RAPID ASSESSMENT REPORT OF THE IMPACT OF THE TSUNAMI IN THE MALDIVES

27 January 2005

World Food Programme Rome, Italy

MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

MISSION COMPOSITION

Scott Ronchini, VAM Officer, WFP Afghanistan (mission leader) Allan Kute, VAM Officer, WFP Kenya

ACKNOWLEDGEMENTS

A special and deeply felt acknowledgement is given to all the people on the islands who talked about the tsunami and its effect on their lives to the assessment team.

The team would like to thank the Government of the Republic of the Maldives for their assistance and cooperation during this assessment. In particular, for their time and information, representatives of the Ministry of Fisheries, Agriculture and Marine Resources, the Ministry of Atolls Development, the Ministry of Tourism, and the National Statistics Department. From the latter, Aishat Shahuda and Ahmad Nihad are especially thanked for their time and provision of data. The team would also like to thank and acknowledge all the staff in the Disaster Management Centre that so willingly shared data and their knowledge and understanding of the situation from the field reports being received.

Steve Collins is gratefully acknowledged for his invitation to join the OXFAM assessment in Thaa and Laamu atolls and for his involvement and participation in this assessment. FASHAN, SHE, and the CARE Society are also greatly acknowledged for their involvement and assistance in conducting this study during the island visits. Save the Children UK are thanked for their discussions over the findings, and for their thoughts in formulating and drawing conclusions from the assessment.

For their logistical support and facilitation in liaising with various Ministries and the National Disaster Management Centre, UNDAC, UNICEF, and UNDP Maldives are thanked.

For their assistance in the preparation and analysis of the Vulnerability and Poverty Analysis 2004 data used in this study, a special thanks and acknowledgement is given to Karen van der Wiel and Judith Poleon. For her contributions and inputs into the impact of the tsunami on nutrition, Nina Kolbjornsen from WFP is acknowledged.

The team would also like to thank all those others that have assisted and facilitated the work in this study, and reviewed and provided invaluable comments and feedback prior to the finalization of this report.

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EXECUTIVE SUMMARY

1. The tsunami that struck on the morning of the 26th December 2004 was the worst disaster to have ever hit the Republic of the Maldives - 82 people lost their lives, and a further 26 people are still missing. Of the 200 inhabited islands, available data indicates that 69 were completely flooded, 17 were half flooded, and 27 and 24 suffered one third and minimal flooding respectively. In 51 islands, an estimated 4,000 homes and buildings were damaged or destroyed.

2. The Government responded to this disaster immediately, providing a free food distribution to all islands within days of the disaster, as well as providing other non-food items and tents together with other aid agencies, NGO’s, and the private sector.

3. The objective of this assessment was to rapidly provide a description of the impact of the tsunami on food security, and to determine if there are people in need of food assistance, the response and targeting options, and any other longer-term assistance needs for WFP and partners.

4. Within these parameters, this assessment drew on secondary data to categorize islands by broad economic activities, and post-disaster data to ascertain levels of damage that would have had an economic impact on people’s purchasing power. Secondary data was used to estimate the numbers of people in the islands involved in different types of income generating activities, and field visits and focus group discussions on the islands were conducted to ascertain how these have been impacted on by the tsunami.

5. The assessment categorized 199 islands (the capital Male’ was excluded) into 4 areas: Category 1, in which more than half the population was displaced (13 islands) due to loss of homes and large scale flooding; Category 2, where there has been complete or more than half flooding and / or large structural damage (82 islands), and where the greatest numbers of people likely to require assistance would be found; Category 3, where between a third and a half of the islands were flooded (23 islands) and in which some people may have been affected; and Category 4, which had minimal flooding and little to no structural damage (81 islands), where monitoring to ensure that no negative effects of the tsunami begin to manifest themselves on people’s livelihoods.

6. Key findings indicated that in the 13 (Category 1) islands where displacement has occurred, all people irrespective of economic activity would require assistance. Almost all houses have been lost - people are crowding into tents or with other families thereby increasing the risk of disease outbreaks, and strain is being placed on water, sanitation, and other facilities and resources of the host communities. IDP’s have been identified as one of the most vulnerable groups, and would require immediate and continued assistance until they can return and rebuild their homes, or be resettled elsewhere. An estimated 12,000 people fall into this category.

7. In terms of economic profiling of the population, those families that are unemployed and are not receiving remittances are considered to be the extreme vulnerable, as they will be relying on other members of the community for their needs. Those families that rely on agricultural production have lost seeds, tools and fertilizers, and water and arable land has currently become too salty for agriculture – until these two resources have been desalinated, there is little scope for these people to produce income. Small skilled artisans that require power tools, such as carpenters, welders, and seamstresses have either lost their tools and equipment or it has been damaged by salt water – they have little other income generating options until this equipment is replaced, and few skills to pursue alternative livelihood options in the short term. Families that dry and process fish for the Male’ and export markets have lost some or all of their equipment, and will be facing economic hardships until this equipment has been replaced. All these groups should be considered vulnerable to the current situation, and would require support to get their livelihoods back on track.

8. Those families from the agricultural, skilled artisan, fishing, or fish-processing groups that have secondary or other sources of income are also vulnerable to loss of income and as such food insecurity, but to a lesser degree than those families who pursue the same activities yet as their primary income source.

9. A third group of people were identified – those who had a regular source of income, or who would not require specialized tools to pursue livelihood activities and could benefit from the reconstruction that is about to take place. Government employee’s and public service workers, those involved in construction or working in tourist resorts, traders, and those families that are receiving remittances from outside of the islands fall into this group. Although these people have also been affected by the

3 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

tsunami, will face economic trials in rebuilding their homes, and would benefit from any relief efforts, they nonetheless still have a source of income that the other groups may not.

10. The most appropriate and immediate to longer-term response for all of the affected populations would be through cash based employment, linked to reconstruction. Cash injected into the island economies will boost people’s purchasing power, stimulating trade and the flow of goods and commodities required for people to rebuild homes and livelihoods. Credit and loans schemes for those that need to replace lost tools and equipment are essential, particularly if this equipment will be used in reconstruction efforts. However, many people are concerned that they would be unable to take a second loan, if they have an outstanding debt from the time before the tsunami.

11. Cash based employment has already started in most islands by the Government, the private sector, and national and international NGO’s. During the time it takes to establish and implement these programmes, and in the lead time for people to be paid and benefit from this income, food assistance would be beneficial in the immediate short term for vulnerable people to act as a safety net and alleviate expenditures from limited financial resources. Such food assistance though, should be limited in duration, clearly targeted, and phased out according to vulnerability and livelihood profiles once the benefits from cash based programmes are realized. Food for work schemes will not be appropriate for the most part, and food support should be given freely.

12. The Government is currently giving a second free food distribution to an estimated 36,000 people that are displaced and have lost their homes, tools and equipment, or those that have damages to houses, although the level of damage has not been defined. This is also the same group of people that received a free cash payment in January. Beneficiary figures have been determined by the Ministry of Planning, and will be revised as the situation changes. At this stage, there is no Government decision on whether they will continue free food or cash distribution after January.

13. During the time that it takes for WFP food stocks to arrive in the Maldives, WFP could play a role in assisting the Government to target and monitor their own in-country stocks, and phase out food distributions as cash based programmes begin to take effect and benefit the most vulnerable. WFP could then replace these stocks, and furthermore, should give consideration to replacing some Government stocks distributed freely immediately after the tsunami.

14. In total, an estimated 29,000 vulnerable people would benefit from food assistance in the interim period whilst cash based employment schemes begin and money starts flowing through the island economies. These people are to be found throughout islands categorized as 1, 2, and 3, and will comprise of various livelihood profiles.

15. In the 13 Category 1 islands where mass displacement has occurred, food assistance would be beneficial to 12,000 people irrespective of livelihood group.

16. In those 82 islands that fall into Category 2, food assistance would be beneficial to families that are unemployed and have no family support, agriculturalists, manufacturers, and three quarters of the fish processors. An estimated 14,500 people would benefit from such assistance to alleviate limited household cash resources and income, and act as a safety net during the time it takes to establish cash employment, credit, and loans.

17. Vulnerable groups that could benefit from food interventions in the 23 islands in Category 3 would be the unemployed with no remittances, agriculturalists, half of the manufacturers and a quarter of the fish processors. A total of 2,200 people would benefit from this assistance.

18. Given the loss of fresh foods from the diet, and the likelihood that there will not be great improvements until agriculture is re-established, the provision of high energy fortified biscuits to schools will help to mitigate against the loss of essential nutrients amongst school children.

19. The remaining 81 islands that fall into Category 4 should be monitored by the Government to ensure that no negative changes in food security occur.

20. In the absence or delay of cash employment schemes, WFP should revisit its phase out strategy to ensure that the most vulnerable groups do not unnecessarily suffer food shortages, and to arrest possible further nutritional deterioration.

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TABLE OF CONTENTS

1. BACKGROUND...... 6 2. OBJECTIVES OF THE ASSESSMENT:...... 7 3. METHODOLOGY:...... 7

3.1: DETERMINING WHICH TYPE OF PEOPLE LIVE WHERE AND HOW THEY HAVE BEEN AFFECTED...... 7 3.2: DETERMINING WHICH ISLANDS HAVE BEEN MOST AFFECTED ...... 8 3.3: DETERMINING WHO HAS BEEN AFFECTED AND ESTIMATING POPULATION NUMBERS ...... 8 4. KEY FINDINGS:...... 9

4.1: EXTENT OF DAMAGES ...... 9 4.2: IMPACT ON LIVELIHOODS ...... 10 4.2a: The unemployed ...... 10 4.2b: Agriculture...... 11 4.2c: Manufacturing ...... 11 4.2d: Fishing and Fish processing...... 12 4.2e: Construction ...... 12 4.2f: Trade and transport...... 12 4.2g: Tourism ...... 13 4.2h: Government / public works ...... 13 4.2i: Other sectors...... 13 4.3: INTERNALLY DISPLACED PEOPLE (IDP’S) ...... 13 4.4: OTHER INFORMATION...... 15 4.4a: Credit and loans...... 15 4.4b: Nutrition...... 15 4.4c: Women’s Development Committee’s ...... 15 5. CONSIDERATIONS FOR ASSISTANCE AND RESPONSE ...... 16

5.1: CASH AND FOOD ASSISTANCE...... 16 5.2: IDP’S ...... 16 5.3: THE UNEMPLOYED...... 16 5.4: AGRICULTURALISTS ...... 16 5.5: MANUFACTURERS ...... 17 5.6: FISHERMEN AND FISH PROCESSORS ...... 17 5.7: AGRICULTURE, MANUFACTURING, FISHING AND OTHER...... 17 5.8: CONSTRUCTION...... 17 5.9: TRADERS...... 18 5.10: TOURISM ...... 18 5.11: GOVERNMENT / PUBLIC WORKS ...... 18 5.12: OTHER SECTORS ...... 18 6. CONCLUSIONS ...... 19 7. RECOMMENDATIONS FOR WFP ...... 21 ANNEX I ...... 22

TABLE 1: MAIN INCOME ACTIVITIES BY ISLANDS...... 22 TABLE 2: MEAN % OF HOUSEHOLDS IN ISLANDS BY MAIN ECONOMIC ACTIVITIES ...... 24 ANNEX II ...... 25

TABLE 3: ESTIMATES OF TOTAL NO. OF PEOPLE THAT COULD BENEFIT FROM FOOD ASSISTANCE ...... 25 ANNEX III ...... 26

TABLE 4: ESTIMATED NO. OF IDP’S IN CATEGORY 1 AREAS ...... 26 TABLE 5: ESTIMATED NO. OF PEOPLE IN CATEGORY 2 AREAS...... 27 TABLE 6: ESTIMATED NO. OF PEOPLE IN CATEGORY 3 AREAS...... 28

5 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

1. BACKGROUND

The Republic of Maldives is an archipelago state, located 600 kilometers south of India. It comprises of some 1,200 islands grouped in 26 atolls, which straddles the equator from north to south across 500 miles of the Indian Ocean.

Only 200 islands are inhabited, most of them small and with an average population of around 1,000 or less people. Very few of these islands are larger than one square kilometer, are low lying and have an average elevation of 1.6 meters above sea level. They are surrounded by fragile coral reef systems and lagoons, and given their low elevations, are vulnerable to the surrounding expanse of the Indian Ocean.

As of mid-2004, the population of the Maldives is 270,000, of which an estimated 74,000 live in the capital Male’, and the remainder throughout the Republic on 199 inhabited islands. The country’s economy was primarily based on fisheries, although this has been changing rapidly in the last two decades in favour of tourism and other tertiary sectors. The potential for other economic activities such as agriculture and industrialization is limited, due to the lack of resources such as fresh water, physical space, and labour.

The Republic of the Maldives is divided into 20 administrative units, also referred to as atolls. Each atoll has an atoll chief, who handles all atoll-based administration, and facilitates and works on behalf of other central Government authorities. Each inhabited island has an island chief, who handles all island-based administration on behalf of the atoll office.

On the 26th of December 2004, a powerful earthquake measuring 9.0 on the Richter scale ripped through the seabed off the western coast of Indonesia’s northern island of Sumatra. Less then three and a half hours later, a second quake, measuring 7.3 on the Richter scale, occurred near the Nicobar islands of India. These earthquakes triggered tsunamis that wreaked havoc across most of the coastal areas in the region, with waves travelling over 2,500 kilometers to surge over the Maldives that same morning. Waves between 1 to 3.7 meters high were reported all over the archipelago.

This was the worst disaster to have ever hit the Maldives, and 82 people – mostly children and women – lost their lives. A further 26 people are still missing.

The tsunami flooded most of the 200 inhabited islands, destroying homes, health facilities, infrastructure, roads, harbours and jetties. Water tanks, electricity supplies, and communication networks were destroyed. On some islands, agricultural crops, fishing facilities, food and fuel stocks were simply washed away. On some islands, the devastation is complete – there are no structures left standing, just piles of rubble and debris littered across the island, outlining the course of the waves. Here, islanders reported that the tsunami struck from three sides at once, the waves converging in the centre and crushing all in its path. The tsunami also occurred at low tide. Had it happened at high tide, the situation may have been completely different – an additional 6 feet of water would have been added to the height of the waves. Given the low lying elevations of the islands, one can only wonder at what this would have implied for people living on the islands.

The Government response to the tsunami was instantaneous. Almost immediately, contact was made with all atoll offices to get a handle on the situation and to determine the status of people on the islands. Where communications to the islands were lost, boats were launched to establish contacts and ascertain the extent of the disaster. Communications and task force centres were established in Male’ and the atoll offices, to collect and relay information to prioritize and determine the most needed responses. Within days, the Government had distributed food and other essential commodities to all the islands. Many individuals and the private sector including resorts and businesses responded in kind, sending food, clothes, and other essentials to people in need. In Male’, the Government established a crisis centre and was managed around the clock by the Ministries and volunteers, collating data and passing information on immediate requirements to islands that were most affected.

At the same time, WFP launched a series of rapid assessments throughout the region in those countries that were most affected by the tsunami. The purpose was to ascertain whether people were in urgent need of assistance, and what the medium term requirements would be. This report covers the findings of the rapid assessment mission sent to the Maldives, and aims to broadly outline the types of responses that could be used to address the immediate to mid-term need over the next few months. A more detailed and in-depth assessment as a follow through to ascertain the long-term impacts of the tsunami on livelihoods is required. It must also be noted that in mid-2004, an in-depth Vulnerability and Poverty Assessment (VPA) was launched by UNDP and the World Bank on behalf of the Government. This data is now currently under analysis, the findings of which will give a deeper understanding of the pre-tsunami situation, against which the impact of this disaster can be measured in greater detail in the future.

6 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

2. OBJECTIVES OF THE ASSESSMENT:

The main objective of this rapid assessment was:

• To provide a description of the impact of the tsunami on food security, and to determine if there are people in need of food assistance, the response and targeting options, and any other longer-term assistance needs.

3. METHODOLOGY:

The assessment structure can be broken down into three main activities:

• Determining which type of people live where, or broad livelihood grouping based on primary sources of income, and how the tsunami has affected them • Determining which islands have been most affected, • Determining which population groups and estimating how many may be in need of assistance

3.1: Determining which type of people live where and how they have been affected Given the large spread of islands and the length of time required to cover all these islands, it was decided to group islands according to the most important income generating activity used by the majority of the islanders, from available secondary data. The capital of Male’ has been excluded from the assessment.

Using the 2000 Population Census data set, five island groups were created based on the percentage of the workforce on individual islands involved in certain income-generating activities (agriculture, fishing, manufacturing, construction, retail and trade, tourism, transport and communication, community and social services, and business). All islands were then placed into one of five categories, namely those where the workforce was predominantly involved in fishing, agriculture, manufacturing, community and social services, and a combination of these.

Once on the islands, in-depth interviews were held with atoll and island chiefs, focus group discussions from people with similar livelihood patterns, and individuals to verify the grouping of these islands. These groupings and the impact of the tsunami on the people living in these islands were verified through in- depth assessments in the first islands visited together with Oxfam. Further rapid checks were also conducted on other islands in Laamu, Thaa and Meemu atolls, together with a representative of the Ministry of Atolls, Oxfam, and two local NGO’s - CARE Society and Social, Health and Education (SHE).

Overall, it was found that islands were consistently grouped into their most predominant income generating activities as per the 2000 Population Census, and patterns on the impact on livelihoods and income generation from the tsunami were emerging. However, further work was required to refine the definitions on manufacturing, and community and social services as these categories were somewhat blurred – it was noted that this was the case on the islands that were either the atoll capitals, or were located right next to them, resulting in more urbanized activities being combined with fishing/agricultural ones.

Shortly after the return of the first missions, the raw VPA 2004 data1 was made available to the team which provided a far more updated information set. Furthermore, islands were already grouped by island chiefs according to the most predominant income generating activity in the island. These were broken down into 7 broad categories – fishing, agriculture, manufacturing, construction, trade, Government and public works, and tourism. A review of the initial grouping together with the data collected from the island visits against the VPA 2004 found that the former closely matched those of the latter, yet the VPA 2004 had clearer definitions. It was then decided to use the more updated VPA 2004 categories (see Annex 1 – Table 1).

1 The VPA 2004 data used in this study and any results inferred from it should be regarded as preliminary, as the VPA analysis is currently underway. 7 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

3.2: Determining which islands have been most affected Within days after the tsunami, field reports began arriving from the islands indicating the estimated extent of damages. These reports provided information on a wide range of indicators, such as jetties, harbours, the number of boats lost, and so on. For this analysis, two key areas - namely structural damage (i.e. destroyed buildings) and flooding - are being used as proxies to define which areas and populations will have been affected in the short to medium term.

This data used in this part of the analysis was last updated on the 2nd January 2004, after which further updates where not made available to the public.

3.3: Determining who has been affected and estimating population numbers The consultancy team working on the VPA analysis provided a breakdown of the estimated number of households involved in one of 14 livelihood types based on income (or lack of) sources, for each island. Although these figures were weighted to be representative of the islands, the sampling size on many of the islands was 10 households. It was felt that this would be too specific when trying to estimate the number of people affected at an island level.

Thus, the mean was taken of all households involved in these 14 livelihood activities, from all the islands grouped by their primary livelihood activities (see Annex I – Table 2). These means were then applied to the total population of each island according to their livelihood status, and aggregated up to the atoll level.

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4. KEY FINDINGS:

4.1: Extent of damages Of the 199 inhabited islands considered in the assessment, 4 had all their buildings destroyed, 9 lost three quarters of their structures, 7 lost half, 31 lost a third, and 82 had no structural damage (no data was available from 66 islands). A total of 3,997 buildings were damaged in the Maldives and will need to either be reconstructed or repaired. The extent of this damage is currently being assessed to determine the levels and approaches for response in regard to housing.

The majority of islands were flooded to varying degrees immediately after the disaster. Available data showed that 69 islands were completely flooded, 17 were half flooded, and 27 and 24 suffered one third and minimal flooding respectively (no data was available on flooding from 62 islands).

The table below indicates the number of islands and the extent in which they were flooded or suffered structural damage (source data: post-disaster assessment; National Disaster Management Centre, Male’).

Cross tabulation Level of structural damage of number of islands affected All 3/4 1/2 1/3 None No data Total All 4 7 5 22 11 20 69 Half 3 8 6 17 1/3 1 3 15 8 27 Minimal 18 6 24 No data 2 1 3 30 26 62

Level of flooding of flooding Level Total 4 9 7 31 82 66 199

Using the above information, and looking at areas where displacement has occurred, islands were categorized into 4 areas in which the highest number of affected people were likely to be found, or who would require monitoring. These categories are defined as follows:

Category 1 islands:

• Islands in which more than half of the population has been displaced, where there has been complete flooding, and in which large structural damage has occurred. In these islands, the entire population would require some level of support, irrespective of their economic profiles. A total of 13 islands fall into this category.

Category 2 islands:

• Islands that have been completely or half flooded, even if no structural damage has occurred. This is based on the assumption that even if there was no damage to buildings, flooding is likely to have destroyed or damaged agricultural lands, seeds, tools and fertilizers, or equipment related to specialized income activities such as power-tools for carpenters. Conversely, islands that have had lower levels of flooding yet have suffered structural damages also implies the loss of assets, and so are placed into this category. Within this group, only people with certain economic profiles would require some level of support. A total of 82 islands fall into this category.

Category 3 islands:

• All islands that have been flooded between a third and a half, even if no structural damage has occurred. This is based on the same assumptions referred to in the second category above. A total of 23 islands fall into this category.

Category 4 islands –monitoring essential:

• Islands that have had minimal flooding will require monitoring to see whether agricultural production has been affected. This will be the same for all islands that have no flooding data. A total of 81 islands fall into this category.

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4.2: Impact on livelihoods During the VPA 2004, island chiefs were asked to state the most important economic activities in which people from the island are involved in or rely on, and to rank these activities in order of importance. The data shows that of the 200 islands assessed in the VPA, the primary economic activity for people on 99 islands (50% of total islands) was fishing, 40 islands (20%) was tourism, 20 islands (10%) was agriculture, 16 islands (8%) was Government or public works employment, and the remaining islands’ primary livelihood opportunities were based on manufacturing, trade, or were not stated. The second most important economic livelihood activities in the islands were Government/public works employment and fishing - 53 and 50 (27% and 25%) islands respectively, 31 (16%) islands for both construction and tourism, trade on 24 (12%) islands, and the remainder either in manufacturing or were not stated.

Excluding the capital of Male’, 49% of the Populations in island economic groups population in the islands (92,500 people) live

Fishing in areas where the main economic activity is fishing. This is followed by islands where Tourism tourism is the most important activity (18% - Government 34,300 people) and Government / public Agriculture Primary works (10% - 18,400 people). Trade Secondary When looking at the secondary economic Construction activities, it was found that 51,200 people Manuf ac tur ing (27%) lived on islands where this was related to Government / public works, 36,200 people

Economic activities in islands No data (19%) in islands related to trade, 33,000 0 20,000 40,000 60,000 80,000 100,000 people (18%) in tourism, and 28,100 people No of people (15%) in both fishing and construction.

Given that those people involved in Government and public works activities have regular employment and salaries paid by the Government, it was felt that the chance of people losing these jobs or salaries due to the tsunami as unlikely. As regards the tourism industry, it was also felt that those directly involved in working in resorts would only be temporarily affected if the resort itself was damaged, and for the time it takes to rebuild it. For the most part, many of the people on those islands linked to tourism are primarily involved in the provision of supplies (fruits, vegetables, fish and seafood’s, etc.), handicrafts, and other services. As such, the livelihoods of these people have been captured as part of other economic categories in this study.

Taking the above into consideration, the assessment concentrated on those livelihoods linked to fishing, agriculture, manufacturing and construction, and trade to get a better understanding of the impact that the tsunami may have had on peoples ability to generate their income.

4.2a: The unemployed This group is likely to comprise of female and / or disabled bodied head of households, or those that simply cannot find work. Community members also identified large families where almost all children were in school and the household head being unable to work as falling into this category. This group has been subdivided into two categories, namely those that are receiving remittances from family members off the island, and those that are not.

For the former, although they are not working they are receiving support and assistance through remittances by family members that could be living abroad, working in the tourist industry, or in Male’. As such, they have an income source and a family that looks after their welfare – some families reported that they expect a steady flow of remittances to begin at the end of January. For the latter group, these people have no regular sources of income, or family members working off the islands that can send back remittances. They are generally reliant on kinship and / or community for in-kind assistance of food, and for their basic non-food essentials such as the payment of medical, fuel, and electricity bills. As such, the unemployed with no remittances are likely to be social welfare cases, and should be regarded as the extreme vulnerable.

The tsunami has placed strain on the communities as a whole. Although community networks are still supporting this group, resources to share with the unemployed with no external family support are currently limited.

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4.2b: Agriculture Households whose income is primarily reliant on agricultural activities fall into this category. Two types of agricultural activities were identified for people involved in this activity on the islands visited, namely larger scale farming on communal land, and small scale home gardens. Both are used to generate income for the household, though the latter is used more for family consumption. The main crops grown are vegetables and fruits. Where communal land was present, all families could access it. Larger families who would thus have more members to work the land, tended to have larger agricultural plots. Although some hiring of people to work the land by those with larger plots did occur, it was reported to be a rather limited and uncommon practice.

An estimated one third of the crop production is kept for household consumption and for sharing amongst the islanders or to other relatives and friends outside of the island. Depending on the scale of agriculture done by the household for sale, produce is either sold within the island, or to traders who resell this in Male’, the resorts, or in a few cases to other islands nearby. On the islands visited where agriculture was a key livelihood activity, it was reported that produce contributed to an estimated 60% of the household income.

The tsunami has washed away agricultural crops, seeds, tools, and fertilizers. People are reporting that the soil and water for irrigation is still too salty to begin replanting, even if they had the seeds and tools. People felt that if heavy rains could flush the salt content out of the land and underground water, it would take approximately six months to get vegetable production back on track, and about two years to get agriculture back to pre-tsunami levels. People have requested a technical evaluation of the soil and water as they are unsure when they can resume their agricultural activities.

Islanders have also expressed an interest in hydroponics agriculture, but do not know whether this is technically feasible or how it would be financed. The possibility of establishing communal plots was proposed by one island chief, but people were unsure as to how water would be managed, and stated a preference for having independent plots. Home nurseries to germinate seedlings during the time it takes for agricultural land to become desalinated was discussed as a possibility for intervention, though it was felt by the communities that this may be constrained by the lack of sweet water for irrigation.

Many people also felt that until they can get their agricultural activities back on track and some income is being generated, they will be unable to get loans as they have no collateral, or be unable to repay the monthly contributions and interest. Fishing, as an interim income generating activity is only possible for a few families. Many of them have reported that they have either lost their fishing skills, or do not know how to fish as they have not used this as part of their livelihood strategies in the past. In any case, these families do not have fishing equipment.

4.2c: Manufacturing These people are involved in income generating activities that range from small cottage industries, such as weaving, rope making, tailoring, seamstresses, and preserving of fruits and vegetables to more highly skilled activities such as carpenters, electricians, and welders. In all cases, with the exception of activities like weaving and rope making that uses natural resources, expensive specialized equipment is used such as sewing machines and power-tools. Small cottage industries are mostly used as primary income for women, and it was reported that weaving and rope making can contribute up to 15% of the household economy. Specialized activities such as carpentry and welding are, in most cases, the sole source of income for families involved in these businesses. They have made large investments in the purchasing of equipment, workers are highly skilled, and have little other livelihood diversification strategies to fall back on, such as fishing or agriculture.

In areas flooded by the tsunami, most of these tools and equipment have either been damaged by salt water, or lost. Islands have reported high losses of sewing machines, high powered electrical tools, electrical appliances and generators. Although weaving and rope making has already begun on some islands, women have been stating that there is still no market for these products.

In all islands visited, focus groups consistently identified these people as one of the most highly affected and vulnerable groups from the tsunami, as they have lost their tools and due to their specialized income generating activities, they have few options or skills to engage in other activities. In one island, a discussion with this group revealed that they were too scared to go out on the boats to fish as they did not how to do so, even though there were boats available if they needed them.

11 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

4.2d: Fishing and Fish processing Most fishing revolves around deep water line fishing for tuna, where catches are primarily sold to offshore ‘collective boats’ or to fish processors back on the islands. It was reported that approximately two thirds of the catch will be purchased by these collective vessels, and the remainder (normally comprised of damaged or non-tuna fish species) by the fish processors (tuna only). Prior to deep water fishing, fishermen go out on the reefs at night and use generator operated spotlights and nets to catch bait fish. Fish processing involves the cleaning, boiling, smoking and sun-drying of tuna, which is then sold to the markets of Male’ for further export. Families can either be exclusively involved in one or the other of these two activities, or rely on both. Extended families may also have members either fishing or processing. Although it was reported that some islands have communal fish processing units, this is uncommon and most people have their own facilities at home. Some fishermen supplement their income with lobster or reef fishing for the resorts.

The tsunami has affected these activities in various ways and degrees across the islands. Some islands have reported losses or damages to boats, or fishing nets, spotlights and generators used for fishing. Others have reported that only fish processing units – consisting of a concrete slab for cleaning fish, large pots for boiling, and smoking sheds and drying racks - have been lost. In all cases with the exception of those islands that have been completely devastated, it was reported that most fishermen have resumed fishing, and people can fish communally if needed. Those that are not fishing have either lost equipment, or are engaged in cleaning debris and / or reconstruction. Catches are either being sold to the collective boats, or are brought back to the island and shared with the community as food. Approximately a quarter to a half of those involved in fish processing have resumed their activities – for those that have not, this is because they have either lost their equipment or are involved in clearing debris from their homes. Given that these activities are inter-related, fishermen relying on fish processors to purchase surplus catches will have lost income if the latter have lost their equipment and are unable to process fish. Conversely, fish processors relying on fishermen to bring back catches to the island will suffer where fishing has reduced.

4.2e: Construction Families involved in construction would be builders, brick makers, or engaged in more industrial types of activities such as building contractors and businesses, finishers, or operators of construction or demolition equipment. The latter are more linked to larger industrial islands, whereas the former are more likely to be found in the smaller islands linked to other livelihood activities.

It was reported that these people bring to the island only the quantities of building materials (e.g. cement) required for a specific job, as storage on the islands is limited. Thus, stocks that have been lost will not, for the most part, be excessive. Of greater concern would be the loss of brick making moulds – yet these are fairly inexpensive, estimated at around 500 Ruffia (approximately US$40) each. However, given that the skills of this group are now in high demand in the reconstruction effort, people reported that the greatest needs will be the materials for rebuilding homes, which would in turn provide employment for this group. These materials are already starting to reach the islands, and the greatest need for this group would be to have access to credit and loans to replace any moulds or basic tools (trowels, wheel barrows, buckets, and spades) that would allow for the making of bricks and building of homes. It was also reported that there are many people on the islands who know how (and indeed like) to make bricks and do basic construction that would assist the full time construction workers.

4.2f: Trade and transport Trade mainly operates directly between the island and Male’, and less so between islands and the atoll centres - although there is small scale trade between islands, mostly to the resorts where goods (vegetables and fruits, fish, handicrafts, etc.) are sold. Most traders have their own shops, and many have secondary income generating activities or lease and hire their boats to others.

Traders go to Male’ with commodities produced or collected on the islands (such as dried fish, vegetables, shells, woven mats, etc.) for sale. Whilst there, they purchase goods needed back on the islands, including basic food commodities - rice, flour and sugar – from the Government run State Trading Organization (STO) at subsidized rates. The Government sets a ceiling on the profit that a trader can resell this food. This ensures that staple food prices are regulated, and profits made on food are used to pay for porter and transportation (fuel, boat hiring) costs rather than as a source of income. The bringing of food to the island is done more so as a service to the community rather than as a way to make money, and profits are made through the sale of other more expensive goods and non-food essentials. It was

12 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005 found in most islands visited that traders know how to manage their food stocks, and how often and in what quantities food has to be brought back to the island. Other opportunities for purchasing goods outside of the island yet not through the traders exist in the use of ferries. This is done by individuals, and mostly when they take their children to schools outside of the island or when they need to go to Male’ or atoll centres for health or business reasons.

Transport and trade in the tsunami affected islands has reduced, as people have little or no purchasing power and few to no commodities to trade or sell. The Women’s Development Committee (WDC) that manage the food stocks on one island reported – ‘There is no produce on the island that we can purchase and sell in Male’, and cover the expenses required to hire a boat. So we can not bring food supplies back to the island.’ Their solution was to try and get a cash loan to hire a boat from a local islander that needs money, and restart their trade again whilst prompting cash flows through the island. Already half of the families have at least one family member that has started fishing and is getting some income whilst others are processing dried fish, and the women felt that this would be sufficient to get their trade up and running once the commodities of the first boat trip have been sold and they can begin to hire boats again.

Many traders and shopkeepers have reported the loss or damage of stocks, and that business has almost halved. Others have not re-opened their shops as people don’t have money to spend – much cash and savings were washed away during the tsunami. Although cash flows through remittances are beginning and are expected to increase by the end of January, this is still insufficient to get trade fully back on track. Other traders have decided that at the moment they cannot resume any large-scale trading given the limited purchasing power of people. Another problem facing traders is the purchase of fuel – not only is there a current shortage, but with reduced business they are unable to cover transportation costs. This will not only impact the flow of food into the islands, but also all the essential non-food items and commodities that people require. As such, it is critical that cash is injected into the economy, and that relief interventions aim to promote the purchasing power of people, and support rather than disrupt or undermine trade flows and transportation.

4.2g: Tourism Those people that are reliant on tourism normally do not live on the islands but rather on the tourist resorts, or will commute daily to their place of work. They also send remittances back to their families on the islands.

Provided that the resorts in which they work are still operational, they will have a secure income. However, in areas where resorts may be temporarily closing down for reconstruction or are laying people off, these groups will lose their income source. People that are working in resorts that have not been damaged, yet are facing a reduction of tourists, may be at risk to temporary lay-offs. Thus, it is essential that tourism returns to pre-tsunami levels to ensure employment for the people working in the resorts and a continued flow of remittances back to the islands to support and assist families. As this is currently the high season for tourism, it would be vital that this activity picks up as soon as possible.

4.2h: Government / public works These people are involved in some form of Government, industrial, or public works and services activities. They are still employed, and will continue to receive salaries. However, factories that have lost machinery and equipment will be running at a loss, and until this is addressed there is always the risk of temporary lay-offs.

4.2i: Other sectors These families comprise of small artisans, artists, musicians etc. It was not possible to identify these groups during the assessment, and determine how the tsunami has impacted their livelihoods.

4.3: Internally Displaced People (IDP’s)

Large displacements have occurred in 13 islands, with people being displaced within their own islands, or having moved to others. Although at first glance some of these numbers may not seem to be high (e.g. 90 people in Madifushi island), they do represent almost the entire community, implying that reliance on each other for assistance for the months of reconstruction ahead wont be possible. Overall, almost 11,000 people have been displaced in large numbers and in islands that have had almost total flooding or infrastructural damage to homes and buildings. The table on the following page indicates the number of 13 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005 recorded displaced as of the beginning of January, from data sourced from the National Disaster Management Centre. Although some tracking of IDP’s to other islands has been done, this group has been on the move, with some families returning to their place of origin whilst others moving elsewhere.

Atoll Island Total Displaced Displaced Total Total affected population in island out of displaced population by island displacement Dhaalu Gemendhoo 322 0 322 322 322 Dhaalu Vaanee 346 0 280 280 346 Gaafu Alifu Viligili 2261 1686 250 1936 2261 Haa Alifu Filladhoo 659 393 141 534 659 Kaafu Guraidhoo 1225 672 553 1225 1225 Laamu Mundhoo 517 0 504 504 517 Laamu Dhabidhoo 601 464 0 464 601 Laamu Kalhaidhoo 433 72 361 433 433 Meemu Muli 787 650 0 650 787 Meemu Kolhufushi 936 500 0 500 936 Meemu Madifushi 122 0 90 90 122 Raa Kadholhudhoo 2717 100 2617 2717 2717 Thaa Vilufushi 1155 0 1155 1155 1155 Total 12,081 4,537 6,273 10,810 12,081

These IDP’s are identified as being amongst the most vulnerable population group, and are completely dependant on host communities and the Government. Their asset bases have been lost, and they are unable to restart their livelihoods until they return home and rebuild their houses, or settle down in a new location.

Approximately 50% of their homes were completely destroyed, and a further estimated 30% badly damaged across these islands. In three of the islands visited in the assessment, almost all homes have been totally destroyed. Overcrowding in homes that were not damaged or with the host communities is exacerbating already poor sanitation facilities, and further strain is being placed on limited water resources in host islands. The Government, in collaboration with aid agencies, has started erecting sanitary facilities and temporary shelters to cater for displaced populations and to begin easing the pressure on host communities or families. Nonetheless, overcrowding is still a serious problem, as tents provided are insufficient to house all the affected families and two to three households can be found sharing the same tent (in Kolhufushi island, 48 tents were provided for approximately 200 households). Such conditions, if not addressed immediately, are likely to result in the outbreak of diseases. Currently, efforts are underway to ensure that adequate and sufficient shelters are provided to the IDP’s.

The majority of the IDP’s relied on fishing as their main livelihood activity. In several islands, people were tuna fishing for income, whilst in others fishing was primarily for subsistence. No major damages to fishing boats were reported, and the majority of fishermen still had their boats. An estimated 50% of fishermen have begun fishing, though this is mostly to provide fish to their communities at no cost, and reflecting the strong social networks that exist within these communities. Those who have not gone back to fishing stated that they were waiting for the cleaning of the islands to be completed, for the reconstruction effort to begin, or because they simply do not want to leave their families behind whilst they are unsettled and living in the open or in a host community. Some fishermen have reported the loss of equipment, and do not have utensils to prepare fish.

The peak fishing period was identified to run between January and April, and interventions should be timely to enable fishermen who have not resumed these activities as yet to take advantage of the peak seasons. Those who were relying on agriculture have lost their crops and fruit trees, and land and water has been contaminated with salt.

The Government and other donors have been providing food - rice, flour and sugar, and other food items such as noodles, milk, juices and water – as well as non-food essentials to the IDP’s. Consumption patterns have reportedly remained the same - three meals a day. Distribution systems were found to be efficient, and the food rations distributed to beneficiaries last approximately 2 weeks before another cycle is required.

The immediate priorities identified by IDP’s were:

• Reconstruction and repair of damaged houses • Provision of water and sanitation facilities • Provision and restoration of health facilities • Provision of cash to restore assets and other household goods • Continued provision of food that would free any cash resources they may have left, or that they would be able to earn 14 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

4.4: Other information

4.4a: Credit and loans One of the greatest worries expressed by the islanders is their ability to get loans. Many people were repaying loans from the National Bank or the Atoll Development Committee that had been taken to purchase household goods or income generating equipment. Due to the tsunami, these assets may have been lost or damaged, yet the repayments on the loans are still outstanding. People doubt their ability to pay off two loans were they to take another to replace lost goods or rebuild houses. Another concern raised is that they no longer have assets that they can mortgage (such as a house), can not put up an equal amount of cash in order to get a loan, or have any form of collateral as surety against a loan.

4.4b: Nutrition In the islands visited, it was reported that prior to the tsunami, people were eating three meals a day consisting of rice, fish and vegetables, and with morning and afternoon snacks. Typical meals consist of chapatti and tuna for breakfast, and various curries, rice and salads for both lunch and dinner. Curry is often watery and contains very little protein. A typical Maldivian dish – Gardhia - consists of clear fish soup with chilli and some tuna, and is eaten daily either at lunch or dinner. Some green leaves are consumed in salads, but in limited amounts. In general, children normally eat the same types of food and have the same meal frequency as the rest of the family, though their portion size is smaller. Men and young boys are served first, then women and younger children. It is most often the male household member who gets most food in terms of quality and quantity. Infants were fed a combination of breast milk and baby foods – typically commercial porridges.

Although it appears that people may have sufficient food to eat in terms of meeting energy requirements, dietary diversity is poor due to low availability of fruits and vegetables on the islands. A second MICS survey conducted by the Ministry of Health, UNICEF, and WHO in 2001 raised concerns on the nutritional status of children in the Maldives. Although malnutrition rates have decreased since the MICS 1 study conducted in 1995, the malnutrition rates among children under five still remains high, with 24.8% stunting (chronic malnutrition), 13.2% wasting (acute malnutrition), and 30.4% underweight (overall malnutrition) reported.

There are little data available on micronutrient deficiencies in the Maldives. An iodine deficiency disorder survey conducted by the Ministry of Health and WHO in 2002 found moderate goitre prevalence of 25.7%, and 0.1% of severe goitre among children 6-12 years. Salt with inadequate iodine content was consumed by 38% of the children. Due to limited intake of vegetables and other sources of iron it is likely that rates of anaemia is high among children and women. Thalesima (a genetic anaemia) is a known problem amongst Maldivian's but this is not related to dietary intake.

Since the tsunami, it was reported that adults and children are still eating three meals a day, though they have stopped eating snacks. Vegetables have either greatly reduced or been removed from the diet as this food source has been lost – this is a cause for concern as it further deteriorates what could have already been a poor diet. The loss of agricultural production has reduced the availability of fresh fruits and vegetables, and is a situation that could last for an extended period of time until agriculture resumes. In addition, households that used to have poultry have lost these in the tsunami, and with them protein sources of meat and eggs. For weaning infants, it was also reported that there has been no change in the feeding practices both before and after the tsunami, though the solids fed to babies have changed. They received jars of baby food in their relief packages, though it is not clear what the source of this was - whether it came through a Government distribution or from another in-kind donation given directly to the island. In any case, this is not a sustainable practice.

4.4c: Women’s Development Committee’s Most islands have a Women’s Development Committee (WDC). In some islands, these committee’s were found to be extremely active, running small businesses, generating income for community projects, and managing the island food stocks. Where possible, implementation of food based interventions should be channelled through these WDC’s, and have them take an active role in targeting, managing and monitoring food distributions – where required - as a primary implementing partner.

15 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

5. CONSIDERATIONS FOR ASSISTANCE AND RESPONSE

5.1: Cash and food assistance The most appropriate and immediate to long-term response for the majority of the affected populations would be through cash based employment, linked to reconstruction. Cash injected into the island economies will boost people’s purchasing power and give flexibility for own prioritization on buying what the household perceives to be essential, will allow the hiring of skilled artisans by others, and promote and stabilize trade and market routes.

Cash based employment schemes run by the Government, private sector, and national NGO’s supported by international organizations have already begun in most of the islands. For the time that it takes to establish and implement such programmes, and for the initial few months in which people are making some money through these programmes, short term food assistance would be beneficial for some of the vulnerable groups to act as a safety net and alleviate expenditures from limited financial resources (see Annex II – Table 3).

The Government is currently conducting a second free food distribution to a targeted 36,000 people that they have identified as being the most vulnerable, and who also received a free cash benefit earlier in January. Beneficiary figures have been determined by the Ministry of Planning, based on displacement, loss of homes, structural damage to houses, or loss of tools and equipment. A revision of these figures are planned, though no decision has been taken by the Government yet as to whether they will continue with free food or cash distributions in the future. The logistics of getting the assistance to the islands are handled by the National Security Service, and the targeting and distribution of relief is conducted through established island Task Force’s that comprise of members of the community, and who select the most vulnerable people in their islands.

Where food assistance is considered, food for work schemes will not be appropriate for the most part as people need to spend their time in reconstruction and generating income, and food support should be given freely. Such assistance though should be limited in duration, clearly targeted, and phased out according to vulnerability and livelihood profiles once cash based programmes begin. Phase down and phase out strategies should be clearly defined, and beneficiaries receiving such assistance should be informed of the programme to pre-empt any thoughts of expectation or dependency.

5.2: IDP’s These people should be considered extremely vulnerable to food insecurity and to health risks as a result of overcrowding and poor sanitation conditions. They require an immediate solution to resettlement, shelter, and improvement of living standards. A combination of food and cash assistance would be required for these families, though work schemes focussed on reconstruction should be implemented in their area of settlement, and not in the host communities. This group is likely to require the longest duration of assistance, given the level of destruction in their places of origin, and the high numbers in the same communities that have been displaced.

5.3: The unemployed People with no remittances should be considered as the extreme vulnerable. Either food and / or cash based assistance for this group would alleviate their dependence on others at this time. If food aid is considered, it would free up limited monetary resources that may have been spent on food, or reducing the in-kind donations required from other families that may also be facing economic hardships given the current situation. If food assistance is to be provided, then it must be limited in duration and linked to reconstruction activities. Prolonged assistance could erode and undermine the existing community support for these families, and could place them at risk in the future. If not already in existence, longer term social welfare solutions must be found for this group.

For those that are already being supported by family members through remittances, free assistance is not required. This group should, however, be monitored as they would be at risk if remittances were to stop.

5.4: Agriculturalists These people have limited or no other sources of income, no remittances, and in islands where flooding has occurred agricultural land, seeds, tools, and fertilizers will have been lost. Agriculture will start only

16 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005 once water and soil has been desalinated, and income from this activity can only be expected approximately two to three months from the first planting.

Cash-based interventions focussed on reconstruction would provide some income that would go towards rebuilding homes, replacing lost assets, purchasing seeds and tools, and food and non-food essentials. The distributions of seeds, tools and fertilizers could also be considered and linked to any cash or food based intervention. The access to credit and loans schemes to re-establish agriculture and help to reconstruct homes would be beneficial to this group.

If food assistance is to be given, it will be to alleviate increased household expenditures. Given that people need cash and are also rebuilding homes, food for work activities may not be appropriate, unless they require minimal amounts of time and labour, such as the propagation of seedlings in home nurseries, or in land preparation for future planting.

Assistance must be limited in duration and linked to the time it takes for the first crops to be harvested. Once the first crops are in, an assessment is required to determine whether the agricultural returns are sufficient for the household and whether further support is required.

5.5: Manufacturers Immediate access to credit, loans, or micro-credit schemes would allow many of these people to replace lost equipment, and capitalize on the boom in work linked to reconstruction in which their skills are most needed. Once people have this equipment, cash-based interventions and employment schemes focussed on reconstruction would allow for loans to be repaid faster.

For the time that it takes for people to acquire tools, food assistance would be required as a safety net for some to ensure that these people are not completely reliant on others for their food needs, and are not placing additional strain on other community members in trying to meet their food needs. In islands that fall into Category 2, the likelihood of most tools and equipment having been lost or damaged is high, and so it would be of benefit for all people in this economic group to be assisted. In islands classified into Category 3, where loss and damage is much lower, approximately half of this group may require some support until livelihoods are re-established.

5.6: Fishermen and fish processors These two activities would benefit from being addressed simultaneously. Access to credit and loans allow these people to purchase any equipment that has been lost, and begin scaling up economic activities in time to catch the peak fishing seasons. If people have not been able to purchase their tools and equipment through credit and loans, cash-based interventions and employment schemes focussed on reconstruction, including the rehabilitation of fish processing units, would provide the most appropriate response.

During the time that it takes for people to replace equipment and resume these activities, food assistance could be beneficial for approximately three quarters of the families in Category 2 islands that rely on fish processing and who may have lost this equipment, in order to provide basic staples and to alleviate limited or no cash for non-food expenses. In Category 3 islands, it is likely that less fish processing units have been damaged, and as such, a quarter of the families relying on this activity should be considered for food assistance. If this is provided, it must be linked and limited to the time that it takes to rebuild the fish processing units to be rehabilitated or replaced. Once this has been reached, food assistance should be phased out and normal economic activities should be supported through cash for work or other schemes.

5.7: Agriculture, manufacturing, fishing and other These households rely on either agriculture, manufacturing or fishing, yet have other income sources through small trade and businesses, or receiving remittances from family members away from the island. Although they will be facing the same major constraints as other families from the same economic groupings, they should have the means to generate additional income depending on the secondary activities they are involved in, and how these have been impacted by the tsunami.

5.8: Construction These families relying on construction activities do not require specialized equipment. Provided that block making moulds, cement, and other materials are available or provided to reconstruct buildings, these people will benefit from the reconstruction. Credit and loans would allow them to replace any lost 17 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005 equipment and purchase building materials. They should be enlisted and targeted through cash for work schemes in reconstruction, which would also assist them in repaying any loans they have taken.

5.9: Traders This group is reliant on the purchasing power of others for their income. Therefore, it is critical that the purchasing power of the community is increased and cash begins to flow into the island economies. Any relief assistance provided to affected populations should be sensitive to the fact that it may negatively impact on traders, and as such free assistance must be limited and specifically targeted to the most vulnerable groups in order to not disrupt trade and market systems. The hiring and use of local transport when implementing reconstruction projects or bringing relief assistance, would be beneficial to this group. Credit and loans would help to rebuild stocks and replace fuel that has been lost during the tsunami.

5.10: Tourism This group should be closely monitored, particularly from the resorts that have temporarily closed. For those where loss of employment from the resort has occurred, assistance through cash based employment schemes in reconstruction should be done. Self-targeting projects should be able to reach these groups if they are in need of assistance. It is also essential that tourists be encouraged to return to the Maldives.

5.11: Government / public works These families have full time employment and receive salaries, and as such a steady source of income. Nevertheless, where houses have been destroyed and require rebuilding, these families will face economic hardships. In cases where the income-earner lives away from the property destroyed and there are no family members to ensure that the houses are rebuilt, they would need to employ others to oversee the reconstruction and thus placing even further economic burdens on the household. This group would benefit from loans and credit schemes if needed.

5.12: Other sectors There are few people in this category, and in the islands with complete structural loss, they can be assisted through self-targeting cash for work schemes together with other groups such as the manufacturers, small business and specialized skilled groups.

18 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

6. CONCLUSIONS

As far as food assistance is concerned, in those Category 1 islands where mass displacement has occurred, continued food assistance would be beneficial to all groups irrespective of livelihood group until cash based programmes are established. Once this occurs, or where the situation has stabilized, a phase down strategy should be applied, starting with those families that have regular sources of employment, followed by those that can be employed in reconstruction projects, fishermen and fish processors, agriculturalist, and finally the unemployed groups once the community is able to support them. The total number of estimated beneficiaries that fall into this group is reflected in the table below (see Annex III – Table 4 for details against livelihood group):

Atoll Islands Total beneficiaries Dhaalu Gemandhoo, Vaanee 668 Gaafu Alifu Viligili 2,261 Haa Alifu Filladhoo 659 Kaafu Guraidhoo 1,225 Laamu Dhabidhoo, Kalhaidhoo, Mundhoo 1,551 IDP's IDP's Meemu Kolhufushi, Madifushi, Muli 1,845 Category 1 Raa Kadholhudhoo 2,717 Thaa Vilufushi 1,155 Total 12,081

In those islands that fall into Category 2, short term food assistance would be beneficial to the most vulnerable groups until cash based programmes begin and improvements in household purchasing power, cash flows, trade, and infrastructure become apparent. Food assistance should be targeted to those families that are unemployed and have no family support, agriculturalists, manufacturers, and three quarters of the fish processors. As cash employment begins, a phase down of food assistance should be done, in the reverse order of the livelihood types stated above. The total number of estimated beneficiaries that fall into this category is shown in the table below (see Annex III – Table 5 for details against livelihood group).

Atoll Islands Total beneficiaries Alifu Alifu Bodufulhadhoo, Himandhoo, Mathiveri, Rasdhoo, Ukulhas 662 Alifu Dhaalu Dhagethi, Dhidhdhoo, Dhigura, Mandhoo 657 Baa Dharavandhoo, Dhonfanu, Eydhafushi, Goidhoo, Kamadhoo, Kendhoo, 1,190 Kihaadhoo, Maalhos Dhaalu Hulhudhoo, Maamendhoo, Meedhoo, Ribudhoo 590 Faafu Feeali, Magoodhoo 278 Gaafu Alifu Biyadhoo, Dhaandhoo, Kolamaafushi, Maamendhoo, Nilandhoo 885

Gaafu Dhaalu Gadhoo 399 Haa Alifu Baara, Hoarafushi, Vashafaru 1,043 Haa Dhaalu Naivaadhoo, Nellaidhoo, Nolhivaranfaru 436 Kaafu Dhifushi, Gaafaru, Gulhi, Huraa, Kaashidhoo, Maafushi 1,223

Category 2 Laamu Gaadhoo, Isdhoo, Kunahandhoo, Maabaidhoo 774 Lhaviyani Hinavaru, Maafilaafushi, Naifaru 1,489 Meemu Dhigaru, Maduvari, Nailaafushi, Raimandhoo, Veyva 463 Noonu Holhudhoo, Kadhikolhudhoo, Kudafari, Lhohee, Maafaru 1,061 Raa Faanu, Maduvari, Vaadhoo 492 Shaviyani Feeva, Funadhoo, Maroshi, Narudhoo 571 Thaa Buruni, Dhiyamigili, Gaadhifushi, Guraidhoo, Hirilandhoo, Kadoodhoo, 1,908 Kibidhoo, Madifushi, Omadhoo, Thimarafushi, Vandhoo, Veymandhoo Vaavu Felidhoo, Fulidhoo, Keyodhoo, Rakeedhoo, Thinadhoo 381 Total 14,504

Similarly, and for the same reasons as those in Category 2 islands, certain livelihood groups in those islands that fall into Category 3 would benefit from food assistance in the absence of cash based employment, or during the time that it takes to establish them. Vulnerable groups that could benefit from short term food interventions would be the unemployed with no remittances, agriculturalists, half of the manufacturers, and a quarter of the fish processors. Phase down and phase out strategies should be implemented for these groups in the reverse order as listed, and should take place as soon as cash

19 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005 employment programmes begin. The total number of estimated beneficiaries that fall into this group is reflected in the table below (see annex III – Table 6 for details against livelihood group).

Atoll Islands Total beneficiaries Alifu Alifu Faridhoo, Maalhos 111 Alifu Dhaalu Fenfushi, Hangnameedhoo, Mahibadhoo 121

Baa Fehendhoo, Hithaadhoo 149 Haa Alifu Ihavandhoo 289 Haa Dhaalu Kumundhoo 135 Kaafu Thulusdhoo 117

Category 3 Lhaviyani Kurendhoo, Olhuvelifushi 194 Noonu Foadhoo, Hebadhoo, Landhoo, Maalhendhoo, Magoodhoo, Velidhoo 513 Raa Rasmaadhoo 76 Shaviyani Bilaifahi, Feydhoo, Goidhoo, Maakadoodhoo 499 Total 2,204

Using the extensive communications networks between the island chiefs, atoll chiefs, and the Ministry Offices in Male’, the monitoring of people in the islands listed as Category 4 (in the table below) should be undertaken, particularly for those involved in agriculture, manufacturers, and tourism. This would allow the Government to know if any negative changes to agriculture or tourism is occurring, and allow them to formulate a response for assistance to particular livelihood groups, if required.

Atoll Islands Alifu Alifu Thodhoo Alifu Dhaalu Kuburudhoo, Maamigili, Omadhoo Baa Fulhadhoo, Kudarikilu, Thulhaadhoo Dhaalu Badidhoo, Kudahuvadhoo Faafu Bilaidhoo, Dharaboodhoo, Nilandhoo Gaafu Alifu Dhevadhoo, Gemanafushi, Kaduhulhudhoo, Kodey Gaafu Dhaalu Fares, Fiyori, Hoadedhoo, Maathodaa, Madaveli, Nadelaa, Rathafandhoo, Thinadhoo, Vaadhoo Gnaviyani Foamula Haa Alifu Berimadhoo, Dhidhdhoo, Hathifushi, Kela, Maarandhoo, Mulhadhoo, Muraidhoo, Thakandhoo, Thuraakunu, Uligamu, Utheemu Haa Dhaalu Faridhoo, Finey, Hanimaadhoo, Hirimaradhoo, Kuburudhoo, Kulhudhufushi, Kuribi, Maavaidhoo, Makunudhoo, Neykurundhoo, Nolhivaramu, Vaikaradhoo Kaafu Himmafushi Laamu Fonadhoo, Gamu, Hithaadhoo, Maamendhoo, Maava

Category 4 - Monitoring Meemu Mulah Noonu Manadhoo, Miladhoo Raa Agolhitheemu, Alifushi, Hulhudhufaaru, Inguraidhoo, Innamaadhoo, Kinolhas, Maakurathu, Meedhoo, Rasgatheemu, Ugoofaaru Seenu Feydhoo, Hithadhoo, Hulhudhoo, Maradhoo, Maradhoo-Feydhoo, Meedhoo Shaviyani Firubaidhoo, Foakaidhoo, Kaditheemu, Komandhoo, Lhaimagu, Maaugoodhoo, Noomaraa

Any food distributions should be conducted through the Government systems, and where possible implemented by the Women’s Development Committee’s. For those islands where part of the population is to be targeted, food vouchers given to beneficiaries to be redeemed by the WDC, traders, or the STO should be considered to reduce logistical costs and problems associated with physical food distributions.

The issues related to loans and credits needs to be closely reviewed by the Government, and a workable solution found to the benefit of those that have lost assets yet still have outstanding loans, or have no collateral to get a loan.

20 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

7. RECOMMENDATIONS FOR WFP

WFP Maldives should assist the Government in identifying and targeting any food assistance to vulnerable groups in areas identified where food aid would be of benefit to affected populations. This assistance can be provided by the WFP Maldives Programme unit, using WFP standards and beneficiary profiling.

Food distributions would need to be followed through with appropriate monitoring to ensure that the most vulnerable groups are indeed receiving the assistance, and that food assistance is not disrupting or negatively affecting markets and trade. Where this is found to be the case, adjustments in intervention strategies can be made by WFP Maldives.

WFP Maldives Programme unit should assist the Government in designing a phase down and phase out strategy for food assistance, based on vulnerability profiles and the commencement of cash based employment programmes. In the absence or delay of cash based employment schemes, WFP Maldives should revisit its timing and phase out strategies to ensure that the most vulnerable groups do not unnecessarily suffer food shortages, and to arrest possible nutritional deterioration.

Given the loss of fresh foods from the diet, and the likelihood that there will not be great improvements until agriculture is re-established, the provision of high energy fortified biscuits to schools will help to mitigate against the loss of essential nutrients amongst school children.

During the time that it takes for WFP food stocks to arrive in the country, WFP Maldives should assist the Government in targeting food assistance using their own in-country stocks. WFP should then replace these stocks, and furthermore, should give consideration to replacing some of the Government stocks distributed freely immediately after the tsunami. Given the costs that will faced in the up-coming reconstruction, the alleviation of funds spent through free food distributions by the Government could then be used and be of benefit to the reconstruction efforts.

21 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

ANNEX I

Table 1: Main income activities by islands Main income activity Fishing Agriculture Manufacturing Construction Trade Government Tourism No data Total Atoll no of Alifu Alifu Ukulhas Thoddoo Rasdhoo islands Mathiveri Feridhoo Maalhos 8 Himandhoo Bodufolhudhoo Alifu Dhaalu Kuburudhoo Dhagethi Omadhoo Dhidhdhoo Dhigurah Fenfushi 10 Hangnameedhoo Maamigili Mahibadhoo Mandhoo Baa Dharavandhoo Maalhos Thulhaadhoo Hithaadhoo Dhonfanu Kamadhoo Eydhafushi Kendhoo 13 Fehendhoo Kihaadhoo Fulhadhoo Kudarikilu Goidhoo Dhaalu Gemendhoo Ribudhoo Kudahuvadhoo Badidhoo Hulhudheli Maaeboodhoo 8 Meedhoo Vaanee Faafu Biledhdhoo Nilandhoo Magoodhoo Dharaboodhoo 5 Feeali Gaafu Alifu Dhaandhoo Dhiyadhoo Dhevvadhoo Gemanafushi Kanduhulhudhoo Kodey 10 Kolamaafushi Maamendhoo Nilandhoo Viligili Gaafu Dhaalu Fares Hoadedhdhoo Fiyoari Nadallaa Gadhdhoo Maathodaa Madeveli 10 Rathafandhoo Thinadhoo Vaadhoo Gnaviyani Foammulah 1

22 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

Main income activity Fishing Agriculture Manufacturing Construction Trade Government Tourism No data Total Atoll no of Haa Alifu Filladhoo Baarah Utheemu Berinmadhoo Dhidhdhoo islands Hathifushi Kelaa Vashafaru Thakandhoo Mulhadhoo Hoarafushi Thuraakunu Ihavandhoo 16 Maarandhoo Muraidhoo Uligamu Haa Dhaalu Kulhudhuffushi Faridhoo Hirimaradhoo Hanimaadhoo Kuburudhoo Finey Kumundhoo Nolhivaramu Kuribi Vaikaradhoo Maavaidhoo Makunudhoo Nolhivaranfaru Nellaidhoo 16 Naivaadhoo Neykurendhoo Kaafu Dhiffushi Kaashidhoo Himmafushi Guraidhoo Maafushi Gaafaru Huraa Gulhi 9 Thulusdhoo Laamu Gaadhoo Dhabidhoo Fonadhoo Gamu Hithadhoo Isdhoo Kalhaidhoo Kunahandhoo Maabaidhoo 12 Maamendhoo Maavah Mundhoo

Lhaviyani Naifaru Hinnavaru Olhuvelifushi Kurendhoo 5 Maafilaafushi Meemu Dhiggaru Muli Kolhufushi Madifushi Maduvvari Mulah 9 Naalaafushi Raimandhoo Veyvah

Noonu Landhoo Manadhoo Fodhdhoo Hebadhoo Miladhoo Kedhikolhudhoo Lhohi Holhudhoo Kudafari 13 Maafaru Maalhendhoo Magoodhoo Velidhoo Raa Agolhitheemu Iguraidhoo Alifushi Ugoofaaru Fainu Rasgetheemu Innamaadhoo Hulhudhuffaaru Kadholhudhoo Kinolhas Maakurathu 15 Maduvvari Meedhoo Rasmaadhoo Vaadhoo

23 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

Main income activity Fishing Agriculture Manufacturing Construction Trade Government Tourism No data Total Atoll no of Seenu Feydhoo Maradhoo Hulhudhoo Maradhoo-Feydhoo islands 6 Hithadhoo Meedhoo Shaviyani Firubaidhoo Feevah Bilehffahi Feydhoo Funadhoo Lhaimagu Foakaidhoo Goidhoo Maakandoodhoo Maroshi Maaugoodhoo Kaditheemu Narudhoo Noomaraa 15 Komandoo

Thaa Dhiyamigili Buruni Gaadhiffushi Kibidhoo Guraidhoo Veymandoo Hirilandhoo Kadoodhoo Madifushi 13 Omadhoo Thimarafushi Vandhoo Vilufushi

Vaavu Felidhoo Fulidhoo Keyodhoo 5 Rakeedhoo Thinadhoo

Table 2: Mean % of households in islands by main economic activities Fish

Main income activity Trade Fishing Fishing Tourism Tourism services services receiving receiving and other and other and others processing Agriculture Agriculture Agriculture remittances Government Government

Main income activities for Construction Other sectors and transport Not employed Not employed Not employed Not employed Manufacturing Manufacturing islands no remittances Fishing 9% 2% 16% 14% 3% 3% 6% 6% 3% 2% 3% 30% 1% 2% Agriculture 9% 14% 10% 1% 1% 12% 6% 3% 3% 3% 4% 33% 1% 1% Manufacturing 17% 0% 25% 3% 0% 1% 11% 0% 2% 0% 0% 34% 0% 7% Construction 15% 0% 26% 1% 0% 6% 7% 2% 2% 3% 3% 29% 1% 5% Trade 13% 0% 10% 7% 0% 0% 13% 2% 0% 3% 3% 41% 0% 7% Government / services 10% 3% 11% 1% 2% 2% 4% 1% 4% 4% 3% 52% 2% 2% Tourism 10% 1% 19% 3% 1% 4% 8% 4% 1% 2% 4% 34% 4% 4%

24 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

ANNEX II

Table 3: Estimates of total no. of people that could benefit from food assistance

Income generating activity Total Trade Trade Fishing Fishing Tourism Tourism services targeted targeted targeted and other and other and others Agriculture Agriculture Agriculture Government Government Construction Other sectors and transport Not employed Not employed Not employed Not employed Manufacturers Manufacturing no remittances Fish Processors Fish Processors

Atoll remittances receiving Alifu Alifu 88 69 559 57 773 Alifu Dhaalu 48 42 664 24 778 Baa 147 168 938 86 1,339 Dhaalu 89 62 533 68 19 41 94 40 62 12 17 5 200 15 1,258 Faafu 29 23 205 22 278 Gaafu Alifu 183 154 941 155 65 140 317 136 211 40 59 16 678 52 3,146 Gaafu Dhaalu 52 39 269 40 399 Haa Alifu 199 293 902 98 19 41 92 40 61 12 17 5 198 15 1,991 Haa Dhaalu 70 92 388 22 571 Kaafu 167 230 1,108 102 48 99 40 49 128 28 51 45 420 51 2,565 Laamu 138 345 608 83 98 92 141 72 142 33 48 13 486 26 2,325 Lhaviyani 278 212 1,058 135 1,683 Meemu 120 91 566 92 43 94 158 71 180 53 54 23 724 39 2,308 Noonu 153 91 1,277 54 1,574 Raa 163 123 803 137 78 168 381 163 253 48 70 19 815 62 3,285 Shaviyani 145 255 642 27 1,070 Thaa 249 222 1,529 188 33 72 162 69 108 20 30 8 347 26 3,063 Vaavu 22 12 339 9 381 Total 2,341 2,522 13,328 1,398 402 747 1,385 640 1,145 247 346 132 3,868 287 28,789

25 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

ANNEX III

Table 4: Estimated no. of IDP’s in Category 1 areas (All livelihood groups should be targeted)

Income generating Fish

activity Total Trade Trade Fishing Fishing Tourism Tourism services services receiving receiving and other and other and others processing Agriculture Agriculture Agriculture Agriculture remittances Government Government Construction Other sectors and transport Not employed Not employed Not employed Not employed Manufacturing Manufacturing Atoll no remittances Dhaalu 20 15 105 21 19 41 94 40 62 12 17 5 200 15 668 Gaafu Alifu 69 52 357 70 65 140 317 136 211 40 59 16 678 52 2,261 Haa Alifu 20 15 104 20 19 41 92 40 61 12 17 5 198 15 659 Kaafu 14 13 228 12 48 99 40 49 128 28 51 45 420 51 1,225 Laamu 47 107 211 35 98 92 141 72 142 33 48 13 486 26 1,551 Meemu 60 46 254 46 43 94 158 71 180 53 54 23 724 39 1,845 Raa 83 62 429 84 78 168 381 163 253 48 70 19 815 62 2,717 Thaa 35 26 182 36 33 72 162 69 108 20 30 8 347 26 1,155 Total 349 336 1,872 325 402 747 1,385 640 1,145 247 346 132 3,868 287 12,081

26 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

Annex III

Table 5: Estimated no. of people in Category 2 areas (Un-shaded livelihood groups should be targeted / shaded livelihood groups are to be excluded)

Income generating activity Total Total Trade Trade Fishing Fishing Tourism Tourism services services Targeted Targeted receiving receiving and other and other and others Processors Agriculture Agriculture Agriculture 75% of fish remittances Government Government Not targeted Construction Other sectors and transport Not employed Not employed Not employed Not employed Manufacturing Manufacturing no remittances targeted (25%) (25%) targeted

Atoll not Fish processors Alifu Alifu 71 55 483 53 662 93 197 307 18 156 280 56 89 47 909 84 2,235 Alifu Dhaalu 36 31 568 22 657 119 248 99 7 122 318 70 126 111 1,047 128 2,396 Baa 115 144 854 78 1,190 197 423 488 26 257 559 121 180 85 1,836 189 4,360 Dhaalu 69 47 427 47 590 62 173 297 16 122 260 36 53 14 750 77 1,859 Faafu 29 23 205 22 278 39 84 126 7 65 118 24 38 21 384 36 943 Gaafu Alifu 114 102 584 85 885 120 231 508 28 220 349 68 99 26 1,129 83 2,861 Gaafu Dhaalu 52 39 269 40 399 49 105 239 13 102 159 30 44 12 510 39 1,302 Haa Alifu 117 230 636 61 1,043 251 251 334 20 176 407 95 123 33 1,262 91 3,044 Haa Dhaalu 40 70 312 14 436 111 107 80 5 52 191 45 49 14 494 52 1,200 Kaafu 128 198 814 83 1,223 215 514 685 28 344 436 94 251 55 2,544 107 5,275 Laamu 91 238 397 48 774 213 177 241 16 131 275 68 97 25 956 47 2,246 Lhaviyani 230 175 954 129 1,489 160 348 561 43 252 688 210 210 93 2,827 146 5,539 Meemu 60 45 312 46 463 57 122 277 15 119 184 35 51 14 593 45 1,511 Noonu 85 45 890 41 1,061 197 316 247 14 166 507 111 138 78 1,349 172 3,295 Raa 64 48 331 49 492 60 130 294 16 126 196 37 54 14 629 48 1,606 Shaviyani 83 194 268 26 571 152 111 31 9 40 243 92 91 40 1,095 35 1,938 Thaa 214 195 1,346 152 1,908 288 537 892 51 434 792 161 240 105 2,519 221 6,239 Vaavu 22 12 339 9 381 51 149 52 3 47 201 27 49 43 562 84 1,268 Total 1,620 1,892 9,988 1,004 14,504 2,433 4,223 5,758 335 2,933 6,164 1,381 1,982 830 21,395 1,684 49,117

27 MALDIVES RAPID ASSESSMENT – FINAL REPORT – 27th January 2005

Annex III

Table 6: Estimated no. of people in Category 3 areas

(Un-shaded livelihood groups should be targeted / shaded livelihood groups are to be excluded)

Income generating activity 50% Total Total Trade Trade Fishing Fishing Tourism Tourism services Targeted Targeted receiving receiving and other and other and others Processors Agriculture Agriculture Agriculture 25% of fish remittances Government Government Not targeted Construction Other sectors and transport Not employed Not employed Not employed Manufacturing Manufacturing no remittances targeted (50%) (50%) targeted (75%) targeted Manufacturers not

Atoll not Fish processors Alifu Alifu 17 14 76 4 111 30 76 63 70 13 43 87 18 30 20 282 29 761 Alifu Dhaalu 12 11 96 2 121 40 96 84 33 7 41 107 24 43 37 353 43 909 Baa 32 24 84 8 149 31 84 66 149 25 64 99 19 28 7 320 24 916 Haa Alifu 63 47 163 16 289 59 163 128 289 48 124 192 37 53 14 619 47 1,773 Haa Dhaalu 29 22 76 7 135 28 76 60 135 22 58 90 17 25 7 289 22 828 Kaafu 25 19 66 6 117 24 66 52 117 19 50 78 15 22 6 251 19 720 Lhaviyani 47 37 104 6 194 35 104 75 28 18 26 166 62 58 39 758 39 1,408 Noonu 68 46 387 13 513 150 387 315 217 38 159 445 86 135 98 1,315 164 3,510 Raa 17 12 43 4 76 16 43 34 76 13 33 51 10 14 4 163 12 468 Shaviyani 62 62 374 1 499 202 374 240 45 3 52 448 89 79 25 944 152 2,652 Total 373 294 1,468 69 2,204 614 1,468 1,116 1,161 207 650 1,762 375 486 258 5,294 552 17,686

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