THE MALUKU CRISIS - reliefweb.int fileUnited Nations Inter-Agency Appeal for the Maluku Crisis 2 TABLE OF CONTENTS EXECUTIVE SUMMARY

UNITED NATIONSINTER-AGENCY APPEAL FOR

THE MALUKU CRISIS

16 March – 30 September 2000

JakartaMarch 2000

United Nations Inter-Agency Appeal for the Maluku Crisis

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TABLE OF CONTENTS

EXECUTIVE SUMMARY..................................................................................................................................................................7

1. HUMANITARIAN CONTEXT...............................................................................................................................................9

1.1 BACKGROUND...........................................................................................................................................9

1.2 CURRENT SITUATION...............................................................................................................................101.2.1. Conflict areas...................................................................................................................................................................101.2.2. Areas where the situation has stabilized ....................................................................................................................111.2.3. Provinces outside Maluku affected by the conflict ..................................................................................................11

1.3 SECURITY........................................................................................................................................................121.4 COMMON ACTION PLAN (SHORT-TERM GOALS).................................................................121.5 LONG-TERM GOALS .............................................................................................................................121.6 HUMANITARIAN PRINCIPLES .........................................................................................................141.7 COORDINATION FRAMEWORK...........................................................................................................14

2. PROFILE OF EMERGENCY NEEDS .....................................................................................................................................15

2.1 OVERVIEW ..................................................................................................................................................152.2 INTERNALLY DISPLACED PERSONS.............................................................................................152.3 VULNERBALE POPULATION.............................................................................................................162.4 HUMANITARIAN PRIORITIES ...........................................................................................................17

3. LONG-TERM NEEDS: BRIDGING RELIEF AND DEVELOPMENT...................................................................18

3.1 BRIDGING RELIEF, REHABILITATION AND DEVELOPMENT..........................................183.2 LONG-TERM PRIORITIES....................................................................................................................19

4. SECTOR STRATEGIES AND PROJECTS .....................................................................................................................20

4.1 FOOD AID AND FOOD DELIVERY....................................................................................................204.1.1. Current situation ........................................................................................................................................................204.1.2. Activity Report ............................................................................................................................................................204.1.3. Project for appeal.......................................................................................................................................................21

4.2 HEALTH AND NUTRITION...........................................................................................................................................22

4.2.1 Current situation ........................................................................................................................................................224.2.2 Activity report..............................................................................................................................................................224.2.3 Projects for appeal .....................................................................................................................................................24

4.3 WATER AND SANITATION ..................................................................................................................404.3.1 Current situation ........................................................................................................................................................404.3.2 Activity update ............................................................................................................................................................404.3.3 Project for appeal.......................................................................................................................................................40

4.4 TEMPORARY SHELTER, OTHER RELIEF NEEDS AND LOGISTICS ...............................424.4.1 Current situation ........................................................................................................................................................424.4.2 Activity report..............................................................................................................................................................424.4.3 Projects for appeal .....................................................................................................................................................43


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4.5 RECONCILIATION AND PUBLIC AWARENESS.........................................................................444.5.1 Current situation ........................................................................................................................................................444.5.2 Activity report..............................................................................................................................................................444.5.3 Projects for appeal ...........................................................................................................................................................46

4.6 RECONSTRUCTION AND REHABILITATION.............................................................................504.6.1 Current situation ........................................................................................................................................................504.6.2 Activity report..............................................................................................................................................................504.6.3 Projects for appeal .....................................................................................................................................................51

4.7 INCOME GENERATION/COMMUNITY RECOVERY……………………………………..53

4.7.1 Current situation ........................................................................................................................................................534.7.2 Activity report..............................................................................................................................................................534.7.3 Projects for appeal .....................................................................................................................................................53

4.8 CAPACITY BUILDING, COORDINATION AND MANAGEMENT........................................554.8.1 Current situation ........................................................................................................................................................554.8.2 Activity report..............................................................................................................................................................554.8.3 Projects for appeal .....................................................................................................................................................55


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SECTORSREQUIREMENTS

(US$)

A FOOD AID AND FOOD DELIVERY 5,800,000

B HEALTH AND NUTRITION 3,192,980

C WATER AND SANITATION 300,000

D TEMPORARY SHELTER, OTHER RELEIF NEEDS AND LOGISTICS 1,300,000

E RECONCILIATION AND PUBLIC AWARENESS 574,000

F RECONSTRUCTION AND REHABILITATION 1,600,000

G INCOME GENERATION/COMMUNITY RECOVERY 681,000

H CAPACITY BUILDING, COORDINATION AND MANAGEMENT 673,600

GRAND TOTAL 14,121,580

APPEALING ORGANISATION REQUIREMENTS(US$)

WORLD FOOD PROGRAMME 5,800,000

WORLD HEALTH ORGANISATION 2,154,980

UNITED NATIONS CHILDREN'S FUND 1,752,000

UNITED NATIONS DEVELOPMENT PROGRAMME 2,797,800

UNITED NATIONS DEVELOPMENT PROGRAMME WITH OCHA 316,800

OFFICE OF THE RESIDENT COORDINATOR (AGENCY TO BE DETERMINED) 1,300,000

GRAND TOTAL 14,121,580

Total Funding Requirements for the 2000 United Nations Inter-agency Appeal for the Maluku Crisis

By Sector and Appealing Agency


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WORLD FOOD PROGRAMMEA.1 Emergency Food Assistance 5,800,000

TOTAL 5,800,000

WORLD HEALTH ORGANISATIONB.1 Ensuring minimum standards in health services delivery 217,300B.2 Emergency Environmental Health 79,500B.3 Support to health facilities 487,600B.4 Emergency maternal and child health and nutrition 153,700B.5 Disease control 455,800B.6 Health as a bridge for peace 77,380B.7 Epidemiological surveillance and epidemic preparedness 328,600B.8 Strengthening national capacity 355,100

TOTAL 2,154,980

UNITED NATIONS CHILDREN'S FUNDB.9 Nutrition for children 788,000

B.10 Measles Vaccination 250,000C.1 Water and Sanitation Needs 300,000E.2 Peace Building through Empowerment of Women and support

to School Children and Youth 154,000H.3 Project Management 260,000

TOTAL 1,752,000

UNITED NATIONS DEVELOPMENT PROGRAMMEE.1 Reconciliation Programme 420,000F.1 Physical Reconstruction and Creating an Enabling Environment 1,600,000G.1 Income Generation and Job Creation Activities 681,000

H.1 Capacity Building of Key Institutions 96,800H.2 With OCHA: Coordination and Support by UN, UN Resource

Centre 316,800 TOTAL 3,114,600

OFFICE FOR THE RESIDENT COORDINATOR(IMPLEMENTING AGENCY TO BE DETERMINED)

D.1 Temporary shelter, other relief needs and logistics 1,300,000 TOTAL 1,300,000

United Nations Inter-agency Appeal for the Maluku CrisisListing of Project Activities - by Appealing Organisation

March 2000 - September 2000


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United Nations Inter-agency Appeal for the Maluku CrisisListing of Project Activities – by Sector

March 2000 – September 2000

Sector/ActivityAppealing

OrganisationRequirement

US$

Food Aid and Food DeliveryA.1 Emergency Food Assistance WFP 5,800,000

TOTAL 5,800,000

Health and NutritionB.1 Ensuring minimum standards in health services delivery WHO 217,300B.2 Emergency Environmental Health WHO 79,500B.3 Support to health facilities WHO 487,600

B.4 Emergency maternal and child health and nutrition WHO 153,700B.5 Disease control WHO 455,800B.6 Health as a bridge for peace WHO 77,380B.7 Epidemiological surveillance and epidemic

preparednessWHO

328,600B.8 Strengthening national capacity WHO 355,100B.9 Nutrition for Children UNICEF 788,000

B.10 Measles vaccination UNICEF 250,000 TOTAL 3,192,980

Water and SanitationC.1 Water and Sanitation needs UNICEF 300,000

TOTAL 300,000

Temporary Shelter, other Relief Needs and LogisticsD.1 Temporary shelter, camp needs and logistics Office of the RC

(agency to bedetermined)

1,300,000

TOTAL 1,300,000

Reconciliation and Public AwarenessE.1 Reconciliation Programme UNDP 420,000E.2 Peace Building through Empowerment of Women and

support to School Children and youth UNICEF 154,000 TOTAL 574,000


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Reconstruction and RehabilitationF.1 Physical Reconstruction and Creating an Enabling

Environment UNDP 1,600,000 TOTAL 1,600,000

Income Generation/Community RecoveryG.1 Income Generation and Job Creation Activities UNDP 681,000

TOTAL 681,000

Capacity Building, Coordination and ManagementH.1 Capacity Building of Key Institutions UNDP 96,800 H.2 Coordination and support by UN, UN Resource

Centre UNDP/OCHA 316,800H.3 Project Management UNICEF 260,000

TOTAL 673,600


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EXECUTIVE SUMMARY

During 1999 and into the first quarter of this year, the two provinces of Maluku and North Malukuhave known unprecedented conflict, destruction and human suffering. Starting in Ambon in January1999, the conflict escalated at various periods throughout the year, spreading to other parts ofMaluku. The worst clashes occurred at the end of December and into January 2000, at the end ofwhich the authorities reported more than 2,500 deaths, 18,300 houses burned or destroyed as wellas 1,100 houses of worship and other public buildings.

This widespread conflict has led to the largest recorded population displacement in Indonesianhistory. Some 440,000 persons have escaped or been evacuated within Maluku, North Maluku or tothe neighbouring provinces in Sulawesi and smaller numbers to Irian Jaya and elsewhere inIndonesia. Thus more than 20% of the population of Maluku has been displaced. The slow-down oreven stand-still of economic life has also effected the rest of the population.

Following the escalation of the crisis in January of this year, the Government requestedinternational assistance. A three-pronged strategy of security, reconciliation and prosperity,including relief, rehabilitation and reconstruction, was presented by the Coordinating Minister forPeople’s Welfare and Poverty Alleviation at a meeting hosted at the United Nations premises inJakarta. A joint assessment mission of the Government and international agencies was undertaken.Its report pointed at total assistance needs of some US$ 71.2 Million, including large-scalereconstruction and economic recovery programmes. As the full extent of the destruction was notknown at the time of the mission, the total cost of a full recovery programme in the two provinces islikely to be much larger.

More immediate requirements were estimated at some $ 26 Million, with important emphasis onemergency relief assistance. During the month of February and into March, three internationalNGOs have expanded their assistance. The World Food Programme (WFP) has approved anextended emergency project for Indonesia, which will also include IDPs. It has also concludedagreements with Action contre la Faim (AcF) and World Vision International (WVI) for distribution ofrice initially to some 100,000 beneficiaries in two limited areas of North Maluku at the end of March.

At the time of writing, there are still areas in North Maluku where conflict is continuing, including inparts of the largest island of Halmahera. Assessment of humanitarian needs has not been possiblein these areas, due to the security situation. This appeal for urgent and strengthened internationalsupport to meet the needs in Maluku is therefore issued without awaiting full and detailedknowledge of the situation in all parts of the two provinces.

The Government of Indonesia, under difficult economic circumstances, has continued to providesome assistance to IDPs throughout 1999. This has included sending emergency medical staff toreplace those who have escaped. In spite of this, the average number of doctors in hospitals andhealth centres in North Maluku is less than 50% of the pre-conflict period, and in some areas thereis no remaining medical staff. Funds in the current budget year, which ends on 31 March, havealready been depleted, and in some cases staff have not been paid for three months. Partly as areflection of national decentralisation policy, there is at present no provision in the budget for thecountry’s provinces, including Maluku and North Maluku, for continued relief assistance such as forthe internally displaced persons. Even if some emergency funds are allocated, the pressure on the


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provincial services will continue to increase in the immediate future, further necessitatingstrengthened international support.

Funds sought in this appeal are some $14 Million, considering that the basic staple food of rice hasbeen allocated, in February, within an extended WFP project for Indonesia, and that NGOs havebeen able to expand their activities either through advancing from existing funds or with additionalfunding. Furthermore, some of the outlined project activities have already been started by UNDP,UNFPA, UNICEF and WHO, but the ability of agencies to advance funds from existing resources islimited.

The situation in Maluku is characterised by a total polarisation of the two main Muslim and Christiancommunities. There is much bitterness and vengefulness. Women and children have beenparticularly effected by traumatic experiences. The proposed programme is conceived as a supportto the comprehensive approach by the authorities. In addition to basic life-saving relief supplies andservices, it therefore includes support for reconciliation as well as rehabilitation and reconstructionefforts, the latter initially at a very modest scale.

The programme will be implemented through a coordination mechanism established with theGovernment of Indonesia through its disaster relief office, BakornasPB. Through BakornasPB, reliefassistance will also be coordinated with the Indonesian Red Cross Society, at the Jakarta level aswell as in the respective provinces. For each of the projects outlined in the appeal, projectdocumentation is available with the respective agencies.

Funding is therefore urgently sought to all aspects of the programmes. Donors who wish to providefunds for specific projects are encouraged to contribute directly to the appealing agency and arealso encouraged to continue supporting ongoing and expanding NGO programmes. TheGovernment has requested the UN to coordinate international assistance to the Maluku Crisis, andit is therefore essential that the Office of the Resident Coordinator in Jakarta be kept fully informedto ensure that all priority needs are met and to avoid overlapping. Given the uncertainty of thecurrent situation, it is also appreciated if some donors would provide unearmarked funds to be usedaccording to priority requirements, in agreement with the respective donor.

The developments in Maluku are of vital importance for Indonesia as a whole. Continued andgenerous international support for the proposed programme is therefore of utmost importance.


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1. HUMANITARIAN CONTEXT

1.1 BACKGROUND

In Maluku, Muslim and Christian communities have traditionally coexisted in adjoining villages andearned themselves a reputation for religious tolerance. During the steady development period of the1970s and 1980s the welfare of people significantly increased, yet with an uncertain sense ofstability and some social unrest, religious conflict and social jealousy. Since the independence ofIndonesia, the population of Maluku has significantly increased, especially through the arrival ofthousands of migrants from other parts of the country such as Java and Sulawesi. Thesepredominantly Muslim migrants are ethnically different from the native Ambonese, and their arrivalis believed to have created tensions between the communities. The economic crisis of 1997-1998exacerbated some native Ambonese's feelings of marginalisation in political life and administration,and that they had lesser access to more scarce job opportunities and business activities thannewcomers. These real or perceived gaps further sharpened the tension between the differentcommunities along ethnic and religious lines.

The first outbreak of violence was triggered by a traffic incident in Ambon on 19 January 1999,during the Idul Fitri holiday. The ensuing rioting between Christians and Muslims caused a largenumber of casualties, the displacement of some 15,000 people within the island of Ambon and anexodus of thousands of people to neighbouring provinces, in particular South-East Sulawesi.Countless houses and places of religious worship were destroyed. Important troop reinforcementswere flown in to restore law and order and stabilize the situation. Emergency and rehabilitationactivities were undertaken by the authorities and supported by a number of international agencies.

In April 1999, violence erupted on the Kai islands, in Southeast Maluku District, and it led to thedisplacement of more than 20,000 persons. Troops were sent in from Ambon to quell the violence.The situation has significantly improved there since since. In contrast, in Ambon, lingering tensionsand the revengeful destruction of places of worship led to a second outbreak of violence in mid-July1999, which resulted in a large number of casualties and increased the number of IDPs.

In August 1999, the conflict spread to North Maluku, a newly formed province where the populationis more than 70% Muslim and where local politics, upcoming elections in June 2000 as well asrivalries between modern and traditional Muslims have worsened the ethnic and religious divide. Inthe 1970s, the population from a small island in North Maluku, threatened by a volcano eruptionhad been resettled to North Halmahera. The discovery of gold in this area, and the creation of anew subdistrict further fueled existing tensions between the original population and the inmigrants.The outbreak, in August, of the conflict in Halmahera led to initial displacement primarily to TernateIsland, where the capital of the then North Maluku District, now the capital of North MalukuProvince, is situated.

In late December, violence gripped Ambon for the third time and quickly spread to the largeneighbouring islands of Seram and Buru, and later also to two smaller islands near Ambon. The TNItook over responsibility from the police (polri) for restoring security and instituted naval patrolsaround the islands with the aim of preventing the movement of armed gangs between the islands.Thousands of weapons, notably in Ambon, have since been confiscated and thousands of peoplefled from their homes, swelling the numbers of IDPs.


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A much wider conflict also erupted in North Maluku, where hundreds of people have been killed andapproximately 100,000 people were displaced. Tens of thousands (mostly Muslims) moved toTernate Island, while thousands (mainly Christians) fled to North Sulawesi. In the past few weeks,fresh violence and destruction have been reported on an almost daily basis in Halmahera andneighbouring islands of North Maluku. New clashes have been reported in East Seram as well, onwhich little information is available as yet. Humanitarian access and assistance to the population inconflict areas are urgently needed.

Since the beginning of the conflict in January 1999, over 2,500 people have been killed and at least3,400 injured1. Hundreds of buildings (houses, public service infrastructure, places of worship, etc.)and sometimes entire villages have been looted and either damaged or destroyed.

It is estimated that there are now approximately 440,000 internally displaced persons (IDPs) in theprovinces of Maluku, North Maluku, North Sulawesi, Southeast Sulawesi and South Sulawesi.

Following the widening of the conflict in January this year, and the extent of suffering, destructionand displacement, the Government of Indonesia approached the UN Resident Coordinator for hisassistance in bringing the needs for assistance to the attention of the international community. Apresentation of government policy was made at the UN premises in Jakarta, which was followed bya joint assessment mission on 22-27 January, to Maluku and to North Maluku. The findings of themission were presented to the international community on 7 February.

Since then, three international NGOs have initiated activities on Ternate Island in North Maluku,one of which also reaching IDPs in part of North Halmahera. The World Food Programme hasreached an agreement with two of these agencies concerning the distribution of rice, initially forsome 100,000 beneficiaries with the first distribution foreseen at the end of March. Although thesituation and the humanitarian needs in other parts notably of North Maluku remains unclear, thisappeal should enable the United Nations agencies to start a comprehensive assistance programmein support of national efforts in both provinces and to initiate action also in the parts of Sulawesiaffected by the exodus from Maluku.

1.2 CURRENT SITUATION

The situation varies significantly from area to area and can be classified into three main categoriesrequiring somewhat different courses of action.

1.2.1. Conflict areas

In conflict areas, the security problems are such that access to IDPs is either haphazard orimpossible and most administrative and public services have been partially or totally suspended.Humanitarian assistance to both the internally displaced persons and other vulnerable groups is apriority.

1 Reports of the governors of Maluku and North Maluku as at 25/1 and 24/1 respectively, the number ofregistered deaths since the beginning of the conflict stood at 2,555, not including those missing, and injured3,372. A total number of 18,311 houses/homes had been damaged or burned and altogether 1,086 publicbuildings and facilities, including houses of worship. With the ongoing conflict and the limited informationabout many areas of the provinces, the number of casualties and the extent of destruction is likely to behigher.


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This is the case of Halmahera Island (in particular the sub-districts of Kao, Tobelo and Galela), theisland of Bacan and of a number of other islands in North Maluku province. A similar situationprevails in some parts of Maluku Province, such as Seram, where access to a number ofcommunities reported to have been severely affected has still not been possible.

1.2.2. Areas where the situation has stabilized

In other areas, especially in South-East Maluku, the security situation has improved and asemblance of normalcy been restored. Public services have resumed to a certain extent and thepopulation is reorganizing itself. However, the situation is still highly volatile and there are noguarantees that further clashes will not take place.

On Ambon Island, residency areas are polarized and the conflicting parties are entirely separatedalong religious lines. In some areas, life has entered a superficial quasi-normality for those whohave not been displaced. Fully segregated markets, shops and even ports have started to function,as have government offices, although most operational departments now are divided into twoentities and not fully operational. The governor's office and the military hospital can be reached fromboth communities. A similar situation prevails in Masohi on Seram Island (capital of Central MalukuDistrict), following the events starting 27 December 1999. In Tual, however (Southeast MalukuDistrict), the situation is more secure, communities less polarized and life has regained somenormalcy. IDPs themselves have been able to develop coping mechanisms and regain a degree ofself-sufficiency, thus limiting the need for humanitarian assistance.

From other islands, such as Ternate and Buru, the minority population has entirely fled.

1.2.3. Provinces outside Maluku affected by the conflict

Large numbers of IDPs have fled to areas outside Maluku, placing a heavy burden on the hostpopulation. Given the polarisation of the population, the majority of the IDPs in North Sulawesi andin South Sulawesi are unlikely to return to their respective places of origin. The priorities in thoseareas are to assist the IDPs remaining in camps and to undertake activities to facilitate integrationand economic sustanance. Some NGOs are initiating or expanding activities in these areas, and ajoint assessment with the Government is foreseen.

In North Sulawesi, the majority of the IDPs lives in camps and need assistance. They are nativesfrom North Maluku. Some, such as those from Halmahera Island, may return to their places oforigin when the situation allows, others have expressed their hope to remain in North Sulawesi.

In Buton, Southeast Sulawesi, most of the 100,000 IDPs descend from people who migrated fromButon to Maluku. The majority lives in host families (often relatives) and represents an economicburden for inidviduals and for the community. The IDPs constitute a significant proportion of thelocal population and as a result, the capacities of the provincial authorities have been stretched. It islikely that most of them wish to resettle in Buton, but their economic integration will not be easy inan area which has few resources. There are already some indications that social tensions againstother (trans)migrants from Java and Bali are increasing.


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1.3 SECURITY

Following the recent strong unrest in Ambon City, Central Maluku and North Maluku, the securitysituation is very volatile. Isolated clashes still occur around the archipelago. The Government ofIndonesia has transferred the responsibility to maintain order from the Polri to the armed forces(TNI), and the reinforcement of troops in the area has been beneficial in terms of security on AmbonIsland, with almost 6,000 troops, but less so in the rest of Maluku. In North Maluku, the increasedpresence of the navy has largely contributed to improving the security situation.

Since the beginning of the outbreak in Ambon, no serious security threat against the humanitariancommunity and international agencies has been reported. The UN has twice evacuated staff fromAmbon as a precautionary measure. In both Maluku and North Maluku provinces, only humanitarianand emergency operations are currently feasible.

Although the situation is tense, there is no hostility towards international agencies, who have beentransparent and impartial in their action. The security of any humanitarian operation partly dependson the full understanding of humanitarian work by local authorities, especially TNI and Polri, and forthe UN staff to follow security advice given.

1.4 COMMON ACTION PLAN (SHORT-TERM GOALS)

The aim of humanitarian agencies is to assist internally displaced persons and vulnerablepopulations through the emergency phase while simultaneously supporting rehabilitation andreconstruction where this is feasible. Humanitarian agencies will pursue the following goals:• meet acute needs,• stabilize populations at risk before their conditions become acute,• reintegrate displaced persons,• support local and national reconciliation initiatives,• carry out minor rehabilitation of infrastructure for the provision of some housing and of essential

services, and• initiate income-generating activities.

Agencies recognize that emergency operations sometimes complicate future reconstruction anddevelopment by creating dependency. As part of an effort to institute best practices, they will followthe guidelines set out in the SPHERE handbook, which was drafted by an inter-agency workinggroup committed to high-quality humanitarian programming. To ensure that emergencyprogrammes do not discourage reconstruction and self-sustaining initiatives, agencies will developindicators designed to signal the need to exit from the emergency phase.

1.5 LONG-TERM GOALS

The main aim of the immediate assistance programme is to assist the vulnerable populationthrough an emergency stage while preparing for larger scale reconstruction and development.


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All concerned governmental ministries and institutions, under the auspices of BakornasPB, thenational disaster response coordinating committee, have drawn up a three-pronged approachaimed at achieving the goals of “security, reconciliation and prosperity”. Consultation were held withthe Office of the UN Resident Coordinator, and the President and the Vice-President approved thisapproach. On 13 January it was then presented to the international community by the CoordinatingMinister for People’s Welfare and Poverty Alleviation, at a meeting hosted by the ResidentCoordinator.

THREE PRONGED APPROACH

RECONCILIATION

SECURITY PROSPERITY

Based on this three-pronged approach, the following activities were presented by the authorities:

Security - stop the fighting - sweeping for arms in conflict areas - confiscating arms - patrols at sea - security force placed under military command instead of the police - 16 battalions (10,841 military and police personnel) for reinforcement

Reconciliation - appointment of a special team of non-governmental personnel within the Vice-President’s Office

- utilisation and enhancement of the Ambon-based Social Reconciliation Centre at provincialand local levels

- important gathering, in January, of the Maluku community in the Jabotabek area- meetings of religious and community leaders

Prosperity (humanitarian-rehabilitation-development) - continuing assistance to victims and IDPs: food, medicine, shelter, fresh water, sanitation and other livelihood facilities - temporary relocation of IDPs - social, economic and infrastructure rehabilitation - education - income-generating programmes - primary health care - resettlement

MalukuCrisis


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The activities in all three areas are to take into account the views and concerns of the Malukupopulation, encouraged and supported by local authorities and be worked out in cooperation withcommunity representatives. The international community was invited, through the United Nations, tosupport this programme and to provide complementary assistance.

1.6 HUMANITARIAN PRINCIPLES

Humanitarian agencies are committed to respect at all times the humanitarian principles ofneutrality, impartiality, transparency and accountability. They will endeavour to carry out theiractivities in such a way as to contribute to reconciliation between the conflicting parties. They willwork with local authorities, institutions and networks to ensure that the basic needs of the internallydisplaced persons and other vulnerable groups are met and to help them overcome their traumaand regain their sense of dignity. They will give priority to training and capacity-building both ofcoordinating and implementing local structures, including local NGOs.

1.7 COORDINATION FRAMEWORK

Agencies are committed to coordinate their programming and operations through a coordinationstructure under the leadership of the UN Resident Coordinator for Indonesia. Coordinationmechanisms at Jakarta level will be supported by OCHA through a strengthened HumanitarianCoordination Unit, attached to the Coordinator. This unit will ensure coordination with thegovernment, notably through BakornasPB/SatkorlakPB and the Indonesian Red Cross Society(PMI), as well as with all other humanitarian partners.

In the health sector, WHO will take the lead for overall technical coordination and health needsassessments, while WFP will ensure the lead role in the food sector. UNDP will play a lead role forreconciliation, rehabilitation and reconstruction support and capacity-building. For some sectors,notably temporary shelter and camp management, the international support mechanism still has tobe clarified.

Coordination offices, or UN Resource Centres, will be opened in Ambon and Ternate. Their role willbe to facilitate contacts between humanitarian agencies and local authorities, to ensure that thereare no gaps nor overlaps in the provision of assistance, to identify the measures needed to bridgehumanitarian aid and development and to promote humanitarian principles.


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2. PROFILE OF EMERGENCY NEEDS

2.1 OVERVIEW

In 1999, international agencies and NGOs conducted several assessment missions to Maluku.With the support of UNICEF, UNDP and WFP and bilateral donors, the NGOs Action contre la Faim(AcF) and Medecins sans Frontieres-Belgium (MSF-B) provided humanitarian assistance to IDPson Ambon Island in the sectors of food and non-food relief items as well as health and water andsanitation. In North Halmahera, World Vision Indonesia (WVI) supported community developmentprojects, which had to be abandoned at the end of the year. UNICEF maintained its officethroughout the period of unrest, primarily with national staff. In South-East Sulawesi, OXFAM andMSF-H provided limited assistance. These activities significantly enhanced the credibility ofhumanitarian agencies.

Following the massive outbreak of violence in late December 1999, the Government of Indonesiaand international agencies carried out a Joint Assessment Mission between 22 and 27 January inboth Maluku and North Maluku. In addition, the UN Resident Coordinator led a diplomatic missionto Ambon with the participation of four embassies and three UN agencies. Since then, NGOs havecarried out additional humanitarian assessments and expanded or restarted programme activities.In early March, UNFPA visited the conflict areas in North Maluku. The latter mission was madepossible by the Indonesian Navy.

These assessments have provided a better appraisal of the situation primarily in areas, wheresecurity is stabilized. The situation, especially in North Maluku is critical, as thousands of peopleface shortages of food and medical care, and fear intimidation and physical and mental abuse. Littleremains of medical services, equipment or supplies to meet these needs. While further technicalassessments are still needed in areas with continuing conflicts, an immediate response has to beprovided.

The Government of Indonesia has provided considerable aid to IDPs in Maluku, as part of itsnation-wide assistance programme. The programme has included rice and cash for other basicneeds, although actual implementation was less regular than foreseen. Assistance has alsoincluded some housing and other reconstruction activities.

2.2 INTERNALLY DISPLACED PERSONS

More than a year of civil unrest has left thousands of people displaced. They have either foundshelter with relatives and friends, or, in the case of the vast majority, occupied public buildings suchas sports facilities, military facilities or places of worship where they have been living in precariousconditions, since they were not equipped to sustain their prolonged presence.

The needs of the internally displaced persons (IDPs) vary depending on the intensity of the conflictin the area where they are located and on their living arrangements. Some IDPs living with hostfamilies are able to cope with the situation, but place a heavy burden on their hosts. In some areas,host families need assistance. IDPs in areas that have stabilized have better coping mechanismsthan IDPs living in areas still gripped by conflict or those living in crowded and unhygienic campconditions. The latter need humanitarian assistance in sectors ranging from food, nutrition, waterand sanitation to shelter, until a medium to long term solution can be found.


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The numbers of IDPs provided below are based on the latest information obtained by UN agenciesor by NGOs. They include some 29,000 IDPs in South-East Maluku District (Kai Islands), who fromFebruary are no longer deemed to be in need of food aid, as well as those who have escaped toSulawesi. With a total number of IDPs of some 440,000, more than 20% of the population of the twoprovinces of Maluku has been displaced.

Province Location Main Areas ofOrigin

No. of IDPs Cumulativetotal/Province

North Maluku Ternate Island North Halmaheraand Ternate

72,0002

Other islands Halmahera 76,4003

148,400Maluku Ambon Island Ambon Island,

Buru and otherislands in CentralMaluku District

95,000

Seram Island Seram 45,000Haruku Island Haruku 6,100Buru Island Buru 3,400Saparua Island Saparua 2,700

South–East MalukuDistrict

South-EastMaluku District

29,000 181,2004

North Sulawesi Manado, BitungIsland

Ternate, NorthHalmahera

17,0005

South-East Sulawesi Buton and Muna Ambon Island 96,9006

South Sulawesi 430 114,330Total 443,930

2.3 VULNERABLE POPULATION

To varying degrees, much of the population in the areas affected by the conflict has become morevulnerable as a result of the slowdown of economic activity as well as the disruption of supplymechanisms, which has caused shortages of basic goods and price increases. Economic activitieshave either been severely curtailed or come to a stand-still with factories closing, harvestingdisrupted and education interrupted. Municipal authorities have no funds to meet escalatingdemands such as for sanitation and reconstruction activities. The vulnerable categories of thepopulation, in particular pregnant and lactating women, children and the elderly, are the first tosuffer from the consequences of violence. In addition to assistance from the central authorities andfrom international agencies, intra-communal solidarity is their only coping mechanism.While the conflict has increased the demand for medical services, the departure of qualified medicalstaff from many of the troubled areas has either stretched local capacities to their limit or at times to 2 Based on PMI noodles distribution of 22 February 20003 WVI rough estimate based on latest visit on 6-8 February 20004 Based on AcF distribution/registration figures of 25 February 2000, including some 29,000 IDPs in South-East Maluku District, who no longer deemed in need of basic relief aid5 Based on latest visit by AcF in February 20006 Figure obtained from Depsos


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the point of total interruption of services. Where possible, this has been partially compensated withthe arrival of military or civilian health staff from elsewhere in Indonesia. Deliveries of medicalmaterial and medicines, aggravated by lootings and burnings, have been interrupted in a number ofareas.

2.4 HUMANITARIAN PRIORITIES

International agencies, primarily NGOs supported by UN agencies, ICRC and bilateral donors, haveprovided assistance on Ambon Island and in South-East Maluku (Kai Islands) since March 1999.Following the expanded and escalating crisis at the end of the year, and the joint Government/ UNAssessment Mission at the end of January 2000, AcF, MSF-B and WVI have expanded theirprogrammes in both Central Maluku District and in North Maluku.

WFP has initiated agreements with AcF and WVI for extended rice distribution, following theapproval in February of its Protracted Relief and Recovery Operation (PRRO). The first distributionto some 100,000 IDPs in North Maluku of rice donated by the international community will takeplace by these agencies on Ternate Island and in Jaulolo in North Halmahera at the end of March.

Humanitarian agencies will give priority to the provision of food, health services, water andsanitation, temporary shelter and other non-food relief deliveries to the IDPs living in camps, as wellas medical and nutritional assistance to vulnerable categories of the population. Support will beprovided to emergency repairs and initial rehabilitation of public infrastructure, in particular wherenecessary for the delivery of essential services. Where necessary, agencies will assist host familieswhose prolonged support to IDPs has put them in a vulnerable situation.

Training and capacity building for emergency planning and management will be organised forcentral and local authorities, as well as local NGOs involved in the provision of humanitarianassistance.

Reintegration assistance, including measures to restore food security and generate income, will beprovided to IDPs returning home or resettling in a new area. Ongoing and further measures topromote the dialogue between the communities and communal activities rehabilitation activities willalso be supported.


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3. LONG-TERM NEEDS: BRIDGING RELIEF AND DEVELOPMENT

3.1 BRIDGING RELIEF, REHABILITATION AND DEVELOPMENT

Emergency relief and assistance should bridge with longer-term solutions to conflicts and areas ofsocial disruption by, for example reinforcing existing local capacities and solutions, and supportingreconciliatory measures. Reconstruction activities are usually initiated in relation to normalisation ofconflict or, if possible, during on-going armed conflict. Another pivotal activity is peace-building, e.g.efforts that foster on the one hand communication between groups that are in conflict and on theother security.

Based on these general principles, some of the following interventions can be undertaken in Malukuin order to provide a bridge between relief and development and to foster sustainable development:

• Activities that foster dialogue: within this group specific attention is given to activities that fosteror create an enabling environment for dialogue, negotiations or de-escalation of the conflictbetween the primary and secondary parties involved in the conflict7.

• Security reinforcements: these types of interventions aim mainly to improve the protection ofindividuals and vulnerable groups 8.

These interventions are structured along two dimensions. The first is the culture of civil society andthe conviction that conflicts shall be solved by peaceful means and that peace is a natural part ofhuman rights and democracy. This culture can e.g. be strengthened through education and media.The second dimension is the institutional structure, which entails two democratic principles. Firstthat conflicts shall be solved by peaceful means and through institutions, and second that the statehas the responsibility to ensure security, with its institutional functions, the police and military,having the monopoly to carry arms for the protection of the citizens and under civilian control.These types of interventions normally include different types of institutional development andreform.

Apart from the above mentioned areas, support to activities that aim at improving the knowledgepertaining to the roots of conflicts should be undertaken. Such activities, which are also applicablein the Maluku Crisis, include research, education and consultations, and the further developing ofmethods and resources for improved efficiency and competency in conflict management andreconciliation.

7 This could e.g. include- efforts that influence the culture of violence- research, education, mediation at local level- contributions aimed at fostering advocacy and awareness

conflict analysis8 This can be done through:- "preventive presence", civil peace monitoring, observation functions, supervision and- documentation in order to stabilise a conflict situation- demilitarisation, demobilisation of troops, arms control and collection, integration of troops and former soldiers andchild soldiers, control of weapons/rebelsreform of the security sector, transformation to a democratic society through reform and reconstruction of the centralsecurity and military societal functions and institutions


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3.2 LONG-TERM PRIORITIES

For sustainable development to take place, rule of law must prevail and thus in the case of Malukube restored. The United Nations and its development partners therefore support the government’spolicy that building stronger capacities for good governance is central to Indonesia's recovery andcontinued reform efforts.

The Government of Indonesia desires cooperation and international assistance for thereconciliation, reconstruction and rehabilitation phases of assistance in Maluku, and has requestedthat support pertaining for sustainable development be provided by the international community andbe coordinated by the United Nations.

As has been described in section 1.5 the overall objective of the government, after reestablishing asecure environment, is to enable reconciliation between opposing parties in Maluku and to restart aconcerted effort to bring about prosperity. The overall long-term objectives of the UN agencies aretherefore:

• Support broad-based participation of civil society in the reconciliation process and localownership;

• Facilitate initial and effective rehabilitation in the Maluku and North Maluku provinces bycontributing to the physical rebuilding of community facilities such as churches/mosques, a jail,health centres etc, and the construction or reconstruction of housing for both communities;

• Contribute to the reestablishment of opportunities for work and other income generatingactivities;

• Provide key institutions in government and civil society with appropriate and timely supportincluding institutional support towards longer term capacity building assistance for keyinstitutions such as BakornasPB in Jakarta and SatkorlakPB in Ambon and in Ternate, andpossibly also in South-East Sulawesi.

The programming and implementation of these objectives would include the mobilisation ofresources required from the international community, and ensuring effective coordination betweenall partners involved in the above process, the government authorities, national and internationalNGOs, UN agencies and bilateral agencies.


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4. SECTOR STRATEGIES AND PROJECTS

4.1 FOOD AID AND FOOD DELIVERY

4.1.1. Current situation

Food imports and local food supply in both Maluku and North Maluku provinces have been greatlydisrupted as a consequence of civil unrest and general insecurity. The displacement of entirecommunities has also disrupted normal wage earning and food production activities. The situation isboth exacerbated and prolonged due to the polarization of communities from both sides of theconflict. Until such time that the conflicts are resolved and the situation returns to normal, theprovision of emergency food rations will remain essential in maintaining the nutritional wellbeing ofIDPs. Those IDPs living in North Maluku will remain particularly vulnerable until such time that reliefagencies have established themselves and begin performing food distributions. In terms of targetingfood assistance, priority will be given to the areas with a large number of IDPs - currently estimatedat 298,000 – for whom WFP in February allocated some 21,500 MT of rice and 800 MT of blendedfood. These IDPs continue to live under relatively insecure circumstances, as follows:

- Ambon Island- Seram, Buru and Haruku islands in Central Maluku District- Ternate and Halmahera islands in North Maluku Province

4.1.2. Activity Report

Action contre la Faim (AcF) has, almost single-handedly, served the food needs of IDPs on AmbonIsland and other parts of Maluku Province since early 1999. WFP has supported AcF activities byproviding all the rice needed for their feeding programmes, as well as blended food for the firstcritical months. AcF has resourced other food and non-food items, as well as funds for operationalcosts from a number of donors. WFP and donors continue to support AcF operations that serve80,000 IDPs in the area; with total current support valued at US$ 3.2 million, including UNICEF’sVitadele. Recently, AcF has proposed an expansion of their activities into North Maluku province,starting with 50,000 IDPs in Ternate. The proposal has two objectives, namely the provision andmaintenance of basic nutritional and sanitary requirements, and to provide training of healthworkers on nutritional screening and surveillance systems, and on the treatment of malnutrition.

World Vision International (WVI), which has opened an office in Ternate, is starting operations inNorth Maluku from March 2000 in two locations (50,000 IDPs in Ternate and Jailolo), with theobjective of targeting 23,000 households or 118,000 beneficiaries in Ternate and North Halmahera.Its programme is intended to run for six months using rice provided by WFP. WVI will be requiredto identify donors to resource other food items or these can be provided in kind through WFP. WVIwill also provide training to Indonesian Red Cross (PMI) staff in food distribution systems.

The food supply situation for thousands of families especially in North Maluku is deemed to becomeincreasingly dramatic, as their personal foods stocks are depleted. Furthermore, the currentgovernment programme of providing some assistance to IDPs also in Maluku will expire on 31March with the end of the budget year, and it is at this stage not known to what extent thegovernment will be in a position to provide further assistance. As the government assistance wasonly covering part of the needs, urgent international support will be needed.


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4.1.3. Project for appeal

Appealing Agency WORLD FOOD PROGRAMME

Project Emergency Food Assistance

Objective To provide emergency food ration and to maintain the basicnutritional status of the IDPs

Target Beneficiaries Displaced persons living in camps and with host familiesCurrent target population: 298,000

Cooperating Partners AcF, WVI

Time frame March to August 2000 (180 days)

Funds required US$ 13,717,540

Funds provided9 US$ 7,917,540

Funds Requested US$ 5,800,000

Immediate Objective and output

• A complete food basket to be provided to approximately 298,000 IDPs in both Maluku andNorth Maluku provinces for a 6-month period

• To meet and maintain the basic nutritional requirements of the IDPs through an emergencyration.

Activities

• Provision of a complete food basket at an emergency ration level to IDPs in camps andresiding with host families.

• Provision of supplementary food rations to vulnerable groups among the IDPs, includingchildren below 5 years of age, as well as expecting and nursing mothers. UNICEF issupplementing with the provision of Vitadele, ref. Project H.9 under Health and Nutrition.

• Monitoring of food distributions up to household levels.• Conducting regular registrations to monitor the movement of IDPs.• Conducting nutritional survey(s).

Financial Requirements

Budget item US$Rice + Blended Food 0Other food items 3,800,000Transport & distribution, monitoring, other operational costs 2,000,000Total 5,800,000

9 By WFP (some 21,500 MT of rice and 800 MT of blended food) and other donors (all other food items)


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4.2 HEALTH AND NUTRITION

4.2.1 Current situation

The health situation in North Maluku is most precarious for two distinct conflict-created vulnerablepopulations—IDPs, particularly on the islands of Ternate and Tidore, and remaining residentcivilians as well as IDPs remaining throughout the conflicting sub-districts of Halmahera Island.Disease surveillance in North Maluku is fragmentary. Official reports include 1,655 traumaticdeaths, 1,219 persons injured, with 2,135 persons missing. Medical morbidity includes significantnumbers of respiratory infections, clinical malaria, and diarrheas. Access to these areas remainslimited.

As of the end January, the health infrastructure includes 6 functioning hospitals out of 8, and 35health centers reportedly functioning out of 46. Available health workforce has degraded to fewerthan 20 general physicians, 3 specialist doctors, and no reliable estimate of remaining nursing staff.

In Maluku, physician workforce had been reduced by half in municipal health centers and thegeneral hospital. Essential drugs and medical supplies presently exist in Ambon Municipality thoughlocal medical supplies suffered losses from looting last August of $175,000 worth of drugs andsupplies from Ambon Municipal Office warehouse. The Governor of Maluku Province, the Chief ofHealth Services (Dinas), and Division Head of Provincial Health Office (Kanwil Depkes) have eachreleased appeals for medical commodities. Felt needs range from ORS salts to essential drugs tosurgical instruments. Moreover, medical commodity distributions from the existing provincialwarehouse in a Christian area are locally viewed as partisan by under-resourced Moslem healthcare providers.

Reported measles vaccination coverage is low mainly due to security conditions, and cases ofmeasles were reported from the area around Tual islands, as well as from Ambon. However, thevaccine is available at the provincial cold storage from the Ministry of Health (MoH), but there is aneed to proceed with a measles campaign vaccination.

In March 1999 the local health department, in conjunction with PMI, attempted to conduct anutritional survey of the IDP population. The results indicated an extremely high rate of severemalnutrition. The impressions of the teams on the ground contradicted these results whichfortunately were assessed to be inaccurate by visiting nutritionists from both ICRC and AcF.Analysis of the results and the methodology showed an extreme lack of knowledge about themeasurement of malnutrition of any kind, plus a lack of knowledge of how to act upon the results ofthe survey. Nutritional surveillance would therefore require extensive training of staff.

4.2.2 Activity report

Humanitarian health assistance has already been provided by UN agencies and NGOs, UNICEFhas organized complementary food distribution for children under two years and construction ofwater and sanitation facilities in Ambon and Tual. WHO provided technical assistance to the MoHon appropriate responses to known epidemiology. Active NGOs, include MSF-B, WVI, AcF, all ofwhom have provided assistance in Maluku since early 1999. Others such as MSF-H have madeinitial fact-finding preparations, and MSF-H is providing health care and water and sanitationassistance in South-East Sulawesi.


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The initial response to the crisis in North Maluku has been provided, where possible, by the localauthorities together with a few local NGOs and religious groups. At the end of March, theIndonesian Navy is performing its SBJ, the Navy Annual Social Assistance to Needy Societies inIndonesia, which this year will focus on IDPs in various parts of North Maluku.

Nonetheless, the health burden on the provincial governments remains substantial. Traumaticconditions and infectious diseases with epidemic potential, remain a significant challenge. Knownrisk factors for communicable outbreaks are all present—displaced population, securitydestabilization, altered health care utilization patterns, decreased access to health services,inadequate environmental health, and interrupted disease control programs. Major communicabledisease incidence is expected to increase in leading to excess morbidity and mortality. The mostvulnerable among the displaced remain the poor, especially women and children.

UNICEF-Indonesia was among the first agencies to support complementary food for children undertwo. As a result, nutritional status within this age group on Ambon Island has been adequatelyaddressed. Initially the support was limited to children under two provided funds were available. Itwill now be extended to selected 2-5 year olds in the area, where AcF is able to target children inspecial need.

UNFPA, following its mission to North Maluku 29 February-7 March, found that most IDPsregardless of age and gender, have gone through traumatic experiences. In regards toReproductive Health, including family planning and psychological counseling, many IDPs (mostlywomen) required immediate assistance. It has identified two priority areas for immediate support,i.e. basic reproductive health assistance and counseling on VaW for traumatised women. Thesetwo areas will be covered with serious concern in particular for the welfare of the most vulnerablegroups - women, especially pregnant and lactating women, the elderly and children. The fundingrequirements for these two interventions, estimated at some $ 350,000/- are already available withUNFPA.

Priorities in the area of health and nutrition are defined in ten project areas. Most urgent attention isdirected to ensuring minimum standards in health services, supporting health facilities, as well as toaddressing emergency environmental health.

A separate assessment in the areas of health and nutrition for the more than 100,000 IDPs in NorthSulawesi and most particularly in South-East Sulawesi has been initiated to determine possibleneeds, in addition to what is already provided by ongoing government health programmes assupplemented by existing or planned NGO projects.


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4.2.3 Projects for appeal

Project B.1

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Ensuring Minimum Standards in Health Services DeliveryOverall Objective Morbidity and Mortality ReductionTarget Beneficiaries Internally displaced persons in various location of the Maluku

Islands and Health Providers in MalukuCooperating Partners Ministry of HealthTime Frame April 2000 – December 2000Funds Requested $217,300

Summary

The sudden influx of large numbers of IDPs has made it difficult to ensure minimum adequatepublic health services.The World Health Organization will work with the local health department toimprove the quality of public health services, especially for children and mothers who are mostvulnerable. WHO will help the local health authorities establish minimum standards of care fordisplaced populations and work with them to develop ways to ensure these standards are met.

The first priority will be on environmental health, particularly facilities for water and sanitation in therefugee sites. Inadequacies in these essential services will cause most major disease outbreaks.Applicable minimum standards involve facility quantity, quality, operations and maintenance.

The second priority will be on preventive medicine and clinical care. Standardization of casemanagement will be emphasized to include standardized case definitions, treatment protocols,essential drug lists, uniform referral practices, and secondary prevention. Treatment protocols willbe distributed and implemented. Management guidelines will be provided in written form andelectronic form, where available, from the Electronic Library Kit. For children, IntegratedManagement of Childhood Illnesses (IMCI) will be implemented in areas with priority to those withlarge numbers of IDPs.

Assistance from NGO’s will be crucial to accessing IDP in remote areas of the provinces. Mobilemedical teams will be tasked where outreach fails from the existing health structure.

Efforts will then be taken to monitor public health services. Although it will be difficult to monitor allservices continuously throughout the province, WHO will work with the local health department andNGOs to improve regular monitoring of environmental health and clinical services. It is expectedthat random and regular visits to sites will help ensure that resource deficiencies and sub-standardservices are remedied.

Objectives

• To support the application of minimum standards in humanitarian assistance• To verify service delivery in environmental health and clinical care• To reduce morbidity and mortality from common illness and injury


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Activities

• Disseminate proper case definitions by health care workers• Develop standardized treatment protocols for common diseases and injuries• Train health providers in IMCI techniques• Ensure uniform referral practices in clinical care• Apply secondary prevention at point of treatment

Financial Summary

Budget Item Cost - US$Technical expertise 25,000Staff training 75,000Printing and distribution of treatment protocols 15,000Drugs for treating childhood illnesses 45,000Supervision 25,000Transportation 20,000Total (including 6% PSC) 217,300


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Project B.2

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Emergency Environmental HealthOverall Objectives Morbidity and Mortality ReductionTarget Beneficiaries IDPs in various location of the Maluku IslandsCooperating Partners Ministry of Health, as well as UNICEF, MSF-B and MSF-HTime Frame April 2000 – December 2000Funds Requested $79,500

Summary

One of the major problems facing the refugees is water and sanitation at the sites where they havebeen temporarily housed. Inadequate water supply and sanitation facilities, coupled with low qualityof water, inappropriate dwelling units and over crowding with bad ventilation has created a situationwhich is conducive to the outbreak of communicable diseases.

One of the basic steps is to get updated information about the quantity and quality of water in thesesites as well as the availability of functioning toilets. A systematic survey will be carried out. Basichealth messages, regarding use of water, and practices like boiling water, and washing of hands,will have to be reinforced.

Objectives

• To build capacity to carry out a comprehensive survey of the water and sanitation needs andavailability of IDP sites.

• To disseminate standards for clean water and sanitation• To provide health promotion material for dissemination at IDP sites.

Activities

• Collect and analyze water and sanitation data from IDP sites• Train health personnel in data collection and analyses• Strengthen laboratory capacity in checking quality of water• Provide Best Standards for water and sanitation• Train health personnel in observing best practices• Ensure availability of health promotion material

Financial Summary

BUDGET ITEM Cost - US$Technical expertise in monitoring and analyses 10,000Upgrading of laboratories and training 25,000Monitoring water quality 20,000Standards for water and sanitation and training 5,000Preparation and dissemination of health messages 15,000Total (including 6% PSC) 79,500


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Project B.3

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Support to Health FacilitiesOverall Objectives Morbidity and Mortality ReductionTarget Beneficiaries Population of Malukus in areas affected by conflictsCooperating Partners Ministry of Health, as well as UNICEF and NGOsTime Frame April 2000 – December 2000Funds Requested $487,600

Summary

The conflicts in the Maluku Islands have had a drastic impact on the health facilities. Many healthworkers have fled to safe areas in other provinces. The conflicts have interrupted the normalsupplies needed to provide health services to the population. The increased number of casualtiesand the exposure of IDPs to health risks have increased the need for health services.

This project will provide resources to restore some of the health facilities and the services theyprovide. In addition, efforts will be made to restore the drug and supply logistics systems to ensureadequate supplies. Necessary equipment will be provided in health facilities.

Immediate Objectives

• To provide additional health personnel as needed• To ensure the adequate provision of essential drugs and supplies• To provide additional medical equipment as needed

Activities

• Provide emergency supplies and drugs in conflict areas• Improve the logistics system for drugs and medical supplies• Provide needed medical equipment for essential services in areas of conflict or where there

are large numbers of IDPs• Assess health personnel needs and provide incentives and living costs for additional

personnel in conflict areas and places with IDPs

Financial Summary

BUDGET ITEM COST - US$Training to improve drug and supply logistics 35,000Supervise logistics system 15,000Essential drugs 150,000Medical supplies 50,000Medical equipment 100,000Technical support to assess personnel needs 10,000Operational costs for extra health personnel 75,000Transportation 25,000Total (including 6% PSC) 487,600


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Project B.4

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Emergency Maternal and Child Health and NutritionOverall Objective Morbidity and Mortality ReductionTarget Beneficiaries Internally displaced persons in various location of the Maluku

Islands and Health Providers in MalukuCooperating Partners Ministry of HealthTime Frame April 2000 – December 2000Funds Requested $153,700

Summary

The rapid needs assessment of the area revealed that the Displaced Persons consisted largely ofwomen, children and elderly. Even prior to the crisis, the existing health infrastructure in Malukuwas inadequate, leading to high maternal and infant mortality. The nutritional status of vulnerablegroups (children and pregnant and lactating women) was low. The influx of a large number ofdisplaced persons has put an immense pressure on the local health personnel to provide basicmaternal and child health care.

Children in IDP camps are often the most vulnerable to food shortages and diseases such asdiarrhea. Special efforts must be taken to ensure that malnourished children are identified andgiven appropriate treatment.

Objectives

• Provide essential standard and training for pregnancy and delivery care• To establish services standards for nutrition of children and pregnant and lactating women• To strengthen services for treating severe cases of malnutrition

Activities

• Assessing prenatal and delivery services• Training of health providers in safe delivery and reproductive health as required• Establish standards for identifying malnourished children• Strengthen the treatment of severe malnutrition

Financial Summary

BUDGET ITEM Cost - US$Technical expertise in reproductive health and safe pregnancy 15,000Technical expertise to establish standard for nutritional statusassessments

15,000

Strengthen treatment of severely malnourished 35,000Training in safe pregnancy and reproductive health 35,000

Supervision 25,000

Transportation 20,000Total (including 6% PSC) 153,700


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Project B.5

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Disease ControlOverall Objective Morbidity and Mortality ReductionTarget Beneficiaries Internally displaced persons in various location of the Maluku

Islands and the local population in areas with IDPsCooperating Partners Ministry of Health as well as NGOsTime Frame April 2000 – December 2000Funds Requested $455,800

Summary

One of the major problems facing the refugees relates to the camps in which they have beentemporarily housed. Inadequate water supply and sanitation facilities, coupled with low quality ofwater, inappropriate dwelling units and over crowding with bad ventilation has created a situationwhich is conducive to the outbreak of communicable diseases.

Malaria is highly endemic in all areas of Maluku, and months of December-February are the peaktime. There is a fear of increase in chloroquine resistant malaria spreading. Poor sanitation leads toincrease in breeding places for vectors. Along with the threat of malaria is the threat of dengue.

TB is a major public health problem. The risk of transmission of pulmonary TB is likely to increasegiven the overcrowding and improper ventilation in a number of IDP sites. Special attention will begiven for detection of TB and application of DOTS strategy in the treatment of TB.


• To build capacity to implement Stop TB Initiative• To build capacity for the Roll Back Malaria Program• To control cases of TB, Malaria and ensure accurate diagnosis and treatment• Adequate drug supply For TB, Malaria

Activities

• Provide technical expertise for TB, Malaria and IMCI• Train health personnel in implementing DOTS, treatment of Malaria, and IMCI• Strengthen laboratory capacity in TB and microscope examinations in malaria.• Ensure availability of appropriate drugs for TB and Malaria• Ensure availability of other material for vector control


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Financial Summary

BUDGET ITEM COST – US$Technical assistance in disease control 25,000Printing and distributing of case management guidelines 10,000Training in case management 40,000Supervision of case management 20,000Drugs for TB and malaria 50,000Consumables for vector control, including bednets 200,000Operational costs for programs 65,000Transportation costs 20,000Total (including 6% PSC) 455,800


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Project B.6

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Health As a Bridge for PeaceOverall Objective Morbidity and Mortality ReductionTarget Beneficiaries Health care workersCooperating Partners Ministry of HealthTime Frame April 2000 – December 2000Funds Requested $77,380

Summary

Sectarian violence in the Maluku Islands has created significant attrition in health care workforce.Hospitals and health centers have experienced 50% loss of physician staff. Where health careworkers remain or where short-term staffs have arrived, work patterns are markedly altered by theviolence and the health providers struggle with limitations to curative care in setting of ongoingconflict.

Health as a Bridge for Peace (HBP) is a program whose main purpose is to identify strategies andactions that can maximize peace-building effects of health programs implemented in a conflict-prone or conflict-affected area. The program sensitizes health professionals in the Health as aBridge to Peace concept, and to introduce tools and basic principles required in HBP work. Thebasic tenet of Health as a Bridge to Peace is the conviction that health professionals have a uniquerole in building peace. There is also recognition and consensus that specific skills and knowledgehave to be acquired for health professionals to demonstrate their potential.

The program employs case studies, practical exercises and simulation to develop skill sets inpeace-building activities.


• To strengthen analytic capacity of health care workers about stakeholders, situations, andovert conflict

• To develop understanding of basic human rights and humanitarian law applications forhealth activities in conflict prone and conflict-affected situations

• To reinforce negotiation, mediation and problem solving skills• To introduce Health as a Bridge to Peace concept and demonstrate best practices• To enable participants to replicate skills and knowledge and act as role models for others

Activities

• Present Health As a Bridge for Peace concept• Identify the framework of international humanitarian assistance• Describe principles of medical ethics and international human rights law, and international

humanitarian law• Develop facilitating, mediating, and negotiating skills for conflict resolution• Demonstrate skill acquisition in joint problem solving exercises


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Financial Summary

Budget Item Cost – US$Course facilitators per diem (4 persons x 10 days x 150/day) 12,000Travel of facilitators 16,000Adaptation and translation of training materials 10,000Training sessions 30,000Evaluation of training 5,000Total (including 6% PSC) 77,380


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Project B.7

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Epidemiological Surveillance and Epidemic PreparednessOverall Objective Morbidity and Mortality ReductionTarget Beneficiaries Internally displaced persons in various location of the Maluku

IslandsCooperating Partners Ministry of HealthTime Frame April 2000 – September 2000Funds Requested $328,600

Summary

The more than 300,000 internally displaced persons in Maluku remain high risk for communicablediseases and epidemics. Known risk factors for communicable outbreaks are all present—displacedpopulation, security destabilization, altered health care utilization patterns, decreased access tohealth services, inadequate environmental health, and interrupted disease control programs. Majorcommunicable disease incidence is expected to increase in leading to excess morbidity andmortality.

Epidemiological surveillance will be intensified to ensure the health system has means to identifycommunicable diseases, to describe trends in communicable disease burden, and to provide anearly warning of epidemics from all districts. Sources of information will include morbidity andmortality information, case and epidemic investigation, lab isolation and identification, and otherrelevant epidemiological data such as rumor.

Initially, it will not be possible to obtain data or derive information from all sites. Therefore, sentinelsites will be selected for the first round of surveillance activities. Surveillance activities will beexpanded to cover more sites as the capacity of reporting and analysis increases. It is ultimatelyexpected that data will be collected, analyzed, and reported weekly through the local healthauthorities.

Surveillance data will be obtained through a consultation reporting system of disease syndromes.Standard case definitions and reporting forms will be provided to health care workers responsiblefor clinical care. Necessary training will be provided to providers and data processors to ensurethese data are adequately recorded and reported. Reporting forms will be gathered at centralpoints and periodically analyzed to detect any signs of outbreaks at the sites. The district andprovincial health offices will be involved with data collection, analysis and reporting. Appropriatelaboratory support will be instrumental in isolation and identification of microbiological agents.


• To support and build capacity in the existing epidemiological surveillance system in Malukuin order to target relief assistance and disease control activities.

• To reduce morbidity and mortality from infectious diseases in Maluku


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Activities

• Recruit an epidemiologist to augment the existing system• Distribute surveillance case definitions and reporting forms• Analyze surveillance data and prepare weekly reports• Develop outbreak management protocol which encompasses investigating staff• Strengthen laboratory capacity for outbreak investigations• Preposition resources for outbreak investigation and disease control• Prepare public information to promote outbreak responses

Financial Summary

Budget Item Cost (US $)1 Epidemiologists and technical support 30,0003 Printing and distribution of guidelines 40,0004 Office equipment (PCs, fax machines) 30,0005 Cost of data entry and analysis (# staff x # weeks) 20,0006 Operational costs of surveillance 75,0007 Sentinel site surveillance (refugee site subset) 20,0008 Outbreak response team and investigation 20,0009 Lab support 50,00010 Transportation costs 25,000

Total (including 6% PSC) 328,600


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Project B.8

Appealing Agency WORLD HEALTH ORGANIZATIONActivity Strengthening National Capacity to Manage Complex DisastersOverall Objective Morbidity and Mortality ReductionTarget Beneficiaries Internally displaced persons in various parts of MalukuCooperating Partners Ministry of HealthTime Frame April 2000 – December 2000Funds Requested $355,100

Summary

The Government of Indonesia has been challenged by the needs of traumatized and internallydisplaced persons from civil unrest in several provinces of Indonesia. The Ministry of Health, inparticular, has served to focus the government’s health response and to coordinate externalhumanitarian health assistance. Central ministerial technical input presently comes from the CrisisCenter under the Directorate of Special and Private Hospitals, a separate Crises Center under theCenter for Health Data, the Bureau of Personnel, the Bureau of Logistics, the Drug and FoodControl Directorate and a special unit in the Directorate General for Communicable Disease Controland Environmental Health. The Secretary General is responsible for overall emergencycoordination in the MOH with implementing support from the Bureau of Planning. Theorganizational structure for disaster management within the government is presently underreorganization and a new center may be formed.

Nevertheless, complex disasters urgently challenge the response capacity of affected governments.Indonesia has only recently experienced these phenomena, and the institutional experience withthem is limited.

WHO’s Emergency and Humanitarian Action Program serves to strengthen the overall capacity of acountry to manage efficiently all types of emergency, and bring about an orderly transition formrelief through rehabilitation and back to sustainable development.


• To diminish the health effects of emergencies on affected populations through a sustainablestrategic approach to emergency management that emphasizes emergency preparedness,disaster mitigation, and coordinated response through decentralized authorities

• To adopt international best practice in approach to hazard assessment, vulnerabilityassessment, and risk reduction

• To adopt minimum standards in humanitarian assistance for disaster-affected populations• To establish and implement principles of civil-military cooperation developed through WHO

Collaborating Center for Civil-Military Cooperation


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Activities

• Assign a technical experts to the Ministry of Health reorganized Disaster Unit including apublic health specialized disaster epidemiologist, a disaster project manager, and a nationalconsultant

• Establish clear authorization from the Minister of Health for technical input to counterpartofficers of the Disaster Unit and technical activities of the joint operation

• Assist in establishing early warning indicators of disasters• Help develop an emergency management information system which compiles and analyzes

intelligence necessary for hazard assessment, vulnerability assessment, and risk reduction• Provide best practice recommendations for disaster preparedness and mitigation• Develop guidelines for Indonesian application of minimum standards for environmental

health and clinical care of displaced persons as well as trauma care of affected urbanpopulations.

• Foster civil-military cooperation between Ministry of Health and Ministry of Defense

Financial Summary

Budget Item Cost – US$Consultant in disaster management 90,000Project manager 30,000National consultant 15,000Office support 20,000Central formulation of action plan 10,000Contracts for disaster management data sets 25,000Development of administrative process for emergencyoptions analysis and incorporation of international bestpractice

50,000

Production of Indonesia disaster operations manual 30,000Training of core specialists in hazard, vulnerability, and riskassessment and public health needs assessment

30,000

Development and distribution of community information onself care in conflict situations

15,000

Disaster unit staff travel cost 20,000Total (including 6% PSC) 355,100


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Project B.9

Appealing Agency UNITED NATIONS CHILDREN'S FUND

Project NutritionObjective To maintain good health and nutrition status of under-

two children of the displaced community.Target Beneficiaries 14,000 under-two childrenCooperating Partners PKK (Family Welfare Movement) and AcFTime frame 1 March 2000 - 28 February 2001Funds Requested US$ 788,000


• Periodically monitor the growth of 14,000 under-two children• Communicate information and education activities carried out on nutrition with the focus on

the use of Vitadele• Provide Vitadele to 14,000 U2 children for a period of one year.

Activities

Periodically monitor the growth of 14,000 under-two children

• Provision of weighing scales, growth charts and height measuring boards;• Field visit of PKK and Puskemas staff to IDP camps.

Communication, Information and Education activities carried out on Nutrition with the focus on theuse of vitadele

• To provide CIE materials (leaflets, handouts, audio, equipment);• Workshops for PKK;• FGD/demonstrations at campsites with target group of mothers (implementation of this

activity combined with 'field visits of PKK and Puskemas staff to IDP camps');

Provision of Vitadele to 14,000 under-two children for a period of one year

• Procurement of 356 mt of Vitadele calculated at four packs of 500g per month per child;• Transportation of Vitadele to Maluku;• Distribution of Vitadele to campsites;• Nutrition survey for children under 2.

Strategy

Distribution of complementary food will be channeled through NGOs involved in food distribution, inparticular Action Contre La Faim (AcF) and PKK (Family Welfare Movement) cadres forsocialisation on proper use, including other appropriate nutritional information. At each campsite,one contact person will be selected to ensure correct use and targeted distribution. Growthmonitoring normally carried out under POSYANDU activities will be initiated at each campsite to


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measure the impact of the nutrition inputs. This will be managed by women selected from amongthe displaced community.

Financial Summary

Budget item US$Monitoring of growth of children 94,000Communication, Information and Education 117,000Provision of Vitadele 435,000Transportation and distribution costs 142,000Total 788,000


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Project B.10

Appealing Agency UNITED NATIONS CHILDREN'S FUNDProject Measles VaccinationObjective To reduce cases of Measles amongst childrenTarget Beneficiaries 250,000 children: children under 5 within the host

communities, under 12 within the IDP camps, and a schoolimmunisation month in all districts.

Cooperating Partners Ministry of Health and MSF-BelgiumTime frame 1 March 2000 - 28 February 2001Funds Requested US$ 250,000


Immediate objective is to vaccinate against measles 250,000 children at risk.

Activities

• Rapid assessment of vaccine supply and cold chain status;• Planning meetings to assess logistics needs and to list eligible children at campsites;• Provision of AD syringes;• One day training for vaccinators on use of AD syringe;• Provision of CIE and social mobilisation materials including radio campaign;• Transport and logistics support to vaccination teams in IDP camps, schools and clinics;• Random spot checks across all areas covered.

Strategy

The project will be carried out in cooperation with the local government counterparts and MSF-Belgium. The Measles vaccine distribution will follow the government system, since cold chainequipment is still in place. The campaign will be supported with social mobilisation activities.

Financial Summary

Budget item US$Rapid Assessment of vaccine supply and cold chain status 5,000Planning meetings 10,000Provision of AD syringes 135,000Provision of CIE and social mobilisation materials 25,000Transport and logistics support to vaccination teams 65,000Random spot checks 10,000Total 250,000


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4.3 WATER AND SANITATION


As most of the large camps have been established in training centres, churches and mosques,police and military establishments, immediate needs for water and sanitation have been met fromexisting facilities. The approach, supported by UNICEF, of involving displaced people in theconstruction of WES facilities using fibre-reinforced-plastic molds has had positive impact in termsof sharing responsibility and subsequent use of facilities. Again, the more recent situation in NorthMaluku is reported as being considerably less favourable. This requires specific attention, asrecommended by the recent UN mission.

To date, it has not been possible to assess the situation at to many sites, where IDPs are staying inNorth Maluku. It is therefore possible that the requirements in this sector, when identified, will beconsiderably larger than what has been estimated below. Some of these additional requirementsare likely to be reflected in other funding appeals issued by international NGOs.

4.3.2 Activity update

The Ministry for Human Settlement and Regional Development has been involved in the provisionof additional water and sanitation facilities, with support from UNICEF and MSF-Belgium, which hasprovided extensive assistance for the provision of clean water and sanitation in more than 100 siteson Ambon Island.

4.3.3 Project for appeal

Project C.1

Appealing Agency UNITED NATIONS CHILDREN'S FUND

Project Water and SanitationObjective To contribute to prevention of water borne diseases at

camp sites through hygiene promotion activities.Target Beneficiaries IDPs in campsCooperating Partners Ministry of Human Settlement & Regional Development

as well as WHO and NGOsTime frame 1 March 2000 - 28 February 2001Funds Requested US$ 300,000


The immediate objective is to promote proper hygiene behaviour, ORT knowledge and use ofsanitation facilities at camp sites.


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Activities

• Provision of CIE materials (posters, leaflets);• Promotion of awareness on healthy living through participatory group discussions;• Provision of on-the-job training to selected persons from the displaced communities on

proper ORT practices, construction and use of garbage containers and latrines;• Provision of materials and cash support for hygiene improvement activities;• Participatory review of hygiene promotion activities.

Strategy

The water and sanitation needs will be implemented through participatory methods and self-helpactivities, and facilitated by local NGOs, guidelines from the Ministry of Health and technical supportfrom the Ministry for Human Settlement and Regional Development.

Financial Summary

Budget item US$Support for participatory discussions and supporting CIEmaterials in camps

45,000

Support to construct/rehabilitate latrines, water tanks and dug-wells, garbage containers

30,000

Facilitation support 225,000Total 300,000


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4.4 TEMPORARY SHELTER, OTHER RELIEF NEEDS AND LOGISTICS


The displaced persons have fled from the different parts of the Maluku provinces due to fear fortheir lives and many, or most have as consequence not had the possibility to bring necessary itemsto cover for basic needs. These articles include items for cover and bedding as well as clothing,mosquito nets, hygiene articles, jerry cans, cooking utensils, lamps, stove and kerosene.

On Ambon Island, the sanitation is not critical, thanks to the ongoing assistance both by theauthorities and through the AcF and MSF-Belgium programmes. Further focus on the campsituation including the provision of more suitable shelter is required, as the general reconciliation,rehabilitation and reconstruction may take some time to develop.

In Ternate, North Maluku, whereto many Muslims from Halmahera have fled, IDPs mainly havesought refuge with families or in empty, deserted buildings such as schools, cinemas, discothequesetc. The government is planning to build temporary barracks. In other parts of North Maluku, theneeds for temporary shelter as well as other relief requirements are likely to be considerable, asassessment becomes feasible.


The Government of Indonesia is working in some camps in Ternate, providing food (rice andsupermie) and PMI is assisting in response to situations of emergency water and sanitation needsin the camp like facilities. World Vision had a community development programme in North Maluku,especially in Halmahera, prior to the escalation of violence at the end of 1999. It has now returnedto provide emergency assistance and will launch a comprehensive "North Maluku EmergencyHealth Initiative", which will address the immediate needs of the IDPs in camp-like situations. Thisincludes delivery of dry-food rations, essential relief items (blankets, sarongs, kitchen utensils,plastic sheeting and soap), water and sanitation in selected camps, supplementary feeding, childnutrition and health education.

In the Maluku province, Action Contre la Faim, in addition to food, is providing some non-food reliefitems in camps, now also on Haruku, Seram and Buru islands.

The precise assistance requirements and the arrangements for the implementation of internationalassistance in this sector have so far not been identified. As with Water and Sanitation activities,some of the requirements are likely to be covered by NGOs, but a closely coordinated approach willbe required.


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Project D.1

Appealing Agency OFFICE FOR THE RESIDENT COORDINATOR (AGENCY TO BE DETERMINED)

Project Temporary shelter, other relief needs and logistics

Objective Improved living conditions in the camp-like temporary facilities inMaluku and North Maluku

Target Beneficiaries Internally displaced persons living in camps and private housesImplementing Agency To be determined

Cooperating Partners Ministry of Human Settlements and Regional Development,PMI and international and local NGOs

Time frame 1 April 2000 – 30 September 2000Funds Requested US$ 1,300,000


• Accelerate the process whereby the IDPs are put in a situation where they can count onadequate permanent shelter;

• Provision of supplementary emergency kits and necessary relief supplies;• Ensure adequate logisitcal support for the distribution of relief items, and that all remote

areas of the archipelago are reached.

Activities

• On Ambon Island, non-food relief assistance to families in need has been provided by the localcommunity and through the AcF programme.

• Provide logistics for the transportation and delivery of both food and non-food relief items,notably to and within the North Maluku province, including remote areas.

• Shelter kits are also included in the programme of World Vision for an estimated 118,000beneficiaries in North Maluku, for which initial funding requests have recently been issued.

Strategy

Together with Bakornas PB and the above mentioned NGOs, identify additional partners, who willmake needs assessments in other areas of Maluku and North Maluku, based on agreed criteria forassistance and agree on implementing arrangements.

Financial Summary

Budget item US$Provision of temporary shelter and of other relief needs 800,000Logistics 500,000Total 1,300,000


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4.5 RECONCILIATION AND PUBLIC AWARENESS


In Ambon there is currently a complete segregation of the communities, with separate infrastructureservices being put in place and with very few meeting points or interaction between them. To someextent this has been a necessity for the communities to cope socio-economically. The situationleaves the authorities with the difficult choice of undertaking e.g. rehabilitation and reconstructionactivities in segregated areas, thus cementing the division, or as an alternative in integrated areas,with the risk of provoking unrest and destruction anew.

In North Maluku, the conflict spread from Malifut to Ternate by rumors and misinformation, which inturn provoked religious intra-Moslem conflicts in Ternate and the surrounding islands. Theadministration here is weak but Ambon and the south no longer politically influence the shaping oflocal politics. Instead, old issues and rivalries have assumed new importance in fashioning newpolitical elites in the province. Land and administrative issues unsettled local balances.Institutionalising or regularising political activity to within the bounds of peaceful processes in thisprovince thus remains a great challenge.

Considering the severity of the conflict, there is a strong need for support to efforts regardingtrauma counseling, communication, support to local efforts that forward the healing process,supplemented by public awareness and international technical assistance.


Despite the situation described above, some groups have managed to meet and conduct activitiesin Ambon. These include the NGO forum TIRUS, in which both Muslim and Christian NGOs partakeand which has been able to meet on the neutral ground of the Governor's office, as well as the'Caring Women's group' (GPP) which is motivated to meet and work on issues pertaining peacefulsolutions to the conflict and the situation in Ambon. Further, the Yogyakarta based TIRA, whichconsists of persons from different religious and ethnic backgrounds, have carried out some fieldmissions to Ambon for reconciliation facilitation purposes, and will continue to facilitate the process.

In North Maluku some actors constitute hopes of reconciliation amidst the on-going tensions andconflict. The Government has e.g. conducted regular meetings in attempt to discredit provocateursand address the misinformation and rumors being spread by IDPs. Further, a North HalmaheraCommunication Forum has been established, and consists of young people, businessmen,Christian and Islamic Leaders. Its goal is to revive and strengthen coexistence and cooperationbetween different groups in society. Another organisation called Hebualamo has been created, andhas as purpose to conduct regular meetings to stimulate the feelings of brotherhood among theconflicting communities and to discourage provocateurs. In Jailolo and Kao Moslem and Christianlive peacefully together.

The British Council under the auspices of the UN Resident Coordinator (and with grants from theBritish Government) will assist in the conflict resolution and mediation process. This includes twoconflict resolution workshops (one in Bali at the end of March for participants from the Malukuprovince and one in Manado in the beginning of April for participants from North Maluku), training in"peace-journalism" together with LSPP (Institute for the study and development of the press) and injournalism in conflict zones for Maluku-based journalists together with BBC. It also includes media


46

monitoring through Indonesia MediaWatch, the establishment of a common journalist/press club,with the aim of disseminating and co-ordinating information, and provision of in-kind technicalequipment assistance to those journalist and media workers who need it. Further, the BritishCouncil plans to support local NGOs from Maluku who are working with issues that have relevanceto peace building.


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Project E.1

Appealing Agency UNITED NATIONS DEVELOPMENT PROGRAMMEProject Reconciliation processObjectives To support to a broad based participation and ownership of

the reconciliation process within civil society.

Target Beneficiaries Broad spectrum of civil society, including opposing groups,NGOs, activists, politicians, IDPs etc.

Cooperating Partners CSPS-TIRA, PRS, GPP, Bakornas/Satkorlak, other localNGOs, and UNICEF

Time frame 1 March – 30 September 2000

Funds Requested US$ 420,000


The aim is to support the dialogue among civil society members and their representativeorganisations through mechanisms established by the Governor's office and through support to civilsociety organisations who have a role in building civil consensus and forwarding the communityhealing process. These efforts are to be supplemented by public awareness projects.

The immediate objective is therefore to locate, fund and initiate as many attempts at crosscommunity engagement as possible to forment the reconciliation process within civil society.

The expected output of the project is that there will be a critical mass of ongoing activities "owned"by as many members of civil society as possible from opposing groups, and a credible source ofinformation which is illuminating, reconciliatory and is seeking to foster positive informationexchange between the communities to lead to permanent dialogue.

Activities

• Regular meetings of religious and community leaders with opposing counterparts;• Specific programmes by grass-root organisations on reconciliation and community healing,

supported with donor funds using joint community resources, in particular man-power;• According to needs and opportunities, social activities, such as brief exchanges of

experiences, informal gathering of community members such as in sporting opportunities,training to youth members (as the carriers of hope) etc;

• Support to the Social Reconciliation Forum (PRS) by attaching Indonesian academics orothers experienced in conflict resolution;

• Reestablish media sources for peace messages and non-biased news etc to flourish;• Support to other public awareness activities.

Strategy

The programme will be implemented in co-operation with the CSPS-TIRA (a consortium of Centrefor Security and Peace Studies under the Gajahmada University and Tim Independen untuk


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Rekonsiliasi Ambon/Independent Team for Reconciliation of Ambon attached to the Centre forStudy of Promotion of Peace of Duta Wacana Christian University), the Ambon-based SocialReconciliation Forum (PRS), the Group of Caring Women (GPP), provincial and local governmentSatkorlak and Satlak, and through other local initiatives and organisations.

Further, the programme will be closely coordinated with UNICEF and its foreseen support to GPP interms of strengthening of the organisation's secretariat, its peace process activities andpsychosocial counseling to school children.

Financial Summary

Budget item US$Support to Programme for Empowering Local Institutions tocarry out Reconciliation, including Training and mediation 210,000Institutional support to local organisations and institutionsinvolved in reconciliation 40,000Establishment of a Information Centre for Reconciliation 20,000Public Awareness Activities 150,000Total 420,000


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Project E.2

Appealing Agency UNITED NATIONS CHILDREN'S FUNDProject Peace building through empowerment of women and support

to school children and youth.Objectives To contribute to an increased and improved dialogue

between communities.Target Beneficiaries All IDPsCooperating Partners Ministry of Education, Satlak PB, GPP

Time frame 1 March 2000 - 28 February 2001Funds Requested US$ 154,000

Overall Objectives

The primary aim is to contribute to peace and religious tolerance through the specific empowermentof women, and support to school children and youth. This will be achieved by helping in themanagement of the organisation, strengthening the secretariat of Gerakan Perempuan Peduli(GPP) or Caring Women's Movement. This movement that emerged in the autumn of 1999 hasgained considerable influence and women of both faiths are actively involved. Leaders include civilservants, business women, teachers and other women motivated primarily by their desire for peacebased on their religious beliefs. The movement is aware of its limited organisational capacity and itsneeds for training and support for the planned activities. The movement has, however, the potentialto bridge the gap between the two sides, that at present prevents any reconciliation.


The immediate objectives are to strengthen the secretariat of GPP, to support the organisation'speace process activities, and to provide psychosocial counseling to school children.

Activities

Strengthening the secretariat of GPP:

• Conduct GPP organisational assessment and subsequent capacity building throughassistance of two experts for 6 weeks;

• Provision of supplies and equipment;• Operational support;• Monitoring and evaluation support.

Support to GPP's peace process activities:

• Organisation of meetings, workshops, special events (consensus building, peace relatedworkshops and events, interfaith dialogue);

• Organisation of peace advocacy (public opinion through mass media, through GOIstructure);

• Grass root level counseling visits addressing psychosocial trauma for women.


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Psychosocial counseling provided to school children:

• Training of teachers (2 per school) on trauma counseling;• Group discussions on conflicts;• Play activities/poem and essay competitions;• Individual counseling for special cases.

Financial Summary

Budget item US$Strengthening the secretariat of GPP 41,000Support to GPP's peace process activities 50,000Psychosocial counseling provided to school children 63,000Total 154,000


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4.6 RECONSTRUCTION AND REHABILITATION


Not only were social relations destroyed but physically, communities have also been raised to theground. Thousands of houses, sites of worship, places for economic activity including markets,shops and places of work were all rendered non-functional through damage or as a result of fire.Some of the houses reconstructed during 1999 were again destroyed during the renewed riotingand violence. The below table gives an indication of the damage:

LOSSES SUFFERED NORTH MALUKU 10

MALUKU 11

A. Human casualties: Dead 1,655 900 Serious/minor injuries 1,219 2,153 Missing/hiding in forest 2,315

B. Material Loses: Houses damaged/burned 6,497 11,814 Houses of Wordship damaged/burned 96 140 Shops/kiosks burned 66 601 Educational facilities damaged/burned 8 57 Office buildings/facilities burned 6 103 Public health centres burned 1 8 Vehicles burned 57

The above statistics is from January 2000, and since then further destruction has occurred,especially in North Maluku. Already in January, the Joint Assessment Mission identified total needsin this area at more than $ 33 Million for a full scale reconstruction programme It was alsodetermined that parallel to emergency relief and reconciliation efforts, some modest reconstructionprojects were important. The project foresees to provide the government with support, primarily toconstruct or reconstruct housing but also some communal buildings such as mosques/churches,health centres and schools.


The Government of Indonesia, in 1999, undertook some housing construction and has also initiatedsome initially symbolic reconstruction activities of communal facilities. The Ministry of HumanSettlement and Regional Development is responsible for the development of these plans andactivities. So far no other agency is involved in reconstruction efforts.

10 Report of the Governor of Maluku on the Handling of IDPs from the Province of Maluku, dated 25 Jan.2000, prepared for the visit of the Vice President11 Report of the Governor of North Maluku on the Unrest and its Solution, dated 24 Jan. 2000, prepared forthe visit of the Vice President.


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Project F.1

Appealing Agency UNITED NATIONS DEVELOPMENT PROGRAMME

Project Physical reconstruction and creating an enablingenvironment

Objectives Facilitate initial effective reconstruction of Maluku and NorthMaluku provinces.

Target Beneficiaries The community as a wholeCooperating Partners Ministry of Human Settlements and Regional Development,

Private companiesTime frame 1 April - 30 September 2000Funds Requested US$ 1,600,000

Objectives and output

The aim of the project is to facilitate initial effective reconstruction of Maluku and North Malukuprovinces including as a first step contributing to the construction of housing for both communitiesas well as the physical rebuilding of community facilities such as churches/mosques, a jail, healthcentres etc.

The immediate objective is therefore to repair and/or reconstruct housing and communal sites aswell as reestablish basic social services, such as educational and health access.

The expected output will be partial renovating of communities with functioning private housing, ahospital or health centres, sites of worship and restraint (jail), a functioning school and acourthouse. This also include expressions of interest on the part of the population and IDPs instaying to live in an integrated or only partially separated community in the future. Further,resistance to damaging newly erected property, as well as support for the use of a formal courtsystem to punish both community's offenders are also expected.

Activities

• Rebuilding of community facilities such as mosques/churches, courts, a jail, health facilities,either one or one for each community as appropriate;

• Rebuilding 750 housing units and the surrounding areas for both communities. Some of thehousing units are foreseen in 'integrated' areas, others in respective Muslim and Christianareas;

• Reintroduction of a basic education system at least in the minimum of subjects;• Strengthening the currently very fragile, basic health facilities including the housing of

victims of communal violence.


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Strategy

The reconstruction initiatives will be coordinated with and largely implemented by the Ministry ofHuman Settlement and Regional Development.

It is very important to ensure a participatory planning process in rebuilding the communities, i.e. theinvolvement of people in reconstruction, for the sake of ownership and and sustainability.

Reconstruction is still in a very volatile situation and involves taking some risks. These will beminimised by starting activities on a small scale and after close consultation in the communities.

Financial Summary

Budget item US$Construction material for houses 771,000Construction material for churches, mosques, jail and otherinfrastructure 729,000Personnel/Technical Assistance 100,000Total 1,600,000


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4.7 INCOME GENERATION/COMMUNITY RECOVERY


With the destruction of social and physical relations, economic life has also become completelysegregated and thereby seriously limiting income generating opportunities. Agricultural plots areidle and in many institutes and private sector enterprises no work is being carried out. Virtually allpublic services, such as education, health, justice and social services are separated into twoparallel systems with few contact points, such as the Governor's Office and the Military Hospital inAmbon.

There is an obvious need for assistance to communal as well as NGO initiatives, including accessto credit, work opportunities provided by the reconstruction process, and food for-workprogrammes.


Principally, there is a network of local NGOs involved in income generation and communitydevelopment activities. Many of the organisations connected to the NGO network TIRUS areworking with community recovery, and at least three international organisations are also planninginitiation of these type of activities. The Community Recovery Programme (CRP) also hassupported NGO projects in Maluku.


Project G.1

Appealing Agency UNITED NATIONS DEVELOPMENT PROGRAMMEProject Income generation and job creation activities

Objectives Contribute to the creation of an enabling and conduciveenvironment for the reestablishment of opportunities for workand potential for income generation.

Target Beneficiaries Population, including IDPs, in need of income generatingactivities.

Cooperating Partners Local NGOs and community groups.

Time frame 1 April - 30 September 2000Funds Requested US$ 681,000


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The immediate objective is to increase the availability of income and sources of income throughfarming, fishing or work opportunities. This will be done through assistance to communal and NGOinitiatives.

Expected output is an increase in the number of persons, including IDPs becoming independent ofrelief assistance, and strengthened money or barter based economy. More specifically, it isexpected that the volume of business performed among and between the communities willincrease.

Activities

• Opening up of credit/grant facilities in both communities;• Increase opportunities for bartering and exchange of assets;• Beginning of labour intensive public works construction activities such as re-building of

churches/mosques, health facilities, a jail and a courthouse;• Funding of NGO programmes in the area of income generation/job creation, such as

through an expanded Community Recovery Programme (CRP);• Provision of agricultural seeds and implements;• Provision of fishery equipment.

Strategy

Mainly, the income generation and community recovery activities will be done through UNDP'salready established mechanism of CRP, as well as opening opportunities for working with NGOsthrough their regular income generating activities.

Further, as much as possible the project shall strive to involve IDPs in labour intensive activities.

Financial Summary

Budget item US$Community Recovery Programme Scheme 500,000Other Small Credit/Grant Schemes 150,000Personnel/Technical Assistance 31,000Total 681,000


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4.8 CAPACITY BUILDING, COORDINATION AND MANAGEMENT


The Government of Indonesia, and more specifically Bakornas PB, through its secretariat at theCoordinating Ministry for People’s Welfare and Poverty Alleviation, has attempted to undertakeinter-ministerial assessments of the capacity, management plans and budgets of the relief,reconciliation and rehabilitation process in Maluku. While considerable experience exists withinthese institutions, there is however limited national experience in conducting programmes under theconditions found in Maluku. Given this situation, the Government has requested the UN tocoordinate international assistance for relief, reconstruction, rehabilitation and reconciliationactivities.

As a result of the total breakdown of security, law and order, UN supported programmes in Ambonand in South-East Maluku have been constrained. UN international staff were evacuated. Someprogrammes could continue through implementing arrangements with partners, including someinternational agencies. In North Maluku, no UN programmes or presence was possible with at leasttwo international NGOs also having to evacuate staff.

However, as the security situation now has been improved in parts of Maluku, and with the TNIpartly as its safeguard, it is now possible to start operations in the provinces. Therefore, ineffectively providing coordination it is estimated that there is a strong need for UN coordinationoffices in both Ambon and Ternate. UNICEF has had an office in Ambon throughout the crisis, andthe strengthening of this project management office will also contribute to this effort.


CAPACITY BUILDING

UNHCR, in cooperation with the Government of Indonesia, is planning to organize emergencymanagement training at both central and provincial levels. In that regard, emergency management-related materials would be translated into Bahasa Indonesia, both to facilitate training and as apost-training resource. UNHCR will also offer to assist the Government of Indonesia in capacitybuilding activities related to emergency management. These activities are already part of UNHCRplans for the year 2000, and as a result, separate funding from this appeal would not be anticipated.

UNDP has for some years given institutional support to Bakornas PB, in order to strengthen itsdisaster preparedness capacity, but primarily for preparedness, prevention and response to naturaldisasters. UNDP is preparing a separate project for the provision of technical assistance toBakornas PB at the central level in Jakarta, which would also benefit its capacity to coordinatenational assistance in Maluku and to coordinate with the international community.

At the provincial level, Satkorlak PB in Ambon has continued to function, in spite of limited officeresources, and ensured reporting to the central authorities. In North Maluku, Satkorlak PB wasvirtually non-existing at the time of the outbreak of the conflict in August 1999, in this new province.To strengthen the coordination of relief distribution, the government has requested the assistance ofthe Indonesian Red Cross (PMI). UNICEF has had an office in Ambon throughout the crisis, sincethe Spring of 1999. The International Committee of the Red Cross (ICRC) provided emergencyassistance in early 1999, and is prepared to resume its activities, especially in the field of trainingand dissemination of humanitarian law.


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Project H.1 CAPACITY BUILDING

Appealing Agency UNITED NATIONS DEVELOPMENT PROGRAMMEProject Capacity Building of key institutionsObjective To ensure that key institutions in government and civil

society receive appropriate and timely support includingproviding short term institutional support with longer termcapacity building assistance for key institutions such asBakornas PB and Satkorlak PB.

Target Beneficiaries Bakornas PB, Satkorlak PB and Satlak PBTime frame 1 April - 30 September 2000Funds Requested US$ 96,800


Provide initial institutional assistance, with eventual longer term capacity building assistance, forkey institutions, notably Satkorlak PB and Satlak PB, the provincial and local equivalent ofBakornas PB. This capacity building involves strengthening in particular

- Management Information Systems- Decentralised Disaster Management Procedures and Mechanisms- Policy setting at national/regional level

The output of the intervention is a programme to support the national authorities in Jakarta and thelocal authorities in Maluku and North Maluku to make inputs to the Maluku situation timely and costeffective. As a result of the project, it is expected that confidence would be expressed in theleadership, that information-sharing is increased, that a work-plan and methods of the Bakornas PBand Satkorlak PB are institutionalised by all of its partners, and that at least 85 % of its targets arereached by the institutions.

Activities

• Development and, where appropriate, assistance in implementation of a comprehensivework plan and strategy for the management of Bakornas, Satkorlak and Satlak PB (whereappropriate) including securing sufficient long term funding from Government sources toback up resources gleaned from international sources.

• Provision of a technical assistance programme covering supply of experts, funds andequipment to complement existing Bakornas PB expertise/resources inherited fromGovernment sources.

Financial Summary

Budget item US$Personnel and travel 61,800Workshops/Meetings 20,000Reports and Publication 10,000Operational support costs 5,000Total 96,800


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UN COORDINATION AND PROJECT MANAGEMENT

Project H.2

Appealing Agency UNITED NATIONS DEVELOPMENT PROGRAMME/OFFICE FOR THE COORDINATION OF HUMANITARIANAFFAIRS

Project Coordination and Support by UN: UN Resource CentreObjective Ensure effective coordination between all partners involved in

the above process, but particularly among the internationalcommunity.

Cooperating Partners Bakornas PB/Satkorlak PB, UN agencies and other agenciesand organisations providing assistance in Maluku.

Time frame 1 April - 30 September 2000Funds Requested US$ 316,800


The Government of Indonesia and other national organisations have been chosen as the mainexecuting and implementing agencies in order to ensure broad-based national ownership of theprogramme, as well as effective follow-up within national programmes. The United NationsResident Coordinator will then provide such services as are necessary to support effectiveexecution and implementation, in particular in areas where capacities may be limited, and to ensurefull transparent and accountable management of funding, procurement and recruitment. For thispurpose, United Nations Resource Centres will be established in Ambon and in Ternate, with thesupport of the Office for the Coordination of Humanitarian Affairs (OCHA). These centres will alsosupport appraisals of specific requests to be funded by the UN.

The immediate objectives are therefore:

• Effective coordination, within the UN Resident Coordinator system, with the authorities andwith donors and international agencies, of all international assistance in response to theMaluku crisis.

• Effective implementation of UN supported projects.

Activities

Effective coordination: an effective and common strategy for and delivery of material and technicalassistance

• Regular research and situation analysis, in close cooperation with the provincial authorities,and reporting on this analysis;

• Based on this analysis, update and propose changes in UN programme responses;• Along with the Government of Indonesia and donors, re-focus funding on a range of

activities, or where necessary reducing number of activities, to ensure resources mobilisedcover prioritised activities;


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• Continued holding of a series of coordination meetings, wherein the relevant authorities,programme partners and donors can meet on a weekly (or more frequently) basis toexchange information;

• Providing regular summaries and information presented in these meetings, as well asupdating of other information as appropriate

Effective implementation of UN funded projects

• Ensure that responsible project staff undertake adequate monitoring and control for UNprojects;

• Provide succinct progress reports and make recommendations concerning projectimplementation.

Strategy

Effective coordination and implementation of projects done through the UN Resource Centres inAmbon and Ternate respectively, as necessary done through or in cooperation with otherorganisations or technical expertise. In Ambon, the centre will draw upon and utilise the expertise,knowledge and resources of the UNICEF offices in Ambon.

Financial Summary

Budget item US$PersonnelAmbon OfficeTernate Office

162,10073,60088,500

Workshops/Meetings 20,0002 Vehicles 50,000Mission costs (incl. local travel) 25,000Research 10,000Office operation in Ambon and Ternate 45,000Contingency costs (1,5 %) 4,700Total 316,800


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Project H.3

Appealing Agency UNITED NATIONS CHILDREN'S FUNDProject Project ManagementObjective To ensure effective implementation of the UNICEF Maluku

projects.Target Beneficiaries The UNICEF projects and its implementing partnersTime frame 1 March 2000 – 28 February 2001Funds Requested US$ 260,000

Objective and output

UNICEF is appealing for US$ 1,492,000 for assistance to the Maluku crisis in the sector of healthand nutrition, water and sanitation, and reconciliation. Its projects will target some 14,000 under-twochildren for nutrition, 250,000 children for measles vaccination, IDPs in camps for water andsanitation, and for reconciliation women, children and IDPs.

In order to effectively implement and monitor these projects, as well as rapidly assess changingneeds, it is estimated that additional UNICEF staff in Ambon and new staff in Ternate will be crucial.The agency already has an office in Ambon, but given the scale of the crisis, additional humanresources are needed for project management, and also to provide the UN Resource Centres withthe necessary expertise concerning the situation and needs of women and children.

The objective is also to establish a functional monitoring of UNICEF supported activities.

Financial Summary

Budget item US$Personnel Sub-office Chief Liaison Officer Field Monitoring (3) Programme Assistant/SecretaryOffice operation in Ambon and TernateTotal 260,000

Documents

THE MALUKU CRISIS - reliefweb.int fileUnited Nations Inter-Agency Appeal for the Maluku Crisis 2 TABLE OF CONTENTS EXECUTIVE SUMMARY