Examples from the Response to Hurricanes Georges and Mitch

EMERGENCY RELIEF TO RECONSTRUCTION

TABLE OF CONTENTS

i EXECUTIVE SUMMARY

iii PREFACE: PHILOSOPHY AND EXPERIENCE

01 EXAMPLES FROM HURRICANES MITCH AND GEORGES01 1. The Impact01 - Hurricane Mitch01 - Hurricane Georges

03 2. CHF International’s Response

04 3. Overview of Activities

10 4. Country-by-Country Profiles10 - Dominican Republic 11 - El Salvador12 - Guatemala13 - Haiti14 - Honduras15 - Nicaragua

17 CONCLUSIONS AND RECOMMENDATIONS

Special thanks go to thefollowing groups who helpedmake this work possible: theUnited States Congress, theUnited States Agency forInternational Development(USAID), the Federal EmergencyManagement Agency (FEMA), the United States Department of

Housing and Urban Development(HUD), the United StatesDepartment of Agriculture(USDA), and the Pan AmericanDevelopment Foundation (PADF).

Thanks also go to CHF International’sstaff members, in particular, LisaPacholek, Brian Holst, Bryan

Winston, and James Schenck, who led the teams that helpedthousands of families put theirlives back together after Georgesand Mitch, and all the communityleaders and other individuals whoworked tirelessly to reconstructtheir communities.

Writers of and contributors to this report include: BarbaraCzachorska-Jones, Richard Owens,Scott Mulrooney, John Chromy,Judith Hermanson, Richard Hill,Kimberly Maynard, HeatherBowen, and Karina Jackson.

Prepared by CHF International, January 2003

THANKS

i

EXECUTIVE SUMMARY

When the United States Congress providedfunding for relief to Central America andthe Caribbean following Hurricanes Georgesand Mitch, CHF International received $33million through the United States Agency forInternational Development (USAID) andother funding agencies, including theFederal Emergency Management Agency(FEMA), the United States Department ofHousing and Urban Development (HUD), theUnited States Department of Agriculture(USDA), and the Pan American DevelopmentFoundation (PADF).

This represented 5.3% of the total $621million provided by the EmergencySupplemental Appropriations Act forCentral American and the CaribbeanEmergency Disaster Recovery.*

Combined with an additional $15 millionleveraged in cash and in-kind contributions,

CHF International’s reconstruction efforts forHurricanes Mitch and Georges were valuedat more than $48 million. Because of thelarge scale of this effort, tangibleimprovements made by our work can beseen throughout Central America. But theintangible results are equally important.Both are synthesized here.

Throughout the relief efforts and rapidreconstruction process, CHF Internationalworked with dozens of local organizationsin El Salvador, Guatemala, Honduras,Nicaragua, the Dominican Republic, andHaiti to increase the resilience of affectedcommunities. We successfully completedthe reconstruction mandate, oftenexceeding targeted goals. Communityrevitalization was done quite vividly throughthe renewed and improved infrastructure(housing, schools, and so forth) in damagedcommunities. Yet, equally important, we

“CHF International’s approach set the stage for further

empowerment: communities developed new skills, new

perceptions of themselves as capable, and new

commitment to their own development.”

–Post-Hurricane Capacity Building Evaluation Report by Kimberly A. Maynard

REFLECTING IN THE FULLNESS OF TIME, WE HAVE PREPARED THIS REPORT AS AN INSTITUTIONAL RECORD OF ACHIEVEMENTS, LESSONS, AND RECOMMENDATIONS FOR PROGRAMS DESIGNED TO BRING SOCIETIES FORWARD FROM EMERGENCY RELIEF TO RECONSTRUCTION.

* Additional CHF International results from programs MICAM and Muniplan are not covered in this report because they were not part of the original congressional act for reconstruction. Neither is our post-earthquakereconstruction, which overlapped with hurricane reconstruction.

built the capacity of these local institutions,which can continue to increase resilience.

Requiring matching contributions orincorporating loan programs is often moredifficult in reconstruction than in typicaldevelopment programs, but these measurescan bring about better quality results. Whenwe pay for services, we value them more.By requiring a “match” and tracking sweatequity, land donated, materials, etc., wehave found that people become moreengaged in the reconstruction process.

We hope this report will illustrate ourexperience that managerial capacity-building is critical to long-term developmentat the local level. Because we feel sostrongly about this aspect of our work, CHFInternational hired an independentresearcher to identify our most importantcapacity-building practices. This documenthighlights the key findings of her research.

CHF International has reached six centralconclusions which are at the heart ofeffective post emergency or disasterreconstruction.

1 | Reconstruction is enhanced in both theshort term (one to six months) and the

long term (six months to three years)by real engagement of the people whoare being helped.

2 | Rapid results are necessary to preservehope, but do not have to occur at theexpense of quality.

3 | Skills transfer and local capacitybuilding (for individuals, localgovernments, nongovernmentalorganizations and small- and micro-enterprise) can occur effectively withina reconstruction context, and canencourage lasting results.

4 | To increase longevity of programinterventions, even in relief situations,subsidy and loan components (rather than strict grant programs) can be used.

5 | Even when temporary solutions arenecessary, strategies can be employedto link these to permanent solutions(e.g., constructing temporary shelterson permanent foundations).

6 | Local economic activity associated withreconstruction should be optimized toboost economic recovery.

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PREPARING PEOPLE FOR THE FUTURE

When the earthquakes of January and

February 2001 struck, communities

attended to by the Mitch Integrated

Reconstruction Activities program had

been well prepared by

CHF International and partners.

Local emergency committees

demonstrated enhanced capacities

in four primary ways:

1. Their immediate reactions to the

quakes were well-organized.

2. They used established methods to

evaluate and measure the damage

caused by the quakes and the

resulting needs.

3. They had a mechanism to

communicate effectively to the

national emergency network.

4. Their requests for assistance were

organized, and assistance received

was properly managed.

Consistent with our mission to serve as a catalyst for long-lasting positive change, CHF International’s emergencyreconstruction programs take near-termaction with longer-term recovery strategiesin view. The engagement of the people and their leaders is central in reconstructionplanning and implementation.

CHF International’s development philosophyis grounded in the belief that the degree towhich we involve people in helping buildtheir own strong, stable communities, themore self-sufficient these communitiesbecome. Our view of process and productbeing highly interrelated is manifested notonly in our daily efforts, but even underfast-paced, high-pressure, critical emergencysituations. Even when circumscribed by

emergency conditions, we still holdcommunity participation to be an importantvalue. CHF International’s response toHurricanes Mitch and Georges provides anillustration of the effectiveness of theparticipatory model we use.

When the United States Congressprovided funding to provide relief forCentral America and the Caribbeanfollowing these disastrous storms, CHF International undertook a large part of the challenge to reconstructdamaged communities.

Throughout the relief efforts and rapid reconstruction processes, CHFInternational worked with dozens of localorganizations in the Dominican Republic,

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PREFACE: PHILOSOPHY AND EXPERIENCECHF INTERNATIONAL’S WORLDWIDE DEVELOPMENTAL RELIEF AND RECONSTRUCTIONEFFORTS VARY FROM SHORT-TERM EMERGENCY DISTRIBUTION PROGRAMS TO LONG-TERM RECONSTRUCTION PROGRAMS. THE CONSTANT THEME, HOWEVER, IS THAT CHF INTERNATIONAL DOES MORE THAN ADDRESS IMMEDIATE NEEDS.

Community involvement is key

iv

El Salvador, Guatemala, Haiti, Hondurasand Nicaragua to increase the resilience ofaffected communities.

Following these programs, CHF Internationalwanted to see whether in the process ofproviding shelter, roads, and schools, it hadin fact also reached its goal of developingthe capacity of its partners, beneficiaries,and staff. To answer this question, wecommissioned an independent evaluationby an expert in emergency assessments andpost-conflict resolution, Kimberly A.Maynard, Ph.D., President of the CunyCenter, in the fall of 2001 and carried outinternal reviews.

This paper focuses on hurricanereconstruction work in six countries in LatinAmerica as illustrative examples of ourwork. Hurricane reconstruction representsonly one facet of CHF International’s recentemergency management efforts.

As of this writing, CHF Internationaltransition initiatives are ongoing in war-torn Afghanistan, post-MilosevicYugoslavia, and the politically destabilizedareas of Colombia, Lebanon, and West

Bank/Gaza—just to name a few. Whetherwe are working on civil societydevelopment, construction projects,microlending or agriculture, we are allworking to stabilize politically uncertainareas by engaging people. We respond todisasters as needed, but our dedicated staffmembers are on the ground implementingdevelopment programs every day. In eachcase, we are striving to help families buildbetter lives for themselves.

All of CHF International’s work takes placewithin a complex geo-political context overwhich we (and others) have little control.We acknowledge that fact. Nonetheless,CHF International and our local partnersdirectly manage programs intended toprevent, manage, mitigate, and, sometimes,resolve conflict.

We do not profess our work to be apanacea, but CHF International helpsprovide ways for individuals in communitiesto advance their claims in fair, inclusiveways and to develop pluralistic,democratically-based processes inconjunction with physical reconstruction.Emergency management decisions affect

longer-term development efforts

AFGHANISTAN 2002 Emergency relief and repatriation after war

MONTENEGRO 2002 Reconstruction following Balkans conflict

BOSNIA 2002 Reconstruction following Balkans conflict

AZERBAIJAN 2001 Assisting internally displaced persons and refugees

COLOMBIA 2001 Relief to persons displaced by political violence

SERBIA 2001 Democratic strengthening following civil conflict

EL SALVADOR 2001 Earthquake relief

KOSOVO 1999 Economic development after civil conflict

HONDURAS 1998 Relief and reconstruction of communities hit by Hurricane Mitch

GUATEMALA 1998 Relief and reconstruction of communities hit by Hurricane Mitch

NICARAGUA 1998 Relief and reconstruction of communities hit by Hurricane Mitch

EL SALVADOR 1998 Relief and reconstruction of communities hit by Hurricane Mitch

HAITI 1998 Relief and reconstruction of communities hit by Hurricane Georges

DOMINICAN REPUBLIC 1998 Relief and reconstruction of communities hit by Hurricane Georges

LEBANON 1997 Rural economic development and microfinance lending following civil war

POLAND 1997 Flood assistance

GUATEMALA 1995 Repatriation and economic development following civil conflict

GAZA/WEST BANK 1994 Home improvement and jobs creation during the Intifada

PHILIPPINES 1991 Mt. Pinatubo relief and reconstruction

INDIA 2002 Needs assessment following earthquake

CHF INTERNATIONAL EMERGENCY MANAGEMENT OVER THE LAST DECADE

Working toward a peaceful, stable world has been at the heart of CHF International’s methodologies since its inception 50 years ago. CHF International interventions have worked to ameliorate post-conflict activities and post-disaster conditions.

v

School reconstruction in Afghanistan

Children in Honduras receive trees to be planted as part of a reforestation project

1

Hurricane and Tropical Storm MitchIn recorded history of the westernhemisphere, there had never been ahurricane so damaging as Hurricane Mitch.From October 26 until November 1 of 1998,the powerful winds and rains of Mitch torethrough Central America, causing life andproperty damage on a massive scale. Entirecommunities were flooded and badlydamaged. Homes, roads, bridges, schools,clinics, and crops were damaged ordestroyed by the force of the storm or thelingering rain.

More than 9,000 people were killed, andmillions were displaced. By early November,

more than 600,000 people were forced toseek refuge in schools, churches, and othertemporary shelters.

Hurricane GeorgesA month prior to Hurricane Mitch, anotherstorm had hit the island of Hispañola,causing severe damage to the DominicanRepublic and Haiti. From September 20-22,Hurricane Georges swept through theCaribbean. Damage to the countries of theCaribbean from Hurricane Georges exceeded$1.7 billion, with the Dominican Republicbearing the brunt of the disaster. Housingwas particularly devastated—more than 40thousand people needed new homes.

THE CHF INTERNATIONAL RESPONSE TO HURRICANES MITCH AND GEORGES1 THE IMPACT

Emergency response in Guatemala included food distribution

The Storm“During the Hurricane Mitch storm, I wasguarding a warehouse in the town in whichI lived when a neighbor of mine arrived andannounced that the river had overflowed itsbanks and had entered my house. Myneighbor was not sure if my wife and familyhad been washed away. I returned home tolook for them, but I was not able to enterthe house as the river was surging throughit. The fierce sounds of rushing waterripping through the town and carrying awayeverything in its path was overwhelming.

I wanted to continue looking for my wifeand family, but the police arrived at thatmoment and forced me to leave. I wastaken to a local school for refuge alongwith hundreds of others. Upon arriving atthe school, I was told that my wife and myyoung children were safe in another shelter.I was greatly relieved. The next day I wasreunited with my family. We stayed in thatshelter for another three weeks.

Building Emergency ShelterMy family was lucky enough to obtain anew plot of land that was provided by themunicipality of Choluteca. On this land, webuilt a makeshift shelter out of used woodand other materials that the river hadthrown throughout the town. We collected

anything we could find to provide us withshelter from the dust and hot sun thatcame after the hurricane. Our home andevery family possession had been carriedaway by the river. We had nothing.

CHF International arrived to offer theirtemporary housing project to the newcommunity and to see if we were in aposition to work helping to build the homes.The community’s response was immediateand affirmative. Within days, CHFInternational returned to the communitywith materials to begin construction on thehomes and latrines. We took CHFInternational’s advice and worked togetheras a community to build the homes.

CHF International arranged the “Food forWork” program to provide us with food aswe were working. Thanks to this additionalhelp, community members stayed motivated.We not only completed 150 homes, but alsorequested and received materials for 50additional homes. We also worked togetherto combine eight housing structures to builda school so that our children can return toclasses as soon as possible.

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Hurricane Mitch ReliefA personal testimony

The family of 72-year-old Lucilo Gonzalez

Gonzalez, experienced Hurricane Mitch and

worked with CHF to recover immediately after

the storm. Mr. Gonzalez is 72 years old and

married with 14 children, 23 grandchildren, and

6 great-grandchildren. Mr. Gonzalez lives in Las

Brisas del Río Grande, Choluteca, Honduras.

Shelter before assistance, Building a temporary shelter in Honduras

In communities where CHF International wasalready on the ground, we reacted immediatelyto provide food and shelter assistance incooperation with other nongovernmentalorganizations (NGOs) and local communityorganizations. With funding from USAID,augmented by funds raised privately andleveraged from donors and participants, CHFInternational achieved the following results.Thesuccess of our physical reconstruction efforts

are readily apparent, but some of the mostimportant results, such as long-term capacitybuilding, are less easily quantified.

Strong partnerships were vital to achievesuccess in rapid reconstruction. Throughoutthe process, CHF International worked withlocal and, in some cases, internationalorganizations to increase the resilience ofaffected communities.

CHF International required matchcontributions to further engage residents andto increase perceived value of services. Localpartner organizations quickly saw theadvantages of this. We tracked sweat equity,land donated, materials, and othercommunity contributions. For all projects,CHF International leveraged additional,private-sector cash and in-kind contributionsworth $15 million.

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2 CHF INTERNATIONAL’S RESPONSE

* Includes totals for congressional supplemental act only** Based on overall impact reports from field.

Number of People with Improved**

Community infrastructure 872,000Environment 365,000Housing 52,000Local government services 1,000,000

Training and Capacity Building

Trained partner organizations and staff 3,750

Communities better prepared for emergencies 500

Dominican Republic

New homes 2300

Repairs and

improvements

to houses 1500

Water and sanitation

hookups 700

Partners and staff

trained 200

El Salvador

People trained for

emergencies 3,000

Municipalities systems

improved 20

New homes 500

Repairs and

improvements

projects 51

schools 83

Watershed areas

conserved 38

Areas reforested

or cultivated

(in hectars) 2,640

Emergency centers

established 5

Guatemala

Community members

assisted 70,000

Repairs and

improvements

bridges 22

Kilometers

of roads

rehabilitated 100

Haiti

Schools rebuilt or

repaired 23

Water and sanitation

improvements

Kilometers

of pipes 20

Honduras

New homes built or

improved 4,500

New (starter) homes

built 635

Emergency shelters

built 3,300

Sanitation

improvements 550

Risk mitigation projects

completed 32

Local governments,

communities and

partners trained 55

Nicaragua

Repairs and

improvements

reservoirs 48

meters of

retaining walls 440

communication

systems 20

Additional mitigation

projects 38

Tree seedlings

planted 15,000

Areas protected

or rehabilitated

(in hectars) 130

Partners trained 120

Physical Reconstruction - Country Level Impact RECONSTRUCTION TOTALS*

Institutional Capacity Building of Democratic OrganizationsWe measure our success not only by physicalreconstruction or high-quality programadministration, but also by the involvement,growth, and satisfaction of participants. CHFInternational always works through localpartner organizations, and we have foundthat this is critical in making certain that theassistance is funneled directly to the peoplewho need it most.

As a post-hurricane capacity buildingevaluation by Kimberly Maynard reported:

“While the supplemental fundingspecifically financed housingreconstruction and other infrastructurerehabilitation, it accomplished muchmore than that by increasing self-reliance, introducing new skills,building relationships, and preparingfor future disasters.

CHF International’s inclusivereconstruction programming, which incorporated livelihood,infrastructure, and disaster mitigationconsiderations, created a smoother

transition from disaster todevelopment.

The holistic approach CHF International used to implement itsprograms—incorporating governments,farmers, and communities—improvedrelationships and inter-group interaction.

CHF International’s assisted self-help methodology encouraged apositive attitude towards self-improvement and discourageddependency and a welfare mindset.

The participatory manner inwhich CHF International conducted its programs created a sense ofownership, community, responsibility,and commitment.”

Preparing for Future Disasters An important consideration for anyreconstruction program is preparation forfuture disasters. In addition to rebuildingdamaged infrastructure and/or upgrading itsresistance, “disaster mitigation” entailstraining people to be prepared. Puttingemergency response systems in place canreduce future spending on rescue andresponse efforts.

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3 OVERVIEW OF ACTIVITIES

building permanent homes in the Dominican Republic

CHF International worked to raiseawareness and educate thousands offarmers and community leaders to bettermanage natural resources so that futuredisasters could cause less damage.Communities built terraces to slow waterand planted trees to reforest areas and stoperosion. Together, we built at least 48 waterreservoirs in various communities, andimplemented many micro-irrigation projects.

We formed community committees andtrained them to assess their highestcommunity needs, develop proposals for financing, and complete priorityinfrastructure projects such as new roads, levees, and bridges.

We worked with municipalities andcommunity leaders to prepare early alertsystems and disaster response action plans.This included informing residents abouthow to prepare for evacuations, andwhere to find a “safe area.” We alsooversaw the installation of radio systems to help in quick response.

We trained families to reduce theirvulnerability to disasters through naturalresource preservation projects. CHFInternational promoted water conservationand protective storage practices.

Examples of disaster preparation projects:

• Project Impact, funded by the FederalEmergency Management Agency(FEMA), helped communities in ElSalvador, Honduras, and Nicaraguaincrease resilience to disasters andprepare for emergency situations. Riskmitigation training helped communitycommittees prioritize projects. Impactalso funded model programs.

• The United States Department ofAgriculture (USDA) provided fundingfor watershed management and waterand soil conservation efforts.

• The Mitigation Initiative forCommunities and Municipalities(MICAM) in El Salvador, Guatemala,and Honduras (funded by USAID’sOffice of Foreign Disaster Assistance)reduced vulnerability for more than100,000 people.

• Funding from the Organization ofAmerican States (OAS) helped establishan early alert program.

Overall, the projects made a differencethrough direct infrastructure andagricultural improvements, but also throughparticipation. The majority of peopleworking on the projects were volunteercommunity members.

Reconstruction: StrengtheningCommunities through Housing In Honduras, the Dominican Republic, andEl Salvador, CHF International built 9,500permanent houses. We did this through anassisted self-help methodology with use ofappropriate technology. We providedconstruction supervision and quality controland ensured that the designs werehurricane, flood, and earthquake resistant.

Appropriate Technology in EmergencyTemporary SheltersWhile intended as a bridge to permanenthousing, CHF International’s experienceshows that temporary shelters are oftenused much longer than originally intended. Even after permanent shelters areconstructed, large or extended familiesdon’t have the resources to rebuild spacefor everyone immediately. Families may usethe shelters for animals or storage.Extended use or reuse of materials demandsthat the frame be stable.

In Honduras, CHF International teamsdesigned a shelter frame that could be builtin four hours but that could last up to tenyears. Leaders assembled core teams ofseven people each, and beneficiariescontributed several team members to workon each home. Staff and beneficiaries

5

developed simple yet functional andeffective construction techniques.

CHF International’s flexibility duringconstruction allowed for innovation inHonduras. When workers saw that stapleswould not keep the siding in place due tohigh winds, they sent children to gatherbottle caps and hammer them flat. Oncenailed to the frame, these bottle capsbecame “washers” with a large enoughsurface area to ensure the siding would stayin place, even in strong winds.

Sloping roofs were designed to allowventilation, keeping sub-tropical daytimetemperatures at bay. Screens covered theventilation areas to guard againstmosquitoes. Corrugated zinc roofs weresloped to keep out the rain. After theproject’s completion, CHF International staffrevisited the sites to document constructionsuccesses and designs to be altered infuture relief efforts.

We now have a design and procedure fortemporary shelters that is highly adaptableto a wide variety of circumstances. Theshelters have been adapted for victims ofhurricanes, earthquakes, and civil unrest inat least three countries.

Increased Resiliency for Existing Homesand New Permanent HomesWhile we believe that safe, affordablehousing is the foundation upon whichfamilies can build a livelihood, a healthycommunity, and a peaceful, democraticsociety, CHF International takes a broadview of housing. Experience has taught usthat we must work to improve the overallhabitat, and the community’s wholeenvironment. Wherever we built housing,each unit had sanitation services built in.Whether drinking water was in each homeor at a shared location nearby, every familyhad access to potable water.

CHF International’s permanent housesemployed the same “assisted self-helpmethodology” as the temporary ones, with family members contributing to the construction where possible. Permanent houses were constructed with sturdy blocks and roofs of localmaterials. The house designs allowed for progressive upgrading—building on one room at a time.

To strengthen homes in areas vulnerable to hurricanes, CHF International developed atechnical manual on hurricane-resistantconstruction practices, based on information

from the Organization of American States(OAS). The changes enable homes towithstand hurricane winds of up to 150 mph.

As an alternative to reconstruction throughgrants—which are important duringimmediate relief—CHF International’s homeimprovement loan programs offer technicalassistance provide low-income families withopportunity to improve, strengthen,reconstruct their houses, using existingtechnology and construction materials.During reconstruction, credit (such as homeimprovement lending) can be an importanttool to help families develop long-term self-sufficiency, especially when loans are repaidin a short period of time. Some lendingprograms were incorporated where feasible,but loans always have a tough timecompeting where grants are available.

Reaching Beyond Shelter to Infrastructure,Water, Sanitation, and Health As noted above, CHF International’s holisticapproach to community developmentmeans that we work to improve more thanjust housing. Our infrastructure programsreconstructed roads, bridges, schools,potable water systems, solid wastemanagement and sewer systems.

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1 2

In El Salvador, we built schools, clinics, and a numberof other infrastructure projects.In Guatemala, efforts focused on vehicular bridgeand road construction.In Haiti, the emphasis was on strengthening schoolsand improving potable water systems.In the Dominican Republic and Honduras, aselsewhere, water and sanitation efforts were critical.

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3

2

1

3 4

CHF International’s holistic approach tocommunity development means that we workto improve more than just housing. Ourinfrastructure programs reconstructed roads,bridges, schools, potable water systems, solidwaste management, sewer systems and more.

Developing CHF International’sUmbrella Grant ManagementMethodologyBased on lessons learned in the wake of Hurricanes Mitch and Georges, CHFInternational’s offices in Honduras, ElSalvador, and the Dominican Republicjointly developed an umbrella grantmanagement methodology.

The comprehensive manual, “A Guide to Developing and Implementing Umbrella Grant Management,” assists CHF International managers to develop and implement a transparent andcompetitive process for receiving sub-grantapplications. The process prompts managersto disburse funds to qualified applicantsrapidly and track them efficiently.

The manual helps CHF International fieldoffices understand their options whenmanaging numerous sub-grants withmultiple organizations simultaneously andhelps them apply common principles todiverse tools. The information provided isnot country or program specific, allowingfor easy adaptation. CHF Internationalensures that policies and procedures of thedonor agencies are met, while grantingfunds to local organizations to maximizeproject effectiveness.

8

Private CommunityInvestment Adapting program models to variousfunding and administrative arrangements,

CHF International incorporated a varietyof creative techniques to getbeneficiaries, local governments, centralgovernment agencies, and other donorsinvolved in projects – leveragingadditional resources to increase theimpact of U.S. government investments.

We had great success in mobilizing thedonation of construction materials,equipment, and labor from municipalitiesand beneficiaries. Even privateconstruction companies contracted tobuild works were required to involvecommunity labor.

CHF International leveraged an additional $15 million in contributions

9

Tropical Storm Mitch severely flogged thecommunity of El Pichiche, El Salvador. Atfirst, families built canopies with cane,wood, and scraps of roofing, or plasticsheeting to keep their valuables abovewater, but after three days of flooding, thesituation was worsening. The water levelcontinued to rise and people began todread something yet more serious. Therapid flooding soon reached life-threateninglevels. Some families began to evacuate thecommunity, but, aggravating the situation,other families did not recognize the dangerand refused to leave. The Governmenteventually forced them out, evacuatingthem to the neighboring town ofZacatecoluca, via an Air Force helicopter.

After the immediate flood danger hadpassed, the families began to return. Theyfound their houses damaged and most oftheir livestock drowned. Contaminatedwater remained in El Pichiche for more than a month.

As one community member said, “DuringTropical Storm Mitch, nobody in thecommunity was prepared for a disaster of such magnitude.”

Several families were ready to leave thecommunity, but when they saw that

several service institutions, including CHF International, were arriving to helpthem, they decided to stay, organize, andredevelop El Pichiche. They confrontedproblems so that each day would be betterthan before.

They first formed a work committee thatwas entrusted to clean the place. They ridthe community of the drowned animals toavoid pollution and disease, then cleanedwells and streets.

CHF International, in conjunction withPartners of the Americas, conducteddisaster preparation training sessions toguide the communities in areas hardest hitby Tropical Storm Mitch. We worked withmunicipal governments to prepare andstrengthen local emergency preparednessplans. Disaster preparedness was just one ofmany components of USAID-funded MitchIntegrated Reconstruction Activity project.

Today, following the international support,El Pichiche community members haveprepared for future disasters. Followingdisaster preparedness training sessions, theyhave a well-organized emergencycommittee that knows what to do indisaster situations. They have elaborated adisaster risk map of the community, know

the critical disaster points in and around thecommunity, know where and how toaccomplish an effective evacuation, andknow who to call in case of emergency. The committee is multiplying theknowledge that they received by trainingothers and continuing to prepare for future disasters.

Some 3,000 people are now trained in disaster preparedness

Deciding to RebuildOne Community’s Story

CHF INTERNATIONAL PROJECT ANDPROJECT FUNDER

Post-Hurricane Georges HousingReconstruction Program - USAID

TIMELINE

October 1999 - December 2001

BUDGET

Post-Hurricane Georges HousingReconstruction $8,267,000

Cost sharing from municipalities,government agencies, beneficiaries

$5,300.000*

* This is some $3 million more than whatwas required under contract.

ACCOMPLISHMENTS

CHF International accomplished thefollowing under its Hurricane Georgesactivity in the Dominican Republic.

• Made 50 sub-awards to 13local partner organizations tobuild houses at 48 projectsites through out the country

• Conducted seven trainingworkshops for staff of thelocal partners on constructionand supervision methods

• Prepared six technical assistancemanuals for the local partners

• repaired or retrofitted 1,541 houses through partner organizations

• Built 1,219 new in-fill housesand 745 core houses in newurbanizations through partner organizations

• Constructed directly 284 houses in new urban settlements

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4 COUNTRY–BY–COUNTRY PROFILES

Country Profile

Dominican Republic

Hurricane Georges cut a wide swath across the Dominican

Republic, causing widespread damage estimated at $2

billion. The agricultural sector was severely affected, as

were basic infrastructure (roads, bridges, water and

electrical systems) and housing. An estimated 48,000

homes were destroyed and another 123,000 homes were

in need of major repairs and/or rehabilitation.

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CHF INTERNATIONAL PROJECT ANDPROJECT FUNDER

Mitch Integrated ReconstructionActivity - USAID

Watershed management project - USDA

Project impact project - FEMA

Municipal planning and communitydevelopment project - HUD

TIMELINE

Mitch Integrated Reconstruction Activity. June 1999 - July 2001

Watershed management. May 2000 - December 2001

Project impact. December 2000 -December 2001

Municipal plan/communitydevelopment. September 2000 -December 2001

BUDGET

Mitch Integrated ReconstructionActivity $11,304,000Watershed management $169,362Project impact $250,000Municipal plan/communitydevelopment $575,000

Cost sharing from municipalities,government agencies, beneficiaries Mitch Integrated ReconstructionActivity $3,329,567*Watershed management $111,983*

Total $15,627,929

* 976,000 more than required** 91,000 more than required

ACCOMPLISHMENTS

CHF International accomplished thefollowing under its Mitch-relatedactivities in El Salvador in over 200communities in 12 municipalities

• Home construction: in 30communities, built 500 housesthat mitigate future naturaldisasters.

• Education Sector Activities:assessed over 250 schools fordamages, repaired, built, andequipped more than 80 schoolsto benefit approximately19,000 students.

• Farmer Assistance: helped5,500 small farmers toprepare land and accessfertilizer and seeds toincrease their agriculturalproduction and net income.

• Infrastructure Projects: repairedor constructed almost 50 smallinfrastructure projects.

• Reforestation: Trained 800individuals in reforestationtechniques, wooded 1,300acres, and establishedcommunity nurseries thatfurnished trees for additional700 acres.

• Disaster preparedness: trained50 municipal officials and 150trainers, helped more than100 communities establishemergency committees, andhelped develop emergencyplans.

• Agriculture and Environment:trained more than 400individuals in soil and waterconservation techniquesimproved some 40 microwatersheds. Managed waterflow in nearly 1000 acres of land(through irrigation ditches,installation of barriers such asrocks and live plants, andconstructing water filtration pits),

• Solid Waste Management:trained 3,751 people andimproved waste conditions in10 municipalities.

• Risk mitigation: trainedleaders, prepared communityplans, identified projects, andestablish Risk MitigationCommittees to help removeenvironmental hazards.

Country Profile

El Salvador

Tropical Storm Mitch generated intense rainfall in El Salvador.

It flooded approximately 161,000 acres and displaced over

55,000 people. It caused severe flooding and landslides that

destroyed or damaged physical and social infrastructure.

Damage to agriculture was significant.

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CHF INTERNATIONAL PROJECT ANDPROJECT FUNDER

Post-Mitch InfrastructureReconstruction Project - USAID

TIMELINE

January 2000 - September 2001

BUDGET

Post-Mitch InfrastructureReconstruction Project $2,000,000

Cost sharing from FONAPAZ, theGuatemalan National Peace Fund:

$645,000

ACCOMPLISHMENTS

CHF International accomplished thefollowing under its Hurricane MitchInfrastructure Reconstruction Projectin Guatemala • Constructed 21 vehicular

bridges • Installed a Bailey Bridge in

Santa Maria de Dolores• Repaired a Bailey Bridge

in Xalbal• Rehabilitated 100 kilometers

(60 miles) of road

Country Profile

Guatemala

Hurricane Mitch caused considerable damage in Guatemala.

The agricultural sector was severely impacted, as were basic

infrastructure such as water and electrical systems, roads, and

bridges. In the area where CHF International has been working

since 1995, the Ixcan, vehicular and pedestrian transport

corridors were particularly affected.

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Country Profile

Haiti

Hurricane Georges cut a wide swath across the

Haiti and the Eastern Caribbean causing

considerable destruction and damage to houses

and social infrastructure. In response, USAID

funded a Hurricane Georges Reconstruction and

Support Program to enhance the capacity of

selected communities to recover from the

economic impact of Hurricane Georges and to

adequately prepare for future natural disasters in

targeted areas of southern Haiti.

CHF INTERNATIONAL PROJECTAND PROJECT FUNDER

Strengthening Schools and RepairingPotable Water Systems in SouthernHaiti - USAID through PADF

TIMELINE

May 2000 - August 2001.

BUDGET

Sub-award from the PADF $337,300

Cost sharing from municipalities,government agencies, beneficiaries,and CHF International $70,882

ACCOMPLISHMENTS

CHF International • Conducted an assessment

of schools in the targetedcommunities to identify thosethat could be strengthened to serve as emergency shelters

• Carried out an assessment ofthe potable water systems inthe targeted communities todetermine what repairs arerequired

• Repaired or improved 22 schools• Constructed one new school

in Bois D’Orme• Repaired 20 kilometers or

12 miles of water lines

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Country Profile

Honduras

Hurricane Mitch smashed across Honduras destroying

more than 33,000 houses and damaging another

50,000. Its winds and flooding destroyed considerable

physical and social infrastructure and crops.

CHF INTERNATIONAL PROJECT AND PROJECTFUNDER

Post-Mitch Housing ReconstructionProgram - USAIDStarter Home Program - USAIDProject Impact Mitigation Activities -FEMA

TIMELINE

Post-Mitch Housing Reconstruction Program. October 1999 - December 2001

Starter Home Program. October 1999 - December 2001

Project Impact. July 2000 - December 2001

BUDGET

Post-Mitch Housing ReconstructionProgram $7,808,057Starter Home Program $1,774,513Project Impact Mitigation Activities

$250,000

Cost sharing from municipalities,government agencies, beneficiaries Post-Mitch Housing ReconstructionProgram $2,902,559Starter Home Program $687,432

ACCOMPLISHMENTS

CHF International accomplished the following under its Mitch related activities

Post-Mitch Housing ReconstructionProgram• Made sub-awards to 14 local

partner organizations to buildhouses

• Trained staff of 15 local partnerorganizations in constructionand supervision methods andmicro credit operations

• Trained staff of 15 municipallocal partner organizations inconstruction and supervisionmethods and micro creditoperations

• Built 4,617 housing solutionsthrough partner organizations

Starter Home Program• Built 635 starter houses• Generated 866 person-months

of employment

Project Impact Mitigation Activities• Organized and trained Project

Impact ManagementCommittees in threemunicipalities

• Helped committees conductcommunity meetings to prepare Action Plans

• Helped committees identify andprepare proposals for riskmitigation activities

• Implemented 32 risk mitigation activities

CHF INTERNATIONAL PROJECT AND PROJECT FUNDER

Watershed reclamation and hazard mitigation project - USDAImpact disaster mitigation activities - FEMA

TIMELINE

Watershed reclamation. May 2000 - December 2001

Project impact. December 2000 - December 2001

BUDGET

Watershed reclamation $525,958Project impact $250,000

Cost sharing from municipalities, government agencies,beneficiaries Watershed reclamation $47,562

ACCOMPLISHMENTS

CHF International accomplished the following under itsMitch-related activities in Nicaragua

Watershed reclamation and hazard mitigation project• Constructed 403 reservoirs• Constructed 253 small

• Trained 640 community leaders and concernedcitizens people in reservoir construction andmaintenance

• Trained 491 community leaders and small farmersin disaster preparedness

• Implemented soil and water conservation activitiesin 657 hectares (1,622 acres)

• Trained 1,556 people in watershed management• Reforested 101 hectares (249 acres) of land• Built 398 meters of terraced embankment along

river to prevent flooding • Dredged 450 meters of river to prevent flooding

Project impact disaster mitigation project• Worked in municipalities of Bluefields,

Chichigalpa, and Esteli• Trained 497 people in project impact methodology• Prepared action plans by each community• Identified and funded 18 environmental

mitigation projects • Updated two municipal emergency plans • Formed one community mitigation committee in

Bluefields

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Country Profile

Nicaragua

Hurricane Mitch affected Nicaragua for a period of ten days.

Torrential rains produced flooding and landslides. Human

lives were lost, corps destroyed, major environmental

damage occurred and the physical and social infrastructure

was damaged.

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• The way in which you respond andthe choices that you make inimmediate response will affectlong-term development. Thingsneed to happen at both thecommunity and the national level ina way that will prepare people tobuild their own futures. Individualinitiatives must be linked withlarger outcomes for mitigation andpreparedness over time.

• There is often a dearth oftechnological and institutionalinformation available to communitiespertaining to various risks andthreats. Often, risk maps that depictslopes prone to slides, wind, and soilerosion, or fault areas forearthquakes, do not exist.Community leaders must actively

pursue development of such tools tobe used widely at time of need.

• Production schedules must take intoaccount seasonal changes and otherfactors in the initial stages of relief.In Central America, for instance,erosion-preventing trenches shouldbe completed during the dry seasonso as not to interfere withagricultural activities.

EXAMPLES OF LESSONS APPL IED

CHF International has been identifying, learning, and applying practical lessons fordecades. We constantly monitor these to stay on the cutting edge of development.Here are a few examples of how CHF International’s experience from past relief andreconstruction efforts, as well as the lessons from CHF International’s recent experience,has enhanced our performance.

Individual initiatives must be linked with larger outcomes

1 | Ensure the real engagement of thepeople who are being helped.Community participation enhancesreconstruction in both the short term (oneto six months) and the long term (sixmonths to three years) and paves the wayfor longer-term community development.

2 | Show rapid results to preserve hope,but know that quick results do not haveto occur at the expense of high-qualityprograms. Rapid visible results canmotivate a community and encourageadditional community involvement.

3 | Transfer skills and build local capacity(for individuals, local governments,nongovernmental organizations and small-and micro- enterprise). This can occureffectively within a reconstruction context.Donors and assistance providers shouldcontinue to include disaster preparednesstraining in reconstruction activities.

4 | Develop long-term sustainabilitythrough credit, where applicable. Aidrecipients are capable of wealth creation.Therefore, aid programs shouldincorporate mechanisms assisting thatprocess and developing long-termsustainability. In future relief situations,USAID could consider subsidy and loan

components rather than strict grantprograms. A genuine opportunity to make“sustainable” credit programs wasmissed. $8 million was invested throughgrant programs. Had these been creditprograms, they could have had a widerimpact with a more sustainable outcome.Grant programs can also have anundesirable effect of eliminating interestin pre-existing loan programs.Interrelationship between grant and creditmechanisms and their impact on long-term sustainability should be considered.

5 | Continue mitigation work with long-term effects. When possible, temporarysolutions should be minimized. Includetraining activities, and allow time toinvolve local community in decision-making process. Long-term plans shouldbe developed to counter short-sightedrelief efforts (handouts) which tend tofoster dependency and offer littleincentive for the to the community tobecome stable and economically viable.

6 | Optimize local economic activityassociated with reconstruction to boosteconomic recovery. This could be doneby incorporating jobs creation intoconstruction programs, as one example.

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CONCLUSIONS AND RECOMMENDATIONSPRIMARY CONCLUSIONS

Key findings by an independent researcher

CHF International has a strong track record of

capacity building and follows good practices.

The technical knowledge that CHF International

passes on engages communities, helps them

develop priorities, and—through participation

and knowledge transfer to community leaders

—rebuilds lives and livelihoods.

•

•

RECOMMENDATIONS FOR NATIONAL AND LOCAL GOVERNMENTS

Actively engage the community. Thesuccess of reconstruction projects directlydepends on the level of communityparticipation in identifying and preparing anaction plan to address concerns. Allstakeholders must be actively involved fromthe beginning of planning to the end ofproject implementation.

Construct local alliances. Communitiesneed to forge alliances with both privateand public entities to raise the fundsnecessary to continue development efforts.The process of building local alliances forrisk mitigation requires time and dedication.It also requires patience and sensitivity onthe part of all involved.

Create national risk managementpolicies. The absence of national policiesfor risk management seriously impedesreconstruction efforts. Policies must allowfor coherent interventions at the local,community, and institutional levels.

Recognize the need to taper offprograms. Programs must provide plannedsupport to sustain program results over thelong term through national emergencymanagement policies and through nationalagencies and departmental emergency

committees made responsible for preparingand implementing emergency responses.

Introduce risk management into overallmunicipal development planning. It isnecessary to promote a change ofmethodologies and practices for localdevelopment efforts. Advocates shouldintroduce risk management into overalldevelopment planning for municipalities. At the very least, each municipality should have a risk mitigation plan for the short- and mid- term. When multipleprograms and institutions engage in thereconstruction process, we must promotegreater integration of goals and objectivesin municipal risk mitigation plans. Too oftenthere is a lack of institutional support in thelocal communities for the application of theprevailing norms and regulations.

Invest in risk prevention and mitigation.Continuous investment in risk preventionand mitigation, no matter how large it mayseem, always pales in comparison to thecosts necessary to rebuild after a disasterstrikes. Communities and municipalitiesmust be willing to commit human andfinancial resources prior to disaster andwork towards developing viablemechanisms of institutional support.

Through such efforts, the vulnerability forfamilies affected is significantly reduced.

Promote the construction of communitiesresistant to disasters. One of the greatestchallenges in disaster response is maintainingdevelopment momentum into the future. Tostrategically promote resistance to disasters,communities need to strengthenenvironmental management within theirmunicipalities by engaging technically-skilledhuman resources. Forming local alliances andinter-sectoral representation bodies can bestserve the coordination and managementfunctions. Community groups must maintaina strong linkage with the environmental unitsof the mayors’ offices. This can ensureeffective follow-up and continued riskmitigation activity within municipalities.

Develop culture for risk prevention andmitigation at all levels. A culture for riskprevention and mitigation needs to bedeveloped—beginning with education in theschools, which currently do not cover theseareas. Natural and other disasters vividlyshow the deficiencies of the current lack ofsuch culture. Local leaders and governmentaland non-governmental representatives mustpromote risk prevention and mitigation at alllevels and through all available media.

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Tel (301) 587-4700 • Fax (301) 587-7315mailbox@chfhq.org • www.chfhq.org