Making Connections: Linking Local Government with Communities and SchoolsA case study on community-based disaster risk reduction and local government capacity building in West Sumatra

© 2011 Mercy Corps. All Rights Reserved.

United States45 SW Ankeny StreetPortland, Oregon 97204mercycorps.org

Europe40 SciennesEdinburgh EH9 1NJ Scotland, UKmercycorps.org.uk

This document has been produced with the financial assistance of the European Commission’s Humanitarian Aid and Civil Protection department (ECHO). The views expressed herein should not be taken, in any way, to reflect the official opinion of the European Commission’s Humanitarian Aid and Civil Protection department (ECHO).

The European Commission’s Humanitarian Aid and Civil Protection department (ECHO) is one of the world’s largest providers of financing for humanitarian aid operations. Its mandate not only includes the funding of disaster relief but also the support of disaster preparedness activities, in particular at local level. Through its disaster preparedness programme (DIPECHO) it assists vulnerable people living in the main disaster-prone regions of the world in reducing the impact of natural disasters on their lives and livelihoods.

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FOREWORDThis study comes at the conclusion of an ambitious and innovative program aimed at creating local disaster risk reduction (DRR) synergies by implementing capacity building activities with the local government agencies of two districts of West Sumatra, Indonesia and in twelve schools located in eight communities within those districts.

The guiding global framework for DRR is the Hyogo Framework for Action (HFA) 2005-20151 to which 168 countries are signatories. The 2011 “Views from the Frontline” survey by the Global Network of Civil Society Organizations for Disaster Reduction (GNDR) demonstrates that seemingly positive progress in disaster reduction reported at the national level is not necessarily reflected at the ground level in local practice. Indeed, the survey notes, “Since the adoption of the HFA in 2005, only ‘very limited’ progress has been made towards two of the HFA’s three strategic goals, namely: 1) the effective integration of disaster risk considerations into sustainable development policies, planning and programming; and 2) the development and strengthening of local institutions, mechanisms and capacities to build resilience to hazards.”2 The UN International Strategy for Disaster Reduction (UN-ISDR) 2011 Global Platform emphasized local governance as the critical missing link between the national and community levels.

Coordination and connections between communities and their local governments is an essential aspect in establishing and encouraging local governance. Community resilience is enhanced when local officials successfully connect community needs with government resources, when communities can connect directly to their local officials, and when there are transparent and accountable systems for resource allocation. As this study shows, these types of connections reap unexpected as well as expected benefits.

A DRR approach that works with communities, schools, and their local governments should also demonstrate the benefits of synergy including: enhanced sustainability of disaster preparedness teams and networks; increased ‘public demand’ for good governance; shared practical experience and learning; increased capacity of participating organizations in monitoring and advocacy; increased trust and mutual understanding between different social actors; and strengthened, more efficacious collaborations.3 This study examined the PREPARE SumBar project and found preliminary evidence of sustainability, a strong positive impact on local governance, and useful synergies from working simultaneously with districts and their schools and communities to build resilience.

ACKNOWLEDGMENTS Sincere thanks to the European Union for prioritizing DRR and making this project possible, to the PREPARE SumBar team (both Mercy Corps and local partner, JEMARI Sakato) for dedicated and detailed implementation and record keeping and especially to Budi Kurniawan, Project Manager, and Cynthia Speckman, West Sumatra Program Manager, for exemplary project leadership.

We are grateful to Iswanto for sharing his trove of photographs, newsletters, and blog entries to help complete the picture. He also deserves recognition for preparing the first layout version of this document and enthusiastically sharing and supporting our work.

Thanks to ‘Pen’ Igusnofaldi and ‘Ola’ Reqquilina Laura for going the extra mile in connecting us to those we needed to talk to and tracking down the information we needed. Thanks also to our interpreter and translators Yennita Rosa and Septia Malinda and to the Air Manis and Teluk Bayur DPTs, Air Manis SDPT, Padang City BPBD, and the Second Assistant of Padang City Government, Mr. Didi Aryadi for being candid in our discussions and accommodating and flexible in scheduling our meetings.

Of course, the study would not have been possible without the coordination and support of Budi Kurniawan and we would not have completed it without the accommodations and resources provided by Janice Yaden, interim West Sumatra Program Manager and the Mercy Corps Padang office most notably Simon Matakupan, Endang Trisna, and Tati Baniarti.

September 2011Anne Castleton, Ph.D.Mercy Corps, Director of Disaster Risk ReductionGabrielle FoxMercy Corps, Disaster Risk Reduction Research Assistant

1 See Annex E for full text of the Hyogo Framework for Action.2 Global Network of Civil Society Organisations for Disaster Reduction, “Civil Society Statement on the Global Platform for Disaster Risk Reduction 8-13th May 2011,” 20 June

2011, http://www.globalnetwork-dr.org/images/documents/GNDR_docs/GNDR_statement_post-GP-DRR2011.pdf.3 Global Network of Civil Society Organisations for Disaster Reduction, “VFL 2011 Objectives and Expected Outcomes,”

http://www.globalnetwork-dr.org/views-from-the-frontline/voices-from-the-frontline-2011/about-vfl2011.html.

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ACRONYMS

BAPPEDA Badan Perencanaan Pembangunan Daerah – District Government Planning OfficeBNPB Badan Nasional Penanggulangan Bencana – National Disaster Management AgencyBPBD Badan Penanggulangan Bencana Daerah – District Disaster Management AgencyCCA Climate Change AdaptationDIPECHO Disaster Preparedness Program of the European Commission Humanitarian Aid and Civil Protection departmentDPT Disaster Preparedness TeamDRR Disaster Risk ReductionDP Disaster PreparednessECB Emergency Capacity Building (a project funded by Bill and Melinda Gates Foundation)ECHO European Commission Humanitarian Aid and Civil Protection departmentEWS Early Warning SystemGNDR Global Network of Civil Society Organizations for Disaster Reduction HFA Hyogo Framework for Action 2005-2015HVCA Hazard and Vulnerability Capacity AssessmentKAP Knowledge, Attitudes and Practices surveyNGO Non-Governmental OrganizationOFDA Office of Foreign Disaster Assistance (USAID)P3DM Public Private Partnership for Disaster Management SCALE-R Stakeholder Coordination, Advocacy, Linkages and Engagement for Resilience ProgramSDPT School Disaster Preparedness TeamSOP Standard Operating ProcedureSumBar Sumatera Barat – West SumatraUN-ISDR United Nations International Strategy for Disaster Reduction

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CONTENTS

i FOREWORDi ACKNOWLEDGEMENTSii ACRONYMSiii CONTENTS1 EXECUTIVE SUMMARY4 BACKGROUND

Hazards in Indonesia and West Sumatra | Mercy Corps in Indonesia and West Sumatra PREPARE SumBar project in West Sumatra | DIPECHO in Indonesia

8 STUDY METHODSGoals and research focus | Research methods and activities | Sampling MethodSelecting a study location | Overview of the communities

Air ManisNatural hazards in Air Manis | PREPARE SumBar and disaster preparedness in the community | PREPARE SumBar and disaster preparedness in school

Teluk BayurDisaster preparedness in the community

12 STUDY FINDINGSLocal government (district)

Overview | Findings | ChallengesCommunity

Overview | Findings | Challenges | Research questionsSchools

Overview | Findings | ChallengesSynergy

Overview | Findings | Challenges23 LOOKING FORWARD26 ANNEXES

A. School survey results: graphs and tablesB. KAP survey questionnaires*C. KAP survey results*D. List of communities*E. Hyogo Framework for Action*

The full text of this study is available electronically at mercycorps.org/resources/asynergisticapproachtodisastermanagement

*Available with electronic version

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BackgroundIndonesia’s vulnerability to natural hazards is dramatic and internationally recognized. Flooding, tsunamis, earthquakes, volcanoes, landslides, droughts, sea level rise and storm surges all wreak havoc on local populations and economies throughout the archipelago’s 6,000 inhabited islands; the effects of climate change are exacerbating many of these hazards and create the need for immediate disaster risk reduction (DRR) programs as well as long term adaptation.

PREPARE SumBar was a 15 month program funded by the European Commission’s Humanitarian Aid and Civil Protection department (ECHO), through its disaster preparedness program (DIPECHO). It reached an estimated 28,850 people in eight communities, twelve schools, and two district level Disaster Management agencies (BPBDs) with the specific objective to increase resilience and reduce vulnerability through strategies and capacity building that enabled better mitigation, better response, and better preparation for natural hazards.

MethodThe purpose of this case study was to understand the preliminary impact of PREPARE SumBar and to look for evidence of sustainability embedded in project outcomes.To this end, the study generated both findings and recommendations for others engaged in DRR work. In addition to reviewing project-related documents, researchers administered a KAP survey to the case study and comparison community schools and teachers, completed site visits and observations, and held semi-structured individual and small group interviews with Air Manis Disaster Preparedness Team (DPT) members, students and teachers, and the Padang City BPBD.

Hyogo Framework for Action (HFA) 2005-2015The HFA is the guiding global framework for Disaster Risk Reduction and PREPARE SumBar activities were designed to contribute to four of HFA’s five priorities and two of the three Strategic Goals (See Annex E and PREPARE SumBar evaluation4). Recently, International DRR networks (e.g., GNDR, ECB) as well as UN-ISDR have focused specifically on local DRR governance as one of the greatest challenges to effective DRR implementation. The aim is for communities

EXECUTIVE SUMMARYIswanto/Mercy Corps

4 Mirjam Hendrickse, “PREPARE SumBar Community-based Disaster Management and Local Government Capacity Building Final Evaluation Report,” October 2011.

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to access and influence local government resources as

well as to establish mechanisms so local governments

connect to and support DRR work at the grassroots.

Good practice examples of functioning community

and local government DRR systems and structures are

rare. PREPARE SumBar’s unique approach makes

an important contribution to this ongoing global

conversation; this study’s findings and

recommendations contribute specifically to

understanding the potential synergies of working

simultaneously with several sectors of the population (e.g.,

schools, community, government).

Local government (district)EXPECTED RESULTS

OVERVIEW The work of PREPARE SumBar is poised to

continue under the leadership of the BPBD and has helped

them prioritize DRR, connect to local communities, and

fulfill their responsibilities. BPBDs have gained momentum

and capacity, increased political good will, created a useful

network structure, and increased their credibility as

disaster management agencies. For example, Padang

BPBD has officially declared their commitment to DRR, has

signed and agreed to SOPs for their agencies’ disaster re-

sponse, has participated in the training of 54 DPTs and has

a plan for training the remaining 50 newly formed DPTs in

the next year. They have submitted a budget to the legisla-

ture to continue their training programs and support to the

local DPTs.

RECOMMENDATIONS

1) Hire project staff who understand how government

functions and how to build relationships.

2) Involve the local government during the early project

planning and keep them involved and informed about

communities and schools throughout

the implementation.

3) From the beginning, work with key government

stakeholders to ensure that planned interventions and

newly established mechanisms have buy-in at the

highest levels and reflect their priorities and ways

of working.

4) Support the BPBD to develop and manage a mentoring

system among the established DPTs and the ‘new’

DPTs; this could bring the PREPARE SumBar model to

scale within the district and would require less intensive

support than the full PREPARE SumBar program.

5) Learn the best ways to facilitate inter-agency

coordination between various government departments

to meet the challenge of working within both centralized

and decentralized government structures (illustrated in

the relationship between the BNPB - National Disaster

Management agency - and BPBD). PREPARE SumBar

addressed this on the district level by supporting the

creation of the Consultative Task Force.

Communities EXPECTED RESULTS

OVERVIEW The communities now know what they should

do and where they should go during and after an earth-

quake. For example, older people were convinced to pre-

pare and to evacuate. Before PREPARE SumBar most of

the elderly felt that hazards were their fate and therefore it

made no sense to prepare for them. After the Hazard and

Vulnerability Capacity Assessment (HVCA) process, more

than 50% had changed their minds, agreeing to prepare

at home and in the event of a tsunami warning, go to the

evacuation site.

The DPTs feel responsible for their community’s safety and

have an intrinsic motivation to continue their disaster

preparedness activities. They have strong momentum and

were energized and encouraged by receiving training and

emergency response equipment. They now know how to

appropriately access their local government and have the

capacity to organize, identify and advocate for their needs.

PREPARE SumBar’s trained DPTs can prepare funding

applications, engage in budget discussions, and have the

capacity to manage funds. The fact that the DPTs are

linking DRR with income generating activities and have

increased capacity around fundraising significantly

enhances their sustainability.

3. Eight communities have increased knowledge and

skills to reduce their vulnerability through training and

participatory planning. HFA 2, 3, 5

4. Forty DPT members proactively promote

preparedness within and beyond their communities,

and advocate to the government their

preparedness needs. HFA 1, 3, 5

1. Two District Disaster Management Agencies (BPBD)

have been trained and have developed Standard

Operating Procedures (SOPs) and contingency plans

per the Disaster Management Law Number 24, 2007.

HFA 1, 3, 5

2. Disaster Management Agencies/BPBD from four other

districts in the province, and from the West Sumatra

provincial Disaster Management Agency, learn about

the P3DM approach to DRR through cross-learning.

HFA 1, 3, 5

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RECOMMENDATIONS

1) Leverage the recent memory of an emergency to gain

greater participation.

2) Include a cross section of society (youth, elderly, women)

in the community assessment process and in the DPT.

3) Ensure that there are DPT members with credible links in

the community as well as to community and local

government leadership.

4) Connect DPTs early on with other DPTs for continued

encouragement and support.

SchoolsEXPECTED RESULTS

OVERVIEW PREPARE SumBar schools now know what to

do in case of an earthquake and tsunami and successfully

execute evacuation simulations with skill and great

enthusiasm. The SDPT members have more

self-confidence, are more familiar and comfortable working

inter-generationally, and are enthusiastically sharing their

information in their families and recruiting others to join the

disaster preparedness activities. There are now inter-school

links and networks within the province aimed at supporting

SDPTs.

Based on the KAP survey, Air Manis teachers knew twice

as much as their untrained comparison teachers about how

earthquake and tsunami resistant their school was. The

KAP survey results consistently demonstrated the impact

of the PREPARE SumBar capacity building for both

students and teachers (See Annex B for survey questions

and scores).

RECOMMENDATIONS

1) Adopt a practical, activity-based approach to DRR

learning. Use competitions, cross visits, DRR camps,

and simulations to reinforce knowledge so SDPT

membership is a coveted privilege.

2) Simulations are essential. Use them to identify gaps, as

competitions (e.g. timed evacuations), and to reinforce

and solidify learning such as First Aid, coordination and

cooperation, etc.

3) Develop an inter-DPT mentoring system to leverage the

strength of existing SDPTs, motivate and maintain

current SDPTs, and help establish SDPTs where they

don’t exist.

SynergiesThe intra-district governmental Consultative Taskforce is

an innovative solution to the problem of coordination within

the district’s departments (i.e., health, education, BPBD,

etc.) and with the community DPTs. The Taskforce aims to

encourage the integration of DRR activities throughout the

city/district departments, ensure the continuity of

communication and collaboration between district

agencies and the communities as the district/city assumes

responsibility for the DPTs, and keep knowledge and

concern about tsunamis and earthquakes alive by

improving support and coordination. In Padang, the mayor

named his Second Assistant as the taskforce’s leader; this

assured that the Taskforce had the status and convening

power to bring all relevant governmental bodies together.

ConclusionPREPARE SumBar opened channels of communication

between the BPBD, the Taskforce and the community

DPTs. This significantly improved coordination and

communication in multiple directions so everyone knew

who to talk to and how to contact them. It provided broader

coverage to disseminate information about hazards (and

anything else).

Relationships created during PREPARE SumBar with

district and provincial government departments are being

leveraged and expanded beyond project areas. Adjoining

districts are creating their own mechanisms modeled after

PREPARE SumBar.

As PREPARE SumBar wraps up its activities, there is

encouraging evidence of the positive effects of the

program. PREPARE SumBar was modeled on P3DM, and

the combined learnings from both programs show that

participants are eager to absorb information, organize their

communities and districts, and feel responsible to share

what they know.

Indonesia is now well positioned to leverage its national

Disaster Management Law and strong civil society culture

to find innovative solutions to the problems of natural

hazards and climate change. The critical need is to link

political will at the national level, build institutional capacity

among provincial and district governments, and link them

with civil society organizations and communities to increase

preparedness and resilience.

5. Twelve School Disaster Preparedness Teams (SDPTs)

are established and trained in twelve schools in Padang

City and Agam District. HFA 3, 5

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Hazards in Indonesia and West Sumatra Indonesia is internationally recognized as one of the countries most vulnerable to natural hazards. Earthquakes, tsunamis, volcanoes, landslides, flooding, droughts, sea level rise and storm surges all wreak havoc on local populations and economies throughout Indonesia. The effects of climate change are increasing many of these perennial hazards. Changes in rainfall patterns are affecting food security and drinking water; storms and other weather patterns are becoming more severe; sea level rise is a new threat putting lives and livelihoods at risk in coastal communities. For Indonesia to effectively face these challenges, a comprehensive national policy approach must be integrated with local, context-specific initiatives rooted in communities and their governments. Evidence suggests that the most cost-effective and life-saving initiatives are community-driven and supported by governments commited to prioritizing disaster management.5

Currently, despite a broad awareness of hazard threats and the positive steps taken by the government of Indonesia, which has promoted disaster management as one of the national priorities (enshrined in Disaster Management Law number 24/2007), there are many vulnerable communities with no basic preparedness measures in place. Some of these communities have a fatalistic approach to hazards. Others simply do not have the support they need from local governments that are largely lacking the training, capacity, and equipment necessary to address disaster risk reduction (DRR). This creates a gap between national government policies on disaster management and what is actually implemented at the provincial, district, and local levels.

Situated beside the Alpide fault line, which was the source of the 2004 tsunami, the province of West Sumatra is at high risk for earthquakes and tsunamis as well as flooding and landslides. There were 41 earthquakes over 6.0 RS registered in West Sumatra between 2000 and 2011. Padang, the capital city of 900,000 people, is on the coast, exposed to sea level rise as well as storm surges and tsunamis. Focus group discussions and disaster mapping in rural communities as part of Mercy Corps’ Public Private Partnership for Disaster Management (P3DM) program in

5 World Bank, “Building Resilient Communities: Risk Management and Response to Natural Disasters through Social Funds and Community-Driven Development Operations,”

http://siteresources.worldbank.org/INTSF/Resources/Building_Resilient_Communities_Complete.pdf.

BACKGROUNDThatcher Cook for Mercy Corps

West Sumatra showed that communities have legitimate worries about the possibility of a tsunami, but often feel the impacts would be “God’s will” and they therefore have little role in preparing for the effects of a tsunami. More frequent disasters, such as the flooding that regularly ruins crops and damages assets, are viewed with an even greater degree of resignation.

In Padang City, a 2010 Mercy Corps survey found widely varying vulnerability in different neighborhoods, demonstrating a lack of integrated disaster planning and a clear disconnect between communities and government in terms of articulating disaster management needs.6 In addition, there is a lack of coordination and information sharing between communities and with the district and national governments — an issue that was highlighted in the aftermath of the 30 September 2009 earthquake in West Sumatra. Emergency plans are not linked and as a result, SOPs, where they exist, are less-effective.

However, in the wake of the 2009 West Sumatra earthquake, which destroyed more than 200,000 homes, people are showing greater interest in DRR activities and there is an opportunity to engage communities and government in preparedness efforts. An external consultant evaluating the earthquake response by the Emergency Capacity Building (ECB) consortium partners found that most communities considered DRR training very useful, and requested more training opportunities.7 Mercy Corps hopes to support by targeting vulnerable communities while capacitating those communities in their own planning and decision making. The Padang city government has also requested assistance in planning for future disasters.

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6 Michael Haggerty and John Taylor, “Padang House by House: A Housing and Vulnerability Assessment,” (Mercy Corps Indonesia, July 2010), 54.7 Pauline Wilson, “Report of the joint evaluation of the Indonesian ECB consortium’s responses to the West Java and West Sumatra

earthquakes” (Indonesia Emergency Capacity Building Joint Evaluation, April 2010), http://www.ecbproject.org/Pool/jointevaluationreport-ecbindonesiaconsortiumresponse-westsuma-

tra-javaearthquakes-april2010.pdf.

Mercy Corps’ 2011 program sites

Mercy Corps in Indonesia and West SumatraMercy Corps has been working in Indonesia since 1999, addressing the root causes of poverty and improving the quality of

life for urban and coastal communities affected not only by hazards and conflicts, but by ongoing and entrenched barriers

to economic development. Today, Mercy Corps is implementing 15 programs across Indonesia with a total annual budget of

€ 9.5 million. Mercy Corps Indonesia has its main office in Jakarta, with field offices in five provinces and 275 staff.

Tsunami 2004 Banda Aceh

Earthquake 2006 Java

Flooding 2007 Jakarta

Earthquake 2009 West Java

Earthquake 2009 West Sumatra

Tsunami 2010 Mentawai Islands

Volcano 2010 Central Java

Table 1

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In addition to its development programs, Mercy Corps has responded to a number of disasters as outlined in Table 1 and has

or is implementing 12 recent DRR programs including six in West Sumatra (Table 2).

Mercy Corps’ West Sumatra office opened in Padang in 2005 with the Sumatra Healthy Schools program, and Mercy Corps

first implemented a Disaster Risk Reduction pilot project in West Sumatra province in 2006-2007 as part of an Emergency

Capacity Building (ECB) program. Through that work, implemented in collaboration with a local NGO partner (Komunitas

Siaga Tsunami — Kogami), Mercy Corps gained a good understanding of the needs, capacities, and underserved areas in

West Sumatra.

The ECB pilot was followed by The Public Private Partnership for Disaster Management (P3DM), a two year DRR program

funded by OFDA and Boeing. In Padang Pariaman and Pesisir Selatan, two West Sumatra districts, P3DM worked with

Kogami and local private sector companies to build community and stakeholder capacity to prepare for, mitigate, and respond

to disasters. This approach included basic community hazard mapping, formation and training of disaster preparedness

teams (DPTs) in each village, training and awareness-raising in schools, mitigation projects, capacity building of local

stakeholders, and large scale disaster simulations.

P3DM’s effectiveness was demonstrated during the 2009 West Sumatra earthquake. The final report said that communities

with DPTs were significantly more prepared than other communities.8 The earthquake highlighted the continued vulnerability

of populations in West Sumatra as well as the eagerness of government and communities to work together on preparedness

and mitigation.

8 “Public Private Partnership for Disaster Management Final Report September 2008 – December 2010,” (USAID/OFDA, 31 December 2010), 15.

Immediate Relief to Jakarta Flood Victims Feb – Aug 2007Asian Cities Climate Resistance Network (ACCRN) Jul 2010-Jun 2013Assisting Livelihoods and Recovery in Mentawai (ALARM) Nov 2010-Aug 2011Indonesia Liquidity Facility After Disasters Jul 2011 – Jul 2012

Risk Reduction Capacity Building in West Sumatra (ECB) Apr 2006 – Mar 2007Public Private Partnership for Disaster Management (P3DM) Sep 2008 – Sep 2010 West Sumatra DRR awareness campaign and government capacity building Feb – Jul 2010PREPARE SumBar Jul 2010 – Sep 2011 Stakeholder Coordination, Advocacy, Linkages and Engagement for Resilience Program Sep 2010 – Sep 2013 (SCALE-R)Air SumBar (water-related DRR) Apr 2011 – Apr 2012 Resilient Villages: Safe House Construction May 2011 – Aug 2012

Table 2

Mercy Corps’ DRR activities in Indonesia

Programs in West Sumatra

PREPARE SumBar in West SumatraPREPARE SumBar builds on the work of the P3DM program, replicating the model in additional communities of Padang City

and expanding to Agam District. PREPARE SumBar aimed to increase resilience and reduce vulnerability in eight local

communities (four in each district) and 12 schools (four in Padang City, eight in Agam) through capacity building that

enable these groups to better prepare for, mitigate, and respond to natural disasters. PREPARE SumBar also supported the

Disaster Management agencies (BPBD) in each district to increase their ability to sustain and train the community DPTs. Mercy

Corps worked in the schools directly and collaborated with local partner JEMARI Sakato in the communities and with

the local government.

PREPARE SumBar created the intra-district governmental Consultative Taskforce’s to guide, support, encourage, and liaise

specifically with community DPTs. In Padang, the mayor named his second assistant as the taskforce’s leader; this assured

that the Taskforce has the status and convening power to bring all relevant governmental bodies together.

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On the Taskforce’s agenda is:

• Encouraging the integration of DRR activities throughout the city/district departments;

• Ensuring the continuity of communication between district agencies like the BPBD and the communities as the

district/city assumes responsibility for the DPTs; and

• Keeping knowledge and concern about tsunamis and earthquakes alive by improving support and coordination.

P3DM reached 10,000 beneficiaries in 24 months and PREPARE SumBar expanded its reach to an estimated 28,850 in only

15 months. In that short time, PREPARE SumBar completed several impressive achievements including:

• Creating, training, and equipping 20 active, enthusiastic DPTs and SDPTs

• Training, supporting, and preparing local government disaster preparedness trainers

• Conceiving and supporting the creation of two district level Consultative Task Forces

• Successfully completing all planned project activities on time

9 Convened by the Mayor’s Second Assistant in Padang, the Consultative Taskforce brings together district departments (i.e., BPBD, Health, Education, Social Welfare etc.) to

support community DPTs disaster preparedness efforts.10 EC Regulation N°1257/96 of 20 June 1996, OL L163 of 02.07.1996, http://ec.europa.eu/echo/files/funding/opportunities/interest_dipecho7_2010_SEA_guideline_en.pdf.11 EC Regulation N°1257/96 of 20 June 1996, OL L163 of 02.07.1996.

DIPECHO in IndonesiaInitiated by the European Commission Humanitarian Aid and Civil Protection department in 1996, the Disaster Preparedness

Program (DIPECHO) focuses on resilience building activities for hazard prone communities. The activities it supports work

“to ensure preparedness for risks of natural disasters or comparable circumstances and use a suitable rapid early-warning

and intervention system.”10 Mercy Corps has completed DIPECHO programs in Nepal, Pakistan, Kyrgyzstan, Tajikistan, and

Uzbekistan. PREPARE SumBar is the first time Mercy Corps Indonesia has partnered with DIPECHO.

DIPECHO has funded work in Indonesia since 1998 and is now undertaking its 7th Action Plan in South East Asia, with a

regional budget of approximately € 10 million to be allocated for 15 month programs. The current plan has focused on

targeting vulnerable communities, and using participatory approaches to foster replicable preparedness measures. The next

DIPECHO round will emphasize scale-up of successful existing projects and program handover.11 This case study focuses on

lessons learned and challenges which should benefit DIPECHO 7’s scale-up and handover phase.

COMMUNITY • DPTsestablishedandtrainedineightcommunities•Advocacyworkshop•CompletedHazardandVulnerabilityCapacityAssessment•CommunitySOPs,emergencyplansandevacuationroutes•Peertraining/sharing,cross-visitstovillageswithouttrainedDPTs

DISTRICT • TwoBPBDagenciestrained,institutionalcapacitystrengthened•SOPsdeveloped•DPTtrainerslinkedwithBPBD•Cross-learningwithBPBDfromotherdistricts•TwodistrictStakeholderConsultativeTaskforcesestablished9•District-widevulnerabilityandcapacityassessment•Advocacyworkshops•Tabletopsimulations

SCHOOL •SchoolDisasterPreparednessTeams(SDPTs)establishedandtrainedin12schools(elementary,juniorandseniorhighschools)•SOPs,emergencyplansandevacuationroutesdeveloped•Schoolwidesimulations•Cross-SDPTsharingandcompetitionsheldatDRRcamp•Teacher’sForum

Table 3

PREPARE SumBar project activities

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Goals and research focus This case study sought to illuminate the strengths and challenges of the PREPARE SumBar program. It took place during

the final month of the project and focused on one community (Air Manis) and its school in the Padang City district. The study

aimed to identify the most valuable aspects of the project from the perspectives of the participants. Specifically:

1. Identify relevant changes at the community, school, and district levels.

2. Investigate the synergies, challenges, and benefits of a multi-sectoral DRR program

Research methods and activitiesBoth quantitative and qualitative methods were used for data collection and analysis. Research activities included:

• A background review of project-related documents, records, publications, case studies, and secondary data. These

included project records, reports and stories from project staff (including JEMARI Sakato - implementing partner) and

beneficiaries as well as quantitative survey results from a community baseline carried out in the community by JEMARI

Sakato and a Knowledge Attitude Practice (KAP) survey done in the school by Mercy Corps.

• A quantitative KAP survey was administered to 11 teachers/administrators and 89 4th – 6th grade students in Air Manis

and 29 teachers/administrators and 82 4th and 5th grade students at a comparable control school in neighboring

Teluk Bayur.

• Site visits and observations of the selected community, schools, and district BPBD.

• Semi-structured small group interviews with the following project participants and comparison group:

Gabrielle Fox/Mercy Corps

METHODS

- 6-8 PREPARE SumBar project staff - 7 Air Manis student members of the SDPT - 8 members of the Padang BPBD and Dedi

Henidal, BPBD head

- 5 JEMARI Sakato (local partner) project staff - 6 Air Manis DPT members and the head of the

kelurahan (administrative village) and his deputy- Kelurahan head and DPT chair for Teluk Bayur

- Budi Kurniawan, PREPARE SumBar Project Manager- Didi Aryadi, Mayor’s Second Assistant and head of the

Consultative Task Force

- Endang Trisna, P3DM Project Manager- Nurhayati, Air Manis DPT member - Jalus, Air Manis DPT Vice Coordinator

• Individual interviews with the following:

• Presentation of findings and discussion with PREPARE SumBar project staff

Sampling methodFor the quantitative survey in the schools, three classes of

4th and 5th graders at Teluk Bayur and all 4th – 6th graders

in Air Manis were surveyed. Teluk Bayur was a much larger

school so adding the 6th grade in Air Manis helped achieve

a comparable number of student subjects. All available

teachers and several administrators in both schools were

sueveyed. The choice of interview subjects and small group

discussion participants was guided by project components,

the choice of community and the community comparison

group.

Selecting a study location Air Manis was chosen as the case study village for

several reasons:

• It was one of eight PREPARE SumBar communities with

active community and school DPTs.12

• There was a nearby community (Teluk Bayur) with a

similar hazard profile that had not participated in

PREPARE SumBar.

Teluk Bayur, the ‘comparison’ community that lies just south

of Air Manis (but not directly accessible via a paved road),

was not a part of the PREPARE SumBar program, though it

was one of 54 communities that received two days of basic

training on forming a community DPT in a separate Mercy

Corps effort in July 2011.

Given similar hazard profiles, comparing these two

communities using a quantitative survey in the schools and

through interviews with the DPTs and other relevant

stakeholders, illuminates some preliminary impacts of the

PREPARE SumBar project.

Overview of the communities AIR MANIS Air Manis is located along an isolated stretch of

coastline, just over a significant hill in the south of Padang.

It is one of the favored beaches and tourist sites for people

throughout Padang.13 During weekends and holidays, the

winding one lane road up over the steep hill to the beach

can be stop and go traffic.

Air Manis is home to 1,509 people and is the smallest

PREPARE SumBar village in Padang. Three hundred and

seventy-nine households are located in the flat areas where

the ocean meets the foothills and there are 18 households

on the hillside. The community is cohesive and prides

itself on a sense of deep kinship amongst residents. As

in the rest of Padang and West Sumatra, Air Manis is

mainly Muslim with three mosques that also serve as

community centers.

Most community members are employed as fishermen

or farmers. Farmers cultivate cloves, nutmeg, cinnamon,

cacao, and coconut. A significant share of the population

works as merchants, catering to beach visitors. There are

also general laborers and a handful of government

employees; 37% of the population is classified as poor.

Natural hazards in Air Manis Natural hazards are real

and ever-present concerns for the people of Air Manis. In

the 2009 earthquake, 40 houses were severely damaged.

The community worries about future earthquakes,

particularly ones accompanied by a tsunami that would

cause much greater devastation. Even without these

unpredictable large-scale hazards, the community has

experienced gradual incursions due to sea level rise. The

village has tracked sea level rise since the 1970s and notes

that since the 1990s on average there are at least two

unusually high tides each month that have already wiped

out the beach road (isolating some community buildings)

and are gradually eroding the coast line.14 The beach is

now about 20 meters distance from the school which is

less than one meter above sea level.15

9

12 For a list of all project locations, see Annex D.13 When speaking about Air Manis, it is inevitable that reference will be made to “Batu Malin Kundang,” a stone monument to a legend famous throughout West Sumatra

which, along with Air Manis’ beach, draws tourists from all over Indonesia.14 “Air Manis Hazard and Vulnerability Capacity Assessment,” May 2011, 19-20. 15 “Air Manis Hazard and Vulnerability Capacity Assessment, 19-20.

PREPARE SumBar and disaster preparedness in

Air Manis community In the PREPARE SumBar program,

Air Manis participated in 9 months of intensive community

mobilization efforts (supported by Mercy Corps and

JEMARI Sakato) which included supporting the formation

of a community DPT named Camar Laut (‘Seagull’). The Air

Manis elementary school participated in 9 months of

disaster preparedness training that included forming

SIMANIS (“Air Manis Alert”), the School Disaster

Preparedness Team (SDPT). The SDPT combined four

teachers and 38 students (20 boys and 18 girls) in after

Table from the Air Manis Hazard and Vulnerability Capacity Assessment

 Probability the hazard will happen Severity of

Potential Damage

Very low

Low Average High Very high

Small Landslides High tides Medium

Large

Sea level rise

Very large Earthquakes, tsunamis

Air Manis hazard probability matrix

Table 4

10

school trainings and activities to raise awareness of hazard

risks and support school preparedness efforts. Students

applied and went through a recommendation and interview

process to be selected to take part in the SDPT as an after

school activity.

Even before PREPARE SumBar, the community had done a

considerable amount of disaster preparedness on its own.

Following the 2009 earthquake, community members built

six evacuation routes and sites on the hillside. With the

introduction of Mercy Corps and JEMARI’s PREPARE

SumBar activities and subsequent establishment of the

community Disaster Preparedness Team (DPT) at the end

of December 2010, the community solidified their

commitment to disaster preparedness.

During PREPARE SumBar, they completed a thorough and

inclusive Hazard and Vulnerability Capacity Assessment

(HVCA) which was the basis for setting up their community

disaster management plans and protocols. They identified

landslides, high tides, sea level rise, earthquakes and

tsunamis as the greatest hazards threatening Air Manis and

analyzed their social, physical, economic and

environmental vulnerabilities and capabilities.15 There were

259 people identified as vulnerable within the community in

four categories: 65 elderly, 11 pregnant, 180 children under

5, and 3 disabled.

The DPT meets every other week, and has 32 members

(26 men - including 3 youth - and 6 women). They have

received ongoing informal trainings from JEMARI on group

management and engagement skills and have a dedicated

and enthusiastic team. They have prioritized raising

awareness and have disseminated stickers with

preparedness checklists and evacuation maps to each

household.16

The DPT is focused on securing resources to meet

community needs; they have proposed to clean up the

beaches by collecting shells and creating souvenirs from

them. The request for training and resources to accomplish

this has been approved by the Social Welfare Department.

The DPT is now waiting for the next budget cycle to receive

the requested support.

PREPARE SumBar and disaster preparedness in

Air Manis school There is a clear view of the beach from

the school which makes tsunami preparation essential. The

single elementary school has 198 students (11 teachers/

administrators). Nearly 61% of the population has attended

school through the elementary years. Beyond that, the

figure drops off to a stark 15% attending junior high and

12% in senior high school. If children are to continue their

studies, they must travel nearly an hour to another

community for junior high school. Only 15 people (less than

1%) have a university degree.17

The SDPTs were trained on hazard awareness and disaster

preparedness including first aid, stretcher making (which

seemed to be the favorite SDPT activity), etc. Being able

to travel and attend DRR camp to compete with other

SDPTs in a fun learning program was a strong motivator

and kept the SDPTs engaged. The teachers and students in

the SDPT developed school specific emergency SOPs and

identified their evacuation route and sites.

As part of the field work for the study, the researchers

attended an earthquake and tsunami simulation.

Simulations engage the students while providing important

practice; they reinforce desk learning and identify

16 “Air Manis Hazard and Vulnerability Capacity Assessment,” 11.17“Air Manis Hazard and Vulnerability Capacity Assessment,” 19-20.

(ON LEFT) School children play on the nearby shore during a break in classes - Gabrielle Fox/Mercy Corps (ON RIGHT) Students practice first aid during a simulation, SDPT mem-bers proudly wear their orange uniform hats and scarves - Iswanto/Mercy Corps

11

performance gaps. The students clearly enjoyed the

simulation and took it seriously; they attended to their

classmates’ pretend injuries with real bandages. It took

them seven minutes to get to the evacuation site; their

target was five minutes, but seven was enough to get all the

students out of harm’s way in the event of a tsunami.

TELUK BAYUR Though Teluk Bayur borders Air Manis to

the south, the villages are separated by forested hills and

lack a paved connecting road. Teluk Bayur is a major port

and the site of Padang Cement - one of the province’s

largest industries. It follows the curve of the coast but its

area extends significantly inland. Despite its economic

importance, much of the population of 3,449 (703

households) earns minimal wages. Around 25% of the

population is considered poor. The primary livelihoods are

farming, fishing, and employment as longshoremen. Some

also work in the navy, as civil servants, or selling food and

other items from their homes.

As a key industrial area, the community is much more

accessible to the rest of Padang than Air Manis. Its school

is about four kilometers from the ocean — compared to 20

meters for Air Manis — and it is much larger; essentially

three elementary schools combined in a single building.

Overall, the community is subject to similar hazards as Air

Manis: earthquakes, tsunamis, and landslides. Rising sea

levels pose a less immediate threat to Teluk Bayur

households, but they face greater likelihood of flooding.

Disaster preparedness in Teluk Bayur community Like

Air Manis, Teluk Bayur suffered during the 2009 earthquake

and afterwards community members established four

evacuation routes and sites. The DPT in Teluk Bayur was

formed in July 2011 following the basic DPT training from

Mercy Corps. It has 20 members. According to the

government census there are 397 vulnerable people in

Teluk Bayur: 105 elderly, 10 expectant mothers, 4 disabled,

and 278 children under the age of five.

It is clear that DPT members in Teluk Bayur have similar

motivations for helping their community prepare and many

of the same concerns as their counterparts in Air Manis.

The head of the DPT, a woman named Munizzar, said she

was committed to the DPT because she thinks her area is

very vulnerable to hazards. During her experience in 2009,

she observed many people running in a panic to the hillside.

She wondered whether she could help people to control

themselves and reduce their panic.

Aside from the initial training and a request from Padang

Cement to Mercy Corps to organize an earthquake and

tsunami simulation for harbor workers, the DPT has

received no further assistance. In Teluk Bayur, the DPT is

struggling to identify who to seek help from and to connect

and communicate with the authorities. It has been unable

to mobilize resources and has thus far acted to protect its

community in isolation.

12

Local DRR governance is one of the biggest hurdles to effective DRR implementation; good practice examples of functioning community/local government DRR systems and structures are rare. The challenge is not just for communities to access and influence local government resources but also to establish mechanisms so local governments connect to and support DRR work at the grassroots. By connecting schools and their communities to the district disaster management agency (BPBD) and other relevant district departments through the district’s Consultative Task Force, PREPARE SumBar established a model that should be replicated and tested in additional settings.

This study’s findings and recommendations contribute specifically to understanding the potential synergies of working simultaneously with several sectors of the population (e.g., schools, community, local government). The key findings of this case study are drawn mainly from one community as well as relevant program records and are largely based on the perceptions of those involved in the project either as participants, project staff, agency or country leadership. They are organized by local government (e.g., district), community, and school, and include a final section on the synergistic benefits of working with all three sectors simultaneously.

Based on the recent final project evaluation, these findings and recommendations can be generalized to the PREPARE SumBar project as a whole and to contextually similar DRR projects.18 These principles and the model of engagement demonstrated is generalizable beyond the specific Indonesian cultural context to other regions and contexts.

Local government (district) Information was drawn from an interview with Didi Aryadi, the Mayor’s Second Assistant and convener of the Consultative Taskforce (representatives from relevant district agencies – i.e., planning, BPBD, social welfare, health, education etc.), and a small group discussion with Dedi Henidal and his staff at the Padang District BPBD.

18 Hendrickse, “PREPARE SumBar Community-based Disaster Management and Local Government Capacity Building Final Evaluation Report.”

FINDINGSGabrielle Fox/Mercy Corps

13

OVERVIEW The work of PREPARE SumBar is poised to continue under the

leadership of the BPBD and has helped them prioritize DRR, connect to local

communities, and fulfill their responsibilities. The BPBD has gained momentum

and capacity, increased political good will, created a useful network structure,

and increased their credibility as a disaster management agency.

For example, Padang BPBD has officially declared their commitment to DRR,

has signed and agreed SOPs for their agency’s disaster response, has

participated in the training of 54 DPTs and has a plan for training the

remaining 50 newly formed DPTs in the next year. They have submitted a

budget to the legislature to continue their training programs and provide

support to the local DPTs.

FINDINGS PREPARE SumBar directly supported local government DRR

plans and policy which helped the BPBD reduce risks in the target

communities. PREPARE SumBar helped the mayor achieve his vision of

reducing disaster risk at a local level by supporting the creation of community

DPTs and facilitating dialogue and planning between the community and city

government. This created political capital for the BPBD, community DPTs, and

Mercy Corps.

Local government agencies have greater capacity to implement disaster

preparedness trainings. BPBD can coordinate and facilitate DPT trainings as

well as the SOP/contingency planning process. They are still not at full

capacity, suffer from high turnover, and are lacking full confidence to move

forward but they are much stronger than they were a year ago.

The BPBD has committed to continue DPT training and plans to train the

remaining 50 untrained DPTs in Padang City. All 104 kelurahan of Padang

City have established DPTs, 54 have already been trained by BPBD/Mercy

Corps, and 50 more need to be trained. PREPARE SumBar helped the BPBD

plan and advocate to parliament for additional budget to accomplish this.

Members of the BPBD learned new ways of approaching DRR from the various PREPARE SumBar activities and trainings.

Noverman, one member of the BPBD team trained by PREPARE SumBar, realized that in addition to physical safety, the BPBD would also have to pay attention to people’s psychosocial needs after a disaster.

GabrielleFox/MercyCorps

Indonesia’sfiscalyearfollowsthecalendar;inOctober,executive heads of districtsand provincial governments(mayors etc.) submit theirnext year’s budgets to thelegislatures.BudgetsaredebatedandsetinNovemberandDecember.An indication of successwillbenextfiscalyear’sbudgetallocations which are beingnegotiatedas thisdocumentgoestoprint.

BPBD logoGabrielleFox/MercyCorps

14

Relationships and connections between community DPTs and their

government representatives are now well established. This is already

increasing efficiency when communities experience an emergency

(See page 21).

CHALLENGES High staff turnover in government is a perennial challenge

and can be discouraging after completing a full training cycle. It was

sometimes challenging to have enough trained government staff to implement

the program.

Coordination still needs improvement - in a few cases, duplicate DPTs were

organized and there are still some tensions and distrust between DPTs

established by PREPARE SumBar and the DPTs formed by the government

(BPBD) in the four villages of Padang City.

On the budget side, even with the mayor’s Consultative Taskforce

coordinating district departments, it is challenging to secure funding for

disaster preparedness activities in poorly resourced budgets. Departments

may say yes to a proposal, but funding is often put on hold until the next

fiscal cycle.

CommunityInformation was drawn from a small group discussion with Air Manis DPT,

several one-on-one interviews with community members as well as several

small group discussions with project staff.

OVERVIEW The communities now know what they should do and where they

should go during and after an earthquake. For example, older people were

convinced to prepare and to evacuate. Before PREPARE SumBar most of

the elderly felt that hazards were their fate and therefore it made no sense to

prepare for them. After the HVCA process, more than 50% had changed their

minds, agreeing to prepare at home and in the event of a tsunami warning, go

to the evacuation site.

The DPTs feel responsible for their community’s safety and have an

intrinsic motivation to continue their disaster preparedness activities. They have

strong momentum and were energized and encouraged by receiving training

and emergency response equipment. They now know how to appropriately

access their local government and have the capacity to organize, identify and

advocate for their needs. PREPARE SumBar’s trained DPTs can prepare

funding applications, engage in budget discussions, and have the capacity to

manage funds. The fact that the DPTs are linking DRR with income

generating activities and have increased capacity around fundraising

significantly enhances their sustainability.

If the requested funding and support requested by the district departments

(e.g., Forestry, Social Welfare) is allocated during the next budget cycle it will

go a long ways towards maintaining the DPTs’ momentum. And as the

Consultative Task Force and the BPBD continue to respond to the

communities’ needs and requests, the DPTs will be able to sustain their

commitment to making their communities safer.

Jalus is the vice-coordinator of the DPT, an amateur

photographer, and a driver.

“I was at the beach with my mother’s family during the 2009 earthquake. I knew

about tsunamis and could see that the waves were OK

but others panicked.

I joined the DPT because of my concern for the

community; I have a sense of mission about this.

Now that the community is organized, if the hazard

happens while I’m working, I don’t need to worry about

my family because they now know what to do.”

GabrielleFox/MercyCorps

15

During the 2009 earthquake, Nurhayati ran to the hill in a panic. Now she says she will go out to the yard, calm down, and then evacuate using the nearest evacuation route.

She joined the DPT at its beginning and is responsible for food/kitchens. She has a list of items she’ll need if she has to feed a large camp and is waiting for funding to start stockpiling.

She went door to door in Air Manis handing out evacuation maps, household checklists, and checking to see who has ‘go’ bags.

GabrielleFox/MercyCorps

Nurhayati’s important family documents

FINDINGS The biggest change in the community is greater disaster

awareness. While everyone seems to have received some information on

earthquakes and the related tsunami risks, DPT members have in depth

information and feel responsible to share it with members of their community.

Community members know what they should do and where they should go

during and after an earthquake depending on where they are at the time it

happens.

DPT members feel responsible for the safety of the community. They plan

to pave the evacuation routes and they feel responsible to check, remind, and

practice evacuating. They went house to house in the community,

distributing the evacuation map and the preparedness plan which was posted

by the front doors of several homes. To encourage the habit of preparedness,

they checked if each house had ‘go’ bags (emergency preparedness bags).

People have a variety of personal and social motivations for joining

community DPTs. Support for expanded roles and ongoing training,

coordination, and encouragement for the DPTs leverages the variety of

personal and social motivations people have for joining the DPTs and adds to

their sustainability.

(ON LEFT) Evacuation map decal (ON RIGHT) Air Manis DPT members outside a prepared home with evacuation map and household checklist outside front door

GabrielleFox/MercyCorps

DPT members know how to prepare proposals and budgets and access

the BPBD and Consultative Task Force to make requests and get support.

Even if there never was another emergency, this skill and knowledge would

help sustain the DPTs and benefit the entire community.

The HVCA process helped the community ‘own’ their evacuation and

preparedness plans by involving all parts of the community in the process.

Meetings were held with four targeted vulnerable groups (women, children,

older people, and the disabled) as well as with mostly male

community leaders.

Anda joined fromadesire tohelphercommunity,butalso togainnewexperienceworkingwithpeople, thefeelingofbeingpartofabigfamily,andthechancetoconnectwithDPTmembersofothervillagesandareas.

16

Pen, a Mercy Corps Community Mobilizer

who worked in Air Manis, explained,

“When we first went into these communities it

seemed like everyone had pretty good hazard

knowledge, but when we dug deeper, it was clear that

the knowledge wasn’t very thorough or detailed and they didn’t know what to

do with it. Now the people in the communities where

we’ve worked have deeper, more specific and useful

knowledge. They understand the whole response and

recovery system.”

GabrielleFox/MercyCorps

19 SCALE-R is a governmental advocacy program at the provincial level and seeks to help BPBD, Education, Health,

BAPPEDA (the district planning office), and other stakeholders advocate for greater integration between CCA and DRR

and to encourage budget allocations to sustain these activities and to include them in their development agendas at the

provincial level. SCALE–R is funded by USAID and runs from September 2010 to September 2013 and has the goal of

strengthening community resilience by working with the provincial level BPBDs in West Sumatra, Jakarta, Maluku, and

Lampung provinces.

Older people were convinced to prepare and to evacuate. Before PREPARE

SumBar most of the elderly felt that hazards were their fate and therefore it

made no sense to prepare for them. After the HVCA process, more than 50%

had changed their minds, agreeing to prepare at home and in the event of a

tsunami warning, go to the evacuation site.

Women had a strong interest in preparedness because they felt responsible

for the family. Based on the trauma of their 2009 earthquake experience, they

wanted to find out how to prepare for everything that could happen. Six

women are an active part of the DPT.

CHALLENGES It was difficult, especially at first, to create buy-in and

enthusiasm for a pure capacity building program (no project funding for

infrastructure) but once participants started to see the benefit they

collaborated enthusiastically.

Recommendation: Include a budget of small-scale infrastructure projects so

communities see some tangible benefit early in the project.

It was hard for the PREPARE SumBar project team to step away from the

relationships they had developed with the government and the community-

because they were so invested in the project - 15 months was enough time

to create, train, and establish the ‘bones’ of a good disaster preparedness

program but not quite enough time to build strong ‘muscles’and ‘connective

tissues.’

Recommendation: Connect DPTs early in the process with each other for

continued encouragement and support (this was done). Creating the Teacher’s

Forum, the Consultative Taskforce and the other network structures mentioned

previously are all good ways to address this.

Staff were acutely aware of the logistical challenges of working in isolated

areas with a small project team. This challenge continued to test the creativity

and dedication of project staff. It was 2.5 hours between Padang and Agam

districts and even within districts, it could be 2.5 hours between project

locations.

Learning the best ways to facilitate cross sector coordination between the

various government agencies and meeting the challenge of working within

government structures that were both centralized and decentralized

continued to challenge the project team. This is illustrated in the relationship

between the BNPB (National Disaster Management agency) and BPBD.

Recommendation: PREPARE SumBar addressed this on the district level by

supporting the creation of the Consultative Task Force. This was easier in

Padang City because a high ranking member of the mayor’s staff was

appointed as convenor. SCALE-R (Stakeholder Coordination, Advocacy,

Linkages and Engagement for Resilience Program)19 program addresses this

at the provincial and national levels.

RESEARCH QUESTIONS In thinking about community programming

17

that builds on the work of PREPARE SumBar, there are several interesting

research questions that could be explored during an emergency or in

a follow on program:

1) Both children and adults asserted that knowledge of hazards and disaster

preparedness would reduce their panic in the event of an emergency. There

is preliminary evidence that this has been true in Indonesia.20 When an

emergency happens in communities where this work has been done,

interviews and data should be collected to understand if this is true and

what the benefits are (e.g., if people are less panicked, are there fewer

injuries? quicker recovery? greater ability to work together as a community

and bounce back?).

2) How much support is needed to sustain nascent teams like the

community DPTs?

SchoolsWest Sumatra’s schools run year round and promotions to the next grade

happen in July. PREPARE SumBar began working in the Air Manis school in

the middle of this cycle in November 2010, SDPTs were established in

January 2011 and training continued through May 2011 so these findings

reflect 9 months of school activity. PREPARE SumBar did no DRR work in

Teluk Bayur’s schools.

The results of a quantative KAP survey administered to teachers and students

in both Air Manis and Teluk Bayur documents PREPARE SumBar’s impact in

the schools. (See Annex B for graphic results). Several questions in the student

survey were identical with those in the teacher survey and the results have

been presented together. Qualitative information is based on observations at

a simulation, a small group discussion with 10 student members of the SDPT,

and a discussion with members of the PREPARE SumBar project team (See

Annexes A, B and C for complete KAP survey results).

Wawan, a Mercy Corps DRR trainer who worked with the schools in Padang City, said,

“Every teacher in the school had some trauma about disasters and at first, having any discussion of disasters made them worry that a disaster was coming so, they resisted our project.”

Gradually, project staff built trust and offered step-by-step information that opened teachers’ minds. Now many teachers prioritize disaster preparedness activities.

Project staff offered to postpone school simulations so that students could focus on final exams, but the teachers said ‘No, we can’t wait! Come back!’”

They asked to increase the once-a-week training to twice a week.

MercyCorpsIndonesia

(ON LEFT) Students cover their heads with backpacks at the beginning of an earthquake simulation (ON RIGHT) Excitedly evacuating

GabrielleFox/MercyCorps

OVERVIEW PREPARE SumBar students and teachers now know what to do

in case of an earthquake and tsunami and successfully execute evacuation

7 Wilson, “Report of the joint evaluation of the Indonesian ECB consortium’s responses to the West Java and West

Sumatra earthquakes.”

18

simulations with skill and great enthusiasm. The knowledge and skills

embedded in the SDPT program increase the safety of students and

teachers and spill over to benefit the community. The KAP survey results

consistently demonstrated the impact of the PREPARE SumBar capacity

building for both students and teachers (See Annexes B and C for survey

questions and scores).

The SDPT members now have more self-confidence, are more familiar and

comfortable working inter-generationally, and are enthusiastically sharing their

information in their families and recruiting others to join the disaster

preparedness activities. One of the many advantages of school-based DRR

training is that parents now know that their children will evacuate at school so

they feel able themselves to evacuate directly; this should save more people in

the next big earthquake or tsunami. There are now inter-school links and

networks within the province aimed at sustaining SDPTs.

FINDINGS Air Manis teachers knew twice as much their Teluk Bayur

counterparts about how earthquake and tsunami resistant their school was.

Teachers answered more detailed questions about hazard risks of their schools

which brought out the impact of the PREPARE SumBar capacity building

(Annexes B and C). The reach of PREPARE SumBar was obvious for both

teachers and students especially regarding disaster preparedness trainings

which included hazard knowledge, evacuation planning, first aid, evacuation

simulations and Early Warning Systems (Annex A).

Fifth-grade student Helwi Rahmat says he joined the

SDPT because of his experi-ence during the 2009 West Sumatra earthquake. “I saw

on TV during the earthquake evacuation, thousands of

people just watching when victims were trapped in the rubble. I want to be able to

help when there is an earthquake and I also want to

help my family reduce our disaster risk.”

“My grandfather supported me to join the SDPT and my parents often ask about how

to save themselves from earthquakes and tsunamis.”

He says that SDPT activities are all after school so they

don’t disrupt his school studies and rather than

playing around after school, he thinks it’s better to learn

about the science of disasters.

GabrielleFox/MercyCorps

Students and teachers in Air Manis now understand what to do and where

to go when an earthquake and/or a tsunami comes. They understand the

whole response and recovery system and know more than just how to ‘duck

and cover.’ In the survey, respondents were asked whether the school had

tools to warn them about a disaster, whether the school had a plan if there was

a disaster warning, and whether there was a specific group in the school linked

to disaster preparedness. The impact of the PREPARE SumBar awareness and

training creates a stark contrast with Teluk Bayur (Annex A).

Teachers as well as students are sharing disaster information and helping

prepare others in and beyond the classroom. They have increased their own

preparedness in their homes by completing family preparedness plans and

creating emergency ‘go’ bags.

Knowledge and training about hazards reduces people’s trauma and fear.

This frees teachers to concentrate on helping their students and helps

students respond appropriately. It should also reduce the amount of

psychosocial stress when the next emergency happens.

Air Manis students

Air Manis teachers

Teluk Bayur students

Teluk Bayur teachers

Tools to warn Response plan Specific DP group

92%

100%

50%

69%

97%

100%

73%

31%

87%

78%

4%

0%

Preparedness at school

Table 5

19

Students who joined the SDPT gained self-confidence,

are proud of the role, and feel responsible to share what

they know with others. They recruit new SDPT members

because being on the SDPT is ‘cool’ and fun.

• The project staff instilled in SDPT members a sense

that they are very special (they’ve been given

knowledge and now they have to tell their friends.

• They are now willing to speak in front of the class

and to others. The boys were especially shy and didn’t

want to talk in front of the class but after 3 or 4 months

of training they were more comfortable speaking as a

member of the SDPT and explaining about hazards,

and they feel it is their responsibility to communicate

what they know.

• Uniforms are an important identity symbol in Indonesia

and receiving an official SDPT vest, hat and scarf/sling

helped the students assume their new roles.

The SDPTs demonstrate a new model of intergenerational

cooperation. Teachers and students in the SDPT

collaborated to develop their school SOPs. It is unusual in

Indonesian culture for the young to work with their elders

outside the family. This cooperation means teachers will

have the benefit of students’ help and expertise during

an emergency.

CHALLENGES The SDPTS are just one of several school-

related but not officially government sanctioned activities

that compete for students’ time and attention; the school

curriculum is full and students have many extra-curricular

activities. SDPT activities challenged already overloaded

students who were experiencing more pressure to study

long hours.

Recommendation: The project team’s goal was to make the

SDPT a sanctioned extracurricular activity in the schools,

like a club (e.g., Boy Scouts, Jr. Red Cross); this requires

supportive government policy.

School budgets currently do not include support for

SDPTs.

Recommendation: Make this an advocacy priority.

Similar to the local government, high staff turnover in

schools is a perennial challenge. Schools frequently

change headmasters and there is no guarantee the new

headmaster will be enthusiastic about what the previous

headmaster had supported.

Though capable and enthusiastic, in a culture of

deference to elders, young DPT and SPT members were

reticent to share their knowledge and ‘teach’ their elders.

It took some creative thinking for the project team to help

the DPTs work around this issue to fully exploit the

enthusiasm and knowledge of the SDPT members.

Recommendation: Trainers discuss and negotiate with

community group members before youth start sharing

knowledge in the community.

DisasterPreparednessCamp(July8-10,2011)heldinPuncakLawang,AgamDistrict,waspackedwith274studentsandteachers from 12 schools as well as representatives from otherNGOs (e.g., Caritas, IOM, JJSB, and Kogami) and governmentagenciesincludingtheBPBD,FireDepartment,EducationAgency,andtheIndonesianRedCross.TheparticipantsspentthreedaysandtwonightsparticipatinginvariouscompetitionsandtrainingsincludingFirstAidResponder,firetraining,campmanagement,arace,andseveralquizzes.TeachersalsojoinedthequizzestotestouttheirknowledgeonDRR.

Students compete in the yells race

JuanChristie/MercyCorps

SomeyoungerDPTmemberslackedconfidencetosharetheinformationaboutdisasters.Mostyoungpeoplearenotverycomfortablewithteachingpeopleespecially those older than themselves.Theywonder,“ShouldIsharewiththem?Would they accept me, because I’myoung?” Project staff resolved this bymeetingwithDPTmembersandcommunity leaders to link them togetherand create an understanding that allowsDPTmemberstocallameetingandsharetheirknowledgeandexperiencewitholdermembersofthecommunity.

20

SynergyIf PREPARE SumBar had focused on just one sector, it still would have yielded significant influence, but with a focus

on schools, communities, AND the local governments, useful synergies emerged creating additional benefits to the

participants. All interviews, discussions, and observations sought to articulate and determine what the additional benefit

(beyond the expected benefits) and synergistic effect might be from working with schools, community, and the local

government simultaneously. The results are intriguing.

OVERVIEW The PREPARE SumBar activity that seems to have had the broadest effect is the creation of the

intra-district governmental Consultative Taskforce to guide, support, encourage, and liaise specifically with community

DPTs. The Consultative Taskforce is an innovative solution to the problem of coordination within the district’s

departments (i.e., health, education, BPBD, etc.) and with the community DPTs. The Taskforce aims to encourage the

integration of DRR activities throughout the city/district departments, ensure the continuity of communication and

collaboration between district agencies and the communities as the district/city assumes responsibility for the DPTs,

and keep knowledge and concern about tsunamis and earthquakes alive by improving support and coordination. In

Padang, the mayor named his Second Assistant as the taskforce’s leader; this assured that the Taskforce had the

status and convening power to bring all relevant governmental bodies together.

PREPARE SumBar also opened channels of communication between the BPBD, the Taskforce and the community

DPTs. This significantly improved coordination and communication in multiple directions so everyone knew who to

talk to and how to contact them. It provided broader coverage to disseminate information about hazards (or anything

else). Relationships created during PREPARE SumBar with district and provincial government departments are being

leveraged and expanded beyond project areas. Adjoining districts are creating their own mechanisms modeled after

PREPARE SumBar.

FINDINGS The DPTs may take on an expanded role in their community’s development because the Mayor’s

Second Assistant and Consultative Taskforce leader intends for the DPTs to become a gateway for other issues.

Mr. Aryadi believes that involving DPTs in the community’s economic development will give DPT members incentives to

stay involved and to sustain their DPTs while improving conditions for the entire community. He wants volunteer DPT

members to feel that being part of the DPT is an advantage to them economically beyond the DRR knowledge and

emergency skills. He believes if the DPTs are less dependent on government funding, they will be more sustainable and

so he is helping them be creative and seek alternate funding mechanisms.

“I hope the Taskforce can organize all DPTs in Padang and sustain them over time. DPTs can help with the economic growth of the community and then the community will realize that they really need the DPTs in their villages. If you only talk about disaster this, disaster that, maybe people will get bored, but if we talk about economic growth it will maintain interest”

Didi Aryadi, Mayor’s Second Assistant

Several economic development ideas have alreadybeenputforwardandagreed(thoughnotyetfunded):

• TheMinistryofMarineandFisheriesagreedtohelpacommunitywithmachineryforaboat.

• TheAirManiscommunitywantstoworkwithunused shells creatively to make souvenirs andclean up the beach. The SocialWelfare depart-ment has budgeted to give money and providetrainingonhowtomakethesouvenirsforAirManisinthecomingfiscalyear.

GabrielleFox/MercyCorpsShell souvenirs

21

• All participants can easily contact

people and know who to talk to.

• There was broader coverage to

disseminate information about

hazards (or anything else).

• On the community side, they now

have a channel for reaching the

government; when there’s a hazard,

communities can easily talk to

the district.

• The district now has a channel into

the community (the DPT).

• The channel into the community has

benefits beyond emergency

communication (e.g., in Agam the

district government and the DPT

convinced the community to

significantly reduce illegal logging

which reduced their

landslide hazard).

PREPARE SumBar opened channels of communication between the BPBD, the Taskforce and the community DPTs.

This significantly improved efficiency, coordination and communication in multiple directions. Indeed, the main

complaint heard from the Teluk Bayur DPT – where a DPT has been trained and established but where PREPARE

SumBar did not have project activities – was that people did not know who to contact.

“The more people know what to do, the easier it is for us to lead and organize the community. If the community’s panic is reduced because they know what to do and aren’t waiting to hear from us, I will be able to plan for the aftermath of the emergency.”

Dedi Henidal, Padang BPBD head

Coordination and communication that has been established before an emergency reduces the burden on the

local government. Having trained teams in all three sectors makes it likely there will be fewer victims and

reduced losses.

InAirManistherehavebeenseveraldrowningswithinthelastcoupleofyears.Thereisonetimeinparticularduringtheyearwhentheoceanbecomesespeciallydangerous.During themost recentaccident,membersof theDPT’s rapidaction team retrievedthebodywhileotherscontactedBPBD.TheDPTwantstrainingand itsowntoolstorespondquicklytosuchincidents,andresourcestopostinformationaboutstrongcurrentsinappropriateplacesalongitsbeaches.

InAugust2011inPasieNanTigo,arisingtideflooded10houses.TheDPTrespondedimmediatelyandsooncontactedBPBD,whoprovidedtentsandamealwithin8hoursforthosewithdamagedhouses(thisusuallytakesdays).WhilewaitingfortheBPBDtoarrive,DPTmemberscreatedsandbagstoprotectthehousesfromfurtherwaterdamage.ThebagshadbeenrequestedfromtheBPBDearlierandwereprepositionedbeforetheemergencyhappened.

(ON LEFT) Surveying the damage following the wave (ON RIGHT) A destroyed home

BudiKurniawan/MercyCorps

22

“If we were just working in the schools, there’d be no support from the community, no awareness of SDPTs. And if there’s no link from the government, there’s no support and budget from the government. Then when the program ends, the SDPT also ends.”

Pen, Community Organizer

CHALLENGES It was an ongoing challenge to identify DRR champions and pioneers to lead the charge and carry

on. This is a continuing need within the communities, schools, and districts.

Recommendation: When a participant seemed engaged and enthusiastic, they were invited to represent their DPT at

the Task Force meetings or could be offered special training that required travel.

• With awareness in all three sectors, there can

be coordinated planning.

• By working with three sectors, each is aware

of the weaknesses and strengths of the

others and knows how to provide

better support.

• The connections developed with the other

sectors offers confidence and

encouragement as well as support. SDPTs

receive support from the DPT, and the DPTs

from the government’s presence.

Relationships created during PREPARE SumBar with district and provincial government departments are being

leveraged and expanded beyond project areas. Adjoining districts are creating their own mechanisms modeled after

PREPARE SumBar.

Working in communities, schools, and with the local government simultaneously increases the potential for

sustainability. Like the proverbial rising tide, capacitating communities, schools, and government lifts everything a bit

higher than it would be lifted alone.

Opening up communication channels – how was this accomplished?ThegoalofPREPARESumBar’sthreedayadvocacyworkshopwastolinkwhatthecommunitywantedtodoandthelocal government’s agenda. The workshopbrought thesegroupstogether for thefirst time.Ondayone,theSDPTsandDPTsmetanddiscussed how to prioritize action plans, whattoolstouseforrankingandprioritizingprogramsandactivities,howtogive informationandskills,howtonegotiate,howtolobby,howthegovernmentworks,theirbudgetingsystems,etc.

Ondaytwo,peoplefromdifferentlocalgovernmentagencies,BPBD,andparliamentmembersattended.TheparticipantscommunicatedtheimportanceofDRR,presentedtheirplansandaskedaboutBPBD’splansforthenextyear.TwelveSPDTsandeightDPTswereunitedintheirrequesttogovernmentandwereimpressiveintheirinsistenceanddemandsontheirgovernmentofficials.Thereweresideconversations,meetings,recommendations,andpanelsandonthethirdday,thesigningofagreementsandcommitmentsandorganizingpost-workshopfollowupmeetings.

A group’s drawing from the culminating learning conference

GabrielleFox/MercyCorps

23

Indonesia is ready to leverage its national Disaster Management Law and strong culture of civil society to explore innovative solutions to the problems of natural hazards and climate change. PREPARE SumBar demonstrates that including several sectors in local capacity building can be synergistic and help create a culture of preparedness and resilience. Several conclusions and recommendations emerged from this study for local governments, communities, and schools.

Local government (district)The work of PREPARE SumBar is poised to continue under the leadership of the BPBD and has helped them prioritize DRR, connect to local communities, and fulfill their responsibilities. BPBD has gained momentum and capacity, increased political good will, created a useful network structure, and increased their credibility as a disaster management agency. For example, Padang BPBD has officially declared their commitment to DRR, has signed and agreed SOPs for their agencies’ disaster response, has participated in the training of 54 DPTs and has a plan for training the remaining 50 newly formed DPTs in the next year. They have submitted a budget to the legislature to continue their training programs and support to the local DPTs.

RECOMMENDATIONS 1) Hire project staff who understand how government functions and how to build relationships.2) Involve the local government during the early project planning and keep them involved and informed about

communities and schools throughout the implementation. 3) From the beginning, work with key government stakeholders to ensure that planned interventions and newly

established mechanisms have buy-in at the highest levels and reflect their priorities and ways of working.4) Support the BPBD to develop and manage a mentoring system among the established DPTs and the ‘new’

DPTs; this could bring the PREPARE SumBar model to scale within the district and would require less intensive support than the full PREPARE SumBar program.

5) Learn the best ways to facilitate inter-agency coordination between various government departments to meet

Jen Dillan/Mercy Corps

LOOKING FORWARD

24

the challenge of working within both centralized and

decentralized government structures (illustrated in the

relationship between the BNPB - National Disaster

Management agency - and the BPBD). PREPARE

SumBar addressed this on the district level by

supporting the creation of the Consultative Task Force.

CommunityThe communities now know what they should do and

where they should go during and after an earthquake. For

example, older people were convinced to prepare and to

evacuate. Before PREPARE SumBar most of the elderly felt

that hazards were their fate and therefore it made no sense

to prepare for them. After the HVCA process, more than

50% had changed their minds, agreeing to prepare at home

and in the event of a tsunami warning, go to the

evacuation site.

The DPTs feel responsible for their community’s safety and

have an intrinsic motivation to continue their disaster

preparedness activities. They have strong momentum and

were energized and encouraged by receiving training and

emergency response equipment. They now know how to

appropriately access their local government and have the

capacity to organize, identify and advocate for their needs.

PREPARE SumBar’s trained DPTs can prepare funding

applications, engage in budget discussions, and have the

capacity to manage funds. The fact that the DPTs are

linking DRR with income generating activities and have

increased capacity around fundraising significantly

enhances their sustainability.

RECOMMENDATIONS

1) Leverage the recent memory of an emergency to gain

greater participation.

2) Include a cross section of society (youth, elderly,

women) in the community assessment process and in

the DPT and ensure there are DPT members with

credible links in the community as well as to community

and local government leadership.

3) Connect DPTs early on with other DPTs for continued

encouragement and support.

SchoolsPREPARE SumBar schools now know what to do in case

of an earthquake and tsunami and successfully execute

evacuation simulations with great skill and enthusiasm. The

SDPT members have more self-confidence, are more

familiar and comfortable working inter-generationally, and

are enthusiastically sharing their information in their

families and recruiting others to join the disaster

preparedness activities. There are now inter-school links

and networks within the province aimed at

supporting SDPTs.

Based on the KAP survey, Air Manis teachers knew twice

as much as their untrained comparison teachers about how

earthquake and tsunami resistant their school was. The

KAP survey results consistently demonstrated the impact of

the PREPARE SumBar capacity building for both students

and teachers (See Annex B).

RECOMMENDATIONS 1) Adopt a practical, activity-based approach to DRR

learning. Use competitions, cross visits, DRR camps,

and simulations to reinforce knowledge so SDPT

membership is a coveted privilege.

2) Simulations are essential. Use them to identify gaps,

as competitions (e.g. timed evacuations), and to

reinforce and solidify learning such as First Aid,

coordination and cooperation, etc.

3) Develop an inter-SDPT mentoring system to leverage

the strength of existing SDPTs, motivate and maintain

current SDPTs, and help establish SDPTs where they

don’t exist.

SynergyThe intra-district governmental Consultative Taskforce is

an innovative solution to the problem of coordination within

the district’s departments and with the community DPTs.

The Taskforce aims to encourage the integration of DRR

activities throughout the city/district departments, ensure

the continuity of communication and collaboration between

district agencies and the communities as the district/city

assumes responsibility for the DPTs, and keep knowledge

and concern about tsunamis and earthquakes alive by

improving support and coordination.

As PREPARE SumBar wrapped up its activities, there was

encouraging evidence of the benefits of its synergistic

approach. The combined learnings from PREPARE

SumBar and P3DM show that participants are eager to

absorb information, organize their communities and

districts, and feel responsible to share what they know.

On an institutional level, coordination structures have been

created that should sustain the DPTs, support further

training and replication, and institutionalize the links

between the local government, the communities, and

the schools.

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Scale and replicationAn obvious next step to leverage the work of P3DM and

PREPARE SumBar is to connect the district/community/

school level programs to the provincial disaster

management agencies and initiatives, like SCALE-R, to

expand to the province.

SustainabilityAll three sectors addressed in PREPARE SumBar showed

encouraging signs of sustainability which have been

highlighted throughout this study. The DPTs ability to

prepare funding applications and work directly with the

relevant local government agencies will help sustain them

as will their focus on livelihood and income generating

activities. BPBD’s commitment to train the remaining 50

DPTs and their integration into the Consultative Taskforce

will continue to reinforce the work. The SDPT trainings and

simulations and their networks and connections with other

schools through the District level Teacher’s Forum not only

helps sustain the school’s commitment but replicates the

SDPTs in other schools.

Integrating CCA with DRRSea level rise was among the hazards identified as a

primary concern by the community HVCAs which included

specific training on climate change adaptation (CCA). The

communities have been tracking sea level rise since 1970

and have noted increased problems since 1992. Air Manis’

school is now a mere 20 meters from the sea, but given the

project timeframe and available resources, PREPARE

SumBar focused on earthquake and tsunami preparedness.

As the DPTs get more deeply involved in their community’s

economic development, they need to start planning

adaptations to sea level rise and protection from frequent

storm surges. The SDPTs are a potentially useful

mechanism to raise awareness with fellow students and

share information about sea level rise and adapting to it.

Future programs in these communities should integrate

climate change adaptation into programming.

ConclusionIn addition to continued work with the schools and

communities, scale up and replication must involve the

relevant government agencies that are responsible for the

safety of their citizens. The government of Indonesia has

resources that have been made accessible to local

governments through decentralization. As Indonesia

enters its yearly budgeting period, agencies’ priorities

will become clearer and their ability to advocate for their

priorities, and to influence their legislatures will be

established. PREPARE SumBar has done its part to

demonstrate the importance of DRR activities, train

government, community, and school leaders, and

show positive results.

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ANNEX ASchool survey results: graphs and tables

Air Manis students

Air Manis teachers

Teluk Bayur students

Teluk Bayur teachers

Tools to warn Response plan Specific DP group

92%

100%

50%

69%

97%

100%

73%

31%

87%

78%

4%

0%

Preparedness at school

Air Manis students

Air Manis teachers

Teluk Bayur students

Teluk Bayur teachers

Hazard knowledge

Evacuation plan

First Aid

89%

100%

10%

29%

79%

100%

10%

14%

94%

90%

4%

16%

Disaster preparedness training

EWS Evacuation simulation

80%

100%

5%

6%

89%

100%

4%

4%

Air Manis students

Air Manis teachers

Teluk Bayur students

Teluk Bayur teachers

Earthquakes Landslides Tsunamis

100%

100%

100%

97%

61%

100%

31%

89%

45%

100%

55%

88%

Awareness of potential hazards

Floods

35%

78%

86%

89%

Air Manis students

Air Manis teachers

Teluk Bayur students

Teluk Bayur teachers

Map and route

Tools and equip.

91%

100%

12%

46%

81%

100%

54%

100%

91%

100%

16%

0%

Evacuation planning

Evacuation practice

88%

100%

12%

14%

Evacuation site