Working Paper 4

NAD Nias

MDF-JRF Working Paper Series: Public Disclosure Authorized Lessons Learned from Post-Disaster Reconstruction in Indonesia Public Disclosure Authorized Public Disclosure Authorized

More Than Mainstreaming:

Public Disclosure Authorized Promoting Gender Equality and Empowering Women through Post-Disaster Reconstruction Women displaced by Mount Merapi’s eruptions participate in a meeting to discuss resettlement plans for their community.

Photo: Fauzan Ijazah Working Paper 4

NAD Nias

MDF-JRF Working Paper Series: Lessons Learned from Post-Disaster Reconstruction in Indonesia

More Than Mainstreaming: Promoting Gender Equality and Empowering Women through Post-Disaster Reconstruction

Published by: MDF-JRF Secretariat The World Bank Office Indonesia Stock Exchange Building Tower I, 9th Floor Jl. Jendral Sudirman Kav. 52-53 Jakarta 12910, Indonesia Tel : (+6221) 5299-3000 Fax : (+6221) 5299-3111 ACKNOWLEDGEMENTS

The MDF-JRF Working Paper Series: Lessons Learned from Post-Disaster Reconstruction in Indonesia was prepared by the Secretariat of the Multi Donor Fund for Aceh and Nias (MDF) and the Java Reconstruction Fund (JRF). The World Bank serves as trustee of both funds. The series, consisting of five working papers, was produced under the guidance of Shamima Khan, MDF and JRF Manager. Anita Kendrick, Monitoring and Evaluation Officer of the MDF and JRF, developed the concepts and managed the production of the Working Paper Series and the Knowledge Notes based on each paper.

This paper, Working Paper 4 in the series, is entitled More than Mainstreaming: Promoting Gender Equality and Women’s Empowerment through Post-Disaster Reconstruction. The paper is based on research and background text written by Mary Ann Brocklesby, World Bank consultant. Shamima Khan provided general guidance, support and oversight of the entire writing and production process. Anita Kendrick, MDF-JRF Monitoring and Evaluation Officer, managed the paper preparation and provided editorial oversight and guidance to the design, content and production process. Gillian Brown, Gender Specialist, and Helene Carlsson Rex, Senior Social Development Specialist, World Bank, provided extensive and useful comments on the text as peer reviewers. Sharon Lumbantobing managed the production process, and Kate Redmond and Devi Asmarani provided editorial support.

Other members of the MDF/JRF Secretariat team and consultants provided significant inputs to the working paper on content, design, layout, and production as well as logistical support for the review team: Safriza Sofyan, Deputy Manager of the MDF, along with Akil Abduljalil, Deslly Sorongan, Inge Susilo, Eva Muchtar, Inayat Bhagawati, Nur Raihan, Nia Sarinastiti, Olga Lambey, Amenah Smith, Friesca Erwan, Harry Masyarafah, and David Lawrence. Ola Santo and her team from Studio Rancang Imaji prepared the design and layout of the Working Paper Series and accompanying Knowledge Notes.

The MDF Secretariat would like to thank the many partners and stakeholders who cooperated with the review team during the fieldwork and research period. These included representatives of the Government of Indonesia, including line ministries, as well as local governments of Aceh, North Sumatra, and Nias, and donors, partner and implementing agencies, and beneficiary communities in Aceh and Nias.

Published by: MDF-JRF Secretariat The World Bank Office Indonesia Stock Exchange Building Tower I, 9th Floor Jl. Jendral Sudirman Kav. 52-53 Jakarta 12910, Indonesia www.worldbank.org Tel : (+6221) 5299-3000 www.multidonorfund.org Fax : (+6221) 5299-3111 www.javareconstructionfund.org THE MDF-JRF WORKING PAPER SERIES

The Multi Donor Fund for Aceh and Nias (MDF) and the Java Reconstruction Fund (JRF) are widely recognized as having played a significant role in the remarkable recovery of Aceh, Nias and Java, following some of the worst disasters in Indonesia over the last decade.

The MDF, and the JRF which is patterned after it, are each considered a highly successful model for post-disaster reconstruction. Key factors in this success have been the leadership provided by the Government of Indonesia and the strong partnership of multiple stakeholders in support of the government’s reconstruction agenda. The two programs have produced impressive results, both in terms of physical reconstruction, and in the less tangible but equally important benefits such as community empowerment, strengthened governance, and communities that are more resilient to future disasters. The experiences of the MDF and JRF have generated many useful lessons and created effective models and approaches that can be adapted and replicated in other reconstruction contexts.

The Secretariat of the MDF and JRF, as part of its culminating activities, has prepared a series of working papers to document these achievements and lessons learned. The MDF-JRF Working Paper Series: Lessons Learned from Post-Disaster Reconstruction in Indonesia consists of five working papers covering five key areas. These are: 1) community driven approaches for post-disaster recovery; 2) capacity building in a post-disaster context; 3) reconstruction of infrastructure; 4) promoting gender equality and women’s empowerment through post-disaster reconstruction; and 5) multi-donor trust funds as a framework for effective partnerships for reconstruction. Each Working Paper describes the strategy and approaches adopted by the MDF and/or JRF across its projects, notes the achievements, and draws lessons that will be useful in other post-disaster settings. In addition to the full working papers, a series of Knowledge Notes has also been prepared, providing a short summary of the key lessons and conclusions from each of the longer working papers.

This paper, Working Paper 4 in the series, is entitledMore than Mainstreaming: Promoting Gender Equality and Women’s Empowerment through Post-Disaster Reconstruction. It presents lessons from the MDF and JRF’s efforts to facilitate women’s empowerment and gender equality during the reconstruction process. This paper documents a range of good practice examples from the JRF and MDF, and makes experience-based recommendations for the kind of strategies and actions needed to mainstream gender sensitive approaches in future reconstruction efforts.

Collectively, the lessons and experiences from the MDF and JRF form a legacy of the remarkable achievements of these two programs and the effective partnerships on which they were based. We hope that the lessons captured in these papers will contribute to future reconstruction and preparedness efforts in Indonesia and other disaster-prone countries around the world.

Shamima Khan Manager The Multi Donor Fund for Aceh and Nias The Java Reconstruction Fund TABLE OF CONTENTS

ACKNOWLEDGEMENTS 4 THE MDF-JRF WORKING PAPER SERIES 5 THE DISASTERS - A MAP OF INDONESIA 8 A SERIES OF DISASTERS IN INDONESIA 10 ABOUT THE MULTI DONOR FUND FOR ACEH AND NIAS (MDF) 15 ABOUT THE JAVA RECONSTRUCTION FUND (JRF) 20 EXECUTIVE SUMMARY 22

CHAPTER 1 - INTRODUCTION 28 1.1 Purpose and Focus of the Working Paper 30 1.2 Outline of the Working Paper 33

CHAPTER 2 - WHY GENDER MATTERS IN DISASTERS 34 2.1 Women in Post-Disaster Aceh 36 2.2 Women in Post-Disaster Nias 38 2.3 Women in Post-Disaster Central Java and Yogyakarta 38

CHAPTER 3 - GENDER ISSUES IN THE RECONSTRUCTION RESPONSES 40 3.1 Promoting Gender Equality in the Reconstruction Responses 42 3.2 Gender Mainstreaming in the Reconstruction Responses 44 3.3 Gender and the MDF-JRF 47 CHAPTER 4 - WOMEN’S VOICE: THE ROLE OF WOMEN IN DECISION MAKING, COMMUNITY PLANNING AND PRIORITIZATION OF NEED 52 4.1 Women’s Access to Information 53 4.2 Women’s Voice, Agency and Participation 56

CHAPTER 5 - WOMEN’S ECONOMIC EMPOWERMENT: INCREASING ACCESS TO RECONSTRUCTION BENEFITS AND JOBS 68 5.1 Women’s Economic Empowerment 70 5.2 Building Resilience 77

CHAPTER 6 - DISASTER RECONSTRUCTION AS AN ENTRY POINT FOR GENDER MAINSTREAMING 82 6.1 Strengthening Attention to Gender in Reconstruction 84 6.2 Supporting Structures, Systems and Mechanisms 86 6.3 Accountability – Mechanisms for Mandating Gender Mainstreaming 88 6.4 Promoting Women’s Role and Empowerment in Reconstruction 88

AnnexES 90 ACRONYMS AND ABBREVIATIONS 94 BIBLIOGRAPHY AND REFERENCES 96 THE DISASTERS - A MAP OF INDONESIA

December 2004: March 2005: Earthquake & Tsunami Earthquake • 220,000 people perished & missing • 1,000 people perished • 585,000 people displaced • 50,000 people displaced • Estimated damages: US$4.5 billion • Estimated damages: US$390 million ACEH AND NIAS ISLANDS NIAS ISLANDS AND ACEH

JAKARTA July 2006: Tsunami • 1,000 people perished • 50,000 people displaced • Estimated damages: US$110 million WEST JAVA

May 2006: October - November 2010: Earthquake Volcanic Eruptions • 5,700 people perished • 300 people perished • 40,000 people injured • 350,000 people displaced • Estimated damages: US$3.1 billion • Estimated damages: US$360 million YOGYAKARTA AND CENTRAL JAVA MOUNT MERAPI

10 A Series of Disasters in Indonesia A SERIES OFDISASTERS ININDONESIA institutional capacity and inefficient delivery of public services such as health andeducation, as such services public especially inthe rural areas.exacerbated Thetsunami these challenges to say the least, and the of delivery and inefficient of capacity lack institutional including challenges, numerous faced already Aceh in governance tsunami, the to Prior value oftheselosseswas estimated to be over $81million. as alocal government. Twenty-seven percentrecords ofpublic were destroyed. Thereplacement least 21 percent of surviving civil servants were severely affected, impacting their ability to function at and perished servants civil of percentApproximately nine buildings. these in equipment the of already local governments and provincial weakenedaffected by years seriously of conflict. The tsunami destroyed Aceh 21 percent of in public buildings and 19 percent destruction massive The figure was later revised to $6.2billion. 1 the Worldwith other partners,Bank and assessedthedamageneeds to and be US$4.9billion. Governmentalong the disasters,by conductedboth of impact the of assessment subsequent The many businesseswere destroyed orcould nolonger operate. andclinics hospitals schools, systems, collapsed orwere severely damaged.Fishermen, farmers communications othersand lost theirlivelihoodsand bridges, roads, Many flourished. had way.everythingits in Villages were reduced to whererubble minutes before communitiesthriving Sumatra were North of parts and Aceh People,demolished. houses, boats, cars, of were and buildings engulfed swallowedas the tsunami coastline the along settlements human minutes, In was infrastructure levels, all At livelihoods. their lost paralyzed orcompletely destroyed. people 750,000 as many As highcame homeless. meters ten leftwere million half a over and missing, or werekilled people 221,000 alone, Aceh towering In enormous. was suffering human Waves and devastation physical of Indonesia. scale The Aceh. than in shoreline the into more crashing suffered East country as away far No as and Africa. India, Lanka, Sri Bangladesh, and destruction Thailand, death including Asia causing Southern Ocean, across Indian the across fanned waves tidal Huge Sumatra. of island the of tip northernmost Ocean the on Aceh Indian of province the the of coast the off kilometers in 150 about centered was scale Richter the on 9.1 measuring earthquake massive The history.human recorded in disastersnatural worst the of one was 2004 26, December on region The earthquake and tsunami that struck Indonesia and several other countries in the Indian Ocean December 2004—Earthquake andTsunami inAceh of support from around theworld. outpouring an attracted which disasters natural devastating of series a experienced Indonesia 2010 and 2004 Between wildfires. and eruptions, volcanic floods, landslides, tsunamis, Indonesia is one of the most disaster prone countries in the world. It is vulnerable to earthquakes,

All $amounts inthisreport refer to USdollars. 1 This

More Than Mainstreaming: Promoting Gender Equality and

11 Empowering Women through Post-Disaster Reconstruction Photo: Photo: News Antara Agency Just Just three months later on March 28, 2005, another massive earthquake measuring 8.7 Richter scale on struck Aceh the and the neighboring province of North Sumatra. This quake devastated the Nias islands in the province of North Sumatra, located in the Indian Ocean 130 kilometers off the western coast of Sumatra just south of Aceh. The island of Simeulue, part of the province of the in resulted disaster second This hit. hard also was mainland, the of coast western the off Aceh death of nearly 1,000 people and the displacement of nearly 50,000 Approximately severe. was damage The physical area. survivors. on ravaged an already havoc more The wreaked earthquake critical other and transportation rendered destruction The destroyed. were buildings of percent 30 the with populations island remote the linking ports major the including inoperative, infrastructure and disasters the to prior Indonesia of areas poorest the among stood Simeulue and Nias mainland. of the earthquake. the destruction by only further isolated were These two two disasters devastated areas of Indonesia that were already grappling with multiple challenges. The province of Aceh was in the grip of an internal conflict between the Acehnese provincial provincial and local governments were not in a positionto manage the immense and extensive recovery effort thatwould berequired. The nationalgovernment stepped inurgently to take the process. lead in the reconstruction and Aceh in North Sumatra 2005—Earthquake March Many Many people were saved from the tsunami by taking refuge in Aceh’s Grand Mosque. They debris and carrying the streets, through raged torrent as the helplessly only watch could victims along with it. 12 A Series of Disasters in Indonesia 2005 earthquake. 2005 March of the time the approximately percent at was 31 island, the of isolation the Poverty,largely attributable to Indonesia. in districts poorest the among ranked Island Nias on Nias South and 3 2 16.7 percent. of average the national than higher substantially percent, 28.4 was Aceh in poverty tsunami, 2004 December the of time the At capacities. sector private had paralyzed development and economicgrowth, and hadseriouslyweakenedand public both years, thirty stretching over conflict, military. This Indonesian the and movement separatist rebel minister-level appointee whoreported directly to thePresident. a by led and Aceh in based was agency special reconstruction. This manage to BRR) the as known Rekonstruksi (Badan Rehabilitasi dan Nias Aceh widely Nias, dan and Aceh of Rehabilitation and Reconstruction the for Agency the created government central the ofthe hand, at task themagnitude reconstruction Nias, were and recognizing in this, Recognizing and isolation disasters. the by Aceh overwhelmed in initially conflict the by weakened already governments, local The operating environment for reconstruction inNias. coastline ofAcehwas swallowed by theseaandmost portswere annihilated. damageserious such that they couldlongerno as theresult be used of thedisasters. the of Much Many roads, bridges, communication systems, school and other infrastructure collapsed or sustained

Indonesia Central Statistics Agency National SocialSurvey Economics 2005-2007 World Bank2008 3 These dual challenges of poverty and isolation created an extremely difficult extremely an created isolation and poverty of challenges dual These 2 h dsrcs f Nias of districts The Team IREP-IRFF Photo: More Than Mainstreaming: Promoting Gender Equality and

13 Empowering Women through Post-Disaster Reconstruction On October 26, 2010, disaster hit Java once again when Mount Merapi, a volcano located on the located a volcano Merapi, when Mount once again hit Java disaster 2010, 26, On October major additional seven by followed was This erupted. Java, Central and Yogyakarta between border eruptions, with the last one occurring on November 11, 2010.For two longweeks, the eruptions October and November 2010—Mount Merapi Volcanic Eruptions Volcanic Merapi 2010—Mount and November October Just Just two months later, on July 17, 2006, a second southern major coast submarine of earthquake struck Java. off The the earthquake, measuring of West tsunami Thesouth the hit coast damage. widespread caused a tsunami that triggered a magnitude of 7.7 on the Richter Java, scale, taking more than 650 lives and displacing over 28,000 people. or Almost remained missing 1,000 and more people than died 50,000 people were displaced. Damage and losses reached an estimated $112 million. Ciamis district,West Java,was theworst affected. Along the coast of Ciamis alone, displaced. close to 6,000 The were families tsunami caused economic in destruction of numbers large where the Java, resortsWest fishing along villages andtourist the south ofcoast and the small fishing ports destroyed. lost were fishing boats July 2006—West Java Tsunami Java July 2006—West Disaster again struck Indonesia on May 27, 2006, when an earthquake measuring 5.9 on the Richter Richter the on 5.9 measuring earthquake an when 2006, 27, May on Indonesia struck again Disaster scale hit the island of Java, resulting inextensive damage in the province of Central Java and the in Asia, areas densely hit populated one of the most The earthquake of Yogyakarta. Special Region made houses private to Damage homes. 280,000 over destroying and lives 5,700 than more claiming enterprises, medium and small affected also which destruction, total the of percent 60 than more up a large number of them home-based industries. While infrastructure sufferedcomparatively less destroyed. were of homes and smaller structures of thousands hundreds damage, Many houses in the area had been building built materials, resulting in more without deaths and damage proper thanwould normally reinforcement beexpected from and with low an quality earthquake of this magnitude. Approximately 40,000 people were injured in the earthquake. houses and buildings. their toppled and buried beneath trapped Thousands of people were governments local with (Bappenas), Agency Planning Development National the by led team joint A order in Assessment Loss and Damage preliminary the prepared community, international the and to Totaldetermine the damageneeds and overall for the andreconstructionrehabilitation phase. $3.1 billion. at around estimated were the earthquake losses from The economic impact of the earthquake was particularly heavy because of theconcentration of home-based industries in the areas destroyed by the earthquake. More percent 90 to close with than earthquake by the affected directly activities in economic employed 650,000 were workers of the home-based Many in small and enterprises. medium and losses concentrated of damage industries in the area’s important handicraft sectorwere businesses and livelihoods. of home-based also support recovery would severely affected. Rebuilding homes May 2006—Earthquake in Java 2006—Earthquake May 14 A Series of Disasters in Indonesia of the recovery and reconstruction process communities across Aceh, Nias, and Java aremore Java and resilient to face future disasters. Nias, Aceh, across communities process reconstruction and recovery the of learned many has a result As disaster reduction. risk place put for createdsystems in and has institutions It lessons. Indonesia disasters, these following efforts reconstruction and recovery the contributedwhich of both greatly tolives thenumberof lostlevelthe high and damage. of Through techniques, building and materials quality poor used have to found wereearthquakes the during structuresother homes and areto built resistantseismic standards.Many destroyedthe homes of hazards.Improvements early warning in systems are expected to save lives,thatensuring as will The numerous disasters since 2004 are a stark reminder thatproneis highly Indonesia to natural Facing theFuture were relocated to safer areas. cars were carried away bySeveral themud. villages locatedthe danger in zone nearthevolcano bikes, livestock, and motor houses, boulders, trees, Huge fields. and villages, entire farms burying mountain the down surged lava way.Cold the in everything up gather that mud of rivers slushy thick, into turns rain with combined when which eruption the from sand and ash of up made is dingin “lahar as known is this Java In flows. mud massive as Merapi Mount of slopes the down flowed rain with mixed debris aswell volcanic eruptions, the During livelihoods. of loss local infrastructure, and tohousing damage widespread in resulted eruptions These were still intheprocess of rebuilding. and earthquake 2006 the by affected been had that communities some Yogyakartaincluding the Region, Special and Java Central of province the in areas impacted eruptions The injured. were timely evacuation, casualties were limited but still almost 300 people perished and more than 500 to Due camps. evacuation in accommodated and displaced were people 350,000 and destroyed were houses 2,900 approximatelyinfrastructure,local to damage massive with Along evacuated. were crater the of kilometers 20 within villages All Java. across cities in found was dust, fine volcanic in everything blanketed which rain, Ash evacuees. of livelihoods the to essential were that trees and crops livestock, including reached, they everything incinerated Celsius degrees 800 to several into flowed gas hot by rivers.gas ofhotashandpoisonous Theclouds combinedwith heat at clouds temperatures accompanied of 600 lava hot and villages nearby into gas hot spewed ” or cold” lava and More Than Mainstreaming: Promoting Gender Equality and

15 Empowering Women through Post-Disaster Reconstruction

8.80 1.20 68.50 25.00 20.72 20.22 19.57 18.03 13.93 11.05 10.13 10.00 10.00 271.31 146.20 654.67 Contributions (US$ million) Contributions MDF Contributions MDF Donors Total Contributions: Total European Union European Government of the Netherlands Government Kingdom of the United Government of Ireland Government World Bank World of Sweden Government of Canada Government of Norway Government of Denmark Government of Germany Government of Belgium Government of Finland Government Bank Asian Development States of the United Government Zealand of New Government The Multi Donor Fund for Aceh andNias the (MDF) Government was established of Indonesia’s request to coordinate donor in Aprilsupport for the 2005, in reconstruction and response to rehabilitation ofaffected areas following the December 2004 earthquake and tsunami, and the 2005 earthquake. March subsequent The MDF pools $655 million in contributions from 15 donors. These funds amountto nearlyten percent of the overall reconstruction funds.At therequest of the Government of Indonesia, the World Bank serves as Trustee of the MDF. implemented Grant funds Programme by are Development Nations provided United government the to include agencies and projects Partner oversight. which non-government providing agencies are agencies and communities, with partner (UNDP), the World Food Programme (WFP), the International Labour Organization (ILO) and the Bank. World Under the MDF portfolio, 23 projects Communities;were (2) Reconstruction financed Rehabilitation and in of six Infrastructure Large Strengthening Governance and outcomeCapacity and Transport; Building; (4) areas: (3) Sustaining the Environment; (1) the (5) reflected Enhancing projects These Livelihoods. Recovery of and Development Economic (6) and Process; Recovery the process. reconstruction the throughout government priorities of the Indonesian The MDF was coordinated by the Government the Rehabilitation of andReconstruction of Indonesia, Aceh and initially Nias (BRR), which through wasset the up to manage Agency the reconstruction andrecoveryeffort.After for the BRR closed in April 2009, the National Development Committee Steering a by governed is MDF The role. critical this on took Bappenas, Agency, Planning with representativesfrom the government, donors, trustee, the and civilby a secretariat. work in its is supported Committee society. The Steering ABOUT THE MULTI DONOR FUND FOR ACEH AND NIAS (MDF) NIAS AND ACEH FOR FUND DONOR MULTI THE ABOUT 16 About the Multi Donor Fund for Aceh and Nias (MDF) • their lives. rebuilding begin and communities re-establishtheir to survivors disaster programsenabled these afocusonhousing with ofcommunities, localand infrastructure. Usingacommunity-driven approachimplementedand by government, recovery supported MDF projects of group first The 1. Recovery ofCommunities(5projects totaling $202million) cross-cutting elements oftheMDF program throughout its life cycle. organizations. and non-governmental Environmentalsustainability, importantgender,reduction were disaster risk and building capacity institutions, development international Nations, of the United agencies governments, provincial and national including partners, government non-government by and implemented were projects the areas, outcome six in projects 23 of Consisting development. economic of foundations the laying to infrastructure rebuilding to recovery from The MDF’s portfolio was designed to meet the changing needs of Aceh and Nias as they progressed The MDFPortfolio so that theMDF’s impacthasbeenableto exceed thevalue ofitscontributions. strong MDF’s forsupport coordination ofthe overall reconstruction The effort has resultedin huge multiplier effects communities. and society civil of members and donors, players, government MDFhas key together The brought has and priorities government many with stakeholders. line in for reconstruction the in gaps filled dialogue policy for platform important an provided and efforts donor of harmonization the in resulted has MDF the through resources Pooling achieved. results robust and program the of performance strong the in role key a played created have MDF Thepartnerships the by stakeholders. other on partnerships and communities based donors, reconstruction government, post-disaster between for model successful a provides MDF The • • The by theWorld Bank. buildings, and provided scholarships. The project was implemented by the MPW and managed public other and schools infrastructure, rebuilt urban repaired UPP Aceh. in municipalities in infrastructure community develop and rehabilitate to communities urban to reconstruction The implemented by theMinistry ofHomeAffairs (MoHA)andmanaged by the schools, World Bank. infrastructure, rural of reconstruction the manage clinics, and other public buildings. It and also provided business training and loans. The project plan was to Nias and Aceh in MDF. the by program funded national partly and Through KDP, assisted MDF communities the The infrastructure to 180villages. and (MPW) Works Public managed by theWorldBank, Rekompak of rebuiltrestoredand nearly 15,000 houses basic Ministry the by Implemented Nias. and Aceh in infrastructure knownas Rekompak, usedacommunitydriven approachto rebuild localand homes (KDP) was part of a of Community Recoverypart throughwas theKecamatan (KDP) Development Project Community Recovery through the Urban Poverty Program (UPP) providedfor support better Project, Reconstruction and Rehabilitation Settlement Community-Based

More Than Mainstreaming: Promoting Gender Equality and

17 Empowering Women through Post-Disaster Reconstruction

(KRRP) was was (KRRP) Project Nias in

(TRPRP) rehabilitated damaged ports damaged rehabilitated (TRPRP) (RALAS) restored land property rights rights property land restored (RALAS) (IRFF), planned, designed, and built strategic (IRFF), planned, designed, and built strategic (LCRMP) maintained a key road from Lamno to from road a key maintained (LCRMP) (SDLP) met the urgent recovery transportation Sea Delivery and LogisticsProgamme Project Building AccessCapacity and Rural (RACBP) helped residents of participating Infrastructure Infrastructure Reconstruction Enabling Program (IREP) and its companion project, the Lamno-Calang Road Maintenance Project Maintenance Road Lamno-Calang Kecamatan-Based Reconstruction and Rehabilitation Planning Rehabilitation and Reconstruction Kecamatan-Based Tsunami Recovery Port Redevelopment Programme Redevelopment Port Recovery Tsunami (BAFMP), implemented by Muslim Aid and managed managed and Aid Muslim by implemented (BAFMP), Project Mitigation Flood Aceh Banda Reconstruction of Aceh Land Administration System Administration Land Aceh of Reconstruction The in Aceh and Nias so that equipment and could materials be supplied to communities. isolated The project, implemented by the UNDP, also major sea ports. reconstructing provided designs and technical support for The districts in Nias effectively useimproved rural transport infrastructure and services advantage to take of economic opportunities and social services. Implemented component. heritage included a cultural bythe ILO, it also a community-based recovery and planning project for reconstruction in Nias. Implemented by in Nias. Implemented reconstruction for and planning project recovery a community-based the MoHA and managed by the World Bank, it rebuilt houses, schools, public buildings, and infrastructure. village The Calang to ensure overland access communitiesto west coast.tsunami-affected on The Aceh’s the UNDP. by implemented was project The needs for construction materials in Aceh and Nias. it Implementedby also the provided WFP, reduction. of ports and disaster-risk management better for training The by the World Bank, repaired pumping stations, flood valves, and drainage systems damaged by damaged systems drainage and valves, flood stations, pumping repaired Bank, World the by and tidal flooding. storm of Banda Aceh from business area the central protect the tsunami to The Reconstruction FinancingFacility Infrastructure BRR, by Co-financed Nias. and Aceh in bridges and systems water roads, as such infrastructure Bank. the World by the MPW and managed by implemented were the projects The The and a computerized land records management system. Over 220,000 land title certificates were certificates title land 220,000 Over system. management records land computerized a and Agency Land National the by implemented was project The women. to one-third nearly issued, Bank. the World by (BPN) and managed • • • • • • • to to the reconstructionnew providing and lives people’s improving thereby infrastructure, of critical and links transportation large infrastructure opportunities. economic in Aceh and Nias. projects These restored • 2. Recovery of Large Infrastructure and Transport (7 projects totaling $217 million) totaling (7 projects and Transport Infrastructure of Large 2. Recovery The MDF, working in partnership with the Government of Indonesia, contributed significantly 18 About the Multi Donor Fund for Aceh and Nias (MDF) • strengthenedterm economic growth. projects These recovery. disaster of important sectors part that provide employment and income to importantAceh and Nias, paving the way for an long- is livelihoods Restoring 3. Economic Development andLivelihoods (2projects totaling $58million) • • • reconstruction process. organizationssociety the involvedcivil in developmentof encouragedthe governments.It district and communities local of capacity the strengthened and governance good encouraged MDF The 4. Strengthening Governance andCapacity Building (3projects totaling $40million) • The (CSO), Organizations Society Civil of Nias to enhancegrass-roots Role participation inthe reconstruction process. and Aceh and in organizations society civil local of Capacity capacity the UNDP,built the by implemented the Strengthen to Support national program a funded by aWorld Bankloan. complemented Theproject services. resolution dispute and education health, improved and creation, job and investmentprivatepromoted planning, development in participation local strengthened Bank, World the by managed and KPDT by implemented The Support for Poor and DisadvantagedAreas Projectand Nias inAceh project was implemented by theILO. capacitydistrictof governmentsmall-scale and contractors toundertake localroad works. The The Capacity Building for Local Resource-based Rural Roads local government for implementing livelihoods programs inNias. Implemented by KPDT and managed by the World Bank, the project also developed skills within to improve technicalfor skills andbusiness livelihoodsand overall economic development. The rice, cocoa, coffee, the meat andfisheries. including sectors by key in growth implemented support to was sub-grants provided project EDFF the The Aceh. of Bank, Government the and (KPDT) WorldAreas Disadvantaged of Development for Ministry the by Managed recovery. economic (LEDP) provided training provided (LEDP) Program Development Economic and Livelihoods Islands Nias Aceh Economic Development Financing Facility EF) rmtd post-tsunami promoted (EDFF) CL3 srntee the strengthened (CBLR3) (SPADA) project, (SPADA)

More Than Mainstreaming: Promoting Gender Equality and

19 Empowering Women through Post-Disaster Reconstruction

(TRWMP) helped local government government helped local (TRWMP) (AGTP) provided support strategic to the (TS-R2C3), managed by the UNDP, the project (TS-R2C3), managed by the UNDP, (NITP), managed by the UNDP and implemented Tsunami Recovery Waste Management Programme Management Waste Recovery Tsunami Aceh Programme Government Transformation Nias Island Transformation Programme Nias Island Transformation (AFEP) worked closely civilwith society communities, (AFEP) worked Project Environment & Aceh Forest clear, recycle and dispose of tsunami waste, rehabilitate waste management infrastructure, infrastructure, management waste rehabilitate and dispose of tsunami waste, recycle clear, livelihoods It also promoted systems. management solid waste sustainable and implement the UNDP. by implemented was The project management. waste to related The logging and promoted illegal from the Leuser and Ulu Masen forests protect to and government sustainable forest management. Managed by the World Bank, the project was implemented (LIF). Foundation (FFI) and Leuser International International & Flora Fauna by The The by the MoHA and local governments in Nias, enhanced district capacity to successfully complete complete successfully to capacity district enhanced Nias, in governments local and MoHA the by disasters. natural future from risks and reduce process the recovery Bappenas the BRR and to Assistance Technical supported supported BRR in managing the overall recovery process. the After project worked with BRRBappenas and closed was referred to as Rehabilitation and in April Reconstruction 2009, (TS-R2C3). Coordination and Continued Completion government government of Aceh to provide the capacity and institutional strengthto takeover projects, resources, and assume oversight of reconstruction andrecovery programsafter the closure of BRR in April, 2009. The project was implemented by the MoHA and Provincial Government the UNDP. by of Aceh and managed Making Aceh Safer through Disaster and partners, Risk private and public its agencies, Reductiongovernment local Aceh’s in in reduction risk disaster Development (DRR-A) established local communities. The projectwas implementedby the MoHA and Provincial Government the UNDP. by of Aceh, and managed The • 5. Enhancing the Recovery Process (4 projects totaling $56 million) totaling (4 projects Process the Recovery 5. Enhancing In order to strengthen government capacity to manage the recovery agencies. government to BRR and other support effort, and operational assistance technical the MDF provided • of Aceh and Nias. the ecosystems protect to worked • • 6. Sustaining the Environment (2 projects totaling $57 million) totaling (2 projects the Environment 6. Sustaining Throughout the recovery process, the MDF committedto protecting theenvironment. The MDF It also management. waste cleanup and long-term part in post-disaster an important played • • 20 About the Java Reconstruction Fund (JRF) on allJRFprojects asthepartneragency. andCommunity Housing Restoring (2) Infrastructure;(3) Restoring and Livelihoods. The World oversight and a supervisory Bank had Housing; role Transitional (1) address: to a used approach and experience phased MDF’s the from drew which projects five of consisted portfolio JRF The reduced program administration costs. staffing and shared expertise with the MDF Through for Aceh a secretariat. and Nias, the secretariat by achieved efficiencies of scale, resulting in supported is Committee Steering Bank The Trustee.World the as and donor, largest the as Union European the with the along co-chaired Committee, Steering Bappenas and donors. ofIndonesia Government the from representatives with Committee Steering a by governed was MDF,JRF the the to similar structure governance a Using and theProvincial Planning Agencies (Bappeda)for theoverall coordination ofthe reconstruction. the NCT and the TTN ended in 2008, the JRF worked with the National Planning Agency (Bappenas) of the mandate Government’s After (TTN). the National Technical Team the through and (NCT) initially Coordinating Team National Indonesia, of Government the by coordinated was JRF The the Following JRF.disaster preparedness. the of Trustee as serves Bank government’s World priorities, The the Bank, JRF Denmark. supports Development the and recovery Asian of Finland communities the and livelihoods, Kingdom, and increasesCanada, United Netherlands, the of Governments Nias. Seven the and Union, Aceh for Fund Donor Multi the European the are: donors The million. contributions $94.1 totaling with of JRF the supporteddonors model successful the on based is JRF The JRF The 2010. of program closedonDecember31,2012. November and October in Merapi Mount of eruptions volcanic to respond to the and Yogyakarta, near struck that thattsunami coastthe southern hit West of earthquake Java Provincewas2006. TheJRF July in later extended 2006 27, May the to respond to established was (JRF) Fund Reconstruction Java the Indonesia, of Government the from request a Following ABOUT THEJAVA RECONSTRUCTION FUND(JRF) Government ofDenmark Government ofFinland Government ofCanada Asian Development Bank Government oftheUnited Kingdom Government oftheNetherlands European Union Total Contributions: JRF Donors JRF Contributions Contributions (US$million) 94.06 10.00 10.77 12.00 51.17 1.60 1.99 6.53

More Than Mainstreaming: Promoting Gender Equality and

21 Empowering Women through Post-Disaster Reconstruction

The JRF financed two transitional transitional two financed JRF The better known asRekompak, made up most of the JRF funding allocation. project, project, implemented by the IOM and managed by the World Bank, supported The Livelihood Recovery in Yogyakarta Special District and Central Java project The Access to Finance and Capacity Building for Earthquake Affected Micro and Small - contributed to the Government of Indonesia’s initiatives to assist enterprises micro,(MSMEs) affectedby the small earthquaketo revitalize theirbusinesses and re integrate and medium affected low-incomecommunities into economic life. Theproject provided access to finance, developed loan work-out strategies for defaulting borrowers,restored capacity and improved competitiveness of medium-sized companies Deutsche the by implemented was Yogyakarta in Gesellschaft für Internationale Zusammenarbeit (GIZ) and and Central Java. Bank. the World by managed The project - Enterprises the recovery of micro them and to small reach enterprises their in support, pre-earthquake Yogyakarta and and capacity. techical It Central assistance. provided Java women. by run or owned 40 percent (MSEs), over enterprises The to asset project enable replacement, worked marketing with over 4,000 micro and small Transitional Housing Projects (2 projects totaling $2.3 million). $2.3 totaling projects (2 Projects Housing Transitional $17.1 million): totaling (2 projects Projects Recovery Livelihood The Community-based Settlement Rehabilitation and Reconstruction Project (1 project The JRF portfoliofollowed a phased approachto reconstruction, adopting lessons learned from the MDF. Early support focused subsequent support on focused on addressing meeting economic recovery. The JRF housing prioritized disaster supported: were projects Five and risk in all its programs. reduction community recovery needs and • Ministry of (MPW) Public and Works managed by the Bank, World the project rebuilt over 15,000 projects. infrastructure 4,000 local over houses and completed • The JRF Portfolio The JRF housing projects, projects implemented The Bank. World by the managed and by International (CHF) Foundation Housing Cooperative the InternationalOrganisation shelters. nearly 5,000 transitional provided Migrationfor (IOM) and • totaling $75.1 million), Following the model established in Aceh, it used a community driven approach to rebuild homes and local infrastructure in earthquake affected areas ofYogyakarta Special District, and Central Java, and later, parts of West Java the affected 2010 by eruptions of Mountsubsequenta Merapi, earthquake projectthe and tsunami. was expanded further. After Implemented by the 22 Executive Summary village and public affairs. Men recognized the benefits of women having a more active voice in voice public affairs. active a more having women of benefits the recognized Men in affairs. involvement public of women’s and village the levels on impacts positive reported Women clinics. health and water,sanitationas such goods public of provision in increase an to leading result, a as changed Outcomes representative. more institutions local made and cohesion social increased processes making: decision representative More tothe approach driven A community adjudication oflandrights was established, whichhasset future patterns for land adjudication. assets. productive and credit to access their up opening and households, women-headed of security livelihood the strengthening women, for were MDF the under Aceh in issued certificates land the of post-disaster.percent rights 30 property Almost Strengthening of women’s and land of legal loss rights: Women the vulnerable to particularly are supported enterprises. livelihoodin recovery. InJava, women managed nearly50percent oftheJRFlivelihoodrecovery women’s participation accelerated by regeneration was Economic labor). family unpaid as (often percent oftheworkforce, workingmedium enterprisesand small in mainly agriculturein and productivity: increased and recovery livelihood and economic Faster maintain new assets. andcost quality This to and improved sustain willingness satisfaction, enhancing and ownership increased thereby and efficiency infrastructure. and local housing of selection and design the in changes positive to led approaches driven community through decisions greatercontrolover and infrastructure: and housing in outcomes sustained and Improved JRF Programs Experiences inEnhancingtheRole ofWomen undertheMDFand empowerment, andmainstreaming gender sensitive approaches in reconstruction efforts. Fund (JRF) offer Reconstruction valuable Java lessons about strategies the and actions to and support gender equality, (MDF) women’s Nias and Aceh for Fund Donor Multi the of experiences The survivors. for women and were lesslikely dramatically thanmento have theirvoices heard insetting the agenda for reconstruction. increased responsibilities men, with equitably benefits and care assets share to or information access to able less Womenwere and work Java, Aceh, and in disasters Nias recent Following poverty. chronic and long-term jobs trauma, and from homes psycho-social of loss displacement, seriously more suffer women example, For disparities. distinct create inequalities gender but impacts, disaster to vulnerable are women and men Both women’s towards progress support and legislation and empowerment andgender equality. programs polices, new toaddress introduce to ofopportunity window are a a disaster gender inequalities.and other Disasters social of create legitimate reasons todothingsdifferently: wake the in processes Reconstruction EXECUTIVE SUMMARY Women’s active participation in local decision-making in participation active Women’s Women’s active participation Women’sactive Womenover madeup 40

More Than Mainstreaming: Promoting Gender Equality and

23 Empowering Women through Post-Disaster Reconstruction

Throughout the Throughout Women’s active involvement in reconstruction, reconstruction, in involvement active Women’s Infrastructure and economic development projects, which are a large proportion of post- of proportion large a are which projects, development economic and Infrastructure But in communities wherelevels of trustwere low, and in thoseand factionalism, abilitywomen’s to access informationwith higher was highly levels dependent on their access to of rivalries village leaders. More powerful members of communitiescontrolled information leadingflow, to information. to with access dissatisfaction Social capital plays a particularly part in networks, open information local flow —the strong stronger theinto levels of tapped mutual trust, which the Projects information. of circulation the greater those linking women, were most effective in helping women to rebuild their lives by supporting information. access to women’s Psycho-social stress undermines women’s capacities to activities. participate meaningfullyin project disaster reconstruction,generally do not incorporatestrategies and actions aimed at addressing project MDF One so. do to needed are measures specific and trauma, of impacts psychological the implemented by the Canadian Cooperative Association (CCA) focused initially on peace building, counselling and sensitization activities. Starting with small savings and loansgroups, project the was able to build the trust, confidence and emotional securityof participants re-engageto with livelihood activities,profitable andlater for only women supported majordevelopment economic development. cooperative through A clear lesson is that building into a project a response to alleviate the impacts of psycho-social trauma will require extra levels time incremental and and different resources. for better However, points understanding starting of sensitive and therespectful impactsidentify help of will disaster of support. Failure to do so will exclude the most affectedwomen and will undermine potential well. as recovery overall for the but women involved, the for not only benefits There are trade-offsbetween operating Large-scale women. marginalized community infrastructure at projects scale with and ensuring ambitious participation delivery of poor and Promoting Women’s Participation and Access to Benefits and Access Participation Women’s Promoting Experiences from the MDF and JRF reveal a number of sharing. making and benefit equality in decision gender opportunitiesadvancing as well as challenges for Access to information can be major a barrier women’s to participation. community community settlement planning, livelihoodrecovery and disaster riskreduction increased enabled that knowledge learned skills and gained their Women disasters. of future in case resilience responsive more were with losses. Women and cope their livelihoods build and maintain to them principles, and practices construction safe earthquake of importance the to example, for men, than and business skills. marketing, networks, build soft skills such as knowledge and to reconstructionprocess, community meetings and notice for boards informationwere exchange the main mechanisms and triggering women’s participation reconstruction in efforts. Enhanced resilience for women and communities: communities: and women for resilience Enhanced 24 Executive Summary capacity of project staff to include gender mainstreaming in DRR planning or gender-sensitive DRRplanning in communication strategies isnecessary to optimize women’s impactinfuture reconstruction. mainstreaming gender include to staff project of capacity in reconstruction DRR to the Building future. the for resilience community sustaining in commitment involve them to and interventions, women’s harness to opportunities missed were There Moreneeds to bedone to ensurewomen’s equal participation in Disaster Risk Reduction(DRR). to cope withpossiblefuture disasters. likely toresilience build among women, providingcompetencies,them with knowledgeskills and knowledge as networks,developing such skills, soft marketing, business and expertise, were more future. the for investment an is livelihoods resilient for capacities and women’sskills build to Support women’s of quality the enrich to participation, visits) women’s rolein project decisionmakingandinimplementation wasenhanced. house or facilitators, women women, mobilizing on spent time alonger meetings, women-only strategiesfacilitation active (e.g., used projects When disadvantaged women, consistently dissatisfied withtheirlimited opportunities. them to to empower communityin making ismodest, decision and planning leaving women, and especially poor sufficient not but and active women, of exercise leadership.targetsThe impactofsuch women’son alone to ability engage involvement meaningfully increased focused for necessary requires is processes reconstruction in facilitation. voice women’s Strengthening open upspacefor strengthening therole ofwomen intheoverall reconstruction process. and outcomes project improve partnerships These investment. smart a is women disadvantaged Formal partnerships and linkages between projects to address gaps in delivery to marginalized and processes. work to theirstrengths andbringagreater number ofpoorer women into community planning to projects both enabled This widows.marginalizedpoor, workedexclusively and with vulnerable PEKKA (the Program for Women-Headed Households in Indonesia), a complementary program that withmarginalized work to women. and capacities The Kecamatan Development Project (KDP), for example, used non-MDF funds to support mandate the have which organizations smaller with interventions coordinate however, can, projects Such decision-making. in meaningfully women targets often do not have the flexibility, time and resources to reach and involve poorer and isolated • Reconstruction Key Lessonsfor Promoting Women’s Equality through must be fully funded, supervised andevaluated.must befullyfunded, supervised objectives project from arising actions gender-based Specific needs. women’s accommodate realistic, gender gender equality linked to indicators improve and accurately monitored, and to exit strategies must objective clear a with equality and women’s implemented economic empowerment for and better quality outcomes. designed Budgets should be be to need Projects Make gender equalityafully integrated objective of reconstruction strategies. Livelihood and community recovery programs that committed time and resources to and resources time committed that programs recovery community and Livelihood Setting head count targets and encouraging women to be present andtospeak present to be women and encouraging targets count head Setting

More Than Mainstreaming: Promoting Gender Equality and

25 Empowering Women through Post-Disaster Reconstruction Photo: Photo: Harva Tarmizy b) information is available to Institutionalize gender in operational procedures, supervision and support systems. supervision and support procedures, gender in operational Institutionalize Routine and fully-budgeted supervisory supportand review, needs coaching to and performanceinclude mentoring, indicators and of gender implementing support agencies networks. should Operations include manuals clear guidelines addressing for genderissues in Strengthen operational gender expertise. gender operational Strengthen A major gap for agencies working on reconstructionwas the lack ofexperienced operational especially inreconstruction, housing Such and reconstruction. post-disaster gender for experts projects. recovery livelihood and infrastructure into gender mainstream to essential is expertise Develop sector-wide and theme-based gender analysis as early as possible after a disaster. a disaster. after as early as possible analysis theme-based gender and sector-wide Develop inform can analyses gender sector-based Assessment, Loss and Damage the to Complementary early recovery and reconstruction anddevelopment. to recovery support from transition and support the interventions, sector different better coordination linkages and between Integrate Integrate gender analysis and gender-disaggregated data into post-disaster needs and loss assessments. Damage and Loss Assessment after the disasters needto begender-sensitive for responsive programming to the different needs of men, women, boys and a) girls. there is is This a critical so that: shared baseline for implementing strategy. reconstruction and recovery agencies, national the issues into gender mainstream and Rosmawar was able to set up her own kiosk and buy some land with a loan obtained through the through kiosk and buy some land with a loan up own obtained her set able to was Rosmawar own small businesses. up their to set capital used microfinance women Many MDF. • • • • 26 Executive Summary • • women assoleorjoint owners. Land National the from Agency. staff Almost 30 percent of land certificates with issued under the MDF’s RALAS projcet title were issued to land her reviews Aceh in homeowner tsunami-affected A participation. gender parity in payment and remuneration, and include special measures for enabling women’s be can extended togenderon clauses include the workforce,of the hiring in balances contracts provide for Standardized authority. gender procurement with the compliance in of are requirements and mainstreaming levels, junior and senior at balances gender achieve to Procurement measures can include, giving preference to tenders that include quotas in staffing Mainstream gender equalityobjectives into procurement and contracting. regular or projects women aimed at strengthening complement poorest supportfor supervisory fieldbased staff. the to targeting improve to to programs special include focus Examples gender with More flexibility in funding for special programs initiatives to enhance gender-focused outcomes is needed. special reconstruction projects. for funding Provide and monitoring including reporting, and evaluation. procedures, operational systems, management Thompson Kristin Photo:

More Than Mainstreaming: Promoting Gender Equality and

27 Empowering Women through Post-Disaster Reconstruction

Future reconstruction efforts will benefit from stronger gender indicators tracking the quality of women’s women’s of quality the tracking indicators gender stronger from benefit will efforts reconstruction Future participation and gender quality results in access to benefitsand jobs, and need to beyond go data. gender disaggregated Include quantitative and qualitative gender sensitive indicators in results frameworks. in results indicators gender sensitive qualitative and Include quantitative Conclusions community, aid international Promotingwomen’sthe empowermentin in– reconstruction requires level the every commitment at and effort facilitated be of all must equality Gender stakeholders. are encouragement and Policies communities. and projects in and government, local and national in outcomes. into intentions good turn to needed are support and investment additional enough; not benefits. Everybody “smart economics.” simply quite it is obligation; a moral This is not just JRF and MDF the in uneven was empowerment and equality women’s promoting of experience The • reconstructionprocesses, all providing examples abound lessons throughout the for programs. for At future. actively the the involving women same time, in decision-makingA processes institutionalized. and implementation range Barriers and to women’sinvolvement mechanisms couldare of generally have high, better been good practice but costs the gender of ignoring in disaster reconstructionare potentially enormousneeds in and termsoverlooked of priorities damages, thatfrom exacerbate MDF poverty and and JRF reconstruction with inequalities. voice a project’s to shape experiences the design management show, and Aseveryone. for outcomes quality better reconstruction, of when good there are women practice lessons are active participants in Chapter 1

INTRODUCTION More Than Mainstreaming: Promoting Gender Equality and

29 Empowering Women through Post-Disaster Reconstruction

1 Source: http://www.un.org/womenwatch/osagi/conceptsandefinitions.htm Source: What is Gender Equality? What rights, equal the to refers equality): (gender men and women between “Equality Equality boys. and girls and men and women of opportunities and responsibilities women’s but the same that and men will become women does not mean that and opportunities will not depend on whether responsibilities rights, and men’s they born are male Gender or equality female. needs implies that the interests, recognizing consideration, into taken are men and women both of priorities and women and men.” of groups of different the diversity This working paper documents best practices and lessons learned from the MDFand JRF’s experiences promoting gender equality andempowering women through post- disaster reconstruction. Itfocuses on a particularset ofinterventions reconstruction in Aceh, Nias and Java: community infrastructure, housing and livelihood recovery. The voices which women’s to and the extent change of gendered the level paper explores in the MDF and JRF funded projects. on reconstruction impacted and agency In the wake of a disaster, reconstructionprocesses are address a window gender and of opportunity other to social inequalities. Disasters engender sociallyreasonstoand new to and introduce programs polices, dolegitimate things differently: acceptable legislation and empowerment and supportgenderwomen’s towards progress equality. The a unique moment. provided the Indian Tsunami Ocean to response of the The scale Government of Indonesia (GoI), in its commitment to “Build grasped the Back Better,” opportunity, first in Acehand Nias and later in Java. Gender equalitywas one plans. in its the reconstruction GoI by and its guiding donor partners principles adopted of the the in acknowledged were equality gender towards advances constraints, many Despite processes. reconstruction Pennells 2008; UNIFEM 2011; Care et. al. 2007 et. UNIFEM 2011; Care 2008; Pennells

1 Photo: Kristin Thompson Kristin Photo: The MDF and JRF empowered women to take an activerole inreconstruction. These women in Aceh were involved based efforts in to clear debris early restore and basic community- infrastructure. 30 1.1 Purpose and Focus of the Working Paper

The purpose of the paper is a practical one: to contribute to international understanding about what works well or what doesn’t work in promoting women’s empowerment and gender equality in relation to community and livelihoods recovery in post- disaster contexts. These are interventions where women, particularly in housing and Chapter 1 - Introduction Chapter infrastructure, have frequently been marginalized in reconstruction processes.2 They are also areas where, because women’s roles have so frequently been undervalued, the potential for transformative change in terms of promoting gender equality, creating equitable and more representative decision making, and increasing economic productivity for women post disaster is greatest.

The working paper focuses particularly on the experiences and lessons learned from projects in two outcome areas of the MDF and JRF funding portfolios: community recovery projects comprising eight projects which supported reconstruction and rehabilitation of community infrastructure—roads, drainage, housing and public buildings, and livelihood recovery projects, comprising four projects aimed at contributing to the GoI’s efforts to rebuild livelihoods post-disaster. All ofthese projects included elements in their design, implementation and institutional arrangements to promote the participation of women in project activities and as direct beneficiaries. The 12 projects selected for this paper are summarized below. MDF and JRF projects working to ensure women’s participation in disaster preparedness processes are also included in this study in order to ensure their lessons for future programs are captured.3

Three specific aspects are explored:

• Participation in community planning and prioritization ofneeds – the extent to which women were able to raise their voices, make choices and take part on equal terms with men in decision-making processes during reconstruction. • Economic empowerment of women – the impact of women’s access to employment through labor opportunities in reconstruction. • The impact of women’s involvement on overall project outcomes in terms of influencing policy change in and design and implementation of reconstruction efforts.

MDF and JRF Community and Livelihood Recovery Projects

MDF – Community Recovery Projects: Under the MDF, there were five projects aimed primarily at the recovery of communities. Four of these used a Community Driven Development (CDD) approach and were supervised by the World Bank. Integral to the

2 Chew and Ramdas 2005; Delaney and Shrader 2000; World Bank 2012c 3 A literature review, stakeholder interviews and 25 participatory interest group discussions involving 207 women and 92 men in selected sites across Aceh, Nias and Yogyakarta and Central Java were carried out as research for the paper. More Than Mainstreaming: Promoting Gender Equality and

31 Empowering Women through Post-Disaster Reconstruction Photo: MDF Collection These women, members of a rice farmers group benefitting from the Nias LEDP, are proud are from the Nias LEDP, benefitting group of a These members rice women, farmers that they could go “back to groups school” farmers for mixed-gender to technical addition in training groups provided livelihoods women-only through organized the LEDP project. members. are such as the one in which these women CDD approach are a range of mechanisms—block grants to communitiesto plan and local decision-making between open and transparent infrastructure, build small-scale for targets mechanisms, complaint-handling user-friendly communities, and government community- equitable at gender staff—aimed and beneficiaries as participation women’s led reconstruction. The biggest – Kecamatan the Development Project Indonesia, rural long-term across significant – project had been active in Aceh since 1999 a large and operating project sister KDP’s was Program Poverty Urban The Nias. in operated also and across was part of a wider project UPP KDP, in urban and peri-urban municipalities. Like Indonesia, operating in Aceh before the tsunami. BothKDP and UPPwere in scaledboth up the area and size of their operations under MDF support. A thirdcommunity- driven project, the Community-Based Settlement Rehabilitation and Project (CSRRP), widely Reconstruction known by its Indonesian acronym Rekompak, out envolved of the UPP and supported the of Goverment Indonesia to rebuild housing and community infrastructure post-disaster in Aceh. The Nias Kecamatan-based ReconstructionRehabilitation Planning and Project – KRRP used acombination of the KDP and Rekompak remote, the in working to adapted reconstruction community and housing for approach the was recovery community on project MDF Another Nias. of areas rural hard-to-reach Reconstruction of Aceh Land AdministrationSystem (RALAS), which aimed to support of rights and property the issuingreconstruction ofto women land and title certificates men. The RALAS project also provided support to the reconstruction and development systems. to the land administration attention in Aceh with of land institutions 32 The MDF also funded three projects as part of its reconstruction of infrastructure, that contained elements of community participation combined with mechanisms to support the active participation of women in project activities. Two of these were the ILO implemented local road rehabilitation projects: Capacity Building for Local Resource- based Rural Roads Project (CBLR3), implemented in Aceh and Nias, and the Rural Access and Capacity Building Project (RACBP) in Nias. The third was the Tsunami Recovery Chapter 1 - Introduction Chapter Waste Management Programme (TRWMP) implemented in Aceh and Nias. TRWMP was developed to address the public health and environmental concerns of the disasters. It transitioned into a program focused on building capacities of local government for sustainable municipal solid waste management, creating long-term employment opportunities in recycling, and rehabilitating Aceh’s waste management infrastructure.

JRF – Community Recovery Projects: Rekompak was replicated in Java under the JRF for housing reconstruction and community planning and reconstruction of community infrastructure. Building on successes and learning from the implementation lessons of Rekompak MDF, it focused on providing transitional shelters for the survivors of the earthquake and volcanic eruption, seismic-resistant permanent houses, community resettlement plans, and community infrastructure.

MDF Livelihood Recovery Projects: MDF supported two separate projects. The Aceh Economic Development Financing Facility (EDFF) supported initiatives for economic development and poverty alleviation through development of a variety of key commodities. It also provided assistance to the Government of Aceh in project management and capacity building. The Nias Livelihoods and Economic Development Project (LEDP) facilitated post-disaster recovery and poverty alleviation, working through local government to empower and build the capacities of poor rural households to sustain livelihood opportunities.

JRF Livelihood Recovery Projects: JRF funded two complementary projects aimed at supporting livelihood recovery in earthquake-affected areas in Yogyakarta and Central Java. The GIZ-implemented Livelihood Recovery Project supported micro, small and medium enterprises (MSMEs) affected by the earthquake by providing access to finance, micro-credit and technical assistance. Gender inclusiveness was embedded in all components of the project with targets set for women’s participation, access to benefits and inclusion in the management and decision-making processes of the project. The IOM-implemented Livelihood Recovery Project in Java used a participatory community mobilization approach that provided training and technical assistance, business support, and replacement of equipment and tools. Women were targeted both as beneficiaries and as key actors in the capacity building activities to improve linkages between MSEs, local governments, NGOs and the private sector. More Than Mainstreaming: Promoting Gender Equality and

33 Empowering Women through Post-Disaster Reconstruction Photo: Photo: Rosaleen Cunningham MDF and JRF Rekompak projects promoted women’s empowerment and participation in all aspects of community planning and decision making. Here a group of women display a model for the proposed reconstruction of their settlementSettlement Plan (CSP) whichbased they helped theircommunity developafter on the Community the eruptions of Merapi. Mount Following the introduction, Section 2 examines gender issues in disasters and the different different the and disasters in issues gender examines 2 Section introduction, the Following in gender contexts Aceh, Nias and Java. Section 3considers the institutional responses to gender issues in Indonesia and specifically in the MDF and JRF. Section explores 4 planning and in community women of the role to the main lessons learned with regard the prioritization of needs. Section 5 addresses the experiences and lessons learned about economic women’s empowerment and the access to benefits undercommunity and livelihood recovery projects. The final section looks ahead to the design of future in the of light and the programs lessons projects learned disaster about post of the role MDF and JRF. under the in reconstruction women 1.2 Outline of the Working Paper 1.2 Outline of the Working Chapter 2

WHY GENDER MATTERS IN DISASTERS More Than Mainstreaming: Promoting Gender Equality and

35 Empowering Women through Post-Disaster Reconstruction

6 Of the major disasters 4 7 In Aceh, it is estimated that two thirds 2 5 Cultural norms prevented many women from having learned to 3 More women than men died in the disasters that hit Aceh, Nias and Java, creating creating Java, and Nias Aceh, hit that disasters the in died men than women More 1 swim; when the wave theirhit, andto of children womenswim; the thewhen save attempts elderly the wave themselves. the waves escaping of them from many prevented Post-disaster, Post-disaster, women—particularly poor and older women by, for example, ethnicity, culture, and or belief—are at marginalized those greater risk than men of psycho- social trauma, long-term displacement, loss of homes and jobs and chronic poverty. Gender Gender matters in disasters. Pre-existing structures, determine systems that natural disasters and will affect social conditions some members than of ways, others. and Genderin isdifferent one of thatinfluence the how differences the population more, individuals asare affected well as theircapacities to survive and withstand the impacts pre- of disaster, impacts the to vulnerable are and women While both men of disaster. existing gender inequalitiescreate distinct disparitiesaffected in the inaftermath of howNatural disaster. disasters, on menaverage, killand women are more women than age a younger impacts at disaster die from to likely are than men, and women men. of those who died in the in the 2004 their because impacted most were These women girls and older women. young were tsunami were women, the majority of whom childcare responsibilities and livelihood activitieswere home,at while menwere more at sea, and out fishing out of the men were home. In Aceh, many from be away to likely danger. of immediate long-term gendered demographic imbalances. demographic gendered long-term covered by the MDF and JRF, only in the 2010 Mount Merapi eruptions were more of the the of more were eruptions Merapi Mount 2010 the in only JRF, and MDF the by covered women. men than fatalities Increased rates of domestic violence, alcoholism amongst men and underage marriages marriages underage and men amongst alcoholism violence, domestic of rates Increased are oftenrecorded post all disaster, contributing to violations women’sof rights and response. and support to demand appropriate their capacities Mazurana et al. 2011 et Mazurana 2006 UNIFEM Government estimates suggest high mortality levels amongst menafter the Mount Merapi fact that more eruption men remained behind wasin the danger mostly zones to property safeguard and due livestock. Almost all women and children the to areas. safe to evacuated and Ramdas 2005. 2008; GoI 2011; Chew 2006; Pennells UNIFEM 2000; WB 2011b; ILO 2000 and Ramdas 2005; ILO Chew Neumayer Neumayer and Plumper 2007. 147 natural disasters between 1981 and 2002 were analyzed. The study also found to those that different not significantly are when women for deaths disaster-related both sexes, for realized are and social rights economic of men. ratio of survivors. on the based largely were Estimations exist. do not women of men and rates mortality for the figures Exact

3 4 5 6 7 1 2 Photo: Akil Abduljalil Photo: A group of A road.in group women a Nias village constructing The local resource-based approach for rural roads construction used in two projects implemented by the ILO opportunities provided to learn women new skills and with engage in paidwork that before. women had not been open to 36 Taking into account the differences in impacts on women, as well their differing needs, rights and contributions, is increasingly recognized as essential for planning effective post-disaster recovery and reconstruction.8 Gender matters because gender-blind responses that overlook what the realities of disaster mean to both women and men risk perpetuating existing inequalities and reducing the impacts of reconstruction.

Gender roles can and do change post-disaster as a result of death, displacement, loss of possessions and social connections and even, as happened in Aceh, loss ofthe whole community. Post-disaster aid may either further women’s equality or undermine women’s rights if pre-existing gender dynamics are not fully understood and addressed. In the three areas of Aceh, Nias, and Java the conditions, roles and responsibilities of

Chapter 2 - Why Gender Matters In Disasters Gender Matters 2 - Why Chapter women and men were very different and significantly affected women’s abilities to access support and take part in reconstruction processes. These differences were not fully appreciated by external agencies in their interventions, a concern explored in later sections.

2.1 Women in Post-Disaster Aceh

Thirty years of conflict in Aceh profoundly affected gender relations. While outside agencies attempted to make distinctions between conflict and tsunami-affected areas, for the Acehnese there was no real distinction. Most households in some way had been affected by both the impacts of the conflict and the tsunami. While men had a higher profile during the conflict, women’s roles, both direct and indirect, were often overlooked. Women were involved sometimes as combatants or as front-line support, and more frequently in maintaining their communities and households as well as providing shelter and support for combatants when they returned home. Pre-tsunami, an estimated 23 percent of households were women headed, significantly higher than the national average of around 11 percent.9 Conditions for women were harsh; their mobility was restricted by curfew, road blocks and fear. The conflict exposed women to high levels of gender-based violence. Social networks were severed, trust within and between communities broke down and women’s already traditionally limited public roles became even more restricted. Both women and men suffered high levels of psycho-social trauma due to the conflict that was compounded by the devastation of the tsunami. Post-tsunami, political space opened up, enabling the ending of the conflict. In August 2005, a memorandum of understanding was signed between the GOI and the Aceh Independence movement. The resulting peace process ran in parallel with reconstruction. Over time the BRR encouraged greater donor involvement in areas of Aceh not immediately affected by the tsunami, given that the whole province was affected in many ways.

8 World Bank 2012c; UNIFEM 2006; ILO 2000 9 Vianen 2007 More Than Mainstreaming: Promoting Gender Equality and

37 Empowering Women through Post-Disaster Reconstruction Photo: Photo: Sari Kumala 10 11 Community-based Community-based reconstructionprojects such Rekompak as the encourage participation women.of facilitate and Holding separate meetings for heard. were voices womenwomen’s helped ensure that In 2002 Syari’ah law In in 2002 Aceh Syari’ah was officially by recognized the GoI. The law strengthened to relating issues influencing and determining in clergy, Muslim or Ulama, the of role the at interpreted was law the how on Depending affairs. educational and cultural religious, lives. local levels significant impactsthere were In onwomen’s some parts offor Aceh, as the well as introduced, had been women for curfews that indicated reports example, women. by and behaviors” dress policing of “inappropriate unpaid in involved traditionally were women, unmarried particularly women, Acehnese subsistence work in agriculture or fisheries.At the time of the tsunami there had been a noticeable shift womenfor from unpaidThese work were often in to self–employed, informal home-based low-profit micro enterprises because work. of childcare and household responsibilities. Limited accessto markets andcapital aswell as restricted mobility during the conflict had greatly limited livelihoodoutside the home. opportunities for women Nowak and Caulfield 2008 and Caulfield Nowak Vianen 2006

10 11 38 2.2 Women in Post-Disaster Nias

Gender relations on Nias Island are patriarchal and deeply unequal. Men control assets, decision making both domestically and publically, and dominate wage employment. Women have no customary inheritance rights, work predominantly as unpaid family laborers on the family farms and plantations, and have limited access to education and health services. Illiteracy rates for women are high—on average 40 percent, rising to 70 percent in remote rural villages. Men control expenditure within the household; women can only spend the money they actually earn, largely through petty trading. There are very few opportunities for women to work in the cash economy; less than 40 percent have waged work.12 Chapter 2 - Why Gender Matters In Disasters Gender Matters 2 - Why Chapter

Underlying the gender inequalities is the tradition of dowry (jujuran) or bride wealth. Before marrying, men will pay jujuran of between 70 -100 million rupiah in gold, goods and money.13 Jujuran shapes gender relations. Women are perceived as a commodity— the property of their husband’s family—and are expected to work for the family including taking responsibility of paying off the jujuran debt. While jujuran is slowly dying out in urban areas and among the better educated, it remains a strongly held tradition in rural Nias where the majority of the population lives, significantly contributing to gendered inequalities and livelihood insecurity.

The isolation and poverty of Nias have resulted in high levels of out and circular migration among men and younger women in search of jobs and a better life. Older women with family and childcare responsibilities are left behind, but without the powers to control household income and expenditure, or engage in public fora. High rates of gender-based violence are reported, but exact figures are difficult to quantify.

2.3 Women in Post-Disaster Central Java and Yogyakarta

Gender relations in Central Java and Yogyakarta are understood in terms of domains. Women are highly influential in, and at times control, the private domain of home and household. Men dominate the public domain of work, politics and community decision- making. Economic growth, changes in patterns of employment and urbanization have all contributed to blurring the boundaries between these domains, particularly in the urban areas of Yogyakarta and central Java. Nevertheless, “… women in Javanese society are... (still) known as a man’s koncowingking‘ ,’ or the husband’s ‘friend in the back’.”14 This sense of different domains has influenced the role women play in public decision making. It is expected that they will be represented by their husbands, but that the husband will have been influenced by the women in the household in relation to the

12 Salkeld 2007 13 Families will sell assets including land holding and significantly impoverish themselves in order to meet the bride price, especially poor rural families whose daily income is typically 25,000 Rupiah per day (Salkeld 2007). 14 JRF Annual Report 2009 More Than Mainstreaming: Promoting Gender Equality and

39 Empowering Women through Post-Disaster Reconstruction These social tensions impacted most most impacted social tensions These 16 15 royong” “gotong (self-help and mutual cooperation) isstrong in central The The tradition of Java and played a significant role for both men recovery. However, in womenand some accelerating communities, in livelihood particularly those displaced by there disaster, the was evidence socialthat causing strain, under considerable ” was royong “gotong members. community between and distrust tension views he holds and the decisions he takes. When there is no husband, women are largely largely are is no husband, women there When he holds and the decisions takes. he views areas. especially in rural public fora, within silent or absent Within the household women have a great deal of control over household budgeting Women example). for or livestock, (gold assets own their and maintain and expenditure or the sale of assets. employment from them the income give their husbands to expect as unpaid working household security, in maintaining role an important play Women family labor, or as day laborers on farms. Many rural households, owning little have diversified land, livelihood activitiesinto low profit home-based industries order in catering, to mobile and stalls, food running making, batik as such industries, These survive. the loss of by impacted severely who were women, by dominated are a few, name to migration of out and circular high levels are While there post-disaster. their livelihoods responsibilities, childcare of because move to able less are women areas, rural in men by publicrestricted networks and, for poorer women, lower educational levels. Theresult is high numbers of de-facto women-headed households; in some of the communities affectedby the earthquake andvolcanic eruptions,over 30 percent of the households women. by headed were on the poorest and most disadvantaged—mostly women, who, as a result, experienced difficultiesinformation about, rebuilding lives. their in accessingfor and support External intervention their adjust or dynamics changing the to respond necessarily not did agencies exclusion. social divides and reinforcing inadvertently thus sometimes strategies, Herianto et al. 2007 et Herianto 2008 Malau and Pennells

15 16 Chapter 3

GENDER ISSUES IN THE RECONSTRUCTION RESPONSES More Than Mainstreaming: Promoting Gender Equality and

41 Empowering Women through Post-Disaster Reconstruction

3

Women Women 2 Despite the trauma, Despite the trauma, 1 the farms.” the farms.” Women’s Participatory Interest Group Discussion (PIGD) Nias Island Discussion (PIGD) Nias Group Interest Participatory Women’s “We “We were all frightened and traumatized, both men and women. We worked together to it took work. We doing the the men protect just It wasn’t the children. our family, and in looked turns after to keep our went houses looking for safe, food. In and fact it both was us men women active who and were in most women finding food. The men were too frightened to go to mobilize their own formal and informal social networks and kinship groups to meet meet to groups and kinship social networks and informal formal own their mobilize needs, shelter organize and care for affected members oftheir extended families. In the immediate aftermath of disasters in Aceh,Nias, andwomen Java, survivorswere essential partners with men in theircommunities, taking responsibilityfor the sick and injured, supporting children,foraging food,for finding naturally nurturers and as caregivers social roles designated Their water together. household and the keeping systems. support the life maintain and to life secure to risk management, to extended The emergency response post-tsunami did not consult women effectively and a as result, the subsequent design and implementation ofreconstruction efforts many in cases did not adequately address women’s needs. Damage and loss assessments Women Women are frequently portrayed as passive victims of disaster. Evidence indicates otherwise: for women theiractively communities’ fight survival. (DALA) (DALA) were mostly conducted by male-dominated teams relying on information women women are able to maintain their normal responsibilities, more so than men, trauma. post-disaster to response or manic in violent are who cases in some Chew and Ramdas 2005 Chew (DLNA) Assessments Needs Loss and to as Damage, referred also sometimes These are Enarson and Hearn Morrow, 1998; World Bank 2012a 1998; World and Hearn Morrow, Enarson

2 3 1 lurik. Photo: IOM Collection Photo: Home-based industries were greatly affectedby the earthquake that hit in Yogyakarta May 2006. The JRF’s livelihoods recovery programs skills and develop learn new to women opportunity an for provided business opportunities that helped them increase incomes and build their confidence to engagemore actively in communities. their This woman is part of a group of weavers who produce a traditional cloth called 42 from primarily male-headed households.4 There were some improvements after the 2006 earthquake in Yogyakarta and Java, but the DALA processes remained male dominated with limited consultations with women. In both disasters no clear sex and age disaggregated data was collected. This created a critical gap in developing programming responsive to the different needs of men, women, boys and girls, one that was not entirely closed during the reconstruction process. Emergency operations coordinated through the Government of Indonesia in Yogyakarta before and after the Merapi eruptions in 2010 learned from the earlier experiences and collected more comprehensive sex-disaggregated data which was used to better target assistance.5 The Merapi emergency response also benefited from the earlier coordination mechanisms to ensure gender sensitivity in emergency response such as the gender working group, set up by the government during the earthquake in Yogyakarta and Central Java. A well-organized civil society, working in cooperation with government, consulted widely with women and men survivors. As a result women volunteers and police officers were strongly represented in the emergency operations, a contributory Chapter 3 - Gender Issues in the Reconstruction Responses 3 - Gender Issues in the Reconstruction Chapter factor explaining the lower levels of gender-based violence compared to other disaster situations.6

The disasters and subsequent response presented an opportunity for change in the lives of some women: a chance to access benefits in their own right, earn money and demand support for themselves and their families. However, the sudden influx of support, which was not always distributed equitably between households and between women, fuelled existing social tensions and created jealousy between those women who gained project-based benefits (cash, equipment and training) and those who did not. The lack of social and gender analysis by external agencies prior to extending support often led to the poorest and least connected women being excluded from the more lucrative benefits of reconstruction.7

3.1 Promoting Gender Equality in the Reconstruction Responses

There were strong commitments to promote gender equality and integrate gender concerns into the rehabilitation and reconstruction process for Aceh and Nias. The Government of Indonesia’s Master Plan for Rehabilitation and Reconstruction made gender a cross-cutting issue with a focus on improving the economic opportunities for women and the special needs of women headed households. But, driven by the “tyranny of the urgent,”8 and under enormous pressure to respond quickly with huge

4 Government of Indonesia 2011 5 Malau and Pennells 2008 6 Government of Indonesia 2011 7 Salkeld 2007 8 Delaney and Shaffer 2000 More Than Mainstreaming: Promoting Gender Equality and

43 Empowering Women through Post-Disaster Reconstruction However, the gender strategy was was only partially put the gender strategy However, 10 and in Indonesia are the two areas of gender equality where 9 women’s empowerment – ensuring women’s active participation– empowerment reconstruction ensuring in women’s women’s and efforts, women’s economic empowerment – promoting resources. economic of women’sequal distribution opportunities and an emphasis on access economic to amounts amounts of resources, toattention gender equality objectiveswere not prioritized in commitments, other after came objectives equality gender result, a As reconstruction. the infrastructure. such as rebuilding a in Aceh, played organizations advocacy especially women’s and Donors civil society, efforts reconstruction of forefront the to back issues gender bringing in role significant once the phase emergency was over in Aceh and Nias. In April 2006, concerns about limited progress led the BRR to establish gender multi-stakeholder working group to “Promoting BRR’s Gender strategy. a gender develop Equality the in Rehabilitation and Reconstruction 2006. launched in September was document strategy Process” It confirmedcommitments to gender equality and outlineda gender mainstreaming strategy in the formulation of policies, planning and implementation sectors, all and infrastructure. in development including economic The BRR Gender Policy was a significant milestonefor the mainstreaming of gender Better”. Back “Build of goal GoI’s the into concerns women’s and perspectives equality It aimed at improving equality afterreconstruction by gender transforming roles and relations. Key components of the strategy with the best opportunitiesfocus on: the were change transformational progress to progress had been slow overall. had been slow progress into Empowermentwasinto action.tasked with divisionWomen’s forcoordinating, BRR’s supporting and supervising technical and senior-level specialist BRR also had a gender strategy. in the formulated implementationthe support of the from UNIFEM. the However, operationalstructure ofpolicies BRR meant that BRR’s strategies and gender competence was largely at the margins of the process,reconstruction limited to specific empowerment issues.women’s The empowerment unitwomen’s hadfew resources and littleinfluence large-scale on interventions, These development. and economic as housing, channeled,such infrastructure, were into which funds MDF These are the two areas that, globally, are the most challenging elements of gender of gender elements challenging the most are globally, that, areas two the These are equality to address • • Schaner 2012 World Bank 2012a World

9 10 44 sectors suffered from a lack of clearly articulated gender equality objectives linked to a budget and gendered outcome indicators. Moreover, there was reluctance within these sectors to focus on activities specifically targeted at women as this was seen as counter to mainstreaming, although specific actions targeted at women can be both complementary to and reinforcing of gender mainstreaming activities.11 These issues reduced the effectiveness of efforts to ensure an operational gender focus in implementation.

The gender commitments made in Aceh and Nias were carried forward to the relief and reconstruction responses after the earthquake and volcanic eruptions in Central Java and Yogyakarta. Gender equality commitments were again made in the master plans for rehabilitation and reconstruction. There was no specific overall gender strategy and local government and line ministries were responsible for implementing the Master Plan, including the gender equality objectives. Based on lessons learned from Aceh, mechanisms to operationalize these commitments were set-up at an Chapter 3 - Gender Issues in the Reconstruction Responses 3 - Gender Issues in the Reconstruction Chapter early phase of the disaster response. Gender working groups, for example, were established much earlier in the recovery phase. In practice, however, the gender working group had limited influence over housing and reconstruction. Coordination mechanisms between the different areas of support proceeded with inconsistent and under-supported gender equality focus, missing opportunities to promote a gender equality framework.

3.2 Gender Mainstreaming in the Reconstruction Responses

Mainstreaming of the gender equality objectives proved challenging in all three reconstruction processes. A number of factors help explain why.

No common understanding of what mainstreaming a gender equality perspective meant in post-disaster reconstruction: Lack of institutional understanding and the need to implement quickly undermined any consistent efforts to mainstream gender equality issues. Only projects with pre-existing gender action plans such as the MDF- supported KDP and UPP projects or those with strong institutional incentives, such as health and education or the JRF-supported GIZ livelihoods recovery project did so. However, it’s unrealistic to expect technical experts such as engineers or managers to implement policies they don’t fully understand; they deserve guidance and technical support. There are two aspects to this. Firstly, it is necessary to identify specific activities within each sector that support progression towards women’s empowerment and gender equality. The BRR’s strategy paper provided a set of actions and an intention

11 World Bank 2012a More Than Mainstreaming: Promoting Gender Equality and

45 Empowering Women through Post-Disaster Reconstruction Photo: Photo: Vicki Peterson

12 All of the MDF’s community voices in driven community planning for reconstruction. Schedules projects were sometimes adjusted to made provisions responsibilities. for household and childcare women’s accommodate including women’s to to take them forward but without the resources and investments requiring one holistic a is technical mainstreaming gender of process the expertiseSecondly, to doso. diagnostics, for mechanisms and systems the and resources programming capacities, in supervision, monitoring and staffing. It also takes time. Lack of time citedwas the as primary reason for not mainstreaming gender in no was design delivery of speed when and disaster initial the early after years implementation, designed projects in even longer an issue. internationalexperience Yet indicates thatgender sensitivity speeds up rather than slows down transition fromrelief to reconstruction andtransition to development. Byrne and Baden 1995; Delaney and Shaffer 2000; World Bank 2012c and d 2012c and World Bank 2000; and Shaffer Delaney 1995; and Baden Byrne

12 46

What is Gender Mainstreaming in Disaster Rehabilitation and Reconstruction?

Mainstreaming gender into disaster recovery and reconstruction is “…the process of taking into account the needs, concerns and capacities of women, men and other gender groups in disaster planning and disaster response”13

Gender mainstreaming requires a cross-cutting approach. Effective gender mainstreaming requires an analysis specific to gender, context and sector intervention; for example, taking into consideration the gender dimensions of livelihood recovery in central Java or the analysis of the differential needs, concerns and capacities of women, men, boys and girls for housing reconstruction. Gender mainstreaming also encompasses policy and operational procedures and requirements, and institutional processes, mechanisms and systems

Chapter 3 - Gender Issues in the Reconstruction Responses 3 - Gender Issues in the Reconstruction Chapter which extend to both staffing arrangements and the monitoring of disaster reconstruction practices.

Limited sex disaggregated data and gender sensitive indicators: Sex and age disaggregated data and gender-sensitive indicators are the basis of effective gender- sensitive monitoring. Neither was explicitly required in the three master plans for rehabilitation and reconstruction. In Aceh, for example, only four of the BRR’s191 key performance indicators asked for sex disaggregated data. These were output level indicators about the number of women reached.14 Little changed in Yogyakarta and Java: headcount statistics remained the way of tracking women’s involvement. Specific indicators tracking women’s empowerment or progress towards gender equality objectives were not in place. Moreover, information gaps around governance, gender equality, participation and governance in all program areas undermined capacities to track progress towards women’s empowerment and limited the effectiveness of the reconstruction response. An evidence base from which to tailor programs to the specific needs and vulnerabilities of men and women needs more than numbers. It needs explicit gender performance and outcome indicators and a requirement for sex/ age disaggregated data in all sector programs. Implicitly, it needs gender competencies supporting all programs.

13 United Nations Economic and Security Council E1997. Line 30. Paragraph 40 14 Pennells 2008, 14 More Than Mainstreaming: Promoting Gender Equality and

47 Empowering Women through Post-Disaster Reconstruction

—particularly in Aceh and Nias local where However, the However, structures, systems and capacities of both the MDF and 15 Gender Gender and strengthening the role of women in reconstruction through promoting guiding policies JRF and MDF of cornerstones the of one was empowerment women’s The Assistance Policy (RAP) Recovery monitoring project approval, of and the review. MDF, approved by its Steering Committee, outlined the actions projects and that in concerns design, gender implementation promote to in order take to were expected monitoring. individuals; strong organizations that can carryreconstruction are empowerment,Women’s for necessary. example, takes time, forward much the lessons structures needs It projects. reconstruction learned of timeframe year 2-5 typical post- the than longer that is disasters future for lesson A made. gains on build and sustain nurture, to place in more be will NGOs local through work to projects short-term require which mechanisms gender equality. in advances in sustaining effective Insufficienthuman resourcesdevoted to gender mainstreaming: A major gap operational across experienced of lack the was reconstruction on working agencies and GOI the women of numbers low the with coupled reconstruction, post-disaster for experts gender in senior positions, particularly infrastructure in and housing. expertise and for A includingproject skills staff, community wasfacilitators, frustration thatcommon practical theywanted to dothe moreto lacked but example, for empowerment, women’s facilitate advocacy, gender towards focused often was available, when expertise, Gender so. do to essential but not sufficient mainstream to gender recovery infrastructure into processes. and livelihood A further ­ constraint of capacities of dilution unintended the Java—was in than weaker much were capacities local civil (andsociety toorganizations someextent what was left of localgovernment) with experienced operationalmost experience to the in led implementingorganizations international gender-sensitive of programs. salaries and conditions The better working strengthen or them replace to organizations local for opportunities few and leaving staff their own institutional gender capacities. The implications for long-termsustainability are profound. Gender equality mechanisms cannot be institutionalizedthrough the the JRF were not optimizedto promotegender equality or actively support projects to meet their gender objectives. The lack of an overarching gender-mainstreaming resources staff and budget dedicated a to linked themselves funds the within strategy certainly limited the ability to pro-actively advancegender equalityconcerns within the project portfolios. Neither program advisor employed within their secretariats. dedicated a Despite gender the availability technical of funds and a commitment high to level gender mainstreaming, the absence of in-house limited gender the ability expertise to operationalize gender a focus across the program. the By design, MDF and JRF relied on their partner and implementing agenciesto provide the MDF. Recovery Assistant Policy. March 2006 March Policy. Assistant Recovery MDF.

15 3.3 Gender and the MDF-JRF 3.3 Gender and the MDF-JRF 48 gender expertise and oversight. This was challenging in practice: these agencies also did not have adequate full-time gender specialists as resources for the projects, and time and resource constraints meant that gender monitoring and oversight was not applied consistently across all the projects in the two portfolios.

There were a number of posible interlinked actions which could have been implemented that would have strengthened considerably the gender dimensions of MDF and JRF’s portfolios. These include:

Explicit gender equality objectives: The majority of the community and livelihood recovery projects did not explicitly identify gender equality objectives in their design. This meant that there was no defined gender objective for the activities Chapter 3 - Gender Issues in the Reconstruction Responses 3 - Gender Issues in the Reconstruction Chapter

A handicraft producer knitting a handbag fromagel leaves in Tuksono village, Yogyakarta. Photo: Home-based industries run by and employing women were supported through livelihood IOM projects financed by the JRF. Collection More Than Mainstreaming: Promoting Gender Equality and

49 Empowering Women through Post-Disaster Reconstruction implemented, implemented, even when there were stated actions such aswomen only meetings, targets for participationwomen’s or gendertrainings and capacitybuilding. The lack of gender equality objectives meant thatboth financialand staffing resourceswere limited or timeconstrained because gender equality activities were subsumed under broader objectives. It alsoresulted inweakly and defined indicators gender-sensitive processes. monitoring gender and social A indicators: baselines and gender by informed Framework Results the changing role and with it progress gender measure to means the provides baseline context to tailored be to frameworks results the allows It reconstruction. in women of and realisticgender-sensitive outcomes and indicators in accordance from with data the projects. on solely relying baselines, gendered own their established fund Neither exceptions with few However, projects. and funded loss assessments and damage the project component) livelihoods its for TRWMP and recovery Livelihoods GIZ UPP, (KDP, gender- or disaggregated socially of way the in little had existed, they when baselines, and not alsowere necessarily specific inconsistent data. Social andgender indicators aligned with the which Results Frameworks were also inadequate in gender sensitive indicators. Where they did exist they were often output-andtarget-orientated (e.g. number of trainings, number of women participating in meetings, etc.). required A mix of output and providing outcome gender indicators on,information forexample, gender equality, participation, andwomen’s empowerment wouldhave been much gender-focused positive of reporting under to led indicators such of lack The stronger. flows information strengthening towards approaches innovative example, For results. participation women’s of quality and level the enhanced that areas project in women to under the Capacity Building for Local Resource-based Rural Roads (CBLR3) were not adequately some reported and captured in project results Conversely, frameworks. Less and voice agency. in changes analyzing women’s for data had no projects formal than 50 percent of the Aceh Economic Development Financing Facility (EDFF)’s sub- projects had a gender baseline or gender-sensitive indicators. Theywere unable to provide gender sensitive data thatwould have allowed EDFFto assess theextent to activities. project by progressed had been empowerment which women’s Practical operational gender technical weakness of the was technical the reviews gender generic, of review abstract project reviews of projects: proposals. An Donors oftentook the lead, through the MDFTechnical Review and acknowledged JRF’s Groups (TRG), in ensuring a gender focus was incorporated into project proposals at had impactWhile a positive donor in supporting attention stage. and approval review improved attention to gender inproject designs, this is not themost effective way of operationalizing commitmenta gender to focus should not be and cannot They role. a limited only play can necessity by donors like projects. in Externalagencies available for routinetechnical guidance ongender issues. Thiswas therole of internal and few compliance enforce the but with no mechanism to partner agencies, resources devoted to gender within the addressing gender secretariats, were oftenoverlooked the or not fully operational incorporated into the aspects design, of of projects. and processes systems 50 Gender focus in operational manuals: Operational manuals are the key organizational document in government departments and international agencies for ensuring gender and social inclusion issues are addressed. Clear guidelines and steps about what to do and how to do it in relation to any social and gender objectives in the project design need to be laid out in the operational guidelines. If this does not happen, capacities and resources to meet those objectives are severely undermined. The lack of such information in operational manuals is a major reason why lessons learned about what works in strengthening the role of women in reconstruction are not institutionalized and embedded in agency practice. Neither the MDF nor the JRF embedded gender issues in their own operational manuals. Nor were there mechanisms to enable secretariat staff to review and monitor project operation manuals. KDP, UPP, KRRP, Rekompak, and the GIZ livelihoods recovery project all integrated gender issues in their operational manuals. The other projects either omitted gendered guidelines or addressed them partially, for example, in community mobilization processes or staffing.

Chapter 3 - Gender Issues in the Reconstruction Responses 3 - Gender Issues in the Reconstruction Chapter Accountability mechanisms: There are three key administrative tools for empowering policy prescription and making attention to gender issues mandatory in disaster reconstruction: Memoranda of Understanding (MoU), procurement, and contracting. Gender equality objectives were not mainstreamed into any of these instruments for the MDF and JRF, resulting in weak institutional capacities to hold implementing agencies and projects to program policy, or project objectives relating to gender. In the absence of such formal accountability mechanisms, however, joint monitoring missions with donors and partner agencies were a valued way of informally influencing attention to gender and social issues. Gaps in gender mainstreaming in the first phase of ILO’s CBLR3 project were addressed in this way, leading to changes in project strategy, and a considerable increase in women’s involvement in the project’s subsequent phase. However, the process was highly dependent on the interests and capacities of donors and managers. Gender mainstreaming was often a low priority for the government agencies implementing these projects in a difficult reconstruction setting in which they faced significant implementation challenges beyond mainstreaming gender.

The role of the funds: Based on the institutional structure of MDF and JRF, ensuring that gender equality was promoted and gender issues were mainstreamed was not the responsibility of the Steering Committee or secretariat. Partner agencies and the Government of Indonesia (which was represented by BRR in the case of Aceh and Nias) had more direct responsibility for ensuring that projects addressed gender and the role of women. The role of the funds and specifically their respective secretariats was one of oversight and supervision. However, this may have been a missed opportunity to provide a strategic overview for gender issues and a coordinating role between their different projects. More Than Mainstreaming: Promoting Gender Equality and

51 Empowering Women through Post-Disaster Reconstruction Despite Despite the constraints in mainstreaming gender in the significant reconstructionadvances processes, were achieved in enhancing and JRF the programs. Policies changed—the roleGoI’s championing of of women’s legal rights women the MDF in through the joint titling initiatives is oneexample. Programs changed—for example the acceptance of women’s employment building. in Attitudes non-traditional towards women’sareas roles such reconstruction in inside growing awareness and outside right to of participate of government women’s also changedroad as with a as leaders and shapers of reconstruction. These developments are explored sections. the in following capacities systems, need will programs reconstruction future that is learned lesson key A and staff focused on gender requiresstaff oversight pro-active a in placeeffective with issues competencethe to generate to support women’s More empowerment. and support explicit gender quality result statements, indicators, clear gender-focused operational guidelines performance andstrong accountability mechanisms. Putting these resources and mechanisms in place from program will provide the the institutional support to allow women to play outset rolegreater a in of every reconstruction situations. recovery post-disaster future Chapter 4

WOMEN’S VOICE: THE ROLE OF WOMEN IN DECISION MAKING, COMMUNITY PLANNING AND PRIORITIZATION OF NEED More Than Mainstreaming: Promoting Gender Equality and

53 Empowering Women through Post-Disaster Reconstruction 1 2 All of these responsibilitiesgave women, especially the poorestwomen 3 and those heading households, little timeattend to community meetings or participate reconstruction. in actively stumbling major become participation, women’s to barriers always security, and Mobility accidents of fears increase blockages pathway and Road information. accessing to blocks or and itattack make difficult move around to get or communityto Poormeetings. and distance spatial and social their of because disadvantaged especially are women isolated leaders. village from There is no easy way to improve information flows to women. Projects depend on village village on depend Projects women. to flows information improve to way easy no is There leaders and community facilitators to spread information. Inpost-disaster situations where communitieshave been displaced and social cohesion trauma, fractured reaching women is doubly difficult. Workby loss and and care responsibilities increased fordramatically women survivors in all threeregions. Theywere the primary support for sick and frightened children, the injured and elderly and for keeping the household functioning. This section explores the strategies and processes used by MDF and JRF projects in their in projects JRF and MDF by used processes and strategies the explores section This effortsto address the challenge of ensuringwomen’s participation and strengthen to the role of women in community planning and the prioritization of needs. It looks at what and worked what was less successful in supportingwomen to access information about reconstruction opportunities strengtheningand women’s participation. Inspite of and structural challenges operational and limitations, the MDF voice, agency and, in these areas. experiences had positive and large by and JRF projects Ensuring Ensuring that women have an activeand meaningful voice incommunity planning and the prioritization of needs recognized a is challenge post in The reconstruction. disaster urgency of disaster response sometimes overrides policies women that are exist empowered to participate ensure to actively in planning and implementation. This is particularly truefor infrastructure, where thepush for speedy delivery of essential and delivery. equality in planning undermines gender infrastructure Asian Pacific Forum on Women, Law and Development 2005; Malau and Pennells 2008 2005; Malau and and Development Law Women, Forum on Asian Pacific See for example: ILO 2000; Pan American Health Organization N.D. ; World Bank 2012c World Bank ; N.D. Organization Health American 2000; Pan ILO example: for See For a detailed review of the MDF’s experiences in implementingreconstruction post-disaster of largeinfrastructure see Multi Donor Fund 2012a

3 1 2 4.1 Women’s Access to Information Access to 4.1 Women’s Photo: GTZ collection GTZ Photo: Women like Ibu Dalimini became more empowered and confident Ibu and Dalimini confident empowered became more like Women the through household their incomes to contribute as they batik. eco-friendly of and marketing production 54

Achievements

Projects which tapped into strong local networks, particularly those linking women, were most effective in supporting women’s access to information that couldhelp them rebuild their lives. Social capital plays a part in open information flows—the stronger the levels of mutual trust, the greater the circulation of information. In Java, as the text box below describes, community facilitators linked into the villages’ own innovative information system to bring women information about project activities. On Nias, recognizing that the women were not learning about work opportunities open to them through community meetings, RACBP spread the word through the Sunday church services, which are heavily attended by women. Notices were read out in church and facilitators waited outside churches to talk to women about project opportunities. Community Planning and Prioritization of Need Community Planning and Prioritization KRRP facilitators, in one large peri-urban neighborhood in Nias, went to choir practices, attended predominately by women, to ensure that women received information about housing reconstruction.

Chapter 4 - Women’s Voice: The Role of Women in Decision Making, in Decision Making, of Women The Role Voice: 4 - Women’s Chapter “Barefoot Texting” - Getting Project News to Women

In one Central Java village, JRF project teams found an extraordinary yet practical way to get information to women who were often hard to reach: through mobile ice cream sellers. The dynamic community leadership helped turn these vendors, present in every village, into a vital community asset offering a “barefoot texting” service. Village leaders and project facilitators called the ice cream sellers together when there was community news or important project information to disseminate. Once briefed, the vendors called out the messages as they walked through the village selling ice cream. In this way, women and children who wouldn’t normally attend village meetings or check information boards were able to access important information about reconstruction projects for their communities and their families.

Challenges

Getting access to information was a major barrier to women’s participation in MDF and JRF projects. Throughout the reconstruction process, community meetings and notice boards remained the main mechanisms for information exchange and triggering women’s participation in reconstruction efforts. But in communities where levelsof trust were low, and in those with higher levels of rivalries and factionalism, women’s ability to access information was highly dependent on their access to village leaders. A community score card on access to information on MDF project activities in Aceh and Nias revealed that over 70 percent of the women surveyed, most of whom were poor or living in isolation, felt dissatisfied about their access to information about reconstruction projects. They rarely attended community-wide meetings and it was the more powerful members of their communities who controlled information flows. In Central Java,a group of landless women commented: More Than Mainstreaming: Promoting Gender Equality and

55 Empowering Women through Post-Disaster Reconstruction Photo: Photo: Mosista Pambudi “We “We live in the north of the village; it’s too far from Pak Lurah’s house (head of the village); we don’t have time to us women what is tell to board and nobody comes notice at the go and look happening.” Java Central PIGD, Women’s PIGD Nias Women’s “We “We don’t get much a information. makes us. The distance our husbands told unless happening, We didn’t know what difference. The was further away from the village head the harder it at were Meetings support. get to about projects know to get to is to dangerous too far, too was it them; to get couldn’t we and night our families.” leave we couldn’t go out and anyway The MDF’s The Aceh MDF’s Economic Development Financing Facility (EDFF) helped farmers like this their incomes. and increase production cocoa improve woman In Nias, the remoteness of communities and the poor infrastructure made accessing women especially difficult: for information 56

Projects missed opportunities to capitalize on locally generated innovations by mainstreaming into project systems. No project, for example, had gender-specific communication strategies, addressing the different information needs of men and women. Even those that used women-only meetings to organize project activities relied on community-wide meetings and the largely male village and hamlet leadership to circulate project-wide information or trigger initial involvement in reconstruction efforts.

4.2. Women’s Voice, Agency and Participation

Defining Agency and Voice Community Planning and Prioritization of Need Community Planning and Prioritization Voice and agency are closely-linked terms. They refer to the ability to speak out, be heard and take action.

“Agency is about one’s ability to make choices and to transform them into desired outcomes. Across all countries and cultures there are differences between men Chapter 4 - Women’s Voice: The Role of Women in Decision Making, in Decision Making, of Women The Role Voice: 4 - Women’s Chapter and women’s abilities to make these choices, usually to women’s disadvantage”.4

Voice is shorthand for a process of dialogue, communication and negotiation. Those who have voice can negotiate for their own benefit, and in some cases, the benefit of those they represent. People who have no voice (many women, for example) have no power. Gender inequalities affect women’s ability to express their opinions and concerns or participate in decision-making which affects their lives.5

Agency and voice are instrumental in empowering women and progressing gender equality. Women’s agency influences their abilities to build up their social networks, enhance their human capital and take up economic opportunities. Their ability to raise their voice together to make choices and decisions, for example in determining priorities for community reconstruction, has the potential to transform gender relations andby extension, society.6 Women’s involvement in traditionally male fields such as construction, starting small businesses and contributing to discussions on reconstruction or community settlement planning are all areas that can potentially increase women’s agency, their decision-making skills and legitimacy to speak out and be heard in public fora.

4 World Bank 2012a, 32 5 Brocklesby et al. 2010 6 World Bank 2012a More Than Mainstreaming: Promoting Gender Equality and

57 Empowering Women through Post-Disaster Reconstruction Women’s Women’s Photo: Photo: IOM Collection When projects used active facilitation strategies to

The JRF and MDF livelihood Thiswoman,Java, a ofgroup member disasters. inaftermath of producers’ Central a batik programs helped transform women’s assistance. with JRF’s livelihoods businesswoman to being a pieceworker from went in the Achievements Higher levels of women’s participation benefitted the community. whole active participation led to higherlevels satisfactionof with the quality and designboth of community infrastructure and private housing. Rekompak projects in all regions for example, recorded three higher ratessatisfaction than other housingprojects. In 97 Java, percent of all community participants surveyed in an wereevaluation satisfied housing and infrastructure. with rehabilitated Strengthening Strengthening women’s voice in reconstructionactive facilitation. Settingprocesses head count targets and requires encouraging women to focused be present and and to speak is necessary for increased involvement of women, but not alone on women’s The impact of such targets leadership. sufficient exercise to them empower to planning and decision meaningfullymaking is in modest, community engage ability to leaving women, especially poor and disadvantaged women, consistently with dissatisfied their limited opportunities. enrich the quality participation, notof onlywomen’s did theoverall number of women involved increase, their role in project decision-making and implementationwas also strengthened. 58

Women’s participation led to changes in priorities, design and delivery of projects. In Rekompak, women’s involvement led to changes in housing design, such as kitchen areas and sanitation; in KDP/KRR/UPP women’s participation led to a broadening of priorities from roads and ditches to water supply, sanitation and health clinics. IOM’s livelihood recovery project, after listening to the priorities and needs of women, changed meeting times and delivery of trainings across their implementation. In fact, IOM transferred responsibility for catering during training to local women, adding to income opportunities in the area.

“It’s different now, better. Women talk more in meetings. It’s good to have their ideas; their thinking is different and it helps us make better decisions.” Community Planning and Prioritization of Need Community Planning and Prioritization

Men’s group, Nias Island

Active involvement of women increased local institutional representativeness and social cohesion. In Java, for example, a post-project survey of IOM’s livelihood recovery Chapter 4 - Women’s Voice: The Role of Women in Decision Making, in Decision Making, of Women The Role Voice: 4 - Women’s Chapter project showed positive impacts on the levels of women’s involvement in village and public affairs with substantial decision-making powers of women to have increased from nine percent to 21 percent according to IOM’s 2012 post-implementation impact survey. Men recognized the benefits of women having a more active voice in public affairs.

Participation in community recovery strengthened women participants’ social solidarity and networks. Involvement in building their houses, constructing roads or community infrastructure, helped women regenerate and expand their social networks which had been fractured or destroyed by disaster and conflict. This was particularly true in Nias and Aceh where extreme gender disparities had constrained women’s mobility and circles of friendship and support. Thirty years of conflict in Aceh had compounded women’s isolation and restricted their involvement in most forms of public life. Building new friendships through projects built social capital and was a valued part of the healing process.

“We have friends now; the project brought us together with women from other villages. It has increased our confidence and solidarity. Before (during the conflict), we never left our village; it was too dangerous. Now, we can move about, it’s easier, knowing we have friends from outside.”

Women’s PIGD group Aceh

“We have built friendships and relationships with women we didn’t know before and they will last, making us stronger.”

Women’s PIGD Group Central Java More Than Mainstreaming: Promoting Gender Equality and

59 Empowering Women through Post-Disaster Reconstruction Central Java women’s PIGD Java women’s Central “I learned to be strong in the women-only meetings, to give my give my to meetings, in the women-only be strong to “I learned meetings in community together met we when opinions. It helped (with men). The other women supported me and I felt brave me seriously.” took they listened; speak out. Everybody to The level of women’s participation reconstruction housing Rekompak to in increased forward significantlytaken lesson a established, inwere Aceh once meeting women-only under the MDF and JRF did Rekompak) UPP, KRRP, Only the in (KDP, CDD Java. projects this. The other projects relied on special training sessions for women or meetings. maintained and women’s men joint Strategies that Worked that Strategies The projects’ insistence on participation women’s including of levels women higher to led in participation leadership women’s of committeeslevels for andtargets setting gender greater all towards The was projects. across projects trend comparable in than equality in decision-making with approximately 25 leaders percent being of women. There village were differences management between projects and within between projects differentcommunities relating to thedifferent contexts and social dynamics of communities. In Aceh (in Overall program. and cash-for-work TRWMP’s in districts different Niasbetween participation example, for there were disparities in women’s 13 districts) women comprised 19 percent of the 700 South workers—the daily and average, but percent) (42 Besar Aceh percent), (48 Barat Aceh in visible highly were women Nias (42 percent). in Aceh However, and Nias, by 2007, more than 1.1 million women 65 (over of percent planningthe had activitiestotal) inparticipated community-level of project KDP The report. progress 2007 MDF the to according projects post-tsunami MDF recorded average participation levels of percent 46 womenfor recovery both livelihood In Java, targets. in government percent 30 higher than the significantly Aceh, 44 About women. of representation percent 30 of targets initial their exceeded projects assistance technical receiving beneficiaries IOM the of percent 42 and GIZ the of percent and women close of were under 57 to the projects the percent JRF livelihoods recovery women of percentage the than higher significantly women, were borrowers micro-credit projects. generating income in government involved women’s situations post-disaster In agency. and confidence built meetings Women-only agency is severely constrained and opportunitiesto facilitate women’s empowerment compromised by weakened organizational capacities or limited resources. circumstances, women-only meetings are In these an important mechanismfor strengthening women’s agency. a provided and participation The women’s of levels higher example, for had, implementation projects which institutionalized public mixed in women-only actively engage to confidence and skills the develop to women for space meetings in fora. 60

The cultural and social barriers for women to speak out in all three regions made it especially difficult for poorer women to exercise their voice in these settings. The two local-resource based roads projects—CBLR3 and RACBP—did not organize separate meetings for women, and women reported they didn’t participate fully in the project meetings. As a result women often felt unable to ask directly for information, seek support or make complaints through project structure.

“ We would have liked separate meetings for women, so we can be free to talk, to give our opinions; when we are in general meetings with men, we can hardly speak, even though we do get some time specially for us to speak during meetings, we are not brave enough to speak out.” Community Planning and Prioritization of Need Community Planning and Prioritization Nias women’s PIGD

Projects that adjusted the time taken to mobilize and engage women were more effective in supporting women’s active participation. Creating a secure and enabling environment for women to engage as active participants in community decision-making Chapter 4 - Women’s Voice: The Role of Women in Decision Making, in Decision Making, of Women The Role Voice: 4 - Women’s Chapter after a disaster takes time. Time enables socialization processes to be more flexible, to include house-to house visits and working within remote neighborhoods or the places women congregate. In Aceh and Nias, projects initially underestimated the amount of time needed to mobilize and build the confidence of women, who rarely attended community meetings. The extra time burdens of women and other context-specific constraints were not necessarily factored into mobilization processes. Changes could be made. TRWMP, for example, adjusted its mobilization period by months in its first phase of implementation in order to reach women and men, which increased overall participation rates.

The application of this lesson was uneven across projects. Project systems and ambitious targets for delivery make it difficult to change procedures. In Java, the IOM livelihood recovery project, for example, recognized that the time allocated for assessment selection and socialization of women was insufficient to support active participation. While unable to change procedures under JRF funding, it has established a longer period for socialization in its follow-up projects. In CDD projects, such as KDP or Rekompak, operational guidelines set out the days available for mobilization and engagement. These can only be changed formally and at national level. When community cohesion is strong and the village leadership committed to women’s involvement, the time allocated is enough. In more challenging communities, the lack of time led to a focus on meeting the 30 percent head count target at the expense of facilitating women’s voice and agency.

“We had to get the houses built in a certain period of time. Sometimes it was just too difficult to get women actively involved. We just didn’t have the time to reach them and bring them to meetings. As long as we got the [women’s] signatures on the list and met the 30 percent target it was OK.”

Rekompak staff member More Than Mainstreaming: Promoting Gender Equality and

61 Empowering Women through Post-Disaster Reconstruction 7 Strengthening Support for Poor and Highly Vulnerable Widows and Highly Vulnerable Poor Support for Strengthening In Aceh, the Program for Women Headed Households in Indonesia—PEKKA— offered KDP acomplementary approachto large scale infrastructure programs their exercise begin to to women highly vulnerable for a route and providing by Funded directly planning in public, processes. including in community voice KDP. the into linked and implemented was it Fund, Development Social Japan the With over 1,200 in members Aceh, the aimed project not only to micro- provide but also training child education, for small businesses and scholarships for credit in vocational and leadership skills. The aimwas to empower highly vulnerable women in Aceh. These women were already often own marginalized within communities their and, post-tsunami, were becoming more marginalized with the implementation of Shariah law. PEKKA had a From clearsocially. also but support, livelihood focusthrough economically just not women, on empowering the PEKKA start, had the aim of ensuring that a was“rights” perspective equally goals. other development alongside the project’s valued There There are trade-offs between operating atscale in reconstructionand ensuring the participation of poor marginalized and women. Large scale infrastructure projects, like Rekompak, KDP, UPP, and KRRP with ambitiousdid not have infrastructure the flexibility,time delivery and extra resources targets, to reach andinvolve poorer and isolated women meaningfully in decision-making processes. In Aceh, for example, the normal planning cycle (in non-disaster areas) for KDP was shortened to enable faster delivery of much-needed assistance. This compromised facilitation processes and led women. of Big theinfrastructure poorest involvement andlevels participation lower to projects do have possibilities to coordinate interventions with smallerwith the remit and organizations capacitiesto work therewere with women. marginalized However, few examples of this kind. KDP was an exception. It used off-budget non-MDF funds to support a complementary Program—PEKKA—which worked exclusively with poor, vulnerable and marginalized widows (see box bellow). This enabled both community projects into women of poorer number a greater and bring their strengths to to work Rekompak as such projects infrastructure scale large other However, processes. planning could not take advantage of this linkage. Their village selection criteria,requiring that they were the sole large scale housing project, while aimed forced PEKKA at to exit villages where avoiding the bigger housing duplication, projects worked. While overall and vulnerable most the that was consequence unintended the built, were houses more unnecessarily excluded. were marginalized The lesson for future project improves It reconstruction investment. smart a is processes women to delivery in gaps address to linkages thatis formalized partnerships and in the overall of women the role strengthening and opens up space for outcomes process. reconstruction Stakeholder Interview Stakeholder and “Indonesia Women Headed Household Program (PEKKA)” available at: http://www.worldbank.org/ http://go.worldbank.org/Q4FBFYK2407 at: available and “Thepekka of TampoekBlang” Widows

7 62

Strategies that Fell Short

There are limited strategies for increasing the voice and agency of poor and disadvantaged women. The general experience of poor and disadvantaged women throughout the reconstruction process was as project beneficiaries and not as active participants in community planning.8 Leadership positions were largely held by women of higher social status, or who were relatives of the male village leadership. Effective targeting for promoting active inclusion of poor and marginalized women requires careful analysis of the social differences between women: the context-specific barriers faced by poor, marginal and highly vulnerable women (e.g. status, ethnicity and family circumstances); and implementation strategies linked into robust monitoring systems as well as ongoing training and support for staff. Only KDP and UPP conducted the kind of Community Planning and Prioritization of Need Community Planning and Prioritization analyses needed to address social exclusion. The majority of projects in the MDF and JRF portfolio had gender training for staff and/or contractors. However, training and support systems did not address for example power imbalances within communities or specific Chapter 4 - Women’s Voice: The Role of Women in Decision Making, in Decision Making, of Women The Role Voice: 4 - Women’s Chapter A Tale of Two Villages

In one village in Central Java, Rekompak’s support was hugely beneficial for women participants following the earthquake of 2006. The women reported their satisfaction with the project: “With the housing assistance we feel happy, safe and comfortable... our village is better; we have an evacuation walls, retaining roads and we know what to do if there is ever another earthquake.” Women were actively involved in the design, implementation and monitoring of the reconstruction processes. In a meeting with some women from the Rekompak group, their pride and confidence in their new knowledge and skills was obvious.

Separate meetings, strong support from Rekompak facilitators to help women get their views across and engage activity in reconstruction, and the village community settlement planning process were critical to women’s empowerment. Underpinning the whole process was a strong, dynamic village leadership. The village head, and unusually a female hamlet head, were determined that everybody—women and men—should be involved in building their village back better. For them, it made no sense to treat men and women differently: their village was an area of high out- migration with many homes run by the women left behind. To leave women out of the planning and decision making for reconstruction would have unnecessarily excluded households and eroded the strong spirit of “Gotong Royong” (cooperation and mutual support) holding the community together.

It was a different story in another village in Java. Devastated by the eruption of Mount Merapi in 2010, the community was forced to abandon their homes and start again in a different location some distance from their home village.

8 Aceh Community Research Project 2005; Care et. al. 2007; OPM 2009 More Than Mainstreaming: Promoting Gender Equality and

63 Empowering Women through Post-Disaster Reconstruction

10 9 Accountability Accountability is not gender neutral. Women and

Slowly, Slowly, they began building back their lives; reconstruction processwas but limited. They women’s were largely satisfied participation with the support in the building they got for their houses, but knew little about the of processes planning, implementing and monitoring. “Itwas mainlythe menwho did the building, not with our husbands and wanted we about what talked helped a bit.... We us. We for meeting separate a had never We meetings. community at us represented they they did not feel women The about it.” heard never we was, or if there women, the for ill-prepared were they that worried and reconstruction in role active an had future. “We would have liked to be involved in would community It training.... settlement drill planning, evacuation any have didn’t we no, and any wasn’t there but and our ourselves our families, help protect can do we to what know help; if we panic.” we will just to do what know we don’t If communities. of The the remoteness village, reconstruction, coupled with fora short time frame undermined the amount of couldfacilitators time giveRekompak’s to community facilitation or supporting women’sinvolvement. Equally, had little in interest activelyinvolving women. the The for 30 women’s target percent leadership village included was woman a that requirement the and meetings project in representation in the leadership team were viewed as conditions that hadto be met in orderto get external support. As they admitted: “They [women) don’ttalk much [at the meetings] and it’smore important theyattend community meetings when there child health.” them like to issues important are Cultural norms and expectations of women’s role in communities also prevented women prevented also communities in role women’s of expectations and norms Cultural their concerns. vocalizing from techniques techniques for addressing equity between women and reaching marginalized women. There is also no way of knowing precisely how far most projects were and include able poor to and marginalized reach women as project monitoring systems, even when indicators were sex disaggregated, as project monitoring did systems’ not track wealth women. of groups different between or social differences Gender sensitive accountability: men use different strategies and mechanisms raise to concerns account. or Hotlines, hold projects texting to complaints and complaint boxes—the of standard formal methods complaint—are more problematic for women. Partly this access to isWomeninformation more because much limited.is more than menwere uncertain of their their rights to hold projects to account, make complaints, or seek redress. A review of accountability mechanisms in the MDF reported that most women, particularly poorer or hotlines existed. boxes complaint that unaware were women, and disadvantaged OPM 2009 PIGDs with women and men and field notes and men PIGDs with women

9 10 64

Community Planning and Prioritization of Need Community Planning and Prioritization Chapter 4 - Women’s Voice: The Role of Women in Decision Making, in Decision Making, of Women The Role Voice: 4 - Women’s Chapter

Hermawati, a civil servant in Banda Aceh, supervised the construction of her own Photo: earthquake-resistant house, where she lives today with her husband and children. In Nur Raihan spite of the horror of the disasters, she feels safe in her new home.

Strengthening women’s access to information and building trust through women-only meetings and trainings was far more effective in opening up space for women to raise issues and voice any concerns about project activities.

“We never complained; we were all scared we would get called stubborn or aggressive, so we kept quiet.”

Women’s PIGD Aceh

Strategic responses to social and gender dynamics. Globally, few interventions embed systems and mechanisms designed to optimize women’s voice and agency in post- disaster situations where the barriers to women’s involvement are high and there are few or no positive drivers for women’s participation in reconstruction processes.11 Key contextual drivers for women’s active participation include, for example, strong dynamic village leadership, social and cultural acceptance, good local facilitators, the absence of men because of migration or conflict or the presence of charismatic women leaders in communities. The level and quality of women’s participation is often highly

11 ILO 2006; Delaney and Shaffer; Chew and Ramdas 2005; ALNAP 2006 More Than Mainstreaming: Promoting Gender Equality and

65 Empowering Women through Post-Disaster Reconstruction This is because it helps identify driversfor and barriers In the large infrastructure projects such as the CDD programs or TRWMP TRWMP or programs CDD the as such projects infrastructure large the In Investing inInvesting the as wascapacities recognized one of community facilitators Context specific gender analysis is essential to support projects to develop and tailor and develop to projects support to essential is analysis gender specific Context their facilitation processes. and KDP Only strategies. context-specific develop and participation women’s against, UPP consistently undertook context-specificanalysis and adjusted began theirpost-tsunami, strategies. women with engaging in difficulties early after example, for UPP, and contact closer enable to communities within facilitators community their post to communities. all sections of building with rapport challenging in processes empowerment women’s facilitate to capacities staff in Invest contexts. of the most valuable expenditures for effective the hard to given was of support and mentoring in the form implementation.investment greater Inall projects, skills – engineering, business development forand example – marketing rather than practice towards the In balancefacilitation. tipped the andsoft skills of engagement Both empowerment. of process the from away and outputs of delivery the facilitating are equally important and require appropriate investments. Gender which monitoring, and coaching training supervision, with up followed not were sensitization and processes. enhancing the quality of facilitation made towards undermined the steps of levels in disparities to responses pro-active enable mechanisms budgetary Flexible participation. that through it operated government, became clear staff government that front-line reallocate to mandate the have not do they nationally; set guidelines and rules follow to capacities or build plans implementation in disparities address to staff or resources challenges implementation example, for Aceh In weaknesses. implementation address in Aceh Besar – including engaging women participants –were much higher than in Pidie. participation Levels for inwomen’s Aceh Besar fell well below the 30 percent target. KDP However, could not move more staff into Aceh Besar or alter the time allottedfor mobilization for each community without parliamentary approval.Off- one solution. was the PEKKA program support to budget dependent on these drivers. When the drivers are few, the same project, using the same the using project, same the few, are drivers the When drivers. these on dependent implementation processes, will havevery different outcomes. In these circumstances, involved, be may women illustrates, featured in the box villages of two as the story but as passive beneficiaries dynamics rather gender than and active social decision-makersand the shapers addressing of in project is projects for challenge The interventions. which cause these disparities. A number of lessons emerged from theexperiences of the MDF and JRF: • • • 66

Ensure women’s equal rights to participation in Disaster Risk Reduction (DRR) planning. There were missed opportunities to harness women’s commitment to DRR. The average participation of women was low at 25 percent - lower than the more typical 30 percent target for women’s participation in reconstruction projects. Many women, often the poorest, and women-headed households were left out of the DRR discussions, particularly in Yogyakarta, Central Java and Nias. Setting head count targets of less than 50 percent missed the opportunity to ensure key actors – the women – were fully aware and involved in sustaining community resilience for the future. Leaving women out of Community Spatial Planning (CSP) and DRR planning also undermines women’s rights. The Indonesian Law no. 24/2007 on disaster management explicitly promotes non- discrimination of all citizens in protection and participation in DRR planning and decision- making. Bringing women into DRR on equal terms with men to ensure all citizens’ rights Community Planning and Prioritization of Need Community Planning and Prioritization are fulfilled will require proactive, gender sensitive mechanisms.12

“ We (women) should be equally involved in disaster preparedness. What will happen if we don’t know what to do? There should be separate meetings for the women, and then we will know what to Chapter 4 - Women’s Voice: The Role of Women in Decision Making, in Decision Making, of Women The Role Voice: 4 - Women’s Chapter do. We can protect our families, ourselves and our communities.”

Women’s PIGD Yogyakarta

Strategies for targeting and including women as equal partners were only fully articulated in the MDF’s DRR-Aceh project. DRR-Aceh had a robust gender mainstreaming plan and senior-level commitment to involve women in community-level DRR. Strategies included house-to-house visits, holding meetings with women with their children present, and working through trained women facilitators. Experience showed that even with these measures, involving all women, especially those most vulnerable to the impacts of disaster (poor and marginalized women, the elderly and disabled), was challenging. Greater investment in time and resources, (for example in supporting staff operationalizing gender mainstreaming in DRR planning or gender-sensitive communication strategies) will be necessary if such inclusion is to be improved.

12 The National Action plan for Disaster Risk Reduction 2010-2012 refers to Law No.24/2007. The plan includes gender mainstreaming in one chapter but does not promote gender mainstreaming for the entire plan (GOI,2011) More Than Mainstreaming: Promoting Gender Equality and

67 Empowering Women through Post-Disaster Reconstruction Key Lesson Key agency and voice women’s strengthening that JRF is and MDF from lesson The key in community planning requires focused of involvement increased promotes speak and to be present to women and encouraging active facilitation. reconstruction in leadership and making decision Setting encourage to insufficient is targets, but women processes. Longer time for mobilization, robust support systems in facilitators are participation identifyinginvestments for and all thetoovercoming barriers women’s and in reconstruction. meaningfully engage to be empowered to are needed, if women Chapter 5

WOMEN’S ECONOMIC EMPOWERMENT: INCREASING ACCESS TO RECONSTRUCTION BENEFITS AND JOBS More Than Mainstreaming: Promoting Gender Equality and

69 Empowering Women through Post-Disaster Reconstruction 3 In consequence, 1 In Yogyakarta In and Yogyakarta Central Java, poor women, in over-represented low- 2 Economic Economic Empowerment – access to jobs, income, housing, equipment, materials, skills and knowledge and the impacts of disaster to vulnerability women’s - decreasing Building resilience disaster. future Despite the modest gains for women’s economic security post-disaster, there were some were there post-disaster, security economic women’s for gains modest the Despite within women the the projects successes MDF inacross and empowering JRF portfolios and opportunities.livelihood the explores This section access infrastructure to through range of tangible benefitswomen gained from their involvement in the MDF and JRF community and livelihood recovery projects. There were two distinct areas in which benefited: women Typically, Typically, in disasters men’s access to the benefits in or donor assistance ofgovernment direct receive to less likely are reconstruction Women women’s. greater is than their own right, normally receiving benefits as part of a the household. stereotyping gender Through higher priority than women’s. Men’s is also given recovery livelihood housing,work: building; road infrastructure held are be types to men’s of jobs available development generally benefits more menthan women.Men are mobile, likely moving be more to away from their household and reproductive duties home restrict their abilityto seek work. area to seek job opportunities; women’s profit home-based industries, suffered the double loss of their homes and livelihoods after the earthquake. Poverty levels increased in both Aceh and Nias while nationally one of their lost farms on family working women Rural decreasing. were levels poverty few income earning opportunities, sometimes for years, because of land degradation post-tsunami. Women headed and earning opportunities. or income work access to with least impoverished orphan-headed households were significantly women’s economic empowerment is compromised and they recover more slowly from from slowly more recover and they is compromised empowerment economic women’s impacts of disaster. the economic were gains Livelihood Java. and Nias Aceh, post-disaster for different that not is story The by losses faced economic highest with the insecurityincreased economic and modest already poor and economically insecure women. In Aceh, for example, more than 80 paid by of 2008, employment while men percent less had than recovered of 50 percent of the or other sectors in the agriculture earning income were age of working women economy. cash • • Nowak and Caulfield 2008; Correia 2001; PAHO N.D.; World Bank 2012c. N.D.; PAHO 2001; Correia 2008; and Caulfield Nowak 2008 (32) in Pennells 2008 reported TRIPP 2007 ACARP

1 2 3 Photo: Mosista Pambudi Mosista Photo: Technical assistance Technical provided under the MDF’s Economic Development Financing Facility helped farmers, including this woman in Nagan Raya, yields, and their incomes. Aceh, improve their crop 70 This section also explores the challenges livelihood and community recovery projects faced in building resilience and supporting women’s economic empowerment. Lessons for future reconstruction processes are identified.

5. 1 Women’s Economic Empowerment

Women’s legal rights were strengthened through the provision of joint land titling. After a disaster, women are highly vulnerable to the loss of land and property rights. Existing gender inequalities and male bias in government departments can leadto women losing their claims and being dispossessed of their land and property.4 A well- functioning, gender sensitive approach to land and property rights is recognized as

Chapter 5 - Women’s Economic Empowerment: Empowerment: Economic 5 - Women’s Chapter critical for maintaining social cohesion, protecting the rights of women and facilitating equitable access to housing and other property assets in post-disaster situations.5 The Increasing Access to Reconstruction Benefits and Jobs Benefits Reconstruction Access to Increasing RALAS project, although it faced significant implementation challenges, established women’s rights to land titling, a right hitherto not enjoyed in Aceh. A total of 222,628 land certificates were distributed of which 63,181 were issued in the name of women or jointly in the name of women and men. Land certificates for women accounted for almost 30 percent of the total issued. Efforts to safeguard land rights for women helped strengthen the livelihood security of women-headed households, opening up access to credit and productive assets for them. BPN, the Indonesian Land Agency, also pioneered a community driven approach to the adjudication of land rights, in collaboration with local NGOs, which has set patterns for land adjudication that can be applied in future disasters.

Women’s livelihood recovery was accelerated and income boosted beyond pre- disaster levels. The best practice livelihood recovery projects demonstrated that careful investment in market analysis, business development and expanding women’s business networks with local government and financing agencies can yield good results despite the challenges of working in post-disaster reconstruction environments (see box following). IOM’s support to a women’s batik producers group in central Java, for example, turned the group, which comprised 169 women batik makers, from being low paid piece-workers for large businesses into business women in their own right. Investments in equipment, skills and business development has transformed them into highly skilled batik producers targeting the high-quality batik market and selling nationally and internationally, with an annual turnover of IDR 19 million or about $2,100. Pre-disaster, individual batik producers were content with a monthly income of IDR 50,000-IDR 60,000, five or six dollars. The project has brought substantial increases in income to these women along with their sense of empowerment.

4 World Bank 2011; Fitzpatrick 2008a 5 World Bank 2011a More Than Mainstreaming: Promoting Gender Equality and

71 Empowering Women through Post-Disaster Reconstruction – a press emping press Emping Melinjo Emping 6 has given women choices, allowed them to build a business them to choices, allowed women has given Koperasi The two ILO road projects—CBLR3 and RACBP, as well as the CDD projects The and projects—CBLR3 road two ILO RACBP, “I only got as far as projects that came many were There an education. getting junior high school; now I feel after the tsunami. I This one was different. It am gave us lots of information, lots of meetings for women. We had training and lots support. of And we gained hope for the future. Women are starting to know their rights, to speak out. Life the better”. for has changed Women’s PIGD Central Java PIGD Central Women’s “...we learned how to build a house. Now we know what to do. do. to what we know Now a house. build to how learned “...we We didn’t know before and certainly never … can thought (homemakers) tangga rumah …ibu us like women Imagine, it possible. job.” usually a man’s It’s build a house. to how learn small crisp cracker – for sale around their district. They are PASKA, supported NGO, Acehnese an with by partnership in Association Cooperative Canadian the project Facility Financing Development Economic Aceh the of umbrella the under (EDFF) . Since joining the PESAT project, the cooperative hasreceived an for cracker production, as well training as in small business developmentmarketing, and and onwomen’s rights andgender. Production of the emping has increased eight fold since the start of the project in 2010. The membership has part this in few are women for opportunities Job members. 200 nearly to grown The Aceh. of individual to also given Small loans are their livelihoods. diversify to and start and selling shops stalls, businesses such as small food their own start to women clothes. Incomes have risen from about IDR 300,000 to IDR 500,000, or around just than more far from benefit they acknowledge Women month. per $50 to $30 the business opportunities: Koperasi Wanita Serba Usaha Hareukat Poma Serba Usaha Hareukat Wanita of Koperasi The Women supported cooperative women’s a , Poma Hareukat Serba Usaha Wanita Koperasi Social in Economy (Integrated Aceh) produce through PESAT Income, Income, skills and capacities for women significantly. in non-traditional work increased areas KDP, UPP, KRRP—demonstrated nationally in Indonesia that women can work to the same standards and quality as men in challenging post-disaster situations. They have Brocklesby 2010; and field notes. 2010; Brocklesby

6 72 set a benchmark for the active recruitment of women, particularly poor women and women headed households, into short-term reconstruction projects. In Aceh and Nias in particular, income earning opportunities for women are few and for poor women heads of households, working on road building and maintenance is a significant opportunity to earn money. Women’s main concern was that the work was not permanent. In house building, women’s hands-on involvement through Rekompak (although not consistent in all locations – see chapter 4) was highly valued by women for the new skills and capacities they developed.

Women’s economic security was strengthened. Livelihood recovery programs and reconstruction jobs which committed time and resources to building soft skills such as knowledge networks, marketing, and business skills, went beyond livelihoods recovery. Chapter 5 - Women’s Economic Empowerment: Empowerment: Economic 5 - Women’s Chapter They provided women with the skills and knowledge for greater economic security and in the long-term more resilient livelihoods. Whatever crises or disasters may happen in Increasing Access to Reconstruction Benefits and Jobs Benefits Reconstruction Access to Increasing the future, women in these projects feel they now have the competence, knowledge and skills to cope with and mitigate against losses. For women, capacity building and technical assistance were perceived as their asset building for the future, (for example, TRWMP’s An-Nisa project or the women’s involvement in small business cooperatives in Aceh under EDFF). A woman batik producer, supported through the IOM livelihoods recovery project, observed:

“We were given help through training, new knowledge, equipment, not money. That’s much better. These are assets that stay with us. You give us money, you give us credit and we will spend it on life, then it’s gone and we have nothing left.”

Women’s PIGD Central Java

Women packaging emping crackers. Improved quality control, marketing and promotion Photo: helped the women of Serba Usaha Hareukat Poma Cooperative sell their products across Tarmizy Aceh and Medan. Harva More Than Mainstreaming: Promoting Gender Equality and

73 Empowering Women through Post-Disaster Reconstruction 7 Infrastructure and housing were two two and housing were Infrastructure 9 leaves tissue boxescome in a close second. pandanus leaves. An-Nisa leaves. is much more than simply a business to sell Projects—particularly the EDFF in Aceh and LEDP in could Nias, 8 pandanus The new job opportunitiesfor women in all threeregions were few (e.g. waste The women of An-Nisa’Wal Athfal meet in every day Aceh across locations three The Athfal women of An-Nisa’Wal Barat, one of the areas of Aceh worst affectedby the These disaster. gather women to make handicraftsfrom recyclablecloth, and material such coconut as fiber, The Women of An-Nisa of The Women handicrafts; ithandicrafts; poor bringswomentogether to disadvantaged their improve lives selected was coast west Aceh’s in foundation These families. their of lives the and for support under the MDF’s Tsunami Recovery Waste des Hommes. Management Terre Program partner, TRWMP’s through and implemented (TRWMP) director executive and founder Husin, Dasni said housewife,” the on is focus “Our “No one of Athfal. is An-Nisa’Wal concerned them. for give them We knowledge help themselves.” can so they and training orders Today, are pouring in for the handicrafts. Coconut fiber but popular item, matsmost are their new a opened have women the that handicrafts the for great so was demand The and visibility in the community. showroom with a prominent store Opening up new space for women in the cash economy and non-traditional areas of work. recycling, roads maintenance and brick making). Most women centered livelihood on opportunities their for traditional domestic roles suchhandicrafts, as cake snacks and production. Empowerment Economic Women’s Promoting to Challenges have have supported more activitiesthat openup new non-traditionalspacesareas the in cash workof economy and women. for livelihood of their with less than half of one percent women housing boom provided In Aceh, for example, the post-tsunami opportunities. In Nias, the only sectorwhich saw more than a rise ofjob one growth percent in for women was the service sector. areas areas where potentially jobs for women could have created; been involvement in building community infrastructure projects. on their RACBP’s site supervisors’ training for road construction and maintenance on Nias offers one successfulexample. It was targeted at both young women and men, but women, demonstrating 50 a clear percent interestby of women for the work in applications a non-traditional were meet to area. failed rest the women; were final trainees the of percent 30 than less However, Wright, L. 2012. Pulling the Purse Strings: The Economic Liberation of Women in Aceh Barat. http://wml4aceh.wordpress.com Women in Aceh Barat. of Liberation Strings: The Economic Purse L. 2012. Pulling the Wright, 2008 al. 2007; Alnap 2006; Malau and Pennells et. Care 2008 (32) in Pennells 2008 reported TRIPP

7 8 9 74 the technical requirements for entry because they, through entrenched discrimination, had lower educational attainments than the male applicants. Lengthening the period of training and providing extra inputs to bring women up to the same standard as the men could have helped to improve this situation. Men who had worked on roads with women in Nias commented:

“Yes women can be supervisors, they could do the same as men, they could do it with training and long apprenticeships. Look at ILO (RACBP): it has taken on women as staff after they have worked on the roads and learned what to do. More could be supervisors, they just need to learn.” Chapter 5 - Women’s Economic Empowerment: Empowerment: Economic 5 - Women’s Chapter Men’s PIGD Nias Increasing Access to Reconstruction Benefits and Jobs Benefits Reconstruction Access to Increasing Supporting sustainable businesses and livelihoods for women. The best practices for supporting women’s livelihood recovery were not applied consistently within projects and across all projects. The lacks in systems and processes to enhance women’s voice and agency (gender analysis, support systems for staff, monitoring and evaluation etc.) negatively affected project abilities to systematically support livelihood recovery for women. Additionally, as the following box illustrates, there was too little attention to the viability, sustainability and potential for expansion of businesses for poorer women and women living in areas where livelihood opportunities were already limited pre-disaster, with only constrained access to markets. Too often, time was not invested upfront in market and gendered livelihood analysis,10 or the challenges women face in translating training, capacity and financial support into a sustainable livelihood.

Getting the timeframe right for women’s livelihood recovery. In challenging environments, in normal development processes, two to three years of support—the average length of time for most livelihood recovery projects—is considered too short. In post-disaster environments, when women’s ability to recover economic security is known to be more time consuming than men’s, the short time frame significantly undermines progress towards women’s economic empowerment and ultimately sustainability. Successful interventions either had much longer time frames, for example CCA’s PESAT project which worked for seven years with its constituents and made a clear distinction between recovery and development, or the project was aided by highly context-specific factors, as in the case of IOM’s batik group in Kebon Indah village, Java, which boasted a niche product based close to existing markets. Talented women with the potential to upgrade their skills and a dynamic supportive local leadership willing to invest in women’s livelihood development. Introducing innovative non-traditional opportunities will take even longer. The An-Nisa group started immediately post-tsunami and built up slowly. TRWMP’s successful intervention with women waste pickers began through

10 A general lesson learned from the post-reconstruction processes in Aceh, Nias and Java, has been the need to coordinate baseline livelihoods and economic data collection and market analysis across a sector and through donors. This will be more effective in establishing the context for livelihood recovery efforts. More Than Mainstreaming: Promoting Gender Equality and

75 Empowering Women through Post-Disaster Reconstruction The 12 The institution of joint land titling was an was titling land joint of institution The 11 “Any “Any innovative activity requires at least two or support upfront three before starting on serious business years development, of lives... done all their We have people with something compared underestimated the socialization; we underestimated the time it would take.“ Start early within six months post disaster and develop incrementally; incrementally; and develop disaster post early within six months Start Be based on a gender-focused livelihood analysis, and have defined strategy; exit and objectives gender end and skills and knowledge; confidence, initially on building Focus Expand activities phasesin over sustainable and developing security economic strengthening recovery, between a five sevento year frame, distinguishing time livelihoods. environment was environment highly challenging in Aceh. As a consequence of 30 years of conflict, there was a deep distrust of government programmatically institutions and compounded their was legitimacy especially situation in The ownership. land and tenure to relation analysis initial no and strategy mainstreaming gender no gender-sensitization, limited by from RALAS prevented which Aceh in regimes tenure and land of nature gendered the of post-disaster. land rights women’s strengthening for on the opportunities capitalizing Looking forward, Looking the forward, lessons from Aceh, Nias and suggest Java that livelihood recovery interventionsfor women with the potential toprogress economic empowerment and need to: gains sustain cash-for-work in the immediate recovery phase and continued into livelihoods recovery, recovery, livelihoods into continued and phase recovery immediate the in cash-for-work running women independent into laborers day from pickers waste women transforming observed: member staff One years. seven of timeframe a businesses, recycling own their Protecting women’s land and property rights: rights: property and land women’s Protecting land to gender equitable rights as central women’s establishing towards step important issued were titles land of percent 30 to close Aceh, in Overall processes. reconstruction solely or jointly to women, although the number was much lower in some areas. • • • • Interview given to the social sustainability review team of the MDF (OPM 2008). team review the social sustainability to given Interview 2008a). (Fitzpatrick percent 10 below well fell figure the Aceh, of parts some in percent, 30 to close was figure overall the While

11 12 76

Sustaining Livelihoods Benefits

In 2010, women in Jemowo Village, a remote village some 20 kilometers from the nearest town in Central Java, decided to start up a snack producers business producing cassava chips for sale with support from a JRF livelihood recovery project. Cassava chips are a much in-demand snack throughout Java, for daily consumption and for weddings and other social occasions. Four separate groups were established involving women from all income groups and hamlets in the village. The project provided IDR 1.5 million or $150 to buy equipment and IDR 500,000 or about $50 as capital start-up costs, divided equally between women, to buy supplies. The groups received

Chapter 5 - Women’s Economic Empowerment: Empowerment: Economic 5 - Women’s Chapter training in snack production, product development, packaging and small business skills. At first, breaking into the market and selling their snacks was

Increasing Access to Reconstruction Benefits and Jobs Benefits Reconstruction Access to Increasing challenging. It took six months before the orders started coming in for two of the groups. Local people started to buy their snacks and place orders. Now these two groups are supplying a mini market in the nearest town. They are proud of their achievements, are investing in new equipment and product lines and they have hope for the future.

The other two groups are no longer functioning properly. These were the groups from the poorer side of the village. Many of their members have migrated to Kalimantan, in eastern Indonesia, with their husbands in search of work and better life opportunities. The snack business didn’t suit their needs. The women left in Jemowo observed:“The time for support was too short; we needed longer training and more marketing skills. It was hard for the other women, they didn’t have the time and the savings to invest in the business the way we did.”13

There are a number of inter-linked lessons for future reconstruction efforts. These include:

• Use community adjudication processes, including community mapping of land and land ownership by men and women, to allow more legal space for locally negotiated solutions that apply forms of custom. These processes tested in Aceh by local NGOs in collaboration with BPN were a relatively successful component of RALAS. Evidence suggests that, rather than the provision of national or religious law alone, these locally defined processes may support more equitable outcomes for women.14

13 Women’s PIGD Group Central Java 14 Fitzpatrick 2008a; World Bank 2011 More Than Mainstreaming: Promoting Gender Equality and

77 Empowering Women through Post-Disaster Reconstruction Land titling was a national policy national a was titling Land The awareness of local and religious and religious of local The awareness 15 In Java, where most women have more decision-making power in the home than in the decision-making power more have women most where In Java, 16 Women’s PIGD Central Java PIGD Central Women’s “We had choice...we could design the house ourselves, add to it it add to ourselves, house design the could had choice...we “We if we wanted to, and we had were better—they the houses were our lives. The rebuilding was like money. Rebuilding the house stronger.” we were stronger; Understand the priorities of local women and men. and women local of priorities the Understand inheritance to related women and men both for priorities Acehnese local prescription; the highlight differences The opposition. in not are issues two The rights. tenure and realities. local to staff land administration of and sensitization dialogue need for within strategy A mainstreaming gender strategy. mainstreaming a gender Develop frontline women for land including provision administering agencies government staff andcommunity is facilitators needed aswell data,gender as sex-disaggregated staff. for support and on-going staff of sensitization raising. awareness and sensitizing in Investment leaders as well as community members about the rights and obligationsrelating to impact. overall will improve and inheritance land claims, tenure Develop a gender-sensitiveinformation communication delivereddirectly strategy. women to Access identified was successful fulfillment to of landrights as trustworthy component key a as well to as raising awarenessand amongs religious community leaders, administration staff and community members women). (men and in public life, the loss of home is significantly disempowering. Being actively involved in involved actively Being disempowering. significantly is home of loss the life, public in healing helped the process, Rekompak design andbuilding the through of their homes their lives. over back some control the chaos and giving women to bringing order Increased Increased women’s bargaining power within households builds economic resilience. infrastructure through earning income that indicated some women On an individual level, and livelihoods projects led to greater respect and social household. them to confidence It demand forgave more time their work and activities empowerment within the outside the home. Women’s active involvement in the buildingactive involvement ofto their the housecontributed healing Women’s process. For significant numbers womenof the particularly serious,lossexacerbating psycho-social stress. of The denial their of rights, house voiceand means home the within industries low-profit disaster a to in confined while home the is outside agency than more far identity and self of sense women’s impact to likely is home one’s losing that men. • • • • World Bank 2011; Fitzpatrick 2008 Bank 2011; Fitzpatrick World 2008 Cauldfield and Nowak 1998; and Hearn Morrow Enarson

15 16 5.2 Building Resilience 78

“At first they (the husbands) didn’t like us going out to meetings, spending time away from the home. There were lots of arguments. Some of them tried to stop us. We weren’t going to stop. We drew up a schedule, showed them what we were doing and why, and this way helped them understand the benefits of our work. We talk more now. They respect our skills and knowledge.”

Women’s Livelihoods PIGD Central Java

In Nias, where women had very few opportunities to earn money before the disaster, some women involved in the CLBR3 roads project said: Chapter 5 - Women’s Economic Empowerment: Empowerment: Economic 5 - Women’s Chapter “It’s our money, we let our husbands know but we don’t hand it Increasing Access to Reconstruction Benefits and Jobs Benefits Reconstruction Access to Increasing over. They respect our choices. They listen to us more now that we bring our own money home.”

Women have traditionally been involved in scavenging. The MDF’s Tsunami Recovery Waste Photo: Management Programme (TRWMP) helped to provide livelihood opportunities in recycling Kristin and other waste-related activities, as well as to build public awareness about recycling and Thompson good practices related to management of waste. More Than Mainstreaming: Promoting Gender Equality and

79 Empowering Women through Post-Disaster Reconstruction In all three In all three 17 In Java, women saw the community settlement plans (see box following) as following) plans box (see settlement the community saw women In Java, 18 PIGD, Pidie, Aceh Pidie, PIGD, “Before, “Before, I was just one of the within women; the nobody cooperative knew men me. and Now, women have equal ideas are more to everyone; acceptable rights. we can go and talk to the Our know People department. cooperative the and to village leaders proud.” I feel respect me. who I am; they a collective asset which contributed to greater security and peace of mind. to greater contributed which asset a collective In the JRF livelihood recovery programs, women’s involvement could lead to greater greater lead to could involvement women’s programs, recovery In the JRF livelihood public recognitionfrom local government, members. In a GIZ the village livelihoods leadership recovery project working in women develop a and community snack a business, participation had linked remote the womeninto the village district to help of their community. members respected them become and led to forum development women However, involved with some of the micro-credit groups with limited training in their social status. no change reported and follow-up DRR. Women through enhanced was disaster future to resilience community Building significantly invest to prepared are and DRR for need the of men than conscious more are and their families. themselves protect to in order preparedness in disaster Increased Increased social status for women in some livelihood significantly. Women recovery in projects infrastructure increased projects did not generally perceive that social standing their in communities had changed either positively or The negatively. short time framefor the projects and limitedfollow-up may be Women contributing factors. positive noted projects recovery livelihood onto reconstruction through moved had who and most some of poorest the pickers, waste Women impacts on social their status. marginalized women in Aceh who graduated from cash-for-work to developing small businesses the valued recycling, in increased social in waste standing. the Participation project had brought greater respect from men and the wider Women community participants members. of the cooperativesCCA sub-project a similar story. of reported development, and business loans, training through women EDFF, supported which regions, regions, women involved in DRR activitiesperceived opportunities to example, were as for Women, preparedness measures disaster for a significant benefit. practical learn more responsive than men towards acknowledging the importance of earthquake safe into applying these their resources time and invest and to willing practices construction principles. ILO 2000; World Bank 2012c 2000; World ILO 2011:3 of Indonesia Government

17 18 80

“When the earthquake struck, we panicked. We didn’t know what to do. Now we have a plan, we will know what to do. We don’t feel so anxious for the future.”

Women’s PIGD Central Java

Community Settlement Planning

Over 265 villages were supported through Rekompak to develop Community Settlement Plans (CSPs). CSPs help villages map out the profile of their community

Chapter 5 - Women’s Economic Empowerment: Empowerment: Economic 5 - Women’s Chapter (population, boundaries, livelihoods etc.) and identify future infrastructure and socio-economic needs. On average, 25 percent of the participants in CSP

Increasing Access to Reconstruction Benefits and Jobs Benefits Reconstruction Access to Increasing meetings were women. Disaster preparedness and mitigation is a key activity. Communities work together to plan DRR strategies for future disasters and militate against potential impacts. In some villages, for example, the planning has resulted in helping some households relocate to safer places in their village away from the threat of landslides.19

Challenges in Building Resilience

The most critical challenge to building women’s is resilience related to actively responding to psycho-social impacts. Trauma affects both women and men’s abilities to take advantage of economic and other opportunities for recovery. Post-disaster psycho- social trauma and stress was reported more frequently by women in all areas. In Aceh, for example, approximately 100,000 people were identified as suffering from mental illness post-conflict and disaster, the majority of whom were women.20 In cash for work projects in Aceh, for example, there were reports of participants “working ineffectively in a mute daze.... and IDPs suggesting they felt like invisible bystanders ..... not together enough to be asked their opinions.”21 Women themselves reported the emotional impacts of disaster on them.

19 Rekompak Implementation Notes April 2011. 20 Official figures do not capture the true picture of psycho-social gender differences. Men are less likely to report trauma: gendered stereotypes of male roles as the head and protector of households stops many men seeking help. Men are more likely to respond to their distress with behaviors such as gambling, alcoholism and violence towards women (ILO 2000; Chew and Ramdas 2005; Government of Indonesia 2011). 21 Pennells 2008 (20) More Than Mainstreaming: Promoting Gender Equality and

81 Empowering Women through Post-Disaster Reconstruction Rebuilding houses Rebuilding 22 Women Participant PIGD Central Java PIGD Central Participant Women I couldn’t do anything for at least I a just year...longer..., wanted I I couldn’t to safe with didn’t stay think my family. have properly, joined (the have I could think outside. I don’t work to the energy coped.” have I couldn’t earlier. project) livelihoods recovery Infrastructure, Infrastructure, housing and economic development projects in post-disaster situations generally do not incorporate strategies and actions aimed addressing at the impacts of trauma. Usually it is special integrate counseling and projects other support or activitiesinto their health work. and educationprograms which did undoubtedly support the healing process and the longer Rekompak thattimeframe women, and men both enabled members community supporting and mobilizing in took to some extent, to identify theirown level of engagement. However,by not addressing actively the impacts of psycho-social stress there identify small were incrementalsteps missed thatcould opportunitiesovercome the to specific barrierscreated by involvement. active women’s inhibited that stress projects Two did activelyrespond to trauma andwomen’s adjust their implementation strategies to enable participantsto benefit fullyfrom the activities: DRR-Aceh and the first the In phases. two in funded was work CCA’s EDFF. the under PESAT CCA-supported stress, psycho-social of levels high the of mindful CCA, CIDA) by (funded years 4 of phase focused on peace building, counseling and startingsensitization activities. with Slowly, andable it build and to emotional was small confidence the loans savings trust, groups, security of participants to re-engage with profitable livelihood activities. second Onlyphase of its in the work, funded by the did MDF, it begin supporting major economic future for lessons are There development. cooperative through women for development alleviate to response a Building interventions. development economic and infrastructure resources. and time extra require will project a into trauma psycho-social of impacts the identify help will disaster of impacts psycho-social the of understanding better However, respectful and sensitivestarting points fordifferent incrementaland levels of support. and undermine the women self-excluding do to so will affected lead the most to Failure economy. regional and the involved women for both the benefits potential Chew and Ramdas 2005 Chew

22 Chapter 6

DISASTER RECONSTRUCTION AS AN ENTRY POINT FOR GENDER MAINSTREAMING More Than Mainstreaming: Promoting Gender Equality and

83 Empowering Women through Post-Disaster Reconstruction 1 – involving men and women equally when preparing responding for disaster, Making gender equality a full objective inpost-disasteridentifying reconstruction—that is, interventions that progress gender and agency, women’s or increasing economically equality and women empower Mainstreaming gender concerns throughout the DRR process from reconstruction—that is, establishing response thesystems, to mechanisms and processes that operationalized. to be equality perspective enable a gender These include: Focusing while a disaster is occurring, and in the rebuilding process after it has passed. after process is occurring, and in the rebuilding while a disaster Indonesia took a major Guideline Reconstruction and Rehabilitation (2010) and step ofpublication Post-disaster the forward in nationalthese within Included (2011). Guideline disaster-preparedness Assessment Needs Post-Disaster Indonesia the with the guidelines is the requirement to address the socio-economic impacts women of and men disaster during the on initial needs assessment process. they However, bothfall short in providing guidance on how to operationalizethis requirement or mainstream be addressed needs to a lacuna that and response: preparedness disaster in to gender best international to contributing from Aside disasters. in future operations effective for of development the for basis the provide may JRF and MDF from lessons these practice, manual. operation gender-sensitive a national Based on the experiences of the MDF and this JRF, section highlights and practicalways during in before, involved are women and men that sure make can institution an which happen. disasters after Good practice is being addedto all the time, and work indicates three main routes to management. of disaster the forefront issues to bring gender to take The experiences of reconstruction inpost-disaster Aceh, lessons Nias about the and capacities,Java support structures, useful offer systems and mechanisms necessary to promote gender equality and actions: inter-related two do so necessitates women’s To processes. empowerment in future reconstruction • • See, for example, World Bank 2011 World example, for See, 1 Photo: Tarmizy Harva for MDF MDF Harva for Tarmizy Photo: Women Women such as this mother in Aceh, shown with involved her in three rebuilding their children, homes were under actively the MDF and JRF’s Rekompak project. The community-based approach to housing reconstruction engagedwomen in all phases of reconstruction. 84 Supporting – supporting Government, support agencies and/or fund management while they weave gender sensitivity into the way they work: their management systems, operational rules and reporting structures, including monitoring and evaluation. Accountability– Developing ways of making staff responsible for mainstreaming gender issues, including penalties if these are ignored.

6.1 Strengthening Attention to Gender in Reconstruction

There are five areas of support which together address gender equality objectives and significantly strengthen efforts to mainstream a gender equality perspective in reconstruction projects.

• Making gender equality a full objective in reconstruction projects. These will need to be selective and tailored to the specific intervention. For example infrastructure projects can include an explicit objective aimed at empowering women and men to engage equally in non-traditional skill areas such as waste management, house building, and road maintenance. All projects have opportunities to increase women’s agency through focused objectives designed to build women’s capacities to take on leadership positions and engage meaningfully in decision-making processes. Gender equality objectives will need to be matched with realistic budgets, linked to

Chapter 6 - Disaster Reconstruction as an Entry Point for Gender Mainstreaming for Point as an Entry Reconstruction 6 - Disaster Chapter indicators, monitored from measureable baselines and including a gender focused exit strategy. There will need to be specific actions arising from the objectives which are fully funded, supervised and evaluated.

• Mainstreaming gender into disaster preparedness and management plans. There are now widely available guidelines for mainstreaming gender into disaster preparedness.2 There are also the experiences of the numerous DRR projects implemented in Indonesia post-Tsunami and earthquake in Aceh, Nias and Java, including DRR-A, which advanced the process of gender mainstreaming in the national guidelines. Key institutional mechanisms for mainstreaming gender into DRR operational plans include: access to full-time gender technical staff, explicit gender equality indicators, sex-disaggregated data bases nationally and by sector and a fully resourced and budgeted gender-mainstreaming strategy

• Integrating a gender analysis in Disaster Loss and Needs Assessments. Integrating a full sex and age disaggregated assessment of the differential losses, impacts on and needs of women, men, girls and boys is critical as it provides: a) a shared baseline for all implementing agencies and b) the information needed to mainstream gender issues into the national recovery and reconstruction strategy. A gender assessment also needs to assess the higher-level sociocultural context of existing gender relations

2 See, for example, the Gender and Disaster Risk Management set of Guidance Notes produced by the World Bank in 2012 More Than Mainstreaming: Promoting Gender Equality and

85 Empowering Women through Post-Disaster Reconstruction Future reconstruction reconstruction Future and institutions in the disaster area including those in the remaining bureaucracy and bureaucracy remaining the in those including area disaster the in institutions and administration. This provides a shared understanding, often missing in international determine which norms social and cultural the of organizations, and staff non-local or women’s promote norms to with these work can agencies how and, roles gender participation. active is investment More experts. gender disaster-focused of pool global a Establishing needed in developing a global pool of operationalgender experts whocan provide are known lessons the already ensure be done to to needed advice on what implemented. Practically, this requires the technical experts with knowledge, the in increases track to indicators develop example: for to, seniority and experience refine influence operational and processes; influenceagency; procurement women’s manuals; and develop gender-sensitive mechanisms whichsystems. and procedures and administrative sectoral existing fit with and support as early as analyses gender theme based and sector-wide open-source Developing agencies, implementing all by use for developed analyses, These post-disaster. possible can analyses Sector-based and loss assessments. the damage to complementary are inform early recovery and reconstruction across the whole sector initiate and the to identifyingexample, For through the development. recovery links transition from roles,different responsibilities, needs and barriers to participationwomen,of men, results The management. and recovery waste or housing to relation in girls and boys of the analyses support bettercoordination and linkagescross-cutting between addressing of opportunity different the sector provide analysis Thematic interventions. girls men, and on women, impacts of the disaster issues such as the psycho-social boys or assessment of interventions supportingeconomic women’s empowerment. The results of this can support adaptationsto arange of sectoral projects especially use of non-technical which does not normally make sector, in the infrastructure design. project to inform analyses thematic proposals. project of review technical in focus gender Including projects will be greatly strengthened by technical reviews providing concrete gender realistic appraisals, and including operational strategies giving clear examples are: Some examples outcomes. support gender-based be done to can of what indicators and outcome in decision-making,performance role women’s strengthening for tracking women’s empowerment or gender-sensitivetracking accountability of mechanisms. A review of operations manual prior to projectstart is alsorequired, within operations. strategies principles and embedded in the designed gender • • • 86 6.2 Supporting Structures, Systems and Mechanisms

The range of supporting measures which can strengthen institutional response to the differing needs of women and men in post—disaster reconstruction include attention to design and diagnostics, staffing and capacities of staff and implementation financing, systems operational rules and reporting, including M&E. The table below outlines practical organizational measures, identified during the process of lesson learning, which can support institutions mainstream a gender equality perspective and embed good practice lessons.

Sample Gender Sensitive Measures for Mainstreaming Good Practice Lessons

Institutional Mechanisms Gender Sensitive Measures and Processes Enhancing Staffing and • At fund management level, recruitment of senior gender Capacities technical assistance (operations) to carry out high-level diagnostics, oversight, advocacy and review • Routine and embedded supervisory support (coaching, mentoring, training district-wide meetings and exchange visits), fully budgeted for strengthening gender sensitivity and capacities to implement gender mainstreaming strategies for front line and management staff • Performance indicators and reviews to incorporate gender-

Chapter 6 - Disaster Reconstruction as an Entry Point for Gender Mainstreaming for Point as an Entry Reconstruction 6 - Disaster Chapter sensitive indicators • Incentives and affirmative action to recruit and retain women staff in senior and middle technical positions in infrastructure and livelihood recovery. e.g. road shows to universities to encourage women to apply for reconstruction jobs; separate job adverts for men and women to avoid gender biased assumptions; placing women frontline staff nearer their families • Affirmative and mentoring support for women technical staff and supervisors with lower qualifications than male staff to promote gender parity

Design and Diagnostics • Sector and theme-based gender/poverty analysis • Disaggregated data by sex and age at baseline • Gender sensitive qualitative and quantitative indicators incorporated into the results framework • Gender strategy including the application of locally defined and proven ways of promoting women’s rights, developed for project with clear end objectives and fully budgeted within project financing • Long lead time for mobilization of communities embedded into design to help overcome, for example, psycho-social and entrenched social norms undermining women’s participation More Than Mainstreaming: Promoting Gender Equality and

87 Empowering Women through Post-Disaster Reconstruction Operational guidelinesOperational to include clearly processes defined poor with and engaging reaching mobilizing women, for to the barriers addressing women, and disadvantaged to leadership women promoting and participation women’s and supervisory positions and technical for targets plans and performance work Joint social mobilization frontlinestaff toavoid silo working and streams work parallel Mechanisms to mandate co-operation and with encourage other requiring procedures contracting or procurement financing; organizations; operational off-budget e.g. resource allocations for linkages; direct or sub-contracting of advancing small local gender- partnerships focused organizations and to to enable them to women poor and highly disadvantaged provide targeted support to reconstruction in participate Internal Internal participatory and capturing at qualitative aimed reporting—through reporting quarterly and meetings routine and scaling up active participation “smart womenof in decisionfacilitate making, practices” which, for sharing, development skills and knowledge information example, with out in partnership visits carried Supervision and review implementing agency andto include a asstandard gender/ adviser social technical Gender exit strategy aimed at embedding lessons learned into the institutional systems developed at mid-point of partner of organizations project strategy exit overall and integrated into based impacts of gender track to system Monitoring mechanisms, social inclusion of poor and accountability disadvantaged women in benefit sharing,making etc. and decision- Gender sensitive budgets and budgetary trackingto trace and address gender disparities appropriate. where in resource allocations Greater use off-budget financing increase to flexibility in or running special Programs concerns, gender addressing strengthening and women) poorest the (such as reaching supervisory support for front line staff (training,coaching, exchange visits etc.). Off-budget financingnecessary in every may situation;before not be taking to use off-budget funding, athe decision clear analysis of the national bureaucratic and administrative systems procedures and will be necessary. • • • • • • • • • Implementation systems and and systems Implementation rules operational Reporting systems systems Reporting Financing 88 6.3 Accountability – Mechanisms for Mandating Gender Mainstreaming

There are three accountability mechanisms that are already in use to enforce fiduciary probity and environmental sustainability post disater. These useful tools could easily be applied to ensure gender equality measures are fully met by supported projects.

• Memoranda of Understanding – Drawing up protocols within MoU detailing the broad requirements to ensure the interventions address gender issues (e.g. disaggregation of all data by sex and age; gender expertise and agreed balance within the management teams). • Procurement - Incorporating gender equality into procurement processes as far as it is consistent with national and/or agency rules and regulations. Procurement is a powerful tool for holding institutions to account for agreed gender-sensitive policies. Procurement measures include, for example, giving preference to tenders which have gender strategies; quotas in staffing proposals for achieving gender balances at senior and junior levels, and are in compliance with gender mainstreaming requirements of the procurement authority. Procurement is a way of enforcing local capacity building in gender issues by requiring external or international agencies to work directly with local gender-focused organizations with a clear strategy of supporting local agencies Chapter 6 - Disaster Reconstruction as an Entry Point for Gender Mainstreaming for Point as an Entry Reconstruction 6 - Disaster Chapter to carry out work on gender and inclusion issues. Procurement waivers which have been tested in Indonesia to ensure flexibility and swift response post-disaster can also be extended to include attention to gender issues, for example affirmative action to employ women staff into senior positions. • Contracting - Incorporating gender equality requirements into the obligations of contractors, where appropriate to the performance of the contract. For example, standardized contracts for the sub-contracting of road building and infrastructure rehabilitation have been developed by the ILO and can be extended to include clauses detailing gender balances in the hiring of the workforce including managers and supervisors, provision for gender parity in payment and remuneration and special measures for enabling women’s participation (for example, raising the age of eligibility for training and apprenticeships; on-site child care facilities).

6.4 Promoting Women’s Role and Empowerment in Reconstruction

Women can be powerful agents of change in the reconstruction process. Good- practice lessons from MDF and JRF project’s experiences show that when women are active participants in reconstruction, and exercising their voice to shape the design and management of reconstruction, there are benefits for everyone. These include: • Improved and sustained outcomes - Women’s inputs and active participation led to changes in the design and selection of housing and local-infrastructure improving quality and cost-efficiencies. In turn, women’s greater control over the process More Than Mainstreaming: Promoting Gender Equality and

89 Empowering Women through Post-Disaster Reconstruction – Women made up over – Women’s active participation local in - Increasing women’s emotional,physical and decision-making processes increased social cohesion and made local institutions more more institutions local made and cohesion social increased processes decision-making of arange of representative voices. The ofinvolvement activewomen in community such as of public goods in provision the increase leading to policy, planning changed women. for more health clinics, all of which mattered and sanitation water, resilience community Enhanced livelihood security through settlement active planning,livelihood recovery involvement and DRR paid dividendsand knowledge competencies, the gained Women for national disaster. future to resilience local reconstruction, and in community levels high are there where situations in vital losses, against mitigate and cope to skills housing post-tsunami during the Aceh or Java, central as such out-migration, male of boom. increased individual and communal ownership and satisfaction, enhancing willingness willingness enhancing satisfaction, and ownership communal and individual increased assets. new and maintain sustain to recovery Faster of local economies and productivitygains and in in small and medium enterprises largely working of the workforce 40 percent agriculture (often unrecognized as unpaidfamily labor). Strengthening their skills and talents to actively participate in livelihoodeconomic recovery helped accelerate supported recovery livelihood JRF the of the of percent 50 nearly Java, In regeneration. of the revitalisation local to GOI’s managed by contributing women were enterprises economy. More representative decision-making The experience of promotingwomen’s equality and empowermentwas uneven in the MDF and JRF reconstruction processes, all providing lessonsfor the future. Arange of good practiceexamples emerge from the two programs. At thesame time,processes and mechanisms for actively involvingwomen in decision making and implementation generally are involvement women’s to Barriers institutionalized. better been have could high, but the costs of enormous ignoring in terms gender of in overlooked disaster poverty and damages, thefocusinequalities. of reconstruction was Understandably, on reaching reconstruction needs are and potentially priorities that large exacerbate numbers of beneficiaries too this focus While necessary and important, small businesses revived. rehabilitated, and on deliverables: houses for the in and potential oftenovershadowed ofdevelopment improvements qualitative built, infrastructure empowerment. women’s The key lesson from the MDF and JRF is community, that promoting aid gender international equality and the women’s level: every at facilitation active requires empowerment national andlocal government, projects communities. and gender not enough. Post-disaster and are speak be present to women encouraging prescriptions Policy and and it support: is, thisequity isneeds obligation; notadditional a just moral investment project JRF and MDF the from lessons practice good As economics”. “smart simply, quite to a voice with reconstruction in participants active are women when show, experiences outcomes quality better are there reconstruction, of management and design the shape everyone. for • • • ANNEXES More Than Mainstreaming: Promoting Gender Equality and

91 Empowering Women through Post-Disaster Reconstruction . 1 The The 3 Attention to to Attention Community participation was a prominent feature feature prominent a was participation Community This component explores the extent to which women’s voices were were voices which women’s to extent the explores This component 2 World Bank 2011; World Bank 2012f Bank 2011; World World ILO 2000; UNESC 2005, Rolnik 2011, World Bank 2012f 2011, World Rolnik 2005, 2000; UNESC ILO The Universal The ofdeclaration Universal Human Rights 1948; theCovenantEconomic, on International Social and rights, Cultural (ICESCR), 1966; the Convention on EliminationRehabilitation andReconstruction of Nanggroe Aceh of DarussalamProvince (NAD) and Nias all Islands, North Sumatra and, Central Plan Forms Development term Medium National Indonesia’s Discrimination of of. framework policy broader the by guided also were against Yogyakarta and WomenJava (CEDAW). the and The Declaration Millennium rights-based master the to commitment GOIs the plans for the by underpinned was NMDP The 2009. – 2004 (NMDP) women. empower equality and gender including MDG 3 – promote 8 MDGs, the meeting final component looks at the systems, mechanisms and processes that the MDF and JRF and and JRF and MDF the that processes and mechanisms systems, the at looks component final the social inclusion of all women, irrespective of their status, ethnicity, levels of disadvantage of disadvantage levels ethnicity, status, of their irrespective the social inclusion of all women, processes. of reconstruction and sustainability effectiveness the to vital is and vulnerability can women against discriminating and directly overlooking by efforts, Reconstruction and disadvantage. of vulnerability patterns existing reinforce and even perpetuate Inclusion of women and in particular, vulnerable and disadvantaged women: women: disadvantaged and vulnerable particular, in and women of Inclusion heard heard and responded to by MDF and JRF projects as their women accountable (policy field, were projects making; beneficiaries) management, well as how and at what levels; constituents. of the MDF and JRF programmatic support: the majority of its supported programs included included programs supported its of majority the support: programmatic JRF and MDF the of to able are survivors which women to extent The consultation. of community element some in participate the decision-making, and of management has development projects a major with of satisfaction their levels and in reconstruction takes role their impact on the form efforts. reconstruction Participation, voice and accountability: accountability: and voice Participation, This component explores the extent to which, MDF and and how, JRF were Programs able to promote fair and equitable access for women to their services and benefits during the and approaches the about learned be can lessons what on focuses It phase. reconstruction strategies used by projects to enable women to fulfill their rights, take part and interventions. the from benefit Non-discrimination Non-discrimination and Equity women of for guaranteed rights fundamental Access are signatories were partners donor its and Indonesia which to Law rights Human in men and

2 3 1 3. 2. The Framework of Analysis and Methodology and Analysis of Framework The in reconstruction women of role on the paper the working informing of analysis framework The components. interlinked three by is underpinned study 1. Photo: LEDP Project LEDP Photo: Women paddy farmers take a break from a training to improve planting techniques techniques planting improve to training a from break a take farmers paddy household Women received also farmers the of Many LEDP. by support with Nias in delivered financial management training; almost 700 women benefitted from learning how household funds. and spend save better to 92 Annexes

Housing group members in Aceh meet to discuss and monitor progress. Rekompak contributed Photo: to viable and sustainable communities by empowering beneficiaries to make decisions regarding Kristin their future. Thompson

their Programs used to address: (a) social diversity amongst women in communities; (b) the structural barriers preventing different groups of women from taking part in, and benefiting equitably from project interventions; and (c) promoting women and gender issues in the systems and structures of the projects and the institutions being supported.

Methodology

A range of methods were used to inform the study including: • an extensive literature review of MDF and JRF documents as well as published and grey literature of documents relating to gender equality and the role of women in post-disaster reconstruction. • semi-structured interviews with 35 people (18 women and 17 men), comprising government officials, donor partners, senior management and field staff of the MDF and JRF secretariat, and support projects using a standardized checklist of questions. More Than Mainstreaming: Promoting Gender Equality and

93 Empowering Women through Post-Disaster Reconstruction validating information through field information validating visits to selected communities in Aceh, Nias and Java and men. of women with a range discussions group interest participatory conduct to • held were men) with 6 women, with (19 discussions group interest participatory 25 of total A involving 207 women and 92 men who had been involved in (housing, either road rehabilitation infrastructure and projects village infrastructure) or livelihood recovery projects. The objective of the field visits was neither nor research but evaluation a chance to and listen to, of as participants experiences of their and men, women, by provided insights the from, learn MDF and JRF Programs. 94 Acronyms and Abbreviations ACRONYMS ANDABBREVIATIONS MTR MSMEs MSEs MoU M&E MDF LEDP KRRP KDP JRF IDP IOM ILO GIZ GoI GBV EDFF EC CSRRP CSO CDD CBO CBLR3 BRR BRA BPN Bappenas Mid-term Review Micro, smallandmediumenterprises Micro andsmallenterprises Memorandum ofUnderstanding Monitoring andEvaluation Multi DonorFund for AcehandNias Nias Livelihoods andEconomic Development Program Nias Kecamatan-based Reconstruction and Recovery PlanningProject Kecamatan Development Project Java Reconstruction Fund internally displacedpersons International Organisation forMigration International LabourOrganisation Deutsche GesellschaftfürInternationale ZusammenarbeitGmbH Government ofIndonesia Gender BasedViolence Economic Development FinancingFacility European Commission Community-Based Settlement Rehabilitation and Reconstruction Project Civil Society Organization Community-driven development Community-based Organization Capacity Buildingfor local response-based rural roads project (ILO) Nias (BadanRekonstruksi danRehabilitasi NAD-Nias) Agency for the Rehabilitation and Reconstruction – of Nanggroe AcehDarussalam Aceh Reintegration Agency Badan Pertanahan Nasional(National LandAgency) National Development PlanningAgency More Than Mainstreaming: Promoting Gender Equality and

95 Empowering Women through Post-Disaster Reconstruction Non-Governmental Organization Non-Governmental Program Nias Islands Transition Management Policy Oxford Document Appraisal Project Discussion (s) Group Interest Participatory Project Access and Capacity Building Rural Project System Aceh Land Administration of the Reconstruction Policy Assistance Recovery Project Reconstruction and Rehabilitation Settlement Community-based of Reference Terms Program Management Waste Recovery Tsunami Nations United Program Development Nations United Project Urban Poverty Bank World NGO NITP OPM PAD PIGD(s) RACBP RALAS RAP Rekompak TOR TRWMP UN UNDP UPP WB 96 Bibliography and References BIBLIOGRAPHY ANDREFERENCES World Bank. MitchNicaragua. and Honduras in DelaneyP. Shrader.E. and L. 2000. 2001 Number57.Washington, USA: World Bank. 2001. M. Correia, The GlobalFundfor Women. Chew,2005. Ramdas. K.N. and L. Response to theYogyakarta Earthquake. Jakarta: CRS Care, Catholic Relief Services, Save the Children and World Vision. 2007. Development andGender(BRIDGE)Report November 1995.UK:University ofSussex. on Assistance”.Briefings Humanitarian and “Gender,Emergencies 1995. Baden. S. and B. Byrne, Paper 340.Sussex, U.K: Institute ofDevelopment Studies. Role of Diverse Voices in Developing a Secure Livelihood in Pastoralist Areas in Ethiopia. P. 2010. and Scott-Villiers. Hobley M. Brocklesby, M.A., of Women’s Analysis AGendered Participation in Post-Mitch Nicaragua inGenderand Development. Taylor &Francis, Ltd. Relations: and Roles Bradshaw,2001. Reconstructing S. Blaikie, P.2002. At Risk:NaturalHazards, People’s VulnerabilityDisasters.and Routledge. London: Social Program.Indonesian Development Kecamatan Development Paper No.10.Jakarta: Decentralization Support Facility, the of Impact the Indonesia–Assessing 2006. Woolcock. M. and Diprose R. P., Barron, The Recovery Effort and Way . Jakarta:Forward BRR. Badan Rekonstruksi dan Rehabilitasi Aceh dan Nias. 2005. (CFAN) October 2005.Jakarta: BRR. and Nias: Stocktaking of the Reconstruction Effort. Brief for the Coordination Forum Aceh and Nias Badan Rekonstruksi dan Rehabilitasi Aceh dan Nias and World Bank. 2005. during disasters? 2005. Development. and Law Women, on Forum Pacific Asian ALNAP. 2006.TheIndianOcean Tsunami throughaGenderLens Community Assistance Research Project .MonashUniversity: ACARP. Aceh the of Report AcehPost-tsunami . in Assistance Reconstruction and Capacity Local Assessing 2007. Projection. Research Assistance Community Aceh PREM notes August notes PREM Crisis. and Coping Effects of Gender Mitch—The Hurricane Caught in the Storm: The impact of natural Disasters on Women.Disasterson natural of impact Storm:The the in Caught Report prepared for theWorld 2000.Washington:Bank January Gender and Post-disasterand Gender Reconstruction: Hurricane The of case Local Conflict and Community Development in Development Community and Conflict Local Raising Voice—Securing a Livelihood: The Livelihood: a Voice—Securing Raising Aceh and Nias One Year After the Tsunami: The AcehneseThree YearsGampong On: . Report Prepared for Oxfam. Why are women more vulnerable A Joint Evaluation of Their Rebuilding a Better Aceh IDS working More Than Mainstreaming: Promoting Gender Equality and

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101 Empowering Women through Post-Disaster Reconstruction Gender Informed Monitoring and Evaluation in Disaster Risk Management. Making Women’s Voices Count. Addressing Gender Issues in DRM in East Asia Asia Addressing Issues in Gender DRM in East Count. Voices Bank. 2012c. Making Women’s World and the PacificWorld Bank East Asia andPacific Region. Social Bank. World Development 1. Washington: Guidance Note Risk Management Gender and Disaster Guidance Notes. Bank Projects. World and Development Policy DRM in Issues Gender 2012d. Integrating Bank. World East Asia and PacificRegion Social Development Notes. Gender and Disaster Risk Bank. World Management 2. Washington: Guidance Note 2012e. Bank. World World Bank East Asia and Pacific Region Social Bank. World Development 3 Washington: Guidance Note Management Notes. Gender Disaster and Risk Integrating Bank. 2012f. World Gender Issues in Community-basedDisaster Risk Management. World Bank East Asia and Pacific Region Bank. Social World 4. Washington: Guidance Note Management Development Notes Gender Disaster and Risk

NAD Nias

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