Towards A Better Inclusion of

Children, Women and Person

with Disability (PWD) in
Disaster Risk Reduction
 Lessons Learnt from the Implementation of
Inclusive Disaster Risk Reduction Project
in Nusa Tenggara Timur Province, Indonesia

This study is a lesson learnt documentation of Inclusive Disaster Risk Reduction program. The
program aimed at building resilience of most vulnerable groups in facing disaster and was
implemented by Alliance for Inclusive DRR (AID) Consortium in NTT Province, Indonesia, 2013.

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Preface

This lesson learnt document was compiled by MIGUNANI & MBERKAHI with the valuable
contribution of the AID Consortium team. The opinions and recommendations expressed in
this document are the sole result of profesional consultation with the people involved in
project implementation and do not necessarily represent the official policy of AID
Consortium. All pictures used in the present document arecopyright of AID Consortium.

Migunani “Lesson Learnt” team is extremely grateful to AID Consortium team, in particular
to: Project Technical Unit (Roby Lay-Handicap International, Wendy Bulan dan Raul–Care,
Frederika Rambu – Plan Indonesia), Kupang Team (Piet Andung, Piet Kanaf, Yuli, Pak Jefry,
Anton, Nur, Lodo, Yono), TTS team (Abe, Gloria, Dens), Belu team, Malaka team (Kris, Eky,
Markus, Toni, Ronny, dan Charles), who became special contributors (writing case studies)
and were willing to give the full support needed to faclitate the compilation of this lesson
learnt document. We would also like to express our gratitude to Nusa Tenggara Timur
Province local government, Kupang district local government, TTS district local
government, Malaka District local government, Kupang, Soe and Betun communities for
their willingness to participate in group discussions and interviews during the field
research.

Yogyakarta, December 2013

Written by: Novina Suprobo
Contributors:
Migunani (Yugyasmono dan Enggar P Harjanti)
PTU
Kupang Team
TTS Team
Belu Team

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Glossary of Terms and Abbreviations
APBD Anggaran Pendapatan dan Belanja Daerah (Local Government
Budgets)
AID Consortium Alliance for Inclusive DRR Consortium
BAPPENAS Badan Perencanaan dan Pembangunan Nasional (National
Development Planning Agency)
Bappeda Badan Perencanaan dan Pembangunan Daerah (Local Planning
board)
BNPB Badan Nasional Penanggulangan Bencana (National Agency for
Disaster Management)
BPBD Badan Penanggulangan Bencana Daerah (Local Agency for
Disaster Management)
CBDRR Community based disaster risk reduction
CSO Civil Society Organization
CIQAL Center for Improving Qualified Activity in Life People with
Disabilities

CIS Timor Center for Internal Displaced People's Services Timor

DPRD Dewan Perwakilan Rakyat Daerah (Local Parlement)
EFP Emergency Focal Point
EVP Emergency Vulnerability Persons
EWS Early warning system
FKKADK Forum Komunikasi Keluarga Anak Dengan Kecacatan/Children
with Disabilities Family Communication Forum
KUA Kuasa Umum Anggaran - General Budget Policy
NTT Nusa Teanggara Timur
PMPB Perkumpulan Masyarakat Penanganan Bencana/Disaster
Management Community Forum
PMI Palang Merah Indonesia (Indonesia Red Cross)
Pusdalop Pusat Pengendalian Operasi (Operational Control Center- part of
BPBD))
PRBBK Pengurangan Risiko Bencana Berbasis Komunitas (Community-
based Disaster Risk Reduction)

HVCA Penilaian Ancaman, Kerentanan, dan Kapasitas (Hazard,

culnerability, and Capacity Asssesment)

OMS Organisai Masyarakat Sipil (Civil Society Organization)

DPO Disabled Persons Organizations

Dinas PPO Education District or Provincial Office (Dinas Pendidikan)

PRB Pengurangan Risiko Bencana - Disaster Risk Reduction

PRBBK Penguranagan Risiko bencana Berbasis Komunitas (Community
Based Disaster Risk Reduction)

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PRBBS Pengurangan Risiko Bencana Berbasis Sekolah (School based
Disaster Risk Reduction)

PTU Project Technical Unit (Unit teknis Proyek)

RAD Rencana Aksi Daerah (Loca Action Plan in DRR)

RKA local government budget work plan
RKT local government annual work plan
RPP Rencana Pelaksanaan Pembelajaran (Lesson plan)

SBDRR School Based Disaster Risk Reduction

SHBJ Standar Harga, Barang dan Jasa - Local government budgeting
standard
SKPD Satuan Kerja Perangkat Daerah (Local government agencies)
TAGANA Taruna Siaga Bencana/ Voluntary Disaster Corps

VFP Vunerability Focal Persons

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Contents
PREFACE .................................................................................................................................................................... 3
A . EXECUTIVE SUMMARY ................................................................................................................................... 9
B. PROJECT BACKGROUND AND OVERVIEW ............................................................................................. 11
C. DOCUMENTATION OF LESSONS LEARNT AND GOOD PRACTICES ................................................. 13
D. METHODOLOGY AND APPROACH ........................................................................................................... 13
E. WRITING STRUCTURE .................................................................................................................................. 14
PART 1 : INCLUSIVE DISASTER RISK REDUCTION AND SUSTAINABLE DEVELOPMENT ............ 15
AN INTRODUCTION ............................................................................................................................................ 15
A. INCLUSIVE DISASTER RISK REDUCTION ................................................................................................ 15
B. INCLUSIVE DISASTER RISK REDUCTION LEGAL BASIS ..................................................................... 17
C. CAPACITY BUILDING SCHEME IN INCLUSIVE DRR .............................................................................. 18
PART 2: INCLUSIVE DEVELOPMENT – MAINSTREAMING OF INCLUSIVE DISASTER RISK
REDUCTION IN DEVELOPMENT PLANNING ............................................................................................... 20
A. EARLY CONDITION OF DRR MAINSTREAMING IN NTT PROVINCE ............................................... 21
B. INTEGRATION PROCESS OF INCLUSIVE DRR INTO DEVELOPMENT PLANNING ...................... 22
B.1. GOVERNMENT CAPACITY BUILDING .......................................................................................................................... 22
B.1.1 Good Practice 1: Compilation of Inclusive DRR Integration Manual into Development
Planning .................................................................................................................................................................................... 22
B.1.2 Good Practice 2: BPBD Capacity Improvement to Become Vulnerability Focal Persons in the
Efforts of Inclusive DRR Integration into Development Planning. ................................................................ 25
B.1.3. Good practice 3: Inclusive DRR Integration Training to Related Government ........................... 27
B.2. ENCOURAGE A PARTICIPATORY PROCESS IN THE INTEGRATION OF INCLUSIVE DRR IN DEVELOPMENT
PLANNING............................................................................................................................................................................... 28
B.2.1. Good Practice 4: Strengthening Civil Society Networks to Encourage the Integration of
Inclusive DRR into Development.................................................................................................................................... 28
B.3. ADVOCATING WITH BAPPEDA AND THE PARLIAMENT THE INTEGRATION OF INCLUSIVE DRR INTO
GOVERNMENT PLANNING AND BUDGETING ..................................................................................................................... 30
B.3.1. Good Practice 5: Increasing Awareness of Governments and Parliaments on Inclusive DRR
....................................................................................................................................................................................................... 30
B.3.2. Good Practice 6: Establishing a coordination mechanism between BPBDs, Social Services
and the Department of Education to Integrate an Inclusive DRR Approach into Education and
Social Welfare Programs. ................................................................................................................................................. 31
B.3.3. Good Practice 7: Building Capacity, Disseminating Tools and Guidelines Relevant to
Community Service Organizations that Advocate for Inclusive DRR in development in NTT .......... 31
B.3.4. Good Practice 8: Strengthening Stakeholder Networking of Inclusive DRR through the
establishment and strengthening of a DRR Forum ............................................................................................... 32
B.4. ENCOURAGE NATIONAL POLICY BASED ON INCLUSIVE DRR ............................................................................... 33
C. CHANGES IN THE PROCESS OF INTEGRATION OF INCLUSIVE DRR INTO DEVELOPMENT
PLANNING .............................................................................................................................................................. 33
C.1. KNOWLEDGE CHANGES ................................................................................................................................................ 33
C.2. CHANGES IN ATTITUDES AND PRACTICES ................................................................................................................ 34

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D. THE CHALLENGES OF INTEGRATING INCLUSIVE DRR INTO DEVELOPMENT PLANNING ..... 35
E. RECOMMENDATION ...................................................................................................................................... 37
PART 3: INCLUSIVE DISASTER RISK REDUCTION IN SCHOOLS: ENCOURAGING CHILDREN’S
PARTICIPATION IN INCLUSIVE DRR ............................................................................................................. 39
A. SCHOOLS AND INCLUSIVE DRR ................................................................................................................. 41
B. INCLUSIVE DISASTER RISK REDUCTION ACTIVITY PROCESS IN SCHOOLS ............................... 42
B.1. ENCOURAGING CHILDREN'S PARTICIPATION IN INCLUSIVE DISASTER RISK REDUCTION IN SCHOOLS ......... 42
B.1.1. Good Practice 1: Involvement of Children in Task Force (Tim Siaga Bencana) ......................... 42
B.1.2. Good Practice 2: Peer-to-Peer Support in Raising Awareness of Inclusive DRR ......................... 42
B.1.3 Good Practice 3: Involvement of Children in Strengthening the Resilience of School -
Participation of Children in the Development of Evacuation Maps .............................................................. 44
B.2. BUILDING SCHOOL’S ENDURANCE THROUGH SCHOOL COMMUNITY’S CAPACITY ENHANCEMENT ................ 46
B.2.1. Good Practice 4: EFP and Task Force Training ......................................................................................... 46
B.2.2. Good Practice 5: Student’s Capacity Enhancement through the Integration of Inclusive DRR
to the Teaching and Learning Process........................................................................................................................ 46
B.2.2. Good Practice 6: Snake-and-Ladder Game as Effective Learning Media for Inclusive DRR . 48
B.3. PROMOTING AND SUPPORTING SUSTAINABLE INCLUSIVE DRR IN SCHOOLS .................................................... 49
B.3.1. Good Practice 7: Developing an Inclusive School Action Plan ............................................................ 49
B.3.2. Good Practice 8: The Collaboration of School and Community Preparedness ............................ 50
B.3.3. Good Practice 9: Cooperation between the Community and the Schools in Performing
Inclusive Disaster Risk Reduction Anticipation ...................................................................................................... 51
C. THE CHALLENGES OF PERFORMING SUSTAINABLE INCLUSIVE DRR IN SCHOOLS.................. 53
D. RECOMMENDATIONS.................................................................................................................................... 53
PART 4: INCLUSIVE COMMUNITY-BASED DISASTER RISK REDUCTION .......................................... 55
A. BACKGROUND ................................................................................................................................................. 56
B. IMPROVING THE COMMUNITY’S RESILLIENCE THROUGH INCLUSIVE DRR .............................. 56
B.1. ESTABLISHING AND TRAINING DRR TEAMS IN VILLAGES, IMPLEMENTING DRR ACTIVITIES AND OTHER
SUPPORTING ACTIVITIES ADDRESSED TO THE MOST VULNERABLE GROUPS IN ORDER TO EXPAND THE ACTIVITIES
OF INCLUSIVE DRR ............................................................................................................................................................... 56
B.1.1. Inclusive Village DRR Teams – A Space for Woman and PWD Involvement in Disaster Risk
Reduction .................................................................................................................................................................................. 56
B.1.2. Good Practice 2: Setting Up Hazard, Vulnerability, and Capacity Analysis (HVCA) and
Planning in Disaster Mitigation through a Participatory Process based on Inclusion ........................ 58
B.2. ESTABLISHING INCLUSIVE COMMUNITY-BASED DISASTER RISK REDUCTION .................................................. 63
B.2.1. : Good Practice 3: Establishing Inclusive Early Warning System ...................................................... 63
B.2.2. Innovation: Combining Contingency Plan and EWS in Disaster Simulation ................................ 66
B.3. PREPARING TECHNICAL AID, STRENGTHENING EFFORTS TO BUILD NETWORKS, AND ADVOCATING
SUSTAINABILITY OF INCLUSIVE CBDRR IN VILLAGES .................................................................................................... 67
B.3.1. Good Practice 4: Building Collaborative Work between Stakeholders in Community’s
Disaster Risk Reduction ..................................................................................................................................................... 67
B.3.2. Innovation 2: Sustainability by Integrating Inclusive DRR into the Village’s Development
Plan ............................................................................................................................................................................................. 69
C. CULTURAL APPROACH: ASSISTANCE IN COMMUNITY-BASED ACTIVITIES ............................... 71
D. CHANGES DURING THE PROCESS OF COMMUNITY-BASED INCLUSIVE DISASTER RISK
REDUCTION ........................................................................................................................................................... 73

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E. CHALLENGES IN CONDUCTING ASSISTANCE TO THE COMMUNITIES .......................................... 74
PART 5: BUILDING A PARTNERSHIP STRATEGY THROUGH AID CONSORTIUM .......................... 76
PART 6: CONCLUSION ........................................................................................................................................ 78
PART 7: RECOMMENDATIONS ........................................................................................................................ 79
REFERENCES ......................................................................................................................................................... 82

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A . Executive Summary

Women, children and person with disability and other socially marginalized groups are the most
vulnerable groups within a community and tend to suffer the most in times of disaster. These
groups are often invisible in disaster management activities, although they represent a significant
proportion of the total population impacted by disasters. The vulnerablility of women and
children is somehow even amplified as they are often not particularly considered in the disaster
management planning steps, either as beneficiaries to fullfil their basic and special needs or as
active stakeholders to give their opinion about what they need before during and after disasters
occur.
This study describes the implementation process of Deepening Resilience of Most Vulnerable
Groups towards Disasters Program in Nusa Tenggara Timur Province. The program was
implemented within a Consortium model formed by renowned International Non Government
Organizations (INGOs): Handicap International, Care International, and Plan Indonesia. In order
to implement the program, the AID Consortium (Alliance for Inclusive DRR) worked in close
collaboration with the local government of NTT Province. Designed to support the Indonesian
Government, the program aimed at creating a new approach to and increasing capacities for
disaster management with a particular focus on inclusive disaster risk reduction. The overall aim
of this program was to increase the resilience of most vulnerable group (women, children and
persons with disabilitiess) in NTT province. The strategy consisted on strengthening their
knowledge and skills regarding effective inclusive community based disaster risk reduction in
order to become more resilient to disasters. The Inclusive Disaster Risk Reduction program also
emphazised the involvement of the most vulnerable groups in the design of policies at both
community and governmental levels to increase resilience. The main goal of this program was to
promote a culture of safety in Indonesia by mainstreaming inclusive disaster risk reduction in the
development process, increasing resilience and reducing vulnerebiity of the community and local
organization in a sutainable manner, which support most vulnerable groups so that they are better
prepared to face, respond and to reduce the risk of coming disasters.
This study was based on a thorough analysis of inclusive disaster risk reduction documents and
case studies detailing best practices, innovations and challenges written by project staffs of AID
Consortium. It is also the result of interviews with key stakeholders and beneficiaries. Overall,
this study attempts to capture how the inclusive disaster risk reduction program was
implemented and identify lessons learnt for the communities, local organizations, the
Consortium, and local governments. Lessons learnt are drawn up from best practices and
innovations that made the implementation process more effective, as well as from challenges and
hindrances found during such process. The lessons learnt identified here are of great importance
for future programs aiming at creating integrative and inclusive development at community level
and designing government policies. It is proven that the Inclusive Disaster Risk Reduction
program is able to promote a new agenda of disaster risk reduction in Indonesia. This is
particularly true at school and community levels where increasing community awareness towards
the capacities of the most vulnerable groups and activelly involve them in disaster risk
reduction’s activities has proven successful. As the first initiative that actually and truly focused
on cross-cutting issues (children, women and PWDs), the Inclusive Disaster Risk Reduction
program is a sound effort to increase community awareness at every level: national, province and

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community. Undertaking the endavour of creating inclusive disaster risk reduction policies, the
program advocated at governmental, schools and community level.

As disaster risk reduction is everybody’s responsibilities, the program succeded in promoting

inclusive disaster risk reduction activities in the community and schools, which supported and
encouraged the involvement of women, children and persons with disabilities. If prior program
implementation, some particular groups were marginalized at the local cultural context, now
those groups are more eager in expressing their point of view concerning disaster risk reduction
and active in promoting a new approach accommodated to the need of all groups in a
community. The schools and the communities began to build important sinergies when it comes
to disaster preparedness planning. They did so by combining schools’ and communities’
preparedness plans in an integrated mechanism that allows them to better face disasters. The
involvement of vulnerable groups in disaster management can already be seen in the broad
participation of women and PWDs in the village disaster reduction team. Additionally, some
children have become peer supports for their friends in education related to disasters.
Likewise, the Inclusive Disaster Risk Reduction program also provides a new perspective for the
design of government planning and policies proposing a wider and sensitive view on the specific
needs of most vulnerable groups and offering the constructive opportunity for women, children
and PWDs to paticipate in sustainable design of development planning. Although advocacy at
national level does not run effectivelly yet, inclusive integrated disaster risk reduction manual at
province level can be a starting point to create awareness and sensitize authorities on issues
concerning the most vulnerable groups. Thinking at a global scale, the program constitutes an
example for building a post-Millenium Development Goals 2015 agenda more focused on
inclusive sustainable development.1

1 Concept Note Disaster Risk reduction and The Post 2015 Development Agenda - Global Thematic
Consultation on Disaster Risk Reduction and the Post-2015 Development Agenda, Jakarta 19-20 February
2013.

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B. Project Background and Overview
Indonesia is located in a highly disaster prone area. Nusa
Tenggara Timur province alone is menaced by many
different hazards including floods, earthquakes and About AID (Alliance
volcanic eruptions. Disasters often cause thousands of for Inclusive DRR)
casualities, damage infrastructure, and the environment.
The magnitude of the impact is greater for vulnerable
groups as their specific needs in terms of resources and AID Consortium (Alliance for
Inclusive DRR) consists of three
information to cope with disasters are often not fulfill.
INGOs, Handicap International
Women, children and persons with disabilitiess are (HI) as leading agency, Plan
catagorized as most vulnerable groups in a community and Intenational (Plan) and CARE
tend to be negatively affected by disasters. Repeatedly, International. The Consortium is
these vulnerable groups are excluded from disaster risk dedicated to work
reduction activities and emergency response, spite of they collaboratively and share
constitute a large part of the population affected. specialties and skills to support
the work of Inclusive DRR in
The invisibility of these vulnerable groups in the disaster NTT Province. The collaboration
between the three INGOs is
management cycle results in further deterioration of their
framed in a comprehensive
resilience. Although these groups constitute a large strategy that seeks to assist the
proportion of the total population at high risk, very often most vulnerable group in disaster
that their needs and paticipation are disregarded or even management efforts.
ignored during disaster management activities. They are
often not taken into account neither as beneficiaries to
cover their basic and special needs, nor as stakeholders who The AID Consortium aims at
can actively be involved in disaster risk reduction planning supporting inclusion and
and can speak for themselves. participation of women, children,
and persons with disabilities in
To create a comprehensive and sustainable approach disaster risk reduction in
towards the vulnerability of women, children and persons Indonesia. The agencies
with disabilities, this project promoted the strengthening of encourage a comprehensive
model of intervention to reduce
inclusive disaster risk reduction at community, district,
vulnerability of risk groups. The
province and national levels. The project aimed at Consortium was implemented on
strengthening resilience of most vulnerable groups (women, the basis of proven community
children and persons with disabilities) in NTT province approach and partnerships to
through knowledge and skills transfer. The transference of optimize sustainable results.
knowledge and skills to local disaster risk reduction
activists and key local individuals was proposed to ensure
the sustainability of the project.
The implementation of this project was based on a Consortium model. AID consortium (Alliance
for Inclusive DRR) consisted of three institutions: Handicap International (HI) as the leading
agency, Plan Indonesia (Plan) and CARE International (CARE). While each institution has a
particular focus and speciality, they collaborately worked within an integrated and
comprehensive framework with the goal of reducing risk of disasters and specially attending
important crosscutting issues. Handicap International focused on supporting persons with
disabilities, whereas Plan International concentrated its efforts on assisting children, and CARE
on community development and gender issues.

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The main focus of this project was strengthening the capacities of key local individuals and
organizations such as the Local Disaster Management Agency (BPBD), the District Education
Office, the District Social Office and other community-based organizations (CBOs). This project
promoted a sustainable mechanism to transfer knowledge and skills to local main stakeholders to
ensure that disaster risk reduction planning and implementation included the needs of most
vulnerable groups. Consolidating the existing disaster risk reduction tools and practices with
children, women and PWDs, the project presented a comprehensive disaster risk reduction model
validated at province and district level. Furthermore, the project ensured the coordination of
efforts with other DRR agents involved in similar processes to avoid duplication and encourage
integrated actions.
The location of the project was chosen with careful consideration of the overall vulnerability of
the NTT province citizens, the availability of trained DRR local agents and the existence of a
DRR network. As the intervention was meant to support a community-based disaster risk
reduction strategy and key stakeholders’ commitment, the location of the project was also
decided in contemplation of the level of engagement and support of BPBD, the District
Education Office and the District Social Office to strengthen their DRR capacities.
Local CBOs involved in this project were: FKKADK, PMPB, Tagana and CIS Timor. These
organizations were encouraged to assure higher accountability of the local government in their
protection of the most vulnerable groups through coordination with BPBD, Dinas PPO and Dinas
Social both at district and province level. The project promoted inclusive sustainable
mechanisms such as teacher trainings and school management, extracurricular activities and
development of community action plans.
At province/district level, the project was meant to strengthen BPBD capacities, Dinas Social,
and Dinas PPO and also other DRR agents in planning, implementing and monitoring the
inclusion of most vulnerable groups in community-based disaster risk reduction. It was done by
providing technical support in designing Annual Local Action Plans for DRR 2013 and 2014 and
by building the capacities of Vulnerability Focal Persons. DRR forums at district level prepared
relevant platforms for representing the most vulnerable groups’ opinion and assuring their active
participation. It also increased the understanding of most vulnerable groups’ particular needs.
At national level, the project involved BNPB to promote the inclusive DRR model and create
resources to replicate the model in other provinces. The involvement of BNPB, the Ministry of
Education and the Ministry of Social Affairs supported greater coordination and strategic
planning for the implementation of inclusive DRR at the local level. The project also provided
technical support to BNPB (PUSDALOP) in order to ensure the accuracy (e.g. sex, age, and kind
of disability) of data gathering and information dissemination during a disaster. The mere
objective of this support was to develop a manner to provide more accurate and valuable
information at the lower level.

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C. Documentation of Lessons Learnt and Good Practices

The lessons learnt compiled in this document are the result of the implementation of the
Increasing Resilience of Most Vulnerable Groups towards Disasters in Indonesia Project. The
lessons learnt documentation became paramount to the AID Consortium, as it was the first
experience for AID partners in implementing inclusive and comprehensive DRR model, which
put its main focus on women, children and PWDs in the Indonesian context.
The aim of this lesson learnt documentation is to identify and organize valuable knowledge
acquired during the project management experience. In other words, the objective is to identify
what went well and what went wrong, to finally make evidence-based recommendations to be
applied in future replications of the project in other locations. Hence, the focus is on the
identification of best practices, innovations, challenges and difficulties encountered during
implementation rather than concentrating on the specific results or impacts of the project.
Findings and information gathered in this lesson learnt document could be used as a base for
designing future inclusive DRR projects in different geographic areas of Indonesia and in other
disaster-prone countries.
The intervention was itself the capitalization of design, tools, and lessons learnt from previous
projects. Likewise, the project buildt upon many opportunities and challenges found during its
implementation. Henceforth, the process of documenting lessons learnt becomes of great
importance to create a blue print for future project replication in other districts of NTT and other
provinces in Indonesia, which are also prone to natural disaster.
The documentation process included gathering lessons learnt and case studies written by AID
Consortium staff and its local partners. In order to identify the main priorities, the preliminary
results were analyzed in a workshop organized at province level. As a result of the data
collection and analysis, evidence-based recommendations were developed in this document to
further publication and dissemination.

D. Methodology and Approach

In order to document lessons learnt, the team made use of the Handicap International manual and
qualitative methods as follow:

• Analysis of key documents and project reports

• Revision of secondary information
• Focus Group Discussion with project staff and related stakeholders such as children,
teachers, schools, community members and government officials.
• Analysis of case studies identifying good practices, innovations, challenges and failures
written by project staff.
• In-depth interviews with key stakeholders.

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E. Writing Structure

This document consists of 3 main parts. The first part explores the lessons learnt process of
inclusive DRR integration into government development planning. The second part examines the
implementation of inclusive DRR in schools, while the third part delves into the implementation
of inclusive DRR in the communities.

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 Part 1 : Inclusive Disaster Risk Reduction
and Sustainable development

An Introduction

A. Inclusive Disaster Risk Reduction

In development, inclusion refers to the involvement of every single group of people living in
community. An inclusive development process is notable for two particularly important aspects:
first, the need for active participation of vulnerable groups in decision making process, and
second the prevalence of vulnerable groups’ access to information and public facilities.2 Most of
development planning processes are based on the principle of representation, and hence, are not
fully inclusive. Although participation is the main underlying principle, in the end the
participation is reduce to the simple representation of groups by a key elected person. In most
cases, the representatives seem to be persons enjoying great popularity and having strong
positions within the community. As a consequence, the most vulnerable and weakest groups are
almost never represented and have limited or non-access to planning and decision making to
speak for themselves. Resultantly, many public services and facilities are often not accessible to
certain vulnerable groups.

The limited access to resources and information put the most vulnerable groups in
situations of higher risk towards disasters. Many researches show that vulnerable groups
are the ones who suffer most during disaster and their recovery from the impact of
disasters is slower. Neumayer and Plumper (2007) studied disasters in 141 countries and
found that access to facilities and recourses during disaster has a great influence in the
casualty level. In fact, existing gaps caused by different capabilities to access public
facilities and services in normal condition are most likely to continue, and even exacerbate
during disasters.3

DRR aims to minimize vulnerability with prevention, mitigation and preparedness actions.
Hence, Inclusive DRR can be seen from the existence of vulnerable groups (women,
children and PWDs) and their real involvement in DRR activities. The attention given to
the involvement of vulnerable groups rather than being strictly rights-based or charity-
based, finds its roots in the need for assuring the fulfillment of the rights of vulnerable
groups. Furthermore, it becomes a remarkable entry point to fulfill the rights of all groups
in a community. Further, the fact that the most vulnerable groups can effectively contribute
and are able to identify sustainable solutions to their own problems based on their needs
and experiences has a certain positive impact in the resilience of the whole community.

2 Mainstreaming Disability into Disaster Risk Reduction: A Training Manual

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Inclusive DRR also puts great emphasis in the fulfillment of women, children and PWDs
access and needs concerning disaster management. This becomes crucial if want to
guarantee the right to have a decent life for all groups in the community.

The scale of the impact of a disaster is somehow a measurement of the success of a

development strategy. Indeed, a not well-planned development strategy is likely to
increase the risk of disaster. For this reason, it is extremely important that development
agents fully understand the inclusive DRR approach for development planning. In this
perspective, vulnerable groups should have the opportunity to actively engage in policy
planning processes and development processes. Accordingly, decreasing the vulnerability
of the most vulnerable groups and strengthening their resilience is an effective way of
reducing the risk of disaster.

In order to measure and assure that a development planning has adequately mainstreamed
inclusive DRR, AID Consortium has compiled the following indicators:

1. The existence of political will reflected in the strategic planning document or

related sector local budget planning.
2. The existence of commitment to decrease vulnerability of women, children and
PWDs towards disaster.
3. The use of inclusive disaster risk analysis showing the vulnerability and
capacities of women, children and PWDs as a basic point in SKPD strategic planning,
local action plan and followed up in RKT-RKA.
4. The existence of disaggregated data for strategic planning development, basic
budget planning and other planning.
5. The existence of adequate resource allocation to strengthen the institution,
increase the capacities, provide infrastructure planning and fulfill the special needs
of vulnerable group to decrease their vulnerability.4

In addition to those five indicators listed above, experience in the field have shown that
inclusive development planning would be more successful if there is an actual demand
from vulnerable groups and their community regarding the fullfilment of their rights. The
existence of vulnerable group organizations (women organization, PWDs organization) has
also shown to strengthen these groups’ capacities by providing the opportunity to have a
voice on their rights and needs. Base on experience and capitalization of previous projects,
AID Consortium promotes inclusive development involving vulnerable groups in the
participation process. Strengthened by a solid legal basis, the Inclusive DRR project can be
successfully implemented from grassroot level to national level.

4 Lembaran Infromasi Pengurangan Risiko Bencana Inklusi. AID Consortium.2013

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B. Inclusive Disaster Risk Reduction Legal Basis

Inclusive DRR founds its strong legal basis and guidance for implementing inclusive DRR
projects in the following documents:

• UUD 1945, chapter 27; about the right to have a decent life for every human being

• Committee on the Elimination of Discrimination Against Women (CEDAW) legalized in

Indonesian Republic regulation number 7, year 1984 regarding elimination of
violence against women.

• Committee on the Rights of the Child (CRC).

• Indonesian Law 23, year 2002, regarding child protection.

• Committee on the Rights of Persons with Disabilities (CRPD) Committee on the Rights
of Persons with Disabilities (CRPD) legalized in Indonesia on Indonesian Republic
regulation number 19 year 2011 regarding the legalization of Convention On The
Rights Of Persons With Disabilities.

• Hyogo Framework Action (HFA) 2005 – 2015.

• World Conference on Disaster Reduction (WCDR) in Kobe-Japan resulted Hyogo

Framework for Action (HFA); Hyogo Framework for action 2005-2015 aim to build
country and community resilience against disaster.

• Yogyakarta Declaration for Disaster Risk Reduction in Pacific Asian 2012 from fifth
Asian Minister Conference for DRR (5th AMCDRR)

• Global Platform for Disaster Risk Reduction year 2013 recommendation in Geneva;
one of them is to prioritized the most vulnerable groups, poor and marginalized and
decrease the root that cause risk. Promoting inclusive, accountable and responsive
participation and partnership with communities.

• Disaster Management Law number 24, year 2007, regarding Disaster Management.

• Head of BNPB regulation that is being developed, regardin protection and

participation of PWDs in disaster management.

• NTT province local Law number 16, year 2008, regarding Disaster Management.

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C. Capacity Building Scheme in Inclusive DRR

Inclusive DRR training began with the development of a training module under the
responsibility of the Project Technical Unit of AID Consortium. Handicap International
compiled a section on inclusive disability, while Plan International and CARE completed the
training module with a thorough understanding on children and women in DRR. The
manner in which the training module was developed constitutes indeed a good practice.
The joint work of organizations working for different purposes but with a common goal
serves as a model for further understanding of inclusive DRR.

Village
DRR
Team

Project Technical Inclusive DRR FKKADK, CIS

Unit Training for TIMOR,
Inclusive DRR Master PMPB, Tagana
Trainer Trainer (CSO)
CIQAL and
YEU

School DRR
team
(Prepared
Teacher and
Student)

Inclusive
DRR training
for
government

The initial phase of the Inclusive DRR training began with the Master Trainers’ training
(CIQAL)5 delivered by the Project Technical Unit (PTU). The Master Trainers had previous
experience working as trainers in issues related to DRR and disability. In line with the
primary focus of this project of strenghthening vulnerable community’s resilience, Master
Trainers also deepened their understanding of gender and child perspectives and
mainstreaming in DRR. Alongside, PTU conducted a series of trainings targeting

5 Ciqal is disability people organization (DPO) in which the members were appointed as master trainer of
Inclusive DRR in district, village, and school.

Page 18 of 82
government officials while at the same
time continued advocating for the
integration of inclusive DRR in
development planning.

After their respective training, Master

Trainers transferred the knowledge
acquired to the community-based
organizations acting as implementing
partners. The implementing
organizations were: FKKADK, PMPB,
CIS Timor, Tagana Kupang and Tagana
Belu. In time, these local partners
provided training to the village DRR
teams, the school EFP and the TF on
issues concerning inclusive DRR. The
idea behind this knowledge transfer
process was that communities and
schools had a better understanding of
the most pressing issues regarding
vulnerable groups inclusion in DRR
planning in their own areas. Along the
inclusive DRR training, local partners
also received first aid training from
Indonesian Red Cross (PMI) to be later
delivered to the communities and
schools.

Master Trainers made periodic field

visits (every 2 months) to monitor the
training process and transfer of
knowledge from the local partners to
the communities. They also checked
the inclusion of vulnerable groups in
DRR and made sure that there was a
positive change of understanding,
skills and attitudes of partners’ staff
and school DRR team that have been
trained. Later on, the results of these
visits serve as a very useful basis for the capacity building need assessment and were
especially constructive in the organization of refreshment training sessions.

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 Part 2: Inclusive Development –
Mainstreaming of Inclusive Disaster Risk
Reduction in Development Planning
Inclusive development is an approach that respects
every person’s basic right, admits diversity, banishes
poverty and makes sure that everybody is involved
thoroughly and can actively participate in the
development process and activities, without
discrimination of age, sex, disabilities, health condition,
race or religion.

Page 20 of 82
A. Early Condition of DRR Mainstreaming in NTT Province

Early efforts to increase resilience of vulnerable groups towards disasters encouraged the
development of sensitive government policies towards the special needs of vulnerable
groups. It was also important at an early stage to promote the advancement of policies that
support the participation of vulnerable groups and build their capacities in the process of
development.

At national level, the Indonesian government integrates disaster risk reduction into the
development process with the law number 24/2007 about disaster management. Further,
in chapter 35 of that law, it is mentioned that disaster management activities in normal
conditions should be integrated in development planning. On this legal basis, local
governments have the obligation and responsibility to mainstream disaster risk reduction
into local development planning. That, of course, includes the local government of Nusa
Tenggara Timur (NTT) Province.

NTT local government began the inclusion of a disaster management agenda as a main
priority in the Local Mid-term Development Plan 2009-2013, after the establishment of the
Local Disaster Management Agency in 2011. This effort was manifested in the support of
DRR-based governmental policies. Such policies aimed at increasing the disaster
management capacities in NTT Province; increasing the level of preparedness of
communities facing natural and social disasters; strengthening DRR financial support; and
improving mitigation activities to reduce the impact of future hazards and disaster risk.6

Although DRR has slowly become one of the key mainstreamed strategies in sustainable
development in NTT Province, the focus of local authorities is still much more on the
response, rehabilitation and reconstruction phases of disasters rather than oriented
towards a more comprehensive disaster risk reduction approach. Another challenge is
posed by the fact that most of the DRR policies in place do not pay special attention to the
variety of vulnerability aspects within a community and the many different groups that
compose it. The vulnerability of different groups in a community still tends to be
generalized, whereas in fact every group has different characteristics, capacities and
special needs that require particular attention. Differences in social status, economic
conditions, gender, physical appearance and religious or political affiliation generate
different levels of vulnerability within a community and its members so that some groups
have a greater vulnerability than others.

Groups with greater vulnerability are often considered as people who need charitable
support without the need of truly involving them in substantive decision-making. What is
more, their capacities, that might be useful for widening and enforcing a stronger disaster
management agenda, are often forgotten. These ideas are actually still in vogue, as legal
terms define vulnerable groups as “the groups that need assistance (the elder, children,
pregnant and breast feeding women)”, such as it appears in Law 24/2007.

6 RPJMD Provinsi NTT 2009 – 2013.

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In this resides the urgency for integrating inclusive disaster risk reduction into
development planning. For the numerous amount of people regarded as part of vulnerable
groups in NTT Province, the location was considered as a suitable pilot project area for
inclusive DRR activities. Such activities should focus on fulfilling the needs of vulnerable
groups regarding disaster management and involving them in the compilation process of
DRR policies in the community.

At the initial phase of the project, it was found that the Local Disaster Management Agency
(BPBD) of NTT Province and its counterparts in three target districts had limited capacities,
in particular concerning the development of DRR local action plan (RAD), mainstreaming
vulnerable groups’ needs in planning and budgeting processes, as well as supervising and
implementing community-based DRR. In NTT Province, the level of engagement and
coordination of the District Education Office and the District Social Office with BPBD was
not adequate in issues concerning DRR planning and the production of a comprehensive
DRR framework able to fulfill the particular needs of vulnerable groups. Furthermore, the
understanding of Inclusive DRR concepts of the local government, local planning board
(BAPPEDA) and local parliament (DPRD), organisms responsible for validating the local
government budget, was also found to be extremely limited. What is more, disabled
persons organization (DPOs) that represent most vulnerable groups were found to have
very limited capabilities to advocate for inclusive DRR. Coordination mechanisms gradually
strengthened advocacy, raising awareness and the commitment of the government to
inclusive DRR.

B. Integration Process of Inclusive DRR into Development Planning

B.1. Government Capacity Building

The effort to promote inclusive development began with decreasing the vulnerability and
building the capacities of the key persons involved in development planning. Looking to
strengthen the DRR mainstreaming into the development planning approach in NTT
Province, AID Consortium built government capacities regarding the elaboration of
government work plans based on inclusive DRR. Lessons learnt drew up from this process
that can be used as a guideline to work with governmental decision-makers in the future.

B.1.1 Good Practice 1: Compilation of Inclusive DRR Integration Manual into

Development Planning
To encourage inclusive DRR integration into the development process, AID Consortium
took the initiative of inviting the NTT local government to compile an Inclusive DRR
manual pertinent to the integration into development planning processes. The manual was
reviewed in organized discussions and workshops to ensure it would be in line with the
existing government planning system.

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 “ This manual assists us to
find indicators related to
inclusive DRR and its
chronological steps. We
often forget to make
segregated data, especially
for vulnerable groups, where
as in fact that is a very
important step. There are a
lot of simple things that we
can do to promote Inclusive
DRR. Inclusive DRR becomes
the community’s need to
anticipate coming disasters.
We are here at TTS District
prone to landslide and also
floods”. Zenon Dau; Kepala
Bidang 1 BPBD Kabupaten
TTS.

The manual constitutes a compilation of lessons learnt from BPBD, the District Education
Office and the District Social Office as well as OMS based on experiences during
implementation of Inclusive DRR activities in development processes.

Many institutions advocate for the shifting of paradigms from one only focused on
emergency response to a more comprehensive one focusing on all aspects of disaster
management, including preparedness, mitigation and prevention. Nevertheless, there were
many stakeholders, especially development planners, who did not yet understand how to
adequately integrate inclusive DRR into development activities.

Besides depicting the DRR legal basis, the manual included practical steps to integrate
Inclusive DRR into development planning and inclusive DRR advocacy strategy. Those
practical steps aimed at ensuring inclusive DRR were integrated into each phase of
development planning. The manual also serves to inform BPBD staff on practical matters
they could do during their program activities to strengthen community resilience towards
disaster, especially targeting vulnerable groups. Some steps that can be taken towards
integration of inclusive DRR into development planning are:7

1. Use of disaggregated data (gender, children and PWDs) in planning.

2. Involvement of women, children and PWDs in strategic planning and activities.
3. Identification and affirmation of needs to prioritize women, children and PWDs.

7 Information sheet Inclusive Disaster Risk Reduction. AID Consosrtium.2013

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 4. Existence of appropriate methods and systems to ensure that development
programs and emergency assistance reach women, children and PWDs.
5. Inclusion of disaster risk analysis of the area in planning.
6. Existence of a strategy to reduce vulnerability of women, children and PWDs in
facing disasters.
7. Specific resource allocation to increase planning and inclusive DRR policy makers’
capacities.

Impact
The direct impact resulting
from this activity is the
immediate use of the manual
to integrate inclusive DRR into
BPBD’s strategic and annual
plans. In 2014, BPBD will make
use of the manual to develop
its final annual plan. Currently,
BPBD has begun planning the
annual programs and activities
with a focus on Inclusive DRR
in disaster prone areas. BPBD
staff has already started the
compilation of disaggregated
data on gender, children,
PWDs. They have also started building an Inclusive DRR socialization network, based on
the knowledge and skills acquired from AID Consortium. In addition, this activity adds
experience, knowledge and understanding of the Vulnerability Focal Points (VFP).

Lessons Learnt
An outstanding factor in this activity is the existence of a participatory process involving all
relevant stakeholders, including government, community based organization, and disabled
persons organization in advocacy. Another distinguished factor is the organization of group
discussions to brainstorm on new strategies and opportunities and generate mutual
understanding of each institution’s obligations, roles and responsibilities in supporting
Inclusive DRR. The importance of the participatory process lies on the need for reaching
common understanding on the systems and mechanisms to integrate inclusive DRR into
development planning. Participation of key stakeholders is also important for conducting a
triangulation process comparing information and mechanisms from different sources.

The absence of continuous support from the government to do a deep data analysis is a
recognized challenge. The difficulty of having a complete data analysis related to DRR
backing up the annual work plan complicates the acceptance of the local government
budgeting team (TAPD) and parliament. Hence, the existing deficiencies in supporting the

Page 24 of 82
government to provide disaggregated data that
could later be used as a base for development “Becoming a VFP added to my
planning needs to be overcome in the near future knowledge and gave me new
in order to ensure the adequate implementation of information. Besides, my
inclusive DRR. knowledge related to DRR
activities is also improved and
A valuable recommendation arising from the I also know more about how to
compilation of the manual is to further strengthen treat vulnerable groups,
the support to the government to integrate children, women/gender and
inclusive DRR into its planning. The support persons with disabilities in
should be materialized in the form of relevant DRR. And the experiences that
data, information methods and collection and it I just mentioned have
should also aim at gathering all governmental benefited me during the
stakeholders in order to share good practices implementation of this project.
(strategy, opportunity and challenges) related to Ayub Hilli, BPBD Kabupaten
inclusive DRR.

”Apparently, what we have done is part of DRR, we just did not know it. Although we
have not done much yet, we will continue working in line with our obligation at our
office”. Maxi Missa; Kepala Dinas Sosial Kabupaten TTS.

B.1.2 Good Practice 2: BPBD Capacity Improvement to Become Vulnerability Focal

Persons in the Efforts of Inclusive DRR Integration into Development Planning.

Highly committed individuals are needed to increase the awareness of government staff on
inclusive DRR integration into development planning. These persons should continuously
offer full support and create enabling conditions and environments. In this regard, AID
Consortium closely worked with BPBD at province and district levels to appoint
Vulnerability Focal Persons as agents in campaigning and advocating for inclusive DRR. The
agents would fulfill their role by providing relevant capacity building and support to
government at province and district levels.

Vulnerability Focal Persons were selected from BPBD, the District Education Office, and the
District Social Office. In addition, the 12 people appointed as VFPs possessed a DRR
background and counted with wide experience, facilitation and motivation skills. The
commitment of the three government agencies was to allocate appropriate staff to capacity
building activities and dedicate time to allow the transfer of knowledge, skills and technical
support. The cooperation took the form of a MoU between AID Consortium and the related
governmental parts agreeing on their responsibilities and commitment.

As VFPs knowledge and understanding of DRR and vulnerable groups (especially PWDs)
grew, they could initiate the knowledge transfer process and increasingly influence their
institutions and leaders, to mainstream inclusive DRR into their annual work plan and
allocate respective budgets for inclusive DRR activities.

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Resulting from this activity, the VFP of BPBD Kupang District commenced the integration of
inclusive DRR activities into the BPBD annual work plan. BPBD Kupang District was
established in 2011. For this reason, its work program for 2012 adopted BPBD Province
work plan, which was not based on assessment and specific data analysis of the area.
Furthermore, the capacities of BPBD Kupang District regarding DRR were still low by 2013.
The Text Box below describes the government capacity building and the inclusive analysis
of the DRR work plan in NTT.

Most Vulnerable Groups Inclusive Analysis in DRR work plan of NTT Province

AID Consortium and BPBD Kupang District conducted a joint consultancy for the revision of
inclusive DRR and development planning towards the 2013 annual work plan (RKT) of the
agency. For this purpose, inclusive DRR indicators were retrieved from the list of
indicators depicting the HFA priorities. The consultancy involved BPBD, the District Social
Office, the District Education Office, DPRD, CSOs including PWD’s organizations and
organizations concerning women and children. The process continued with the
identification and provision of the appropriate inclusive DRR trainings needed. The
trainings were provided to the VFPs of BPBD, the District Education Office and the District
Social Office.

AID Consortium also coordinated and conducted regular follow up discussions with VFP to
envisage the opportunity of mainstreaming inclusive DRR into the 2014 Kupang District
annual work plan. As a result, the VFP integrated inclusive DRR in activities in the 2014
Kupang District annual work plan.

A meeting with parliament members, and the local planning board concerning
governmental offices and CSOs was held to review the appropriateness of the inclusive
DRR mainstreaming strategy. This activity also attempted to strengthen and reaffirm the
commitment of the local planning board, the parliament and other related local
governmental offices to mainstream inclusive DRR in their various program and
development activities in Kupang District. The 2014 annual work plan has already been
drafted and approved. At the moment, the process continues on securing the respective
budget. In this, the role of AID Consortium is to provide relevant training, conducts field
visits and organizes refreshment-training sessions.

Impact
As a direct result of the activities described above, three BPBD district agencies have
integrated inclusive DRR into their 2014 annual work plans. Important sustaining factors
to these activities were the existing good relationship between BPBD and NGO activists and
BPBD’s leaders’ full support. Funding constraints constitute a big challenge to the

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integration process. The existence of a mutation structure mechanism and the Ministry
regulation number 13/2006 concerning governmental program’s budget mechanism were
other notable challenges limiting BPBD to prioritize inclusive DRR in its planning.

B.1.3. Good practice 3: Inclusive DRR Integration Training to Related Government

The Project Technical Unit

provided Inclusive DRR
Integration into Development
Planning trainings to those
appointed as VFPs. The training
encompassed main topics
regarding vulnerable groups
rights and needs (especially
women, children and PWDs) in
disaster situations. It also
covered concepts related to)
community based DRR (CBDRR
such as assessment of
vulnerability, capacities and
hazards), accessibility mapping, contingency planning, Early Warning System (EWS),
disaster education, DRR mainstreaming in social services, accessibility (physical
environment and communication). The training aimed at overcoming the lack of
knowledge and skills limitations identified in previous DRR projects implemented by AID
Consortium partners in the area.

The ToT curriculum was based on an existing manual and training toolkit previously tested
by AID Consortium partners (HI “Disability mainstreaming in DRR, Plan toolkit “Child
centered DRR, CARE Climate Change Adaptation, gender and women empowerment”.

In order to spread the knowledge acquired and advocate for Inclusive DRR, VFPs facilitated
training sessions for BPBD staff in other districts in NTT Province. In addition, the DRR
forums of three targeted districts were invited to attend workshops where they could share
their experiences related to their working group and coordination with the District
Education Office and the District Social Office. It is important to remark at this point that
the dissemination mechanism (training session for mentoring other districts) was
collectively organized in line with BPBD existing coordination mechanisms at the province
level.

Impact
The immediate impact of the activities described above is the improvement of government
officials’ knowledge regarding inclusive DRR, with especial emphasis on the fulfillment of
rights and needs of the most vulnerable groups. Authorities’ knowledge on issues

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concerning the access to resources and information of most vulnerable groups and their
involvement in preparedness activities was also considerably improved. Coordination
amongst governmental offices at district level was also bolstered, in particular between the
working groups on DRR of BPBD, the District Education Office and the District Social Office.

Challenges
The lack of effective communication and information dissemination prevented important
decision makers from attending training sessions. Governmental standard procedures for
following trainings often prevented the attendance of the expected persons. Another
challenge observed was related to the time available for the training sessions. For instance,
a simulation session was required to ensure the proper application of the Inclusive DRR
integration concepts in practice. For this session, the existing work plan or the one in the
planning process were needed so the training attendants would fully comprehend how
inclusive DRR in development process works in practice.

Recommendations
In order to facilitate the training process and conduct it in line with local regulations, it is
recommended to apply the local government standard procedures and guidelines for
holding trainings. It is also recommended to revise the training methodology applied in
order to incorporate innovative methods and techniques that would catch the attention of
the participants and allow a deeper understanding on the topics studied. For instance, the
exchange of experiences between districts, as well as the use media and interactive
methods could be interesting alternatives for improving the understanding of Inclusive
DRR.

B.2. Encourage a Participatory Process in the Integration of Inclusive DRR in

Development Planning
B.2.1. Good Practice 4: Strengthening Civil Society Networks to Encourage the
Integration of Inclusive DRR into Development.

Mainstreaming Inclusive DRR into

development planning was done at both,
district and province levels and targeted
BPBD, the Education Offices, the Social
Welfare Agency, the Local Planning Board
(Bappeda), and the Parliament. To further
encourage the integration process, AID
Consortium involved civil society
organization, and disabled persons
organizations (DPO) to oversee the
planning made by the related local
governmental offices. The establishment

Page 28 of 82
of control systems between different parties ensures an
adequate integration process. Furthermore, this system “We should sit together
facilitates the existence of a support network of relevant like this often. It is
stakeholders in which DRR information can be fluently important to give
disseminated and experiences in government advocacy can feedback to each other.
easily be shared. The ones who know
about the needs of
At the beginning of the project, AID Consortium mapped the persons with disabilities
existent CSOs and DPO’s in the three districts and the Province. are persons with
The objective of this activity was to establish a mechanism for disabilities themselves."
integrating inclusive DRR advocacy into development Bona Bowe = FKDM /
planning. As part of these efforts, AID Consortium conducted Forum Kesiapan
socialization campaigns and capability debriefings to advocate
for inclusive DRR. Agencies were invited to participate in the Consortium activities with the
purpose of providing constructive feedback or be guest speakers. The agencies also
participated in discussions and consultation for inclusive DRR planning with local
government offices and helpfully assisted them in organizing DRR campaigns. To support
the integration of inclusive DRR in government planning, these agencies assisted the local
government offices to present their programs to the Local planning board (BAPPEDA) and
the Parliament.

Changes
The changes provoked by this activity are related to internal and external governance
practice. The evident internal change was the visible increase of government capacities for
integrating inclusive DRR into its work plan. Agencies also benefited internally as their
capacities for advocacy seemed to have developed further.
External changes are related to the increased levels of communication and cooperation
between government and civil society organizations. The CSOs’ stronger control
mechanisms over the government work, and the ability of government officials to present
their work plan to the society were also improved.

Lesson Learnt
The main factor allowing the success of this activity was the existence of common goals
between the government, public institutions and the developed networks. In this regard, the
role of AID Consortium is to build a network of support to accommodate the interests of
related institutions and organizations. Difficulties hindering the development of a stronger
network are related to the changing staff (especially when networks are built upon
personal relations or contacts) and the fact that not all institutions have a common
understanding on inclusive DRR and vulnerable groups.
“We gain a new knowledge. We just realize that we can be involved in the government
planning. We didn’t know where to present our thoughts and opinions before, furthermore,
as persons with disabilities, we have a right about it”. Imanuel Nuban= YPK/Yayasan
Pancaran Kasih/ physical impairment.

Page 29 of 82
B.3. Advocating with BAPPEDA and the Parliament the Integration of Inclusive
DRR into Government Planning and Budgeting

Advocacy to the government and parliament in order to gain support for the integration of
inclusive DRR into development planning was done through several steps:

B.3.1. Good Practice 5: Increasing

Awareness of Governments and
Parliaments on Inclusive DRR
At the province level, coordination with the
Department of education, Social Services
and BPBD NTT Province aimed at
identifying the Vulnerability Focal Persons
and participating in joint analysis
workshops organized by PTU. In addition to
that, coordination is also done with the “The participants carry
parliament at both the district and out discussions in an
provincial level; not only to inform about atmosphere of joy and
the project but also to obtain their full of spirit , even
commitment to support inclusive DRR in planning and without transportation
budgeting. money . Factors that
facilitate successful
This activity aimed at ensuring the integration of
practice are common
inclusive DRR values and budget to the annual
understanding and
development plan submitted by BPBDs at district and
awareness of the issue
province level. Special meetings with government and
of DRR and mandate of
Local planning board (BAPPEDA), as well as public
the Act for handling the
hearings with BPBD were conducted to gain support and
issue of DRR”
prioritize Inclusive DRR in government budget
allocations.

To begin this process, PTU developed an "Inclusive DRR

Information Sheet". The sheet was prepared to assist councils, related local governmental
offices, and the Local planning board (BAPPEDA) in the decision-making process. The Tool
contains key information about legal background and inclusive basic DRR concepts and
values to ensure the inclusion of most vulnerable groups in the local DRR action plans (RAD
PRB).

The coordination workshop was presented in conjunction with the submission of the draft
of the BPBD annual development plan/Local planning board (BAPPEDA) and prior to the
issuance of KUA (General Budget Policy). This workshop gathered planning and regional
development stakeholders including government, Local planning board (BAPPEDA) and
Parliament as well as BPBDs, the Education Office and Social Office.

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The project partners’ forum was also intended to increase participants' awareness on the
importance of mainstreaming inclusive DRR into development planning and encouraging a
coordinated program between BPBDs and other agencies. Parliament members were
invited as guest speakers in hearings and other activities. AID Consortium took these
chances to also review the development plan with key stakeholders and encourage their
commitment to Inclusive DRR programs. Media coverage (printed media and radio)
supported the advocacy campaigns and created greater public awareness on Inclusive DRR
issues encouraging their inclusion in public agenda debates of districts and provinces.

Regular technical meetings were held with the government and Local planning board
(BAPPEDA) to renew the regional development plan approval process, disseminate the
information sheet, and accompanying the process of gathering and adjusting DRR plans.

B.3.2. Good Practice 6: Establishing a coordination mechanism between BPBDs,

Social Services and the Department of Education to Integrate an Inclusive DRR
Approach into Education and Social Welfare Programs.

As has been identified in the stakeholder analysis, the responsibility for the most
vulnerable groups in DRR was divided between the disaster management agency (BPBD)
and the education and social services departments at the national, provincial and district
levels. Therefore, the Departments of Social Services and Education were also targeted to
incorporate inclusive DRR within their budget plan. The purpose of this was to ensure
collaboration between the departments and BPBD, and that the two agencies understand
and support the integration of Inclusive DRR in their annual development plans.

Whilst the Social Services Departments are encouraged to ensure better coordination
within its DRR programs such as TAGANA alongside BPBDs planning and monitoring, the
Education Department was encouraged to plan and allocate budget for supervision and
monitoring of school-based DRR activities, such as the school based DRR (SBDRR) network
as well as support the relevant resources for sustainable inclusive DRR in schools.

B.3.3. Good Practice 7: Building Capacity, Disseminating Tools and Guidelines

Relevant to Community Service Organizations that Advocate for Inclusive DRR in
development in NTT

Civil society organizations as implementing partners for the inclusive DRR project serve as
official representatives for supporting the needs and rights of the most vulnerable groups.
Community service organizations are encouraged to advocate at the government and local
parliament. These organizations (CIS Timor, PMPB, FKKADK, and TAGANA) received
training on Inclusive DRR and counted with ongoing mentoring to strengthen their
advocacy knowledge and skills. In this form, CSOs were better equipped to advocate for the
prioritization of inclusive DRR in development plans and greater DRR budget allocations.
The training sessions for CSOs were organized and conducted by PTU and Master Trainers.

Page 31 of 82
B.3.4. Good Practice 8: Strengthening Stakeholder Networking of Inclusive DRR
through the establishment and strengthening of a DRR Forum

The establishment and strengthening of the DRR forum aimed at bolstering the network of
inclusive DRR stakeholders. The DRR Forum brings together stakeholder organizations
supporting different aspects of disaster risk reduction. As a platform, the DRR Forum
provides a coordination mechanism to enhance collaboration of various stakeholders in the
implementation of sustainable DRR activities through consultative and participatory
processes. The establishment and strengthening of DRR forums in NTT Province and in the
3 districts has enormously contributed to the advocacy of integration of inclusive DRR to
build resilience in the area.

Establishment of DRR Forum Kupang

The establishment of the DRR Forum in Kupang district serves as an example of a district DRR
forum which has grown more independent. Strengthening the network of inclusive DRR
stakeholders began with a thematic discussion held by CIS Timor in cooperation with OXFAM on
February 19, 2013. The participants’ list was later expanded to include representatives from
Kupang police force and churches.
The invitation to the meetings was done by BPBDs through SMS and organized in different key
places of the district. HI, CARE, CIS Timor, and PMPB-NTT offices served as venues for the
encounters. While the participants themselves bared transport costs, the hosts of the meetings ran
with the consumption costs.
The first meeting was to gain an agreement and understanding about the DRR Forum as a unifying
platform of parties with similar concerns regarding DRR. The recently established BPBD of Kupang
district did not have a particular program or budget for DRR activities, much less a budget and plan
for the establishment of the DRR Forum. Moreover, there was no specific funding from NGOs to
support the DRR Forum. Hence, the basis for the establishment of Kupang DRR Forum is the sole
spirit of volunteerism of its participants. Discussions take place in a joyful atmosphere regardless
the costs participants need to bare (transport costs mainly). A factor that facilitated this successful
practice is the existence of a common understanding and awareness on DRR issues. However, the
lack of funding remains a major obstacle in the future of the DRR forum, for instance as budget is
needed to cover the statute ratification process. AID Consortium acts in this case as a facilitator,
initiator and provides encouragement to continue activities.

"Thank you so much to everyone who has initiated the process of establishing the DRR Kupang district
Forum until the final formulation of a DRR forum statute draft. This is evidence that NGOs also play an
important role in the context of Disaster Risk Reduction. We do not have the funds to cover the
processes; we only have truly committed staff. Nevertheless, we are confident that we will follow up
this initiative by looking up the existing budgeting systems to make an effort of inclusive DRR funding
allocated in the coming fiscal year, at least the start of the fiscal year 2014 ". Lewan Meru, former
Head I BPBDs (now Secretary Kupang District Mining Office)

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B.4. Encourage National Policy Based on Inclusive DRR
B.4.1. Good Practice 6: National Advocacy for Government Policy-Based Inclusive
DRR

Efforts to increase awareness on Inclusive DRR do not only target the community level, but
also reach out to decision and policy-makers at the district, provincial, and national levels.
As a member of AID Consortium, Plan International held a meeting with BNPB and
PUSDALOPS to introduce the concept of inclusive DRR projects. Plan International also
facilitated a review of the regulation of Head of BNPB No. 8 in 2011. The objective of this
review was to assess the contents of the regulation, in particular the issues related to
disability. A number of recommendations related to the content, sources, methodologies,
legal references and formats were withdrawn from the review. It was also decided in this
workshop to agree on the minimum standards of the necessary information to complete
the database, the format, and the template of the regulation. In addition, there was a need
to improve the text of the regulation so it could be used as a reference for DRR actors in
developing further policy. AID Consortium used the opportunity to review the regulation as
another lap to facilitate the issue of inclusion of most vulnerable groups.

C. Changes in the Process of Integration of Inclusive DRR into

Development Planning

To a certain extent, the process of integrating inclusive DRR into development planning
was able to change government’s understanding and practice in terms of the vulnerable
groups inclusion in disaster risk reduction activities at provincial and district levels.

C.1. Knowledge Changes

The government experienced some relevant changes in terms
of its knowledge, understanding and skills regarding the “ The consortium
implementation of inclusive DRR. Prior to the implementation already demonstrated
of the program, BPBD understanding of inclusive DRR was their commitment to
limited and inadequate. It was still present in BPBD efforts to inclusion , at least
hand over children affairs to the District Education Office, there is a lot of input,
issues regarding persons with disabilities to the Social support, learning from
Services Department, and gender empowerment matters to fieldwork conducted
the Women's Empowerment Agency. However, data and by the consortium,
information related to hazards, disaster prone areas, and which helps us to
vulnerable people were extremely limited. DRR activities make Inclusive DRR"
were mostly oriented to emergency response. Ayub Hilli (Section
Head of Sector I
After the program, the government’s understanding of topics
BPBDs Kupang)
related to DRR had reportedly improved. They realized that
Inclusive DRR is a crosscutting issue, meaning that all
government units are responsible for ensuring that their

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activities are part of or are in line with a DRR plan. BPBD began designing programs and
annual budgets with a strong focus on Inclusive DRR. The agency has also started to
prepare disaggregated data and build a network of Inclusive DRR socialization.
Government officials became aware of the special needs of the community and their
responsibility to answer to those needs.

C.2. Changes in Attitudes and Practices

Once BPBD gained a wider understanding on inclusive DRR, the agency tried to integrate
inclusive DRR activities in its annual work plan by looking at the existing opportunities in
the budget. Rather than stopping whenever the budget is not available for activities related
to disaster, they have tried to find alternative ways of integrating inclusive DRR activities
into the government budget planning.

Changes in understanding the importance of the inclusion of vulnerable groups can also be
observed in community organizations involved in the implementation of the project. The
expansion of CSOs’ knowledge was followed by significant changes in practices and ways of
running their programs.

A beginning to make CARE more Inclusive

In general, each agency (HI/CARE/Plan) focuses only on its specific issue. However, with the formation of the
AID Consortium, the agencies have learned to integrate Inclusive DRR in their program activities. CARE is
now further committed to consider children, persons with disabilities and gender empowerment activities to
support DRR actions. Mainstreaming children, gender, and disability in DRR, were at first considered
separately. While CARE works on gender issues and community empowerment, HI focuses on disability
issues, and Plan concentrates on children's affairs. Although the three agencies had implemented DRR
programs in the country, inclusive DRR has not yet been integrated in their activities. Once the AID
Consortium was formed, the first steps taken towards inclusive DRR were sharing methodological and
analytical tools for specific issues, development comprehensive tools for Inclusive DRR, as well as sharing
implementation’s strategy in communities, schools, and governments.
Working in a consortium is an incentive for CARE’s commitment to always consider the rights and needs of
vulnerable groups in their activities, especially related to DRR issues. Some other programs implemented by
CARE have begun considering the participation of people with disabilities, and provide special opportunities
to hear the voice of children in the program activities. Working as part of the PFR (Partners for Resilience)
Consortium, which focused on issues of adaptation and mitigation of climate change, CARE began to integrate
inclusive DRR by considering the involvement of persons with disabilities, women with disabilities, and
children. The program made an effort to listen to the opinion of all related groups regarding the topic of
mitigation of climate change. The program is also an integral part of building community resilience to
disasters due to climate change anticipation.
The lesson learned for the Consortium working on the inclusive DRR was that the program has given an
example for governments on how to integrate inclusive DRR into their planning and budget. The challenge of
working in inclusive DRR was the development of a strategy to optimize the quality of the involvement of
vulnerable groups, especially in the program design.

“Integration of Inclusive DRR it is not in fact a new issue. However, it is often forgotten. CARE at least remembers
that children, persons with disabilities and women are part of the community and they need to be strengthened
to build community resilience” Ida Adu (PFR Project Manager, CARE International Indonesia)

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D. The Challenges of Integrating Inclusive DRR into Development
Planning
1. Bureaucratic Politics

The biggest challenge in conducting capacity building and advocacy in the government is
the “bureaucratic politics”. Staff rotation in government bureaucracy is also a challenge in
this process. The examples below illustrate the challenges encountered during the
implementation of the project:

• Appointment of the key person in education is determined by the head of the

working unit
The process of appointing the key person has not adequately answered the need for
a governmental staff strategic role able to advocate Inclusive DRR integration. For
this reason, the government’s capacity in Inclusive DRR has not yet shown
promising changes that will encourage the integration of Inclusive DRR into
development planning.

The high rotation and turnover of staff also hinders the capacity building process.
Although there have been efforts to maintain the continuous presence of same
individuals (government staff) in the process of capacity building, for external
reasons staff has changed. This has hampered the optimization and effectiveness of
the capacity building process.

• The change of leaders due to political changes.

Due to the changes in local and national politics, and also because of the upcoming
General Elections, several leaders in DPRD were replaced. The replacements
disturbed the continuity of the parliament capacity enhancement process. For
instance, the head of the commission who had already become a key person for
Inclusive DRR has no longer a strategic position that would facilitate the integration
of Inclusive DRR into development planning. Similar cases have also resulted in
disconnections or disturbances in the advocacy process.

• Regional Expansion:
At a well-advanced stage of the implementation process, the program expanded to
other districts, namely, Belu and Malacca districts. The expansion had obvious effects
on the achievement of program objectives, especially regarding the allocation of
funds for Inclusive DRR. Examples of the direct impacts of the expansion are as
follows:

1. Three assisted villages, including the schools, became part of the new district,
and thus a new advocacy with the new government and new people in
Malacca had to be established.
2. The government’s local budget was split in two parts, one for the host district
and another one for the new one. The division resulted in a reduction of the
number of activities to be proposed. The priority for development planning

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 changed, as the new district needed funding to run its new operational
practices. As a result, Inclusive DRR did not become a top priority in
development planning.

2. Top-down Planning Model vs. Participatory Planning Model

The process of planning activities of the government differed from the community-
based participatory planning process. In fact, participatory processes have not been a
priority in the government planning. Although there were rooms for public
consultations, the government has their individual way of planning. This constituted an
enormous challenge, as the understanding of stakeholders of community engagement
in the planning process was in contrast to the principles of a participatory approach. In
some sectors, the strong ego of governmental stakeholders leaves little opportunity for
Inclusive DRR to become a priority in development.

3. Bureaucratic Budget Planning

In government budgeting, existing rules are binding and must be in accordance with
the budget numbers already written (Nomenklatur). This limits government creativity
and innovation in developing work plans. If an error occurs, the one responsible will
have to take the consequences. Thus, the government becomes very selective in
allocating budgets to activities that are outside the regular official operations.

1. Cross-sector Coordination is not Optimal

The system used for coordination between BPBD and the Education and Social Services
departments is weak. Structurally, the level of echelons in the department is higher
than those in BPBD. This eventually affects the pattern of communication and
interaction, often turning it into very stiff relations.

Although BPBD became the coordinator for the integration of inclusive DRR in
development, the weak cross-sectorial coordination calls for further advocacy to Social
Services and the Education Offices. Furthermore, weak communication and
coordination with both agencies contributed to the lack of understanding of the
importance of integrating Inclusive DRR into development planning. Consequently,
these two offices are less active in efforts to integrate DRR inclusion in their work plan.
They still think that each of them has different responsibilities: DRR belongs to BPBD,
gender issues belong to women empowerment bureau, and disabilities issues belong to
the Department of Social affairs.

2. Availability of Disaggregated Data

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 To this point, not all governmental stakeholders have understood the importance of
arranging developmental activities based on accurate and disaggregated data (gender,
children, disabilities).

E. Recommendation
1. Working Politically

Working politically means taking into account and analyze patterns in the local political
climate. It is important to strategize the approach to certain stakeholders and work in
accordance with existing mechanisms without eliminating the rules of the institution. It is
important to carry out a thorough analysis of key persons in order to formulate appropriate
advocacy strategies and objectives of the project so it can be implemented as planned. An
accurate in-depth analysis of possible challenges and difficulties the project might confront
has to back up the development of strategies and objectives.

2. Strengthening Cooperation with MoU

Signing a MoU with the concerning local government offices might serve as a way of
strengthening the commitment from the initial phase of the program. The existence of laws
and agreements binding the local government offices might help to avoid future difficulties.
In this case, the process of signing a MoU did not run as planned. Moreover, it was not
finished until the program’s midterm. A solution is to directly approach the head of the
local government office to appoint a fixed key person.

3. Political budget bureaucracy

The government has not decided a specific budget for disaster yet. However, they still need
to integrate Inclusive DRR into programs and activities that already have a budget
allocation. In order to properly conduct the process of budget advocacy, the Consortium
should have a skilled consultant on planning and budgeting. The consultant must be
recruited right from the beginning, so that he/she can help in designing a funding advocacy.
The consultant proposed should be part of civil service.

4. Using Local Standards in Performing Activity

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The government counts with local regulations to perform activities based on the Price,
Commodities, and Services Standard, - government local budgeting standard- (SHBJ) in a
particular area. SHBJ might differ from one area to another. As it involves the presence of
an individual in the activities, it is necessary to consider the implementation of activities
based on local standards and regulations. The amount of per diem given for the training
was not based on the official local government standard for training and therefore, when
assigning a staff for AID Consortium’s training, government gave priority to the lower
echelon staff.

5. Informal Advocacy

Culturally appropriate informal activities might strengthen the advocacy efforts. Non-
formal meetings or events aiming at making stronger personal communication can
facilitate the advocacy process.

6. Involving Women and Children Empowerment Bureau to focus on Inclusive DRR,

and integrate it into development activities.

7. Encourage the government to give a commitment in the planning and allocation of

funds to support disaster mitigation efforts. The project has encouraged the
government to change the paradigm from an emergency response focus to a focus on
mitigation, prevention and preparedness. Nevertheless, there is further need to build long-
term durability of the actions, as although preparedness is important to reduce casualties,
hazards will continue menacing the lives of the most vulnerable.

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Part 3: Inclusive Disaster Risk Reduction
in Schools: Encouraging Children’s
Participation in Inclusive DRR
Many people consider that children
are very vulnerable to disaster, but
they have the ability to effectively
spread information regarding DRR to
their friends, parents, and even to
other communities.

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Page 40 of 82
A. Schools and Inclusive DRR
Children are often the greatest
casualties in the event of a disaster.
Limited access to information or lack
of fulfillment of the specific children’s
needs make them one of the most
vulnerable groups towards disaster.
On the other hand, adults are often
not aware of that children can be the
speakers of both knowledge and
practice on Inclusive DRR. Moreover,
adults frequently do not realize either
that they often do not communicate
information regarding disasters to
children because they think children
are not yet able to absorb the
knowledge or act accordingly.

Disaster risk reduction in school initiatives have already commenced in the country.
Nevertheless, the government still does not consider DRR as an important issue in schools.
As gathering spots and public spaces, most schools are still not aware or prepared to
constitute a safe and inclusive environment for children. Participation and involvement of
children in decision-making or policy-making in schools are still challenges, while access to
information on disaster and school facilities in disaster preparedness phase are still
limited. Based on those facts, AID consortium decided to involve schools, - as one of the
close neighborhood to children-, to strengthen children’s resilience and act as places that
provide opportunities for involvement of children in decisions concerning themselves.

The process of mainstreaming Inclusive DRR at schools carried out by AID consortium
applied the principles of "School-Based Disaster Risk Reduction (SBDRR)", in which children
became the main actors in raising awareness within the school community about the
importance of inclusive DRR and preparedness in their environment. Through Children
Task Force and Peer to peer support children were invited to draw up preparedness in the
school system by considering inclusive principles. Girls became pioneers as leaders in the
task force and children with disabilities progressively gained a place in DRR activities in
schools.

Another interesting point of the program was the establishment of a system that creates
connections between the school and the community. In addition to the Task Force, whose
members are primarily children, the school also established the Emergency Focal Point
(EFP). Formed by teachers, EFP became part of the village DRR Forum and aimed at
creating synergies and combining the efforts of DRR in schools with those taken in the
community. AID Consortium has built the capacity of teachers and students to get involved
with the communities to implement Inclusive disaster risk reduction.

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B. Inclusive Disaster Risk Reduction Activity Process in schools

B.1. Encouraging Children's Participation in Inclusive Disaster Risk Reduction

in schools
B.1.1. Good Practice 1: Involvement of Children in Task Force (Tim Siaga Bencana)

To encourage the involvement of children in disaster risk reduction, 30 children from grade
3-5 in nine target schools were selected to be members of the Task Force. Once it was
established, its members received training on first aid. The task force had the responsibility
to participate in and contribute to the assessment, emergency planning, early warning
system development, and simulation exercises at school level. The Task Force members
were also involved in the development of school risk map and risk analysis, school action
plan and were also trained to provide help to a friend in time of disaster.

The school Task Force also received training from AID consortium on Inclusive DRR
principles in schools. Furthermore, Task Force’s activities became the broke new ground
for inclusive DRR implementation in schools giving children the opportunity to express
their voices, thoughts, and views.

Moreover, following the sessions on inclusive DRR, schools began to take children with
disabilities participation into consideration and further involved them in school activities.

B.1.2. Good Practice 2: Peer-to-Peer Support in Raising Awareness of Inclusive DRR

AID consortium partners conducted peer-to-peer support training in each target school.
This training focused on peer-to-peer support mechanism for all school community in the
face of disaster. This training targeted those teachers who were members of the Emergency
Task Force and Focal Point in each school.

Change
A first identified change is that all students are involved in simulation exercises and drills.
During the simulation planning, the division of the students’ roles greatly facilitated their
involvement in the activity. Another visible change is the increased acceptance of persons
with disabilities in the school and community environments. For instance, children with
disabilities were no longer mocked by their peers and had been in fact invited to play
together. Prior to this project, practices in schools often made distinctive roles between
boys and girls for specific or particular subjects, and persons with disabilities were still
considered individuals with limited capacity frequently disdaining their potential ability to
engage in any activity.

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An additional change was identified in the process of sharing information amongst
students. Games, songs and DRR stories provided during the training sessions facilitated
the knowledge transfer process regarding inclusive DRR amongst students.

Lesson learned
The peer-to-peer support became a good practice in schools as it gave students the
opportunity to share and transfer knowledge on inclusive DRR. In this regard, providing
training to students and teachers on Gender, Rights of the Child, Disability, and First Aid
constituted a foundation for good practice. Children began to understand that their friends,
regardless their personal conditions, have the same rights as them. They quickly
understood the concept and practice of inclusive DRR through playing games, and singing
songs with their friends. Teachers encouraging students to learn from each other and
students showing curiosity and interest in learning new things were factors that
contributed to the successful peer-to-peer support.

In SD Sakteo Binaus,
children get used to
implement first aid in
everyday life, they now
dare to advice teachers
when they see they did
not practice the first aid
training properly to help
a friend who was
injured. During the
simulation exercises,
students were required
to identify signs, status,
and proper actions to
take in times of disaster.
They realized that the
accuracy and speed of
delivery of information is critical as they took part to deliver the status and condition to
other classes. After the simulation preparation was completed, the Task Force had the
responsibility to transfer the knowledge regarding the sign, the sound, and the type of
action that should be taken (early warning system) to children of their own class as well as
other classes (classes 1, 2 and 6). At the beginning of the project, children conducted
vulnerability and capacity analysis and also identified safety actions in the case of disaster.
The school risk analysis should be conducted periodically and regularly reviewed.

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 “We have the opportunity to be members of the TF and our knowledge increases when we
become part of the TF. We learn together, like Hesti and I are given the opportunity to speak
on the RPD radio about the disaster in Soe. We had a chance to read children’s statements
about disaster in Yogyakarta and we answer people’s questions about disaster. I am proud
to get the chance. I also become one of the children who participated in the Photography
training, so we understand how we can take great pictures and talk about the condition of
our village and disaster.”-Paschal Fallo

B.1.3 Good Practice 3: Involvement of Children in Strengthening the Resilience of

School - Participation of Children in the Development of Evacuation Maps

Hazard, Vulnerability and

Capacity Assessment
(HVCA) and accessibility
mapping was conducted
through a participatory and
inclusive process and
inclusion in order to
address the challenges
faced by children with
disabilities. Risk maps were
developed with careful
consideration of inclusive
principles and vulnerability
and capacities of vulnerable
groups. The Emergency
Focal Point (EFP) and the
Task Force (TF) developed
emergency and evacuation
plans and early warning
systems based on the
analysis of vulnerable
groups in the school. The
accessibility of evacuation
routes, signs and warning
systems, was also a
particular concern for the
inclusive process. Therefore,
completely accessible
evacuation signs and early
warning systems were
prepared.

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Divided in groups, children were asked to walk around and to draw a map of their school.
After those school drawings were ready, children were asked to create symbols to describe
the safe and dangerous spots in their school. The process of risk map development also
involved children with disabilities. Each group was provided with equipment and color
pencil drawings. Then they share the role. Previously, the school did not yet have an
evacuation map. Children knowledge was limited to the understanding that their area was
prone to floods, and not much about DRR understanding. The production of the school
evacuation maps involved a facilitator who was responsible for giving general directions to
the Task Force and EVP.

The changes
The most significant change observed is the current availability of own evacuation maps in
the schools. Furthermore, since the students themselves developed the maps, they now
know better where to go in case of a disaster. The students know where and when they can
save themselves. They are also able to tell the difference between safe and unsafe places
during a disaster.
“There are a lot of
Lessons learnt advantages, especially
An important factor that determined the success of this for schoolchildren.
practice was the activeness of the student task force. Their Once there was a
interest and curiosity led them to as many questions on what whirlwind here. It also
are the safe and unsafe places in their school. Attractive occurred around 4 or 5
years ago. The children
participatory methods for children such as drawing made
responded to it by
students involvement in the activities more exciting and
running randomly, it
create enthusiasm amongst them. The cooperation between was a complete mess.
teachers and the committee and their willingness to assist With this program we
the children were also factors influencing the success of the can calm them down by
activity. ourselves. Now they
know what to do.” Mr.
The challenges Derfen, SD GMIT
Communication with children who have certain disabilities, Pukdale
especially those with mental retardation and poor sight
presented a challenge to the implementation of activities.
Using contrasting colors helped to overcome the difficulties of children with poor sight,
while for those who have mental retardation the approach was done through friends who
better understood their language and make them feel comfortable. Since the program is
temporary by nature, this practice should be taken over by the District Education Office.
After the program ends it is expected that District Education Office will continue the
activities, in order to create long-term changes, for instance, by reviewing and following up
the availability of school evacuation maps.

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B.2. Building School’s Endurance through School Community’s Capacity
Enhancement
B.2.1. Good Practice 4: EFP and Task Force Training

In order to improve the knowledge and skills of teachers and students in performing
disaster risk reduction at schools, the implementing partner provided trainings to the
Emergency Focal Points (EFP) and the school’s Task Forces. A 3-day training was held in
each school to ensure the dissemination of knowledge regarding disasters, DRR, the most
vulnerable groups, and inclusive school environment. The training included a First Aid
module to ensure the improvement of school community’s endurance and prepare them for
future coordination with the existing health structure. After the due training, first aid kits
were given to the Emergency Focal Points. The members of the Task Forces were also given
trainings to facilitate the peer support mechanism among children and improve their
capacity in responding and participating in an evacuation process. The peer support is an
effective factor to regenerate the participation of children, including those with disabilities.

B.2.2. Good Practice 5: Student’s Capacity Enhancement through the Integration of

Inclusive DRR to the Teaching and Learning Process

Background
Similar to other locations across the country, learning materials on disaster risk reduction
were rarely given at the targeted schools. Schools and teachers only present and give
materials in accordance to the syllabus using learning books as main sources. Even more, in
SD GMIT Pukdale, prior to the disaster-aware-school program, such DRR materials were
never provided.

One of the outputs of the Inclusive DRR Program is the enhancement of capacity,
knowledge, and skills regarding DRR to school community including teachers, non-teacher
staff, students, and school committee as well as other stakeholders inside the school. In
order to ensure that the school community, especially teachers and students, understand
DRR issues, this program encourages efforts to integrate DRR into learning and teaching
activities. Nowadays the integration is done through incorporation of the subject in social
science and sciences. In this case, teachers can add materials about earthquakes or
volcanoes when teaching students. Teachers can also apply on a daily basis what was
explained during the DRR trainings.

The Process of Integrating Inclusive DRR into Teaching and Learning Process

The integration of DRR into the curriculum of learning and teaching activities was done
through intensive trainings and assistance process. During DRR trainings, the teachers
received material, knowledge, understanding, and skills regarding different types of
disasters, their causes and effects, vulnerable groups, existing strategies to integrate DRR
into the school curriculum. The trainings resulted in an agreement that established the
early integration of DRR issues into social science and science. These will become models
for future DRR integration into other subjects of the curriculum.

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The teachers were also assisted in the frame of learning integration development through a
series of informal meetings and discussions. DRR was also integrated into school self-
improvement programs such as cleaning the school environment programs involving
teachers and students. Peer education activities were conducted through the use of
different games and socialization among students.

The District Education Office took an important role in motivating and encouraging schools
to integrate DRR into the curriculum. For instance, teachers prepared a lesson plan
integrating inclusive DRR. In Soe, teachers used disaster related pictures as media as a form
of delivering teaching materials and later included the methodology in the lesson plan.

“New suggestions or knowledge are worth to be appreciated and learnt so that they can be
applied easily. Teacher in SDI Taehue, Oelet, Soe NTT.

In developing the lesson plan, the teachers used pictures as strategies for DRR learning
process. From the pictures, the teachers identified relevance particular subjects and sub
chapters. In the process, the teachers were divided into two groups: lower grade teachers
and higher grade teachers. The first prepared the thematic lesson plan of DRR, while the
latter arranged what they have prepared based on the subjects. During the actual practice,
the use of pictures was acknowledged as an effective method to help the teaching and
learning process and successfully assist the students to easily understand the materials
given.

Results and Impacts

The most prominent change occurred after the DRR materials integration was seen during
a simulation. In SD GMIT Pukdale, the students were already able to help their own friends
who had suffered from nose bleeding and minor wounds. They were also very agile when
they struggled to save themselves during the simulation. They did not push each other or
quarreled when they were entering and exiting class. The most interesting thing was that
the students with disabilities began to play and share with students without disabilities,
and they were already able to stand in front of their friends to guide them during group
activities.

Another immediate result was that teachers began to introduce DRR materials in the
learning and teaching activities. They learnt how to identify valuable teaching materials on
the topic and include them in school subjects. The integration of Inclusive DRR into lesson
plan made the teachers and students became accustomed to DRR teaching materials.
Nemuel Takumau, the Principal in SD GMIT Pukdale said, “We do not know what future
situations and conditions await us. We have to prepare ourselves totally to face any
disaster risks in the future, and get used to teaching DRR in school.”

Some main factors supported the integration of DRR into school curriculum. The first was
the support and commitment of the Principal to encourage the teachers to integrate DRR.
The second one was the teachers’ strong commitment to apply DRR in school environment.
The third was the teachers’ creativity regarding methods and strategies of teaching DRR to

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students. The last factor was
the teachers’ willingness to
actively request for further
teaching materials to the
assisting institutions.

Although the results show a

promising future, the lack of
specific DRR modules
becomes an obstacle in the
DRR integration process. A
solution was for HI and
FKKADK to provide further reading materials containing DRR. However, it is acknowledged
that the Inclusive DRR integration into the curriculum will take a long time, as the
achievements until now are limited to the use of teaching materials/modules while the
LESON PLAN and incorporation in the curriculum phases have not been completely
reached yet.

Lessons Learnt
From the results achieved by this project, it is clear that developments and assistance are
still needed to integrate DRR into the curriculum. The success of making LESON PLAN and
the use of pictures as teaching materials are only the beginning to reach the main goal of
integrating DRR in the curriculum. Integrated IPS and IPA subjects are doors for Inclusive
DRR. The process of sharing experiences, capacities, knowledge, and skills about
integration strategies between teachers are expected to emerge.

B.2.2. Good Practice 6: Snake-and-Ladder Game as Effective Learning Media for

Inclusive DRR

It is easier for children to understand hazards, vulnerability, and the emerging impacts
through playing games. Before this project, many forms of discrimination occurred
between the students during their social interactions. Games did not only helped on
building DRR knowledge but also contributed to build
healthier relationships between the students and teachers.
During these activities, facilitators from partner institutions “The program is very
assisted children while they were identifying picture on each important for teachers,
box of the snakes and ladders and explained the meaning parents, and children
behind the corresponding illustration when they stopped on to understand more
top of it. Children with disabilities were also involved in the about children’s right
game and were able to clearly explain the rules such as why and disaster risk
they had to go up when they found a box with a picture of a reduction” - Anastasia
ladder on it, as well as why they had to go down when they Luruk AM.Pd. Kepala
found a picture of a snake. Teachers continued the habit of Sekolah SDI Fahiluka
playing the game every Saturday after the school’s routine

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group work. The practice was supported by good cooperation between partners, teachers,
the children’s enthusiasm, and also the well-designed and interesting pictures in the game.

Dorciani Seran (one of the standby students in SMK Fafoe) said, “The snakes and
ladders game is very lively because we can play it while studying.” Similar with Dorciani,
Yohanes Alwi, a student with disability, said, “Kaka Markus if it is not too much I would like to
have one more snakes and ladders for our school.”

Meanwhile, a teacher named Paulus said,”The presence of the snakes and ladders
game provided by HI is very helpful in our process of learning Inclusive DRR. It helps the
children to easily understand through pictures in the game. We would like to request another
snakes and ladders game from HI if possible.

B.3. Promoting and Supporting Sustainable Inclusive DRR in Schools

B.3.1. Good Practice 7: Developing an Inclusive School Action Plan

Background
One of the conditions in developing a SBDRR is the existence of a School Action Plan jointly
developed by teachers, students, and the parents. School Action Plan becomes a tool to
fulfill the child’s right to be protected and to participate in decisions that will affect the
child’s life. The School Action Plan is based on a prior risk analysis and encompasses the
school effort to lessen the risks of disaster and shape a culture of safety among the school
community.
AID Consortium encouraged the efforts to support the emergence of a culture of safety in
schools by assisting the development of the School Action Plan in 9 schools in Kupang, TTS,
and Malaka District. The following Text Box describes how one of the elementary school
planned its school action plan.

Before the project started, SDI Fahiluka did not allow children with disabilities to become
its students. The girls were also rarely given the opportunity to hold important positions in
class. After the project ran for a year in SDI Fahiluka, these types of discrimination began to
slowly disappear. Now all children are involved in school meetings and the disabled are
treated nicely. There is a bond of good friendship between the disabled and non disabled.
“We can play with disabled friends and assist them to go to the evacuation spot (higher place)
during the flood.” Wanda (a student in SDI Fahiluka)
Initially, the program and ideas regarding Inclusive DRR were presented to the parents,
schools, school committees, and students in a meeting organized to this end. After several
capacity enhancement trainings, the assisting facilitators from partner institution
(TAGANA) conducted periodic home visits. During the visits, they gave the schools, parents,
school committees, and children understanding about the importance of written
indiscriminative rules.

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The Changes
The community’s view on girls, boys, and persons with disability has changed. Schools are
no longer considering discriminatory elements when receiving new students. Even more,
they encourage people to put the disabled children in school. On the other side, the
community also recognizes disabled people and their capacities and they are able to join
activities such as Inclusive DRR activities.

Teachers have also changed their behavior towards children with disability during the
teaching and learning process in class. For instance, during the LTA process, the teachers
always pay attention to the special needs of the students with disabilities. Teachers that
previously tend to ignore children with disabilities, now begin to pay greater attention to
their presence and encourage their active participation in the learning and teaching
activities. Teachers are also making use of media and alternative methods (e.g. using flags,
writing in big letters, etc.) to support the understanding of children with disability. The
good cooperation between the partners and the schools have been an enormous
supporting factor for these activities.

Melkianus Seran (a student with disabilities in SDI Fahiluka) admitted, “ Now my friends are
playing together with me even though I cannot run well because of my legs.”

B.3.2. Good Practice 8: The Collaboration of School and Community Preparedness

A joint simulation became a good and interesting opportunity to build stronger cooperation
links between schools and community members. Disaster simulations in schools were held
with little or non-coordination with the communities. The Inclusive DRR project
encouraged schools and communities to strengthen their mutual cooperation in order to
become well-prepared community.

Integrated evacuation/simulation exercises were conducted twice in each village, involving

teachers and villagers. The joint simulations were also fully supported by the participation
of communal and local stakeholders (army, Police, Integrated Service Posts, Churches,
District government). People with disabilities, girls, and children also actively participated
in the joint simulation.

“We do not know and we cannot predict when will the disaster comes, but with the
simulation we can know how to protect and save ourselves when it happens, we can help the
wounded, and the most interesting thing is the full participation from the disabled, children
and women. It is also hoped that the simulation can be held every 6 months so that the
schools/villages will get used to it and will not suffer a panic attack anymore.” SD GMIT
Leloboko’s team coordinator.

The school simulation is very helpful for the communities to train their coordination and
communication skills and knowledge in performing evacuation when a disaster occurs. By
combining the school and community contingency plans, communities can easily
understand the specific school needs, especially those of children. It is also a good

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opportunity to share roles during preparedness activities. The schoolteachers are being
asked to coordinate the school’s preparedness activities with those of the community. The
following Text Box describes how schools and community perform coordination and
cooperate to plan, develop, and maintain evacuation and simulation plans.

Case Study of A Joint Disaster Simulation in SD GMIT Leloboko, South Amfoang District,
Kupang District

Before the Inclusive DRR project took place in SD GMIT Leloboko, the villagers, especially
children, people with disabilities, and women were seldom, or rarely involved in the
village’s activities. After conducting the joint simulation, all villagers of Leloboko Village,
including the school community, children, women, and persons with disabilities can work
together, like for instance deciding evacuation routes.

The most prominent change from the joint simulation exercise lies on the early warning
system (with the effect that the bell ring differently). The simulation was held on school
hours. Although in the school and community contingency plans only the used of SOP was
predetermined, during the exercise the school used its own distinguishable inclusive early
warning system so that everyone could read, access, and understand it.

The Task Force members were able to help their friends with small injuries under the
supervision of the integrated Service Post and assisting teachers. The students with
disabilities also played different roles during the simulation, in accordance with their
capacities and comfort. For instance, they were members of the data entry team.

The supporting factors for the integrated simulation were the cooperation and
coordination between the school and the community. The time limitations given by the
school constituted a challenge. In the future, an agreement for a more flexible time
allocation needs to be made between the school and the community so the joint simulation
can be organized a carried out more adequately.

B.3.3. Good Practice 9: Cooperation between the Community and the Schools in
Performing Inclusive Disaster Risk Reduction Anticipation

Inclusive DRR requires equal participation from all stakeholders in anticipating disasters.
In many places, DRR activities were done in a segregated manner, with each place
conducting their activities with little or non-synergies. The Inclusive DRR program
struggled to unite the disaster anticipation efforts performed by schools and communities.
Cultural approaches were taken to build cooperation with stakeholders (heads of cultural
practices, heads of religious practices, the local government, and schools), government, and
the board of representatives. The school’s mitigation actions invited the participation of
teachers, committees, parents, and villagers. The role sharing was done based on mutual
agreement between the Headmaster, teachers, parents and the communities. The planning,
schedule, and the group distribution for the activities were informed through the Village
DRR Team.

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The flood in Malaka became an actual scenario for Inclusive DRR practices. During the pre-
disaster period, preparedness activities such as cleaning the school environment and
planting more trees took place. When the actual flood came, the Village DRR Team and
Emergency Focal Point or the school Task Force activated the contingency plan up to the
level of evacuating the villagers to safe points. They also coordinated and communicated
with external actors (Department of Health Affairs, Police, District Headman, Department
of Social Affairs, BPBD).

The Communities’ Participation in School Recovery After the Flood

A real action of solidarity was reflected in the

cleaning of the classrooms after the flood in SDK
Umatoos in Western Malaka District, Kupang
District happened.

The school community and the villagers of Umatoos

agreed to work together for the first time in the
school environment so that children could go back
to their school soon after the flood. As part of
Inclusive DRR efforts, the activities took place twice
a week at the school using a Food for Work
mechanism.

In anticipation of floods, SD Katholik Umatoos all members of the school community worked
together to clean the classrooms with participation of teachers, committees, parents, and
other villagers. They also constructed emergency dams to protect the school.

A previous discussion meeting in which all school components sat together and examined the
best options to anticipate the flood in an inclusive manner facilitated the achievement of this
practice. The activity involved the headmaster, teachers, school communities, parent
representatives (5 fathers and 5 mothers), and the representatives of 4th-6th graders,
including students with disabilities. As a result of the collaborative and inclusive work, the
classrooms could be used again after 3 months of studying in tents due to the flood.

The interesting part of the process was the synergic cooperation and commitment between
the school and the community. The school, with approval from the YSE Department, even
allocated some amount of money from classrooms to build a water gate at the Umatoos
School as it was considered vulnerable to flood.

The initial awareness to begin an activity by relying on local potentials was also a decisive
factor of success. This was also visible in the use of local materials, such as those used in
building the emergency dams around SD Umatoos. In addition, parents were aware that DRR
in school is not merely the responsibility of the school but theirs as well.

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C. The Challenges of Performing Sustainable Inclusive DRR in Schools
AID Consortium had supported the establishment of a School Based DRR network through
previous projects. In line with this network, the “disaster alert school” concept was
introduced by the Consortium with due approval of the Ministry of Education, for
advancing disaster related education. Approximately 60 elementary schools are currently
under the network of School Based DRR (SBDRR) in Kupang District and Belu District. All
schools involved in the project are facilitated to obtain the SBDRR status from the
Education Department and other pertinent networks. Further cooperation with the
Consortium will ensure the optimal use of the SBDRR coordination mechanism between
the schools.

A challenge in applying Inclusive DRR is the lack of teachers’ capacity in handling children
with certain types of disability (especially mental impairment). The teachers had never
been given the knowledge and special skills to communicate and interact with disabled
children. The knowledge and skills to communicate and interact with disabled children
become important because the teachers are the closest adults in a school environment and
they must be able to both understand the special needs of children with disabilities and
identify their involvement in Inclusive DRR.

D. Recommendations

The integration of Inclusive DRR into the Learning Syllabus

The KTSP curriculum allows teachers to innovate in making their syllabus and designing
learning activities in class. Thus, it becomes an opportunity for Inclusive DRR to earn its
place in the daily learning process, both in class and extracurricular activities. What the
teachers need for supporting the integration is a legal document from the District
Education Office to encourage the integration of Inclusive DRR into the curriculum.
Actually, the legal document from the minister has already been issued but it will be
strongly enforced and applied if it would have support of the sectorial autonomy authority.
The District Education Office also needs to support and ensure the legal certainty regarding
the integration of the Inclusive DRR by recommending a regulation to the local government
that provides all information required for the proper integration.

The use of school operational fund (BOS) fund to perform School Action Plan (RAS)

The District Education Office has allocated funding from BOS to perform RAS. However, a
more specific policy about the use of the BOS funding for RAS is needed, as using it outside
the technical guidance can be considered a violation. The schools did not have full
confidence in using such funding for RAS due to the absence of the District Education Office
support in this matter. Advocating to the District Education Office and local government is
needed to open a window of opportunity for RAS’ continuity.

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Inclusive DRR accessibility

The District Education Office shows strong commitment to support disaster alert schools
and in some areas it has initiated the establishment of standards for children friendly
buildings, materials, and resources. Nevertheless, this initiative needs to be backed up by
pertinent legal documents that appropriately regulate the issue and are in accordance with
the children’s needs.

Establishing a ‘Supporting System’ to handle children with disabilities at school

A supporting system is a system that allows children with disabilities to get their rights
fulfilled, while at the same time creates chances for them to be involved in Inclusive DRR.
The protocols for interacting with disabled children become challenges that teachers have
to face in performing Inclusive DRR. Offering appropriate trainings to teachers, while at the
same time advocating to the government to allocate one inclusive teacher for each inclusive
school may be relevant in reaching this goal.

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Part 4: Inclusive Community-Based
Disaster Risk Reduction

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A. Background
In spite of living in disaster prone areas, many people in NTT have yet very low
understanding of inclusive DRR and the challenges faced by vulnerable groups in the event
of a disaster. Furthermore, social stigmatization puts vulnerable groups into a critical
situation making it extremely hard for them to participate in community activities.
Furthermore, communities and schools that have developed a structure and capacities for
DRR, are still lacking coordination and exchange mechanisms. The project aims at
developing inclusive DRR through local organizations: developing networks to ensure that
inclusive DRR is conducted continuously at school and village levels, connecting with other
relevant actors, and preparing the sustainability of Inclusive DRR are essential program
components.

B. Improving the Community’s Resillience through Inclusive DRR

B.1. Establishing and training DRR teams in villages, implementing DRR
activities and other supporting activities addressed to the most vulnerable
groups in order to expand the activities of Inclusive DRR
B.1.1. Inclusive Village DRR Teams – A Space for Woman and PWD Involvement in
Disaster Risk Reduction

Background “…as we learn about

Initially, men dominated the implementation of public disaster risk
activities in villages and there was no initiative taken to reduction, if we need
involve vulnerable groups in making public decisions. The first aid we can take
involvement of women was limited to only physical care of it
attendance and was more of a qualitative value. People independently
with disabilities were considered weak and unable to without waiting
contribute to public activities. These social stigmas assistance from local
increased the vulnerability of these groups, partly due to public health service.”
the lack of information on their needs and partly due not Mama Maria Mau
knowing or not being involved on disaster mitigation. (Village DRR team -
desa Leloboko)
The efforts of implementing Inclusive DRR were initiated
through socialization activities at sub-village and village
level to introduce Inclusive DRR. The activities involved
vulnerable groups and adopted a sorted data creation capable of mapping the presence and
condition of vulnerable groups. The process continued with the establishment and training
of Village DRR Teams. Composed by approximately 20 to 30 members, these teams became
the main implementing partner of Inclusive DRR activities in the corresponding villages.
The team was set in line with the prevailing structure in the villages, was recognized by the
community and comprised representatives of each vulnerable group. Interestingly, it

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included strong synergies between the villages and the schools, as some school’s EFP
members also became part of the Village DRR Team.

The training for the village’s DRR Teams was carried out in each corresponding village to
ensure the dissemination of knowledge on disaster, DRR, most vulnerable groups and
adequate inclusive communities. It also included First Aid training conducted in solid
coordination with the District Office of Health to improve the communities’ endurance and
capacities to respond to disasters. First Aid kits were given to the DRR Teams upon
completion of the meeting.

Through the activities conducted in the villages concerning Inclusive DRR, the community
became more aware that talking about disasters should not only take place during the
unfortunate event, but should also cover the preceding phase as well as the aftermath.
These activities also meant to grow an early preparedness mentality within the community
to face a disaster.

The presence of Inclusive Village DRR Teams signifies that the community has begun to pay
attention to social elements in disaster mitigation, which had been less than satisfactory in
the past. The text box below describes the establishment of a Village DRR Team which pays
attention to the social composition comprising various elements, including vulnerable
groups.

Inclusive DRR Team at Leloboko Village

The most prominent hazard threatening Leloboko Village are landslides. The most
devastating event occurred in 2008. However, the local community in the past had paid
little attention to the mitigation of the disaster; rather, whenever a hazard event is
predicted to happen, the village government would give suggestions addressing those
living around the area at risk. The government and the community did not adopt a
systematic, organized disaster management, let alone involved vulnerable groups in it.

After the program has been initiated, the community—particularly the DRR team, began to
familiarize with and understand the concept of disaster, how it may occur, why and how it
should be dealt with. Introducing disaster risk reduction has continuously been carried out
by HI and PMPB to DRR team(s) through various activities including trainings, workshops,
visits or assistances, disaster simulation exercises and other activities, which all aim to
improve the DRR team’s capacity.

The most significant changes stimulated by the project included the establishment of a
disaster mitigation organization at village level, known as the DRR Team. The Village DRR
Team has begun to submit a monthly contribution to fund its operations within the village.
The involvement of people with disabilities, women, and children are settled in accordance
to each of the group’s capacity; women are involved as Integrated Service Post (Posyandu),
while those who already had skills in health are being supported to improve their PPP, as
well as being involved in public F&B/kitchens.

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Previously, the role of women was limited to only the Integrated Service Posts where they
provided a community-based health service on supporting child health. They had not been
otherwise involved in other village’s activities. The role of people with disabilities are set in
accordance to their disabilities. For instance, in Leloboko Village deaf and mute were
illiterate, though they had reliable capacities important to build resilience. Within the
structure of the Village DRR Team, they provided help in setting up tents, which was then
improved through skill training so that they could set them up in a faster, more correct
way. They were also trained on how to lift patient carts. They communicate through sign
language and body language. The factors supporting the success were the presence of
collaborative work with the DRR team, cooperation with the village’s government, the
communities, PMPB and HI. The obstacles faced were mainly regarding the scheduling of
activities and the DRR team members’ tight schedule. It is recommended to create a
harmonic situation and to establish a proper coordination between stakeholders.

The head of Leloboko Village (Yeheskial Naetasi) said that the local communities felt
grateful for the disaster management program initiated by PMPB as it allowed them to gain
new knowledge on disaster. The village now even has a special organization functioning to
coordinate the communities in working to reduce disaster risks. Furthermore, Yeheskial also
stated that the local communities have the skills necessary to deal with disaster, and that
PWDs have been organized in a group and no longer left behind with no special attention like
they had been in the past.

B.1.2. Good Practice 2: Setting Up Hazard, Vulnerability, and Capacity Analysis

(HVCA) and Planning in Disaster Mitigation through a Participatory Process based on
Inclusion

Background

The process of decision-making within the

community was so far dominated by
certain elites without involving
representatives of the existing local
community groups. Women and people
with disabilities were seldom involved in
discussions or decision-making, as they
were considered not to have sufficient
capacities to contribute to the
implementation of plans. However, to gain
an inclusive result of risk analysis, all
groups in the community should be
involved in determining the vulnerabilities
and capacities existing in the corresponding village.

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 Vulnerability Group Data Collection Form

Population Children Persons with Disabilities Elderly Years of Numbers of impacted

Village Types of Disaster
Types of Pregnant Occurance Pregnant
M F M F M F Impairment Women M F M F Children PwDs women Notes
Process

After establishing the Village DRR Team, the next activity to be conducted was trainings on
mapping the village’s vulnerabilities and capacities. An Inclusive Risk Analysis Study was
carried out considering the vulnerabilities and capacities of the most vulnerable groups.
The study was conducted through mapping accessibilities and inclusion principles
involving community members of all age, gender, and condition. The AID Consortium
developed a data creation format by utilizing sorted data as a basis for planning the
Inclusive DRR program, particularly the risk analysis component.

Good Practice

The DRR Team at Napi Village tried to identify resources that could be utilized to support
livelihoods during disaster. The availability and identification of resources would help the
locals in reducing their vulnerabilities towards the disaster. In addition, the DRR Team
identified the vulnerable groups as well as mentors/assistants for them. The text box below
described the mapping of hazards, vulnerabilities, and capacities in Napi Village.

The Mapping of Hazards, Vulnerabilities, and Capacities in Napi Village

Initially, the local communities in Napi Village considered that disaster mitigation was
to be done only after the disaster itself occurred. Once the project was implemented,
however, they slowly began to establish a mindset that the actions to mitigate a disaster
should be taken before the disaster itself occurs, during the disaster and during the
aftermath.

Through the analysis of hazards, vulnerabilities and capacities, the community

identified what vulnerabilities exist in their village and what strengths they have to deal
with disasters, along with the disaster mitigation methods already existing in the village
(e.g. the role of Napi Village’s DRR Team, and the coordination pattern between concerned
parties who should take role in coordinating and assisting the vulnerable groups).

The community became to be aware of the importance of keeping their environment

safe and started activities such as reforestation of landslides prone areas and the areas
near water springs, and also campaigning on healthy living habits. Significant changes were
shown through the community’s awareness of the importance of preserving the
surrounding environment, as seen in livestock farming (which changed from letting the
animals wander freely outdoor to fixed cages), planting productive species to supply the
family’s basic needs (added with plants for the livestock’s’ food as for those who breed
them), not using risk areas as farmlands/plantations. They are also now aware of weather
changes, which allows them to better prepare for landslides threats during the transition
from dry to rainy season. The supporting factor is that the DRR activities have become the
community’s need. On the other hand, the obstacles are the presence of miscommunication
and the social envy within the community.
 Member of Village PB Team (Team Leader): “We now have more knowledge on DRR (e.g.
during disaster attack, we are capable of analyzing the capacities we own to deal with the
disaster), we can help the communities and the existing vulnerable groups, we can evacuate
the victims and utilize the available equipments/materials to provide First Aid.”

Innovations

The communities in Leloboko Village have conducted an Inclusive HVCA study considering
both the rights and duties of people with disabilities. The village DRR team has also
considered a sustainable living for people with disabilities residing in the village. The study
tried to reduce the vulnerable groups’ vulnerability by improving their capacities so that
they could participate in particular groups, in order to improve their earnings.

Empowerment of PWDs as an Effort to Reduce the Community’s Vulnerability and

Improve the Vulnerable Groups’ Capacity

Leloboko’s communities had never conducted a risk study (disaster risk analysis)
within its developmental process. Even more, concern or attention to people with
disabilities (PWDs) was practically forgotten in the developmental process.

The productive-aged PWDs in the village had no clear occupation or earning. Generally,
PWDs worked for others (mainly manual labor), particularly during public activities; they
were mostly assigned to handle such tasks as transporting water, collecting firewood or
other physical tasks. They highly relied on their families to fulfill their needs. They were
unorganized and did not join any specific group, which could have served as a space for
developing themselves and asserting the same rights as other groups in the community.

Prior to conducting activities to address the purpose of the program, HI and PMPB—
along with the local communities represented by the DRR Team—had firstly conducted an
activity known as hazard, capacity and vulnerability analysis (HCVA) to identify what
hazards, vulnerabilities, capacities, and disaster risks were existing within Leloboko’s area.
After completing the HCVA, the program included various activities aiming at improving
the community’s capacity, e.g. by setting up a Village Action Plan (RAD/VPA). The plan
served as a follow-up to the various activities that had been conducted so far, including the
disaster risk analysis, assistance, trainings, and other activities planned earlier within the
project. The village action plan also served as a work program for the community;
particularly to the DRR team that had been established at an earlier stage and already had
capacities on disaster risk reduction.

A success from the DRR and PMPB team after they conducted various scheduled
activities within the project was the establishment and empowerment of people with
disabilities groups. The idea was first raised by the field staff, which was then being
brought up to discussions with the DRR team. It started from a simple idea that “we should
be concerned with PWDs”. The idea emerged from an existing reality, where people with

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disabilities had so far remained unorganized and putting their lives in the hands of their
families. They had very often suffered the abuses of others who ignored their rights.

The idea developed into a number of activities, such as collecting data of PWDs in
productive age, establishing a disabled group in each sub-village (3 sub-villages/3 groups),
distributing chickens for the DRR Team (1 chicken per team), and determining assistants
for the PWD groups—taken from DRR team members.

The PWD group was eventually established as a place for the PWDs to develop, so that it
might reduce their dependence on their families, and particularly that it might make them
more organized and have activities that could support their living in a sustainable way. The
supporting factor was a good collaboration with the village DRR team, as well as the people
with disabilities’ strong motivation. On the other hand, the obstacle to deal with would be
the sustainability of the program.

“We are grateful as the assistance provided by PMPB is capable of organizing people with
disabilities into groups, which we hadn’t had back then despite the fact that the village had
many disabled at productive age. In the mean time, the DRR Team has been collecting small-
scale livestock (chickens), and soon the team will assist the PWD groups to conduct activities
in groups.” Yeheskial Naetasi (Village Head).

One of the DRR team members, Mother Regina Baetanu, stated her joy as people with
disabilities now have their own occupations: “We are grateful because they are now no
longer mere labors for others—particularly during public activities, where they would be the
ones with most tasks. As the DRR team, we will assist them so that the PWD groups may
develop well, become independent, and sustainable.”

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B.2. Establishing Inclusive Community-Based Disaster Risk Reduction

B.2.1. : Good Practice 3: Establishing Inclusive Early Warning System

Background

Early Warning consists of a series of activities to deliver immediate warning to the

community about the possibility of disaster within a certain area by the authorized
institution. In disaster risk reduction, it aims at reducing victims as well as lowering the
economic and material damages caused by a disaster. The project developed community-
based inclusive early warning systems in all target villages in 3 regencies utilizing natural
signs. The text box below describes the process of constructing the inclusive early warning
system in one of the target villages.

Structuring the Inclusive Early Warning System

One of the locations for inclusive early warning system development was Lelogama Sub-
district, situated in Amfoang Selatan (South) District, Kupang. The area has a high risk of
landslides. Prior to the implementation of the inclusive DRR program, the area did not have
any early warning system. The local community did not have any idea of the concept of
disaster, and they were left in confusion whenever one occurred. They also had no agreed
or shared understanding on how and where to evacuate. As a result, apart from devastating
farmlands, plants, and housing, disasters would cause human victims, particularly affecting
those belonging to vulnerable groups (children, women, and people with disabilities).
Process
During the initial phase of the process, the team conducted an observation and study on
what the local community used to do during a disaster. Besides, the community also did not
understand the mechanism necessary to monitor, to whom they should report to, how to
spread information, how the community could understand it, and so forth. Apart from that,
the PWD community also faced difficulties prior to and during disasters. Worse was that
they also lacked of knowledge and skills, making the impacts more prominent and harder
to deal with in the aftermath.
During the construction of the EWS, the team had also conducted a disaster risk study by
analyzing hazards, vulnerabilities, and capacities existing in the community. Within the
study, the Village DRR Team, along with the stakeholders at sub-district level, conducted a
mapping of the disaster risks. The study also identified which areas owned vulnerabilities
as well as the vulnerable groups concerned in disaster risk reduction.
Furthermore, to ensure that the establishment of the early warning system is inclusive and
sensitive to the vulnerable groups, the concerned parties at sub-district level carried out
(multi-stakeholder) workshops. Aside from people with disabilities, the activities of
construction also involved the DRR Team, women, teachers, and the sub-district
governmental apparatus. The result was an agreement on the indicators related to

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determination of disasters, which comprises three stages: alert, standby, and danger; the
actions to take; and the communication and coordination line. Below is an example of the
construction of the landslide EWS in Lelogama Sub-district:

Status Indicator(s) Action(s)

Alert - Continuous rainfall for a week - Inform all people to be careful when doing activities
- Land cracks 2 cm – 10 cm - The Coordinator of DRR Team to announce Alert
- Up to 50 springs emerge status
- Put out green flag(s) to sign for alert

Siaga - Land cracks 10 cm – 20 cm
- Up to 50 – 100 temporary
springs emerge (Oepoi)
- Continuous rainfall for 1 – 2
weeks
Bahaya - Land cracks 20 cm – 30 cm
- Continuous rainfall for longer
than 3 weeks
- Numerous temporary springs
emerge
- Slight landslides start to appear
around the housing area and
farmlands
- DRR Team to inform all people to standby and to
prepare important things to take during dangerous
condition
- The Coordinator of DRR Team to announce Standby
status
- Put out yellow flag(s)
- Evacuate PWDs to safe place/locations, e.g. to their
family’s home
- Put out red flag(s)
- Announce Danger status
- The Coordinator of DRR Team to instruct all
people residing in landslide zones to flee to safe
locations through evacuation passage
- DRR Team to evacuate people, by prioritizing
vulnerable groups (women, children, and people
with disabilities)
- Activate contingency plan

The application of EWS is to be carried out by the Village DRR Team and the Village
Government in accordance to their specific roles and functions. In general, the DRR Team is
to take its role and function prior to, during the disaster, and the aftermath. Within the EWS
development, the DRR Team is responsible for monitoring signs and spreading
information. The information on the disaster is to be spread once the Village Government—
in this case, the Village Head—has defined the status of the disaster.
As for the three villages in Malaka, the construction of EWS involved DRR Teams in TTS
District, as well as the TTU local communities residing around the main course of water.
The EWS in Malaka also involved all stakeholders existing in the District, so that the system
applies not only to the three villages mentioned, but also to all inhabitants of the three
Districts in Malaka District. For example, by involving Acted with programs in 33 villages to
spread information through radio channels, the EWS information can be expanded and
spread faster.
In regards to expansive information dissemination, it is also done using loudspeakers. Flags
are put out at strategic, accessible locations, such as markets, crossroads, the sub-district
governmental office, and so on.
To ensure that PWDs can access the information—especially the deaf and mute—the DRR

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Team and/or their families assist them. The families hold a significant role in informing
every situation changes to the PWDs as they are the closest to them.
“The Early warning system is also to be known by all groups in the community, including us—
people with disabilities. As for me, with this double disabilities (both deaf and mute), I would
find difficulties to understand such warning system, so my closest family, as the ones assisting
me, holds a great responsibility of delivering such understanding to people with disabilities.” –
Ribka Tamoes, DRR Team of Lelogama Village/Deaf-Mute.

Results and Impacts

The result of the EWS development is that the community has gained a better
understanding of hazards and the actions to take once the status is announced. It was
shown during the simulation, where all involved parties—the DRR Team, the local
communities, and the Village Government— understood their roles well and acted
accordingly.
Women and children also took their roles; the women acted as First Aid team and public
kitchen. The team was responsible to provide first aid by providing support and bandages
to victims with fractured bones. As with the public kitchen, they were responsible of
managing types of foods, the availability of clean water, as well as distributing supplies for
the victims.

Marlince Suana and Emi Koib were two women of First Aid team in Lelogama Village. During the
disaster simulations, they always showed great spirit and were fast in dealing with disaster. They
calmed the victims, coordinated with the medical team, and sorted victims according to the severity
of wounds.

Lessons
The success of inclusive EWS construction is the result of a shared commitment among all
parties involved. The roles of the DRR Team, Lelogama’s village government, and all other
stakeholders became important in the efforts of improving the community’s capacity to
reduce vulnerabilities. Besides, the participation given by all parties/social elements,
particularly women and people with disabilities became an important factor in establishing
an inclusive early warning system. Active role/participation is important to achieve efforts
to figure/identify the local knowledge and wisdom regarding the reading of natural signs.
The village government’s role is also important in mobilizing and motivating the
community to participate in each process of the activity, including the simulations, as well
as in establishing support (enabling environment) within the preparedness work
conducted by the DRR Team and the local communities.
Another important factor was the support given by teachers, school committees, and
community leaders, who not only participated actively in the activity by contributing ideas

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and opinions, but also functioned as strategic elements in spreading information and
socializing the EWS.
Currently, the main challenge to face is to socialize the EWS to all levels in the community,
as not all of the social elements know or have completely understood the system.
Additionally, not all of the local wisdom concerned with natural signs has been understood
by the younger generation. It is possible that such thing is caused by (1) the lack of transfer
of knowledge to children and (2) the development of technology, which caused the younger
generation to despise local wisdom, dragging them to fade away and no longer rely on
communal knowledge on the existing natural signs. Hence, it is necessary to have a
‘movement’ aiming at improving and maintaining folklores or stories about nature and
environment to the younger generation, so that the positive local wisdom—such as the
reading of natural signs—may be passed on to them.

“The early warning system in Lelogama is undoubtedly beneficial for the community,
particularly prior to the disaster attack. It is easily understood as it comes in natural signs
known to the local people.” - Martini Naetasi, DRR Team of Lelogama Village.

B.2.2. Innovation: Combining Contingency Plan and EWS in Disaster Simulation

Background

The EWS was integrated to the Contingency Plan. Prior to integrating the contingency plan
with the early warning system in a simulation process, the community had understood only
first aid and how to handle it, while signs and information systems before the occurrence of
a disaster remained limited. In this case, the simulation differed from others as it integrated
contingency plan, early warning system and basic first aid, by prioritizing the inclusive
values, where vulnerable groups (such as people with disabilities, women, and children)
were also actively involved. They were involved during the development of the contingency
plan and early warning system, as well as during the trainings on basic first aid.

By applying a simulation model developed by PMPB NTT within AID Consortium, the
community now can gain a better understanding and is able to operate an early warning
system and practice basic first aid. The group of people with disabilities can also rest
assured that during standby status, they will be evacuated to safe locations.

The supporting factors include a simulation model design adjusted to the context of the
program and the target area by PMPB NTT and the active participation from the local
communities and stakeholders in Lelogama Sub-district. The obstacles faced were that not
all of the information related to early warning systems have been known to the public, the
lack of socialization from DRR Teams in introducing inclusive early warning systems and
contingency plans, the lack of participation from the communities during DRR activities,

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and the limited time spent by staffs/facilitators in the activity area, which was caused by
the lack of resources from the institution.

B.3. Preparing technical aid, strengthening efforts to build networks, and

advocating sustainability of Inclusive CBDRR in villages

Sustainability remained a main issue to deal with in establishing Inclusive Disaster Risk
Reduction within the community. The village and community’s preparedness to
independently continue the Inclusive DRR efforts often faced difficulties of financial
funding, which had not yet been allocated in the Village budgeting. Efforts to implement
Action Plans need to be supported by all stakeholders, particularly the government.
Advocacy efforts to affect policy making at village level is necessary in order to guarantee
the continuity of the community action plan implementation. By utilizing Village
Regulations (Perdes) addressed to the corresponding village’s DRR Team or RAM, it is
expected that a specific budget for Inclusive DRR can be made available.

B.3.1. Good Practice 4: Building Collaborative Work between Stakeholders in

Community’s Disaster Risk Reduction

Background

So far, school and village environment might be seen as two different elements. Specifically
speaking in terms of attempting to establish DRR, both environments seemed to work
separately. The existing relationship was limited to only coordination-information and
seldom came in the form of communal and collaborative work. It appeared as if schools
were not a part of the village.

Within the process and activities to establish disaster preparedness, there was no
reciprocating involvement. The result was that schools were very rarely involved in
preparedness planning in the village.

The most important factor were the students—children of the local communities.
Considering them in disaster mitigation systems, it can be considered as an immediate
effort to protect them during disaster. Based on that idea, the program officers in Belu
District considered it necessary to open up and build a network of collaboration between
the village and the schools.

Process

To achieve the goal, the strategy taken was to establish a DRR Team structure, which
included representatives from the schools as well as from the villages. Within the structure
of the Village DRR Team, for example, there were several positions held by representatives
of schools. In return, the structure of the School DRR Team included several
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representatives of the village. By applying such strategy, it is expected that there will be a
two-way communication between the schools and the villages. Apart from that, another
important thing is that during disaster, the schools and the villages can coordinate and
work together collaboratively. The ‘space’ is expected to enable the schools and the village
to work collaboratively during disaster, either during school hours or beyond.

The activities conducted are, amongst others, the establishment an understanding that
schools are an inseparable part of the village. It means that they should be involved in
building preparedness at village level. Within contingency plans or evacuation during
disaster for example, scenarios to be conducted in schools should be synchronized with
those in the villages. Besides, both the village and the schools’ policies should be known, so
that the existing limitations or gaps may be linked and both elements can strengthen each
other.

Another important project component was to ensure that both the village and the schools
have their representatives present during meetings/coordination related to DRR.
Whenever the Village DRR Team holds a meeting, representatives of the schools should be
present and involved, and vice versa.

The impact of the collaboration built can be seen during the flood that rushed Belu District
some times ago. The flood disrupted the schools’ activity due to the large amount of mud
flooding the classrooms. The teaching-learning activities were practically terminated.
Seeing such condition, the Village DRR Team initiatively worked together with the school to
clean the classrooms.

They also encouraged a relationship between the communities and the government,
starting from village level and moving up to district level, as well as a disaster management
coordination system from the grassroots level (the communities) to the regional
government, in the context of disaster response.

It is interesting as such initiative and collaboration had never occurred before. Back then,
during a flood, the teachers and staff at schools worked on their own to clean the mud and
deal with the destruction within their schools’ environment.

The factors supporting the efforts to build a collaboration between schools and the village
are (1) the approach built during the program implementation and (2) the awareness on
teachers’ roles as agents of change in schools. It means that there has been an
understanding and awareness on the results and impacts of teachers’ involvement in the
program.
“I am happy that now the School Headmaster has actively participated, which enables us to
implement the programs at school with no doubt.” Benediktus Nahak (EFP)

Lessons Learnt
From the processes already carried out, there were two main issues, which might be
identified as challenges. First, the sustainability of the process of establishing

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preparedness, particularly within schools. Second, the process came as a series of long-
term work, which requires endurance, consistency, and commitment from all involved
elements/parties. Hence, it remains difficult to measure the impacts of the implementation
of the program, which was relatively short in duration.

Based on those challenges, the issues we could identify as recommendations are (1) the
program remains relevant to be continued by strengthening the collaboration pattern and
capacity of the DRR Team by (2) maintaining a good communication with the stakeholders,
and (3) maintaining the involvement of all stakeholders concerned in Inclusive DRR,
particularly within the school environment, i.e. the District Education Office, Local disaster
Agencies (BPBD), religious/church leaders, and custom leaders, as well as either
international or local NGOs operating in Belu and Malaka. In regard to this, through various
multi-stakeholder collaborative activities aiming at supporting the sustainability of
Inclusive DRR activities, a DRR Forum has eventually been established at Village and
District level.

B.3.2. Innovation 2: Sustainability by Integrating Inclusive DRR into the Village’s

Development Plan
As mentioned above, the community-based inclusive disaster risk reduction efforts could
only be achieved through Inclusive DRR institutionalization. The Inclusive DRR
institutionalization is identified by the integration of the Inclusive Community Action Plan
into the village’s developmental plan, and the presence of funding from the village’s
development budget. Through the institutionalization, the government synergized with the
local communities in building the community’s endurance against disaster.

AID Consortium supported the efforts and new initiatives aiming at institutionalizing
Inclusive DRR into the Village’s regulations. Such an Inclusive DRR regulation has been
established in 9 villages and is currently undergoing the process of legalization. The efforts
became an innovative attempt to sustain the community’s initiative on Inclusive DRR.
Below we present a case study on the process of integrating Inclusive DRR into the village’s
developmental plan.

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 Case Study: Fafoe and Umatoos Villages’ efforts to sustain Inclusive DRR within the
village’s developmental plan.

The communities in Fafoe and Umatoos villages considered the Inclusive DRR program its
continuity important issues. Continuation should be done through a community action plan
(RAM/CAP), constructed during communal discussions, by emphasizing on the orderliness
of people with disabilities, children and women. The future realization would have focused
on public places, but in fact it was expanded to cover also mitigation activities, always
maintaining the involvement of people with disabilities, children, and women. The RAM
was already manifested in concrete activities including making emergency bridges,
cleaning up public facilities, making streams and water channels/gabiaon, draining and
digging wells, building stilt houses through mutual aid work, re-foresting the watershed
channels and flood-vulnerable spots, and other activities. The communities in the two
villages have also attempted to support the sustainability of Inclusive DRR by integrating
its activities into the village’s developmental plan.

Process

The attempts to sustain Inclusive DRR activities in the village, the Village issue a Decree on
the establishment of the DRR Team, continued by connecting BPBD with it. In the three
villages specifically and in Malaka in general, the Musrembang (Village Development Plan
Meeting) had not fully operated in a participatory manner; only social figures and the
village’s apparatus represented the process. The vulnerable groups (women, children, and
people with disabilities) were left nearly uninvolved during the meetings. In addition,
people with disabilities were the ones most neglected. It was not only that they were not
involved, but also that they were despised by not considering them as active members of
the society.

The three villages are annually suffering disasters, which occur repeatedly and frequent.
During disaster, the three vulnerable groups had always been victims. The government did
indeed send help during disaster, but the local communities were left with very little
participation in the disaster management part. An innovative practice was ignited by a
feeling of worry towards the sustainability of the Village DRR Team (TBSD): to ensure the
sustainability of TSBD and DRR practices in the village, the TSBD participated in the sub
village development plan, village development meetings, and sub district development
meetings. In addition, the vulnerable groups also attended the meetings as a part of TSBD.

The assistants from PMPB as well as the encouragement given by PO HI in return also
supported the initial process. The innovation resulted from a communal discussion
between the concerned project technical unit and the government through consultations.
PO and its partners then developed the results of the discussions. By accommodating a
number of activities related to Inclusive DRR within the village’s developmental plan, it is
expected that there will be a follow-up post-program assistance.

The most significant changes were that the Inclusive DRR activities have been integrated
into the village’s work plan. Further, concerned offices (District Office of Social Affairs and

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BPBD Belu) have also set up the 2014 work plan, which included follow-up assistance for
the established TSBD. By integrating DRR into the village’s work plan, there is an increased
possibility of utilizing the village’s budget to support TSBD activities. As an example, village
budget or PNPM might be used to fund Inclusive DRR activities. With the presence of
assistance from the District Office of Social Affairs and the possibility of accessing the
village’s budget, it becomes possible to guarantee TSBD’s sustainability.

The supporting factor was that TSBD felt that their activities were of importance, and
hence should be sustained. They were also supported by their faith and spirit to be heard.
Besides, PMPB facilitators, who have had sufficient understanding on the village’s area,
were also helpful in driving the process. One of the ways utilized to reach to the policy
makers was by giving roles to the vulnerable groups to act as speakers during public
meetings. In addition, early basic knowledge on advocacy given to the villagers during
trainings has also proven to be helpful. PO HI Betun has also appeared sufficiently solid in
giving reminders to the facilitators. On the other hand, the obstacles were that the
Musrembangdus socialization remained low as the elements invited only comprised
renowned figures, and the PWDs lack of confidence. Overall, the obstacle to the program
was the limited duration of time. The recommendation to improve the program would be
that the facilitators should have advocacy competence.

“I am pretty sure that once DRR has been integrated into the village’s
developmental plan, TSBD would be able to set up their programs under the funding
from village budget or PNPM”. (Roni Seran: Community Fasilitator HI in Malaka).

Aside from the Village Regulation on Community Action Plan, the sustainability of Inclusive
DRR has also been promoted by institutionalizing the DRR Team by the Village Head’s
Decree. Within the project, some of the village headmen have issued decrees assigning the
corresponding village’s DRR Team as an institution to continuously conduct Inclusive DRR
work. Some of the examples are Lawalu Village with its Decree of Village Head No. Ds. Lwl
140.05/SK/XI/2012, Fafoe Village with its Decree of Village Head No. Ds. Ffo
140.11/SK/XI/, and Umatoos Village with its Decree of Village Head No. Ds. Umts
140.05/SK/XI/2012.

C. Cultural Approach: Assistance in Community-Based Activities

Community-based assistance cannot be separated from the customs prevailing in the
corresponding local context. It pays attention to culture as an entrance gate for
implementing programs. Community assistance regarding the establishment of Inclusive
DRR requires a cultural approach which can be accepted by the community, and may even
serve as an “entrance ticket” when conducting activities within the community. This

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approach is to be mastered by assistance facilitators to enable them to build relationships
with the local communities.

The communities in Timor Island commonly use sirih pinang (betel and areca nuts) as a
means of establishing socialization, familiarity, and trust between community members.
Such cultural approach becomes an innovation and serves as an entrance gate to socializing
with the communities inhabiting Timor Island.

Sirih Pinang Cultural Approach in Napi dan Oelet village, TTS District

Standard approaches commonly adopt formal manners such as workshops, thematic

discussions, FGDs and attractive games related to the subject. Observations showed that
the community was reluctant to give comments or ideas during discussions/meetings due
to the formal atmosphere, inflexible discussion methods, and the use of “high” language. It
caused the discussions to flaw and appears to be a one-way (dominated by only one side)
discussion. Based on the condition, alternative ways were taken in the form of home visits
and giving sirih pinang during discussions/meetings with groups/communities. They were
taken to help building a more casual and relaxed atmosphere.

As the discussions progressed, the atmosphere turned highly effective, as the participants
were willing to actively give comments, ideas and suggestions as well as opinions during
discussions. Besides serving sirih pinang during discussions, the facilitators also tried as
much as they could to speak in Dawan (the traditional language of West Timor
communities) to make it easier for them to interact with the members. The discussions
became more flexible and flowing, while the participants felt more comfortable in speaking
out their ideas/thoughts. Ideas were told, and two-way interaction was established
between the participants and the facilitators. The communities also became closer in
relationship with the facilitators.

The supporting factor was the strongly held culture and the high availability of sirih pinang.
On the other hand, the obstacle emerged was that sometimes sirih pinang is sold at
relatively high price, making it difficult for the DRR Team or the communities to buy them.
The recommendation to this is that the assistance method to be given to the communities
should be adjusted to the prevailing local wisdom.

Member of DRR Team in Napi Village: chewing sirih pinang helps us to be more relaxed in
communicating and delivering thoughts/ideas/opinions clearly.

Leader of Napi’s DRR Team: in their daily lives, the villagers have been accustomed to
chewing sirih pinang; not having it for more than 30 minutes will make them less spiritful.

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D. Changes during the Process of Community-Based Inclusive Disaster
Risk Reduction

The project implementation of improving vulnerable groups’ endurance against disaster

showed impacts in the form of changes occurring within the communities, among others:

1. The community and schools’ increased knowledge, skill, and concern in the
importance of Disaster Risk reduction with more intense attention focused on PWDs,
children, and women (pregnant and breastfeeding) and including the elders during
disaster. The mindset and treating of vulnerable groups, which in the past positioned
them as objects, have begun to transform. Before the implementation of the program,
women, children, and particularly people with disabilities were not involved in the
planning of activities. People with disabilities stayed at home and relied merely on
their families’ pity. They were even considered a disgrace, leading to the families
concealing their existence. The social and custom leaders showed an affirmation that
vulnerable groups should be considered part of the community.
2. The fast transformation was possibly due to the relatively intense socialization, which
directly involved the vulnerable groups along with their families. Approaching the key
figures has also been an effective way to change the prevailing culture. The approach
was conducted through the term “mandatory” based on the introduced regulations.
Besides, there were also home visits to the families of people with disabilities.

a. Knowledge
The community and schools have begun to understand the importance of being
prepared in regard to the fact that disasters may occur at any time and anywhere,
including in the area they were living in. The village’s DRR Team has gained
knowledge on the mechanism of spreading information about the disaster
occurring; to who and how to spread information through stages—from village
level to the District.

b. Practice
The community and schools have gained skills necessary for dealing with victims,
such as victims with fractured bones—legs, neck—and slight to severe wounds,
including bleeding. These skills were gained from the First Aid trainings addressed
to the Village’s DRR Team and the School Standby Team (teachers and students) as
well as from Disaster Simulations—either in communities or in schools. The
application of the acquired skills were, in fact, implemented not only prior to the
disaster, but also within the community’s daily life, e.g. when someone falls from a
tree or gets involved in an accident.

c. Attitude
The process of the activities emphasized the increasing sensitivity and awareness
on the needs and participation of the vulnerable groups. The Village and School
Standby Team have involved students, people with disabilities, and women.

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 3. PWDs gained confidence and actively participated in Disaster Risk Reduction
programs.

Being involved in disaster risk reduction activities, PWDs were able to utilize their
potential to not only help themselves but also to contribute to the village’s
development. PWDs being able to survive during disaster would become a proof that
PWDs have also contributed in minimizing disaster casualties and risks. The
assumption that PWDs were a burden for the family, community, and government
has eventually transformed; the transformation began to take shape as Handicap
International started operating in the village. The families of people with disabilities
felt that the burden caused by the former social stigma has been reduced.

E. Challenges in Conducting Assistance to the Communities

1. Limited Understanding of Inclusive DRR

The communities in Napi Village, TTS, for example, had limited understanding on the
projects. The members’ different levels of capacity affected their comprehension of the
materials given. One of the existing obstacles was that many members of the community
were unable to communicate in Bahasa Indonesia, thus failing to understand or grab the
meaning of the DRR materials. The action taken regarding the issue was to use simple and
easy-understandable language (using Dawan, their local language), utilizing various media
including pictures, folklores, and games. It is recommended to involve local translators or
cadres who may function as co-facilitators during discussions. Besides, it is also
recommended to provide DRR modules/stickers/pamphlets adopting local terminologies
familiar to the communities. Also suggested is to recruit facilitators who understand local
language, in order to make it easier to conduct assistance and interaction with the
communities.

2. Interaction with people with disabilities

Generally speaking, the communities kept on imposing a negative assumption towards

people with disabilities; they are considered weak and have no capacity—in other words,
they are considered as the ones who could only wait for help to come. Regarding
accessibility, another specific challenge was that there were various social or physical
environmental obstacles limiting people with disabilities to contribute to the community.
Challenges related to communicating and interacting with people with disabilities was also
another obstacle faced by the facilitators in Leloboko Village. Most of people with
disabilities living in the village were the mutes, with many of them also having multi-
disabilities. The action taken was establishing a specific communication with the assistants
or families, as they were closest to them. These obstacles emerged due to social-
institutional problems, the absence of organization or special groups accommodating

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people with disabilities, and economic-financial problems—people with disabilities had no
permanent earning. It is recommended to establish a specific space for people with
disabilities, the communities in general and the DRR Team in specific, the village’s
government, and other institutions/organizations exiting in the village, to learn together so
that there will be a good communication with people with disabilities.

3. Resource support – Visit per activity

The budget allocated for the program’s implementation also affected the concrete
implementation. Visit-per-activity assistance showed different impact from live-in
assistance. Live-in assistance allowed facilitators to engage in every activity of the project
in the village, while also helped to build close relationships with the assisted community. In
the context of this Inclusive DRR project, the facilitators did not live in the community,
regardless the fact that live-in strategy is actually essential to keep the intensity of the
assistance, particularly to vulnerable groups, as well as to build a close relationship with
the community and particularly the DRR Team. The impact of the DRR Team’s minimal
participation would affect other activities, e.g. people might attend contingency plan
discussions but would not be attending simulation activities or vice versa and would keep
on worrying about transportation fare.

To achieve better implementation, Partners should be involved during the program’s

planning, ensuring that each activity can be carried out in accordance with its outputs, by
conducting post-activity evaluations. It is also recommended to update the program flow
according to the hazards existing in the community; ensure that vulnerable groups
participate actively, and to utilize local wisdom.

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Part 5: Building a Partnership Strategy through AID Consortium

The Inclusive DRR project was implemented by adopting a partnership strategy through a
consortium named Inclusive DRR Alliance (AID Consortium). The institutions involved in
AIDC had their own specialization in fields being the issues addressed by Inclusive DRR, i.e
children, women, and people with disabilities. The Project Technical Unit (PTU) was
established to strengthen the advocacy strategy for Inclusive DRR to the government and
parliament. The PTU consisted of representatives of institutions working together in a
consortium, which included HI, CARE International, and Plan Indonesia. The three
institutions shared their knowledge on their specialization, and worked collaboratively to
advocate for Inclusive DRR issues.

As for implementing activities at community level, the three institutions partnered with
local civil organizations. HI partnered with FKKADK NTT who functioned as the
implementing partner for Inclusive DRR projects in schools in Kupang District, as well as
worked with TAGANA Belu in 3 elementary schools in Malaka District. In implementing
Inclusive DRR at community level in Kupang and Malaka, HI partnered with PMPB NTT.
PLAN Indonesia partnered with CIS Timor in implementing Inclusive DRR either in
communities or in schools in TTS.

The strategy adopting consortium model resulted in several notes, which might serve as
lessons for a better partnership strategy.

Good practice 1: Each institution in the consortium had different capacity and
specialization so that they could complement each other.

The three main issues so far faced by each of the institutions could now be addressed
together. The alliance formed by Handicap, CARE, and Plan has been able to narrow the
issues into one single issue to fight for. When the issues were handled under one single
institution, they became one issue—children, women, and people with disabilities. Hence,
each actor in AID Consortium worked together to implement Inclusive DRR missions
starting from community—including schools—to national level.

Good practice 2: Means of Shared Learning

Monthly coordination meetings held regularly became an effective medium for shared
learning. Every beginning of the month, all representatives of the partner institutions
gathered in a meeting to coordinate various issues such as activity achievements and
challenges encountered, and to set up an agreement on plans for the next month, as well as
to find out shared solutions regarding the obstacles currently dealt with.

AID Consortium’s Work Challenges: Adopting inclusive principles to be applied or

adopted into each institution’s policies

Working in a consortium required a relatively long communication chain. It was most

prominent when developing IEC materials. To produce IEC documents, it is necessary to
have the skill to build communication, coordination, and agreement regarding the content

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of the materials. The process consumed quite some time, particularly due to the position
and location of the offices, which were distant from each other. The strategy taken to
address the problem was by making more use of emails and phone calls. The result was
that some of the IEC material development experienced delay or consumed longer duration
than expected/targeted.

Different Institutional Administrative Operational System

The three institutions and partners’ s administrative operational systems were not easy to
be adjusted to each other as each institution has different regulations and standards. The
different operational system caused the on-site activity implementation to be less effective
and efficient. So far, TAGANA mostly worked with HI, with difficulties mostly found in
management and administrative issues. Within the project, TAGANA was involved
organizationally; however, within the individual implementation, its contract was governed
under HI. It caused difficulties for TAGANA as they had little knowledge on the
management and administrative system applying in HI. The difficulty came up because
TAGANA is structurally governed within the organization of the District Office of Social
Affairs and institutionally has no independent organizational management, regardless of
the fact that collaborative work in the form of small grant requires capacity support and
availability of human resources—from leaders, finance managers or accountants.

Lessons learnt

1. Merging various capacities according to their specific skills to support Inclusive DRR
requires commitment not only limited to the project but also a more expansive
institutional internalization.
2. One of the indicators of the principles of implementing Inclusive DRR program is to
minimize the vulnerable groups’ vulnerability
3. Sorted data is necessary to prepare resources and funds to implement Inclusive DRR
4. Selection of assisted area with different characteristic of hazards enriches the
practical work of Inclusive DRR
5. A Joint secretariat makes it easier to coordinate and communicate.

Recommendation:

Each institution may serve as a reference institution for each thematic area they are
specializing in. For example, HI may serve as a reference institution (source) for disability
mainstreaming. Hence, it is better if each institution establishes a knowledge management
strategy (knowledge management unit). When replicating Inclusive DRR, it will be better to
implement it by adopting a partnership strategy in the form of a consortium.

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Part 6: Conclusion

The Inclusive DRR project has applied a comprehensive design and the advocacy process
reached from the community to the national level. This strategy has encouraged thorough
changes in community life, government planning, and national policy. The process of
strengthening community capacity has brought worthy and valuable lessons learnt that
could be utilized as an advocacy tool at the policy level. The project has strengthened
capacity investment for the communities as well as policy decision-makers. Some
highlighted changes are as follows:

Shift of Government Thinking Paradigm

Through its advocacy work, AID Consortium has supported the government to change their
paradigm on disaster management, from a mere responsive to a disaster risk reduction
approach. Previously BPBD allocated budget focused on emergency response, but now they
allocated more budget for prevention and preparedness. Moreover, BPBD tended to have
insensitive development planning, where all documents of disaster management planning
assumed that individuals have common needs. In practice, it meant that the needs of
vulnerable people or groups were often neglected. The project has encouraged government
and other stakeholders to think about different needs of vulnerable groups. They started to
develop more sensitive disaster management plans and consider vulnerable groups. For
instance, disaggregated data was available to develop early warning systems that were
sensitive to the special needs of vulnerable groups.

Strengthening Inclusive Community Resilience

The project has encouraged communities to involve women, children, and persons
with disabilities in DRR activities in the village and school. They are invited to
express their opinion and are involved in the decision making process. Before the
project, these groups were considered to limited capacity and to be subjects of
continuous assistance. This prevailing thinking paradigm has put the vulnerable
group in an indecisive position. The 9 schools and 9 villages targeted by the project
previously considered women, children, and persons with disabilities as a
vulnerable group who has limited capacities to be involved in DRR activities. The
community considered persons with disabilities as a vulnerable group who were the
burden of the family. During the process of project implementation, villages and
schools have considerably changed their view and began seeing vulnerable groups
as active parts with valuable capacities to participate and contribute to DRR
activities.

The sustainability of Inclusive DRR in the village was ensured by the community
efforts to institutionalize a village DRR team and to establish Inclusive disaster
management through village government regulations.

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Part 7: Recommendations

AID Consortium has the opportunity to explore new approaches in the implementation of
the program (e.g. community mentoring techniques) for the next phase of the program and
simultaneously consolidate the program’s progress and achievements. Areas of
recommendation to be considered are as follows:

Efforts to reduce the vulnerability of vulnerable groups need to be supported by

a more robust and comprehensive policy in order to support the implementation
of Inclusive DRR in governments, communities, and schools. The formulation of
development policy initiatives need to be followed by legal documents, which can
serve as references for stakeholders to make strategic decisions concerning
Inclusive DRR. In fact, a national regulation that covers specific issues on vulnerable
groups, especially children, women, and persons with disabilities, is not yet
available. This leads to difficulties in lawmaking in provinces and districts,
especially for the referral lawmaking in the local government areas. Some of the
existing rules mention vulnerable groups in a general manner, but fail to detail the
specificities of the three main vulnerable groups. There is a fundamental question
often asked by the government, which refers to the definition of vulnerable groups,
as often other groups (such as elderly and poor families) are also included in the
vulnerable group categorization.

Re-define the program logic to ensure that it supports the most efficient
interactions and most effective ways of communication between stakeholders in
order to address problems in integrating inclusive DRR into development planning
as well as fulfilling the needs of vulnerable groups. Furthermore the program should
focus on greater involvement of students in Inclusive DRR.

Adapt the program to existing local models and mechanisms. Effective inclusive
DRR requires capacity investment for local implementing partners and relevant
government staff. Plans for such trainings should be done at an early stage and
should consider the pertinent local regulations.

o Paradigm changes in communities, governments and schools, for example, will

not significantly improve community resilience in the face of disaster as a whole
in an area. However, significant progress on these groups will be the foundation
for government policies to adopt an existing model of community resilience.
o The mid-term government development planning cycle lasts 5 years. Advocacy
efforts need to adjust to this cycle in order to have long-term and durable
effects. To encourage integration of inclusive DRR into government annual plan,
projects need to consider the local election moments and conduct proper
mentoring and advocacy approaches to government as needed.
o The project is about changing paradigms and attitudes. It takes some time to
measure the impact of activities or interventions that have been done with
community, school, and governments. The project needs to consider

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 government budget mechanisms, for example the first year, is to ensure that the
budget for inclusive DRR is included in the government budget planning for the
coming year. To ensure means to facilitate communities and governments to
include the budget through existing budgeting mechanisms. On the second year
there are three objectives: 1. To ensure the implementation of the program that
has already been budgeted; 2. To facilitate and advocate budgeting for the next
year; and 3. To evaluate the implementation of the first year program.

Working Politically: Develop a key person analysis from the village level up to the
district to have a solid strategy for program sustainability. In addition, develop an
advocacy agenda to encourage replication and continuation of program by
communities and government.

Develop program goals for more DRR activities focusing on prevention and
mitigation in order to encourage life skills of vulnerable groups to disasters.
Building life skills does not just concern first aid training, reading the danger signs,
preparing contingency plans, and participating in simulation exercises. It also
requires encouraging and ensuring that those skills can be used in activities of
everyday life of women, children, and persons with disabilities in disaster-prone
areas.

Put greater emphasis on monitoring and evaluation. To enable the

implementation of inclusive DRR, longitudinal monitoring generating real-time
information needs to be done in relation to the essential elements of community
resilience. The information produced should be used to determine the community
approach in adjusting to the changing dynamics of local vulnerabilities. For reasons
of legitimacy and sustainability, it will be necessary to build the capacity of local
research groups.

Focus on building capacity of development programs that improve government

services and institutions. Governments have little incentives to improve the
integration of Inclusive DRR capacity in development strategies. Experience in
coordinating and working with the government shows that the dynamics of local
politics in BPBD play a significant role in DRM governance, therefore it is very
important to:

o Build a better understanding of the local political dynamics, including the

identification of development officials, formal and informal, and learn about
their incentives, power structure and interest in the reform of DRM.
o Develop alliances with reformers in government agencies and local politicians
(e.g. local legislators) to improve their technical capabilities in institutional
mitigation.
o Integrate inclusive DRR with programs of local leaders in areas such as health
and education. The high popularity of such programs can attract public support
and generate political capital for politicians who sponsor them.

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A different approach to capacity development
This study suggests that the traditional approach to increase the capacity of government
(invite them to training, placing consultants at government offices, introducing a new
planning process, the formation of DRR forums, etc.) is often not effective in the Indonesian
context. Organizations that support the development agencies should be politically aware
and take advantage of opportunities that arise to try new and innovative approaches.

Time for action: helping partners to implement their plans. The time of
increasing awareness and "plan the plan" must be ended; inclusive programs should
give more attention and resources to the actual implementation. The following
questions can help us to focus on the implementation:
o How do you ensure that people mobilize local resources to implement
activities?
o What mechanisms do you use to ensure external partners to support the
implementation of DRR Inclusion in the community?
o What is being done to ensure that contingency plans provide guidance to the
public and other actors of the crisis?

Empowerment of persons with disabilities and women to be able to organize

their own group need to be initiated. Relying on the data collection form will only
continue to put them in the position of being a vulnerable group. Community Service
Organizations need to encourage the establishment of "sister NGOs" formed by and
for persons with disabilities and women.

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References

UNDP-DRM Programme, “Disaster Management-Preparedness Methodology in

Assam”,available at http://data.undp.org.in/dmweb/Article-DRM%20Assam.pdf

Handicap International (2008). Mainstreaming Disability to CBDRR Manual. 5

www.adpc.net/pdrsea/pubs/curriculum-cbdrm.pdf

The Sphere Project (2011). The Sphere Handbook 2011, available at

http://www.sphereproject.org/content/view/720/200/lang.english/

United Nations - Convention on the Rights of Persons with Disabilities and Optional
Protocol. Provided in the CD-ROM (in Legal Instruments folder)

Convention on Elimination of all Form of Discrimination Against Women, CEDAW

Convention on the Rights of the Child, CRC

School based disaster management. World Vision International Indonesia. 2008

Disability inclusiveDisaster risk ManageMent Voices from the field & good practices
www.DiDrrn.net www.cbM.org

Making Disaster Risk ReductionGender-Sensitive. Policy and Practical Guidelines. Publised

by UNISDR, UNDP and IUCN. Geneva, Switzerland, June 2009.

Child led disaster risk reduction. practical gides. save the

children.www.savethechildren.net

Child centred disaster risk reduction and climate change adaptation: Roles of Gender and
Culture Working paper No. 2 Katherine Haynes, Jonatan Lassa and Briony TowersDisaster
Risk Reduction through Schools:

Local Governments and Disaster Risk Reduction Good Practices and Lessons Learned A
contribution to the “Making Cities Resilient” Campaign. UNDP 2010.

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