Community participation in rebuilding in the © International Federation of Red Cross and Red Crescent Societies

Any part of this publication may be cited, copied, The International translated into other languages or adapted to meet local needs without prior permission from the Federation’s Global International Federation of Red Cross and Red Crescent Agenda (2006–2010) Societies, provided that the source is clearly stated. Cover photo: Zayyan Moosa/International Federation

Over the next five years, the collective focus of the Federation will be on achieving the following goals and priorities:

Our goals Goal 1: Reduce the number of deaths, injuries and impact from disasters.

Goal 2: Reduce the number of deaths, illness- es and impact from diseases and public health emergencies.

Goal 3: Increase local community, civil society and Red Cross Red Crescent capacity to address the most urgent situations of vulnerability.

Goal 4: Promote respect for diversity and human dignity, and reduce intolerance, discrim- ination and social exclusion.

Our priorities Improving our local, regional and international capacity to respond to disasters and public health emergencies.

The International Federation of Red Scaling up our actions with vulnerable commu- Cross and Red Crescent Societies nities in health promotion, disease prevention would like to express its gratitude and disaster risk reduction. for support of this publication to the ProVention Consortium – a global partnership of governments, inter- Increasing significantly our HIV/AIDS pro- national organizations, academic gramming and advocacy. institutions, the private sector and civil society dedicated to increasing the safety of vulnerable comunities and to Renewing our advocacy on priority humanitari- reducing the impacts of disasters in developing countries. an issues, especially fighting intolerance, stigma and discrimination, and promoting disaster risk reduction. 2007 International Federation of Red Cross and Red Crescent Societies

P.O. Box 372 CH-1211 Geneva 19 Switzerland Telephone: +41 22 730 4222 Telefax: +41 22 733 0395 E-mail: [email protected] Web site: www.ifrc.org eetn udn eainhp mn l hs novdi h project. the while in evolved, involved it those as all project housing among the relationships about budding questions cementing and concerns community address to initiatives omnt novmn ntepoet h lnitoue ait fsml n practical and simple of variety a introduced plan The active project. and to meaningful the for government opportunities in island the provide the involvement to with including and together community Federation concerned, International developed communities the the was and between Plan authorities, communication Involvement two-way Community participation these better community A promote greater both stimulate project. to between ways the sought Federation in misunderstandings International the this, as of light well In concerned. as bodies government them, the and hosting Federation community the The International displaced them. of communities the the for design communities, between beneficiary clear built nearby tensions the being received to influence that the settlement led to new not had and evident the able frustration had about and been became consulted conjecture community had confusion, adequately they resulting been it affected though not had the even implementation, they and of project’s houses, project, members the the the about The of information of inadequate. government stages was the participation early with partnership the and Society. direct National houses During a a have in 600 yet completely as out some not been to carried did build had up country be home for the to to island as Atoll, was Maldives, was own Raa whose project the project community, in The one Kandholhudhoo destroyed. the Societies for of island, from Crescent uninhabited programme aim people Red previously 4,000 The construction a and tsunami. on Cross and services Red the relocation accompanying of by challenging Federation displaced International a people the undertook that Federation) context (International this in had was that It centres. islands growth safer the economic the other, that future to by destroyed as relocation up badly development permanent so for drawn of identified been were choice been had homes also a islands their inhabitants the rebuilding the of for offered Some government plans partners. temporary to development with while relocated its provided families and were were host government they Many with There, hardship. housed hazards. greatest or natural the from shelters to protected exposed better were considered shelter islands adequate country. without devastated left and the swift, People rebuild was to response best emergency how The thousands determining Maldives. about left the set of and nation immediately destruction island government widespread small the caused the 2004 in December homeless people 26 of of tsunami Ocean Indian The Summary

Community participation in rebuilding in the Maldives 1 The context

On the morning of 26 December 2004, the lives and livelihoods of the people of the Maldives were shattered by a massive tsunami-triggered sea surge that engulfed the island nation. Caused by one of the most powerful earthquakes of the last half-century, the tsunami travelled from its point of origin off the coast of Indonesia, at speeds of up to 800 km per hour. It reached the coast of Aceh within 30 minutes, Sri Lanka within two hours and the Maldives within approximately three and a half hours. Despite the time lag, the absence of an early warning system meant that the Maldives had little or no idea of the catastrophe heading its way.

For the low-lying islands of the Maldives1, the tsunami represented the worst natural disaster in the country’s history. All but 9 of the 199 inhabited islands in the archipelago were either partially or 2 wholly flooded, 53 suffered extensive damage and around 20 were totally destroyed.

Though there was less loss of life in the Maldives than in some other tsunami-affected countries, the relative impact on the economy and the population was much greater. About 100,000 people – more than one-third of the population – were severely affected. Total damage was estimated at around 62 percent of the country’s Gross Domestic Product. Nearly 80 islands were left without safe drinking water and over 5,000 buildings were damaged. A large number of schools, health facilities and government offices needed to be rehabilitated and repaired.

The government of the Maldives swiftly mounted a major relief and rehabilitation operation with the support of the international community. Following a multi-agency needs assessment, a Government National Recovery and Reconstruction Plan was developed. The plan identified actions to rehabilitate those sectors where losses were heaviest, housing and water and sanitation being the highest priorities, followed by education, tourism, fishing and transport.

International Federation of Red Cross and Red Crescent Societies The challenges of reconstruction

In some respects, the relief effort that followed the disaster was the easiest part of the tsunami response. As the relief operation moved on to recovery and reconstruction, the true scale of the challenges facing the Maldives began to emerge. One of the greatest of these was how to deal with the large numbers of internally displaced people (IDPs) who had to leave their homes and were living in tem- porary shelters or with host families. A total of 12,000 people had been displaced across 18 atolls, of whom 58 percent had to take refuge on islands other than their own. Providing shelter for such a large population required a rapid and massive mobilization of resources.

Before the tsunami, each island had a distinct character that had evolved over generations of communal living. By displacing entire communities and destroying infrastructure on many islands, the tsunami brought a long-running development debate to the forefront of reconstruction planning. Should the government rebuild islands that had been inhabited for centuries but were clearly highly vulnerable to future hazards? Or should it devote reconstruction funds and efforts to relocating communities to islands with fewer environmental hazards and where public services could be provided to larger numbers at a lower cost?

1 The average elevation of the islands is 1.8 metres above sea level. Lorenzo Violante Ruiz/International federation

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In all, 5,215 houses needed repair and another 2,879 needed rebuilding. As the highly porous soils of the tsunami-affected islands subsided in the months following the disaster, previously unharmed buildings started to show signs of damage, putting further pressure on housing needs. The government took a decision, to rebuild a number of the destroyed islands, including raising the overall elevation and reclaiming land. It also decided to build new homes on previously uninhabited larger islands that were considered safer and economically more sustainable.

In one such case, the International Federation has been assisting the government in implementing a project to develop the uninhabited island of Dhuvaafaru in the for up to 4,000 tsunami- Community participation in rebuilding in the Maldives displaced people. It is one of the most ambitious tsunami recovery projects undertaken by the International Federation in the Maldives, particularly as the country did not yet have a National Society with which to partner. Some 600 houses are being built, along with community infrastructure, including schools, an administrative centre, sports ground, health centre, and sewerage and electricity systems.

The new settlement is designed to improve living conditions The one thing an internally displaced person has to have in abundance is patience. There’s a lot of and reduce risks. The 600 houses are intended to replace the sitting around, a lot of waiting for news, but… original 440 on Kandholhudhoo to ease previous overcrowding. not a lot of space, not much to be happy about. Some of the community buildings will also be two storeys high “ to serve as refuges from sea surges. International Federation information delegate

Within the context of this broader community resettlement project, the International Federation has undertaken housing construction, along with the provision of water supply, sewerage and waste ” management systems. While waiting for their permanent homes to be built, the people of Kandholhudhoo have been living in Red Cross-funded temporary shelters spread across five neighbouring islands: Ungoofaaru, , Hulhudhuffaaru, and . The completion of the construction phase, including building of infrastructure, is difficult to anticipate with certainty. It is expected that beneficiaries will be able to relocate in the second quarter of 2008, but there is a need to understand that construction schedules cannot always be assured and some adjustment to timing may become necessary. Community participation challenges

In addition to the technical complexities and time required to build a new settlement properly, a major recovery challenge in the Maldives emerged in the form of tensions that surfaced between host communities and the IDPs living nearby in temporary accommodation. Originally, government offices on each island were mandated to manage the needs of the displaced populations. The officials, mainly local chiefs and their assistants, had no prior experience of such a situation and had not received any special training in how to handle it. The lines of authority were also unclear between local officials and those who had been displaced from another island.

The result was insufficient attention to the specific needs of both communities, a lack of understanding and cultural sensitivity, and under-reporting of incidents of conflict between host and displaced 4 communities.

There were many factors contributing to the tensions between the host and displaced communities. These included: ■ the frustration felt by the IDPs living in temporary shelters who lacked sufficient information as to when permanent housing would be available; ■ no knowledge of when the IDPs who did not want to move to new islands would be allowed to return to their islands of origin; ■ a lack of clarity as to what entitlements the IDPs would have in their new houses and what criteria would be used to allocate the houses; ■ confusion over the roles of the multiple stakeholders, including the government, in the construction of houses; and ■ the perception among some members of the displaced communities that the International Federation did not want to change certain aspects of the housing designs to suit their preferences.

The lack of a strong tradition of local organization and participation in the development process at community level made effective communication and conflict resolution more difficult, with both the

International Federation of Red Cross and Red Crescent Societies displaced and the host communities. As a result, both local and expatriate International Federation staff experienced real difficulties in involving the communities in project decision-making. Community members simply were not used to playing such an active role and had a tendency to expect the government to provide for them.

A brain surgeon used to dealing with human heads This was also uncharted territory for most of the technical and cannot suddenly become a road engineer… and so, construction staff, who lacked sufficient orientation and skills in as a trained architect, I cannot be expected to be community development and in the application of a participatory an expert in facilitating community involvement, approach. They had not envisaged that part of their tasks would “although I would love to do it. involve listening to and responding to community members’ concerns, other than those relating to the technical aspects of Construction delegate construction. Lastly, key” government officials at both national and local levels did not always fully understand the added value of providing clear information to the IDPs. Some misinterpreted “community participation” as having political overtones, intended to incite the communities against the government.

The International Federation recognized these challenges and explored ways to address them. The outcome was the Community Involvement Plan, developed by the government’s IDP management pro- gramme with the support of the International Federation’s IDP camp management and support team. yatn sabig ewe h omnt n h te emmembers. team other the and community the between bridge a as acting by eeomn fsrn od ffinsi n rs ewe h emadtedslcdcommunity. displaced the and team the between trust and friendship of bonds strong of development fteRdCosRdCecn oeet h oal erie nmrtr aiiae hsprocess this facilitated enumerators recruited work locally and values The Movement. mission, wider Crescent the Red about about Cross more concerns Red learn raise to the and and questions of island ask Dhuvaafaru to on members project community housing the the for avenue an became ultimately It hl h emiiilydee h uvy ob ueyadt olcineecs o h upssof purposes the for exercise collection data a purely be to surveys the deemed initially team households. the the While by everywhere, supplied information team questions verified the members’ and time accompanied community beneficiaries, first assistants answered of the his procedures, list was and and the This regarding chief policy them. government The alongside Maldives. on work the guidance to in provided the assistants done enlisted his been members smooth and had team a community this the ensure special process, displaced to the the order numbers, throughout In of age, dialogue relocated). chief (sex, constructive first were a demographics they and family since flow size on information family data in collect changes ten and to the household vulnerabilities, as develop interviews conducting To entailed well informal community. which methodology, as and displaced participatory adviser, surveys the a adopted advocacy from team an women) the guidelines, five and Maldivian draft and two delegate of men IDP consisted (five guidelines Federation IDPs, selection volunteers/enumerators International the beneficiary the an of develop staff, to some was Federation it of task needs whose team special The and vulnerabilities family the on on disabilities. and information with inaccuracies information out-of-date those many of including households, contain lack some to and found of been numbers, registration had double an with list of including The up accuracy the beneficiaries. deficiencies, come the increase of and among to list complement from helped government was housing work existing permanent aim partner This Cross-funded tsunami. with Their the Red by of working programme. displaced beneficiaries communities started relocation of and selection island the formed the for was guidelines in team involved Federation-led Societies International National an 2006, May In criteria selection beneficiary Establishing ■ ■ indic- surveyed islands five ■ the on IDPs the ■ by raised concerns and comments questions, the of Analysis tdfu ai atr hthdcnrbtdt hi elnso istsato,axeyadsmtmsanger: sometimes and anxiety dissatisfaction, of feelings their to contributed had that factors basic four ated osldtn h eeiir it ttre u ob nercigeprec htldt the to led that experience enriching an be to out turned it list, beneficiary the consolidating Lorenzo Violante Ruiz/International federation oenetsrstlmn project. resettlement government’s a en ce pn and upon; acted being was misconceptions feedback insufficient uncertainty information clear of lack st hr n rmwo ogtifraino h osn project; housing the on information get to whom from and where to as bu htteRdCosRdCecn to o n t oevsàvsthe vis-à-vis role its and for stood Crescent Red Cross Red the what about ntercnen n usin n iteasrneta hi feedback their that assurance little and questions and concerns their on ntepors fbidn oko hvaauisland; Dhuvaafaru on work building of progress the on

Community participation in rebuilding in the Maldives 5 Dealing with genuine concerns and rumours

Uncertainty among both the IDPs and the host communities about the ongoing work of housing construction had led to false rumours and misconceptions about the project and the role of the Red Cross Red Crescent.

Men from the displaced community were concerned about such issues as the availability of space on the new island for repairing and storing their fishing gear and the direction in which the houses would face (they were worried that they would be exposed to the full force of the monsoon). 6 Women’s concerns included the size of the houses, location of the kitchen, the number of bedrooms and the availability and purity of water. Other questions raised included when families would be able to move into their new houses, and when construction of other basic infrastructure, such as schools and health facilities, would take place.

In addition to these questions, rumours were circulating among members of the displaced community, for example that the site contractors were misusing underground water or that the government would provide furniture and cutlery for the completed houses.

Clear, accurate and timely information is the key to allaying such fears and stopping the spread of rumours. For example, in December 2006, a group of women from the displaced community were taken to see their new island home and were pleasantly surprised that the houses under construction were much better than they had been led to believe by some community members. “I was told this house wasn’t even big enough for a box of bones, but now I see it is big and of good quality,” said one woman. International Federation of Red Cross and Red Crescent Societies

Part of the IDPs’ frustration stemmed from the feeling that they were not being satisfactorily informed of what was going on either by the government or by the International Federation. They lacked trust and confidence in the IDP committees set up to act as intermediaries between the community, the government and aid agencies. Although some public meetings had been organized between the displaced community and government officials, their usefulness in addressing people’s concerns was said to be negligible. According to the IDPs, the reason for this was that the meetings did not take place regularly enough, the communities were not given sufficient notice to prepare in advance or to make time to attend, and not enough time was allocated to listening to and responding to the community’s questions.

Owing to lack of information about the International Federation’s role and responsibilities in relation to the government, some members of the displaced community incorrectly viewed the organization as a substitute for the government. Instead of raising their concerns with the relevant authorities, they expected the International Federation to advocate on their behalf. As a result, the International Federation may have been unjustly blamed for some of the problems in the community which did not come within its remit. vligadgnrtdpstv neeti h project. the in interest positive generated and evolving eutwst rmt etrudrtnigaogtecmuiyo o h osn rjc was project housing the how of community the among understanding better a promote to was result e pi aho h iepae hr ebr ftedslcdcmuiyhdbe ipre.The dispersed. been had community displaced the of members where places five the boards of each bulletin in and up set TV community the through oeo uhifrainado eua basis. regular a on and information such of more ftecmuiy hshsbe oeprimarily done been has This community. rest the the with them of sharing of aim the with recorded ne eeomn n hs fvst conducted visits of those and development under Ungoofaaru on families displaced to photographs ic hn iesadpoorpso h site the of photographs and videos then, Since need we on was: foot and set response had video community’s they time The the first photo- the island. took circulated was and it the later video them, with simple of They working a most enumerators For made island. the work. and and construction the island community ongoing Dhuvaafaru displaced the to the of visit of graphs chief a the paid steps, Federation first International the of one In need and concerns aids their Visual of some address to and Dhuvaafaru participation on information. beneficiary project for greater stimulate construction to housing below, described the initiatives, in of number a included plan The in or Standards success Minimum the Sphere the which on in based ways was plan the The outlined measured. Response be also Disaster would It process roles stakeholders. this the of including different failure consultation, the community future of for responsibilities Plan process Involvement and the Community described draft plan the The communities, circulated. programme tsunami-affected was reconstruction the and and recovery chiefs with island the consultations staff, following 2006, August and July Between approach involvement community a Towards 2 ymmeso h ipae omnt aebeen have community displaced the of members by Lorenzo Violante Ruiz/International federation uaiainCatradMnmmSadrsi iatrRsos,Gnv:TeShr rjc,2004. Project, Sphere The Geneva: Response, Disaster in Standards Minimum and Charter Humanitarian seset ein mlmnain oioigadeauto fthe of programme.” evaluation assistance and monitoring the implementation, in design, participates on assessment, actively 1 population Standard disaster-affected Common “The Response, participation: Disaster in Standards Minimum Sphere 2 . “ omnt nUgoar island Ungoofaaru on displaced community the of member and Enumerator message. particular that a medium of influential understanding an boosts is significantly Video can message. video your aid, enhance visual communicated a effectively As be important remembered. to an and message convey your to want minutes you few message, a only have you When ”

Community participation in rebuilding in the Maldives 7 Iffath Mohamed/International federation

8 International Federation of Red Cross and Red Crescent Societies

Organized site visits The International Federation and government team organized a series of visits to Dhuvaafaru over several weeks for the future occupants to get a firsthand view of the ongoing construction work. Groups comprising equal numbers of men and women were taken on a tour of the island and were given the opportunity to ask questions of the International Federation’s resident construction delegate and building contractor and to see the design of their houses and layout of the new settlement.

Members of the displaced community on Alifushi were the first to be shown around Dhuvaafaru, led by the Kandholhudhoo island chief and accompanied by the site contractor, the International Federation construction delegate and staff from the IDP support unit. This, and subsequent visits by other groups to the site, proved to be the most effective way of showing how the housing construction was progressing. In this way, the community was told what was happening and could see it for themselves.

After each visit, members of the group filled in a site satisfaction survey. The survey sought their feedback on all aspects of the visit, including their views on the usefulness of the information received, what they had liked most and liked least about the houses, and how often and by what means they would like to receive information on future progress. “We value your comments and questions”

The keys to a successful community site visit are: ■ Ensure gender balance among the participants and the International Federation team. ■ Have male and female local International Federation personnel amongst participants to capture informal comments, suggestions and questions. ■ Make specific provision for women to voice their concerns and comments. ■ Ask the community members what they would like to see improved on the site. ■ Be honest about what can and cannot be changed in the ongoing construction. 9 ■ As far as possible, have all those involved in the housing construction available to answer any technical questions and to explain their respective roles. ■ Ensure that technical issues are explained clearly and in a way that people can understand. ■ Get formal feedback from the community on their views/reactions to the construction immediately after the visit.

Informal visits and meetings During the development of the beneficiary selection guidelines, the team carried out informal visits to the displaced community on the five islands. Members of the team dropped in to the homes of key members of the displaced community and went door to door to meet families living in temporary shelters. This gave the community members a chance to get to know the International Federation and Community participation in rebuilding in the Maldives its staff better and to discuss concerns about the housing project in a relaxed atmosphere. It also demonstrated to community members that the International Federation cared about them and their concerns.

It became apparent during the visits that many people were more comfortable in these informal settings and were more inclined to talk freely about their lives in the IDP camps and their hopes for the future. Since discussions were held in small groups in someone’s home, people were more likely to open up than they would be in a public meeting or formal discussion. It was also a good opportunity for the team to observe and understand cultural behaviours within the displaced community.

Telephone hotline The Maldives is developmentally fairly advanced and Just back from the field. The visit to Dhuvaafaru, most people would have access to a telephone. A Ungoofaaru, Meedhoo and Maduvvaree went really special hotline was therefore set up at the International really well. Community extremely satisfied with the Federation office in the capital city of Male to enable beneficiary criteria and hoping the International community members to contact the team with queries “Federation will be able to apply the criteria, since they or to obtain clarification on issues relating to the understood the paper has been developed based on needs beneficiary selection criteria. The number and and vulnerability. specified hours when they could call were International Federation IDP camp and support delegate communicated to all members of the community. ” International federation

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Putting words into graphics: communicating the guidelines After all the information had been collected at household level and input had been obtained from the government and from the International Federation’s partner National Societies, it was time to inform the communities of the selection criteria for beneficiaries of the houses on Dhuvaafaru island. The guidelines were mainly a response to questions and concerns that the members of the displaced

International Federation of Red Cross and Red Crescent Societies community had raised earlier with the International Federation team. They covered different scenarios, such as: the death of the head of the household and/or owner of the title to the property; divorce; non-registration of the house at the time of the tsunami; joint ownership of the house by a couple; and the case of orphans.

As many of the IDPs could not speak or read English, the guidelines were translated in the local Dhivehi language. However the The use of informal, highly interactive communication methods International Federation IDP support team felt throughout the beneficiary selection process made the IDPs feel that the guidelines would be more accessible and part of the process… But there are likely to be more challenges understandable if they were also presented in a when the final list is released… Bring it to us early so that we visual or graphic form. The team therefore “are able to resolve the problems and psychologically prepare the reproduced the key messages of the document in IDPs to move to their new homes. the form of simple drawings of houses and Atoll chief, Raa Atoll people on a large poster-sized piece of paper. The drawings also conveyed what would be done to address the complex issues just ” mentioned, such as joint ownership and divorce. By reinforcing the connection between “seeing” and “thinking”, the drawings thus stimulated discussion on and analysis of the guidelines. fnormality. of taeisadatvte eeoe r drsigise htaese sipratb h community. the by important as seen are that issues addressing are developed activities and strategies ecpin,adyti stems motn trigpit e ato hspoesi oesr that ensure to is process this of part key A point. starting important most the is it yet and perceptions, sfsemn oa uhrte,yugpol,ec,t eueterrl a otiuet htsense that to contribute can role their resume to etc., people, young authorities, local fishermen, as ipae ouainwopae e ati h omnt’ tutr ro otedsse,such disaster, the the to prior of structure segments community’s encouraging the and in Identifying part community. key the a played in who normality population of displaced sense a support that ebr’rl nspotn htpoes sti a evr ifrn rmtesafmmes own members’ staff staff the the of from and different very process be recovery may the this of as expectations process, community’s that the supporting on in early role gauge members’ to crucial is It olwn iatraddrn ieo ceeae hne i okr edt dniystrategies identify to need workers aid change, possible accelerated as of soon time as a security during physical and and certainty disaster on of a is sense Following recovery. a sustainable process Provide long-term 2: to psychological, recovery Lesson key emotional, also the the is of community addressing the nor – focus of before mortar” needs main witnessed and spiritual and never “bricks the social had – Although they rehabilitation scale and happen. a reconstruction ever on tsunami infrastructure the could Maldives, whole devastated the the imagined In at and experienced. look people has to community important many the is affected disaster it disaster, of a type from the recovery particularly its context, during community a in working holistically When needs View 1: up Lesson came team construction the and enumerators reflections: the following team, the support with and management camp IDP The learned lessons Some ■ ■ ■ highlighted has date to Maldives the in ■ process involvement outcomes: positive community some the from experience The impact Project h omnt a aepeocie da ftero hi gnysrl.Tercpinte e,for get, that they aware reception be The to role. agency’s need their time or first their the of for ideas preconceived community have disaster-affected may a community into the going agencies aid of expectations Staff community Manage 3: Lesson xml,mydpn nhwtecmuiyprevsteognzto hyrpeetadwhat and represent organization. they the organization by community the the perceives with established community been the already how have relationships on depend may example, omnte nteRaAtoll. Raa the in Crescent communities Red Cross helped Red has the of and role activities its in participation has community authorities Federation Enhanced local the International the involve in the to Atoll, participation to efforts sustained Raa visits. active its site the for their of of government planning ensuring the islands and and Selection the Beneficiary Across support for Guidelines their the of enlisting development formally by community. established the with relationships foundations enduring more The developing for point entry appropriate with working and training Recruiting, ul h capacity the build o ogtr eainhpwt h oa uhrte nteRaAolwere Atoll Raa the in authorities local the with relationship long-term a for ftelcladministration. local the of nrae h iiiiyadipoe h ecpino the of perception the improved and visibility the increased sa pn aradacutbeognzto mn h IDP the among organization accountable and fair open, an as ebr ftedslcdcmuiywsfudt ean be to found was community displaced the of members andrespect earned rmthe from

Community participation in rebuilding in the Maldives 11 12 International Federation of Red Cross and Red Crescent Societies hs klscnb ute nacdtruhtann n ersupport. peer and training through enhanced further be can skills These rgam mlmnessol aeaeut klsadeprec nwrigwt communities. with addition, working In in discussions. experience facilitating and people skills local adequate have have should and implementers language programme local the in information provide nodrt aescesu omncto n oslainwt omnte,i sesnilto essential is it communities, with consultation and communication successful sets skill have relevant to with order resources human In adequate Ensure programming quality 7: better Lesson programming linkages to leading the of board, make the aspects across to different shared able be these can be of skills and staff overall. integration needs of pool The coordinator recovery a projects. recovery of that a means view and includes holistic sectors a which different Integrated have structure between future. should management the role a for This desirable by position. highly facilitated of is be integration that programmes Better can of including sanitation. programming aspects and tsunami, people-focused water and with the housing technical after on of focused Maldives strongly is the Societies, National in partner programming Federation’s International programming The access integrated to Encourage able 6: development. are Lesson and they recovery if community effectively in the more training work from and in will support pressure sharing role volunteers of in identifiable and under forms valuable an appropriate are staff come communication with pressure, open organization, also this and an of alleviating support may of mix and peer face” they While a “public process. from But the recovery arise the as task. supporting can seen the pressures are context, they to recovery because commitment a community in and working beliefs volunteers personal and staff agency aid programme For recovery a in working related pressures to the understanding Acknowledge community’s an 5: the gain on Lesson to capitalize and to and community ways the reveal people of certainly their trust almost the will capacities. of This earn existing dynamics. to protective and vital workings and is its it of independent player, new resourceful, a As generally structures services. community are existing communities with work Isolated assisting and agencies Respect 4: the Lesson and communities the misunder- between or displaced and tensions reduce the communities to on them. two help exclusively will the focus This them. not between hosting do standings community consultation the and on also communication but that community, important wholesale also transplanted is be It can that recipes other context. as in recovery employed seen been different be have totally activities necessarily a and not into strategies should what of they appreciation processes, an recovery have to useful is it While Altuna Soylemezoghu/International federation h rsneo omn diinlpeople. additional many so of presence the ihtegvrmn bu htrsucscudb aeaalbet upgrade to available made be from arising services could on pressure the resources reduce to what order in communities about host in government infrastructure the with nte ot oietf omnt ed.I uue twudb dial odialogue to advisable be would it future, In needs. community identify to route another sadadaolpoe ob nefciewyo uligrltosisadprovided and relationships building of way effective an be to proved atoll and island ti locuilt eonz h udnpae nhs omnte yIPsettlements, IDP by communities host on placed burden the recognize to crucial also is It okn lsl ihteIPcmuiysiln he,a ela h heso h host the of chiefs the as well years. three as to chief, up for island island community’s host IDP the on the living with be closely will IDPs Working the where context a in especially communities. the omnt esosadjaose.We eiigwa cin otk rwa services what or take to actions what deciding When jealousies. and tensions community odlvrt Ds ti seta ocnie ouin htd o raedvsosbetween divisions create not do that solutions inter- consider preventing to essential to is it key equitable IDPs, was to The deliver communities. communities to host between Alifushi the services and and and Meedhoo IDP Maduvvaree, goods the on of both tanks, distribution for water standards as living such improved services, of ensuring as provision well The as community, the within tensions the transparency. significant reducing and and a and fairness plays communities earlier trust also the building The action in between Federation, importance. part International and and the utmost communities open For an two the Federation. creating International the and of trust between building is dialogue of chance settled honest the greater temporarily the in begins, are community communication host IDPs the and where community IDP places the between communication good Ensuring communities IDP and host between communication of value The lesson: key A

Community participation in rebuilding in the Maldives 13 14 International Federation of Red Cross and Red Crescent Societies nteln u,i sepce htti iheprec ilcnrbt oteeegneo strong a of emergence the Maldives. to the contribute in will level experience local at rich process this development be that the expected in to is voice proved it community run, activities long involvement the In community of understanding participation the and as Moreover, in communities. well their leadership pivotal. within as local standing authorities, familiar good the recruited, a local locally of enjoy are and and members locality team staff if their enhanced with Federation further interact is International communities Sustainability displaced Maldives, themselves. with whereby the amongst of process constructively case a and the as of In emerging regularly members programme. is recovery with involvement any relationships community of sustainable sustained implementation and the effective during building community to the ground. key the is on involvement and staff the support Community of their demonstrate credibility gain the to to reinforce and significantly able people apply will inform be to to process capacity this and to The in for way. and trust this opportunities in programmes identify working to of recovery implementing benefits trained and in potential be planning to approach in need involved community-development Staff those a programme. by or overlooked project often recovery process is recovery a it the yet through community overestimated, a be supporting cannot in participation community of importance The situation win-win A participation: Community International federation

15 Community participation in rebuilding in the Maldives

ANNEX 16 International Federation of Red Cross and Red Crescent Societies hles ti lopoiigaswrsse o fletdsoa o l e hlesadsrie that services island. and same shelters the new on housing all of existing for to provision disposal accessible effluent the be for funds to system are Federation sewer and International a into extend providing the also Wherever is Dhuvafaaru. it shelters, Raa, on facilities) and .Griho 0 hleso h uauahoad60setr pu soitdpbi buildings public associated (plus shelters 600 and Dh. on shelters 109 , K. nadto,tecnet fti ae a eue ocmuiaeorsrtg fetvl with: effectively strategy our communicate to used be can paper this of contents the addition, In a tls npriua,teei omtetfr1 hleso .Mauh,4 hleson shelters 46 , K. on shelters and 14 Dhaalu Kaafu, for in commitment islands a four is on there shelters particular, of In building Atolls. the Raa funding is Federation International summary Programme ■ ■ ■ ■ ■ ■ with: strategy implementation and communication our of basis the provide ■ to intended is the paper share This to audience is manner. Intended transparent paper and open this an in of (GoM), stakeholders Maldives objective of other Government and with The of communities beneficiaries affected of terms constant. selection in the remains However, to approach characteristics. approach common Movement’s different our have criteria, plots most. original it beneficiary need on who reconstruction those and that to more Relocation shelter (provide provide assets to replace aims a to rather within position but Crescent people a person) is vulnerable Red in per shelter most Cross not house the is one of Red are Movement the provision beneficiaries the Worldwide the this, the where tsunami. Considering community. basis that the ‘needs’ from understanding a on recover an operates to tsunami Movement on assist families to based enabling is are Maldives in the essential projects in operating The context. Movement The local Crescent populations. Movement. the Red Crescent affected Cross by Red informed Red the are Cross for and premise Red principles The these the with of line principles in are the paper with this is accordance Cross in It Red outlined in French date. guidelines the act to and Movement Cross to Red the British obliged of the part Federation, are experiences as International the the selection on that beneficiary highlight draw for to guidelines used important be These the to programmes. and guidelines recovery Cross following Red their the British of agreed the Societies, jointly Crescent have Red Cross and Red Cross French Red the of Federation International The Cross Red Maldives. French of Introduction Cross, Government Red the Bristish with the Secretariat by Federation agreed International criteria the the and are These note: Please Maldives Construction the Permanent in Movement Programmes Crescent Red and Cross Red ANNEX udlnsfrBnfcaySelection: Beneficiary for Guidelines sadDvlpetCmite,WmnsDvlpetCmite,IPCommittees IDP Committees, Development Women’s Committees, Development Island Chiefs Island Atolls and of Chiefs Ministry Atoll and Development National and particularly) Planning Development of (Ministry Maldives of Government osrcincontractors Construction beneficiaries Shelter communities Island partners Cross Red / groups working / forums technical Shelter ae 06/09/06 Date: tlzdefciey h rcs ilb eindadipeetdi oriainwt the with coordination in are issues). that registration implemented interventions (i.e. legal cases and any individual support resolve are designed to to funds requested order donor are be in GoM that required addition, and will In programme; Maldives. process shelter of the most Government The the in that included effectively. house; are replacement appropriate affected utilized an tsunami receive those homes the that of ensure of need to vulnerable in are and general tsunami in the identification by underpinning affected principles basic the above, discussed As .Oepro aoe slvn ntehouse the in living is (alone) person One 1. ■ ■ ■ selection beneficiary for Guidelines ■ ■ ■ island ■ the and process: construction selection ■ the of up nature make the will agency, activities ■ Cross following the Red general the In on context. depending differ will Processes identification beneficiary for islands. community Process 6 a these implementing on also programme is Thaa, management Cross on Red houses disaster are 250 British and lists to The recovery Beneficiary up system. livelihood building atolls. sanitation based is 3 communal Cross across the Red islands British as 6 the well islands. on as 6 houses the 545 of build 5 to for agreed confirmed has community Cross on - a Red British in implementing shelters The as also new well is fund Cross as Red Gan will Island French on Cross Gan The resettle on confirmed. Red to programme be integration French willing to not The list beneficiaries Gan. final training for Mukurimagu, vocational for islands a Kalahidhoo Gan confirmed and of preschools currently & extension is 2 is Mundhoo the school, as list Cross primary well Red a as Beneficiary French centre, Gan Laamu sport The centre. on a shelters. houses centre, 400 240 community of to a settlement up hospital, new provide a of to building agreed the funding has Cross Red French The ■ plot a get ■ to list Waiting 2. ■ ilol rvd n os otefamily. the to house one provide only will ceesol ecniee ocmest h individual. the compensate to considered be should scheme h loaino mt lt fln ntenwiln ed ob oea ona possible as soon as done be to commence. needs to island construction for new order the in island. beneficiaries) new in of the land confirmation on with land of parallel of plots in plot (ideally empty empty an plot of receive empty should allocation an island for The original case) the (approved on applied land who families of those relocation/resettlement, to regards In all. to affected fairness and vulnerable equity most with the resources limited targeting its of allocate GoM: objective to to bound the Recommendation is and Cross principles Red living the Cross communities, individual Red an the of to case According the a In is individuals. it relatives. not if with that but live agreed families to eventually to encouraged was houses be it should provide but they will family members) design Cross the 2 to Red of or planned size (1 GoM family the Initially, small on GoM. very depending with houses agreed of as types houses two 3-bedroom providing is Cross Red authorities. national and local with institutions collaboration and committees local level, of community engagement at discussions group focus data, participatory Census and VPA of community, analysis local the with referencing cross interviews, level household ihrltvsi h eprr hle ri nte os/otfml tpeet h e Cross Red the present, at family house/host another in or shelter temporary the in relatives with a rvso fepypo,()fnnilcmesto n/rloan and/or compensation financial (b) plot, empty of provision (a)

Community participation in rebuilding in the Maldives 17 18 International Federation of Red Cross and Red Crescent Societies 2 1 purposes commercial ■ for house Registered 8. ■ tsunami of time the ■ at house Unregistered 7. ■ ■ ■ construction under House 6. ■ ■ ■ ■ families Extended 5. ■ Deceased 4. ■ ■ (unsolved) couple Divorced 3. hsi htoepro ilbnftfo w houses. two from benefit will person one that is “ this happen: not should what of rvd eodhuefra xeddfml n ilrcmed nta,teatiuino n e rs-uddhueplus house Cross-funded Red one GoM. of by attribution funded the scheme instead, loan recommend, on will house and with family plot extended empty an one for house second a provide iaca iiain n nta biain fGMwl ecniee.Hne ncranilnsRdCosmyntb beto able be not may Cross Red islands certain on Hence, example considered. an be as will case GoM following of the obligations Take initial houses. and two limitations from Financial benefit not will titleholder one that emphasize to crucial is it case this In os eoetetsunami. the before house fafml a iigi os ttetm ftetuai hntehuet os policy house to house the then tsunami, the of time the at house a in living was family a If applied. plot. be empty will an criteria as foun- considered family be the extended will only GoM: the it If family to tsunami tsunami. large the Recommendation the a of of time of time the case the at the laid at In were in wall living boundary were a people or that dations houses replace will Cross Red of more are reality families the extended house. link second which will a define way for to eligible participatory concept be a should vulnerability and in the vulnerable conduct themselves with to families communities intends Cross extended the Red the which the community, in and exercise island each an the of criteria to features family specific extended obligations of the community formulation Considering initial the the in of our stakeholders, participation considering all active include including and to aims limitations Cross Red operational the GoM, and financial our Within ■ ■ ■ ■ case tsunami. each the analyze by to ■ affected Red used families the be vulnerable of will objective those variables main to Several The shelter complex. provide particularly to be is to Cross proven has concept family extended The house Cross Red should 1 documents only registration own proper may thus, person and, 1 completed provided. be be should processes from inheritance benefit Legal will family the of majority live. the to divorce, place of a case have the will in and house that the ensure they to where and is rights objective ownership future. The without the partner in the living of situation be the will analyze to need will Cross Red ocmeca ulig ilb elcd e rs spoiigsetradntrsoigbusiness restoring not and shelter providing is Cross assets. Red or replaced. be will buildings commercial No the of occupancy the confirming document a issue Office Atoll the that required is it this verify To materials. building lost the for compensation financial plus plot empty an receive will living) for fshelter). of ilapyidpnetyo h eitainsau ftehue(ae ntecneto provision of concept the on (based house the of status registration the of independently apply will ubro ula aiiswti h xeddfamily extended the within families nuclear family of the Number in members disabled and Elderly family the of composition Age family the family) of the composition in Gender members of (number size Family esni wre n e os lhuhte r e oihrtascn os.Tecneuneof consequence The house. second a inherit to set are they although house new one awarded is person A nepypo fln ihhueudrcntuto ntsuitable (not construction under house with land of plot empty an ” 2 . 1 . ■ ■ tsunami of time ■ at house Empty 14. ■ ■ house Abandoned 13. ■ ■ ownership Multi 12. ■ ■ tenants) ■ (under house Rented 11. structures different with subplots several ■ into subdivided Plot 10. structures several ■ into subdivided House 9. 3 ■ plot Empty 15. iihd,tehuewl eaporaeymitie ncniinfrihbtn.Ti sa niao htteitnino the of has intention education the when that or indicator leave an school is vacation, island. This (for the inhabiting. house to for the back condition to go in back to maintained go is appropriately to family be intention will the house has the family finished), the if tradition, to According fiesalcnutwt h aiycnendad fstsid rvd oueti hc the which in document a house. provide selected satisfied, the if ot and, concerned family the with consult shall office os ilntb osrce sarpaeetfra mt lto land. of plot empty an for replacement a as constructed be not will house A elsewhere. property other any have not does landowner the that proved be should It eligible be shall house this then island, the stayed to has back reasons, economic go family and/or to the education intention for for the years has 5 opportunities last and the economic visits within during house new the or left family years children the 5 If their last the for in education houses their members. higher subsequently a and origin seeking of islands in house. their abandoned left an have as families considered Numerous be will it years 5 last the for occupied been not has house houses. the abandoned If replace second not the will and Cross Red house one in living family the second a houses: for 2 opt to owning family rent). person extended for same 1 house the to of members opposed equality be (as promoting to have manner house houses transparent two the and in fair Ownership living a People used. in be members. will distributed family community criteria extended be the family an among should of extended houses case the the landowner, the In same over person. the rights same under the houses to house 2 1 in than living more provide not will Cross abandoned Red as considered be will it years, 5 than more for loan’ ‘on which or neighbors) rented house. or been (relatives has replaced. others house be to the will loan’ transaction. If ‘on house other financial houses the a any island those imply have the for not to not taken do back be does go will landowner to approach the intention similar the if A evidence considered: can be he/she shall and house’ property ‘empty person as same approach the Similar If applied. be used. be will will criteria criteria house family to extended family house by the occupied structures the been different years), have the 5 structures owns all last (and the owners during different several members to belong plot the Should applied. be should criteria family Extended neto ftefml og akt h sadi ttdadtetmoaieso h tts(empty) status the of temporariness the and stated is island the to back go to family the of intention 3 Atoll .

Community participation in rebuilding in the Maldives 19 20 International Federation of Red Cross and Red Crescent Societies ■ ■ ■ ■ ■ ■ do: not will ■ Cross Red the What ■ ■ provide: will ■ Cross Red the What ■ ■ owners potential Orphans/underage 17. ■ house a own wife ■ and husband Both 16. ■ eito nfml iptso esnlissues. personal or disputes family on Mediation housing replacement walls boundary the reconstructed Construct of being repairs houses house out for to furniture opt related Provide repayment to loan wishing in homes involved own anyone Be their for build to compensation and/or of programme sort any Provide houses damaged on extensions Build accommodation and, temporary additional house Provide replacement layout. each shelter internal for as such kit appropriate and harvesting possible where water appropriate). beneficiaries (where for rain tank Options septic A household a system: minimum, at sanitation and 86m requirements: Water GoM per as shelter A families. to shelter provide GoM: to to house Recommendation a the replace that will be Cross Red may recommendation spouse. each the for house, cent a per 50 own be them will of house two new the the for Should ownership replaced. be will to there are large not house. is GoM: second family to a the Recommendation provide if to Therefore, applied. justification be no will be criteria family) (extended size Family other). each attribution nearby the relocated with be coordination to in families awarded extended possible, be (when should houses plots new empty of plot; empty an with replaced GoM: to Recommendation idtelglslto nodrt eitrtehuei h otaporaemanner. appropriate most the in house the register to order in solution legal the find ntecneto eoainadrstlmn,a mt ltsol be should plot empty an resettlement, and relocation of context the in aradtasaetciei hl eue odtriewihhouses which determine to used be shall criteria transparent and Fair ntecs fteptniltteodrbigudrg,GMshould GoM underage, being titleholder potential the of case the In 2 ero,2btro,gfl,lvn room living gifili, bathroom, 2 bedroom, 3 , The Fundamental Principles of the International Red Cross and Red Crescent Movement

Humanity The International Red Cross and Red Crescent Movement, born of a desire to bring assistance without discrimination to the wounded on the battlefield, endeavours, in its international and national capacity, to prevent and alleviate human suffering wherever it may be found. Its purpose is to protect life and health and to ensure respect for the human being. It promotes mutual understanding, friendship, cooperation and lasting peace amongst all peoples.

Impartiality It makes no discrimination as to nationality, race, religious beliefs, class or political opinions. It endeavours to relieve the suffering of individuals, being guided solely by their needs, and to give priority to the most urgent cases of distress.

Neutrality In order to enjoy the confidence of all, the Movement may not take sides in hostilities or engage at any time in controversies of a political, racial, religious or ideological nature.

Independence The Movement is independent. The National Societies, while auxiliaries in the humanitarian services of their governments and subject to the laws of their respective countries, must always maintain their autonomy so that they may be able at all times to act in accordance with the principles of the Movement.

Voluntary service It is a voluntary relief movement not prompted in any manner by desire for gain.

Unity There can be only one Red Cross or Red Crescent Society in any one country. It must be open to all. It must carry on its humanitarian work throughout its territory.

Universality The International Red Cross and Red Crescent Movement, in which all societies have equal status and share equal responsibilities and duties in helping each other, is worldwide. PROTECTING HUMAN DIGNITY

The International Federation of Red Cross and Red Crescent Societies promotes the humanitarian activities of National Societies among vulnerable people. By coordinating international disaster relief and encouraging development support it seeks to prevent and alleviate human suffering. The International Federation, the National Societies and the International Committee of the Red Cross together constitute the International Red Cross and Red Crescent Movement. 110200 07/2007 E 1,000