between flexibility and effective use. The principles need greater

clarity in organisational strategies and in the minds of the implementation staff.

CASH TRANSFER

Unconditional and Conditional Cash Transfer

Meant to be timely relief that helps affected people recover as quickly as possible; cash transfer (CT) owes its origins to

Amartya Sen’s entitlement discourse. This argues that a predominant cause of famine is not availability, but accessibility.

Theorists have long debated that injecting cash into the local economy during an emergency can help restore the

fragmented system. On the other hand, it is also argued that such infusions could lead to an increase in local prices and

spark internal conflicts. In many cases, the desired impact may elude perception; either because the true choices are not

recognised or due to the scale of funds being too small to have any significant impact.

Another part of the debate is the question over unconditional (where the money is transferred or given without any

liability) versus conditional cash transfers (where the money is tied down to a specific activity like livelihoods or house

reconstruction).

These complexities mean internal understanding and capacity building of implementing partners is urgently required to

successfully tap the opportunities that this tool offers.

While it has been used as an emergency response tool in other countries; it was a pilot experience for CA in India.

Therefore, the cash transfers had an element of conditionality with a spirit that was unconditional.

Letting people prioritise their own needs in Odisha: VICALP and SGP

“In a traumatic situation where people have lost everything, including their health, a direct cash transfer programme is the best

remedy to help people recover basic needs and livelihoods. In our Jajpur CT experience, it was found that people have numerous

requirements since they had lost everything. In this context, it is necessary to let her/him be given an opportunity to decide which

requirements he/she needs to meet immediately.” - VICALP staff with a changed mindset towards cash transfer projects

In the four most affected villages of Bari block (Sreerampur, Krushnanagar, Haladibasanta and Anikhona), assessments

revealed that food, shelter reconstruction and livelihood support were the most urgent needs. Since the floods, 90% of

the villagers had taken loans from local moneylenders in order to buy seeds and begin re-cultivation. Each loan carried

an interest rate of 5% per month. Ironically, the plantation had had limited success due to crop infestations.

Though VICALP was initially hesitant to try new methods, the fully functioning markets made it appropriate to

distribute relief in the form of cash transfers. The cash element was unrestricted (allowing beneficiaries to decide where

to spend their money), but fixed value vouchers were used to specifically support the longer-term livelihoods objective.

The vouchers were tied to items such as seeds, fertiliser and fishing nets. Local traders were identified to meet all the

requirements, with pre-agreed payment methods and frequency.

Through a participatory approach, villagers were asked to categorise themselves into ‘most affected’ (51 households)

‘moderately affected’ (204 households) and ‘partially affected/host community’ (255 households). Those who were


2 3

registered as ‘most affected’ received the maximum cash sum - Rs. 4,000 and a Rs. 1,000 agricultural voucher.

The ‘moderately affected’ received Rs. 2,500 and a Rs. 1,000 voucher and the partially affected/host community received

the Rs. 1,000 voucher. This enabled VICALP to reach four entire villages and a total of 510 households. However, during

the early stages, VICALP had not shared openly what the relief would be and the fact that different categories would

receive different amounts. This led to a problem in one village where they all asked for an equal amount of money

instead of it being stratified by need.

Another challenge came in determining what form the cash transfer would take. Of the three banks, two rejected

outright the idea of setting up 510 bank accounts. Capacity constraints and policies limited them to a maximum of five

new accounts per day. The third said it would take at least two weeks. Thus, cash was selected as the easiest medium.

The cash transfers and vouchers were successful in providing food and shelter, as well as reviving the agriculture and

fishing livelihoods of the most needy. On the other hand, the linkages between disaster response and development were

not evident following this stage. For example, the shelters were built in the usual temporary structure without

incorporating any vulnerability reduction features for future emergencies. Cash transfers themselves were seen as a one-

time response without any continued support.

Cash-for-work schemes to restore internal communication systems in Bangladesh

In areas like Tala, Munshiganj, Gabura and Kamarkhola, all the internal roads were fully damaged. Participatory

analysis revealed that infrastructure repair and a way to earn were the most critical needs. In a participatory process, CA

partners finalised the scheme selection after analysing the immediate risks and needs of the people. In Khesra union,

Gabura and Kamarkhola, the embankment along the river was selected; the main protection for most of the villages from

flooding and salt-water intrusion. In Kamarkhola, earth work by villagers helped repair the embankment breach,

stopping tidal water and clearing water-logging nearly a year after the Aila cyclone.

The cash transfer process gave the families increased freedom to respond to their needs; with a higher degree of

ownership. Cash for work and cash for training (which was only done in water-logged areas of Tala Upazilla) helped

them to buy rice and other essential non-food items, access health services, repay loans and build up some assets like

livestock and poultry. Some used the money to repair their houses, while others were able to pay for their children’s

education.

Partner to partner training: PGVS and ANHAD

PGVS and ANHAD are two partners of Christian Aid who come with different focus and skill sets. They worked in

different parts of the country before converging in North Bihar for flood response work in the Kosi Basin. PGVS has a

social basis, but focuses on working towards making technology work for the poor and the marginalised. It has taken a

scientific approach to community disaster response, through monitoring flood levels and mapping incremental

inundation. Their developmental approach to disaster risk reduction has seen the formation of disaster management task

forces and conduct of mock drills. ANHAD works to build people’s movements and has a deep-rooted livelihood and

rights approach to disaster management. Faced with the need to carry out DRR training and capacity building within its

work areas in Araria and Purnea, ANHAD called upon the capacities of PGVS whose teams were working in the

neighbouring district. Resource persons from PGVS conducted training programmes in ANHAD’s work areas, wherein

community groups were trained on local DRR techniques. In the process the ANHAD staff and volunteers also got

oriented. This was a rare example of cross-partner collaboration and learning and such mechanisms need to be replicated

and scaled up as part of CA’s institutional strategy.

Deploying new technologies: SEEDS

Disaster response and risk reduction is now an established field with known principles that are universally applicable;

and which have been imbibed and are in practice by all partners. At the same time, practices are locally contextual and

need to adapt and be appropriate to the specific social, cultural and environmental conditions of the specific site. Flood

responses in Barmer in Rajasthan and Balasore in Odisha are examples of how locally appropriate technologies can help

find more suitable solutions than the standard ones. While carrying out post-flood shelter reconstruction, SEEDS used


2 4

Stabilised Compressed Earth Block (SCEB) technology in Barmer. This used local earth to produce building blocks on

site. Limited amounts of cement were used to stabilise the earth and manual compression machines compressed the

blocks to produce material that was resistant to disasters and yet low on carbon and energy footprints. Simply adapted

moulds were used to make interlocking blocks that built walls resistant to earthquakes. In Balasore, the same technology

was repeated, but fly ash from a nearby industrial unit was used as the basic material instead of earth. Since the earth in

this coastal area was too sandy and unsuitable, the freely available and abundant fly ash was the more appropriate

choice.

Mason training in Rajasthan: SEEDS

Local masons were engaged at all levels of SEEDS’ recovery process after the 2006 flash floods in Barmer. As a result of

using local masons at the forefront of the construction, the skills could remain embedded in the community even after

the relief phase was over. The design retained local traditions, but added elements for long-term risk reduction.

Therefore the training covered block making (using locally available mud, stabilising it with 5% cement and

compressing it for strength); as well as safer construction techniques for flood and earthquake-prone areas such as

proper foundations and structural bands for strength. The idea of ‘interlinking’ blocks cut out the need for mortar.

The technology itself was kept basic, with masons being trained on manual block making machines. In fact, the five

manual machines and four strategically located block fabrication units were entirely managed by community workers

themselves. Following the training, most of the houses were built by these 23 trained masons.

These machines were left with the community on completion of the project. However, they have not continued to be

used. Despite the skills and equipment having been transferred, the stabilised interlocking mud blocks did not make an

entry into the local market or practice. The primary reason appears to be the short time span and limited scale of the

project, which was unable to make a dent in the existing supply chains and the market demand.

Long-term capacity building of project teams and communities

Training and capacity building have been recognised and included in almost all programmes under the flood appeal.

The question that remains to be answered, however, is how to make the capacity building initiatives last beyond the

terms of the projects and create a long-term impact. Unfortunately, most interventions have remained dependent on the

project funding and show little signs that the initiatives will sustain beyond the withdrawal of the partner agencies. One

of the main constraints is that capacity is primarily being viewed as training. A number of non-training capacity issues

including attitudes, resource flows, technologies and the operational environment are overlooked, often for want of

capacity and resources within the implementing partners themselves. There is a need to take a long-term view of

research, education and training with appropriate quality control mechanisms; awareness generation programmes based

on behaviour change communications; and organisational development that supports long-term capacity building as a

mainstay rather than as ad-hoc one-off training events.

Good practices / innovations Challenges Opportunities to be

explored

The participation of women and the

most marginalised groups in cash-for-

work programmes has increased

women’s accessibility to income and

is slowly changing gender-biased

perceptions.

Training on indirect agro-activities

such as producing vermicompost,

saline tolerant crops and vegetables

has created a scope of diversified

income options for the poor and

women-headed households.

Humanitarian capacity as a composite asset is a

challenge that cuts across governments, civil

society organisations, community groups,

academia and the enterprise sector. Such

convergence is a significant challenge with very

little efforts currently focussing on it.

The capacity of frontline workers and the field

staff of partner agencies itself is a very

significant challenge. Most partners report a

difficulty in recruiting, and more importantly

retaining, appropriately qualified staff for such

activities. There are very few institutions

Advocacy on opening

bulk bank accounts in

remote locations can

not only ease project

implementation; but

can also build the

long-term resilience

and capacity of the

communities.

Within partners, there

is immense scope for

cross learning.


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Joint initiatives of CA partners on

capacity building are helping

establish an internal learning

mechanism; tapping resources in one

partner agency to build learning in

others.

Creating local institutions and

strengthening and converging

existing ones is an effective

independent way of building

capacities and is more sustainable

than provision of these services to

communities.

imparting such training and creating such

resources for the sector.

The international relief community’s experience

of cash distribution has been limited. There are

both positive as well as challenging arguments

to this form of relief.

Sphere guidelines for shelter reconstruction

were not considered all through and not all

shelters constructed were of a quality that could

withstand future disasters.

In some cases, the money offered seemed

limited for shelter construction. There was a

possibility of the residents getting into a debt

trap.

The ongoing core

programmes of CA

and partners can be

used to anchor and

institutionalise long-

term capacity building

initiatives.

Recommendation 3:

Skills need to be strengthened across levels, with a focus on new mechanisms such as cash transfer; and

virtual platforms built upon for better resource mobilisation and technical capacity.


Christian Aid

Invest in capacity building of partners.

Establish a virtual platform to encourage cross learning between partners.

Research challenges in the deployment of emergency mechanisms such as HAP and cash transfer; and refine

their implementation systems to ease operations at the ground level.

Local Partners

Invest in capacity building of field staff.

Look at long-term capacity issues of local players such as CBOs, volunteers, local leaders and construction

workers. Make their capacity building an integral part of the programme, activities and budgets.

Ensure that specific sector-wise knowledge is available with project teams (especially in technical areas like

shelter and WASH).

Develop specific skill sets on emerging mechanisms such as cash transfer and HAP.


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Knowledge as Humanitarian Capacity

Local indigenous practices and coping mechanisms have evolved over the years.

These are usually integrated into the fabric of the society, offering sustainable and

long-term alternatives. There is a dire need to dig out, build on and integrate such

mechanisms into our work. Wherever these have been made the basis of local

response and risk reduction interventions, both in India and Bangladesh, a positive

response has been received on their effectiveness, appropriateness and local

acceptance. Additional locally appropriate solutions also need to be better

researched and integrated.

Incorporating flood-resistant features in Odisha: SEEDS

In 2007, after severe flooding across Balasore in Odisha, SEEDS incorporated locally appropriate flood resistant features

in its reconstruction. The site selection and raised plinth kept in mind future climate resilience. A retaining wall of blocks

and mortar provided a stable base and protection against erosion.

Since 400 houses with sanitation units had to be constructed in widely dispersed locations within a short period of 6

months, a modular prefabricated approach was taken. This included 12 pile foundations connected with a plinth band

that can bear the pressure of the expanding and contracting soil prevalent in the area; and pre-fabricated pillars for the

frame structure.

Since fly ash was freely available as a waste product from a nearby thermal unit, it was used to create blocks for the

walls. Not only did they have a lower embodied energy, as they do not require firing, but they also required no mortar

due to their ‘lock and key’ design.

Traditional techniques revive livelihoods in North and South 24 Parganas: DSRSC

In the wake of Cyclone Aila, the North and South 24 Parganas in West Bengal were devastated. Most of the people in the

affected area lost all their cultivable land and livestock. As the quantum of relief also wound down, DSRSC began

searching for ways to revitalise livelihood options.

Extensive surveys were conducted in the affected blocks including the number of ponds, livestock and agricultural lands

that were destroyed due to saline water. A volunteer team was formed to raise awareness and advise farmers.

Consultation meetings were organised with experts, local and donor agencies and affected farmers to determine the

immediate new direction.

In the short term, just after the water receded, some seeds of vegetable crops and saline tolerant paddy were collected

and distributed. In most cases, the seedbeds were prepared centrally and the farmers were given the seedlings to

transplant.

In the medium term, the project looked at the plantation of fuel-fodder-firewood plants on the riverbank; relay crop

farming; land shaping; saline and deep-water paddy; and the creation of indigenous variety seed stores. In fact, almost

all the groups now have grain banks.

Three years after Aila, the land shaping and addition of more and more organic matter had considerably reduced the

salinity of the soil, actually levelling off the production to normal rates.

People’s confidence in native seeds and vegetables also grew stronger, seeing for themselves how they are more resilient

than hybrid ones. Sac cultivation, desalination, rainwater harvesting and trellis cultivation have begun to be accepted

models in the area. The community has even started developing small nutrition gardens, which have become the source

of family nutrition and supplementary income.


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These models are now being advocated with various line departments such as Horticulture and Fisheries, with an aim to

introduce them into existing employment schemes. In parallel, the status of early warning systems in the region began to

be assessed and were developed further in consultation with government. Community based disaster risk adaptation

forums were created at village, panchayat and block levels.

Innovation and local knowledge for warning and assessments in UP: PGVS

A number of examples emerged wherein local innovations and existing knowledge have been effectively deployed to

enhance humanitarian capacity. In Gonda, Uttar Pradesh, river monitoring systems were established locally by erecting

poles with scales marked on them. Local volunteers moved around, in boats when required, to monitor the level of

water at different strategic points. Along with this, a participatory map was drawn of houses that get inundated with

different levels of water, using the corresponding benchmark points. The result was a better understanding of the

relationship between water levels and flooding. Since the scale was local, people could relate to the figures and also keep

a real-time update as volunteers conducted their recording and dissemination exercises each morning and evening.

Interestingly, in that region and across Bangladesh, local methods also exist for rescue systems. Earlier gourds used to be

dried and strung together as a floatation belt. Now, the same method has been adapted using empty PET bottles.

Community based knowledge management in Bihar: ANHAD

The potential of local groups to host and disseminate knowledge was exemplified in ANHAD’s interventions on flood

resilience in Purnea and Araria Districts of Bihar. This potential of local knowledge initiatives to aid recovery and reduce

risk was brought to the fore through the work of Youth Clubs aligned to Nehru Yuvak Kendra for long term sustenance;

local Self Help Groups and interested community groups in bringing together local governance stakeholders,

community leaders and women; and the cross-linking with other partner organisations such as PGVS for knowledge

resource persons. Training programmes, economic activities and the promotion of an enterprise model all make the

approach an attractive option for a long term strategy.


Tools and techniques that can lead to

locally generated and real time

information on impending risks, both

short term such as floods and long term

such as climate variability impacts. These

serve communities that find it

challenging to draw such information

from mainstream sources.

An ecosystem-based approach that

brings together various aspects of

environment, livelihoods and resilience.

Working with local construction

workers, artisans and youth groups to

embed knowledge in the local

community.

There is an erosion of the value

attached to traditional knowledge.

Aspirations are driving modern

inappropriate technologies.

There is no identified anchor

where such knowledge can reside.

In most cases, the roles of the local

partners in knowledge creation

were not clearly evident. There is

also a significant need to link up

with other local NGOs to share

learning and prepare robustly in

the event of another disaster.

Communities across the work

areas are a rich repository of

this local knowledge. Some of

the partners are already tapping

this and can be used to catalyse

larger-scale efforts. This can also

help promote long-term

resilience.

Knowledge management is

being increasingly seen as a core

focus area of disaster

management; offering wider

funding opportunities for such

projects.


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Recommendation 4:

Indigenous knowledge and local coping mechanisms must be collated and shared; and best practices,

challenges and evidence of change documented for continued learning.


Christian Aid

Invest in research and documentation of local practices and appropriate new technologies as part of

programme design and main budget lines; using it for advocacy and skill building among CA and partners.

Local Partners

Document field initiatives and projects thoroughly (including photographs, case studies and challenges) to

ensure project learning is transferrable.

Look internally at capacities within the communities themselves while designing solutions.


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Accountability

Appropriateness, timeliness, effectiveness, efficiency and adherence to international

codes and ethics are not the responsibility of CA alone. This can only be effective

when partners, field staff, and local community-based groups that are part of the

channel are also in sync. In addition, cross cutting issues such as assessment,

documentation and inclusion have to be horizontally integrated across programme

components, but also vertically down to the last implementing link. Partners have

demonstrated high levels of understanding and performance. More, however, needs

to be done with local, last mile organisations and community groups.

The themes and their vertically reducing capacities

Good programme design looks at appropriateness, timeliness, impact, effectiveness, efficiency, coherence and

sustainability with reference to the Red Cross Code of Conduct, HAP and Sphere. Crosscutting issues of needs

assessment and targeting, documentation, participation, capacity building, disaster risk reduction and gender and

disability need to be an integral part of all programme components. The appreciation and capacity to adapt and apply

keeps reducing as one moves vertically down the implementation ladder. The need for capacity building is the most

acute at the last link – the field staff of local partners and the community group leaders.

Timeliness and effectiveness – Two areas of success: Case from Bangladesh

Across Munshiganj, Kamarkhola, Khulna and Khesra, CA and partners responded in an extremely timely manner,

helping ensure relief that supported people’s survival and reduce mortality. Local government representatives shared

that CA and its partners had been with the affected people from the very beginning, which helped them to appreciate

the context and manage needs. In fact, the first support was received within a day of the Aila cyclone.

The relief packages themselves were tailored to local needs. As Amzad Hossain, from Charabara of Gabura union

commented, “the relief package was very good, useful and covered most of the needs of the families. There was not only

rice, oil and salt, but also suji and sugar. The non-food items of the packages helped the families to cope with the threat

of winter while we were living on the embankments. There were items for almost everyone in the family, especially for

women and children”. Women participants from both Khulna and Satkhira district shared that, “the dry food we

received on day three or four from CA was critical for us. We had been living on the roads, embankments and higher

ground, even in the water. We had no support to survive. We had no shelter on our head, no food with us, no money to

buy a single grain of rice; we became beggars and most destitute people, looking for anything that we could eat. The

shops were closed and we could not get anything on credit for two weeks. The polythene sheets we received with the

first package gave us a roof during the rainy weather, while the water-purification tablets helped us to reduce stomach

diseases”.

Addressing immediate needs of Cyclone Laila: SNIRD

When Cyclone Laila struck Prakasam and Nellore districts in Andhra Pradesh in 2010, SNIRD responded immediately to

address the core needs. A relief camp was set up on the same day itself in ABM College; providing two meals a day for

250 families over the next two days. The approval to undertake relief activities was obtained over the phone to avoid any

delay. Half hourly updates were sent to CA initially. Obtained on credit, food was also distributed to 200 pregnant and

lactating mothers and 567 children below the age of five. About 1,500 people from excluded communities and groups

were provided food and non-food materials. The promptness of the initiative and the flexibility in granting approvals by

CA meant that the most needy could be reached immediately.


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Local community based mechanisms for accountability: Uttar Pradesh, India

In the recurrently flood-affected communities in Gonda, Uttar Pradesh, PGVS and CASA carry out relief interventions in

the form of immediate food, shelter and non-food aid. Both organisations have established credible accountability

mechanisms through local community strengthening. CASA has established robust HAP mechanisms, which are

adhered to by the local implementing partners. PGVS has established a local platform called Mazha Manch, which has

been capacitated to document relief needs, work out delivery systems with the aid agency, track the relief aid being

delivered and make public the entire process with details. Though the more visible face of Mazha Manch is to carry out

advocacy with the government to address rights based issues and target pressing local needs, the mechanism in itself

also serves to create a very localised accountability process. The display of beneficiary lists as decided in public

consultation meetings, publicity on complaints mechanisms and the sharing of phone numbers of senior functionaries all

led to a spike in the number of complaints being registered by community members. At the same time, all of these

complaints were addressed to a point of closure. This eventually ensured a local environment where there was more

harmony and far fewer complaints by discontented groups than usual.

Good practices / innovations Challenges Opportunities to be

explored

Public display of information on the

amount of relief material that ensures

transparency in the handling of resources

by aid agencies.

Participation of community groups in

verifying and finalising beneficiary lists

has drastically reduced the number of

complaints on being left out.

Establishment of complaint redressal

mechanisms and public display of contact

details of senior staff has led to a number

of complaints getting registered, but

equally has led to complainants being

satisfied in the end.

HAP is rapidly making its way into

practice at the grassroots level as evident

in a number of locations.

Budget disclosures have created problems for

local staff, as interest groups get attracted.

Politicisation increases when local opposition

groups use information to target groups in

power. It was reported that constant larger

engagement and public meetings can

ameliorate this effect, but that takes much

more time and effort of implementing staff.

Transparency on budget sharing is often

opposed by other organisations. (One of the

CA partners shared their budget on housing

and latrine construction, which the

community accepted and donors appreciated.

However, it was taken as a challenge by other

NGOs working in that area.)

The increasing

accessibility to HAP

tools offers

opportunities to

lean and be a part

of the partnership.

Some partners have

already taken the

lead on

accountability. This

experience within

the network can be

utilised to further

develop

accountability

initiatives.

Recommendation 5: Accountability principles adopted explicitly as a way of working can help promote timeliness, as well as

downward accountability both within the organisation and for elected representatives.


Christian Aid

Simplify and communicate HAP principles more effectively down to partner level.

Understand the local challenges and risks in implementation of accountability mechanisms; and build in

flexibility where needed.

Local Partners

Train field staff on accountability principles and processes. As far as possible, aim to transfer responsibilities of beneficiary selection, procurement and monitoring to the

community themselves through a system of truly representative committees. While doing this, ensure that local

power plays do not derail inclusion efforts.


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3 4

Advocacy and Networking

Advocacy is often seen as a long-term and relatively passive intervention. It,

however, forms an integral part of holistic humanitarian relief. With limited

resources available, civil society organisations must make efforts to mobilise larger

state intent and tap into related capacities to benefit communities. In addition,

advocacy is necessary where flood risks are magnified due to poor developmental

projects that are leading to recurrent disasters and need for relief.

Meeting need and resource gaps

One of the biggest challenges faced in relief work has been the very large magnitude of populations affected and the

relatively very limited resources available with the partners for relief distribution. While, on one hand, this poses

challenges of beneficiary selection, the larger aim needs to be to link the needy with the larger state welfare resources

that often lapse unutilised. Good research, communication and advocacy are needed to address this aspect. At the same

time, partnerships with existing long-term local players can help influence local practices – which isolated efforts have

not been able to sustain.

Fighting for the rights of the displaced in eastern UP: CASA

CASA is continuously engaged in advocacy at different levels on issues of preparedness, mitigation and management. In

2010, a survey across nine districts of Eastern UP revealed that the number of families displaced due to soil erosion

during floods was continuously increasing. The government’s Calamity Relief Fund (CRF) guidelines have no provisions

regarding this kind of displacement. CASA organised the displaced community in all the districts, facilitating a

convention at regional level and a demonstration at state level for formulation of a separate rehabilitation policy.

…With disaster volunteers taking it to a new level

In 2010, five villages of Fakharpur block, Bahraich district, were eroded by the flow of the river Ghaghara. About 50

houses were being washed away daily as villagers scrambled towards higher ground. Disaster Youth Volunteers had

been in regular contact with district and state level officials for the last three years about this menace, but no concrete

steps had been taken. In response to the insensitivity of government on these issues, they called a meeting of their

members and decided to go on a hunger strike at Sangawa embankment. On 26th September 2010, at 11:00 am,

approximately 1,000 affected villagers commenced their hunger strike. Intimidations of jail by the District

Administration had no impact and the youth volunteers’ 14 point memorandum finally yielded some benefits for the

community. These included four extra boats for search and rescue, two community kitchens, visits by medical

professionals every two days and supply of necessary medicines, the provision of chlorine tablets and three large

temporary shelters.

Caught between embankments in Gonda: PGVS

About 200,000 people live in between the Ghaghra and Saryu rivers near their confluence in Gonda, Uttar Pradesh.

Ghaghra often floods violently. With the slope of the land being towards the Saryu, the water used to pass through the

settlements and flow out into the Saryu. In 2006, the government constructed embankments along both rivers in this

stretch. However, the Ghaghra floods are too strong to be held back by the embankment as built, so it breaches its banks

and floods the settlements anyway. The Saryu embankment holds the water back from flowing out, thus leading to long-

term flooding. Residents have to resort to breaching the Saryu embankment to let the water out, which is seen by the

government as an illegal activity. CA partners are currently in their third consecutive year of flood relief in this area.


3 5

If not advocacy, what will prevent relief from becoming a perennial event in this land of manmade floods? A local

community organisation called ‘Mazha Manch’ is engaging with the government to take up such local issues on behalf of

the community.

Collective learning and advocacy

As a part of inter-agency groups, partners have begun collectively engaging with governments and international

organisations such as ECHO and the United Nations. In Bangladesh, such collective action has led to broad agreements

on shelter packages in terms of designs, costs and materials.

Good practices are being showcased through platforms such as SPHERE and ISDR where the work of some CA partners

has been acknowledged and recognised.

Recommendation 6:

Engagement with the government, donors, the private sector and academic institutions is necessary to

influence social inclusion policies, mainstream risk reduction and reduce dependence on recurrent relief.


Christian Aid

Bring partners together for national and regional advocacy targeting governments, regional groupings such as

SAARC and international organisations.

Local Partners

Engage proactively in inter-agency groups and other multi-stakeholder platforms for collaborative advocacy.

Engage with governments at the state and national level to influence the policy environment, and at the local

level to turn policy into action.

Engage with local academic institutions to study and articulate the complex macro-issues.

Prepare documents with effective content using appropriate media to support advocacy efforts.

Explore partnerships with the private sector to mainstream small-scale innovations and initiatives to influence

the market.


Local community platforms are emerging

as strong champions by bringing together

community interest groups and engaging

with governments to pursue their

humanitarian and developmental rights.

Collective advocacy efforts are increasing

the strength and impact of networking

with governments and international

organisations.

Adequate time and resources are

rarely dedicated to advocacy

efforts.

Documentation and background

preparation to effectively

advocate is limited.

New platforms such as inter-

agency groups offer immense

opportunities for synergised

advocacy.

Networking-based advocacy

can offer a comprehensive way

to address ecosystem issues and

concerns.


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3 7

Planning for the Next Big One

Increasingly dense habitation in hazard prone areas, marginalisation of the poorest

and impending threats of climate change impacts leave no doubt that the future

holds increasingly devastating disasters. Floods, in particular, are set to be a regular

phenomenon with increasing impact. Though life loss may be contained through

ongoing DRR efforts, economic losses and hardships are on an alarming trend. CA

and partners have no choice but to anticipate the next big one, and prepare for it

right now using lessons learnt from this review and others.

Our own disaster preparedness plan

Interventions have aimed to include DRR and have addressed communities with words that urge them to anticipate and

prepare for future disasters. The same needs to be practiced in our own programming. Worst case scenarios need to be

evolved, management plans formulated and the entire end-to-end solution practiced so that the day it is needed, it will

be functioning at peak efficiency.

Partners who are generally involved in developmental programmes and are new to humanitarian response need to be

aided with concerted capacity building measures.

The language and terminology needs to be clarified and made consistent throughout the implementation network so

that the field staff of local partners and the community mobilisers are able to understand and communicate the core

philosophies on which CA operates.

Capacities of last mile field operators need to be built to appreciate and be able to implement programmes designed at

another level, but founded on core principles.

Debates need to be taken up on the appropriateness of technologies. Efforts need to be initiated to carry out research and

development activities to identify, adapt and promote local technologies to the extent possible.

It has been anticipated that a mega disaster, killing a million people, is a high possibility in South Asia. It is time to start

preparing for it!

Recommendation 7:

Programmes need to acknowledge and integrate the challenges of climate change and growing numbers of

climate refugees, as well as growing urban risk and poverty.


Christian Aid

Lay down a clear flood management and response framework with sets of guidelines and capacity building

measures.

Map the increasing uncertainties related to climate change and urban disasters to ensure their inclusion in

future flood programmes.

Local Partners

Study the changes in risks at the local level and identify specific strategies/actions needed.

Prepare organisational disaster management and risk reduction plans.

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