1.

Context
The United Nations Development Programme report in 2004 estimated that
approximately 75% of the worlds population lives in disaster prone areas. The
increasing trend of natural disaster frequency around the world contributes to a
growing number of loss of lives and assets. In January 2005, the ratification of
the Hyogo Framework for Action 2005-2015 recognized the importance of
building the resilience of nations and communities to disasters, through the
following priority actions:
1. Ensure that disaster risk reduction is a national and a local priority with a
strong institutional basis for implementation.
2. Identify, assess and monitor disaster risks and enhance early warning.
3. Use knowledge, innovation and education to build a culture of safety and
resilience at all levels.
4. Reduce the underlying risk factors.
5. Strengthen disaster preparedness for effective response at all levels.
A series of devastating natural disasters in Indonesia provided momentum to
changes intended to strengthen disaster management in the country. This
momentum resulted in the publication of the Indonesian National Plan for Action
on Disaster Risk Reduction in January 2007 and Law # 24/2007 on Disaster
Management in April 2007. Fundamental paradigm shifts in disaster
management from the passive-reactive approach that underlines emergency
actions to active-preventive approaches that emphasize disaster prevention and
disaster risk reduction actions underscored these national developments. The
consequence of which was that risk reduction efforts should become an integral
part of every stage of disaster management and development.
2. Principles
Initiatives supported by the Caritas network in Indonesia identify key principles
as guidelines to promote disaster risk reduction as a strategy to promote
resilience-strengthening including:

Community Managed, an approach where-by the community becomes

the main actor in identifying, planning, organizing, coordinating, leading and

evaluating their disaster risk reduction efforts including a defined focus on
livelihoods strengthening. Community managed approaches requires full
stakeholder participation, yet the community are central to assessment, design
and implementation of risk reduction strategies in aim to strengthen resilience,
and ensure community needs are the basis of efforts and policy development
carried out by various stakeholders.

People centred partnership; that emphasizes the importance of the

community as an actor equal with other stakeholders, where the community is

able to express their aspirations and their needs to be recognized and
accommodated in a fair and appropriate manner. Through this approach there is
a sense of trust fostered, also the independence to decide what they are able to
or cannot contribute in working with other parties. This partnership also
provides space for groups within a community to participate and contribute
actively in initiatives; strengthening community solidarity and ownership of
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disaster risk reduction efforts. To answer the needs of the most at risk and
marginalized, accountability is a necessity between and within community in
targeting those most at risk with assurance that such efforts become a basic
principle.

Individual Rights and Collective recognition , is the recognition and

effort to reconcile individual (individual rights), and group rights (collective
rights) both of which are critically important. This is especially important to
recognize and affirm with and for those who are marginalized, Caritas recognize
that individual and groups rights are critical to assure a culture of safety and an
important basis in resilience strengthening.

3. Methodology
Caritas network combines the approach through strengthening of local
institutions that have roots in the community such the parish, or local village
government. The combined approach through parish and village government is
deemed necessary to encourage institutions at the local level to support and be
involved in the implementation of action plans initiated by the community.
Furthermore, it is necessary to facilitate access and opportunity for the
community to cooperate with other stakeholders.
Diocesan Caritas involves parish and village government partners that are able
to mobilize external resources to assist communities carry out their action
plans. Involvement of parish and village government is required to influence
public policy to prioritize disaster risk reduction to strengthen resilience. The
role of parish and village government is intended to ensure that disaster risk
reduction can be integrated in all aspects of development, both at macro and
micro levels.
Through this approach, Caritas will act as an accompanying agency or an equal
partner with the community; support tailored to the capacities and needs of the
target communities and to the institutions mandate and capacity.

Stages:

Participatory Risk Assessment, risk assessment process is carried out

by using an analysis tool that allows the community to conduct assessment,
considering capacity and local wisdom, paying attention to the level of
education, age, physical condition and gender of the community members. The
risk assessment also requires active participation of the whole of the community
in the process. Mapping tools used are to support community identify risks,
vulnerabilities and capacities taking into account hazard impact, and
environmental and climate change impact as recognized by the community. This
process not only identifies, but also aims to support the community to analyze
and prioritize opportunities and recommendations for disaster risk reductions
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efforts. The community then decide if disaster risk reduction is an urgent

priority.

Community Action Plan Development, through risk assessments

Caritas aims to support communities to synergize aspects of disaster risk
reduction, climate change adaptation and sustainable environmental
management. Community action planning is grouped into four areas;
prevention, mitigation, preparedness and capacity building, based on:
- Resources available in the community, physical and non-physical
- Practical short term priorities and longer-term more strategic needs
- Network owned by the community
- Target / beneficiaries, especially the most vulnerable.
The priority action plan is then reported to the village government and
disseminated to government and non-government agencies by the community.
This strategy is intended to gain the support of other stakeholders outside the
community and to initiate advocacy with government to support and prioritize
disaster risk reduction activities into development plans at village level.

Community organizing is initiated from the onset of the risk assessment

through the work of Caritas and community facilitators. The approach promoted
by Caritas is community driven as the community are the main actors in their
disaster risk reduction efforts; participation and community contribution is
sought in every stage though engagement, ideas and suggestions, as well as
resources. Communities are responsible for jointly identifying and analyzing risk
factors in their surroundings, and independently decide what actions should be
taken to overcome or to minimize risk. it. Community also encourage to develop
a strategy for monitoring and evaluation of their action plans.

Collaboration and Linkage, to strengthen sustainability, we recognize

that Caritas are not the only party who assist, perform service and work with the
community. Thus, in practice, Caritas efforts aim to gain support and interest of
various stakeholders. This effort will be preceded by the identification of
stakeholders to identify actors, their characteristics and key roles which used to
determine a strategy of cooperation with different stakeholders. These efforts
also include linkages between the community and actors to encourage
opportunity for broader risk reduction leading to resilience strengthening efforts.
4. Characteristics
Learning initiatives held by the Caritas network in Indonesia identified a number
of characteristics of resilient communities, including:
Responsive (Tanggap): A resilient community is responsive to the disaster
risks that exist in their area. The community are able to adapt to their
surroundings and anticipate the risks that may emerge in the future with all
thoughts, tools and approaches owned by the community themselves.
A responsive community can identify, plan for, mitigate, prevent (in some cases
not all) building upon their capacity and have engagement with a range of
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stakeholders to seek assistance and collaboration with in both disaster response

and mitigation efforts
Survivability (Tanggon): A resilient community is able to survive within their
limits. The Javanese term for this condition is tanggon, which emphasizes
aspects that although under pressure because of risks, does not automatically
lead to disaster. The ability to build a strategy and mobilize support, assumes a
plan for survivability, particularly for the most at risk through a community
emergency response plan to various hazards faced can be executed, protecting
all life and important household and community assets; and the hope and the
spirit of life, is illustrative of the extent to which the community has become
tanggon or is able to survive.
Adaptability (Ulet): Ductile or ulet in bahasa Indonesia is how the community
applies strategies to befriend the risks that threaten their lives and livelihoods.
It is also about understanding the risks and being able to adapt or change to
take into account understanding of what might happen. Caritas network in
Indonesia recognize that even the most at risk community has the ability to
adapt to risks. This demonstrates the use of innovative and adaptive
approaches that build upon community capacity, utilizing new and previously
un-tested strategies to face disaster risk. This provides scope to provide
learning for others. An adaptable or ulet community tries to find new ways to
coexist with difficult situations (severity) or pressures.
Transformation (Berdaya): One important indicator of a resilient community
is that the community has the ability to overcome risks, overcome factors that
disturb the community norms, and has access and control of resources.
Communities are well aware of their existing resources, capacity and gaps. A
transformational community is also able to identify access to resources, and can
engage in and define the decision-making processes at various levels.
Caritas network believes that community development must seek to build
substantially active community participation and initiatives in development in
order that the community is able to improve their well-being, safety, quality of
life and contribute to community resilience strengthening as a whole.
5. Lessons Learnt
Important learning in using disaster risk reduction as a vehicle for strengthening
resilience is that participatory approaches allow various groups in the
community to explore and strengthen their capacity and potency. This approach
also contributes to encouraging sustainability because it builds upon local
potential and strengthens existing local institutions. Experiences of various
communities and Caritas also illustrate that this approach can accommodate
the needs and context of the diverse elements within a community, recognizing
that there is no magic formula that can be used uniformly in different contexts
and villages. A participatory approach also allows various groups that have been
marginalized in the development process, to be more engaged and have access
to participate in -making processes.

In addition, disaster risk reduction efforts to strengthen resilience also need to

recognize both aspects of the process and the results as the two aspects are
equally important. Likewise, efforts to strengthen resilience must recognize
tangible aspects (such as the strengthening of financial resources, physical
devices for preparedness and early warning system) and non-tangible aspects
(such as new knowledge, awareness, and strengthened social assets). And
further, communities will also be influenced by how and to what extent of
knowledge transfer is done. This effort is also in line with promoting the
community as the main actor in their efforts and strategies; practices in one
community, as a source of knowledge can be a reference for other communities
so that similar initiatives could be developed. In this way, resilience
strengthening, as a shared issue will be further reinforced through continuous
learning between community, Caritas and other actors

Surviving the Flood

Flood is part of a life story for Sohoya villagers in Nias. Diocesan Caritas of
Sibolga started the process of accompaniment with Sohoya village in 2009, the
population is approximately 500 residents (230 male and 270 female). The
floodwater comes from the overflowing Sohoya and Mola rivers, and compared to
other villages along the two rivers, Sohoya is more exposed to the effects of
flooding.
Before March 2005 of Nias earthquake, flooding usually occurred only once a
year, following heavy rainfall. However, after the 2005 Earthquake floods have
become more frequent. Based on community stories, flooding can happen 2-3
times a year with floodwater as high as an adults waist. Aside, ankle high
floodwaters occur over 5 times a year. The community says that the floods are
becoming more frequent because the Mola river has narrowed and become
shallower. The earthquake caused landslides to occur on the river cliffs and
impeded river flow. Debris from upstream such as fallen trees and mud also
affects the river flow. This is also exacerbated by climate variation, these past 10
years as it is becoming difficult to predict rainfall patterns as in the past.
For school children, the flood stops them going to school because the road
access was cut off or because their school was flooded. When it subsided a little
and children return to school, they are at risk of infectious diseases caused by
the floodwater (especially stomach ailments and skin diseases), and also at risk
from attack by wild and venomous animals carried away by the flood. For
farmers, the risk of crop failure especially rice is always a risk from flood with
increased and unpredictable rainfall.
The community has developed a variety of preparedness and response efforts. If
it rains in the upstream areas, relatives or acquaintances will send a warning
message to the community in Sohoya. This practice just began in November of
2011 when Sohoya was hit by a massive flood. Early warning information via
texting really helps people to prepare themselves to respond. Approximately 75%
of the Sohoya villagers have mobile phones so that the distribution of early
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warning information can be done quickly.

The black colour in the upstream waters and changes in river flow are also
indicators for the community if flooding is imminent. However people do not
necessarily panic and worry. They have their own mechanism of what to do and
when it must be done. If river water is overflowing to the land an ankle high, they
are still relaxed and do not worry. When the water rises to an adults calf-length,
they began to move valuables and assets to the upper part or attic of the house.
This includes mattresses, cutlery and kitchenware, also valuable documents and
electronic equipment. When the floodwater becomes as high as an adults waist,
people began to evacuate to the 2nd floor or attic of their house. Small children
and the elderly are priority to lift up to the attic. The adult male guards and
coordinates with outsiders.
Some houses are designed with stilts as high as 0.5 - 1 meter. In this type of
house, the kitchen is built at 1 meter of height, so when floods occur the kitchen
can still be used as a communal kitchen. To save livestock such as pigs, cages
are built higher. If the floodwater gets higher, the pigsties are opened and the
pigs are released to look for a safe place above the water. If the animals are still
small, such as calves are usually are brought into the house and placed in the
attic.
To survive for several days, usually people use remaining rice stocks. For those
who do not have a stock of rice, those who have will lend. Water is drawn from
rainwater with buckets or basins directly from the roof of the house or taken from
existing storage containers placed on higher ground in the village.
So that is the way, the community has developed a variety of ways to alert each
other when the floods come. Simultaneously, they also have developed ways to
survive when the floodwaters remain high. They learn that there are many
strategies that can be developed to endure the limitations. Something simple but
very meaningful.

Writer
: Aktivitas Sarumaha,
Lestariningsih, Yohanes Basskoro

Dame

Manalu,

Dati

Fatimah,

Dian

Contributor : Constantino Condrado, St Budhi Prayitno, Yohanes Sriyono

Editor

: Dian Lestariningsih, Yohanes Basskoro

Translator

: Anat Prag, Dame Manalu, Dian Lestariningsih, Frederikus Sundoko