UNITED NATIONS INTER-AGENCY APPEAL FOR THE MALUKU CRISIS

UNITED NATIONS INTER-AGENCY APPEAL FOR THE MALUKU CRISIS 16 March 30 September 2000 Jakarta March 2000

TABLE OF CONTENTS EXECUTIVE SUMMARY...7 1. HUMANITARIAN CONTEXT...9 1.1 BACKGROUND...9 1.2 CURRENT SITUATION...10 1.2.1. Conflict areas...10 1.2.2. Areas where the situation has stabilized...11 1.2.3. Provinces outside Maluku affected by the conflict...11 1.3 SECURITY...12 1.4 COMMON ACTION PLAN (SHORT-TERM GOALS)...12 1.5 LONG-TERM GOALS...12 1.6 HUMANITARIAN PRINCIPLES...14 1.7 COORDINATION FRAMEWORK...14 2. PROFILE OF EMERGENCY NEEDS...15 2.1 OVERVIEW...15 2.2 INTERNALLY DISPLACED PERSONS...15 2.3 VULNERBALE POPULATION...16 2.4 HUMANITARIAN PRIORITIES...17 3. LONG-TERM NEEDS: BRIDGING RELIEF AND DEVELOPMENT...18 3.1 BRIDGING RELIEF, REHABILITATION AND DEVELOPMENT...18 3.2 LONG-TERM PRIORITIES...19 4. SECTOR STRATEGIES AND PROJECTS...20 4.1 FOOD AID AND FOOD DELIVERY...20 4.1.1. Current situation...20 4.1.2. Activity Report...20 4.1.3. Project for appeal...21 4.2 HEALTH AND NUTRITION...22 4.2.1 Current situation...22 4.2.2 Activity report...22 4.2.3 Projects for appeal...24 4.3 WATER AND SANITATION...40 4.3.1 Current situation...40 4.3.2 Activity update...40 4.3.3 Project for appeal...40 4.4 TEMPORARY SHELTER, OTHER RELIEF NEEDS AND LOGISTICS...42 4.4.1 Current situation...42 4.4.2 Activity report...42 4.4.3 Projects for appeal...43 2

4.5 RECONCILIATION AND PUBLIC AWARENESS...44 4.5.1 Current situation...44 4.5.2 Activity report...44 4.5.3 Projects for appeal...46 4.6 RECONSTRUCTION AND REHABILITATION...50 4.6.1 Current situation...50 4.6.2 Activity report...50 4.6.3 Projects for appeal...51 4.7 INCOME GENERATION/COMMUNITY RECOVERY..53 4.7.1 Current situation...53 4.7.2 Activity report...53 4.7.3 Projects for appeal...53 4.8 CAPACITY BUILDING, COORDINATION AND MANAGEMENT...55 4.8.1 Current situation...55 4.8.2 Activity report...55 4.8.3 Projects for appeal...55 3

Total Funding Requirements for the 2000 United Nations Inter-agency Appeal for the Maluku Crisis By Sector and Appealing Agency SECTORS REQUIREMENTS (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 4

United Nations Inter-agency Appeal for the Maluku Crisis Listing of Project Activities - by Appealing Organisation March 2000 - September 2000 WORLD FOOD PROGRAMME A.1 Emergency Food Assistance 5,800,000 TOTAL 5,800,000 WORLD HEALTH ORGANISATION B.1 Ensuring minimum standards in health services delivery 217,300 B.2 Emergency Environmental Health 79,500 B.3 Support to health facilities 487,600 B.4 Emergency maternal and child health and nutrition 153,700 B.5 Disease control 455,800 B.6 Health as a bridge for peace 77,380 B.7 Epidemiological surveillance and epidemic preparedness 328,600 B.8 Strengthening national capacity 355,100 TOTAL 2,154,980 UNITED NATIONS CHILDREN'S FUND B.9 Nutrition for children 788,000 B.10 Measles Vaccination 250,000 C.1 Water and Sanitation Needs 300,000 E.2 Peace Building through Empowerment of Women and support to School Children and Youth 154,000 H.3 Project Management 260,000 TOTAL 1,752,000 UNITED NATIONS DEVELOPMENT PROGRAMME E.1 Reconciliation Programme 420,000 F.1 Physical Reconstruction and Creating an Enabling Environment 1,600,000 G.1 Income Generation and Job Creation Activities 681,000 H.1 Capacity Building of Key Institutions 96,800 H.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 5

United Nations Inter-agency Appeal for the Maluku Crisis Listing of Project Activities by Sector March 2000 September 2000 Sector/Activity Appealing Organisation Requirement US$ Food Aid and Food Delivery A.1 Emergency Food Assistance WFP 5,800,000 TOTAL 5,800,000 Health and Nutrition B.1 Ensuring minimum standards in health services delivery WHO 217,300 B.2 Emergency Environmental Health WHO 79,500 B.3 Support to health facilities WHO 487,600 B.4 Emergency maternal and child health and nutrition WHO 153,700 B.5 Disease control WHO 455,800 B.6 Health as a bridge for peace WHO 77,380 B.7 Epidemiological surveillance and epidemic WHO preparedness 328,600 B.8 Strengthening national capacity WHO 355,100 B.9 Nutrition for Children UNICEF 788,000 B.10 Measles vaccination UNICEF 250,000 TOTAL 3,192,980 Water and Sanitation C.1 Water and Sanitation needs UNICEF 300,000 TOTAL 300,000 Temporary Shelter, other Relief Needs and Logistics D.1 Temporary shelter, camp needs and logistics Office of the RC 1,300,000 (agency to be determined) TOTAL 1,300,000 Reconciliation and Public Awareness E.1 Reconciliation Programme UNDP 420,000 E.2 Peace Building through Empowerment of Women and support to School Children and youth UNICEF 154,000 TOTAL 574,000 6

Reconstruction and Rehabilitation F.1 Physical Reconstruction and Creating an Enabling Environment UNDP 1,600,000 TOTAL 1,600,000 Income Generation/Community Recovery G.1 Income Generation and Job Creation Activities UNDP 681,000 TOTAL 681,000 Capacity Building, Coordination and Management H.1 Capacity Building of Key Institutions UNDP 96,800 H.2 Coordination and support by UN, UN Resource Centre UNDP/OCHA 316,800 H.3 Project Management UNICEF 260,000 TOTAL 673,600 7

EXECUTIVE SUMMARY During 1999 and into the first quarter of this year, the two provinces of Maluku and North Maluku have known unprecedented conflict, destruction and human suffering. Starting in Ambon in January 1999, the conflict escalated at various periods throughout the year, spreading to other parts of Maluku. The worst clashes occurred at the end of December and into January 2000, at the end of which the authorities reported more than 2,500 deaths, 18,300 houses burned or destroyed as well as 1,100 houses of worship and other public buildings. This widespread conflict has led to the largest recorded population displacement in Indonesian history. Some 440,000 persons have escaped or been evacuated within Maluku, North Maluku or to the neighbouring provinces in Sulawesi and smaller numbers to Irian Jaya and elsewhere in Indonesia. Thus more than 20% of the population of Maluku has been displaced. The slow-down or even 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 requested international assistance. A three-pronged strategy of security, reconciliation and prosperity, including relief, rehabilitation and reconstruction, was presented by the Coordinating Minister for People s Welfare and Poverty Alleviation at a meeting hosted at the United Nations premises in Jakarta. 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-scale reconstruction and economic recovery programmes. As the full extent of the destruction was not known at the time of the mission, the total cost of a full recovery programme in the two provinces is likely to be much larger. More immediate requirements were estimated at some $ 26 Million, with important emphasis on emergency relief assistance. During the month of February and into March, three international NGOs have expanded their assistance. The World Food Programme (WFP) has approved an extended emergency project for Indonesia, which will also include IDPs. It has also concluded agreements with Action contre la Faim (AcF) and World Vision International (WVI) for distribution of rice 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 in parts of the largest island of Halmahera. Assessment of humanitarian needs has not been possible in these areas, due to the security situation. This appeal for urgent and strengthened international support to meet the needs in Maluku is therefore issued without awaiting full and detailed knowledge of the situation in all parts of the two provinces. The Government of Indonesia, under difficult economic circumstances, has continued to provide some assistance to IDPs throughout 1999. This has included sending emergency medical staff to replace those who have escaped. In spite of this, the average number of doctors in hospitals and health centres in North Maluku is less than 50% of the pre-conflict period, and in some areas there is no remaining medical staff. Funds in the current budget year, which ends on 31 March, have already been depleted, and in some cases staff have not been paid for three months. Partly as a reflection of national decentralisation policy, there is at present no provision in the budget for the country s provinces, including Maluku and North Maluku, for continued relief assistance such as for the internally displaced persons. Even if some emergency funds are allocated, the pressure on the 8

provincial services will continue to increase in the immediate future, further necessitating strengthened international support. Funds sought in this appeal are some $14 Million, considering that the basic staple food of rice has been allocated, in February, within an extended WFP project for Indonesia, and that NGOs have been able to expand their activities either through advancing from existing funds or with additional funding. 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 is limited. The situation in Maluku is characterised by a total polarisation of the two main Muslim and Christian communities. There is much bitterness and vengefulness. Women and children have been particularly effected by traumatic experiences. The proposed programme is conceived as a support to the comprehensive approach by the authorities. In addition to basic life-saving relief supplies and services, it therefore includes support for reconciliation as well as rehabilitation and reconstruction efforts, the latter initially at a very modest scale. The programme will be implemented through a coordination mechanism established with the Government of Indonesia through its disaster relief office, BakornasPB. Through BakornasPB, relief assistance will also be coordinated with the Indonesian Red Cross Society, at the Jakarta level as well as in the respective provinces. For each of the projects outlined in the appeal, project documentation is available with the respective agencies. Funding is therefore urgently sought to all aspects of the programmes. Donors who wish to provide funds for specific projects are encouraged to contribute directly to the appealing agency and are also encouraged to continue supporting ongoing and expanding NGO programmes. The Government has requested the UN to coordinate international assistance to the Maluku Crisis, and it is therefore essential that the Office of the Resident Coordinator in Jakarta be kept fully informed to ensure that all priority needs are met and to avoid overlapping. Given the uncertainty of the current situation, it is also appreciated if some donors would provide unearmarked funds to be used according to priority requirements, in agreement with the respective donor. The developments in Maluku are of vital importance for Indonesia as a whole. Continued and generous international support for the proposed programme is therefore of utmost importance. 9

1. HUMANITARIAN CONTEXT 1.1 BACKGROUND In Maluku, Muslim and Christian communities have traditionally coexisted in adjoining villages and earned themselves a reputation for religious tolerance. During the steady development period of the 1970s and 1980s the welfare of people significantly increased, yet with an uncertain sense of stability and some social unrest, religious conflict and social jealousy. Since the independence of Indonesia, the population of Maluku has significantly increased, especially through the arrival of thousands of migrants from other parts of the country such as Java and Sulawesi. These predominantly Muslim migrants are ethnically different from the native Ambonese, and their arrival is believed to have created tensions between the communities. The economic crisis of 1997-1998 exacerbated 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 than newcomers. These real or perceived gaps further sharpened the tension between the different communities 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 large number of casualties, the displacement of some 15,000 people within the island of Ambon and an exodus of thousands of people to neighbouring provinces, in particular South-East Sulawesi. Countless houses and places of religious worship were destroyed. Important troop reinforcements were flown in to restore law and order and stabilize the situation. Emergency and rehabilitation activities 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 the displacement 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 tensions and the revengeful destruction of places of worship led to a second outbreak of violence in mid-july 1999, 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 population is more than 70% Muslim and where local politics, upcoming elections in June 2000 as well as rivalries between modern and traditional Muslims have worsened the ethnic and religious divide. In the 1970s, the population from a small island in North Maluku, threatened by a volcano eruption had been resettled to North Halmahera. The discovery of gold in this area, and the creation of a new 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 Ternate Island, where the capital of the then North Maluku District, now the capital of North Maluku Province, is situated. In late December, violence gripped Ambon for the third time and quickly spread to the large neighbouring islands of Seram and Buru, and later also to two smaller islands near Ambon. The TNI took over responsibility from the police (polri) for restoring security and instituted naval patrols around 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 people fled from their homes, swelling the numbers of IDPs. 10

A much wider conflict also erupted in North Maluku, where hundreds of people have been killed and approximately 100,000 people were displaced. Tens of thousands (mostly Muslims) moved to Ternate 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 and neighbouring islands of North Maluku. New clashes have been reported in East Seram as well, on which little information is available as yet. Humanitarian access and assistance to the population in conflict areas are urgently needed. Since the beginning of the conflict in January 1999, over 2,500 people have been killed and at least 3,400 injured 1. 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 the provinces 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, destruction and displacement, the Government of Indonesia approached the UN Resident Coordinator for his assistance in bringing the needs for assistance to the attention of the international community. A presentation of government policy was made at the UN premises in Jakarta, which was followed by a joint assessment mission on 22-27 January, to Maluku and to North Maluku. The findings of the mission 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 has reached an agreement with two of these agencies concerning the distribution of rice, initially for some 100,000 beneficiaries with the first distribution foreseen at the end of March. Although the situation and the humanitarian needs in other parts notably of North Maluku remains unclear, this appeal should enable the United Nations agencies to start a comprehensive assistance programme in support of national efforts in both provinces and to initiate action also in the parts of Sulawesi affected by the exodus from Maluku. 1.2 CURRENT SITUATION The situation varies significantly from area to area and can be classified into three main categories requiring 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 or impossible 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 a priority. 1 Reports of the governors of Maluku and North Maluku as at 25/1 and 24/1 respectively, the number of registered deaths since the beginning of the conflict stood at 2,555, not including those missing, and injured 3,372. A total number of 18,311 houses/homes had been damaged or burned and altogether 1,086 public buildings and facilities, including houses of worship. With the ongoing conflict and the limited information about many areas of the provinces, the number of casualties and the extent of destruction is likely to be higher. 11

This is the case of Halmahera Island (in particular the sub-districts of Kao, Tobelo and Galela), the island of Bacan and of a number of other islands in North Maluku province. A similar situation prevails in some parts of Maluku Province, such as Seram, where access to a number of communities 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 a semblance of normalcy been restored. Public services have resumed to a certain extent and the population is reorganizing itself. However, the situation is still highly volatile and there are no guarantees that further clashes will not take place. On Ambon Island, residency areas are polarized and the conflicting parties are entirely separated along religious lines. In some areas, life has entered a superficial quasi-normality for those who have 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 two entities and not fully operational. The governor's office and the military hospital can be reached from both communities. A similar situation prevails in Masohi on Seram Island (capital of Central Maluku District), following the events starting 27 December 1999. In Tual, however (Southeast Maluku District), the situation is more secure, communities less polarized and life has regained some normalcy. IDPs themselves have been able to develop coping mechanisms and regain a degree of self-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 host population. Given the polarisation of the population, the majority of the IDPs in North Sulawesi and in South Sulawesi are unlikely to return to their respective places of origin. The priorities in those areas are to assist the IDPs remaining in camps and to undertake activities to facilitate integration and economic sustanance. Some NGOs are initiating or expanding activities in these areas, and a joint assessment with the Government is foreseen. In North Sulawesi, the majority of the IDPs lives in camps and need assistance. They are natives from North Maluku. Some, such as those from Halmahera Island, may return to their places of origin 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 from Buton to Maluku. The majority lives in host families (often relatives) and represents an economic burden for inidviduals and for the community. The IDPs constitute a significant proportion of the local population and as a result, the capacities of the provincial authorities have been stretched. It is likely that most of them wish to resettle in Buton, but their economic integration will not be easy in an area which has few resources. There are already some indications that social tensions against other (trans)migrants from Java and Bali are increasing. 12

1.3 SECURITY Following the recent strong unrest in Ambon City, Central Maluku and North Maluku, the security situation is very volatile. Isolated clashes still occur around the archipelago. The Government of Indonesia 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 Ambon Island, with almost 6,000 troops, but less so in the rest of Maluku. In North Maluku, the increased presence 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 humanitarian community and international agencies has been reported. The UN has twice evacuated staff from Ambon as a precautionary measure. In both Maluku and North Maluku provinces, only humanitarian and emergency operations are currently feasible. Although the situation is tense, there is no hostility towards international agencies, who have been transparent and impartial in their action. The security of any humanitarian operation partly depends on the full understanding of humanitarian work by local authorities, especially TNI and Polri, and for the 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 vulnerable populations through the emergency phase while simultaneously supporting rehabilitation and reconstruction 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 and development by creating dependency. As part of an effort to institute best practices, they will follow the guidelines set out in the SPHERE handbook, which was drafted by an inter-agency working group committed to high-quality humanitarian programming. To ensure that emergency programmes do not discourage reconstruction and self-sustaining initiatives, agencies will develop indicators 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 population through an emergency stage while preparing for larger scale reconstruction and development. 13

All concerned governmental ministries and institutions, under the auspices of BakornasPB, the national disaster response coordinating committee, have drawn up a three-pronged approach aimed at achieving the goals of security, reconciliation and prosperity. Consultation were held with the Office of the UN Resident Coordinator, and the President and the Vice-President approved this approach. On 13 January it was then presented to the international community by the Coordinating Minister for People s Welfare and Poverty Alleviation, at a meeting hosted by the Resident Coordinator. THREE PRONGED APPROACH RECONCILIATION Maluku Crisis 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 provincial and 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 14

The activities in all three areas are to take into account the views and concerns of the Maluku population, encouraged and supported by local authorities and be worked out in cooperation with community representatives. The international community was invited, through the United Nations, to support this programme and to provide complementary assistance. 1.6 HUMANITARIAN PRINCIPLES Humanitarian agencies are committed to respect at all times the humanitarian principles of neutrality, impartiality, transparency and accountability. They will endeavour to carry out their activities in such a way as to contribute to reconciliation between the conflicting parties. They will work with local authorities, institutions and networks to ensure that the basic needs of the internally displaced persons and other vulnerable groups are met and to help them overcome their trauma and regain their sense of dignity. They will give priority to training and capacity-building both of coordinating and implementing local structures, including local NGOs. 1.7 COORDINATION FRAMEWORK Agencies are committed to coordinate their programming and operations through a coordination structure under the leadership of the UN Resident Coordinator for Indonesia. Coordination mechanisms at Jakarta level will be supported by OCHA through a strengthened Humanitarian Coordination Unit, attached to the Coordinator. This unit will ensure coordination with the government, 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 needs assessments, while WFP will ensure the lead role in the food sector. UNDP will play a lead role for reconciliation, rehabilitation and reconstruction support and capacity-building. For some sectors, notably temporary shelter and camp management, the international support mechanism still has to be clarified. Coordination offices, or UN Resource Centres, will be opened in Ambon and Ternate. Their role will be to facilitate contacts between humanitarian agencies and local authorities, to ensure that there are no gaps nor overlaps in the provision of assistance, to identify the measures needed to bridge humanitarian aid and development and to promote humanitarian principles. 15

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 IDPs on Ambon Island in the sectors of food and non-food relief items as well as health and water and sanitation. In North Halmahera, World Vision Indonesia (WVI) supported community development projects, which had to be abandoned at the end of the year. UNICEF maintained its office throughout the period of unrest, primarily with national staff. In South-East Sulawesi, OXFAM and MSF-H provided limited assistance. These activities significantly enhanced the credibility of humanitarian agencies. Following the massive outbreak of violence in late December 1999, the Government of Indonesia and international agencies carried out a Joint Assessment Mission between 22 and 27 January in both Maluku and North Maluku. In addition, the UN Resident Coordinator led a diplomatic mission to Ambon with the participation of four embassies and three UN agencies. Since then, NGOs have carried 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 made possible by the Indonesian Navy. These assessments have provided a better appraisal of the situation primarily in areas, where security is stabilized. The situation, especially in North Maluku is critical, as thousands of people face shortages of food and medical care, and fear intimidation and physical and mental abuse. Little remains of medical services, equipment or supplies to meet these needs. While further technical assessments are still needed in areas with continuing conflicts, an immediate response has to be provided. The Government of Indonesia has provided considerable aid to IDPs in Maluku, as part of its nation-wide assistance programme. The programme has included rice and cash for other basic needs, although actual implementation was less regular than foreseen. Assistance has also included 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 found shelter with relatives and friends, or, in the case of the vast majority, occupied public buildings such as sports facilities, military facilities or places of worship where they have been living in precarious conditions, 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 conflict in the area where they are located and on their living arrangements. Some IDPs living with host families 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 mechanisms than IDPs living in areas still gripped by conflict or those living in crowded and unhygienic camp conditions. The latter need humanitarian assistance in sectors ranging from food, nutrition, water and sanitation to shelter, until a medium to long term solution can be found. 16

The numbers of IDPs provided below are based on the latest information obtained by UN agencies or by NGOs. They include some 29,000 IDPs in South-East Maluku District (Kai Islands), who from February are no longer deemed to be in need of food aid, as well as those who have escaped to Sulawesi. With a total number of IDPs of some 440,000, more than 20% of the population of the two provinces of Maluku has been displaced. Province Location Main Areas of Origin North Maluku Ternate Island North Halmahera and Ternate No. of IDPs 72,000 2 Cumulative total/province Other islands Halmahera 76,400 3 148,400 Maluku Ambon Island Ambon Island, 95,000 Buru and other islands in Central Maluku District Seram Island Seram 45,000 Haruku Island Haruku 6,100 Buru Island Buru 3,400 Saparua Island Saparua 2,700 South East Maluku District South-East Maluku District 29,000 181,200 4 North Sulawesi Manado, Bitung Ternate, North 17,000 5 Island Halmahera South-East Sulawesi Buton and Muna Ambon Island 96,900 6 South Sulawesi 430 114,330 Total 443,930 2.3 VULNERABLE POPULATION To varying degrees, much of the population in the areas affected by the conflict has become more vulnerable as a result of the slowdown of economic activity as well as the disruption of supply mechanisms, which has caused shortages of basic goods and price increases. Economic activities have either been severely curtailed or come to a stand-still with factories closing, harvesting disrupted and education interrupted. Municipal authorities have no funds to meet escalating demands such as for sanitation and reconstruction activities. The vulnerable categories of the population, in particular pregnant and lactating women, children and the elderly, are the first to suffer from the consequences of violence. In addition to assistance from the central authorities and from international agencies, intra-communal solidarity is their only coping mechanism. While the conflict has increased the demand for medical services, the departure of qualified medical staff 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 2000 3 WVI rough estimate based on latest visit on 6-8 February 2000 4 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 aid 5 Based on latest visit by AcF in February 2000 6 Figure obtained from Depsos 17

the point of total interruption of services. Where possible, this has been partially compensated with the arrival of military or civilian health staff from elsewhere in Indonesia. Deliveries of medical material and medicines, aggravated by lootings and burnings, have been interrupted in a number of areas. 2.4 HUMANITARIAN PRIORITIES International agencies, primarily NGOs supported by UN agencies, ICRC and bilateral donors, have provided 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/ UN Assessment Mission at the end of January 2000, AcF, MSF-B and WVI have expanded their programmes in both Central Maluku District and in North Maluku. WFP has initiated agreements with AcF and WVI for extended rice distribution, following the approval in February of its Protracted Relief and Recovery Operation (PRRO). The first distribution to some 100,000 IDPs in North Maluku of rice donated by the international community will take place 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 and sanitation, temporary shelter and other non-food relief deliveries to the IDPs living in camps, as well as medical and nutritional assistance to vulnerable categories of the population. Support will be provided to emergency repairs and initial rehabilitation of public infrastructure, in particular where necessary for the delivery of essential services. Where necessary, agencies will assist host families whose prolonged support to IDPs has put them in a vulnerable situation. Training and capacity building for emergency planning and management will be organised for central and local authorities, as well as local NGOs involved in the provision of humanitarian assistance. Reintegration assistance, including measures to restore food security and generate income, will be provided to IDPs returning home or resettling in a new area. Ongoing and further measures to promote the dialogue between the communities and communal activities rehabilitation activities will also be supported. 18

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 of social disruption by, for example reinforcing existing local capacities and solutions, and supporting reconciliatory measures. Reconstruction activities are usually initiated in relation to normalisation of conflict 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 the other security. Based on these general principles, some of the following interventions can be undertaken in Maluku in 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 foster or create an enabling environment for dialogue, negotiations or de-escalation of the conflict between the primary and secondary parties involved in the conflict 7. Security reinforcements: these types of interventions aim mainly to improve the protection of individuals and vulnerable groups 8. These interventions are structured along two dimensions. The first is the culture of civil society and the conviction that conflicts shall be solved by peaceful means and that peace is a natural part of human 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. First that conflicts shall be solved by peaceful means and through institutions, and second that the state has 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 and reform. Apart from the above mentioned areas, support to activities that aim at improving the knowledge pertaining to the roots of conflicts should be undertaken. Such activities, which are also applicable in the Maluku Crisis, include research, education and consultations, and the further developing of methods and resources for improved efficiency and competency in conflict management and reconciliation. 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 analysis 8 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 and child soldiers, control of weapons/rebels reform of the security sector, transformation to a democratic society through reform and reconstruction of the central security and military societal functions and institutions 19

3.2 LONG-TERM PRIORITIES For sustainable development to take place, rule of law must prevail and thus in the case of Maluku be restored. The United Nations and its development partners therefore support the government s policy that building stronger capacities for good governance is central to Indonesia's recovery and continued reform efforts. The Government of Indonesia desires cooperation and international assistance for the reconciliation, reconstruction and rehabilitation phases of assistance in Maluku, and has requested that support pertaining for sustainable development be provided by the international community and be coordinated by the United Nations. As has been described in section 1.5 the overall objective of the government, after reestablishing a secure environment, is to enable reconciliation between opposing parties in Maluku and to restart a concerted effort to bring about prosperity. The overall long-term objectives of the UN agencies are therefore: Support broad-based participation of civil society in the reconciliation process and local ownership; Facilitate initial and effective rehabilitation in the Maluku and North Maluku provinces by contributing 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 generating activities; Provide key institutions in government and civil society with appropriate and timely support including institutional support towards longer term capacity building assistance for key institutions such as BakornasPB in Jakarta and SatkorlakPB in Ambon and in Ternate, and possibly also in South-East Sulawesi. The programming and implementation of these objectives would include the mobilisation of resources required from the international community, and ensuring effective coordination between all partners involved in the above process, the government authorities, national and international NGOs, UN agencies and bilateral agencies. 20

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 greatly disrupted as a consequence of civil unrest and general insecurity. The displacement of entire communities has also disrupted normal wage earning and food production activities. The situation is both exacerbated and prolonged due to the polarization of communities from both sides of the conflict. Until such time that the conflicts are resolved and the situation returns to normal, the provision of emergency food rations will remain essential in maintaining the nutritional wellbeing of IDPs. Those IDPs living in North Maluku will remain particularly vulnerable until such time that relief agencies have established themselves and begin performing food distributions. In terms of targeting food assistance, priority will be given to the areas with a large number of IDPs - currently estimated at 298,000 for whom WFP in February allocated some 21,500 MT of rice and 800 MT of blended food. 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 Ambon Island and other parts of Maluku Province since early 1999. WFP has supported AcF activities by providing all the rice needed for their feeding programmes, as well as blended food for the first critical months. AcF has resourced other food and non-food items, as well as funds for operational costs from a number of donors. WFP and donors continue to support AcF operations that serve 80,000 IDPs in the area; with total current support valued at US$ 3.2 million, including UNICEF s Vitadele. 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 and maintenance of basic nutritional and sanitary requirements, and to provide training of health workers 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 in North Maluku from March 2000 in two locations (50,000 IDPs in Ternate and Jailolo), with the objective 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 required to identify donors to resource other food items or these can be provided in kind through WFP. WVI will 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 become increasingly dramatic, as their personal foods stocks are depleted. Furthermore, the current government programme of providing some assistance to IDPs also in Maluku will expire on 31 March with the end of the budget year, and it is at this stage not known to what extent the government will be in a position to provide further assistance. As the government assistance was only covering part of the needs, urgent international support will be needed. 21

4.1.3. Project for appeal Appealing Agency WORLD FOOD PROGRAMME Project Emergency Food Assistance Objective Target Beneficiaries Cooperating Partners Time frame To provide emergency food ration and to maintain the basic nutritional status of the IDPs Displaced persons living in camps and with host families Current target population: 298,000 AcF, WVI March to August 2000 (180 days) Funds required US$ 13,717,540 Funds provided 9 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 and North Maluku provinces for a 6-month period To meet and maintain the basic nutritional requirements of the IDPs through an emergency ration. Activities Provision of a complete food basket at an emergency ration level to IDPs in camps and residing with host families. Provision of supplementary food rations to vulnerable groups among the IDPs, including children below 5 years of age, as well as expecting and nursing mothers. UNICEF is supplementing 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 0 Other food items 3,800,000 Transport & distribution, monitoring, other operational costs 2,000,000 Total 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) 22

4.2 HEALTH AND NUTRITION 4.2.1 Current situation The health situation in North Maluku is most precarious for two distinct conflict-created vulnerable populations IDPs, particularly on the islands of Ternate and Tidore, and remaining resident civilians 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 traumatic deaths, 1,219 persons injured, with 2,135 persons missing. Medical morbidity includes significant numbers of respiratory infections, clinical malaria, and diarrheas. Access to these areas remains limited. As of the end January, the health infrastructure includes 6 functioning hospitals out of 8, and 35 health centers reportedly functioning out of 46. Available health workforce has degraded to fewer than 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 the general hospital. Essential drugs and medical supplies presently exist in Ambon Municipality though local medical supplies suffered losses from looting last August of $175,000 worth of drugs and supplies from Ambon Municipal Office warehouse. The Governor of Maluku Province, the Chief of Health Services (Dinas), and Division Head of Provincial Health Office (Kanwil Depkes) have each released appeals for medical commodities. Felt needs range from ORS salts to essential drugs to surgical instruments. Moreover, medical commodity distributions from the existing provincial warehouse in a Christian area are locally viewed as partisan by under-resourced Moslem health care providers. Reported measles vaccination coverage is low mainly due to security conditions, and cases of measles were reported from the area around Tual islands, as well as from Ambon. However, the vaccine is available at the provincial cold storage from the Ministry of Health (MoH), but there is a need to proceed with a measles campaign vaccination. In March 1999 the local health department, in conjunction with PMI, attempted to conduct a nutritional survey of the IDP population. The results indicated an extremely high rate of severe malnutrition. The impressions of the teams on the ground contradicted these results which fortunately 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 the measurement of malnutrition of any kind, plus a lack of knowledge of how to act upon the results of the 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, UNICEF has organized complementary food distribution for children under two years and construction of water and sanitation facilities in Ambon and Tual. WHO provided technical assistance to the MoH on appropriate responses to known epidemiology. Active NGOs, include MSF-B, WVI, AcF, all of whom have provided assistance in Maluku since early 1999. Others such as MSF-H have made initial fact-finding preparations, and MSF-H is providing health care and water and sanitation assistance in South-East Sulawesi. 23