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Shelter - supporting local
responses
Lynne Dowdican
Resilience, Evacuation and Shelter Policy Adviser
Resilience & Emergencies Division (RED)
Department for Communities & Local Government (DCLG)
5 Catastrophic
terrorist
attacks
Pandemic influenza
4 Coastal flooding
Effusive volcanic
eruption
3 Cyber
attacks:
infrastructure
Attacks on
Infrastructure
Smaller-scale CBR
attacks
Attacks on
crowded
places
Attacks on
transport systems
Major
transport
Accidents
Major
industrial
accidents
Inland flooding
Effusive volcanic
Eruption
Other infectious
diseases
Severe space weather
Low temperatures and
heavy snow
Heatwaves
Poor air quality events
2 Public
Disorder
Severe
Wildfires
Animal
Disease
Drought
Storms and gales
1 Cyber attacks:
data confidentiality
Disruptive
industrial action
Low Medium low Medium Medium high High Between
1 in 20,000 and
1
in 2,000
Between
1 in 2,000 and
1 in 200
Between
1 in 200 and
1 in 20
Between
1 in 20 and
1 in 2
Greater than
1 in 2
5
National Risk Register 2015 edition
Figure 1: Risks of terrorist and other malicious attacks
Relative plausibility of occurring in the next five years Relative likelihood of occurring in the next five years
Ov
era
ll rela
tive im
pa
ct s
co
re
Figure 2: Risks of natural hazards and major accidents
6
Evacuation and Shelter planning assumptions
NRPA 2014
Planning Assumptions
400,000
evacuated
150,000
shelter for 5 days shelter up to
75,000
12 months or more
2000 missing
11,000 in situ
People displaced and requiring
assistance in the UK
What have we been doing
8
In your groups, please answer the following questions:
1. Where do you think the gaps / weaknesses are in the UK’s current Shelter Capability?
2. What should the national strategy for improving shelter resilience be?
Aim of the MaSC project
To prepare guidance for planners on the
preparation, activation and operational delivery
of an Emergency Mass Shelter Capability for
use in an EU context
To provide practical guidance on the short
notice provision of mass intermediate shelter
following a large scale disaster that is both
useful and likely to be used.
What do we want to achieve?
At Home Return Home Evacuated to
Collective Centre (Max. 5 days)
Disaster Occurs
What gap does MaSC address?
MaSC Headline Planning Assumption:
With 5 days notice, provide shelter for in excess of 10,000 people that is sustainable for at least 6 months
Project Phases
Project Close down
Dec 16
Research & Analysis
March 15 - Aug 15
Workshop Delivery Aug 15 - March 16
Guidance Development March 16 - Oct16
Project Evaluation
Oct 16 - Dec 16
Research & Analysis
March 15 - Aug 15
Project Phases
Project Close down
Dec 16
Research & Analysis
March 15 - Aug 15
Workshop Delivery Aug 15 - March 16
Guidance Development March 16 - Oct16
Project Evaluation
Oct 16 - Dec 16
Research & Analysis
March 15 - Aug 15
Finalise Guidance Product Description Produce Draft of Guidance Proofing and Quality Assurance Peer Review Produce Final Document
Secondary Products EU Mass
Shelter Risk Profile
Mass Shelter Literature
Review
Mass Shelter Categories
Schedule of Needs
UCPM Capability Proposal
Triage Process
Mass Shelter Site Selection
Tool
ERCC
Disaster
stricken country
UCPM Capability Proposal:
• Request for assistance
• Acceptance of assistance
offered
• Information updates
• Offer of assistance
• Deployment of UCPM
teams
• Coordination of Transport
Own Home Host Families Vacant Housing Leisure Accommodation
Self Settlement on private ground Collective Centres Rough Sleeping Planned intermediate
settlement
Settlement Typologies
MaSC Theme Definitions • Household - Group units that IDPs live in and/or will live in once they are
allocated space with MaSC
• Wellbeing- services and resources that an individual will need to ensure
health and wellbeing
• Community- services and resources that will be needed to support and
develop the community
• Stewardship- management of the site and community
• Place- physical site and area that will house MaSC
• Utilities- services and provisions that are required to build and run MaSC
Secondary Products EU Mass
Shelter Risk Profile
Mass Shelter Literature
Review
Mass Shelter Categories
Schedule of Needs
UCPM Capability Proposal
Triage Process
Mass Shelter Site Selection
Tool
Assessing and augmenting the UK’s mass shelter capability
Davina Duggan Lead on National Security Risk Assessment and Evacuation & Shelter
Cabinet Office
Current UK Assessment of Shelter Capability
• Strategic context
• National Resilience Capability Assessment for shelter
– Approach
– Capability gaps
• Next Steps and 2016 NRPA Update
National Risk
Assessment (NRA)
Assesses the major threats and hazards the UK could face over the
next 5 years.
The National Resilience Capability Programme: Building resilience capabilities
National Resilience
Planning Assumptions (NRPAs)
Distils the main consequences of the risks in the NRA and
identifies the benchmark for
planning.
National Resilience Capabilities
Programme (NRCP)
Co-ordinates cross- HMG work to build and
maintain capability against the common
consequences set out in the NRPAS
• Set out what is needed to respond to the National Resilience Planning Assumption (NRPA) for people displaced and requiring assistance.
• Set out what is currently in place.
• Identify gaps and duplication.
• Use the findings to help improve the overall response.
Objectives of the Mass Shelter Capability Assessment
Assessment Context
• 400,000 people evacuated • Temporary shelter required for up to 150,000 for up to five days. • Up to 11,000 people in need of rescue or in-situ assistance, over a 36 hour period • Up to 75,000 households needing assistance, including shelter, for 12 months or more • Up to 2000 missing persons
Scenarios and Planning Assumption
Other risks likely to lead to people displaced and requiring assistance: Terrorist attacks; accidents; other forms of flooding and an influx of British Nationals.
Primary risk driver: H19 major coastal and tidal flooding risk scenario from the National Risk Assessment to help decide what is needed to respond.
National Resilience Planning Assumption (NRPA) G: People displaced and requiring assistance
Phase 2 Phase 1
A series of focus groups and workshops to look at...
What does a reasonable
response (‘success’) look like?
What do we need? What do we
currently do or have?
Gaps
Workstream
Mass Evacuation
Module
Re
turn
ing
Mo
vin
g N
oti
fyin
g D
eci
din
g
Element
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Assessment Challenge Evacuation and shelter work stream is large and complex; needs to be separated at many points
She
lte
r
Workstream
Shelter
Module
In-s
itu
A
ssis
ted
Se
lf-s
up
Element
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Legislation Information
Infrastructure
Personnel Training
Equip. & supplies Plans and policy
Phase 1: What do we need? Bespoke framework for each work stream
National Capability Survey
DCLG RED
National Workstream leads
Overall UK
Resilience
Capability
Phase 2: What do we have? Assessing the level of capability against each part of the bespoke framework
Assessment Results
Inconsistency of approach to same wide
area risks
National guidance doesn’t address mass
shelter issues
Most shelter planning doesn’t cover 5-day displacement period
Extent of assurance around closed
communities self-sufficiency unclear
Limited confidence in the provision of mutual
aid for mass shelter
Large or mass scale displacement will result
in reporting burden – no monitoring or locating capability
No nationally held map/network of
potential mass shelter sites.
No local medium- to long term -planning to
house thousands of displaced families
Legislation fails to adequately reflect
multi-agency, potentially wide area
shelter provision
Sheltering capability is in place at the low end of the scale but is insufficient to respond to an incident meeting the NRPA for people displaced and requiring assistance.
National Resilience Capability Programme Process
Conduct capability
assessment
Report to x-HMG National
Resilience Capabilities
Board
Convene working group to consider the findings, gaps and potential
solutions
Report to x-HMG National
Resilience Capabilities
Board
Integrate outcomes into new or existing
HMG strategy to augment capability
Next steps
Raise LRF awareness of the first Mass Shelter Capability Project products; and support MaSC 2
Explore ways to report on large scale displacement
The UK is more able to mass
shelter
Scope the feasibility of a Co-ordination Hub
Obtain cleared lines from private care homes regulator
Obtain cleared lines from NOM about approach in prisons
Refreshed Evacuation & Shelter /Mutual Aid
guidance
The UK is more able to mass
evacuate
Convene working group to consider findings of mass
evacuation capability assessment
In your groups, please answer the following questions:
1. Does the national assessment agree with the gaps / weaknesses you identified?
2. Are there any changes to the gaps / weaknesses you noted?
3. Which 3 are the most significant?
Please pick one of the gaps / weaknesses identified and in your groups:
1. Discuss how joint working / guidance or common procedures might help to reduce the gap / weakness
2. Are there common standards or common documentation that might help?
3. How could this practically be achieved?
Triage = To sort or to choose
The process by which people are classified according to
nature or urgency of their needs to get the
Right Person to the
Right Place at the
Right Time with the
Right Support
50
• Matt (35)
• Single Parent Household
• 2 Children, aged 2 and 4
• Father works full time in Local Government
• Relies on paid childcare
• No immediate family nearby
• Usually economically self-sufficient
Family 1
52
Family 2
• Syed (53) • Married to Yasmin (49) with 3 Daughters (12, 15,
17) • Yasmin’s elderly parents (79 and 77) live with
them as does Syed’s Brother, Ali • Family moved to country 2 years ago • Syed is a small business owner • Ali’s visa has expired • Family is devoutly religious • Culture does not allow women to be away from
unaccompanied by a male family member
54
Family 3
• Steven, Male (79)
• Widower, with no friends or family
• Agoraphobic, hasn’t been outside in 2 years
• Very Overweight (Bariatric)
• Suffers from arthritis
• No contact with others except Doctor and
deliveries
• TV is the only thing in his life
• Will refuse help
• Paul (39) and Amy (38) • 4 children (4, 7, 10 & 12) • The eldest two children suffer from Muscular
dystrophy, with Jack (12) confined to a wheelchair
• The family also has 2 dogs, 2 cats, 3 rabbits, a parrot and a chinchilla
• Both adults are full time carers and the family relies on benefits
• Paul has been missing since the incident
56
Family 4
Please review the triage process using the example families. Please record any comments you have. 1) What processes does this need to support?
2) What forms would need to be completed?
3) How could we improve things to make the process more practical?
1) Is there an appetite for a single approach to triage and registration across Local Authorities?
2) What advantages/disadvantages would this bring?
3) How would we take this forward?
63
Suitable and well-selected sites, soundly planned refugee settlements with adequate shelter and integrated, appropriate infrastructure are essential in the early stages of an emergency as they are lifesaving and reduce suffering. Initial decisions on location and layout have repercussions throughout the existence of a settlement with long-term effects on protection and the delivery of humanitarian assistance.
UNHCR Handbook
64
Site selection will almost always involve compromise..... .....But it is critical to successful contingency operations.
1) Sites should be safe for those displaced
2) Sites should not risk irreparable environmental damage
3) Sites should only be used where a legal agreement can be reached which covers the maximum duration for the site
4) Sites closer to the evacuation area should be prioritised
5) Sites should be located near to existing local infrastructure and services (e.g. Near to an existing town or city)
6) Sites (singularly or collectively) should not be of a size which exceeds 12% of the local population
7) Sites should have good access to transport networks
8) Sites with large areas of hard standing should be prioritised
9) Sites with existing infrastructure should be prioritised
10) Sites with large (and suitable) existing structures which can be adapted for use should be prioritised
Principles for prioritising sites
LAYOUT DPC CAMP Pneumatic Tents 4 Arches
Bathroom/shower Container
Generator
Air Conditioners
Light Tower
1) Sites should be safe for those displaced
2) Sites should not risk irreparable environmental damage
3) Sites should only be used where a legal agreement can be reached which covers the maximum duration for the site
4) Sites closer to the evacuation area should be prioritised
5) Sites should be located near to existing local infrastructure and services (e.g. Near to an existing town or city)
6) Sites (singularly or collectively) should not be of a size which exceeds 12% of the local population
7) Sites should have good access to transport networks
8) Sites with large areas of hard standing should be prioritised
9) Sites with existing infrastructure should be prioritised
10) Sites with large (and suitable) existing structures which can be adapted for use should be prioritised
Principles for prioritising sites
1) Sites should be safe for those displaced 2) Sites should not risk irreparable environmental damage 3) Sites should only be used where a legal agreement can be
reached which covers the maximum duration for the site 4) Sites closer to the evacuation area should be prioritised 5) Sites should be located near to existing local infrastructure
and services (e.g. Near to an existing town or city) 6) Sites (singularly or collectively) should not be of a size
which exceeds 12% of the local population 7) Sites should have good access to transport networks 8) Sites with large areas of hard standing should be prioritised 9) Sites with existing infrastructure should be prioritised 10) Sites with large (and suitable) existing structures which can
be adapted for use should be prioritised
Please review the site selection questionnaire:
1) What more questions would need to be asked on the form?
2) What else is required to test?
3) What type of test would be best – e.g. site visit?
4) What additional considerations need to be added to the? template for someone picking it up for the first time?
In your groups please discuss: 1) Which areas present the greatest opportunities to improve
UK shelter capability
2) Which areas should be priorities to work on
3) How would you like to see the topics we have discussed today progressed?
Deployment Strategy (1) 1 Secure and survey appropriate site(s) and locations
2 Commence mobilisation for core elements
3 Establish site managements / structures
4 Establish arrangements for health, safety and welfare of staff
5 Establish access and logistics yard (landing area)
6 Maximise sustainable working capacity
7 Develop sustainable site plan assuming 2 year lifespan
Deployment Strategy (2) 8 Assess, establish and mobilise supply chains (inc. labour)
9 Construct central receiving facilities
10 Phased construction of roads and infrastructure
11 Phased construction of accommodation / household units
12 Phased construction of community facilities
13 Retro-fitting / conversion of early phase buildings
14 Environmental and community enhancement
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