60828581 Mentawai Response Lessons Learned Arwin Soelaksono

Mentawai Response Lessons Learned

A Spark of Hope to Rebuild Mentawai

Recovery Network United Nations - Office of the Humanitarian / Resident Coordinator (UNRC/HC)

FOREWORDThere are so many things to be learned during responding Mentawai following the earthquake and tsunami. The destruction was massive and the challenge on responding it was enormous. The good thing in responding Mentawai is the agencies responded to West Sumatra Earthquake in 2009 was still in Padang or Padang Pariaman. The relationship between agencies and government which has been developed for months has also given contribution so that response to Mentawai was quite fast. These lessons learned also capture the uniqueness of Mentawai response. The strong joint effort amongst agencies is one of the benchmarks of the response. This can be seen not only in the emergency phase but also in the government early recovery program. The evidence of cooperation amongst agencies can be found in Mentawi Response website http://www.mentawairesponse.org which is the source of this lessons learned document. In this website, Recovery Network UNRC/HC put situation reports, minutes of meetings, maps, 3W, contact directory and other information which needed to understand more on Mentawai response. During 3 months on responding Mentawai, seeing strong cooperation amongst agencies and also with the government is encouraging everyone. The rebuilding of Mentawai would be a long process due to the areas years of under-development and difficult terrain. But this spirit of joint effort gives a spark of hope in rebuilding Mentawai. January 31, 2011

Arwin Soelaksono Deputy Coordinator Recovery Network United Nations - Office of the Humanitarian/Resident Coordinator (UNRC/HC)

Mentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai

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Foreword Contents Executive summary Acronym and abbreviation 1. Introduction 1.1. Background 1.2. Damages and losses 1.3. Geographical condition Reaching the tsunami affected areas 1.4. People of Mentawai From forest people became the coastal people 2. Government and agency response during emergency phase 2.1. Government response and policy Provision on basic needs Managing transportation in the midst of bad weather Perplexity on agency registration 2.2. Government policy on international assistance Government can handle by their own Difficulties on finding international donor Effect of the government policy to the temporary shelter 2.3. Agencies Coordination in Padang and Mentawai Provision of trusted and reliable information Promoting joint-effort initiative Activation of working group Handover the working group leadership to local government 3. Supporting the IDP on the relocation area 3.1. The IDP location and the relocation 3.2. Problem, challenges and solutions Transportation Telecommunication Health service WASH 3.3. The strategy to support IDP on the relocation area 4. Agencies response on intersecting government early recovery program 4.1. Government early recovery program 4.2. Agencies response 5. Conclusion and recommendation References Figures Further readings Acknowledgment Annex: Agencies response to the early recovery program

1 2 3 4 6 6 7 8 9 11 12 13 13 13 14 14 16 16 17 18 19 19 20 2122

23 23 24 24 25 26 26 27 29 29 30 32 33 34 34 34


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EXECUTIVE SUMMARYThere are some important facts on Mentawai that should be understood if we want to rebuild Mentawai. The geographical condition, the people of Mentawai who actually not fishermen but living in the coastal area. Even after they settled and populated the area near the sea, their livelihood is still as tillers, not changing from what they have been doing 30 to 40 years ago before they were relocated to the coastal area. It is also interesting why such abig number of families are willing to relocate back to the forest. This document also discussed how government and agencies were responding to the Mentawai disaster. Both have commitment to save live as many as they can get. How government and agencies are facing the same challenges in sending their response to Mentawai due to natural caused hindrance. Both government and agencies are working on their best to secure the provision of basic needs. Understanding that everyone has their own role and connect to each other due to the need of support and sharing resource, immediately solve some perplexity such as the sharing transportation support including administrative modality. This document also highlighted the government policy on international aid. What is the implication of it and how agency should respond to this policy. The fact is if Mentawai was open for international donor since the early stage the rebuild would be faster. Joint effort amongst agencies is the benchmark of Mentawai response. This document will analyze this phenomena and the evidence of this strong cooperation spirit. This joint effort made the working group run their program smoothly despite big challenges in the implementation. The joint effort was also proven when supporting the IDP in the relocation area. This joint effort helps the agencies to slowly overcome the huge challenges in health provision, transportation, telecommunication and WASH. When the government launched the first early recovery program in Indonesia, which Mentawai is the pilot project, the agencies who closely work in working groups immediately respond to it. Government and agencies are confidence on the collaboration program when they can find intersecting on their programs.


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ACRONYM AND ABBREVIATIONBAPPEDA BAPPENAS BNPB BPBD BPPT CDRM & CDS CFK CRS CWS DALA DRR DRRWG ECLAC GITEWS GKPM GMF IASC IDP IOM JUKNIS KBKK KM MDS PB PKMT PMI POKMAS PU PUSDALOPS PB RENAKSI Badan Perencanaan Pembangunan Daerah (Local Development Planning Agency) Badan Perencanaan Pembangunan Nasional (State Ministry for National Development Planning) Badan Nasional Penanggulangan Bencana (National Agency for Disaster Management) Badan Penanggulangan Bencana Daerah (Provincial or District or City Agency for Disaster Management) Badan Pengkajian dan Penerapan Teknologi (Agency for the Assessments and Application of Technology) The Center for Disaster Risk Management and Community Development Studies HKBP Nommensen University Cipta Fondasi Komunitas Catholic Relief Services Church World Service Damages and Losses Assessment Disaster Risk Reduction Disaster Risk Reduction Working Group Economic Commission for Latin America and the Caribbean German Indonesian Tsunami Early-Warning System Gereja Kristen Protestan Mentawai Green Music Foundation Inter-Agency Standing Committee Internally Displaced Person International Organization for Migration Petunjuk Teknis (Technical Guidelines) Kelompok Bakti Kasih Kemanusiaan Kilo Meter Mennonite Diakonia Service Penanggulangan Bencana (Disaster Management) Pemukiman Kembali Masyarakat Terasing (resettlement for isolated community) Palang Merah Indonesia (Indonesian Red Cross) Kelompok Masyarakat (A group of community from the same village consists of 20-25 affected household depending on geographical and local conditions) Pekerjaan Umum (Public Works Office) Pusat Pengendalian Operasi Penanggulangan Bencana (Center of Operational Control for Disaster Management) Rencana Aksi Rehabilitasi dan Rekonstruksi Pasca Bencana Serta Percepatan Pembangunan Wilayah Kepulauan Mentawai Provinsi Sumatera Barat tahun 2011 2013 (Action Plan for Rehabilitation and Reconstruction Post Disaster and Development Acceleration for Mentawai Islands Area in West Sumatra Province 2011-2013) Recovery Network Satuan Kerja Perangkat Daerah (Regional Working Unit)

RN SKPD


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SWG TPT UN OCHA UNRC/HC WASH WFP

Shelter Working Group Tim Pendamping Teknis (Technical Support Team) United Nations Office for the Coordination of Humanitarian Affairs United Nations - Office of the Humanitarian/Resident Coordinator Water Sanitation and Hygiene World Food Program


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1. INTRODUCTION1.1. BackgroundA 7.7-magnitude earthquake which epicenter located at 3.484S, 100.114E struck the Mentawai Islands off the western coast of Sumatra, Indonesia on October 25, 2010 at 9:42:22 PM. The depth of quake's epicenter was on 20.6 km (12.8 miles) pushed tsunami waves of up to 4 meters (12 feet) into the southern part of Mentawai Islands, driving sea water more than a quarter-mile inland in spots. A number of aftershocks measuring 5.0 or more registered in the hours immediately following the first quake. There were 2 buoys[1] of early warning system of the German Indonesian Tsunami Early-Warning System (GITEWS)[2] program already installed near to Pagai Selatan island. Those 2 buoys, however, were not connected to the Indonesian tsunami early warning system, therefore, no tsunami warning were sent by those 2 buoys after the earthquake, as reported by the Balai Teknologi Survei Kelautan or Institute of Marine Survey Technology from Fig. 1.1 Earthquake and tsunami affected areas at Mentawai Islands Badan Pengkajian dan Penerapan Teknologi (BPPT)[1] or Agency for the Assessments and Application of Technology. But other source reported differently. Allvoices [3] reported that according to the data, tsunami early warning system functioned properly. At 9:47 PM on that night, just 5 minutes after the earthquake recording devices recorded the earthquake, early warning systems based in Jakarta sent tsunami warnings. The problem is, the warning came out 39 minutes after the quake, or just a few moments after the tsunami waves struck the Mentawai Islands. Furthermore, the early warning system has not been very effective since the epicenter of the quake was too close to the beach. Mentawai tsunami struck just minutes after touching early warning buoys.


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It was predicted that most victims were still sleeping when the tsunami swept their houses Those who happened to be alert also found difficulties to reach safer area or higher ground due to the darkness as they have no electricity. Mentawai islands are located around 150 km from the Sumatra mainland[4]. The main transportation from Mentawai to the mainland is by ship which usually takes 10 to 12 hours travel time[5]. Being separated by distance and such travel time, Mentawai islands are rather isolated as no information regarding the disaster received in Padang immediately after it took place. People might suspect that a disaster has taken place in Mentawai, but calling to Mentawai to gather the information was difficult. Mobile connecction in Mentawai was also poor and unreliable. It was only around 9 hours after the disaster, or around 7 AM on the next day, that the news finally reached and circulated amongst Padang citizens. Interestingly in that very morning Badan Penanggulangan Bencana Daerah (BPBD) or City Agency for Disaster Management Padang City conducted disaster management simulation for students to develop disaster preparedness among them. This was a monthly event held at the 26th every month. The date of 26 was chosen as a remembrance of the tsunami in Aceh on December 26, 2004 and other big disaster which happened shortly afterwards, like the Yogyakarta 5.9 magnitude earthquake on May 27, 2006.

1.2. Damage and lossesDamage and losses are being reported after the joint assessment team of BNPB, BPBD Pusdalops PB, Bappenas, as well as the Provincial government of West Sumatra and Mentawai District on November 22, 2011. . Below are some information on casualties, damage and losses affected by the earthquake and tsunami based on those assessments. Number of casualties and IDP affected by the earthquake and tsunami are as follows: [6] No 1 2 3 4 5 Subdistrict Sipora Selatan Pagai Selatan Pagai Utara Sikakap Evacuated to hospitals in Padang Total Died 23 184 292 10 Injuries Missing 3 18 IDP 1,248 5,495 2,129 2,553

5 12

509

17

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11,425

The team also conducted assessment on housing and came out with the findings ofdamaged houses due to the disaster amounted to 879 severely damaged, 116 moderate and 274 lightly damaged, bringing a total of 1,269 houses damaged.[7] TheMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 7

most affected area was Pagai Selatan as the number of severely damaged houses were 367 houses[7]. This situation is reflected in the number of IDP as shown in the table above. Based on the disaster valuation using ECLAC methodology conducted on November 22, 2010 the damage and losses were calculated and amounting to USD 38.8 million. The biggest lost was in the economic sector and followed by housing. Below is the table of value of damage and losses in USD. No 1 2 3 4 5 Sector Housing Infrastructure Economy Social Cross-sector Total Damage 11,712,681 1,929,444 5,935,983 1,783,157 8,845,933 30,207,199 Loss 1,156,944 200,160 7,155,308 68,789 20,889 8,602,090 Total damage and losses 12,869,626 2,129,604 13,091,291 1,851,946 8,866,822 38,809,289

The government followed up this valuation by producing a more detail recovery plan based on these 5 sectors division. The budgeting will be based on these 5 sectors as well. Later on agencies will integrate their activities to the government program based on the same division. This is to ensure that investations /activities both from the government and non-governments can blend and yield maximum and sustainableimpact. The agencies plan on responding government plan will be discussed later on chapter 6.

1.3. Geographical conditionMentawai Islands is a Kabupaten (district) of West Sumatra Province. Located at some 130 km to the west of the west coast of central Sumatra and the geographical position is between 05500 - 32100 South Latitude and 983500 - 1003200 East Longitude. Total area of this district is 6,011 km2 and with 1,402 km of coast line[7]. Mentawai Islands district consists of 4 big islands and around 98 smaller islands. The 4 big islands are Siberut, Sipora, Pagai Utara and Pagai Selatan. These islands administratively divided in 10 kecamatan (sub-district),43 villages and 202 subvillages[7]. Amongst those 10 sub-districts, Pagai Selatan sub-district is the largest one with 901 km2 or almost 15% of the total area. This Pagai Selatan sub-district which is on the Pagai Selatan Island was the most affected area as can be seen in the largest affected people live as IDPs. The main transportation connecting Mentawai Islands to Padang the capital city of West Sumatra province is ship. The nearest sea port for those ships is at SikakapMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 8

which is at Pagai Utara Island. However, since the most affected areas are around Pagai Utara and Pagai Selatan, governments coordination point is set up in Sikakap, Pagai Utara. Relief agencies working in the area are also establishing their operation base in Sikakap. Coordination meetings and also supply and logistics management are conduct in Sikakap. Reaching the tsunami affected areas Pagai Selatan can be reached from Sikakap by small motorized boat in 5 minutes. This narrow channel can be crossed every day regardless of the weather. There are 2 sea ports at Pagai Selatan to Sikakap i.e. Polaga and Logpon. Logpon is bigger than Polaga since big ship can land in Logpon port. Therefore if agencies bring their vehicles from Padang using big ships, they will land at Logpon port. Meanwhile the capital city of Mentawai Islands district is Tuapejat. Tuapejat is at Sipora Utara sub-district and it takes 4 to 5 hours from Tuapejat to Sikakap.Fig.1.2 Distance from Padang to the disaster affected area

Thus, there are 3 important places in Mentawai, namely Tuapejat, Sikakap and Pagai Selatan. All government offices including BPBD Mentawai are in Tuapejat. While the sea port closest to Pagai Selatan is Sikakap with its sea port and NGO offices and the last is Pagai Selatan which is the most affected area.

"Journey from Padang to Sikakap took 13 hours, while the journey return took 32 hours due to bad weather". Nova Ratnanto (Recovery Network UNRC/HC), after he returned back to Padang October 30, 2011

Another means as an alternative on providing emergency assistance to Mentawai is air transportation using helicopter. Palang Merah Indonesia (PMI) or Indonesian Red Cross sent the helicopters from Muko-Muko District at Bengkulu Province, instead of Padang. Muko-Muko was chosen as PMI base to send the helicopter to Mentawai since the flight from Muko-Muka to Pagai Selatan is only around 30 minutes, which is 1 hour shorter if the assistance has to be sent from Padang. PMI already prepared Muko-MukoMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 9

District General Hospital to give proper medication to those who evacuated from Mentawai[11]. The maps of Pagai Selatan and Muko-Muko District are shown in below and the next page. In Figure 1.3 shows the distance of Pagai Selatan Island to Padang and to MukoMuko at Bengkulu Province. In Figure 1.4 shows the location of the most affected tsunami area in Pagai Selatan Island and Posko Bantuan PMI or PMI aid post at MukoMuko.

Fig.1.3 Distance of Pagai Selatan Island to Padang and to Muko-Muko


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Fig. 1.4 Location of the most affected tsunami area and PMI aid post at Muko-Muko

1.4. People of MentawaiIn the casualties report it is mentioned that 509 people died to earthquake and tsunami. It is due to their settlement in the coastal line. One might asked then, do they ive at the coastal area because they are fishermen? Interestingly the main livelihood of the Mentawai people is not fishermen but tiller. Many of them have to walk around 1 to 3 hours daily to get to their farm. Questions raised on why they are not work as fishermen instead of tiller or why they have to live far away from their farm. To answer this question we have to understand their origin; where they are from and what their livelihood was. It is told that all Mentawai people now inhabiting Sipora, Pagai Utara and Pagai Selatan were originally from Simatalu at Siberut Utara. According to the history due to tribal war some of the clans have to move from Simatalu, migrated to other islands and opened a new settlement at Sipora, Pagai Utara and Pagai Selatan. In the new settlements they still maintained their social life system in their tribe called uma. Literally uma is a big house, but in daily practice the uma, where the head of the clan lives, is the place for all members of the tribe to conducts meetings and ceremonies [8]. Hung on the uma wall and loft are dozens of skulls wild boar and monkeys and tortoise shells, indicating how many times the party or ceremony was held[9].


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As social structure was quite strong in their communities as it can be seen from the way they live in a communal system. They live closely with their clan and they still maintain their original livelihood which they had already known for many years that is tiller and gatherer. From forest people became the coastal people... Therefore it is clearly understood why the Mentawai people have highly dependencycy to the land. As gatherers and tillers they managed to find the land which is suitable to their crop or plantation. Women also work as tillers so they work to cultivate taro, bananas and other crops as food. They cultivate other plants as sago as their main food since their earlier day in Siberut which flourished in swampy areas. In the marshy land they cultivate crops such as coconut, durian, jackfruit and other fruit. On Sipora, Pagai Utara and Pagai Selatan islands, grows fruit trees and commodity crops such as rattan, clove, patchouli and cocoa; and therefore the need for the land are even bigger. In the livestock area, the majority of the Mentawai people still raise pigs and chickens in separate locations, but relatively not far from their settlement [12]. If the Mentawai people are so adhere to "Actually we are river upper-stream their land due to their livelihood as people, but the government relocated mentioned above, it is quite interesting to many of our community to the coastal understand why they then settle along the area." Yosep Sarogdog. (Yayasan Citra coastal area. They moved from forest Mandiri).[13] areas which usually located around the upper-stream to the coastal area during 1970s and 1980's. During that time, the Mentawai people especially in the island of Siberut have been relocated several times through government program known as Pemukiman Kembali Masyarakat Terasing (PKMT) or resettlement for isolated community. In general PKMT was put into motion under the idea that the government can serve better the isolated community by giving them more access to government services and public welfare. To achieve the goal the government concentrated the communities who lived scattered in the forest and relocated them in the coastal area. Each household, through PKMT project, received a house and 1 hectare of land for farming or agriculture. But some studies reported that PKMT project only changed the traditional settlement pattern of the Mentawai uma system to individual settlement. The program also changed the previous settlement pattern (in the forest, and near to water source)to the coastal area, but with no significant change in their welfare{13] . .. and become forest people again Then it is interesting to get a more thorough understanding of why the government issued a decree [14] to relocate the tsunami affected people to a safer area[15]. A safer area in this respect is interpreted as returning to the forest. The relocation will be discussed further in Chapter 3.


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2. GOVERNMENT AND AGENCIESRESPONSE DURING EMERGENCY PHASE

2.1. Government response and policySoon after discovering that tsunami had struck Mentawai islands, West Sumatra BPBD activated the Pusat Pengendalian Operasi Penanggulangan Bencana (PUSDALOPS PB) or Center of Operational Control for Disaster Management. From the national level, Badan Nasional Penanggulangan Bencana (BNPB) or National Agency for Disaster Management came on the same day and worked closely with local government institution developing strategy and policy to support Mentawai. Provision on basic needs Government worked fast on mobilizing their resources for search and rescue. Governor, local government and BNPB prioritized to secure the basic needs of the tsunami survivor as can be seen on the 4 agreed points to be carried out during the emergency phase. Those 4 agreed approaches are, secure food provision, proper medication for wounded people, finding the missing person and temporary shelter Government agencies have managed providing basic needs to all IDP sites, there provision. The weather was a challenge is no areas unreached and unassisted to everyone since raining and billows although more assistances remain during the early weeks on emergency hampered by bad weather. Sutrisno phase. On general coordination (BNPB) on General Coordination Meeting meeting in Padang, 1 week after the in Padang November 2, 2010. disaster, BNPB declared that the government succeed on providing basic needs for the IDPs. Managing transportation in the midst of bad weather Transportation was a big challenge during the emergency phase. Despite the limited sea transportation due to small number of ships and boats belong to the government and also which belong to the local people whose swept by the tsunami; the bad weather obstructed the logistic distribution. The weather was really bad which port authority allowed only selected ship may sail. By the end of October 2 boats were reported flipped due to rough sea. Fortunately there were no casualties. Several times helicopters had to return due to strong winds. The government gathered their resources to transport the logistics, agencies and volunteers as well. The government provided 2 ships that departed everyday from Teluk Bayur and Bungus seaports in Padang to Sikakap. The government also provided 8Mentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 13

speedboats, 15 long boats, 7 helicopters to support the logistic distribution. To add more boats, government provided free fuel for local agencies that have boats for distributing the logistic support. Government through Pertamina - state-owned oil company - provided free fuel for 2 weeks to some local agencies. Some of those local agencies such as Yayasan Citra Mandiri (YCM), CDRM & CDS got fuel for their boat or local churchs boat, to distribute logistic support to their working area. During the emergency phase, questions raised on why the transportation mostly by the sea and not maximizing the land transportation. As everyone understood that many times the distribution could not be done until the sea is safe and the weather is clear. There are some problems on using the road such as muddy area which difficult to be passed and some broken bridges which blocking the traffic. Some anecdotal information was mentioned that to use the road in Pagai Selatan should have permit from PT Minas Pagai Lumber which have concession rights on the forest and including the road. Local government had made agreement with company to use the road for logistic transportation. Furthermore government also reached agreement with the company that the IDP camp at KM 37 to be located at the concession area. Perplexity on agency registration Around the first week of emergency phase, agencies felt uncomfortable situation with the West Sumatra BPBD due to the modality of agencies registration. This situation was caused mostly because of miscommunication and misunderstanding of on the system which already in place since the West Sumatra Earthquake response in 2009. Many agencies responding to Mentawai were already registered in Tim Pendamping Teknis (TPT) Technical Support Team. Details of those agencies already share to the BPBD as soon as they just established on March 2010. But at the time mentioned above, the situation was difficult for BPBD. They got many phone calls from embassies whose citizen was in Mentawai when the tsunami struck. Most of them were tourists and surfers as Mentawai are famous with its surfing resort. The tension getting bigger when humanitarian workers from Mercy Malaysia has been reported missing after they left Sikakap seaport for logistic distribution. When journalist knew this, the news spread out wider. This gave more tension to PUSDALOPS PB as they are fully in-charge of traffic of people and logistics of those who will go to and from Mentawai. This situation became worse which just less than a week following the disaster the government found out that the volunteer in Mentawai were too many. There were 1,500 [16] volunteers had been departed from Teluk Bayur Seaport in Padang off to Mentawai. This is not including military personnel and police officers. The number of volunteers definitely was look big since the number of total IDP in Mentawai is 11,425 or it means 1 volunteer for 8 IDPs. Many of those volunteers eventually became a burden to the government since the government had to provide daily food for them. . The volunteers instead of buying individual logistics such as food and drinking water which available in many shops around there, they prefer to get it from the government. It was very difficult for BPBD to distinguish between volunteers and NGO staffs.


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Therefore PUSDALOPS PB tightened the permit in order to prevent that kind of volunteer come to Mentawai. Then PUSDALOPS PB asked a letter from each organizations present in Padang, listing the names of staff and items of relief aid that would go to Mentawai. Then the confusion started. This requirement would not be applicable to all local, national and international agencies and UN agencies who already registered even a year ago. Almost all of these organizations already work more than a year with West Sumatra government and BNPB. They have already known also by the BPBD since some projects already carried out as a joint program with BPBD. The requirement will be applicable to such volunteers mentioned above. To solve to problem Recovery Network UNRC/HC in close coordination with UNOCHA discussed this issue with BPBD. Later on BPBD agreed to simplify the process. All local, national and international agencies that will mobilize their personnel to Mentawai both through sea and air, only need to register their personnel by filling the travel form and show their organization ID Card (with pass-photo on it) in the seaport/airport. The travel form canb be acquired at West Sumatra BPBD office or by download at http://www.mentawairesponse.org . After the personnel fill in the form and make 2 copies of it, they can submit 1 copy to BPBD or email it to [email protected] then Recovery Network UNRC/HC will pass the copy to BPBD. The other copy should be submitted to Teluk Bayur Seaport or Minangkabau International Airport officer by showing their organization ID Card. This system was eventually well proven to prevent unprepared or unequipped volunteer to come to Mentawai but on the other hand no hindrance for agencies personnel.

Fig. 2.1 NGO staffs and volunteers queuing to board the ship to Mentawai at Teluk Bayur Padang seaport, 40 hours following the disaster.


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2.1. Government policy on international assistanceIndonesia suffered due to insistently disasters. During last October 2010 at least 3 big disasters struck Indonesia. Started at October 4, Wasior swept by flash flood, then at October 25, the tsunami struck Mentawai. And the last in October was on the 26th, when Mount Merapi erupted. The news on these disasters reached many countries through newspapers and television. It was clearly understood that some country were moved to give their assistance. Mentawai Islands district has been in an under developed condition as for a long time, evident in the condition of its peoples welfare, degree of education and poor condition on public infrastructure. It is a huge gap if the district is compare to its province in the Sumatra mainland. The sea, separated the district for around 10 hours from the mainland, seems to separate Mentawai for a few years in term of development. . When disaster struck, causing more than 500 people died and more than 11,000 people became homeless, this condition brought some international donors committed to support. Countries such as Australia, Aljazair and USA offered their assistance to BNPB[17]. Government can handle by their own Even West Sumatra Governor and BNPB had been offered for international assistance during the emergency phase, they still believe they can handle Mentawai with their own resource. Therefore no international aid needed[18]. BNPB is confidence that there is no need for international volunteers since local volunteers are more skilled and work faster during the emergency, especially for Mentawai Islands. West Sumatra Governor also confidence that local government can handle the IDPs[17]. From the BNPB point of view many international donors put their own interest in their aid, therefore BNPB have to carefully select which international aid can be accepted[18].Disaster is an attractive stage, if we open, everyone will come and bring their own interest. We will try to limit and select everyone including their agenda Sutopo Purwo Nugroho, BNPB, November 1, 2010[18]

Even though government still open for assistance during the emergency phase in other form such as food aid. Government will distribute it to the affected people. Government prefers to receive international aid during the rehabilitation and reconstruction phase. In responding Mentawai disaster, during the emergency phase the Government of Indonesia will not asking for international aid. But on the other hand will not reject international assistance if the aid is in-line with the government rules. This policy on not asking and not rejecting have other consequences will be discussed in the next paragraphs below. Also the policy to receive international assistance only during the rehabilitation and reconstruction will create difficulties for agencies as can be mentioned below.Mentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 16

Difficulties on finding international donor One of the success key in finding donor is the momentum. In this case is the donor for the humanitarian operations for responding the disaster. The momentum has to be created soon as the disaster struck. As a nature of humanitarian operations the initiative should be commenced very early just after the disaster. This is important to save and help as many affected people as possible and in the same time to secure the continuity of the operations. It can be seen as in Mentawai response around 50 NGOs rushed to Mentawai for assessment. The number is excluded with agencies who came without coordination with local authorities and Recovery Network UNRC/HC. This assessment is important for the basis of the proposal the target and its activities will be relevant and applicable during the implementation. It always took time to process the proposal until the funding can be received. Some organizations can receive it as soon as they send the proposal while other agency has to wait for several months. But the key is timing. As we know that so many disaster nowadays there are so many agencies sending their proposal to request funding support. When the government declared that Mentawai can be handled directly by the provincial government, agencies pleading for international funding suddenly lost their relevance for intervention. Donors will look for other disaster where the government declaring that supporting response is needed and required. Soon after the Government of Indonesia stated that local resource was sufficient for responding the Mentawai disaster, Mentawai was immediately out of the donors radar. The agencies lost their timing also when the government declared that they will likely need the international donor in Mentawai later on in the rehabilitation and reconstruction phase. This approach will be difficult for many agencies since they need time until the program implementation on the field. There are some steps which agencies naturally have to follow i.e. assessment, proposal development and submission, donor approval, Memorandum of Understanding with the local government, recruiting of field staffs, selecting beneficiaries and then the program implementation. By understanding this long process prospective donors should be approached immediately after the disaster struck. Another momentum which should be considered on this effort is developing proposal before December. It is common in USA or in the European countries that agencies looking for funding around Christmas. To catch the Christmas spirit on giving, many agencies sending appeals to give for thousands of good causes[20]. Mentawai tsunami struck on October 25, 2010 and definitely it was a good timing to produce a proposal to be sent on November. As the result of the government policy, the agencies found difficulties on finding international aid. Another identified problem is that apparently some critical needs cannot be addressed properly. For one example is the construction of temporary shelter as will be mentioned below.


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Effect on government policy to the temporary shelter

As earlier mentioned in Chapter 2.1, the Governor, local government and BNPB prioritized to secure the basic needs in 4 areas. One of the areas of intervention is temporary shelter. The temporary shelters are currently under construction. As per October 2010, total temporary shelters needed are 1,297 unit and BNPB committed to build 512 units in Pagai Utara and Sipora Selatan while PMI committed to build 516 units in Pagai Selatan. BNPB and PMI are confident to complete the construction before Christmas 2010. BNPB through PT Waskita Karya and supported by the TNI - Den Zeni Tempur-2 Korem 032/Wirabraja already finished 450 unit. Meanwhile PMI, confident with their proven success method in Padang Pariaman following the 2009 earthquake disaster in West Sumatra, is using the same approach in Mentawai. In Padang Pariaman,PMI and IFRC completed their commitment of building more than 13,000 unit temporary shelter, which makes the 516 unit looks very small. Therefore the temporary shelter target in Mentawai during the emergency phase looks achievable; and from the government point of view no international aid needed. But the actual progress by the timethis report is written on late January 2011, PMI has only completed 23 units of temporary shelter while roughly another 325 units are still under construction. During the general coordination meeting in Padang on January 19, 2011 BPBD invited agency to be prepared to take over the job if PMI cannot deliver their commitment by end of February 2011. It is important to understand why PMI progress was very slow compared to their earlier project which is 25 times bigger. And also it is important to understand why the government changed their policy in January 2011 by requesting international aid intervention even before the rehabilitation and reconstruction phase. In the Padang Pariaman project, Perhaps PMI should reconsider and rethink PMI was not alone as the about the methods / approach used. Again, International Federation of Red should PMI feel difficult to meet the initial Cross and Red Crescent Societies target in the given time-frame and in the light (IFRC) led their temporary shelter of the situation, the BNPB will take over the team. IFRC with their long term work. Harmensyah (West Sumatra BPBD) experience and strong January 19, 2011 infrastructure had proven their ability to complete more than 13,000 temporary shelters as per agreed schedule. But in this project IFRC is not supporting the PMI Mentawai team. PMI is in-line with the government policy of not asking support from international donor , while on the other hand IFRC cannot support if there is no request for assistance. On October 2010, Catholic Relief Service (CRS) came to Mentawai and willing to support the temporary shelter work. CRS had completed 11,319 temporary shelters in Padang Pariaman District and Agam District. Knowing that international support was not welcomed, CRS then withdrew their plan. Other agencies also cancelled their plan due to the same reason.


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On the January 19, 2011 coordination meeting the current progress of the completed temporary shelter just achieved 5 % from the previous commitment to be completed before December 25, 2010. This condition gave immense pressure to BPBD which then turned to the BNPB take over the unfinished job.

2.3. Agencies Coordination in Padang and MentawaiCoordination in Padang and in Sikakap initiated on October 28, 2010, when agencies, facilitated by Recovery Network UNRC/HC, conducted the first meeting with BPBD. The coordination carried out by Recovery Network UNRC/HC was only temporary until UN OCHA came to Padang and Sikakap to taketheir role. Coordination in Padang is simpler than in Sikakap since in Padang the regular coordination is already in place. At that time there was still more than 50 agencies in Padang supporting the 2009 earthquake. While in Sikakap Recovery Network UNRC/HC team has set up coordination structure and mechanism with BPBD Mentawai. West Sumatra BPBD Province asked for assistance to handle the needs of agencies for coordination. Recovery Network UNRC/HC then supported BPBD to conduct coordination, as BPBD was overwhelmed with all efforts on search and rescue, logistic distribution, situation update and formulation on recovery strategy with the governor office. West Sumatra BPBD provided their office for UN OCHA to conduct All local and international agencies can coordination. This office was for directly coordinate with local government but general coordination meetings, it should be under coordination of UN and working group meetings and using cluster system. For the time being agencies will be led by UNRC/HC until UN provides any kind information on OCHA come to Padang. Ade Edward Mentawai status. Through this (PUSDALOPS PB) on the first coordination office, agencies can have the meeting in Padang. facilitation to connect PUSDALOPS PB and for administrative needs on mobilization to Mentawai. Those are some important initiatives and activities which were carried out during the emergency phase and early recovery phase as will be mentioned below. The initiatives and activities are provision of trusted and reliable information, promoting joint-effort initiative, activation on working group, and handover the working group leadership to local government. Provision of trusted and reliable information In every emergency and relief phase, valid and trusted information is always very important to be provided. There should be a way that the government and agencies can have trusted, up-to-date situation from the affected area. During moment like this,Mentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 19

information will be plenty but to choose on its validity is always a challenge. The information should be easy to access and can be used for information exchange as well. Therefore to address these needs Recovery Network UNRC/HC supported BPBD by providing a website for collecting and sharing all information regarding the Mentawai response. Every stakeholder can share information about resource and needs in www.mentawairesponse.org This website just created 5 days following the disaster, and in this website everyone can download maps, minutes of meetings, situation reports, contact list and other important information needed by all stakeholders. This information provided in bilingual i.e. in Bahasa Indonesia and in English. Following the website another communication tools i.e. the http://groups.google.com/group/mentawairesponse mailing list was created. Maintaining the website and the mailing list is a strenuous work since it is not only just uploading the information. The process starts from collection of information, checking its validity, analyzes and after it is confirmed then the uploading or sharing can be done. As a result of this by the end of November 2010, visitor from 42 countries, mainly Indonesia, Singapore and USA have sought information from the website. While for the mailing list more than 300 people find this mailing list is beneficial to their work and sees it as a reliable platform to sharing information. Maintaining this website and mailing list does not meant to hinder other to provide such information system like this. But it is merely to provide trusted and reliable information, and can be use for coordination tools. Therefore it is important to provide such communication tools as soon as possible that every stakeholder can rely on. Promoting joint-effort initiative Most agencies already work in West Sumatra following the 2009 earthquake disaster have generally understood the government system, local resource and also have the experience in working together with other agencies. The cooperation has been started in working groups months back. One of the uniqueness of West Sumatra recovery is the joint effort and combined strategic program. It is beyond on just avoiding competition amongst agencies or overlapping program but it is more on how agencies can interact and maximizing their relationship to produce better program. Way back to a year ago these initiatives started from the Shelter Cluster then continued with the Shelter Working group. The joint effort initiative then replicated to other working group and other programs. For instance is the Disaster Risk Reduction (DRR) Working Group. In September 2010 DRR Working Group carried out a training program. The Training for Facilitators program was carried out and with collaboration of 11 organizations; some of them are Save the Children, Mercy Corps, Jamari Sakato and IDEA.


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This time on responding Mentawai, the joint efforts again become an important issue for most of the agencies involved. This initiative was discussed in the coordination and working group meetings and clearly seen on the program implementation. For example, the spirit of joint effort can be seen in Water Sanitation and Hygiene (WASH) Working Group, 6 agencies have worked together: Church World Service (CWS), Arche NoVa, Surfaid, International Organization for Migration (IOM), Mercy Corps, and Plan International to provide water supply and latrine construction at various Internally Displaced Person (IDP) concentrations in Pagai Selatan. Per 15 December 2010, Arche Nova has completed the construction of 18 latrines in KM37, while CWS and Surfaid have provided bladders and water tanks for water storage and IOM supported by providing truck for water distribution. On other sector, cooperation and the spirit of working together is also evident. In health and psychosocial working group, communication and cooperation between members is also very good, organizations willing to cooperate and support each other[21]. As shown above those agencies are reducing their labors by combining their resource to deliver the program. This joint effort should be developed even in the very beginning of the work. The needs of joint effort will bigger in the larger program such the rehabilitation and the reconstruction, as the challenge will be bigger and complex. The joint effort formation is one of the parameter to see the effectiveness of the coordination. Again, in the chapter 4, the joint effort will be discussed especially in relating to intersect the government program. Activation of working groups In the field level, at Sikakap, the joint effort amongst various humanitarian agencies has shown significant improvement. Most organizations showed cooperation and willingness to work together. By the end of 2010, 7 working groups have been established[22]. Those working groups are: Water Sanitation Hygiene (WASH) consists of Arche NoVa (focal point), Mercy Corps, Surfaid, , CWS, IOM, Mercy Corps, and Plan International. Health consists of Surfaid (focal point) Caritas Kelompok Bakti Kasih Kemanusiaan(KBKK), MDS, Puskesmas Sikakap, Aksi Cepat Tanggap, Cipta Fondasi Komunitas (CFK), Ibu Foundation, Posko Gereja Kristen Protestan Mentawai (GKPM), Psychosocial consist of Ibu Foundation, CFK, MDS and Plan International Logistic/Transportation IOM (focal point), World Food Program (WFP), Green Music Foundation (GMF) and Surfaid Telecommunication consists of WFP, Surfaid, Yayasan Air Putih, and Telecomm Sans Frontier (TSF) Livelihood Cluster consists of CDRM & CDS, READY - Mercy Corps, YCM, and Plan Indonesia - Yayasan Tanggul Bencana Indonesia (YTBI Education Cluster consists of Plan International, CDRM & CDS.


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The role of Recovery Network UNRC/HC was to facilitate the establishment of these working groups. By understanding the need for cooperation these working groups were formed. Agencies choose their focal points and focal point lead the regular coordination to discuss identified problems and conduct cooperation to address the issues. Handover the working group leadership to local government All working group members are aware that their presence in Mentawai is only temporary. Their support to the local government is not meant to replace the role and the responsibility of the local government. Soon the local government will take over all initiatives and effort to continue the program. Therefore the transfer of leadership has to be carried out from agency led to the government led. In every working groups meeting in Mentawai, the local government always invited. Ideally the condition should be the other way around that the local government invited agencies for coordination activities. Though it has been requested frequently for the government to provide a focal point to lead agencies working group, almost none ever attended meeting and discussion with the agencies. Except on the end of January 2011, the District Education Office in Sikakap, Mentawai, has initiated and invited agencies for a coordination meeting in the Education Sector[22]. During the coordination meeting in SKPD is expected to start performing its role Padang, the agencies requested the leading coordination which has been initiated local government on more by the humanitarian agencies Harmensyah involvement. This is to ensure (West Sumatra BPBD) January 19, 2011 smooth transfer on the ownership and responsibility to the local government.


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3.

SUPPORTING THE IDP ON THERELOCATION AREA

3.1. The IDP and the relocationThe affected people whose houses were swept away due to tsunami are now living in tents. The location of their tents are near to the temporary shelter which currently under construction. According to the Decree of the Bupati of Mentawai number 188.45-320/2010 regarding the establishment of the relocation area for temporary shelter for the tsunami affected household, there are 2,072 families to be relocated. Those number are including families who were not directly affected by the disaster but willing to relocate. Below are the relocation area and the number of families who will inhabit the new area according to the Bupatis decree mentioned above. Sub-district Pagai Selatan Relocation area KM 27 Jl. Poros Pagai Selatan KM 2-7 Logpon Lakkau KM 37 - 40 and 41-46 Jl. Poros Pagai Selatan KM 4 Trans Kaikako Jalur 8 KM 17 Jl. Poros Pagai Utara KM 2 Logpon Lakkau and behind previous settlement KM 5 and behind previous settlement KM 4-9 Berilou Household 290 285 361 141 217 89 76 613 2,072

Pagai Utara

Sikakap Sipora Selatan

According to the Rencana Aksi Rehabilitasi dan Rekonstruksi Pasca Bencana Serta Percepatan Pembangunan Wilayah Kepulauan Mentawai Provinsi Sumatera Barat tahun 2011 2013 (RENAKSI)[7] those IDP should not live in tents any longer than 2 months. It means that the temporary shelter should be completed by December 2010. Meanwhile the permanent shelter should be completed within 2 years. The permanent shelter will be located near to the temporary shelter. In the field level there are still some negotiations between the local government and the community and with the contractor on the exact relocation area for the temporaryMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 23

shelter. For instance, in Sipora Selatan, relocation at KM 4 has not been socialized because the communities suggested to slightly shifted the site in regard to some aspects, like proximity to water resources. While in Pagai Utara, at KM 17, PT Waskita Karya informed that the area should be shifted because of the narrow roadbed, but the government still suggested to remain at KM 17. But now the affected households already living in tents for more than 3 months; therefore IDPs problems and the condition of the relocation sites become the major issues and they need to be managed rapidly. In the section below, problem and challenges will be discussed including Fig. 3.1 IDP tents at KM 37 Pagai Selatan how the agencies trying to support the government and the affected households. Some initiatives and efforts already carried out by the agencies. These efforts should be continued by the local government since the presence of the agencies is only temporary.

3.2. Problems, challenges and solutionsThe Vice Bupati of Mentawai mentioned that there are 4 major issues that should be addressed very soon to support the IDPs. The local government, as mentioned by the Vice Bupati, is overwhelmed with the situation and need support from agencies. The problems which have to be addressed very soon are: transportation, telecommunication, health service (medical team and health service management) and WASH. Below are those problems and also some efforts already carried out by agencies addressing those challenges. Transportation Prior to earthquake and tsunami, Mentawai has been an isolated area. There is no proper road constructed in Mentawai, the people mainly use sea access by using speed boats. Due to the fact that the coastal populations were relocated to areas on higherMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 24

location, lines of transportation have shifted from the sea to land transportation. However, the road is not accessible; the condition even gets worse when it rains. Nowadays there is no dedicated road transportation for passengers in Pagai Selatan. There are 6 dangerous points to pass by any vehicle on the land on Pagai Selatan KM 0 KM 44. It causes the distribution plan could not be carried out on time and endanger anyone who is using the road transportation. All efforts on supporting the IDPs such as distribution of logistic and relief materials as well as medical evacuation are frequently hampered due to the road condition. This is also happening in Pagai Utara. Those agencies supporting the transportation are willing to add more cars in their fleet. But due to the poor condition of the road some agencies found difficulties to rent vehicles. The vendor would not allow their car to be used in a road with such condition. Transportation by sea also has its challenges. Other than bad weather, minimum transportation means also one of the big issues. For instance, no proper pontoon boat available to cross from Polaga (Pagai Selatan) to Sikakap. If agencies want go to Pagai Selatan to work in IDP camps and depart from their office in Sikakap they have to use small boats. In the general coordination meeting, BPBD was suggested to advise local government to provide proper pontoon boat since in the future the traffic would be higher.Fig. 3.2 IBU foundation staffs crossing the channel from Polaga to Sikakap

Telecommunication There is lack of communication equipments so that it restrains coordination: if the local government needs to coordinate with agencies, it should be conducted on-site because the communication lines do not function well; there is no signal in a distance of 5 miles away. The communication lines just cover Sikakap and its surrounding areas. The communication equipments are significant to support coordination in Mentawai. Recovery Network UNRC/HC and Vice Bupati of Mentawai had requested Telkomsel to install more repeater so all working area can be covered. For the internet connection, Yayasan Air Putih, supported by IndosatM2 has installed 2 internet connections. The terminals are at Sikakap and at CWS and Arche Nova base camp at KM 37. Recovery Network UNRC/HC had requested BPBD to provide internetMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 25

connection which needed by all agencies to work during early recovery program and the rehabilitation and reconstruction phase. The service of Yayasan Air Putih will be ended by the end of February 2011. Health service On early December 2010, there has been identified some contagious diseases such as tuberculosis, malaria, measles, and diarrhea. Agencies also found acute respiratory infection and skin problems especially among children. Vice Bupati of Mentawai needs support from Province Health Office so that some doctors and nurses are available at Puskesmas. Some patients at some relocation points are recommended to Puskesmas, but there is no doctor and sufficient medical equipments there. The existing doctors are from agencies who are working on IDP camps. For instance: Caritas team established a medication post at KM37 and make regular visits to KM39 and KM41. CFK has 2 doctors and 1 nurse and carry out some activities in Pagai Utara, KM 4 Trans Taikako and surrounding areas. GKPM have 4 doctors, 2 doctors in Pagai Utara/Trans Taikako and 2 doctors at KM 27 and surrounding areas. Surfaid medical team focuses their activities largely in Sipora Selatan, they found significant case of acute respiratory infection, severe acute malnutrition and diarrhea. (perhaps date and duration of service of the above-mentioned health support should be mentioned, since there has been no committment of medical staffs/health service made beyond December 2010to date as far as we know only 1 doctor stays in Sikakap from IBU Foundation; duration of service unknown) WASH On early December 2010, the IDPs have stayed for quite a long time at the relocation sites, while WASH facilities were not adequate. This condition potentially causes serious diseases, like typhus, diarrhea, dengue fever, and so forth. For instance, in areas around the relocation sites of Muntei Baru Pagai Utara communities, diarrhea is found especially among children and the number of the case is quite significant. It is suspected that this problem arises due to lack of WASH facilities at the site. The other problem is the unavailable of fresh water as happens at KM 37 and KM 27 Pagai Selatan.Fig. 3.3 KM44 refugees are washing and bathing in the nearby pond

Therefore to address those problems, agencies carry out some activities as follows:Mentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 26

Construction of latrine, for instance is under progress at KM 39 KM 44 by Mercy Corps. While Arche NoVa built 2 simple latrines with the capacity of 8 rooms at KM 37 near the camp of Asahan communities. But the progress was not satisfactory due to less participation with the community. Rain water harvesting, Arche NoVa has built some rain water harvesting system and also has distributed the materials to IDPs at KM 37 (Asahan and Purorogat). Provision of fresh water, Arche Nova dan CWS decided to distribute two kinds of water: fresh water and drinking water. Water tank (supported by Surfaid) will be used for drinking water, and bladder (CWS properties) will be used for fresh water. The initial operation will serve two distribution points, i.e. KM37 and KM 32. Meanwhile dug well will be build at KM 44 by Mercy Corps. Provision of water tanks, Plan International and CWS on their joint program are planning to provide 2 water trucks in Pagai Selatan. Arche Nova supply water tanks as well.

(plan cancelled, all machines are used in Pariaman instead; the organization is planning to sent 2 more machines in the future for Mentawai, but still not fixed yet) Clean water installation, Public Works/PDAM already developed master plan for clean water system for all concentration point of relocation area. They will share the plan to all agencies.--> already shared during the WASH coordination meeting on December 15 in Sikakap where PDAM representative guaranteed that 1 week after the completion of T-Shelters in Pagai Utara (which at that time is already around 80%), governments work on latrines and water piping system will be started. No evident of such promise up until this day since IDPs in Pagai Utara are still without proper sanitation support up to this moment. This WASH program still have challenge which has to be addressed i.e. the community participation. The community has requested to construct pedestal for water tank and bladder also to build rain water harvesting. Based on Arche NoVa experience there was no people at KM 37 worked on it even what has been built was lost. Agencies have to find way to encourage community participation.

3.3. The strategy to support IDP on the relocation areaTo support the IDP on those relocation sites Recovery Network UNRC/HC draw strategy which communicate to all agencies to gain support. This strategy mainly based the activities which agencies can carry out and in the same time can save their well being. This is to ensure the health and safety of all agencies staff will be fulfilled when they are working in the relocation camp. Firstly, agencies are encouraged to collaborate and focus their operation in KM 37 considering the access that is easier than other locations and that the area is alreadyMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 27

open and no need of further land clearing work. Other urgent location is KM 44 and 27 of Pagai Selatan. Secondly, provision of latrine and fresh water will be the priority. This is to ensure the IDP locations have sufficient sanitation system to protect them from contagious diseases. This is to protect agencies staff from potential illness which might be already occurred in the camp. Provision of communication system i.e. internet connection will be the next priority. UNRC/HC had requested Yayasan Air Putih to provide internet connection at KM 37. This is to ensure communication will work well since some agencies already planned to be posted in KM 37. Those are 3 priorities that Recovery Network UNRC/HC shared to all agencies and as mentioned on the chapter 3.2 above these initiatives have been implemented. Other needs on mobile communication already discussed with Telkomsel while the need for better transportation already discussed with BPBD. Cellular phone network and road transportation are clearly outside of agencies work in Mentawai. The strategies mentioned above have to be carried out as soon as possible. Beside to provide better living condition for the IDP, it can be a foundation for government so they may continue this effort.


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4.

AGENCIES RESPONSE ON INTERSECTINGGOVERNMENT EARLY RECOVERY PROGRAM

4.1. Government early recovery programGovernment (BNPB) early recovery program in Mentawai is the first early recovery program which carries out by Government of Indonesia. Currently other early recovery program is still on the development i.e. Merapi, Central Java. This program was presented for the first time in Padang was on January 4, 2011. This program will be carried out from January to February 2011, but it is likely will be extended until April 2011. The budget for this early recovery program is amounting USD 1,554,000. This program covers 4 sectors i.e.: Shelter, Social, Economy and Cross-sector. The outline of the program is as follows: Shelter sector o Facilitation for temporary shelter management o Discussion for the socialization of resettlement o Training skills for house, clean water facility and latrine construction Social sector o Education Support on school fee and education equipment for affected elementary/Junior high/ Senior high school School based risk analysis School based disaster risk reduction o Health Provision of health service for affected people Provision of aditional food for toddler Revitalization of village clinic Community empowerment for healthy environtment Formulation of contingency plan for Health officials o Religion / agama Recovery on community religious activities o Social institution Stimulus for family food security Advocacy for gender mainstreaming Productive economy sector o Agriculture: Empowerment of farmer group o Fishery: Empowerment of fishermen enterprise o Industry and commerce: Empowerment for small and medium industry o Cooperative: Empowerment for kiosk29


Cross-sector o Governance Revitalization of government basic service function through coordination meeting Revitalization of demographic data and Contingency Plan for governance Formulation, capacity building and implementation of local disaster management o Environment Post-disaster environment friendly life style education

Most of the programs are capacity development and education. BNPB wants to ensure that Mentawai BPBD and local government offices are ready when BNPB initiate the rehabilitation and reconstruction program. Moreover, Government of Indonesia is planning to continue the effort to the acceleration for Mentawai development. Nowadays Mentawai it looks like an isolated area which its development is considerably left behind if compare to their neighbor in West Sumatra province. The total budget for whole program from early recovery up to the acceleration is amounting USD 122,000,000. The program will be until 2013.

4.2. Agencies responseWhen this early recovery program launched on the beginning of January, agencies already developed joint effort program in Mentawai. UNRC/HC had communicated to the BNPB and BPBD that it would be better if agencies can find the opportunities to intersect this program, since some of the agencies already have resources for trainers and some training materials are available from the previous program in West Sumatra. Agencies currently in the field can also have the benefit from stronger interaction with the local government and the community through this early recovery program. The joint effort, which previously only amongst agencies, now will find a new platform to work together with the local government. Therefore Recovery Network UNRC/HC shared this opportunity to every agency and if there are organizations interested to support this program they can fill their plan in the simple matrix circulated by Recovery Network UNRC/HC. This idea also have been discussed to local government that there will be a lot of benefit if agencies can support the early recovery program. The benefits are that local government can be strengthened through joint effort support from agencies, while on the other hand smooth transition on coordination for relief work which currently led by agencies to the government-led recovery and development activities can be carried out. Agency response on governments early recovery program for Mentawai is intended to integrated humanitarian organizations plans with government programs in order toMentawai Response Lessons Learned A Spark of Hope to Rebuild Mentawai 30

maximize impact and reveal opportunities on long-term development program. In the integrated program each party can fill its core strength. For instance in training program, agencies can provide facilitators and trainers, while local government can provide logistic and facilities. Then when the program turns to be successful, it can be replicated in other area with the same module. The agency response also intended to minimizing gaps and finding synergy among agencies program. After this opportunity has been shared to agencies, the response was encouraging. There were 13 agencies sent their plan on intersecting the government plan. West Sumatra BPBD encouraged Mentawai BPBD and all local government office to integrated those agencies programs in their plan. Moreover West Sumatra BPBD requested local government to provide operation center for agencies provided with internet connection. The detail program of agencies can be seen at the annex, Agencies response to early recovery program.


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5.

CONCLUSION AND RECOMMENDATION

Every agency and also government offices put enormous effort on responding the Mentawai disaster. No one realized before that so many obstacles hampered the progress in helping the affected household in Mentawai. The challenges came from the weather, the geographical condition and poor infrastructure several times which was blocking the emergency effort. There are some encouraging aspects on the 3 months following the disaster. Firstly is the well proven solidity of agencies, resulted in strong joint effort. The challenge was considerably big, but agencies share the burden and share their resource to achieve their program. Moreover agencies are agreed on strategic direction on how addressing the challenges to help the IDPs. The joint effort amongst agencies is the fruit of coordination and good relationship which was started few months back when agencies are working on West Sumatra recovery following the 2009 earthquake. Second, in developing early recovery program there is a strong mutual respect and spirit of cooperation amongst agencies and the provincial and the district government. This spirit is the result of understanding everyones competence and the needs to get support and share the resource. Rebuilding Mentawai would be very difficult if the link and interaction between stakeholders is loose. By maintaining this cooperation everyone can hope that their program can work well and for agencies can serve more people due to support from partners and government. There is important part which unclear during this document being written i.e. the permanent shelter. What will be the agencies and communities participation still a big question. As a humanitarian or development organization, every agency put their concern on the impact of permanent shelter provision. The affected households should not just receive only the infrastructure but they should develop their capacity and their life. Therefore it is important for every agency to anticipate on this program and work together to provide advocacy to the government and to the community.


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[19] [20] [21] [22]


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FIGURESFig. 1.1 Earthquake and tsunami affected areas at Mentawai Islands Source: Bappenas and BNPB, Rencana Aksi Rehabilitasi dan Rekonstruksi Pasca Bencana Serta Percepatan Pembangunan Wilayah Kepulauan Mentawai Provinsi Sumatera Barat tahun 2011 2013. December 2010 Fig.1.2 Distance from Padang to disaster affected area Source: Bappenas and BNPB, Rencana Aksi Rehabilitasi dan Rekonstruksi Pasca Bencana Serta Percepatan Pembangunan Wilayah Kepulauan Mentawai Provinsi Sumatera Barat tahun 2011 2013. December 2010 Fig.1.3 Distance of Pagai Selatan Island to Padang and to Muko-Muko Source: http://lentrasystems.blogspot.com Fig.1.4 Location of the most affected tsunami area and PMI aid post at Muko-Muko Source: http://lentrasystems.blogspot.com Fig.2.1 NGO staffs and volunteers queuing to board the ship to Mentawai at Teluk Bayur Padang seaport 40 hours following the disaster. Source: Arwin Soelaksono Fig. 3.1 IDP tents at KM 37 Pagai Selatan Courtesy of Madrina Mazhar Fig. 3.2 IBU foundation staffs crossing the channel from Polaga to Sikakap Courtesy of Bambang Febriandi Wibowo Fig. 3.3 KM44 refugees are washing and bathing in the nearby pond Courtesy of Andreas Saragih

\

FURTHER READINGS

1. Disaster Response and reConstruction http://www.disaster-response.cc 2. Humanitarian Papers http://humanitarianpapers.blogspot.com 3. Mentawai Response http://www.mentawairesponse.org

ACKNOWLEDGMENTI would like to acknowledge the inputs and support from my colleagues in Recovery Network UNRC/HC, Zulfa Ermiza and Andreas Saragih so this lessons learned can be produced.


34

ANNEX Agency Response for Mentawai on Government Early Recovery Program

Agency response for Mentawai Early Recovery phase January-February 2011 / Dukungan NGO untuk fase Pemulihan Dini Mentawai Januari-Februari 2011No1 a

Activities / Uraian KegiatanShelter sector /sektor perumahan Facilitation for temporary shelter management (Fasilitasiuntuk pengelolaan hunian sementara) DIAN INSANI

Type of support / jenis dukungan

Number of people served / jumlah orang dilayani

Location / lokasi

Timeline / jangka waktu

Remarks / komentar

Hammer, saw, chisel(Martil, gergaji, pahat)

68 HH

Sioban

17-21 Jan 2011

Provision of shelter materials and assistanceSURFAID (penyediaan material dan assistensi untuk masyarakat dalam perencanaan dan pembangunan hunian mereka sendiri) Provision of equipments: Genset, Ketam, Circular Saw for woodworking. Those equipments are not for personal but for village. For each family, HFH provides constrcution amterial such 1511

Berilou, Bosua, Masokut, November 2010 approach (Pendekatan Gobik May 2011 berbasis masyarakat)

Community based

HABITAT FOR HUMANITY

23 HH

Dusun Gobik, Desa Bosua, Kec. Sipora Selatan

January-March 2011

Habitat shoulder the operating cost for gasoline, lubricants for 2 monts until March 2011

Discussion for the socialization of resettlement (Musyawarahb untuk sosialisasi rencana pemukiman kembali penduduk /relokasi) SURFAID

Facilitation and accompaniment (fasilitasidan pendampingan) Build evacuation road to tne new location as community plan

1511

Berilou, Bosua, Masokut, November 2010 Gobik December 2010 Dusun Gobik, Desa Bosua, Kec. Sipora Selatan January-March 2011


23 HH

c

Training skills for house, clean water facility and latrine construction (Pelatihan ketrampilan membangun rumah,fasilitasi air bersih dan jamban)

ARCHE NOVA

Construction of clean water facilities and latrine(pembangunan fasilitas latrine dan supply air)

Still under assessment(Masih dalam assessment)

Maurau, Muntei kecil, Muntei besar, Sabiret, January - Mid April Eruparabuat, and other 2011 locations still under assessment Pagai Utara & Pagai Selatan

Training for well diggers and concrete well-ringCWS (Pelatihan tukang pembuat sumur gali dan pembuatan buis beton) 150

February 2011

Page 1

Agency response for Mentawai Early Recovery phase January-February 2011 / Dukungan NGO untuk fase Pemulihan Dini Mentawai Januari-Februari 2011No Activities / Uraian Kegiatan Type of support / jenis dukunganWater storage, shallow wells and latrine construction (Pembangunanpenampungan air, sumur dangkal dan latrine)


Location / lokasi


Remarks / komentar

MERCY CORPS

5497

Pagai Utara, Pagai Selatan, Sipora Selatan

January-October 2011


Building house construction training

23 HH

Dusun Gobik, Desa Bosua, Kec. Sipora Selatan

January-March 2011

MITRA PEDULI

Provision of facilitator for hygiene promotion and appropriate technology (Fasilitator/training kesling dan teknologi tepat guna)

diwakili tiap Ruhan/50 Orang

Sipora, Pagai Utara dan Selatan

Januari - Februari 2011

Operational cost from the government (Biayapelaksanaan dari PEMDA)

11 units of temporary Public Toilet in Relocation Camps (11 unit MCKsementara di titik relokasi IDP) PLAN

360 Households/ 1257 people

PAGAI SELATAN: Muntei Besar, Sabbiret, Eruparaboat, Asahan, and Purorogat (target planning)

January-March 2011

Partner implementation is Arche noVa/Final Preparation (Berpartnerdengan Arche Nova-dalam proses finalisasi)

Provision of water through water trucking activity in tsunami relocation sites(Penyediaan air melalui "water-trucking" di titik relokasi IDP)

549 Households/2027 people

PAGAI SELATAN : KM27, KM-37, KM-39, KM41, KM-44

December 2010February 2011

Partner Implementation is CWS (Berpartnerdengan CWS)

Training for earthquake resistant construction, hygiene education to be provided by SAI Health program (Pelatihan tentangbangunan tahan gempa, pendidikan promkes akan diberikan oleh program kesehatan SAI)

1511

Berilou, Bosua, Masokut, Gobik

March - August 2011

SURFAID

Page 2

Agency response for Mentawai Early Recovery phase January-February 2011 / Dukungan NGO untuk fase Pemulihan Dini Mentawai Januari-Februari 2011NoSURFAID

Activities / Uraian Kegiatan

Type of support / jenis dukunganProvsion of clean water facilities and hygiene education (Penyediaansarana air bersih serta pendidikan promosi kesehatan)


Location / lokasi


Remarks / komentar

5000

Sipora Selatan and Pagai Selatan (limosua, maonai, dan sekitarnya)

May 2011- Feb 2012

2 a i

Social sector / sektor sosial Education / Pendidikan Support on school fee and education equipment for affected elementary/Junior high/ Senior high school (Bantuan biayasekolah dan peralatan untuk siswa SD/SMP/SMA terdampak)

PLAN

5 Temporary Schools for Primary School (SD) and Psychosocial Activities (5unit sekolah dasar sementara dan kegiatan psikososial)

PAGAI SELATAN: SDN 13 Bulasat, SDN 31 Bulasat, 719 pupils and 22 SDN 04 Sabeugunggung January-March teachers dan SDN 24 Malakopa; 2011 PAGAI UTARA : SDN 33 Muntei Baru-Baru

Partner implementation is YTBI (Berpartner denganYTBI)

CDRM & CDRS

construction of a bamboo school and provision of school supplies (SDN 27 500 students and Filial Silabu), provision of teachers textbooks for students and teachers (SDN 10, SDN 33, SDN 26, SDN 27)

Tumalei, Saumanganya, January - February Betumonga, Malakopak, 2011 Limu, Purorogat

ii

School based risk analysis (Analisis risiko bencana berbasissekolah)

PLAN

Child Friendly Space Activities (Tempat bermainramah anak)

254 children age 616 years old in PAGAI SELATAN: KMRelocation Camps(254 anak usia 616 tahun di titik relokasi IDP)

27, KM-37, KM-41, KM44

January-March 2011

Partner implementation is IBU Foundation(Berpartner dengan IBU Foundation)

SURFAID

Implementation of community based disaster risk reduction program which will include targeting schools (Implementasiprogram mitigasi bencana, termasuk didalamnya keterlibatan sekolah)

various locations in Mentawai (berbagailokasi di Mentawai)

March - November 2011

Page 3

Agency response for Mentawai Early Recovery phase January-February 2011 / Dukungan NGO untuk fase Pemulihan Dini Mentawai Januari-Februari 2011No Activities / Uraian Kegiatan Type of support / jenis dukungan Number of people served / jumlah orang dilayani Location / lokasi Timeline / jangka waktu Remarks / komentar

YEU

Pemetaan ancaman, kerentanan dan kapasitas

5 schools (5 sekolah)

5 villages (Taikako, Betumonga, Bulasat, Silabu, malakopa)

Preliminary activitiy to support the school-basedDRR program to be implemented in the next 6 months (kegiatan awal

Up to Feb 2011

yang akan mendukung program Pengurangan Risiko Bencana berbasis sekolah yang akan dilaksanakan selama 6 bulan mendatang)

YAYASAN FIELD INDONESIA

vulnerability action research (riset kerentanan)

100 jiwa

2 sekolah di (1) Dusun Maonai Desa Bulasat Kec. (2) Dusun Tumalai Desa Silabu di Kec. Pagai Selatan

Feb - June 2011

iii

School based disaster risk reduction /Pengurangan risikobencana berbasis sekolah (pemberdayaan) implementation of community based disaster risk reduction program which will include targeting schools (Program pengurangan resiko bencana berbasis masyarakat yang juga akan menargetkan sekolah) School preparedness on disaster risk reduction (Sekolah siaga bencana)

SURFAID

various locations in Mentawai (berbagai lokasi di Mentawai)

March - November 2011


100 Jiwa

2 sekolah di (1) Dusun Maonai Desa Bulasat Kec. (2) Dusun Tumalai Desa Silabu di Kec. Pagai Selatan

Feb - June 2011

b i

Health / Kesehatan Provision of health service for affected people (Penyediaanlayanan kesehatan umum utk masyarakat terdampak)

Page 4

Agency response for Mentawai Early Recovery phase January-February 2011 / Dukungan NGO untuk fase Pemulihan Dini Mentawai Januari-Februari 2011No Activities / Uraian Kegiatan Type of support / jenis dukungan Number of people served / jumlah orang dilayani Location / lokasi Timeline / jangka waktu Remarks / komentar

MITRA PEDULI

Preparing health, medical as well as non-medical staffs (Menyiapkan tenagamedis, paramedis dan nonmedis)

Semua masyarakat


Operational, stipend, accomodation and transportaion cost for participants are provided Januari - Februari by the government2011 (Operasional, honor, akomodasi dan transportasi ditanggung PEMDA)

SURFAID

Surveillance, monitoring, health education, Distribution of mozzie nets and supplementary food for under 5s (Monitoring danpengamatan serta pendidikan kesehatan, distribusi kelambu serta makanan tambahan untuk balita)

5178

Sipora Selatan and Pagai November 2010 Selatan (limosua, November 2011 maonai, dan sekitarnya)

YEU

Mobile clinic (klinikberjalan)

46 patients

Taikako Trans KM8

Sampai dengan March 2011

Medical Assistance

1600 beneficiaries

Mentawai Island

November 2010January 2011 (three months)

IOM

Psychosocial First Aid Training

172 participants (nurses,midwives, kaders,village and church leaders)

Sikakap, KM. 37, Saumanganyak

PFA I: 30 Dec, 1-2 Jan, PFA II: 20-21 Jan, PFA III: 10-11 Jan 2011

Safe Medical Evacuation

ii

Provision of aditional food for toddler (Penyediaan makanantambahan untuk balita)

30 medical staff from all 7 Puskesmas from 30 participants from all the 7 January 18-21,2011 Puskesmas in Mentawai the three islands in Surya Palace, Padang Mentawai who in turn Islands were brought to Padang West Sumatra for training will establish the Mentawai Crisis

Page 5

Agency response for Mentawai Early Recovery phase January-February 2011 / Dukungan NGO untuk fase Pemulihan Dini Mentawai Januari-Februari 2011No Activities / Uraian Kegiatan Type of support / jenis dukunganProduction of localingredients-based Supplementary food(Pembuatan PMT berbasis makanan lokal )

Number of people served / jumlah orang dilayani600 balita

Location / lokasi


Remarks / komentar

MITRA PEDULI


Januari - Februari PEMDA (Operational cost 2011 from the Government)

Biaya pelaksanaan dari

SURFAID

Breastmilk substitute, multivitamins and mung beans (MP ASI,multivitamin dan kacang hijau)

5178


iii Revitalization of village clinic (Revitalisasi posyandu) SURFAID

Trainings for POSYANDU Cadres (Pelatihan bagikader POSYANDU)

200


Nov 2010 - Nov 2011

YEU

Risk, vulnerability and capacity mapping(Pemetaan ancaman, kerentanan dan kapasitas)

5 units of community health center (5 pusatkesehatan)

5 Villages (Taikako, Betumonga, Bulasat, Silabu, malakopa)

Preliminary activitiy to support healthinstitutions-based-DRR program to be implemented in the next January-February 6 months (kegiatan awal2011 yang akan mendukung program Pengurangan Risiko Bencana berbasis institusi kesehatan yang akan dilaksanakan pada 6 bulan mendatang)

iv

Community empowerment for healthy environtment(Pemberdayaan masyarakat untuk lingkungan sehat)

Hygiene promotion training for health volunteersCWS (Pelatihan PHBS/Perilaku Hidup Bersih dan Sehat untuk Kader) 150

Pagai Utara & Pagai Selatan

March - April 2011

DIAN INSANI

Distribution of toothbrush, towel, soap and toothpaste(Distribusi sikat gigi, handuk, odol, sabun mandi)

68HH

Sioban

17-21 Jan 2011

Page 6

Agency response for Mentawai Early Recovery phase January-February 2011 / Dukungan NGO untuk fase Pemulihan Dini Mentawai Januari-Februari 2011No Activities / Uraian Kegiatan Type of support / jenis dukungan Number of people served / jumlah orang dilayaniStill under assessment(Masih dalam assessment)

Location / lokasiKm 27 (sabiret) Km 37 (purourogat and asahan/maurau), Km 39 (tapak/bake),km 41 (bulasat) and Km 44 (kinumbuk) Pagai Utara, Pagai Selatan, Sipora Selatan, Sikakap Sipora, Pagai Utara & Selatan


Remarks / komentar

IBU FOUNDATION

Hygiene Promotion for children and family(Promkes/PHBS untuk anak dan keluarga)

15 January - 31 January 2011

MERCY CORPS

Hygiene Promotion(Promosi Kesehatan)

4000

January-October 2011

MITRA PEDULI

Providing facilitators in facilitating training for health cadres (Fasilitatoruntuk training bagi kader kesehatan)

50 kader wakil Ruhan

Januari - Februari 2011

Operational cost from the government (Biayapelaksanaan dari PEMDA)

SURFAID

Sanitation via CLTS (STBM) approach (Program sanitasiCLTS/Sanitasi Total Berbasis Masyarakat)

5178


Nov 2010 - Nov 2011

YEU

Encouraging community cooperation in cleaning the neighborhood (gotong royong warga untuk membersihkan lingkungan)

150

Taikako Trans KM 8

already conducted on January 10, 2011 and will be conducted again if needed by the community whenever needed (kegiatan sudah (bila dibutuhkan) dilaksanakan pada 10/01/2011 dan bisa dilakukan lagi bila dibutuhkan masyarakat)


Research on community base health planning (riset perencanaan kesehatan berbasis masyarakat)

83 KK /326 jiwa

(1) Dusun Maonai Desa Bulasat Kec. (2) Dusun Tumalai Desa Silabu di Kec. Pagai Sela

60828581 Mentawai Response Lessons Learned Arwin Soelaksono

Documents

government response

agencies response

responding mentawai

people of mentawai

benchmark of mentawai

rebuilding of mentawai

rebuilding mentawai

mentawai disaster