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Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Heiner Gloor, Shelter Centre
Joanna Read, Shelter Centre
Federica Lisa, Shelter Centre
Evaluation in Pakistan
Presentation
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Purpose of the evaluation
1. Determine what lessons can be learned from the 2010 flood, and 2005 earthquake response in Pakistan for informing a set of Transitional Shelter Guidelines
2. Assess the value of IOM’s prefab transitional shelter programme in Kashmir (post 2005 earthquake )
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
1.Executive summary
Purpose of the evaluation
Overview of shelters evaluated
Summary of findings
2.2005 Kashmir earthquake evaluation
Overview
Urban prefab shelter types
Findings
3. 2010 Pakistan flood evaluation
Overview
One room shelters
Transitional shelters
4. Conclusions
Content of this presentation
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Executive summary
Overview of shelters evaluated
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Executive summary
Overview of shelters evaluated
Kashmir (’05 Eq):Prefab shelters:• SIDA-IOM,• Saudi Government• Turkish Red Cross• Samaritan’s Purse
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Executive summary
Overview of shelters evaluated
Kashmir (’05 Eq):Prefab shelters:• SIDA-IOM,• Saudi Government• Turkish Red Cross• Samaritan’s Purse
KPK (2010 flood)• NRC, PAKCDP, SAH transitional shelters•Ummah Welfare Trust reconstruction site
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Overview of shelters evaluated
Kashmir (’05 Eq):Prefab shelters:• SIDA-IOM,• Saudi Government• Turkish Red Cross• Samaritan’s Purse
KPK (2010 flood)• NRC, PAKCDP, SAH transitional shelters•Ummah Welfare Trust reconstruction site
Punjab (2010 flood)•UN-Habitat one room shelter pilot project • UN-Habitat sandbag TS• IIH (Turkey) prefab TS
Kashmir (’05 Eq):Prefab shelters:• SIDA-IOM,• Saudi Government• Turkish Red Cross• Samaritan’s Purse
KPK (2010 flood)• NRC, PAKCDP, SAH transitional shelters•Ummah Welfare Trust reconstruction site
Executive summary
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Overview of shelters evaluated
Sindh (2010 flood)IOM one room shelter pilot projects
Kashmir (’05 Eq):Prefab shelters:• SIDA-IOM,• Saudi Government• Turkish Red Cross• Samaritan’s Purse
KPK (2010 flood)• NRC, PAKCDP, SAH transitional shelters•Ummah Welfare Trust reconstruction site
Punjab (2010 flood)•UN-Habitat one room shelter pilot project • UN-Habitat sandbag TS• IIH (Turkey) prefab TS
Kashmir (’05 Eq):Prefab shelters:• SIDA-IOM,• Saudi Government• Turkish Red Cross• Samaritan’s Purse
KPK (2010 flood)• NRC, PAKCDP, SAH transitional shelters•Ummah Welfare Trust reconstruction site
Executive summary
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Summary of findings
•Important to remember that transitional shelter will not be appropriate in all contexts
•Serious consideration needs to be given to the cost of transitional shelter: if all available funds are spent on TS, who will assist with permanent reconstruction?
•Transitional shelter is not necessarily a discrete step - should be seen as an integrated part of the response process
Executive summary
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Summary of findings
•Transitional shelter may be appropriate in specific cases:
a. displaced persons;b. beneficiaries who need to focus on
activities other than rebuilding for some time;
c. very vulnerable households.
•Use local materials/techniques where possible: lack of acceptance, and setting up supply chains, can cause major delays
Executive summary
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
1.Executive summary
Purpose of the evaluation
Overview of shelters evaluated
Summary of findings
2.2005 Kashmir earthquake evaluation
Overview
Urban prefab shelter types
Findings
3. 2010 Pakistan flood evaluation
Overview
One room shelters
Transitional shelters
4. Conclusions
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
2005 earthquake overview
Key facts
28,000 urban houses destroyed or damaged
83% housing units in Muzaffarabad damaged or destroyed
95% housing units in Balakot damaged or destroyed
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
2005 earthquake overview
Recovery strategy (urban)
Initial payment of Rs 25,000 ($ 290) from the Government, for immediate shelter needs
10,000 prefabricated transitional shelters provided in urban areas
A further Rs150,000 ($ 1,750) paid by the Government in two tranches
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
2005 earthquake overview
Muzaffarabad urban scenario
Balakot urban scenario
EarthquakeTentsfor up to 2 years
Prefab shelters
Reconstruction compliant to ERRA standards
No permanent reconstruction allowed
EarthquakeTentsfor up to 1 year
Prefab shelters
? Relocation
Unregulated reconstruction
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
IOM/SIDA/DAM shelter
•Cost: $4,600 (in 2006)
•‘Local’ materials: aluminium frame, insulation board, coated iron sheeting
•Parts assembled in workshops set up in town
Saudi Public Assistance
•Cost: $6,300 (in 2006) inc. latrine
•Aluminium frame, sandwich panels made in China
•All parts imported from Saudi Arabia (‘flat pack’) and assembled on site
Urban prefab shelter typesMuzaffarabad, November 2010
Balakot, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Urban prefab shelter typesSamaritan’s Purse
•Cost: $4,500 (in 2006)
•‘Local’ materials: galvanised iron frame, insulation board, CGI sheeting
•Constructed on site
Turkish Red Crescent
•Cost: $ Unknown – most expensive
•Transported via truck from Turkey
•Modified goods container - arrives ready assembled
Balakot, November 2010
Muzaffarabad, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Strengths
•Shelter quality and conditions: good
•Parts from some designs suitable for reuse in permanent constructions
•Earthquake-safe
•In some cases, basic designs have been replicated in permanent, seismic proof houses
Urban prefab shelter typesMuzaffarabad, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Urban prefab shelter typesWeaknesses
•Slow response time
•High cost
•Shelters much smaller than pre-earthquake construction
•Very little (often no) beneficiary involvement
Balakot, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
FindingsWhat made some prefab designs more popular than others?
•Use of common/easy to understand construction techniques which can be replicated
•Easy to reuse/resell parts:• Standard parts• Good quality parts
Balakot, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
FindingsLessons learned
•Key problem was the slow response – many people stuck in tents and prefabs for 5 years
•“Would have been better to provide money to beneficiaries to start reconstruction sooner”
•Donors allowed to dictate the response
•Samaritan’s Purse and some SIDA shelters much more popular due to use of standard parts
Balakot, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
1.Executive summary
2.2005 Kashmir earthquake evaluation
Overview
Urban prefab shelter types
Findings
3. 2010 Pakistan flood evaluation
Overview
One room shelter
Transitional shelter
Permanent reconstruction
4. Conclusions
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
www.shelterpakistan.org
2010 floods overview
Key facts
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Provinces Houses destroyed or damaged
Emergency shelter distributed - coverage
Remaining need*
PAK 6,308 34% 4,177
Balochistan 75,596 47% 40,372
Gilgit Baltistan
2,830 102% -
KPK 285,243 78% 61,498
Punjab 500,000 32% 274,346
Sindh 876,194 17% 639,793
TOTAL 1,746,171 33% 874,696
* Total remaining needs = sum of provincial remaining needs – unallocated pipeline
www.shelterpakistan.org
UN OCHA Update 1st Nov 2010
Key facts
2010 floods overview
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
‘Early recovery’ shelter strategy
The affected can be (very) roughly split into three groups:
• Possibility of return
• Extended displacement
• Seasonal flood migrantsSindh Province, Pakistan, November 2010
2010 floods overview
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
‘Early recovery’ shelter strategy
•‘One room shelter’ strategy selected for returnees
•Transitional shelter strategy selected only for extended displacement and seasonal flood migrants
Sindh Province, Pakistan, November 2010
2010 floods overview
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Major problems faced by implementers:
•Time – water receding quickly and people start to rebuild very quickly
•Limited funding:
• Government assistance KPR 20,000 per family released so far for emergency needs
• Shelter cluster is currently 14% funded*
•Lack of technical surge capacity
•Local building practices not flood resistant
2010 floods overview
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
•Cost: $200-300
•Aim to assist beneficiaries in the (re)construction of one habitable room
•Agency assistance in form of limited materials (often doors/windows/roof) and or skilled labour, tech assistance
•Social mobilisation and mass communication to encourage beneficiaries to lead the construction, using salvaged and/or locally available material
One room shelter
Sindh Province, Pakistan, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Strengths
•Relatively cheap and fast (approx. 2 weeks)
•Potential for upgrade/extension
•Potential for hazard resistant features
•Supports local market and local economy
•Use of local and well accepted construction techniques
One room shelter
Sindh Province, Pakistan, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Weaknesses
•Relies on additional money from government (via WATAN) card
•May prevent beneficiaries from focussing on livelihood activities
•Slow agency response, difficulties in providing sufficient technical support in time (e.g. many shelters lack DRR features)
One room shelter
Sindh Province, Pakistan, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Lessons learned
•Potentially safe, durable and cost-effective if:
• sufficient technical assistance is provided as soon as construction starts
• funding is properly tailored to the needs of the beneficiaries
One room shelter
Sindh Province, Pakistan, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Lessons learned
•Early recovery/reconstruction strategy needs to be thought out during emergency phase
•Sometimes possible go move straight from emergency phase to reconstruction
One room shelter
Sindh Province, Pakistan, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
•Cost: $500+
•Cluster strategy for:
• those facing extended displacement; and
• seasonal flood migrants
•Some NGOs also using transitional shelter for:
• beneficiaries whos primary need is to focus on agriculture
• beneficiaries who do not have resources to start rebuilding
Transitional sheltersPunjab Province, November 2010
NRC, KPK Province, 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Sandbag transitional shelter
•Currently one test shelter constructed by UN-Habitat. Originally intended for roll out to ~25 displaced families.
•Targeted at beneficiaries who have lost their land due sand deposits.
•Unlikely to be used on a large scale due to high cost and lack of acceptance.
Punjab Province, November 2010
UN-Habitat, Punjab Province, 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Sandbag transitional shelter
Strengths
•relatively cheap – encourages use of material readily available (sand on site!)
•reusable roofing material (I beam, chiq, bamboo)
•comfortable internal conditions (good thermal performance)
•opportunities for beneficiary involvement in construction
Punjab Province, Pakistan , November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Sandbag transitional shelter
Weaknesses
•Lack of acceptance from community
• Beneficiaries not convinced that shelter is flood proof
• Stigma of ‘poor man’s construction’.
•Wall material not easy to reuse
•Expensive
Punjab, Pakistan, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Sandbag transitional shelter
Lessons learned
•Lots of grassroots dialogue is needed for the community to accept a new technology
•Vital for transitional shelter to include reusable elements
•Relatively high cost (>$500) makes this design financially unsustainable
UN-Habitat, Punjab Province, 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Light frame transitional shelter
•Transitional shelter being implemented while beneficiaries:
• are busy with agriculture;
• lack resources to rebuild
•Design used/tested in previous programmes (e.g. in KPK)
NRC, KPK Province, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Light frame transitional shelter
Strengths
•Quick to assemble and relatively cheap
•Some support to local markets and economy – chiq, bamboo, timber
•Use of standard parts makes repairs easy
•All parts are potentially reusable
•Opportunities for some beneficiary involvement in construction
SLA, KPK Province, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Light frame transitional shelter
Weaknesses
•Thermal performance is less optimal than in well built brick/mud shelters
•Necessary to set up supply lines in order for materials to reach beneficiaries
•Generally not locally accepted building techniques
•Not flood resistant
•Additional funds required for final construction – reliance on WATAN card
SLA, KPK Province, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Light frame transitional shelter
Lessons learned
•Important that materials used are of good quality to allow for reuse/reselling
•Potentially a good approach for specific cases
•Beneficiaries may need further financial (and other) assistance for permanent reconstruction
UN-HABITAT, Sindh Province, 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Prefab transitional shelter
• Cost: ~ $ 4,500 – same amount to be spent on permanent reconstruction = $9,000 total
• Prefabs provided for village to use for 6 months while permanent buildings are being constructed. (55 homes, 2 offices, 1 school, latrines)
• Prefabricated shelter components imported by train and lorry from Turkey
Punjab Province, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Prefab transitional shelter
Strengths
•Quick to assemble (1 hour?)
•Good shelter quality and durability
•Complete shelter kits are potentially stockpilable and reusable in another response
•Shelters are elevated – protection against minor flooding
Punjab Province, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Prefab transitional shelter
Weaknesses
•Very expensive (~$4,500)
•Unlikely to be suitable for warm, humid climates
•Repairs potentially difficult due to imported, non standard parts
•‘Camp like’ layout of transitional shelters
•Unlikely that shelters will be reused due to easily damaged parts and the large logistic effort required
Punjab Province, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Prefab transitional shelter
Lessons learned
•Donor driven approach can lead to less than ideal responses (all or nothing)
•Compared with means available this appears to be an extremely inefficient use of resources
•Prefabricated shelters are unlikely to be suitable for use in rural areas
Punjab Province, November 2010
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
1.Executive summary
Purpose of the evaluation
Overview of shelters evaluated
Summary of findings
2.2005 Kashmir earthquake evaluation
Overview
Urban prefab shelter types
Findings
3. 2010 Pakistan flood evaluation
Overview
One room shelters
Transitional shelters
4. Conclusions
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Conclusions
• Important to start to plan for early recovery in parallel with emergency phase
• The cost of a transitional shelter should be seriously considered as part of the overall response. Would funds be better spent on more rapid reconstruction?
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Conclusions
• Better coordination needed at various levels:• inter-hub• headquarters-hubs• agencies - Shelter Cluster
• Institutional memory and technical knowledge sharing for better coordination and more timely response
• Consider investing in people
Friday 3 December 2010Shelter Meeting 10b is hosted by UN/OCHA
Thank you
Questions?
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