temporary shelters in the philippines
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Temporary Housing for Calamity Stricken Communities in the
Philippines
by Eudesa Uy Flores
I. ABSTRACT
Over the past decade, there are a number of tropical storm that hit the
Philippines, damaging properties, land and leaving people homeless. Post-disaster
reconstruction and provision of temporary housing to victims is vital as it may greatly
affect their sense of dignity, identity and privacy. The study aims to identify the
country’s state in terms of its disaster response preparedness and how temporary
housing affects the stricken community.
II.
INTRODUCTION
Humans have homes where they live over time. It may be as temporary
as an apartment or as permanent as an inherited ancestral house. It may also be
homogeneous or differentiated, communal or non-communal, has a great sense of identity
or commonality, have closed or open environments. According to Kopec (2006), All
these greatly signifies who the occupants are and it defends or protects them from settings
and properties that threaten who they are and what they want to be. The most ideal homes
are said to be that, that symbolizes stability, security and safety. This being in danger,
makes the occupant feel vulnerable, there is more to losing a house than the physical
deprivation but it is the sense of losing dignity, privacy and identity.(n.a, 2010)
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The Philippines is said to be the largest country in the world that is most-
exposed to tropical cyclones (Wikipedia, 2014), with more than 7,000 islands that are
vulnerable to storm surges. On an average, the country is hit by 20 typhoons or tropical
storms per year but only eight to nine storms make landfall. Overall, the worst Typhoon
the country has experienced is the Typhoon Haiyan (Yolanda) where it swept the whole
archipelago-nation last November 8, 2013 with winds over 190 mph greatly devastating
the areas like Tacloban City with approximately 5,235 deaths recorded (Vila, 2014). This
paved a way to awaken the Filipino people’s awareness on the country’s preparedness,
response, recovery and mitigation issues for disasters.
Post-disaster reconstruction and temporary housing is a challenging and
complex task as it should progressively return to the affected people the normalicy life
under disordered situation (n.a, 2010). Hence, the purpose of this research is to
identify/state the country’s disaster response preparedness with regards to the provision
of temporary shelters after the calamity.
III. METHOD
The main subjects of this paper are the people that were greatly affected or
had been victim by Typhoons. The paper will greatly emphasize and refer to Typhoon
Haiyan as it is the most recent typhoon that caused large scale impairment in the country.
As disaster may be of social or natural hazards, this paper shall only focus on the natural
disaster specifically brought by Tropical storms and its effect on the sheltering needs.
Literature review is greatly used as a tool to gather information. A few case
studies/examples of Temporary housing from other countries is also be presented in this
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paper to serve as a basis and comparison. The pieces of information that were gathered
became the researcher ’s basis to conclusion.
IV. RESULTS
Typhoons in the Philippines
Typhoons or “bagyo” in tagalog are Tropical cyclones that enters the Philippine
Area of Responsibility, upon entry the Philippine Atmospheric, Geophysical and
Astronomical Services Administration (PAGASA) allocates a local name, named after
people in alphabetical order, and advises the public of the storm signal warnings for each
region. Tropical cyclones are described as an intense circulating weather over tropical
seas and oceans accompanied with very strong winds, heavy rains and large ocean waves.
(Wikipedia, 2014) On average there are 200 Tropical cyclones that forms in the world
yearly, but the western North Pacific where the country is situated holds the highest place
of formation for about 30 %. The Philippine’s tradition in naming storms started way
back the 20th
century where American forecasters named storms after people. Come
January 2000, when the World Meteorology Organization started naming storms by
nomination of the14 Asian countries. (Padua, 2012)
PAGASA has four (4) levels for the storm signal warning, the signals and its
impacts are as follows;
Public storm warning signal number 1 are tropical cyclones that affects the
locality, with winds of 30 -60 kph and may be expected in at least 36 hours. The
accompanied wind breaks twigs and branches of small trees, some banana plants may be
lifted or drowned, houses constructed with very light materials may partially be unroofed,
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rice crops may suffer substantial damage when it is in the flowering stage. PAGASA
advise for people under this storm warning to listen for the latest issued weather bulletin
ever six hours. Business may be carried normally except for the occurrence of flood in
some places. Also, waves on the coastal areas may become higher and bigger.
(PAGASA, 2014)
Public storm warning signal number 2 have winds of 60-100 kph and may be
expected in the 24 hours. The impact of its wind may lift some coconut trees, many
banana plants drowned, crops are adversely damaged, a large number of nipa and cogon
houses are partially to totally unroofed including some roof that are made out of old
galvanized iron roofing. It will also bring light to moderate damages to exposed
communities. (PAGASA, 2014)
Public storm warning signal number 3are accompanied with winds that are greater
than 100 kph up to 185 kph and may be expected in the next 18 hours. Under this storm
warning, many coconut trees may be broken or destroyed, almost all banana plants may
be drowned and a large number of tress are uprooted. Crops may suffer heavy losses,
Majority of nipa and cogon houses may have been unroofed and structures with light to
medium construction material may have been damaged. Also, there may be a widespread
electrical and communication services disruption, moderate to heavy damage on
agriculture and industrial sector may be experienced. Sea, coastal waters and air travel
will be very dangerous and risky. People are advised to seek shelter in strong buildings,
evacuate low-lying areas and to stay away from the coasts and river banks. People are
advised to watch out for the “eye” of the typhoon to be recognized by a sudden fair
weather after a very bad weather with strong winds that generally comes from the north.
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When the eye of the typhoon hits the community, PAGASA advises that people not to
venture away from the safe place where they are located because in about 1 to 2 hours the
very strong winds of the typhoon coming from the south will continue. Classes at all
levels are suspended. Disaster preparedness and response agencies are said to be doing
appropriate response to actual emergencies in this storm signal warning. (PAGASA,
2014)
The Philippine’s highest public storm signal warning is number 4, where wind
reaches more than 185 kph and may be expected in the next 12 hours. In this storm
signal, coconut plantation and crops suffer extensive damage, large trees are uprooted,
electrical and communication services are severely disrupted and Most residential and
institutional building that are made out of mixed building materials may be severely
damaged. Travels and outdoor activities should be terminated. There should no longer be
people evacuating to safer grounds as it is already deemed too late under this situation.
Areas, under this storm signal are most likely to be hit by the “eye” of the storm . The
disaster coordinating councils and other response organization are fully responding to
emergencies and to possible calamity. (PAGASA, 2014)
Due to the most recent calamity that greatly devastated the country, the
government passed Executive Order 137 that mandates July of every year to be
“National Disaster Consciousness Month”. Dela Cruz (2014), presented a
consolidated tabulation based from the EM-DAT International Disaster Database as
of August 1, 2014, categorizing the worst disasters that affected the country in terms
od the number of casualties, estimated cost of damaged and affected people. Show at
table 1, 2,3 respectively. Notice how Typhoon Haiyan (Yolanda) is consistently at
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the upper portion, making it the worst disaster the Philippine ever experienced.
Further, it is good to note that based on the tabulation, majority of the disasters that
cause the country great harm are due to tropical storms.
Table 1. Tabulation shows the worst disaster in terms of number casualties.
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Table 2. Tabulation shows the worst disaster in terms of cost of damaged.
Table 3. Tabulation shows the worst disaster in terms of people affected.
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Local Condition brought about by Typhoon Haiyan
Due to the gravity of the Typhoon Haiyan foreign communities came and help aid
the Philippines, there are overflowing international and local donors that help the
estimated 17 million people in 44 provinces and 171 cities and municipalities recover
from the disaster (Committee report no. 30, 2014). This created great awareness and
alarm on the countries disaster response preparedness. The Commission of Human Rights
of the Philippines (CHRP) had issued advisory protecting the right of people affected by
natural disasters for adequate housing, land and property and it also emphasizes the need
to strengthen governments’ capacity and effectiveness to adopt a right approach to
temporary and permanent relocation of internally displaced persons. (Human Rights
Advisory, 2014)
Based from the issued Human Rights Advisory (2014), there should be a non-
discrimination and equitable assistance in all housing land and property right
interventions especially with regards to the selection process of beneficiaries for the
emergency shelter and resettlement, ensuring those susceptible populations. There are
said to be learned reports that there are private and public contractors that are taking
advantage of the funds that are allocated for the temporary shelters and similar facilities.
However, this claim is yet to be verified. Committee on Public Works on May 21, 2104
submitted Committee Report number 30 introduced by Senator Miriam Defensor
Santiago entitled P.S. Resolution No. 436, redirecting to have a proper conduct and
inquiry to strengthen laws that ensures efficiency, transparency and accountability of
government relief projects specifically those that involves international and reports that
the bunkhouses developed by the Department of Public Works and Bhagwat’s located at
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Leyte and Eastern Samar are overpriced and does not comply with the international
standards. Another resolution under P.S. Res. No. 439, filed by Senator Ferdinand Marcs,
Jr. entitled an alleged overprices and substandard bunkhouses built for the Yolanda
survivors and to institute corrective measures. (Committee report no. 30, 2014)
With regards to the beneficiary selection process for the temporary shelter, the
following are some of the requirements that are prioritized. 1) Household who have an
income that is below the food threshold level in the region, in the case of Tacloban city
and its surrounding areas, it is 5,000 pesos. 2) Family who has a member who is seriously
ill, pregnant or lactating mothers, or those with children below 12 years of age or headed
by a single parent. 3) Household is not a beneficiary of another housing assistance eith
from government or non-government organization. 4) families whose head are
incapacitated and are not capable to support food and shelter for the family or are elderly
person and not receiving any social or retirement pension. The Committee Chairman
Senator Marcos informed that the catastrophe evens out the social status, where the rich
and poor suffered the same miseries and needs. Hence, all are in need of assistance.
(Committee report no. 30, 2014)
In the creation of the committee report number 30, there are 222 bunkhouses that
are to be constructed in the provinces of Leyte and Eastern Samar, these bunkhouses are
to serve as transitional or temporary shelters for those victims of the said typhoon. It has
a common toilet and bath and has a total floor area of 255. 28 square meters with total
construction amounting to Php 959,354.00. Based on the ocular inspection of
bunkhouses located at Guiuan, Eastern Samar, Palo and Tacloban City, Leyte made by
the newly appointed Presidential Assistant Rehabilitation and recovery Secretary, Sec.
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Panfilo M. Lacson, together with the Architect and Urban Planner Felino Palafox, Jr. and
Dan Lichauco, have concluded that these houses are poorly constructed, undersized and
substandard. From the original Php 959,354.00, contractors were requested to cost down
to Php 836,018.00 affecting the common wash and toilet areas, contractor further agreed
to remove profit margin and overhead expenses. However, the bunkhouses face another
obstacle as there is a problem with regards to the availability of skilled workers and
materials in the area at the time of construction, given that they should finished it in 30
days. Bunkhouses were then built using available materials in the areas, even though it
does not conform to the agreed specification because the DPWH have decided that It is
more important to save lives than meeting the required standards. When asked whether
other countries were able to apply international standards in building their temporary
housing Architect Palafox affirmed and had greatly reiterated that it is because the
country has not yet developed a standard guideline of its own that is adaptable to its need
and resources. (Committee report no. 30, 2014)
Temporary Housing
Destruction of houses is one of the effects of disasters leaving high number of
people homeless. In order to bring back livelihood and form a sense of normalcy in life,
provision of housing should start as soon as possible. The United Nation Disaster Relief
Coordinator (UNDRO) defined temporary housing as one the eight basic post- disaster
shelter provision. These classifications had been proposed by Quarantelli since 1995. He
proposed a distinction between the sheltering and housing. He said that sheltering refers
to places that are immediately provided immediately during the aftermath. When housing
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is used, it denotes the return of household to its daily routine. The four (4) sheltering
types are 1) Emergency shelter are places where survivors stay for a short period of time
during the height of the catastrophe, 2) Temporary shelter denotes to a place where
survivors stay for a short period of time, more or less a few weeks, this may be in a form
of tent or evacuation shelters. 3) Temporary housing is then places where survivors stay
temporarily, usually lasted for a couple of months to three (3) years. These houses may
be in a form of prefabricated houses. 4) Permanent housing is houses that are rebuilt or
resettled for permanent living.
However, International Federation of Red Cross and Red Crescent Societies
(2011) defined transitional shelter as “rapid, post disaster household shelters made from
materials that can be upgraded or re-used in more permanent locations. They are designed
to facilitate the transition by affected populations to more durable shelter.” This
definition is said to be adapted from the sphere shelter handbook. Hence, for this paper,
the term temporary housing and transitional shelter shall be used interchangeable and
shall denote the same meaning.
Upon occurrence of the calamity, when emergency housing are provided, durable
housing are not and cannot be easily built, as would entail an ample of time for planning,
site clearing/preparation and construction for permanent housing, hence the need for
temporary housing.
Image 1. shows a graphic illustration of transitional shelter as described by International
Federation of Red Cross and Red Crescent Societies adapted from the sphere handbook.
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Johnson (n.a.) presented a planning consideration that organizations can
uiltize to come up with post- disaster housing strategy. He recommends that there should
already be a design prior to the disaster, whereas, the decision-makers should have
already considered options and probable issues relating to it to plan properly so that when
disasters arise, and an urgent housing solution is needed, there is already a plan available.
After the aftermath, and people have already settled, Johnson (n.a.) advises to assess the
structure, identify what works and what did not. In doing this, items that works well can
be noted and be applied to other projects given there is similar context. This reassessment
shall also give way to improve the constructed structure.
Table 3. Johnson (n.a.) proposed strategy for finding the “best fit” housing solution
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Developing Transitional Shelters
Design
In designing transitional shelters there should be a balanced factor to be
considered, graphically shown on the image below.
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Also, while developing the design aside from considering the above factors,
people affected by the disaster, the government and sectors of response organization
should be consulted and reference existing building codes and standards. Design group
shall also be in close coordination with other engineering trades, mechanical electrical
plumbing and sanitary. Another important element to consider in developing a
transitional shelter is the contractor that will build it. (International Federation of Red
Cross Crescent Societies, 2011)
Material and Maintenance
Materials that shall be used for the transitional shelter should be easily found or
available in the area should there be a need for maintenance and repair. Further the
designed transitional shelter components should be capable for re-use, rapidly be built
and is durable that it could serve the affected in long span of time. (International
Federation of Red Cross Crescent Societies, 2011)
Location
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In times of relocation, settlements should be built in a much safer ground as not to
increase the current sense of vulnerability the affected people are feeling. Taking into
consideration the area is safe from hazards such as earthquakes, flood, landslides and
disease. Aside from this, it should also be located where the affected people have an
access to services and livelihood (International Federation of Red Cross Crescent
Societies, 2011) to prevent them from returning to possibly unsafe zones.
Construction
In other countries, there are different types of temporary housing, the ready-made
units and the kit supplies. Ready-made units are already constructed in factories and are
delivered on site, hence needing heavy transport equipment to move it to areas. Most
areas that are difficult to access cannot use this type of housing. The kit supplies concept
generally prefabricates small parts of the housing and then assembles the pieces on site.
This type usually generates participation from the community. But if the temporary
shelter shall be built on site, availability of skilled workers should be considered so as not
to encounter the same conflict that was faced during the of construction bunkhouses for
the Yolanda victims. One should also take into consideration of the construction
timeframe, as these temporary housing will help the affected to cope up.
Size and Shape
Based on the International Federation of Red Cross Crescent Societies (2011), the
covered living space, includes external living space such as verandas, is a critical
detrimental for the transitional shelter deign. They suggested (considering the Sphere
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Project) that the minimum covered living space should be 18 square meters base on a
family size of 3.5 square meters per person.
Privacy and security
Privacy is a basic human need. Failure to allow people to feel that they lack
control of their environment may lead to lack of autonomy and learned dependence to
others and learned helplessness. Kopec (2006) said that the four (4) essential function of
privacy are; 1) to regulate or protect communication, 2) facilitate a sense of control, 3)
allow integration of information about self and its relationship to others, 4) allow
emotional release. Giving occupants freedom to add internal division according to their
preference may heighten their sense of privacy in the space.
Cultural Appropriateness
The concept of universal or standard design solution is not feasible, as each place
has its own cultural, social and climatic needs. There was a study that says that to be able
to minimize psychological stress of the affected victim it greatly helps to adapt the shape
and material of their known or attached type of housing.
Ventilation and thermal comfort
The design of transitional housing should consider the possibility of crowding in
the area therefore natural ventilation should be maximized anticipating extreme weather
conditions.
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The book created by the International Federation of Red Cross and Red Crescent
Societies for Transitional Housing ( 2011), presented a process on how these houses upon
conceptualizing are to be checked in terms of the structural aspect which is divided into
three (3) parts. The first stage of the process is to gather the information or inputs, to
collect the design brief including the purpose of the shelter and where it will be built.
Next is to check the main elements of the structure that it is code or standard compliant.
Although building codes are typically for permanent structures and are not directly
applicable to such situations, and as Architect Palafox had elucidated and clarified that
the country does not have direct building codes that address this kind of concern,
Nonetheless, it is advisable to checked the criteria that was required by the code as it will
help to improve the performance of the structure. And lastly, as in any construction
process, the output should have the summary, stating how the design was reached, the bill
of quantities reflecting the cost/budget to build the structure and drawings.
Image 3. Shows the whole process how the housing is to be checked.
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Smith (2009) said that a temporary housing face three (3) design challenges and
consideration - efficiency, aesthetic, and environmental consciousness. Efficient design is
said to be easily constructed, shipped and assembled on site. It also involves material
standardization, unique joinery and manufacture process. He said that it is up to the
architect to remember the relationship of the client to create a socially responsive
architecture in such situations.
Examples of Temporary Housing Abroad
Vietnam, Da Nang
Da Nang is located at the region of Central Vietnam which is mostly to hit by two
(2) typhoons per year, to avoid confusion they re-classified housing from the three main
types: solid, semi-solid and temporary, to four (4) types: permanent, semi-Permanente ,
less-permanent and simple where housing are categorized based on its composition
(foundation, floor and roof). Da Nang experienced the problems of having a one-size-fits-
all solution to post-disaster construction. Tran, Tran, Tuan & Hawley (2012) stated the
failure was due to the excessive reliance on foreign assistance that it failed to understand
the local context and its culture. In 1986, families began to shift from the use of
traditional bamboo, thatch, leaf and timber to a more durable and costly materials such as
cement blocks, fire bricks, corrugated sheeting and etc. As these materials are new to the
community it led instead to an unexpected level of housing risk. Hence, this event
reminds us that designers should greatly consider the local context to avoid what
happened to Da Nang.
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Japan
The typical temporary housing at Japan is a one story prefabricated row house
with 29 square meters built by private companies. Similar to what happened to Yolanda,
there are instance that prefabricated temporary housing are not built on time even though
there was already pre-existing agreement with construction companies, these shortage are
said to be due to lack of construction materials, workers and coordination with
companies.
There are three types of Temporary housing that was provided at Cheutsu, all with
separated bathroom. Room sizes depend on the size of family. There is a wind-breaker
porch provided at the entrance of each housing preventing wind and snow from entering
but the residents felt that the provision is unsuitable to the selected area. Hence research
showed that 58% of the houses are impro00ved. People who live in the same community
are grouped together to maintain their connection and a common room is built in each
temporary housing with 50 units. The study elucidates that while it is good to maintain
communication and network with the neighborhood, there should also be a provision of
space where they could escape the bonds created, to have a place for oneself. Another
feature that the temporary housing at Chuetsu offered is its provision of their so called
“temporary café” It is an open tent-like, easy to build structure where the affected can
drop by, as the café provides and allows people to contribute information, it also serves
as an opportunity to communicate to other residents that are not in the same community
with them.
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Sri Lanka
In 2004, Sri Lanka was devastated by a Tsunami that damaged 100,000 houses
nationally and 5,500 in the area where the NGO was working. (Shelter Project, 2008)
The basic temporary shelter is made out of a box-bar metal frames that even those that
have little knowledge and strength could assemble it, these temporary houses, because
made out of metals, could be re-used. The materials for roof and frames are prepared in
the NGO’s warehouse and are delivered first, and then concrete for the low wall,
followed by the plastic sheeting that is reinforced with plywood for the siding and are cut
on site. Note that the next two (2) steps are completed by the beneficiaries. These shelters
also upgrade over time.
Indonesia
In December of 2006, an earthquake struck Aceh, Indonesia, due to its proximity
has triggered tsunami and damaged the majority of population living in the low-lying
coastal areas. The shelters provided in this area based their design on the local context
which is made out of timber and thatched roof, thus, the foundation of the structure ae
made of concrete and ad brick foundation to ensure stability and were topped with timber
frames and corrugated iron roof and timber panels (shelter project, 2008) Tten (10)
months after the tsunami, the housing were upgraded and added more stable components,
such that the walls were made of brick and have wood-framed roof. This kind of method
applied the “building back better” concept. The NGO paid close attention during
construction ensuring the shelters quality. Problems also arise regarding the availability
and importation of materials causing some delay.
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Paper Log House
Shigeru Ban introduced paper log house design that sheltered many families from
Kobe, Japan, Kaynasli, Turkey, Bhuj and India. It has a 4 square meter interior living
area and later on developed to having verandas and larger living space. Interior spaces are
dependent on it users need. The house is made up of paper tubes and is made of
prefabricated elements to make sure that it is watertight, self-adhesive waterproof sponge
tapes are used in between tubes in terms of ventilation, ceiling and roof that is made of
PVC have gaps to give way for air circulation .(Smith, 2009)
V. CONCLUSION
The Philippines is used to being hit by tropical storms and such natural
disasters are not new to the country. The awareness brought by the Typhoon Haiyan had
reluctantly reminded and showed the state of the country in terms of disaster response
preparedness, most especially in terms of proper delineation and provision of one of the
basic needs of human, which is shelter.
Based on the research, it is alarming to identify that the country have not yet
created a template or standard of its own in building temporary housing that is adaptable
to its needs and resources, knowing and experiencing handful of storms in the past
decade. The researcher has come to conclusion that in terms of post-disaster response, the
country is far from being ready, while other countries are developing temporary housing
to attain a better environment for its beneficiaries. The country is just starting to be aware
of the need to have plan for such situations. Further, As there should be a preparedness
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planning before the disaster to have a temporary housing fit for the location, it is also
important that the these housing are immediately reassess after the disaster to identify if it
properly fit the particular situation. Moreso, that there is an ample of consideration to
think about when planning/designing a temporary housing, it is much complicated
compared to designing a private house, since the designers have to consider the material,
cost, restriction of space, the environment, the security of place to bring back the dignity,
privacy and identity the typhoon once took.. However, these designs and plans will not be
put to good use if the government and the non-government organization will not
cooperate and look at the same goal, to help save lives. We have a long way to go and
many tropical typhoons to come. We have to have a plan now before more lives are to be
put to risk.
VI. REFERENCES
Kopec,D.(2006).Environmental Psychology for Design. Fairchild Publication: New York.
Vila, A. (2014) Deadliest Typhoon Hits the Philippines. Retrieved September 9, 2014
from www.philstar.com/news
Wikipedia. (2014) Typhoons in the Philippines. Retrieved September 9, 2014 from
www.wikipedia.com
Padua, D. (2012). Typhoon Climatology. Retrieved from September 9, 2014
http://weather.com.ph/typhoon/climatology
PAGASA. (2014). Philippine Storm Warning Signal. Retrieved September 14,2014 from
http://www.pagasa.dost.gov.ph/
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Sixteenth Congress of the Republic of the Philippines. (2014). Committee Report No. 30.
Retrieved September 10, 2014 from www.senate.gov.ph
Temporary Housing after Disasters (2010). Retrieved from
http://repositorium.sdum.uminho.pt/xmlui/bitstream/handle/1822/23957/texto.pdf?seq
uence=1
Prinz, G. & Nussbaumer, A. (n.a.) On fast Transition between Shelters and Housing after
Natural Disasters in Developing Regions. Retrieved September 14, 2014 from
http://infoscience.epfl.ch/
International Federationof Red Cross Crescent Societies. (2011). Transitional shelters:
Eight Designs. Switzerland, Geneva.
.Tran, Tran, Tuan & Hawley. (2012). Review of Housing Vulnerability: Implications for
Climate Resilient Houses. Retrived from http://cdkn.org/wp-
content/uploads/2013/01/Sheltering-from-a-gathering-storm-Discussion-Paper-Series-
Review-of-Housing-Vulnerability.pdf
Smith, A. (2009). Relife: Tansitional Housing for Victims of Natural Disaster. Universtiy
of South Florida, South Commons. Retrieved from
http://scholarcommons.usf.edu/cgi/viewcontent.cgi?article=1020&context=etd
UN-HABITAT (2008). Shelter Project
Johnson, C. (n.a.). What’s the Big Deal About Temporary Housing? : Planing
Considerations for Temporary Accomodation after Disaster: Example of the 1999
Turkish Earthquakes. Retrieved from http://www.grif.umontreal.ca/