Emergencies Impact Review China

Pakistan Neppal Mexicocoo India Bangladesh Dominican Orissa MMyanmanmmaar Haaiiti RepublRRepe ic Laoos

Guatemaala Senegal Rajasa than Vietnam El Salvador Nicaragua Faso Cammbodia Nigeria Somoomamaliland

Libeeriaa Somao lia Zaire Gomo a Ecuador

Tanzannian Brazil Peru Malawi Zama biaa Boliviaa

Mozaammbiquue

ActionAid Country Programmes Involved in Emergencies

Type of emergency Conflict Drought Cyclone/Earthquake/Floods/Volcanoe Displaced

Aid from Ayuda en Accion programmes contents emergencies impact review Contents

02 Introduction 28 Section 4 Developing innovative 04 Summary Findings approaches to emergency work

06 Section 1 ■ Psycho-social support ActionAids Involvement ■ Accountability in Emergency work ■ Rights and needs

■ Responding to large scale emergencies 34 Section 5 ■ Expenditure on emergency work Effectiveness Of The Long-Term Approach

07 Section 2 ■ Misinterpretation of the long-term approach ActionAid’s approach to Emergencies 36 Section 6 ■ Focus on livelihoods Key Issues arising from the study findings ■ A long term perspective ■ Rights-based analysis ■ Approaches and attitudes ■ Participation and differentiation ■ Learning and change ■ Strengthening peoples’ capabilities ■ Going for it ■ Rights and needs 09 Section 3 Highlights of approaches – 38 Section 7 achievements, challenges and learning Conclusions and recommendations

■ Preparedness and prevention ■ Recommendations for learning and accountability ■ Recovery and ‘Recovery Plus’ ■ Implications and recommendations for Policy work ■ Relief that helps recovery ■ Recommendations for good practice ■ Peace-building ■ Opportunities in emergencies ■ Participation in emergency responses ■ Targeting ■ Working with partners ■ Gender, generation and disability ■ Advocacy and influencing ■ Coordination and collaboration

Acknowledgments The Emergencies Unit would like to thank the many people who have contributed in various ways to this report. Pippa Howell was involved in the overall co-ordination of the study and pulling together information on the key lessons and impact arising from the country studies and case studies. Particular thanks to all the core team, Algresia Akwi Ogojo, Fernanda Bernardo, Khurshid Alam, Alpha Sankou, Mike Young, Lewis Aritho, Geoffrey Atieli and all their programme staff. Thanks also go to the people who have written case studies and shared with us their experiences (see list at the end of the study). Advice, support and written input came from Roger Yates and Antonella Mancini. Thanks to Charles Owusu, Usha Kar, Luis Morago and Khemraj Upadhyaya who also commented on the drafts of the report. Thank you to Nicola Peckett and Jane Lewis from Communications for their editorial advice and to Louise Mellotte and Scarlet Harris for overseeing the design and production of the report. Emergencies Unit, March 2002

fighting poverty together 3 introduction emergencies impact review Introduction

ActionAid has recognised for some time ActionAid has decentralised This study is the product of work from Each of the separate studies was that poor people are more vulnerable to management which ensures that the ActionAid Emergencies Network and The study brought together prepared independently to meet the the impact of natural disasters and decisions are made as close as Impact Assessment Network. Ayuda en three streams of work: priorities of the countries concerned, conflicts. As an organisation working possible to where their consequences Acción (the Spanish sister organisation but all related to a common research ■ Five core studies were carried towards the eradication of poverty, we are felt. Central to the spirit of Fighting within the ActionAid Alliance) contributed framework. out by country programmes to have to work with poor people to poverty together is our accountability to a study of their experience in Latin review all their emergencies work address the consequences of these the poor and marginalised women, America. The purpose is to share This study shows that a long-term as part of their own country emergencies. We have been supporting men, boys and girls with whom we lessons and insights from our approach has a positive impact. It reviews (Kenya, Mozambique, emergencies work with an increasingly work. ActionAid’s accountability systems emergency work and so understand includes a wealth of insights and Sierra Leone, Bangladesh and distinct long-term approach. This was encourages this by promoting greater whether a long-term approach to examples of how and why this is the Uganda). articulated in the Emergency Strategy participation and transparency in all our emergencies (as recommended in our case. It also highlights some of the approved by the Directors in May 2000, work and empathy with the poor and strategy) is effective. ■ Nine case studies were challenges for programme managers in which existing approaches became marginalised groups with whom we undertaken by different countries to further improve their work. Bangladesh, 1999 consistent with the rights-based work. A key tool is the use of review to reflect on specific aspects of In the initial planning meeting (Kenya, approach of the 1999-2003 ActionAid and reflection processes, which give us their emergency work (Burundi, ActionAid’s Approach April 2001) for this process the members strategy, Fighting poverty together. the chance to learn locally from our Dominican republic, Ethiopia, to Emergencies of the emergencies and impact experience and how others perceive Ghana, Honduras, India, Malawi, ActionAid acknowledges the assessment networks were very clear We stress the importance of our work. Within the organisation, we Somaliland) need to match our work with strengthening poor peoples’ that the process of learning does not have international networks of staff ■ the reality of emergencies as A consultant prepared a desk end with the production of a report. I capacities to cope with the impact of involved in specific aspects of work. experienced by poor people. So study of existing evaluations and hope that ActionAid staff and others will emergencies. We seek to increase The networks serve as a mechanism to we adopt a long-term reviews from the last five years. use this as a tool for better programming the capacities of those who are share this learning internationally perspective in our analysis and The consultant also visited some in the future. responsible for emergency among peers, without depending on practice. Our approach covers preparedness and response. of the countries and wrote the line management structures. Roger Yates preparedness, response and final report. Head of Emergencies Unit recovery. ActionAid takes opportunities presented by emergencies to advance our overall March 2002 ActionAid’s analysis draws our goal of poverty elimination. attention to the systematic violation of rights. A rights- based analysis helps us address those causes of inequality and discrimination that exacerbate poor people’s vulnerability.

We promote the active agency of people affected by emergencies. Through our work we address peoples’ concerns for their livelihoods as well as their immediate needs.

4 www.actionaid.org fighting poverty together 5 summary findings emergencies impact review Summary of Findings

This study has drawn on documentation The country studies indicate that a It is clear from the country studies that We can only verify such long-term Overall, ActionAid’s long-term approach illustrating a broad range of experience long-term approach – responding to positive impact is made not only by impact by monitoring over time. reminds us that emergencies also “We are so happy to in emergency-related work. The emergencies using ‘developmental’ choosing the right things to do, but also present opportunities to further have our own cards individual country studies show that principles – works well, especially involves a commitment to ActionAid’s However, there are still mixed attitudes developmental goals. Social disruption and know we will get ActionAid programmes are responding where the agency is already core principles of working with the most to AA’s role in emergencies and poor may pave the way for marginalised to a variety of emergencies, many established and active but also outside marginalised groups in an open and awareness of the integral role of people to gain more control over their our own food. The emergency work in Fighting poverty chiefs will now complex and difficult, in different existing project areas. What can be transparent way. For instance, fairness lives. Post-emergency recovery cultural and political settings. This seen from the reviews is that in many and transparency are often rare qualities together. Emergencies work is still processes can leave people better off grow thin!” presents a great opportunity to learn, cases people have been left better in many emergencies. ActionAid’s sometimes seen as something separate than before the emergency (‘recovery and to understand the contribution of equipped to deal with future activities were sometimes the first time or something to be avoided in case it plus’). Community-based preparedness Women in Manhica, Mozambique humanitarian work to ActionAid’s emergencies, and in some cases better people received assistance, which was impacts negatively on long-term and early warning mechanisms can strategy of Fighting poverty together. off than before. This is not always not unfairly distributed or siphoned off by programme activities. Principles lessen the impact of emergencies on achievable with a traditional approach the powerful. Such experiences reinforce governing development programme livelihoods and development. With these to relief. in a very practical way the affected work are often dispensed with during insights, NGOs can strategically plan to people’s awareness of their right to food, emergencies without sufficient analysis. support these processes as part of the and hopefully can help to change This sometimes results in a tokenistic fight against poverty. response, a top-down approach and/or Several ActionAid programmes have developed ‘niches’ government, non governmental missed opportunities. of expertise, such as: organisation and donor attitudes to emergency aid as a right, not as charity. India ■ psycho-social The participation of those affected by the ■ social audit emergency is a crucial factor in increasing positive impact. Communities Burundi appreciate when they have the ■ peace-building opportunity to participate, and some of the poorest people develop more power Malawi through this process. ■ seed distribution

Bangladesh ■ interest free loans, support to local loan-giving CBOs

Ethiopia, India, Kenya ■ cash-for-work and food-for-work programmes

Sierra Leone ■ working with ex-combatants on peace building initiatives

6 www.actionaid.org fighting poverty together 7 actionaid’s approach to emergencies emergencies impact review

1 ActionAid’s involvement ActionAid’s Approach 2 in Emergencies work to Emergencies

1 Emergencies Review 1999

Emergencies Expenditure ActionAid recognise that emergencies there is a consistent underlying poor peoples’ vulnerability. We also such as drought, floods, conflict etc are understanding in ActionAid that focus on the accompanying 10,000 additional threats within the daily emergencies need to be analysed with responsibilities at different levels: struggle of poor people to survive and long-term considerations1. Adoption of local, national and international. 9,000 improve the quality of their lives. In this approach does not necessarily imply 4 Participation and differentiation 8,000 emergencies, poor people’s main a long-term presence on behalf of the concerns are survival and their agency, or even a long-term intervention, A key component of ActionAid’s 7,000 immediate needs (food, water, shelter but an analysis of the emergency in its approach is participation. Based on our etc). But they are also concerned about socio-political, cultural and recognition of poor peoples’ needs, 6,000 their own ability to: environmental context rather than as a rights and capacities, our programmes one-off event. build on local resources and expertise. ■ ensure their assets are not lost (or are 5,000 We promote the active involvement of replaced) Such analysis helps us to understand: people affected by emergencies, 4,000 ■ earn a living now and in the future a the causes and patterns of particularly the most marginalised

Expenditure in £’000 groups of men, women and children. 3,000 ■ get involved in those decisions which vulnerability A rights-based focus and a thorough affect them b the close relationship between 2,000 understanding of the socio-political and ■ get a fair share of those resources to poverty, vulnerability and the denial of cultural context helps to ensure that 1,000 which they are entitled (e.g. relief rights people from differently affected groups packages, compensation) are enabled to contribute actively in c those factors which undermine planning as well as implementation - ■ cope with future emergencies. peoples capacity to cope. 1996 1997 1998 1999 2000 and have their different needs Expenditure in 4,231 4,742 5,479 9,315 5,262 addressed. £’000 1 Focus on livelihoods Therefore, ActionAid’s approach The ‘long term’ approach to emergencies promotes long-term and sustainable solutions through the integration of 5 Strengthening peoples’ ActionAid works in 25 countries through Acción works in five countries in Latin Expenditure on emergency work aims to dispel the historical view of relief capabilities and development as diametrically emergency and ongoing development partner agencies in Africa, Asia, Latin America and supports ActionAid’s work The table above shows that ActionAid’s ActionAid’s approach stresses the opposed processes. This grew out of an work. Under this banner, development America and the Caribbean. ActionAid in other countries. recorded spend on emergencies has importance of strengthening poor analysis, which, puts saving livelihoods and emergencies work becomes has engaged increasingly in risen since 1996. These figures are peoples’ own ability to cope with the Responding to large scale as well as lives as the primary aim of mutually supportive as integrated emergency-related work since 1992 those submitted to the Disasters impact of emergencies. At the same emergencies emergency interventions. When “community support”. when such work became an Emergencies Committee. They do not time, our approach seeks to increase the In the last four years Bangladesh, livelihoods are the primary focus, people acknowledged part of its mandate and include spending on preparedness and capacities of those, such as Guatemala, India and Mozambique affected by the emergency are placed at 3 Rights-based analysis the UK emergencies unit was where emergencies and development governments, who are responsible for programmes have undertaken the centre of any intervention (unlike the ActionAid’s analysis draws our established. Even before that, country are fully integrated. emergency preparedness and response. programmes such as Bangladesh and emergency responses funded through classic emphasis on external relief attention to the systematic violation of Mozambique were engaged in the Disasters Emergency Committee responses). rights, which underlie poverty, conflict see table overleaf emergency response. Since 1992, (DEC), of which ActionAid is a member. and disasters such as famine. A rights- there is evidence of an increase in both All of these responses were to rapid- 2 A long term perspective based analysis helps us to address the number of responses and the onset disasters, and none were linked There is no common definition for the those causes of inequality and degree to which ActionAid will support to conflict situations. term "emergencies" in ActionAid, but discrimination that exacerbate emergency interventions. Ayuda en

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2 ActionAid’s Approach to Emergencies Highlights of Approaches 3 to Emergencies - achievements, challenges and learning

ActionAid’s approach to emergencies includes preparedness, response, recovery and advocacy. The following sections cover some of the most important findings emphasised The hungry period … a thing of the past – Grain Banks in Ghana Preparedness Response Recovery Advocacy by the country studies. They highlight some of the approaches that have Background: The Bawku West District in Ghana is characterised by erratic Conflict Burundi Sierra Leone Ghana Sierra Leone resulted in positive impact and lessons rainfall, poor/degraded soils, high rural poverty and a proliferation of pests Burundi Somaliland Burundi that have arisen. and diseases. These have resulted in perennial food deficits for about 4 – 5 Ghana Liberia Ghana months in the year, when most families are unable to afford two meals in a Uganda Uganda Preparedness and prevention day. At times, this has resulted in grave food shortages, with disastrous Kenya Rwanda Preparedness (to increase the resilience consequences including starvation and death. of people and to improve the quality of ActionAid Ghana engaged the communities in discussions on appropriate Drought Kenya Haiti Kenya Kenya response) and prevention activities can responses to this emergency. Communities decided on establishing Grain Ghana Ghana Malawi Ghana (local) be implemented before, during and after Banks as a long-term intervention. The programme started with four banks Gambia Kenya Ethiopia emergencies. Several country Ethiopia Malawi Brazil and later increased to eleven. The project has two components; free grain programmes have engaged in Pakistan India-Rajastan to the hard core poor (“Tarim”) and grain for sale to the better off. preparedness and early warning for crop India-Orissa Ethiopia The banks are managed by elected representatives of the communities failures caused by drought. In Ethiopia India-Gujarat known as the Grain Bank Management Committees (GBMCs). Their and Ghana, emergencies have been India-Andra Pradesh responsibilities include, purchase of grain, keeping of the relevant records, Brazil predicted through community based sale of grain, grain treatment and advise the community on the proper Bangladesh monitoring systems. In Ghana, grain management of the bank. This is done in close consultation with the Mozambique banks set up initially to respond to food communities at meetings. AAGhana only plays a monitoring role to ensure shortages have made people less that records are well kept and support them with training on gaps vulnerable to food stress, and represent identified to enhance their effectiveness. Cyclone Bangladesh Ghana Bangladesh Bangladesh (local) a ready system for community-based aid Mozambique Earthquake Mozambique Bangladesh India-Orissa delivery should the need arise. Nepal Gambia India-Orissa Ghana (local) Sustainability: Over the years, the communities in the Bawku West District Floods Mozambique Vietnam India-Gujarat earthquake have worked tirelessly to ensure that the banks are self-reliant. Farmers India-Orissa India Gujarat earthquake are encouraged to sell their grains to the banks instead of to middlemen at Kenya harvest time when prices are lowest. The grains are then stored until the India-Gujarat earthquake lean season when farmers have the option to either take their grains to the Guatemala market to sell or allow the grain bank to sell it on their behalf. In the case Pakistan of the former, 20% of the profit is given to the bank to cover storage cost, Haiti/Dominican Republic which includes treatment charges, travel expenses and lunch allowance to the grain bank management committees whenever they travel or work for Displaced Zaire/Rwanda Mozambique Nepal the community. In the case of the latter, the bank takes 10% of the profit Burundi Pakistan because the price at which the bank would sell the grain would be slightly Uganda below the market price. Mozambique Kenya Guinea/Sierra Leone Ghana Nepal Pakistan

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3 Highlights of Approaches to Emergencies

2 Small silt islands in the river delta, which are vulnerable to cyclones and tidal surges.

The District Assembly, as, part of their emergency The Grain banks have also led to the elimination of Many ActionAid programmes dealing level of disaster preparedness on the 2 preparedness strategy towards food shortages is now exploitative traders. These middle men/women would with disease prevention in rapid onset offshore chars . One aspect of their co-operating with the banks to provide them with funds buy grains at very low prices during harvest time and emergencies have aimed at mitigating approach has been to incorporate from the government’s Emergency Social Relief deliberately create artificial shortages in order to sell at immediate risks during an emergency. disaster management into the school Programme to stock the banks against the lean season. cut-throat prices. The control of food resources is now This also leaves people more prepared curriculum. Children in the school This grain sale is treated purely as a commercial in the hands of the community members. This has for the future. receive basic information of disaster venture with some reasonable margin of profit to make always been evident during interactions and planning preparedness during their regular class up for the shortfalls in the Tarim’s component. The banks sessions where grain banks have always been ranked Incorporating disaster management schedule, through using local Jari keep this money and treat it as revolving fund for the among the top three positive interventions in all the into children’s education song and other folk media in coming years. communities. As part of its Chars Development disseminating the information. Now AA Programme in the coastal region of Bangladesh is using this learning as part Impact: The banks have made positive impact on the The banks have helped me and my family a lot. southern Bangladesh, ActionAid ran a of a broader advocacy campaign on lives of the community. These include: “ I remember some years ago when I had to toil one-year pilot programme to improve the relevant education. all day during the hungry season just to get ■ Increases community confidence at meeting some food for my family who otherwise would community needs during lean periods. have to go without food. In those days a lot of Haemorrhagic Fever – The Ebola Crisis in Uganda (Dec 2000) ■ Reduces the distances walked by community our young men and women left the village Towards the end of the year 2000, Uganda was hit by the Ebola members especially women to purchase grains. during the hungry period to seek greener pastures in the big cities. Married couples (haemorrhagic) fever. One of the worst hit districts was Masindi. ActionAid ■ Increased market opportunities for local farmers to collaborated actively with the Government in Masindi and was part of the Children being taught how they can protect themselves were not left out in this as a lot of them went during a cyclone, Bangladesh sell their grain (while at the same time guaranteeing and did not return to their spouses again, thus district anti-Ebola taskforce that worked tirelessly to control and eradicate the disease from the affected communities. them food at lower prices during the lean period) causing a lot of marriages to break. But today In all these cases, different means, such therefore significantly increasing household incomes. things are different. The grain banks have The response by ActionAid as part of the taskforce as education, infrastructure and ■ made it possible for me and everybody in this institutional skills building have Provides timely access to grain all year round ■ Sensitisation of the community on the dangers of the disease, its village to have access to grains at any time of strengthened people’s resilience to ■ transmission and control and preventive measures; Contributes significantly in empowering the the year and very cheap too. As I am talking future emergencies. This represents ■ Provision of logistical support in terms of transport (hired a mini-bus) communities to take control of the management of there is a lot of millet stocked in the bank so good practice and conforms with the and fuel to facilitate the taskforce as it went about the sensitisation their own development process through the my wife doesn’t need to travel any long Red Cross Code of Conduct, which programme and identifying cases that required medical attention and development and the strengthening of local expertise distance to buy it. There is always enough to states that “Relief aid must strive to transfers to the hospital. in community management of projects ie Community eat and you can see the children looking happy reduce future vulnerability to disaster as Based Monitoring System (CBMS) by collecting the and healthy and playing. If the community Impact well as meeting basic needs”. information, analyzing and acting accordingly and experiences good weather conditions in the ■ informing ActionAid-Ghana. coming years, then I would confidently say that Awareness raised and people changed their traditional attitudes like food shortages would be a problem of the bathing the dead, having realised how deadly the disease was; ■ Strengthens local partnerships between the past. ActionAid has done its best and I say ■ People took more precaution and became more active in reporting any communities and other development partners such thank you. suspicious cases. People are more alert to epidemics. Care International, Technoserve, the District ■ Assemblies and the Ministry of Food and Agriculture Ebola was eventually brought under control, and eventually eradicated. Awingud Akugre” Because of the vigilance of the taskforce, several people whose lives in the Upper East Region who have indicated their a community member from Agbodzua interest to replicate the idea in other parts of the were at risk were saved. region and the country at large.

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3 See P Howell, ‘Fighting Poverty: the Humanitarian Connection’, ActionAid 2000

4 LCI – Local Community Initiative

5 Sneh samuday - Campaign of Hope

However, many of ActionAid’s to senior management and not always emergency. This concept recognises the urban slums by training and supporting The Gujarat experience highlights the emergency interventions originate from communicated to other staff. “Since the attack ActionAid potential of emergencies to redefine local community groups to promote importance of concrete activities as an a need to respond to an emergency – Sierra Leone has educated social relations and produce hygiene and sanitation. entry point to rights-based work in not from recognition of the need for Such planning if used well could greatly us“ on how to help each other ... opportunities for marginalised people to emergencies. preparedness before the emergency strengthen strategic analysis, speed up We have communal work gangs improve their situation. The concept of ‘recovery plus’ links with happens. This is surprising, given decisions on whether and how to on different days of the week ... the idea that in the context of an ActionAid’ development programmes respond to a crisis, and make a Our area of seed rice planted has emergency response there are “When community members are are potentially prime settings for such response more timely and appropriate. increased from 1 to 3 hectares ... opportunities for supporting long-term It can also inform long-term programme development. As such, ‘recovery plus’ is asked to rate the importance of vision and action. The community farm is for a Sneh Samuday 5 activities, options to strengthen livelihoods and an appropriate emergency niche for seed bank. ” unsurprisingly almost all point resilience, and highlight gaps in ActionAid to develop. “What remained very clear was towards the hard inputs of cash for capacity and resources, and Farmers, Sella Limba, Sierra Leone that little or no prevention and work, temporary shelter and collaboration opportunities with partners Relief that helps recovery preparedness initiatives – which stipends - with some asking Sneh and government. Most importantly, it “I prefer living here because the While the focus on recovery work fits Samuday to help with rebuilding are essentially developmental can increase confidence to deal with floods cannot reach us. The Bwaise residents put rubbish into sacks for collection by city well with ActionAid’s anti-poverty permanent housing (because they activities, have pro-actively been council tractor, Uganda emergencies, at both country school is better for me.” strategy, this does not imply that relief trust that Sneh Samuday will factored into both the programme and project level. Since the work is less important. deliver). One can speculate that if developmental and emergency Jose Agostinho, Buna, Mozambique long-term approach is based on good This may result in better livelihoods, people had received compensation activities of ActionAid Kenya in contextual analysis, pre-emergency living conditions, or access to services, the day after receiving assistance Merti and Sericho.” “My house was made of “I was in a bad state [during planning is a useful tool, and one, which may also make individuals and completing forms this would also traditional materials; the one I the floods] and didn’t know what which can make assessment and communities more resilient to future be rated highly. But this does ActionAid Kenya, have now is much better, I have to do. The food aid helped to highlight the importance people response design much easier. emergencies. Ideally, this is done in a Emergencies Review 2001 always wanted a house like this.” cover some days of hunger at a place on tangible results and way which improves local skills: for difficult time.” suggests that NGO efforts aimed Recovery and ‘Recovery Plus’ Alice Francisco Ndove, instance, in Uganda ActionAid Jose Artur, Sironge, Mozambique solely at long-term processes (e.g. Nguene, Mozambique Improving our response ActionAid’s most obvious strength is in responded to a cholera outbreak in the improving Government in emergencies post-emergency recovery work, which is “Thanks to Cyclone Georges I accountability, empowerment) will the focus for most of its emergency The other side of preparedness, now have a bed, and the children fail ... as communities become responses. Recovery work usually aims Examples of ‘recovery plus’ benefits, which are directly attributable to sceptical when ambitions take so however, is ensuring that ActionAid sleep in a separate room”. programmes are better prepared to to reduce the poverty caused by emergency responses, are: long to be realised. There has Female Haitian immigrant, been little tradition or experience respond. Some country programmes emergencies, through protecting or Dominican Republic Orissa, India: Roads and embankments resulting from post-cyclone food- of social struggle within Katchh have undertaken risk analysis and rebuilding livelihoods and minimising for-work programmes in Orissa. and the aim of creating vibrant contingency planning exercises, asset loss. “The area is cleaner than before rights-aware community will take although there is no coherent plan to Dominican Republic: Better housing and new health posts for Haitian The impact of many ActionAid the cholera epidemic ... There is time whether working to realise ensure all programmes do so. Where immigrants as part of slum rebuilding after Hurricane Georges in Dominican programmes has indeed gone beyond improved sanitation in our homes rights at household, community or plans have been made, they are not Republic. the usual concept of recovery (where ... Our zone still performs regular state level.” always used to assist programme Saturday clean-ups and the LCI4 people re-attain their previous level of Honduras: A new bridge improving communications and trading planning. In some countries chairman drums for residents to livelihood and well being) towards opportunities for isolated communities in Honduras (post Hurricane Mitch). ActionAid India Emergencies contingency planning has been a 3 ‘recovery plus’, whereby people are in respond to the community work.” Review 2001 participatory process including local Kenya: New and reconstructed boreholes to protect pastoralists’ livelihoods some way better off than before the Bwaise community member, partners; in others it has been confined Uganda ” in drought (Merti) and flood protection dykes (Busia).

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6 A Thirkell, ‘Peace Building in Africa’, ActionAid 2001

7 Reflect is an approach to learning and social change based on sustained reflection and action. This approach draws on the theories of Paulo Freire and was pioneered by ActionAid in the early nineties.

The benefits of review found that people’s main Opportunity in emergencies employment programmes motivation for participating was money. Burundi: ‘Reflect7’ approach as a peace-building initiative Just as ‘recovery plus’ results in benefits, Yet, improved communications had a Some emergency programmes – Immediately after the crisis in Burundi, ActionAid played an intermediary so emergencies may offer opportunities positive impact for livelihoods and well notably food-for-work and cash-for-work role of encouraging the two communities (those remaining in communities to achieve people’s long-term goals and being, improving access to markets and in Ethiopia, Honduras and India – have and internally displaced persons camps) to engage in discussion around improving their lives. Fundamental services for both men (who mainly achieved multiple impacts from the how the two communities could be reintegrated. Typically the discussion changes of power in society are needed appreciated the economic impact) and same activity. People have earned committees consisted of a mix of Hutu and Tutsi and would meet on neutral to eradicate poverty. Such changes are women (primarily social and health money or food to support household ground. Together the two groups discussed and agreed criteria for the more likely to happen during reasons). There were also unexpected incomes, sometimes diminishing the return of the displaced communities. emergencies when existing power need for migration at a time when the benefits to people who took the The committees also discussed the formation of Reflect circles within the structures are disrupted. opportunity to sell refreshments to the local economy is constricted. The work reintegrated communities to facilitate long-term peace and development. construction workers. done has brought improvements that Through this process, Reflect was implemented in 1997 in 11 areas also support development goals. These Employment programmes have formed suffering a high level of conflict and insecurity in the Raying province. In the severe floods of early 2000, have included building infrastructure a useful link between relief and ActionAid-Mozambique undertook such as roads and bridges, houses and The objective of the first 11 circles was to promote peace and strengthen recovery, and have allowed people a the role of women in peace building through literacy. The Reflect initiatives an HIV/AIDS awareness communal shelters, as well as breathing space in which to reorganise are also part of ActionAid Burundi’s wider peace and reconciliation programme for people in environmental rehabilitation varying from their lives after a disaster. Employment programme. Local and national Reflect manuals were devised with themes displaced camps. The people rubble clearance after the earthquake in programmes can also boost community from the communities, with a focus on peace as part of a long-term then dispersed to their home Gujarat to soil conservation in Ethiopia. morale when producing tangible development strategy. Reflect circle participants play an important role in areas, with key contact people in each place with whom the In Honduras, people were encouraged benefits prioritised by the community. influencing the attitudes and behaviour of the wider community in relation programme can continue to work. to take part in bridge construction after When the community owns the whole to peace building and trust within communities. This coverage would not have Hurricane Mitch so they could feel process of planning and deciding ‘Peace Building through Communication in Burundi’ Jane Bennett, 2001 been possible under normal ownership of the project and provide priorities, the impact of these Members of the ‘Westside Boys’ football team made up of conditions when people cannot necessary labour. It was not planned programmes is increased. The choice ex-combatants in Sierra Leone following a match against spare the time to sit for several as a cash-for-work intervention. The between food-for-work and cash-for- the British Army Peacekeeping forces. which incorporate a long-term approach. Burundi - where the entire development This combines practical activities with programme is based around post- hours to discuss such issues. Boreholes for the new settlements work is very context-specific but cash is education and activities designed to conflict recovery and prevention. also conformed with long-term usually preferable since it gives people inform local communities, often providing Somaliland - where ActionAid worked “The cash for work programme was very popular in the villages visited, goals for clean water supply, and more choices. a concrete focus within which conflicting with elders to promote local governance with people pleased with the results (which included scrub clearance to a new Vitamin-A rich variety of groups can begin to work together. after the war. ease access to water sources and productive agricultural land). However, Peace-building sweet potato was introduced the prime motivation was for the cash, as very few other labour Notable peace building Ghana - where ActionAid mediated during emergency planting The achievements of ActionAid’s peace- opportunities exist. An indicator of the impact of the success of the programmes include: between conflicting tribal factions and material distributions, which aims project is that several labourers explained that cash for work had been the building programmes have been well supported workshops on peace building 6 Sierra Leone and Liberia - working to to improve long term food security difference between them staying in the village with their families, rather documented elsewhere , but must be for community leaders and district rehabilitate young ex-combatants of and nutrition. than migrating away for work. The importance of maintaining family noted here as post-emergency work, authorities. both sexes. systems of support and welfare should not be underestimated, especially AA Mozambique, at a time when the number of dependants (widows, orphans, disabled) has Emergencies Review 2001 increased dramatically …”

ActionAid India, Gujarat (post-earthquake recovery 2001)

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In Burundi, Ethiopia and Kenya, members were involved in targeting Good participation is more likely in Unless poor and vulnerable people are women’s participation in peace-building and distribution food aid. established project areas and in treated as essential participants, the “ICDPP (community preparedness committees raised their status in the programmes with an integrated agency may be reinforcing the very programme) would have been However, encouraging active community. They are now more likely to approach to emergencies and norms, which marginalised them. more effective had they facilitated participation in emergencies has proved be included in decision-making in development. ActionAid’s experience a process for the community to difficult in some situations, especially development activities, a goal in the shows that in extremely politicised and see needs and solutions for when communities are displaced. In Bangladesh, community gender programme. severely disrupted situations (such as themselves.” Often communities are consulted displacement), participation needs disaster management committees Participation in emergency rather than encouraged to participate careful planning to avoid perceptions were set up on cyclone-prone ActionAid Bangladesh, responses in project design and management. of bias, as ActionAid found in islands, consisting of men and Emergencies Review 2001 Building on local knowledge, This is particularly true in country Bundibugyo, Uganda. women from poor households who responding to community priorities, and programmes with less emergency had undergone disaster Learning to be flexible encouraging the active participation of experience, where normal ActionAid Representation and power preparedness training. However, the communities benefiting from our principles such as participation and relations in communities the need for the committees was In rapid-onset emergencies, fully gender analysis are considered originally perceived by programme involving local people can be difficult work are crucial components of a long- Looking into rights reminds us that difficult in an emergency. This may be staff, rather than identified by the and decisions have to be made by term approach to emergencies. Many communities are not alike and the the case in the early stages of a rapid community (although it was outsiders based on assumptions, A womans reflect dance group singing about peace and ActionAid country programmes have obvious leaders may not represent onset disaster, but is unlikely to be true discussed in the training groups). backed up by consultations with local reconciliation in their community, Burundi managed to involve community some groups. members in implementing emergency in later phases. As can be seen from In addition, although committee institutions and the affected In Malawi, local people set up nurseries work. In the Dominican Republic, local the extract in the box below, ActionAid members were supposed to take communities. Ideally, local staff and for drought-resistant crop varieties men and women, including skilled India’s initial response after the In Zambezia, Mozambique, local active leadership roles in the partners familiar with the local culture will following drought responses. These now artisans, were employed in rebuilding earthquake did not involve the people played no active part in community at times of emergency, be involved. In the past, ActionAid form a major part of the agricultural houses after Cyclone Georges. In affected communities. managing the aid response. the key to the first aid box and programmes have made centralised development programme. Measures to Kenya’s Merti programme, community However, community leaders other materials was kept at the decisions about how to respond to improve the environment – to protect it were consulted on seed kit local ActionAid office. emergencies without using the from both drought and flood – have knowledge of local staff, let alone the components (although their ActionAid Bangladesh, also added to the overall programme. communities concerned. “Utopian levels of participation were impossible immediately after the recommendations were not all Emergency Review 2001 ActionAid India viewed responses to the earthquake due to trauma, disruption and lack of trust (on both sides). It included in the standardised kits) seems that the Sneh Samuday (Community of love and hope) concept was and on targeting dilemmas (such Orissa cyclone and Gujarat earthquake Whose emergency is it? as an opportunity to tackle the therefore necessarily top down in its original design, with little possibility as splitting the seed kits to cover Using an analysis of how poor people underlying social, economic and for participation – even by implementing partners. However, it seems that more households). It is not clear, can claim their rights, and with the aim political reasons for the vulnerability of the design team’s analysis was correct with community members however, to what extent their of empowering vulnerable people, we the poor. ActionAid’s improved consulted seemingly content with Sneh Samuday’s role and activities. views represented different are forced to look more deeply into the understanding of why these people are Part of the project concept was to immediately have a presence in the groups of people in the meaning of ‘participation’. Unless likely to be affected by emergencies is communities - under the guise of psycho-social counselling and the community, especially the least affected people are involved in different informing long-term programming. creation of child day care centres. This enabled the recruitment of powerful. In some places, people volunteers within the community and the development of trust between the did not plant seeds because they ways in deciding what their needs are, implementing NGO, community volunteers and the community as a whole.” were not the required type. the impact of any emergency intervention is not likely to be limited. ActionAid India, Gujarat, Emergencies Review 2001 ActionAid Mozambique, Several country programmes have noted Desctruction caused by the rapid onset of the Gujarat Emergencies Review 2001 this lesson. earthquake on 26th. January 2001

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In emergencies, it is important not to assessment and project design; and if The decision on how to respond assume needs and solutions. Yet very necessary standing up to donors to Gujarat, India – targeting the was made in Freetown. We only often staff are influenced by existing make known the local situation and the marginalised, needy or targeted farmers and many programme procedures. Communities communities’ views. vulnerable? people were not registered.” may be presented with a series of After the earthquake in Gujarat (as options from which to choose, which Targeting after the Orissa cyclone) ActionAid Staff member, Sella Limba, Sierra although considered a shortcut at the Targeting (the selection of people within India initially made a commitment Leone (1997) time may not pay off. In the long-term communities) emerges as a challenging to focus its assistance on the one solution may be assumed to fit the issue. While best practice is to involve “The women said, “Our husbands poorest and most vulnerable whole community, when in fact, different communities in deciding who is to had no lungi but each woman (including Dalits, Muslims and groups may have different needs and benefit, this may be difficult immediately was given three sarees” ... Having scheduled castes and tribes), a multi-strategy approach might be after rapid onset disasters or in highly two sarees in rural poor rather than all affected people. the answer. politicised situations. Strict social The programme argued that households is usual, three is hierarchies, such as the Indian caste working with the community as a unusual. In fact, this package A commitment to ensuring full system, bring their own complications, whole merely reinforces the was designed centrally by the participation in emergency situations where those most obviously structural violence against Extensive flooding in Zambezia, Mozambique, February 2001 donor ... which was guided by means putting those who benefit from marginalised may mask other pockets marginalized people. It was emotion or romanticism of our work at the centre of the response; of need. ActionAid experience. ActionAid local people about who should receive questioned as to whether working helping poor flood victim women. encouraging decentralised needs Mozambique’s two experiences of floods help (in a normally self-supportive mostly with previously identified But the beneficiaries argue for – in Maputo province in 2000 and in community) led to complaints and riots. marginalised groups contradicted different options, rooted in needs Zambezia in 2001 – both offer the Red Cross Code of Conduct, and the practical situation.” In Ethiopia in 1994, the country programme was proud of having consulted interesting perspectives. Targeting food which states that aid should be the community on how to respond to serious crop failures from drought. and other goods to displaced people “When we left the displaced ActionAid Bangladesh, given on the basis of need alone. Staff were happy that farmers requested grain – and even blankets – on over several months resulted in rifts centre we started to receive ... Emergencies Review 2001 In fact, ActionAid India believes credit, rather than as free aid. However, at that time ActionAid-Ethiopia between them and other community household goods from ActionAid, that vulnerability is complex: for had a policy against free relief and the farmers knew this. Therefore, in a members. There are similar and the community members instance, women, disabled and dire situation, they requested what they were likely to get. In fact, many experiences elsewhere, especially where didn’t want to help us anymore. elderly people in higher castes may people were unable to pay back the credit, and this adversely affected the people have been displaced. For They insulted us ... They were be as vulnerable as apparently development programme. And some vulnerable people such as elderly instance in Bundibugyo, Uganda, where saying that they had lost their poorer castes. widows refused the blanket, although they needed it, because they were rural people were displaced by rebel machambas (fields) and they afraid to increase their debt. ActionAid India, Emergencies attacks. Host communities were initially didn’t have anything to eat, so helpful and some looked after displaced they should also receive.” ActionAid Ethiopia, Emergency Review 2001 Review (Gujarat) 2001 people in their houses. So when aid Laurinda Manjate, Buna, arrived, they felt they should also receive Mozambique Tensions and rifts something in compensation. There are some situations where “Some members of the host Ensuring communication community, because they did not inappropriate targeting may have and consultation negative social impact. More debate is get food, endeavoured to steal In Zambezia, Mozambique, lack of needed on this point in the light of food from those who were consultation with and communication to, getting.” Camp leader, Bundibugyo, Uganda

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Targeting and registration challenges in community tradition of sharing. Monitors found this Targeting as a method of working may If immediate relief is the aim, then it may There is clear evidence that people will Zambezia, Mozambique situation very difficult to deal with. be inappropriate, if there is little be sufficient to select only those reject inappropriate or illogical targeting Targeting help to those most in need was perceived to “As the suffering in the community is the same, if difference between groups in a physically affected; however, the above criteria. Even if this does not take the be necessary by the provincial government to ensure something is to be given it has to be for all. We had community and the emergency has experiences suggests that in recovery form of overt protest, they will quietly fair practice, and they expected NGOs to carry it out. an experience in this place where many people affected almost everyone. Equally, those programmes it is important to assess redistribute goods as they see fit. This led to resentment by local government who wanted opposed the registered people – asking, are we not most visibly affected may be targeted everyone. to be in control, and thus undermined the targeting affected also, and poor? For us in the field it was and other groups (whose livelihoods effort. NGOs perceived targeting as necessary mainly painful and difficult to answer them.” may be badly damaged) left out. This Re-examining the “The ones who did not receive because resources were limited (partly because the Distribution monitors, Maganja da Costa was an issue in Mozambique where aid concept of targeting went to their relatives who shared original estimated figures were not adequate) and was initially allocated to those who had ActionAid’s experience also suggests something with them.” because normal good practice in relief implies meeting The lack of communication to those communities that lost houses but not those who had lost that the whole concept of targeting Male farmers, Sironge, the needs of the most vulnerable. WFP also expected benefited (and those that didn’t) over the targeting their crops. Mozambique food to be targeted to those most in need. needs to be re-examined. Targeting has criteria led to an ironic situation, whereby the become a norm, seen by donors and “In fact 75 per cent of people in NGOs – undertook a house-to-house registration registration cards were seen as discriminating in favour others as ‘best practice’: supporting the this project area needed process with community leaders in some places – of the powerful. The perception was that cards were idea that only the really needy should given to those with links to the chiefs, or even those with assistance although only 65 per during which detailed data of each household was benefit. In fact, it is resource-driven and collected and fed into a computerised system. This supernatural powers. The fact that some vulnerable cent were registered ... People increasingly used as an excuse for raised community expectations as everyone registered categories were prioritised (e.g. widows) but not others were very cooperative and shared allocating insufficient resources and expected to receive something. Some people were (such as mothers with young children), added to the amongst themselves”. even as justification for ‘dumping’ missed because of difficulty in accessing areas for confusion. This appears to have been mystifying to the unwanted goods. In Zambezia, Local leader, Koro Gale, Ethiopia registration (in a flood situation this possibly means community generally and resulted in conflict (a riot in household items left over from the flood some of the worst affected people were missed), and one case when surplus food was taken back to the response in the south were allocated to because people were moving from place to place as the warehouse), but also in much sharing of received goods. Communities use their resourcefulness having been hit by floods in Zambezia, Mozambique ActionAid programmes now have waters rose or receded. The registration team who did The conclusion is that in this case the targeting exercise widows and disabled people, mainly experience of emergency targeting in not speak the local language may also have made some was futile and rendered the response less rather than “because the numbers fitted”. They were “The aid was more beneficial to many different situations. These mistakes in local names. more effective. not distributed as part of any clear people who had cards, which had strategy, such as support to displaced experiences need to be shared and no meaning because the floods Differing selection criteria for different components also Lessons learned families, or as going-home recovery kits, analysed so that lessons can be learned caused confusion. For food eligibility, households had to affected everyone.” and the targeting was mystifying to staff which will shape future activities. The have lost both their house and their crops; for seed and ■ House-to-house data collection raises expectations Divorced mother, Marrabuanha, and local people. Other programmes rights-based approach offers a useful tools, loss of crops alone was the criterion. Relief - targeting processes must be carefully explained. Mozambique have similar experiences. framework for revisiting the concept of criteria were applied to recovery measures: old and ■ Representatives of the communities that receive targeting and reformulating policy and disabled people were prioritised for seeds and tools. help should be involved in decisions on targeting. “In the question of targeting many recommended practice, according to the This was confusing to many community members, since ■ Selection criteria must be transparent and clearly families were left out because “Targeting can be embarrassing. different circumstances encountered. they considered such people less productive. communicated. they were not affected physically Cooking pots were not given to In the case of food, the general outcry was that ... but they have been affected anyone except pregnant and ■ A tradition of helping each other in the community Working with Partners everyone should be treated equally. “People asked if because of the disrupted lactating women ... We need to where almost everyone is affected makes selection Relations with partners (including local they could give half to their friends”, recalls the Oram livelihood system.” consult the community at the inappropriate. government) have sometimes proved local manager. It was especially difficult since the ActionAid Bangladesh, initial stage, not tell them later.” problematic in achieving short-term original WFP relief food had been distributed without ■ Imposing selection criteria is even harder where Emergencies Review 2001 Staff member, Kambia, goals, although such collaboration targeting. There seems to have been a genuine need on earlier aid has been given to everyone. Sierra Leone usually offers opportunities to strengthen behalf of most of the population, and a genuine ActionAid Mozambique, Emergency review 2001 partnerships and further long-term aims.

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3 Highlights of Approaches to Emergencies

The learning so far seems to indicate where a prior relationship exists, but agree the implications arising for that Gender, generation Involving men and women that crucial factors are the existing level even so, the emergency context may particular project. and disability As in development programmes, gender of capacity, and existence/quality of the bring new pressures. Programmes in in emergencies means looking at roles Financial and reporting requirements There is a tendency to make gender, prior relationship. Where new partners Mozambique, India, Bangladesh, and and needs of all groups and both sexes. may require special attention, especially generation, and disability analyses lower have been taken on for the emergency Guatemala have experienced this. Sometimes the higher risk exposure of when working with several partners priorities in emergencies. The pressure to there has been mixed success, with the women means male survivors have and/or when a large amount of funding address the needs of the whole society need for more hands-on monitoring, ActionAid Bangladesh, however, has special needs. In the Gujarat, post- is received from a major appeal or makes it hard to maintain a focus on the training and support (even in report- positive experiences in building on donor. ActionAid India’s Gujarat most disadvantaged groups. earthquake programme ActionAid India writing and evaluation) than might be partner agencies’ and is now forming programme was commended in the targeted single fathers, owing to the high the case in a development programme. three hazard-specific groups involving In some cases, gender analysis has proportion of women killed in the Women planning activities for the community, DEC evaluation for its thorough post-cyclone, Orissa, India Where monitoring is carried out, this staff from 60 partner organisations to been used to good effect, not only approach. earthquake because they were at home. needs to be in an atmosphere of trust develop their disaster management targeting special needs but also and collaboration or partners may view capacity. All these issues add to the pressures of enabling marginalized people to gain The studies show that where emergency it as ‘policing’. This is usually easier planning an emergency programme, more control, and possibly reducing their programmes have targeted women, “According to the staff of the Another risk where partners are already often under very demanding future vulnerability. In others, it has been there may be a better immediate impact partner NGO, the dependency operational is that targeting may be circumstances. However, according to overlooked in the rush to respond to a but structural needs are not being met. relation of poor people has been biased towards their existing constituent crisis. As with participation, gender Some gender-based activities have “Careful monitoring, including the country programmes’ experience (for reduced by the intervention, as in groups (as can happen in any NGO analysis is a crucial component of the brought about structural change and deployment of agency staff to instance, Mozambique and Guatemala) some cases they were involved in project, with or without local partners). long-term approach, to be applied as given power to some people, but in work with the NGO partners in it is important to resist the temptation to the planning and operational The lesson here is to be aware of the early as possible in a given situation. most cases it is too early to know the field, was ignored by see partners as extra capacity which process. This made poor people – risks at the design stage of the project, whether such change will last. ActionAid Bangladesh. Though will relieve ActionAid’s role, but rather Most gender-based interventions tend to especially women – empowered and encourage open discussion with staff were deployed, monitoring expect to put in more work at the outset be women-focused, sometimes showing through involving them in partners to reach agreement on Understanding local culture of relief and rehabilitation work to support partners in order to reap limited analysis. Women may be planning, providing them with targeting and other issues. Within this and social norms dividends - and improve chances of targeted because of their perceived adequate information about the was absent. Close monitoring process there is also an opportunity to sustainability – later on. Conditions of vulnerability rather than through a real In obviously male-dominated societies, type of intervention and the place could contribute to repairing the expose partners to the Code of the partnership should also be openly needs assessment. women are structurally disadvantaged to collect materials ... As they lapses caused by the centrally Conduct and Sphere standards, and designed emergency work, e.g., discussed and agreed by both parties. and it is very difficult to challenge the had to collect materials from the norms. For instance, in ActionAid office their mobility increased, the back home package.“ “One cow was given to each of Bangladesh there is a gender committee their capacity to bargain with the “ActionAid staff did weighing of many households ... This might “Some DEC member agencies assessed their partners’ financial and good awareness of gender issues. staff increased which in turn gave the relief materials during generate economic ‘power’ of the management capacity before entering into partnership. In addition, This is used in efforts to involve them confidence to interact with distribution ... It made the women. But the beneficiaries went capacity building support was provided. ActionAid’s internal audit team women’s participation and target their the community. According to the distribution process lengthy. The through hardship managing fodder visited each of their partners twice since July 2001: once to check systems needs, but other issues are much harder NGO, the degree of empowerment partner agency called it policing for the cow. The flood disaster and make specific recommendations for improvement, and a second time to address. Local partners, for example, is higher for beneficiaries who ... saying, ‘ActionAid Bangladesh caused a fodder crisis in the area. to check vouchers. ActionAid’s partnership agreement stipulated that may find it difficult to denounce openly have been involved long-term with is testing our transparency and Moreover, many beneficiaries had partners had to undergo an ActionAid internal audit.” the scapegoating of women for men’s the NGO.” accountability”. no experience in cow rearing. misdeeds. DEC Gujarat Earthquake Evaluation Report 2001 However, the study team believed ActionAid Bangladesh, ActionAid Bangladesh, the cow generated a dream for the Emergency Review 2001 Emergencies Review 2001 woman to be able to earn a good income after one or two years.” ActionAid Bangladesh, Emergencies Review 2001

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8 Houses for widows, orphans, and old people without families who had lost their homes in the cyclone.

planning of the programme, there is Gender imbalance with the PNS evidence that women were given power “In the past no-one dared to argue with council members and chairmen ... (committees) is cause for and influence in the choice of Now women become Ainjbaj (one who deals with law) ... Now women can concern. One woman demanded community improvements through food- organise themselves quickly, can start bargaining if a husband starts to know what would be the for-work. Women were encouraged to beating up his wife”. purpose of volunteering to the participate mainly in cleaning and committee. In this particular case, “My wife collected and saved 50 kgs of rice. She does not permit me to the concerned woman leader of renovation food-for-work activities. It is touch the rice ... She also told me that now we will manage the food by the self-help group had to make notable that women’s participation earning and will only consume the stock when we are in crisis.” increased greatly with each phase of Villagers are taught how they can carry a patient to another many trips to the Block office and centre in case of need during a cyclone, Bangladesh “As long as I (the wife) could bring relief materials, I had value/respect in the project. In the early post-disaster the District headquarters to get the household. “ stages women’s participation was only the group registered and obtain a Designing appropriate approaches Villagers are shown how they can store food by keeping 11 per cent (which the programme it underground in preparation for a cyclone, Bangladesh “As soon as the relief and rehabilitation work stopped, we became bank account. The inconvenience Bangladesh’s cyclone preparedness believes is due to their personal dependent again on the husband.” and loss of valuable labour days programme’s (ICDPP) separate training were issues of concern that had domestic recovery needs), increasing to sessions were designed to allow “The women said that due to basic ActionAid Bangladesh, Emergencies Review 2001 not been addressed. Engaging 60 per cent in the third rehabilitation women to attend without breaking the disaster preparedness training men in the discussion on their phase. The lesson here is that while purda custom. This was fairly successful they became more confident to Improving women’s position widows and orphans and Uganda’s willingness to facilitate meetings women should have rights to participate but only after local discussions with face the crisis situation due to education project in displaced camps. in a manner that women could be in food-for-work programmes, this There are a few instances of religious leaders, husbands and natural disaster. Those who involved are vital to the process. improvements in women’s social or sometimes results in overburdening received first aid training said that Less specific focus is given to the needs mothers-in-law (which had not initially economic position, some achieved by The PNS are perceived as men’s their workload. With some more due to the training they became and rights of elderly people, although been planned as part of the design and some by chance. However, committees as they handle the research, ActionAid’s experience in more capable of providing primary they are sometimes included as a programme) to ensure women were such impact needs to be monitored over sought after food for work Orissa could contribute to the debate medical care for their families and vulnerable category. The Orissa cyclone allowed to attend. Since the women a period of time to know whether lasting programme and the self-help on this issue. neighbours. However there is no programme was a notable exception. had little or no education, very little change has taken place and if so, how groups as the women’s visible evidence observed about Emergencies may disempower older In Orissa, there is also evidence of the experience of group interaction and had such change can be replicated in future. committees. The bifurcation of the change of women’s position in people, undermining their role in the early marriage of girl orphans, who are to bring small children with them, the issues for the purpose of the community.” family and community – or they may training was much more difficult than Generation analysis functioning has led to a gender seen as a burden on the families taking with men. The lesson here is that better suddenly gain new demanding division of roles and care of them and/or are being married “The actual participation of Closely linked to gender analysis is planning with these constraints in mind responsibilities (as in Gujarat, where so responsibilities ... Also for the compensation they received. females in the disaster generation analysis: another useful tool might have increased the impact. We many mothers were killed in the representation of women at the The latter is also true of some widows. management committee is less in assessing abilities, needs and rights, also learn from this programme that it is earthquake). ActionAid could develop its inter-village PNS meetings is This is a difficult issue to address since than the males. Females are and differing priorities. Several ActionAid difficult to challenge local norms to recovery phase expertise in this area. In visible which could constrain it resides in local culture and social mainly responsible as first aid programmes have been successfully increase women’s participation as the past, there have been some future directions. norms. The experience offers an volunteers and rescue and survey wholly or partially targeted at children decision-makers. While many women volunteers, but the first aid box occasions where the needs of both the opportunity for ActionAid India to use a and youth. For instance, Sierra Leone’s DFID report, ActionAid India greatly valued the training and learned has been kept in the house of the very young and very old were not fully (Orissa) 2000 rights-based analysis to review whether ‘youth in crisis’ post-conflict programme, new skills, it is not clear whether they chief volunteer (male) and the key met, especially in food aid programmes more could have been done to reverse Bangladesh’s community disaster in the ActionAid office.” where inappropriate Word Food this trend, and what kind of monitoring will have the opportunity to use them preparedness activities, India’s mamta Programme rations were distributed. While women’s participation in and/or influencing framework could be on a permanent basis in the community 8 ActionAid Bangladesh, gruha post-cyclone programme for Bangladesh appears not to have been used in future similar situations. and it is unlikely that their status has of prime importance in the strategic changed as a result. Emergencies Review 2001

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9 DCA – District Coordinating Agency

Disability Advocacy and influencing Choosing the right partners can Coordination and The DEC forum had a ready-made increase influencing potential. In the credibility with the government, due to “ActionAid because of its large In Gujarat early work in the villages Several country programmes have collaboration Dominican Republic, ActionAid was their role in the previous floods and their scale of operation in the cyclone- highlighted the ways in which the taken opportunities to speak for poor Some country programmes have able to raise awareness of the plight of ready access to funds. This affected area, long-term disabled people were being denied people and influence authorities in enjoyed considerable success in Haitian immigrants after Cyclone collaboration on a joint proposal was commitment, integrated their rights. ActionAid included this into emergency situations and issues. This coordination of emergency responses at Georges by working through several innovatory and as a principle could rehabilitation approach and its their programme and worked with can produce an impact as effective as both national and local levels. This can local NGOs, all of whom focused on provide a new model for future rapport with the district specialist organisations to provide direct intervention, and helps to raise raise the agency’s profile, enhancing championing the rights of immigrants. emergency responses. administration was chosen as the appropriate support. ActionAid’s profile. A coordination role impact through increased access to 9 In Bangladesh, ActionAid piloted DCA of Jagatsinghpur district“. is not a prerequisite for influencing and resources and influencing opportunities. After the Orissa cyclone, ActionAid India embankment management combined ActionAid India, DFID report, 2000 advocacy work, although again a long- took the role of District Coordination with helping poor people to gain their In Malawi and Mozambique, such activity term presence and working relations Agency in Jagatsinghpur, one of the land. This work was continued by a in emergencies has also increased with local institutions can be helpful. worst affected districts. ActionAid India local NGO. ActionAid’s influencing potential in non- advocated for standardisation of food-for- Both ActionAid Mozambique and emergency situations. In Malawi, work, and after discussion with the state ActionAid Kenya successfully lobbied ActionAid’s work on emergency seed Promoting settlers’ rights to level coordination committee, the Orissa the World Food Programme (WFP) to distribution influenced the government reduce vulnerability State Disaster Mitigation Authority target their areas of operation in strategy on seed and other agricultural adopted their suggestions. Zambezia and Isiolo respectively. In More than 47 percent of people in support to poor farmers. Their Kenya, this led to ActionAid overseeing Bangladesh are landless, and this involvement in recurring emergencies Sensitively done, coordination work can the WFP operation in Isiolo district. number is increasing due to led to a higher profile and better support the role of local government, poverty, exploitation and river ActionAid Uganda raised the alarm cooperation with government ministries improving local communities’ activities Zarina, left paralysed by the Gujarat earthquake in about floods in Apac with government erosion. ‘Khas’ land is allocated January 2001 takes a walk on a bamboo walking and other NGOs. and influencing policy. It can be the frame built by her husband. by the government to landless and media, and raised awareness of basis for tackling rights-based issues the need for education of children settlers, but in fact is often In the Mozambique floods of 2000, Despite the fact that the and fits well within the long-term occupied or controlled by the ActionAid Mozambique coordinated earthquake caused a huge displaced by conflict in Kitgum and approach. Each context will be different elite. Many settlers therefore live information for the seeds and tools increase in numbers of disabled Bundibugyo. In 2000, ActionAid Malawi and many will be challenging – again, a on embankments, which are programme at a national level, and at a persons, only a single DEC lobbied the Ministry of Agriculture to long-term presence and prior local extremely vulnerable during provincial level for water sector activities member (ActionAid) has given this convince them that the drought in contacts are usually an advantage. An cyclones or tidal surges. In in Manhica. Building on this experience issue priority. Karonga was serious and needed a cyclone-prone Bhola district, agency with a long-term presence in the response, based on social indicators of in 2001, they took the lead role in the ActionAid together with two other area (and good local contacts) is also DEC Evaluation of Indian stress (people were selling assets). Disasters Emergency Committee (DEC) NGOs promoted the participation more likely to succeed in a coordination Earthquake, 2002 forum during floods in Zambezia This was also an opportunity to role in recovery and rehabilitation of settlers in embankment Province. This involved continuous influence government thinking of activities than an agency which arrives maintenance – this reduced the liaison with government ministries emergency response as saving on the scene for relief and rescue. vulnerability of the wider (notably Health and Agriculture) at livelihoods, not only lives. community - as well as provincial level as well as daily meetings establishing land rights for the and discussions with the other NGOs. settlers. ActionAid Bangladesh Emergency Review, 2001

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4 Developing Innovative Approaches to Emergency Work

This section examines in more detail All the above build on existing strengths, Risk is sometimes essential to break “People who have not been able to some of the more recent innovative such as local knowledge, community new ground and to improve on old Examples of such work include: This is a good example of using generate an interpretation of what approaches that ActionAid have used in groups or tools and techniques borrowed strategies. By building on existing the most appropriate form of has happened, and who find their emergency work. ■ Ghana, Kenya, and Ethiopia. Using from development programmes. Thus, strengths in new ways, the risk can be communication to focus on how events incomprehensible, are likely community knowledge and risk has been minimal. minimised. Even if the new approach local people can take on particular to feel the most helpless and ActionAid has built on skills and participation to improve early roles and responsibilities. proves unsuccessful, substantial learning unsure what to do.” expertise in development programmes warning of drought and promote However, innovation can be risky. It can be gained if there is transparent to pioneer some many innovative appropriate response. The grain ■ Sierra Leone and Liberia. Working means trying out new ideas with little review and reflection. An innovative spirit Derek Summerfield, quoted in The Selfish Altruist, Tony Vaux 2001 approaches in its development banks set up to respond to food with young ex-combatants to precedent, or applying old ideas to can encourage fresh analysis of each interventions, including emergency crises in Bawku, Ghana, originated overcome the trauma of war and to different situations. Sometimes such situation (and thus more appropriate work. Such innovations sit well with a initiatives prove less successful than in discussions with farmers about offer new employment skills to help responses), rather than re-running old Although this is a relatively new area of long-term approach, since all represent expected. For instance, emergency credit local communities being involved in improve their recovery and maintain formulae. involvement for ActionAid, it could be a new ways of using developmental has had a bad effect on long-term credit the whole process of assessing the peace. focus for more discussion and analysis, principles to respond to emergency programmes because of poor repayment change and influencing on-going Psycho-social support especially when comparing approaches needs. There is a clear commitment ■ Somaliland, Sierra Leone and (see Ethiopia case study on emergency activities. in conflict and natural disasters. It fits to building on local resources and Burundi. Supporting community credit) especially where repeated crises Support given to relieve trauma need not well within the long-term approach and focusing on poor people’s priorities. ■ Malawi. Distributing local maize sport as a way of encouraging have occurred. Through this, however, only be psychiatry. Other social activities can be combined with practical seed, as requested by farmers peace building and improving local ActionAid has gained considerable can provide practical assistance to help livelihood support. rather than government-promoted communities’ ability to recover from experience in an innovative practice. people come to terms with their experiences. This is important. hybrid seed. This was the first time the effects of war. For example, in the response to India’s the UK government funded seed Gujarat earthquake, ActionAid was ■ Orissa, India. Use of social audit in distribution from emergency funds. delivering “hope” as a mainstay of the post cyclone recovery to promote “Unforeseen events impacted to some extent on the credit repayment. The programme that aimed to “Bring back a ■ Kenya. Subsidised livestock transparency and accountability first and major contributing factor ... is credit overburdening. The second semblance of normality”. Practical markets as support to pastoralists through regular public scrutiny of came in the form of heavy rain and flooding which destroyed much of the therapies included setting up day care facing drought rather than just how agencies worked and what wheat/teff seed given as emergency credit, leaving some people with an centres, facilities for play and informal providing for immediate food they spent, by the communities extra loan but little production to show for it. At a later stage, government education for children, psycho-social needs. who benefited from their actions. taxes for the last three years were imposed, together with repayment of government fertilizer loans forcing difficult decisions based on the one hand counselling, medical treatment, ■ Bangladesh, Ethiopia, Ghana, and ■ Burundi, Uganda. The use of on loyalty to ActionAid Ethiopia and the desire to maintain future access to physiotherapy support and rehabilitation Sierra Leone. Use of credit as an Reflect in camps for displaced ActionAid Ethiopia, and on the other the belief that the government might planning for the injured and disabled. emergency response. people in Uganda, and for peace- remove cattle, land or other assets if they don’t receive repayment. In The analysis of how people could claim building and helping communities addition, production levels in 1996 were patchy across the project areas their rights, which helped to shape the ■ Bangladesh. Training communities to recover after the conflict in with some experiencing crop failure. The need to respond to this, but programme, also assisted those who how to prepare for disasters in Burundi. awareness of credit overburdening, has influenced ActionAid Ethiopia to were grieving to access government cyclone-prone areas. Using develop a disaster prevention response on a cash-for-work basis”. compensation. children’s drama as a way of explaining to local communities ActionAid Ethiopia, Desk Review of Dalocha Emergency Credit 2001 how to best cope with disasters.

30 www.actionaid.org fighting poverty together 31 developing innovative approaches emergencies impact review

4 Developing Innovative Approaches

10 Peter Raynard, Mapping Accountability in Humanitarian Assistance, 2000

psycho-social work it seems likely that work. To do any of this there must first characterised by service delivery) and ActionAid India and BGVS use “ActionAid’s expression of care rights (empowering beneficiaries) at there are psycho-social aspects of be a genuine desire to make ‘people’s hearings’ as a way for the vulnerable was part of an opposite ends of the spectrum. other projects, especially in peace- participation real. This doesn’t happen for all the community to have integrated approach which building programmes, which have not overnight and there may well be access to information In fact, needs and rights are not mutually included a rights approach and been highlighted during the course of conflicts of interest, for example when it regarding the food-for-work- exclusive and often relate directly to extensive work on practical this study. comes to discussions around how programme, thereby ensuring each other. This is common sense and support. Our conclusion is that, much money is available to work in the transparency and a means of There are ongoing debates about the is central to the Fighting poverty together after a shaky start in the relief community. curbing corruption. Part of this suitability of Western-style psychology strategy, which links advocacy and phase, ActionAid has found a Maps put together by the community as part process involves displaying influencing with direct action. It is balanced approach, being approaches and terminology in different If poor and marginalised groups are to of the social audit process, Orissa, India, July 2001 day-to-day work charts in important that ActionAid’s experience in sensitive to individual cases of cultures. Clearly, it would be counter- participate effectively in a project and public areas. These charts this area is documented and that its real extreme grief but generally productive to undermine local custom make it their own, it makes sense for contain basic information: the number of persons working that day; the work on the ground contributes to placing the issue in a well- when caring for grieving people and them to also have a part in the nature of their work; rice stocks at BGVS’ disposal; cash disbursal schedules external policy debates which can researched social and political offering mutual support. ActionAid is in decision-making process on how funds etc. During scheduled ‘people’s hearings’, community members are able to become over-theorised. context.” a good position to undertake research are being spent. Already, projects invest refer to these diagrams, ask questions, clarify concerns and discuss the work on what works best in which in training local people in credit going on in the community. circumstances, and to influence policy management, book keeping and other DEC Gujarat Earthquake Community groups are clearly holding ActionAid and BGVS accountable for “The direct service delivery of Evaluation Report 2001 and practice. basic financial skills. what they say they will do. Greater transparency in ActionAid and BGVS’ shelter, psychosocial, nutritional work has prompted calls for increased accountability from government and Accountability and financial support to affected As part of its ‘youth in crisis’ project, in Greater public accountability – other NGOs. There is increasing pressure on people can be interpreted in terms Sierra Leone, ActionAid has used a ‘People’s Hearings’ in Orissa Some issues to be aware of: organisations to demonstrate and of realisation of peoples rights. practical approach in working with ■ improve their social performance and a week was spent with communities to familiarise them with social audit More than this, the Sneh Samuday young people, including ex-combatants. ActionAid India is developing an accountability. In the humanitarian ■ the community might not own the process unless it is integrated with response is aimed at creating a It is helping these young traumatised, accountability process based on assistance system accountability is planning vibrant rights-aware environment marginalized and disempowered people the principles of social audit. A encouraging individuals increasingly coming under the political ■ audits should be held at different local and district levels: time and venue to recover and become reconciled to notable example of how this is themselves to claim their rights at and media spotlight as well as internal need to be carefully arranged to allow everyone to attend, and each other by organising games and being developed is the work being household, community and scrutiny, as a way to improve government officials need to be given advance notice. done in Orissa in the wake of the sports between previously warring 10 Government level. For example, by performance.. ■ display formats need to be simplified so that everyone can understand factions. The programme also offers a disastrous cyclone that occurred supporting women to speak up them social education programme focusing Central to the spirit of Fighting poverty in 1999. As part of the response against violence in the home and ■ on issues such as peace building, together is our accountability to the to the disaster in the Orissa men can dominate the questions, silencing women by supporting the efforts of lower reconciliation, reproductive health and poor and marginalised women, men, region, ActionAid India, along with ■ the presence of influential people can make people reluctant to raise castes to be involved in community decision making (e.g. civic responsibilities. In Liberia, children boys and girls with whom we work. partner organisation Bharatiya sensitive issues. made peace gardens, where they can Gyan Vigyan Samiti (BGVS) cash for work). Furthermore, the bury toys representing memories of ActionAid’s Accountability Learning and started a food-for-work initiative Sneh Samuday concept “scales- up” by recognising the prime the war. Planning System (ALPS) encourages with the help of village Organisational development strategies Rights and needs need to ensure that adequate responsibility of the state to this by promoting greater participation reconstruction committees. They The new discourse on rights-based In other programmes, Reflect circles resources and time is given to building ensure the well-being and rights of and transparency in all our work and used this approach as a strategy approaches to emergency work has and other community groups have up these skills and investing in new its people.” empathy with the poor and for mobilising the poorest and tended to result in polarised debates, formed a basis for social support. marginalised groups with whom we most vulnerable sectors of the appropriate skills. which situate needs (usually ActionAid India, Emergencies Although probably not labelled as community to support them in Review (Gujarat) 2001 asserting their rights.

32 www.actionaid.org fighting poverty together 33 developing innovative approaches emergencies impact review

4 Developing Innovative Approaches

ActionAid India, Gujarat Earthquake: Summary of Programme Components In the Dominican Republic, ActionAid’s response to Cyclone Georges was “Within a few days, I saw three adolescent girls and young women were Component Aim Activities implemented mainly by partner raped inside the camp ... I brought complaint to the NGO. They took organisations already working on rights measures to create public awareness and supplied some polythene so issues related to Haitian immigrants that camp dwellers could make partitions to create purda. This is very Sneh Caring To strengthen caring ■ Shelter, rations, living in slums. Targeting the immigrants unfortunate and painful, but the truth is the young volunteers from responsibilities of the community therefore took on a rights-based powerful families used the polythene to create protected rooms adjacent ■ Setting up (semi-permanent) through physical assistance to the approach from the outset, and the to the camp, for their sexual violence ... Another girl was kidnapped from community centres. most vulnerable. programme used reconstruction as a the camp, and came back after 15 days ... The people assaulted her and platform for raising awareness of their she left the camp ... the NGO did not do anything to protect the living conditions as well as responding victimised girl.” Asha Hope Bring back a semblance of ■ Setting up day care centres to immediate needs. This resulted in normality, especially to children, ‘recovery plus’ impact: houses were Women’s group leader, ActionAid Bangladesh Emergencies Review 2001 ■ Play and informal education injured, disabled and those who rebuilt more spaciously and latrines were for children are in severe trauma and provide constructed. Local and international A rights approach needs to take careful a listening ear for all. ■ Psychosocial counselling advocacy has resulted in long-term account of the responsibilities of all (referral if necessary) fundraising links with Dominicans and involved, especially government. In North ■ Haitians living in the US. Medical and physiotherapy support East Ghana ActionAid facilitated a to injured and disabled Opportunities to protect or promote process whereby the district assemblies ■ Long-term planning for the the rights of marginalised people have prepared their contingency plans for rehabilitation of disabled. sometimes been missed or ignored. emergencies, especially a regular The Bangladesh country study gives outbreak of meningitis. As a result of the an example of some limited action by planning, the district were able to use all ActionAid’s partner agency to protect their available resources and avoid a Children are taught how they can prepare for emergency Adhikar Rights Assist people with obtaining their ■ Information dissemination through situations, Bangladesh women’s rights in displaced camps, to drastic outbreak. There were 861 deaths entitlements and compensation. theatre and workshops the extent that they created awareness and over 9,000 cases in 1997, but only ■ Assistance and follow up but did not champion the victims against six deaths and 75 cases in total from I have never enjoyed so much with claims local norms. 1999 to 2001. support in terms of personnel ■ Formation of organisation of Dalits and resources to fight this and marginalised. pandemic. Every department knows what he/she is doing... After this contingency plan our perspectives towards work Shram Labour Rehabilitation whilst providing ■ Cash-for-work programme assistance. have been redirected to ■ Livelihood development (e.g. training partnership, which I think is through women’s groups) good for the District…

District Director of Health, Bolga Tanga District, Ghana

34 www.actionaid.org fighting poverty together 35 effectiveness of the long-term approach emergencies impact review

5 Effectiveness of the Long-term Approach

The country studies indicate that a In any emergency work there are What can be seen from the reviews is Misinterpretation of the long-term approach – responding to essentially three levels of impact that that in many cases people have been long-term approach emergencies using ‘developmental’ can be sought: left better equipped to deal with future Ironically, consulting the community and principles – works well, especially emergencies, or in some way better off ■ respecting local cultural norms can also where the agency is already change for individuals/families than before. This is not achievable with be used to reduce the agency’s potential established and active but also outside ■ a traditional approach to relief, and is change for communities to respond to a crisis. In Ethiopia, existing project areas. India’s Gujarat one of the best arguments for ■ change in aid and governance policy farmers requested credit in an earthquake programme is an example maintaining and further developing the and practice emergency because the agency stated of a new intervention, which aimed to ‘long-term’ approach. they would not do free relief. be participatory during relief and Sometimes this is complex. For It is also very clear that country recovery phases, and used a rights- In Somaliland, where the programme instance, the best impact in a given programmes vary widely in their based analysis. The long-term was reluctant to respond to drought – situation may be different for different interpretation (or even awareness) of approach effectively offers a set of fearing aid delivery could provoke individuals. The same intervention will what constitutes a long-term approach, principles, which can be applied conflict - elders were consulted as to produce positive impact for some and and further debate and capacity wherever practicable, at any stage of whether a response was needed, and negative impact for others. This applies building is needed for its optimum emergency-related work. The key research on local coping strategies was to the most straightforward relief project application across the whole components that appear to influence done, but without a full situational or addressing emergency needs, as well organisation. When this is done, impact the most are: needs assessment in all areas. The as more complex interventions ActionAid is in a good position to decision not to respond was later ■ community participation addressing longer-term goals. In all champion this approach and influence Gujarat, India, 2001 justified by the drought not being cases, the best impact will be donors and others to support it. ■ good contextual analysis and ‘named’ (and therefore not serious) – impossible to achieve without a strong strategic planning based on local despite the fact that droughts are only understanding of the context and the knowledge, “The rationale is that credit allows people to be partners rather than named after many people and animals collaboration of the players within it. passive beneficiaries, reinforcing the overall development programme have died. This approach, therefore, is ■ a livelihoods focus This is the essence of the ‘long-term and approach. What the Dalocha experience illustrates is that credit not compatible with the principle of early approach’. ■ awareness of differentiated rights, should not be thought of as an automatically ‘development-friendly’ warning and early response, and risks needs and responsibilities (including response, but must be considered carefully within the unique context missing pockets of suffering which could gender/generation analysis). of each situation. The primary trade-off was between adapting have been relieved. True consultation ‘development-friendly intervention’ and increasing the community means being ready to consider other burden of debt at a vulnerable time.” suggestions without influencing them. It is too easy to ‘consult’ the community with only a limited range of options.

36 www.actionaid.org fighting poverty together 37 key issues arising from the study findings emergencies impact review

6 Key Issues Arising from the Study Findings

a Approaches and Attitudes This sometimes results in a tokenistic characterised by an attitude of “We didn’t consult the There are still mixed attitudes to response (doing something, but not Such learning was facilitated by involving key staff involved in the Orissa compassion and solidarity with the communities because it was an ActionAid’s role in emergencies and seriously meeting needs), a top-down response in the design of Sneh Samuday Gujarat. However, a further affected community, combined with a emergency” poor awareness of the integral role of approach and/or missed opportunities. important aspect of learning has been the ability to maintain a level of vision of humanitarian work as part of emergency work in Fighting poverty flexibility to respond to changes in the programme environment itself. the fight against poverty. It also seems Staff member, Gender and participation are the two together. Emergencies work is For example, ActionAid India was initially against the provision of semi- to depend on the efforts and prior Mozambique 2000 main aspects where opportunities are sometimes seen as optional extra, or to permanent housing in Gujarat. However, it quickly became clear that experience of individual managers. missed, because the perceived need be avoided if possible (in case it complications in compensation and adoption would result in Perhaps the key factors are a for speed and urgent response can impacts negatively on long-term reconstruction delays of 2-3 years. Since then the provision, semi- combination of solid identity as an override normal practice. This can programme activities). permanent accommodation to the most vulnerable has become a central organisation and ability to see existing be overcome with training, exchange part of the ActionAid India programme. strengths and capacity, which can be Consequently, a variety of approaches of learning, experience and built upon. Also, this vision and approach to emergency work is evident. This specialist support. ActionAid India, Gujarat, Emergencies Review 2001 does seem to be more prevalent in the allows for locally relevant solutions but it kind of large-scale disaster, which Senior management support appears is easier to learn from one another temporarily blocks a continuation of crucial to successful integration of when the different local solutions relate This highlights the importance of a c Going for it development activities. emergency and development work, to a coherent strategy from the whole flexible approach, so that lessons both in country and globally. This Some programmes seem to ‘pull out all d Rights and needs organisation. In some cases, there learned on the spot can influence the stops’: display more courage and currently often depends on individual A rights-based analysis has yet to filter is a lack of awareness and/or programme practice. In emergency confidence than others in responding experience and priorities. Country through to all emergency-related commitment to the ActionAid programmes, this is particularly energetically to a difficult situation, even directors and senior managers are interventions. Rights offer an obvious emergency strategy and a lack of important since the phases are usually with little prior experience. The ActionAid sometimes selected and trained with bridge linking emergency-related knowledge or understanding of the shorter than in development India response to the Orissa cyclone little attention to emergency-related projects with development, and if ‘long-term’ approach. programmes. In Bangladesh, the cyclone is an excellent example of this. work as a core ActionAid activity, and included in the early stages of project preparedness programme (ICDPP) Conversely, in some situations There are mixed levels of awareness of appear to be held less accountable design increase the potential for far- practiced responsive monitoring on a emergencies work has been kept to a the Code of Conduct and Sphere than for other planned programmes. reaching impact. More monitoring is monthly basis, which resulted in several minimum for fear of undermining or standards, and these are rarely applied needed to ascertain whether prior b Learning and Change adaptations to the programme. This was interrupting a development programme. in programme design. This may agency presence and long-term particularly important since it was a one- Therefore, opportunities to support represent a risk to ActionAid’s reputation Resources allocated to programme involvement result in better impact, year pilot programme. recovery and resilience (and thus fight globally and could affect funding learning are still few. Reviews and although these studies imply that it is poverty) are lost. opportunities. This is a dilemma relating evaluations tend to be donor-led the case. Working through partners may to the need for a global identity and activities. Converting learning into Unpicking why this happens in some increase the chance of working on rights coherent policies as against the creative changed practice is still a challenge for places and not others is difficult. The issues, depending on prior relations and diversity of decentralisation. many programmes, although some are ‘go for it’ approach seems to be the partner agency’s existing focus. managing it. ActionAid India’s Gujarat Even in programmes, which are programme is a good example, which committed to a long-term approach, incorporated lessons learned in the principles governing development Orissa cyclone response the programme work are sometimes previous year. dispensed with during emergencies.

38 www.actionaid.org fighting poverty together 39 conclusions and recommendations emergencies impact review

7 Conclusions and Recommendations

a Recommendations for learning within a complex environment. This is necessary to identify potential research Databases of country programme development programmes. Each understood and communicated and accountability inevitable and acceptable. as a standard part of programme expertise should be set up so that programme should look for throughout the organisation. review and reflection, and upgrade the regions and countries can contact those opportunities to improve Quality of impact analysis ■ DEC membership can be used to In retrospect, however, programme profile of research as a legitimate – with experience. Research, experiment preparedness, increase local capacity increase influence and capitalise on The study indicates a limited reviews offer a great opportunity to re- indeed essential – part of livelihood and debate on how best to document to respond and control over relief coordination and advocacy potential. understanding and analysis of impact examine the strategic decision-making support work. and share learning within the resources, mitigate effects of and its implications. Impact is hard to process. In order seize this opportunity organisation should be encouraged. emergencies and diminish measure, but deeper and broader reviews and evaluations should include Mainstreaming emergencies c Recommendations for Workshops exploring the key principles vulnerability. These can often be good practice analysis could result in better learning. the questions, “What else could we There is insufficient awareness of and related work could be a possible achieved by minor adjustments to There is a tendency to over-attribute have done? Could we have used the international staff and partners option. In particular, a workshop on ongoing work. Relevant questions for The following are recommendations for ‘saved lives’ to ActionAid interventions; resources differently to achieve a better regarding the important role of targeting to encourage debate, each development area are: “What practices, which will foster the long-term on the other hand, unexpected impact outcome? What would we repeat, or do humanitarian work in Fighting poverty disseminate learning, and influence does resilience to emergencies mean approach and may increase impact in and the long-term implications of differently, next time?” together. This could be improved by donors and other agencies. here, in this context? How can future emergency-related interventions. impact are often overlooked. This may increasing staff training and capacity Integral reporting ActionAid promote and support it?” be due to poor awareness of the building on emergencies/poverty links b Implications and Strategic planning and good and accountability ■ importance of emergency-related work and humanitarian principles. There recommendations for Organisational capacity and contextual analysis Reporting on emergency work is not yet within the overall programme. Similarly, should also be a greater emphasis on Policy work preparedness could be achieved This is vital to give each project the best fully integrated with other programme there is a tendency to focus on ActionAid’s humanitarian role in senior through strengthening regional chance to succeed – it should not be planning and reporting systems. This ■ Diversity within coherence: ActionAid’s inputs/outputs and measurement management recruitment processes as capacity to support emergency work; skipped under pressure to act fast. Prior leaves a gap in accountability and international identity and profile could against targets, rather than the well as increased accountability and capacity building for country directors vulnerability analysis and contingency reporting. In order to bridge this gap benefit from a more coherent resulting change. Therefore it is reporting obligations for regional and as well as staff; conceptual debate for planning should be done to ensure the more emphasis should be placed on approach to humanitarian work, important that impact assessment of country directors. strategic decision-makers; best process does not start from zero each emergencies work within ALPS. within which country programmes emergency work receives equal practice manuals or intranet sites to time. Emergencies work should also be Accountability to beneficiaries could adapt emphasis depending attention in efforts to improve assist in programme design. routinely included in country on local contexts. Multiple analyses: building on ActionAid’s impact assessment overall. More internal learning reviews are ■ ActionAid’s long-term presence can existing strengths and local programme reviews. The impact necessary to complement donor-led ■ Understanding of the ‘long-term’ be used to advantage in research knowledge Impact analysis and assessment network should be used to evaluations. There should also be more approach needs to be disseminated around emergency issues. The results programme learning exchange learning from emergency participatory reviews inviting comment Field staff, as well as senior throughout the organisation. could raise profile as well as improve This study has found it difficult to draw evaluations and reviews. from those who benefit from our work. management, need to be involved, to ■ quality and impact of work. For this to out sufficient strategic analysis within ActionAid India’s social audit ‘Recovery Plus’: this lies at the heart of ensure the right information for decision- Research as good practice happen, research must be the programme reviews: for instance, of programme could be shared as a a long-term approach and ActionAid making and programme design. acknowledged as a valid programme opportunity cost or alternative ActionAid is in a good position to carry transparency model. could become a lead agency on this Beneficiaries and other stakeholders activity and be resourced accordingly. interventions. It is naturally much easier out both ‘real time’ and longitudinal concept. should contribute wherever possible. research, which would support learning Learning for change for programmes to examine what was ■ Short-term relief interventions are ■ Funding needs to be more flexible – Beneficiaries should be consulted in processes and improve programme There should be both continued done, rather than what was not done. sometimes necessary and should not ActionAid could lobby donors for needs assessment. This links to: quality and impact, in both encouragement for review and reflection funding which better reflects the kind Yet, such analysis can produce very be excluded from the long-term Consultation and participation preparedness and response. For this processes and regular monitoring to useful learning to inform future approach. The strategy should be to of responses informed by the long- to happen, research should be built into establish to what extent lessons have Participation is closely linked to capacity responses. Emergency interventions are do relief well – within the framework of term approach. Country programmes project proposals and alternative been learned and policy/practice building in vulnerable communities and usually designed and implemented a long-term analysis. could develop capacity to produce is a core principle in any developmental, according to certain assumptions made funding should be explored. It is also influenced (internally and externally). innovative proposals more quickly ■ long-term approach to emergencies. It is A current gap is proactive community when funding is available. Internal the key to maintaining a rights-based, preparedness as part of ongoing funding mechanisms need to be

40 www.actionaid.org fighting poverty together 41 conclusions and recommendations emergencies impact review

7 Conclusions and Recommendations

11 Standards and codes agreed by international NGO’s that aim to improve the quality of assistance provided to people affected by disasters, and to enhance the accountability of the humanitarian system in disaster response’. AA has signed up to both the Code of Conduct and the Sphere standards

empowering focus in emergency- Targeting ■ Wherever possible (which should be Standards Psycho-social support ■ Changing livelihood patterns and how related work, and should not be difficult Often there is a relation between poor in most cases where the emergency Promote regional and in-country Consolidate learning to date and this affects vulnerability in places where ActionAid has a prior is affecting a stable community) targeting and inappropriate responses. awareness of the Code of Conduct and develop guidelines for good practice. ■ Social change through emergencies: presence and in predictable or slow community members representing 11 If the response is prioritised by the Sphere standards. Use these for These will need to incorporate different effects on vulnerability and resilience onset emergencies. It is therefore different groups should be in charge affected community and based on clear programme planning, implementation approaches according to custom and of different groups in the community recommended that: needs of certain groups, this makes of targeting and distribution, with and monitoring. Monitor where these culture and the type of emergency. ■ targeting (where necessary) much monitoring to ensure lack of bias and are/are not useful and feed back to the Incorporate links with other areas of work Emergency economy in different ■ Except in extraordinary easier. Attitudes will also inform corruption. DEC and Sphere project. and practical activities. situations: who benefits, who suffers and how does aid affect this process circumstances, no project should be targeting and participation. Whose ■ Remember ActionAid and other designed without a community-based emergency is it, and whose goods? NGOs exist to support communities, Partners Long term research ■ Social effects of emergencies and needs assessment. not donors. Working with partners is a crucial area In programme areas where it has a long- long-term implications, e.g., early ■ Include consultation on priorities with ■ ActionAid should apply a rights- for future programmes. We term presence, ActionAid is in a very marriage as a coping strategy based analysis to targeting. Gender recommended that country programme good position to carry out ongoing different groups in the community. ■ Recovery – who recovered and why? Gender specialists should be regularly staff: research. Research into changing ■ ■ It should be totally justifiable on the Who did not and why? Roles including beneficiaries can involved in design and monitoring of vulnerability and resilience can highlight then be developed for basis of need in the current situation, emergencies programmes. ■ consolidate learning to date on how interventions affect these implementation and management. should be context specific, and Delving into such issues will strengthen working with partners in emergency processes. Follow up research of a developed with local customs and not only emergency-related interventions ■ Issues such as payment or other Monitoring and learning programmes (a workshop?) small selection of beneficiary families or culture in mind. but also inform development compensation, overburdening ‘Real time’ monitoring is recommended, individuals, at two, three or five yearly ■ ■ encourage open analysis and a programmes of the changing context in (especially in the case of women) If resources are insufficient to meet with regular documenting and ongoing intervals, can examine the sustainability learning attitude in partners which they are working. and adequate representation of the need, lobby for more. impact assessment. Create a revision and long-term impact of certain marginal groups should be ■ The reasons for targeting should be checklist for main principles of the long- approaches or interventions. Research considered in the local context. is also recommended on: transparent, discussed with the term approach, to be reviewed several ■ improve stills for emergencies as part beneficiaries and understood by all times throughout the life of the project. of ongoing programme True participation is likely to be difficult concerned. This will help to ensure it remains ■ Empowerment of women through in the rescue and relief stages of rapid grounded in the long-term approach ■ be involved in contingency planning emergencies – is it sustainable? ■ Targeting for recovery programmes is onset emergencies, especially where and applies known learning to gain and capacity analysis likely to be more precise (aimed at ■ Intra-household effects of participation the agency has no prior presence. maximum impact. ■ Communicate the importance of the (especially women’s) in food/cash for Therefore: certain livelihood groups) than long-term approach and participatory targeting for relief: programmes work: how to balance participation/ principles. should plan for this and monitor the opportunity with over-burdening ■ Plans should be made to ensure that evolving situation. as soon as possible beneficiaries are increasingly included in decision- making and management.

42 www.actionaid.org fighting poverty together 43 bibliography summary of studies emergencies impact review Bibliography Summary of Country Programme Studies

Major Internal and External Papers Country Programme Papers ■ Flood Response & Recovery Programme: Programme The reports and case studies sent in by country Sierra Leone Ghana Learning Review, ActionAid-Mozambique, P Howell, programmes as part of the study are available in full as ■ Fighting Poverty Together, Bangladesh Micro-credit to wives of ex-combatants in Grain banks to respond to food shortages 2000 a separate volume. For background to the study Kenema 2001; relief distributions in Kambia and support long term food security; ActionAid Strategy 1999-2003 ■ Participatory Mid-Term Review, Intensive Community findings, their main characteristics are summarised here. ■ and North Bombali after conflict, 1996 prevention of meningitis epidemic. Disaster Preparedness Programme, ActionAid- ActionAid Mozambique, Emergency Relief and ■ Peace Building in Africa, Case Studies Bangladesh, P Howell and G H Mahmood, 2000 Rehabilitation Project, Consultancy Visit Report, Dr A from ActionAid, 2001 Two projects chosen for analysis out of ten reviewed. Key issues: preparedness/early warning; opportunity; Thirkell May 2000 Summary of Core Studies Activities cover both programme areas and non- participation; capacity building; empowerment; targeting; Burundi ■ ActionAid Emergencies Review, Roger Yates Nepal Bangladesh programme areas and include relief and livelihood advocacy/influencing. ■ ActionAid Burundi: Where we are on and Wanjiku Kamau, May 1999 ■ recovery in a conflict environment. The micro-credit Impact Assessment, workshop paper, Nov/Dec 1998 Participatory M & E System: ActionAid Nepal Floods 1998 and 2000; project demonstrates the usefulness of cash loans to ■ Fighting Poverty: the Humanitarian Connection, Experience (workshop paper), Nar Bikram Thapa and cyclone preparedness programme. ■ support economic recovery, with both direct and indirect Honduras ActionAid Emergencies Unit, Pippa Howell, Dec. 2000 Peace-building in Burundi, Shyam impact. The In both cases community participation is ActionAid Bangladesh works primarily through local Reconstruction of bridges after Hurricane Mitch to ActionAid evaluation report, draft 1997 Sundar Jnavaly, ActionAid Nepal, July 1998 highlighted as key to successful programmes. ■ ALPS: Accountability, Learning and partner organisations and this reflects much of the promote recovery of livelihoods and communications Ethiopia Sierra Leone Planning System, ActionAid 2001 review learnings. Focus is on links to long term and Key issues: conflict; gender; participation; working with Key issues: participation; coordination; capacity ■ ActionAid Ethiopia Disaster Prevention ■ ActionAid Sierra Leone’s Emergency Experience in rights issues (such as education and women’s partners; micro-credit; livelihood recovery; targeting; ■ building; ‘recovery plus’; sustainability. ActionAid Emergencies Strategy 2000-2003 Project Dalocha 1994: A Participatory Kambia and North Bombali Districts 1995-1996, vulnerability), and capacity building of local institutions. relief quality/standards. The report stresses the difficulty of responding to ‘root ■ Approach to Emergencies, P Howell, 1996 P Howell and Michael MS Young, 1997 A Rights-based Approach to Emergencies: Setting causes’ within the local cultural context. the scene, ActionAid Emergencies Unit briefing paper, Ghana Somaliland India (Gujarat) Luis Morago Nicolas, July 2000 Key issues: gender; participation; vulnerability; working Uganda ■ Discussion Paper by ActionAid Ghana at International ■ ActionAid-Somaliland: Case Study in Local with partners; capacity building; coordination; Varied emergency work in seven districts – conflict, Post-earthquake relief and recovery. ■ Impact Assessment Workshop in Sussex, Nov/Dec Governance (2), Sanaag drought assessment, Omer A Rights-based Approach to Emergencies: Rights- empowerment; community preparedness; sustainability. drought, disease, floods. based analysis in practice, ActionAid Emergencies 1998 Edleh Sulaiman, Ahmed Aden et al, 1997 Key issues: rights-based approach; targeting; partners; Review of emergencies work country-wide (seven Unit briefing paper, Luis Morago Nicolas, November psycho-social; livelihood development; India The Gambia districts). Extremely varied projects with a broad 2000 gender/generation; cash-for-work; advocacy/influencing. ■ An Assessment of ActionAid’s Response to the 1993 ■ ActionAid The Gambia Phase 1 Review Report, July Kenya definition of ‘emergencies’, although a major focus on ■ Humanitarian Policy and Practice, Evaluations of Earthquake in Maharashtra, India Desk Review, 2001 1999 Drought in Merti and floods in Busia conflict, floods, epidemics and drought. Stresses links to Humanitarian Assistance Programmes, Good livelihoods, education and long-term programming. India (Orissa) ■ ■ Practice Review, Draft 1997 Sneh Samudaya Report on Post-Disaster Work Case Study, Saradebo Village, the Gambia, Review of two emergency programmes as part of Emergency projects have included relief and after the Gujarat Earthquake, 2001 Roger Yates visit report 2000 country review, both in ActionAid programme areas. In rehabilitation phases, with some innovative education Post-cyclone relief and recovery including food-for- Merti, drought is recurrent and affects livelihood work and a capacity building approach. The report work, cash-for-work, reconstruction, community ■ The Sphere Project, Humanitarian Charter and ■ Uganda The Earthquake in Gujarat, India, Report of strategies for development, thus emergency response highlights the need for increased community institution-building Minimum Standards in Disaster Response, 2000 a Monitoring Visit for the DEC, March 2001 ■ Review of Food Distribution to Displaced People (food aid and some innovative livelihood support participation and greater emphasis on disaster Key issues: gender/generation; participation; targeting; ■ 1997, Bundibugyo, Uganda, ActionAid Uganda/ESCA, projects) is integral to the development programme. The preparedness; also long term opportunities as seen, for Code of Conduct for the International Red Cross ■ Half Yearly Report, Super Cyclone Reconstruction transparency; working with partners; capacity building; P Howell, 1998 study finds, however, that prevention and preparedness instance, in post-epidemic hygiene awareness work. and Red Crescent Movement and Non-Governmental Project, ActionAid India 2000 sustainability; multiple strategies; psycho-social; internal Organisations in Disaster Relief, Relief and are not addressed to the full potential. In Busia, ■ Review of Response to Cholera in Bwaise District, Key issues: long term conflict; displacement; coordination, ‘recovery plus’. Rehabilitation Network Paper 4, 1994 ■ Participatory Programme Review, ActionAid worked with local institutions to address rights Kampala, ActionAid Uganda/ESCA, P Howell, 1998 education; policy influencing; capacity building; Gadakujanga GP, ActionAid India 2000 issues such as water management and legal support for ■ Cost-Effectiveness Analysis: A Useful Tool for the vulnerable people, as well as supporting rescue and vulnerability; participation; gender; advocacy. Assessment and Evaluation of Relief Operations?, ■ Community Mobilisation and Ensuring Food through relief operations. Malawi Core Studies Relief and Rehabilitation Network Paper 15, Alistair Food for Work (FFW) Programme, May 2000 to Integrated approach to emergencies; Key issues: participation; gender; pastoralist Summary of Case Studies Hallam, 1996 June 2001, ActionAid India 2001 ■ Impact Assessment of Emergencies Work, response to floods and drought. livelihoods; ‘recovery plus’; sustainability; preparedness ActionAid Bangladesh, August 2001 Burundi ■ DEC Evaluations Synthesis Report, Vine Management ■ Social Audit: Ensuring Transparency and Public and prevention; rights; advocacy/influencing. Key issues: long term approach to emergencies; Using the Reflect approach to education opportunities for development programme from Consulting, 2001 Accountability, ActionAid India 2000 ■ Emergency Impact Assessment Study, as a recovery and peace-building tool emergency response; emergency preparedness and risk ctionAid Uganda, October 2001 ■ Compilation of Issues from DEC Evaluation ■ Orissa – Notes on Areas to Consider for mitigation; livelihood recovery and resilience; advocacy Mozambique Key issues: conflict/development interface; education Reports, Gawher Nayeem Wahra, February 2001 Impact/Lessons Learned, Louise Mellotte 2001 ■ ActionAid Kenya, Draft Impact and influencing; capacity building. Floods in Maputo 2000 and Zambezia 2001 in emergencies; participation; institution-building; Review Report (Emergencies), August 2001 ■ Analysis of DEC Evaluations for South Sudan Kenya gender; long term approach. Two programme learning reviews of flood responses and Kosovo Appeals, Calum McLean, February 2001 ■ Merti Development Area Mid-term Review: ■ ActionAid-Mozambique, Programme Learning close to ActionAid programme areas. In both cases Somaliland Emergencies Sector, ActionAid-Kenya, P. Howell, Reviews: Zambezia Floods 2001 and ■ Analysis of DEC Evaluations for Issues Relevant to DEC funds were used and ActionAid played a key role in Drought assessment in consultation with elders. 1997 Flood Response and Recovery Programme 2000 Dominican Republic ActionAid, Louise Mellotte February 2001 DEC agency coordination which raised profile. In Relief and recovery support to Haitian Key issues: community participation in decision- ■ ActionAid Kenya, Emergencies Strategy Paper (draft), ■ ActionAid Sierra Leone, Emergencies Maputo the relief response phased into rehabilitation ■ Sphere Project Bulletin, ActionAid Emergencies Unit, immigrants after Cyclone Georges. making; situational assessment; relationship between July 2000 Impact Assessment, August 2001la, ActionAid support including re-housing and activities which development programme and emergency work. Louise Mellotte and Luis Morago Nicolas, April 2001 supported development, e.g. HIV/Aids awareness. Uganda/ESCA, P Howell, 1998 Key issues: advocacy/influencing; reconstruction; ■ Malawi Independent Evaluation of Expenditure of DEC Key issues: participation; capacity building (staff and prevention/mitigation; ‘recovery plus’; rights-based ■ Linking Relief to Development: a Case of the Mozambique Floods Appeal Funds, Vols 1 and 2, partners); coordination; opportunities for development approach; gender; participation; coordination. ActionAid Drought Seed Distribution and Smallholder Case Studies Valid International, May 2001 goals; emergency/development programme interface; Seed Development Projects, ActionAid Malawi ■ ■ Independent Evaluation of Expenditure of DEC ActionAid Burundi, Emergencies Impact Assessment: targeting. Ethiopia India Cyclone Appeal Funds, Vols 1 and 2, 2000 ■ ActionAid Malawi, Emergency Capacity Building Contribution of Reflect to Peace and Reconciliation Initiative, ActionAid’s commitment and approaches to ■ Micro-credit used as a response to drought in Dalocha. ■ DEC Gujarat Earthquake, Full Evaluation Report, emergency work, Presentation by country director Feb ActionAid Ethiopia, Emergency Credit in Dalocha DA Key issues: targeting; participation; gender; credit v Humanitarian Initiatives, 2001 2000 ■ ActionAid Ghana, Emergency Case Studies: relief; emergency/development programme interface; Reponse to Cerebro-Spinal Meningitis; ■ Learning Lessons from the Cyclone, Study of DFID’s ■ ActionAid Work in Emergencies and Disasters in livelihood support. Support for Post-Cyclone Livelihoods Rehabilitation Malawi, Presentation to Coordination Meeting on Grain Banks to Support Household Food Security. in Orissa, India, IMM Ltd, March 2001 Disaster Management, AA Malawi, Jan 2001 ■ ActionAid Haiti, Projet D’Urgence Post-Cyclone ■ Towards Shared Social Learning for Humanitarian ■ Msakambewa RDA, El Niño Emergency Intervention Georges en Republique Dominicaine Programmes, ALNAP, Raymond Apthorpe and Evaluation Report, December 1999, ActionAid Malawi ■ ActionAid Honduras Impact Evaluation Report Philippa Atkinson, Draft April 1999 Mozambique ■ ■ ActionAid India Impact Review: Report on Community Based Food Security ■ DEC Emergency Flood Response in Six Districts of Gujarat Earthquake Response Monitoring and Responses, ActionAid Zambezia Province, Mozambique, Joint Final Report, Emergencies Unit, John Mitchell, 1993 June 2001 ■ ActionAid India, Case study interviews, Orissa cyclone ■ ActionAid country strategy papers (core study ■ Proposal for Funding Submitted by DEC Agencies ■ ActionAid Malawi, Integrating countries) Operating in Province of Zambezia Mozambique, Emergencies into Development Planning March 2001 ■ ActionAid annual reports (core study and case study countries).

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Bangladesh

Bangladesh

Ghana

Bangladesh

Picture Credits

p 11 ActionAid Bangladesh p 13 ActionAid Uganda p 14 Tim Hetherington/Network/ActionAid p 16 Jane Bennett/ActionAid p 17 Roger Yates/ActionAid p 19 ActionAid Mozambique p 21 ActionAid Mozambique p 23 Roger Yates/ActionAid p 24 ActionAid Bangladesh p 25 ActionAid Bangladesh p 26 Kalpesh Lathigra/ActionAid p 30 Liba Taylor/ActionAid p 31 Both pictures Louise Mellotte/ActionAid p 33 ActionAid Bangladesh p 35 Gujarat India Kalpesh Lathigra/ActionAid) p 44 Bottom Left AA Bangladesh Rest Liba Taylor AA Cover Ben Hartshorn/ActionAid

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