ShelterProjects9 2023 Web

SHELTER PROJECTS 9th edition
CASE STUDIES OF HUMANITARIAN SHELTER AND SETTLEMENT RESPONSES 2021-2022
Global Shelter Cluster

ShelterCluster.org
Coordinating Humanitarian Shelter
SHELTER PROJECTS
9 edition
th
CASE STUDIES OF HUMANITARIAN SHELTER AND SETTLEMENT RESPONSES 2021-2022
Shelter Projects Working Group partners and supporting agencies for this edition

ShelterCluster.org
Shelter Projects 9th edition
Published in July 2023 by the International Organization for Migration (IOM), on behalf of the Global Shelter Cluster.
Available online on www.shelterprojects.org
Copyright for this book is retained by IFRC, IOM, UNHCR, and UN-Habitat. Reproduction for non-profitable objectives is encouraged.
Copyright for photographs and images remains with the photographers or entities whose names appear on each picture
or caption. The Global Shelter Cluster and its members may use the pictures, if appropriately credited.
Suggested citation: Global Shelter Cluster (2023), Shelter Projects 9th edition, www.shelterprojects.org
To be printed in September 2023.
DISCLAIMER
The maps contained in this publication are for illustrative purposes only and should not be considered authoritative.
Whilst every effort has been made to ensure the accuracy and completeness of the content of this booklet, no liability
can be accepted for any errors or omissions contained within it.
The designations employed and the presentation of the material in this publication do not imply the expression of any
opinion whatsoever on the part of the Global Shelter Cluster concerning the legal status of any country, territory, city or
area, or of its authorities, or concerning delimitation of its frontiers or boundaries, or regarding its economic system or
degree of development.
Approximate prices are given in US Dollars (USD), based on exchange rates around the time of the project.
This publication was issued without formal editing by IOM.
Copyright for front cover photo (overall winner of the Shelter Projects Photo Competition 2022):
© Md. Mohin Uddin / Save the Children International. Rohingya Camp, Cox’s Bazar, Bangladesh, 2021.
A home, a shelter of dignity, love, and care.
Copyright for back cover photos:
© Sameer Raichur / Better Shelter. Kerala, 2020. Woman builds on shelter frame with mud and bamboo in Kerala, India.
Flood-affected communities used local materials and traditional construction techniques to build long-term shelters.
© Amber Christino / IOM Burundi. Burundi, 2019. Two Burundian sisters who returned from the United Republic of Tanzania
as orphans, celebrate their repaired mud brick home alongside members of their community. The repairs were done through a
comprehensive programme designed to support returning migrants and their communities with shelter rehabilitation and income-
generating activities.
© Stylia Kampani / IOM Nigeria. Gubio camp, Borno State, Nigeria, 2021. An inclusive cooking space constructed using local
materials and simple construction techniques for easy upgrade and maintenance for persons with disabilities.
© Xavier Génot / IFRC. Malagasy Red Cross Society, Madagascar, 2022. Awareness session on improvement of traditional
house construction, part of conditional cash for shelter program in response to the tropical cyclone Batsirai impact. This way to
transmit knowledge and Building Back Safer key message was one of the dissemination vehicle used to sensitise households in
the enhancement of the repairing of their damaged house, within communities with high level of illiteracy.
© Sami Abdullah / IOM Iraq. Jeddah camps, Iraq, 2019. A Cash-for-Work program involving women from vulnerable
households provided solid motivation to rely on themselves in carrying out the daily maintenance of their shelters inside the
camp, even when they return to their areas of origin. (Public voting winner)
For more information on the Shelter Projects Photo Competition, see www.shelterprojects.org
ii SHELTER PROJECTS 9 TH EDITION

FOREWORD
In 2021 and 2022, a multitude of factors like poverty, where Shelter Projects comes into play. A Global Shelter
conflicts, and climate change-induced disasters triggered Cluster initiative, its primary aim is to document and share
global crisis; and displacement reached unparalleled valuable lessons from past experiences, to continually
levels. Disasters like flooding in Pakistan, an earthquake improve our current practices and shape the strategies of
in Afghanistan, cyclones in Mozambique, and the 2023 the future.
earthquakes in Türkiye and Syria, have highlighted the
continued need for robust humanitarian shelter and This publication, written by practitioners for practitioners,
settlements responses. is a result of a collaborative and consultative process. It
encapsulates the invaluable contributions of thousands
Conflicts like the invasion of Ukraine, economic crisis in of people – from those affected by crises, government
Venezuela, and protracted conflict in Syria also spurred workers, to members of supporting organisations. We are
mass displacement. Climate change has been a threat keenly aware that the primary actors in any recovery are the
multiplier, intensifying political and economic instability. crisis-affected people themselves, and this understanding is
reflected in the case studies featured.
Cities are increasingly becoming focal points for such crises,
with displaced populations seeking better opportunities Shelter Projects has been utilised globally as a vital tool
and services. However, the rapid, unplanned urbanization for shaping response and recovery strategies, developing
is posing risks to displaced and local communities alike, shelter proposals, and advocating for best practices in
exerting more pressure on local authorities to provide humanitarian response. It has served as a solid foundation
housing, as well as basic services and livelihoods. for government strategies, discussions with civil protection
agencies and local municipal authorities, and even for
This daunting outlook represent a formidable challenge private sector organisations seeking to understand the
for the international community and for organisations process of providing shelter. Furthermore, it has been
working in this sector. The escalating need has consistently extensively used in humanitarian training and academic
outstripped available resources and capacities, highlighting research.
the importance of continuously adapting and innovating
our approaches. We invite you to delve into this publication, to explore
the wide range of implemented shelter and settlement
Affected communities stand as the primary responders programs. Each case study and response overview is
in these crises, showcasing their capacity to actively designed to provide different perspectives on response
participate in their recovery rather than being passive options, offering a thorough analysis of the challenges
recipients of aid. This crucial recognition has underscored faced, strengths and weaknesses, wider project impacts,
the successful strategies employed in our shelter projects. and crucial learnings.
Now, more than ever, we look to the past to guide us The Global Shelter Cluster Shelter Projects
towards more effective responses in the future. This is Working Group, July 2023.
INDEX OF CASE STUDIES/OVERVIEWS BY COUNTRY PUBLISHED IN SHELTER PROJECTS (2008-2022)
Number of case studies/

overviews per country
1-5
6-10
11-15
16-20
iii SHELTER PROJECTS 9 TH EDITION

ACKNOWLEDGEMENTS
The editors would like to express their gratitude to Shelter Projects 9th edition has been funded by the
the following individuals, who contributed content to following contributors:
this edition, who provided their time and expertise
• USAID Bureau of Humanitarian Assistance
to review the contributions, and who supported the
(USAID-BHA);
working group to make this 9th edition of Shelter
• International Federation of the Red Cross and Red
Projects possible:
Crescent Societies (IFRC); and
Aaron Opdyke, Abigail Maristela, Alberto Alcalde, Alberto • International Organization for Migration (IOM).
Piccioli, Alex Miller, Alner Camocon, Amelia Rule, Ana
The case studies have been provided from the programs
Bernal, Ana Cubillo, Andrea Flores, Andreas Hapsoro, Angel
of the following organizations:
Pascual, Anock Kapira, Antonella Del Vecchio, Augusto
Comé, Arvin Hadlos, Bernard Heng, Arwin Soelaksono, • AVSI Foundation;
Bill Flinn, Carolina Cordero-Scales, Caroline Dewast, Celia • CARE International;
Izquierdo Perez, César Cueva, Charles Parrack, Chelsea • COOPI - Cooperazione Internazionale;
Cooper, Chiara Jasna Vaccaro, Chhim Samon, Christopher • Habitat for Humanity International;
Rae, Claudia Samaras, Charles Setchell, Colin Murphy, • International Federation of Red Cross and Red Crescent
Conrad Navidad, Daniel Fujuno, Danni Rossa, Dauda
Societies (IFRC);
Abiyo, Dave Hodgkin, David Dalgado, Dina Dudokh, Dwi
• International Organization for Migration (IOM);
Agustanti, Edson Pereira, Elisa Gonçalves d’Albuquerque,
Eloísa Berhó, Emilie Schroder, Eoin Odwyer, Eric Muchunku, • Mercy Corps;
Essam Al-Washaly, Eva Suárez, Faiza Hamid, Francesco • National Shelter Clusters;
Torresani, Francis Fierst, Frmesk Rashid Omar, Gabrielito • Norwegian Refugee Council (NRC);
Moraleda, Gerard Reilly, Giorgia Corno, Haruna Mangga, • The Interagency Coordination Platform for Refugees
Hilda Ehi Adah, Ibrahim Buba Ngulde, Ipshita Karmakar, and Migrants (R4V);
Irantzu Serra-Lasa, Jack Bailey, Jacobo Muelas, Jago Boase, • Shelter Box;
James Morgan, James Schell, Javier Cidón, Javier Parra, Jean • The United Nations High Commissioner for Refugees
Grunauer Calle, Jenny Weatherall, Jesse Mathias Bala, Jessica (UNHCR); and
Mamo, Jiacong Ang, Jim Kennedy, João Figueiredo, Joaquin • United Nations Human Settlements Programme
Gonzalez, Joean Gajeto, John Torough, John Wain, Jorge (UN-Habitat).
Ludeña, Jose Da Costa, Joseph Ashmore, Juli King, Keshav
Agarwal, Konstantinos Kousaxidis, Kostyantyn Dmytrenko, Compiled, edited, and layout by IOM.
Kristina Lenart, Laschoni Soki, Leandro Fernandez-Jardon,
Lee Malany, Leeanne Marshall, Liliana Lozano, Lina Baishya,
Lizzie Babister, Ljubica Salamic, Lubna Al Attiah, Madeline
Burnham, Mamen Sancha, Mamoon Hamadi Mohammed,
Maria Perpetua Bulawan, Marta Leboreiro Núñez, Mathias
Spaliviero, Matthew Flynn, Md. Ainul Islam, Melina Holder,
Milan Colic Humljan, Mileidy Capurro, Mohammed Hilmi,
Nadeem Mahmood Khudur, Naima Taher, Natalia Roldan,
Nate Webb, Nay Lin, Nicola Orsini, Oep Oann, Omar Aridi,
Pablo Medina, Pascal Panosetti, Paulus Punjung Widodo,
Phon Yuthmaryna, Poppy Hobbs, Rabab Fakhredine,
Rafael Mattar-Neri, Rami Bou Reslan, Redentor Atanacio,
Remy Kalombo, Rendra Poerbaya, Risper Talai, Rodriguez
Nshombo, Roi Chiti, Samar Farhat, Sami Mahmood
Abdullah, Samuel Bekele J., Sandra D’Urzo, Shegufta Newaz,
Shehu Ali, Sheiknoor Hassan, Sheila Sanouidi, Sokhim Phat,
Sourn Chantra, Step Haiselden, Stephanie Loose, Stylianos
Kelaiditis, Taha Hassan Laheeb, Teri Smith, Theda Vetter,
Travis Lyon, Umar Abdulkadir Jidda, Vince Perlas, Wacela
Macamo, Wild do Rosario, Wilson Kironyo Karanja, Xavier
Génot, Yahya Suleiman Ali, Yarayi M. Lawan, Ye Ko Oo,
Yombi Ouedraogo, Yousef Al-Manhami.
For comments, feedback or questions, please visit the website or contact

[email protected]
iv SHELTER PROJECTS 9 TH EDITION

ACRONYMS
AGD Age, Gender and Diversity IDP Internally Displaced Person

AAP Accountability to Affected Populations IEC Information, Education, and Communication
ABA Area Based Approach IM Information Management
BBS Build Back Safer INGO International Non-Governmental Organization
CBI Cash-Based Interventions IP Implementing Partner
CCFS Conditional Cash for Shelter MoU Memorandum of Understanding
CFW Cash-for-Work M&E Monitoring and Evaluation
CCCM Camp Coordination and Camp Management NFI Non-Food Item(s)
CMRU Municipal Urban Resilience Cells NGO Non-Governmental Organization
DMU Disaster Management Unit PDM Post-Distribution Monitoring
DRR Disaster Risk Reduction SAG Strategic Advisory Group
EVI Extremely Vulnerable Individuals SOP Standard Operating Procedures
GBV Gender-Based Violence TPM Third Party Monitoring
HLP Housing, Land and Property UN United Nations
HRP Humanitarian Response Plan WASH Water, Sanitation and Hygiene
A NOTE ON TERMINOLOGY Sometimes these terms are used interchangeably, and

sometimes they are used very specifically. This can be
There has been much debate around terminology used in
impacted for example by the political context (e.g. in
the shelter sector. The focus of these conversations has
contexts where “camps” are not allowed) or can be
been held in the English language. As such the distinctions
impacted by the degree of integration with existing
may not translate well into other languages.
settlements and wider urban and regional planning. In this
There have been particular discussions in English language book we use the terms used in-country and by the specific
definitions used for different phases of assistance. For implementing organizations, which may vary.
example, the terms “emergency shelter”, “transitional The summary table within each case study includes
shelter”, “temporary shelter”, “semi-permanent shelter” sections showing the ‘’Direct cost’’ and the ‘’Project cost’’.
and “incremental shelter” have all been used to define The direct cost refers to the value of assistance package
both the types of shelters and the processes used. Similarly directly received by households, this includes for example
terms have been used for Non food items (NFIs), Core the costs of materials, of labor and/or the value of cash
relief items (CRIs), Household items. There are similar assistance provided. The term ‘’Project cost’’ refers to the
discussions related to the use of cash and vouchers in direct costs plus the indirect costs, for example taking
assistance. account for staffing and overhead costs.
Another example of terminology that has many variations is
“camp planning”, “site planning” and “settlement planning”.
© Step Haiselden
© Farai Shumba
NFI distribution for new arrivals at a resettlement site for IDPs displaced by the Through knowledge and skills assimilated from Savings Groups and Study Circle
violence in Cabo Delgado Province, Northern Mozambique. Groups on Land and Housing Rights, Idah Mbewe managed to obtain her Occu-
pancy License from the Kabwe Municipal Council in Makululu, Kabwe, Zambia.
v SHELTER PROJECTS 9 TH EDITION

ACRONYMS
Construction of new camps for IDP families in Northern Aleppo,

Syria using sandwich panels and Cash-for-Work methodology.
© Malek Alwadi
CONTENTS
FOREWORD iii A.17 INDONESIA / 2021 / EARTHQUAKE 106

ACKNOWLEDGEMENTS iv A.18 MYANMAR / 2021–2022 / CONFLICT 112
A.19 PHILIPPINES 2021-2023 / 118
ACRONYMS v
TYPHOON GONI AND RAI
CONTENTS vii A.20 TIMOR-LESTE / 2021 / THE DILI FLOODS 124
INTRODUCTION viii
EUROPE
A / CASE STUDIES AND OVERVIEWS
A.21 GREECE / 2019–2023 / COMPLEX CRISIS 130
AFRICA A.22 UKRAINE / 2022–2023 / CONFLICT / OVERVIEW 136
A.1 BURKINA FASO / 2020–2023 / CONFLICT 2 A.23 UKRAINE (REGIONAL) / 2022–2023 / CONFLICT 141
A.2 DEM. REP. OF THE CONGO / 2022 / 11
COMPLEX CRISIS / OVERVIEW MIDDLE EAST
A.3 ETHIOPIA / 2022 / CONFLICT 17
A.4 KENYA / 2021–2022 / CONFLICT 22 A.24 IRAQ / 2019 / CONFLICT 150
A.5 MADAGASCAR / 2022 / 28 A.25 JORDAN / 2018–2023 / SYRIAN CRISIS 155
TROPICAL CYCLONES / OVERVIEW A.26 LEBANON / 2020–2022 / BEIRUT PORT BLAST 161
A.6 MALAWI / 2022 / TROPICAL STORM ANA 34 A.27 SYRIAN ARAB REP. / 2021–2022 / CONFLICT 168
A.7 MOZAMBIQUE / 2021–2022 / COMPLEX CRISIS 40 A.28 YEMEN / 2020–2022 / CONFLICT 174
A.8 NIGERIA / 2018–2021 / CONFLICT 46
B / RESEARCH PIECES
B.1 INFLUENCES ON THE DECISION TO USE 182
AMERICAS CASH ASSISTANCE TO SUPPORT SHELTER
AND SETTLEMENTS
A.11 VENEZUELA (REGIONAL) / 2019–2023 / 66
B.2 CONSTRUCTIVE AMBIGUITY: SUPPORTING 185
COMPLEX CRISIS / OVERVIEW
A.12 VENEZUELA (REGIONAL) / 2019–2023 / 73 RECOVERY FROM HUMANITARIAN CRISES
COMPLEX CRISIS B.3 ADDRESSING THE CHALLENGES TO ADEQUATE 189
A.13 ECUADOR / 2020–2022 / COMPLEX CRISIS 79 HOUSING FOR VENEZUELAN REFUGEES IN
A.14 HONDURAS / 2020–2021 / 87 LATIN AMERICA AND THE CARIBBEAN
HURRICANES ETA AND IOTA
TRIBUTE
ASIA-PACIFIC
DR. TEDDY BOEN AND FERROCEMENT 193
A.15 BANGLADESH / 2021–2022 / FIRE RESPONSE 93 SEISMIC RETROFITS
A.16 CAMBODIA / 2018–2021 / 100
DISASTER PREPAREDNESS
INDEX OF CASE STUDIES AND RESPONSE OVERVIEWS PUBLISHED IN SHELTER PROJECTS 9TH EDITION
vii SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
Woman builds on shelter frame with

mud and bamboo in Kerala, India.
Flood-affected communities used local
materials and traditional techniques to
build long-term shelters, 2020.
© Sameer Raichur
INTRODUCTION
© Ezekiel Aguh Ava’Abem
Durable shelters in Malkohi, Adamawa State, Nigeria, 2022.
ABOUT THIS BOOK CASE STUDY SELECTION
This edition of Shelter Projects contains 24 new case stud- The case studies were selected using the following criteria:
ies, and four overviews of humanitarian shelter and settle-
• The project was a) wholly completed or, if not, b) solid
ments responses during 2021–2022. Written by field prac-
learning elements could be gained from the project
titioners, and coordination teams themselves who have
implementation by late 2022.
been involved in each of these projects and responses, the
pieces are all included in Section A of the publication. • Given the scale of shelter needs every year, case studies
must have had large-scale impacts. Discontinued trials,
In Section B of this edition, there are three Research
pilot projects or design concepts were not included,
Pieces, and a tribute to Dr. Teddy Boen for his contribution
unless a clear scale-up strategy was defined.
to seismic retrofits using ferrocement. The research pieces
explore a range of topics including the relationship be- • Most of the project must have been implemented
tween shelter and settlements practices and the influences within the first year following a disaster, or over longer
on the decision-making process to use cash assistance time frames for recovery processes. For conflict,
(B.1); supporting recovery from humanitarian crises using chronic emergencies and return processes, longer time
‘constructive ambiguity’ (B.2); and a piece on addressing scales were considered. In this edition, there are also
the challenges to adequate housing for Venezuelan refu- three case studies on permanent new-build housing
gees in Latin America and the Caribbean (B.3). construction.
The case studies in this book deal with projects imple- • Accurate project information was available from staff
mented by many different organizations, a full list of which or individuals involved in the implementation. In most
can be found in the acknowledgements section. In order to cases, content was provided directly by project field
allow strengths and weaknesses of projects to be openly staff and program managers.
shared, the case studies are not directly attributed to in-
• The case studies illustrate a diversity of approaches
dividual organizations. Since projects are implemented in
to meet shelter and settlements needs, as providing
diverse and challenging conditions, case studies illustrate
shelter assistance is more than simply designing archi-
both good and bad practices. From each one, there are
tecturally impressive structures or constructing indi-
lessons that can be learned, and aspects that may be re-
vidual houses.
peated or avoided. A list of suggested ‘Further Readings’
from Shelter Projects on common themes can be found at After a pre-selection based on the above criteria, each case
the end of each case study as well. study was further peer-reviewed by members of the Shelter
Projects Working Group. The review enabled an additional
The objective of this publication has always been to en-
level of critical analysis of the strengths and weaknesses
courage the learning process, advocate for following good
of each project, and pointed out what lessons to highlight
practices and avoid “reinventing the wheel”. If you wish to
and what aspects to expand upon, ultimately increasing the
find out more about the specific projects, please contact
overall quality of each case study.
[email protected]
ix SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
GLOBAL OVERVIEW OF DISPLACEMENT projects in this book also include assistance to these
AND RESPONSE groups of people.
In the course of 2021, 14.4 million new displacements The top five countries with the most internal displace-
within countries were reported, a stark increase from the ments by conflicts and violence in 2021 were Ethiopia (5.1
estimated 11.2 million in 2020, with 1.7 million people million), the Democratic Republic of Congo (2.7 million),
crossing international borders to seek protection.1 Conflict, Afghanistan (723,000), Burkina Faso (682,000), and
violence, and disasters contributed to a total of 38 million Somalia (549,000).5 This edition includes case studies and/
internal displacements across 141 countries and territories or response overviews from Ethiopia (A.3), Democratic
– with 23.7 million displaced by disasters, and 14.4 million Republic of the Congo (A.2), and Burkina Faso (A.1).
due to conflict and violence.2
By mid-2022, 9.6 million new internal displacements were
reported, more than double the same period in 2021 – at
least 7 million in Ukraine3.
CONFLICTS AND VIOLENCE
At the end of 2021, a total of 89.3 million were forcibly

displaced worldwide as a result of persecution, conflict,
violence, human rights violations, or events seriously
disturbing public order. This includes 53.2 million IDPs,
© Essey L
27.1 million refugees, 4.6 million asylum seekers, and 4.4
million Venezuelans displaced abroad, with 83 per cent
hosted in low-and middle income countries.4 Mekelle, Ethiopia, 2021.
Similar to 2020, more than two-thirds (69 per cent) of

all refugees and other internationally displaced people
in 2021 came from the same five countries: Syrian Arab
Republic (6.8 million), Venezuela (4.6 million), Afghanistan
(2.7 million), South Sudan (2.4 million), and Myanmar
(1.2 million). Increased to 76 per cent by mid-year 2022,
Ukraine (5.4 million) was added amongst the list of the five
countries.
While global data for returnees and non-displaced people
(such as affected host communities) was not available,
© NRC
1 UNHCR (2022). Global Trends - Forced Displacement in 2021
2 IDMC (2022), Global Report on Internal Displacement 2022 Kongoussi, Burkina Faso, 2022.
3 UNHCR (2022) Mid-Year Trends 2022
4 UNHCR (2022). Global Trends - Forced Displacement in 2021 5 IDMC (2022), Global Report on Internal Displacement 2022
Fig. 1: Number of people forced to flee through the years from 1993-2022. Source: UNHCR Global Trends Report, 2022.
x SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
DISASTERS This edition includes multiple shelter responses to trop-

ical cyclones, and storms: a housing retrofitting project
In 2021 and 2022, disasters affected 101.8 million people1, following Typhoon Goli/Rolly in the Philippines (A.19), a
and 185 million people2 respectively. 95 per cent of all response overview to the 2022 Cyclones Batsirai/Emanati
internal conflict displacements in 2021 occurred in coun- in Madagascar (A.5), and a project linked to wider impacts
tries that are highly vulnerable to the impacts of climate in Honduras after the Eta/Iota Tropical storms (A.14).
change, and 78 per cent of new refugees, and asylum Flood responses include case studies from Cambodia
seekers originate from these same countries.3 However, (A.16), the Dili Floods of 2021 in Timor-Leste (A.20), and
the numbers of people affected do not necessarily mean a flood response following Cyclone Ana in Malawi (A.6).
that all had shelter needs.
Other disasters featured in the publication are the 2020
Most of the new and repeated displacements triggered by Beirut blast (A.26), and the massive 2021-22 fire incidents
disasters in 2021 were recorded in East Asia and the Pacific in the Rohingya camps in Bangladesh (A.15).
and South Asia, which together accounted for about 80
per cent of the total. Many displacements were in the form
Fig. 2: Internal displacements breakdown by conflicts, violence, and disasters
of pre-emptive evacuations, but the extent of housing in 2021. Source: IDMC, GRID, 2022.
destruction in some of the disasters suggests that signif-
icant numbers of people face the prospect of prolonged
displacement. Tropical cyclones, storms, and floods were
the top three hazards that led to the most weather-related
internal displacements during the year affecting China (6
million), the Philippines (5.7 million), and India (4.9 million)
38m *
Internal displacements
in 2021
with the highest figures.4
23.7m 14.4m
In 2022, the top hazards were the same as in 2021, Disasters Conflict and
Violence
with the most internal movements recorded in Pakistan
(8.1 million), the Philippines (5.4 million), and China (3.6
million).5
1 UCLouvain, CRED, USAID (2022). Disasters in Numbers 2021

2 UCLouvain, CRED, USAID (2023) Disasters in Numbers 2022
3 UNHCR (2022). Global Trends - Forced Displacement in 2021 1.4m
4 IDMC (2022), Global Report on Internal Displacement 2022 Geophysical
12.5m 1.3m 236,000 217,000 77,000
5 IDMC (2023). Global Report on Internal Displacement 2023 Armed Violence Other Violence Violence
conflict (communal) forms of (criminal) (political)
violence
22.3m
671,000 663,000 44,000 Weather
Earthquakes Volcanic Landslides related
eruptions
11.5m 10.1m 451,000 240,000 37,000 20,000

Storms Floods Wildfires Droughts Landslides Extreme
temperatures
10.6m 848,000
Cyclones Other storms
In Mid-June 2022, Pakistan witnessed extreme flooding which damaged

more than 1.14 million houses and over 765,000 houses have been
destroyed across the country. An estimated 33 million people
across the country have been impacted by the floods.
© Usman Ghani
xi SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
SHELTER RESPONSES IN 2021 AND 2022
In 2021 and 2022, the Global Shelter Cluster (GSC) Fig. 3 shows the total people targeted and reached with
reported that 17.5 and 19.2 million people respectively had Shelter-NFI support since 2015. These figures should also
been reached in countries where a cluster or cluster-like be considered in relation to the overall number of people
coordination mechanism was active.6 It is important to in need of Shelter-NFI assistance, which was 59.4 million
note that this excludes, among others, some refugee in 2021 and 75.2 million people in 2022. Overall Shelter
responses such as the Rohingya crisis, or the responses in Cluster responses met 29.4 per cent of the total needs in
the countries around Venezuela and Ukraine. These figures 2021 and 25.5 per cent of the needs in 2022. In both years
represent an increase in people reached when compared responses assisted 65 per cent those people targeted. The
to the three preceding years. (see Fig. 3). large majority of this assistance was in NFI only.
6 All data in this section is from the Global Shelter Cluster

CHART C - Total people targeted and reached
https://www.sheltercluster.org/operations
with Shelter-NFI support from 2015 to 2022, in responses
where a cluster or cluster-like mechanism was active.
Targeted: 27.5m
2022 Reached: 19.2m
Targeted: 28.3m
2021 Reached: 17.5m
Targeted: 25.6m
2020 Reached: 14.7m
Targeted: 25.0m
2019 Reached: 14.2m
Targeted: 20.4m
2018 Reached: 10.6m
Targeted: 20.3m
2017 Reached: 10.8m
Targeted: 20.2m
2016 Reached: 13.1m
2015 Reached: 18.1m
Fig. 3: Total people targeted and reached with Shelter-NFI support from 2015 to 2022, in responses where a cluster or cluster-like mechanism was active.
1 million people reached 1 million people targeted
with Shelter-NFI assistance with Shelter-NFI assistance
© Maher Yunus
Syrian Arab Republic (Northwest Syria), 2022.
xii SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
Fig. 4 shows the combined total of people reached in 2021 In 2021-2022, as per Global Shelter Cluster figures, the
and 2022 split by region. It shows that the majority of sector received 45 per cent of the funding required across
people supported with Shelter-NFI assistance were either all countries. Fig. 6 shows the regional breakdown of
in Africa (18.4 million people reached) or in MENA (9.9 funding requested and funding received.
million people reached).
The major humanitarian Shelter-NFI responses in 2021-
2022 (Fig 5.) were in the Syrian Arab Republic (see A.27),
Ethiopia (see A.3), Ukraine (see A.22 and A.23), Democratic
Republic of the Congo (see A.2), Afghanistan, Yemen (see
A.28), South Sudan, Sudan, Somalia, and Venezuela (see
A.11 and A.12). The majority of Shelter-NFI assistance in
2021-2022 was related to conflict and violence, in some
cases combined by the additional damage and displace-
ment caused by exposure to natural hazards.
Fig. 5 also shows the split between NFI assistance and
Shelter assistance across these responses.1 It is possible
© Paul Kabwe
to note for example that some responses, such as the
response in Ethiopia, have reached a relatively large
number of people with NFI assistance but have reached
a much smaller amount of people with more substantial Makululu, Kabwe District, Central Province, Zambia.
Shelter assistance.
1 CHART
Note thatAthe- Total
overall people
number reached
of people with Shelter-NFI
reached support
noted in Figure 5 is in by region and country, in responses with a cluster or
cluster-like
most mechanism
cases not equal in of
to the sum 2021 - 2022 of people reached with
the breakdown
NFI assistance and people reached with Shelter assistance. This is because
some people will have been reached with both NFI and Shelter assistance.
Honduras | 0.31 M
Venezuela | 0.99 M
Philippines | 0.07 M Americas
Myanmar | 2M Haiti | 0.65 M
0.57 M Colombia | 0.06 M
Asia-Pacific Burkina Faso / 0.45 M
Bangladesh |
0.15 M 3.9 M Cameroon / 0.48 M
Afghanistan | 3.10 M C.A.R. / 0.46 M
Chad / 0.68 M
D.R.C. | 4.36 M
Europe Ethiopia | 5.44 M
4.4 M Libya | 0.21 M
Total people reached Africa Madagascar | 0.08 M
with Shelter-NFI assistance 18.4 M Malawi | 0.05 M
in 2021 – 2022
Mali | 0.43 M
Ukraine | 4.4. M 38.6 M Mozambique | 0.29 M
Niger | 0.37 M
MENA Nigeria | 0.85 M
9.9 M Somalia | 0.99 M
South Sudan | 2.20 M
Yemen | 2.67 M Iraq | 0.52 M Sudan | 1.34 M
Palestinian
Syria | 6.55 M Territories | 0.1 M
Fig. 4: Total people reached with Shelter-NFI support by region and country in 2021-2022, in responses with a cluster or cluster-like mechanism active.
xiii SHELTER PROJECTS 9 TH EDITION

CHART B - Top ten responses by people reached in 2021-2022 with Shelter and NFI assistance in countries where a
cluster or cluster-like mechanism was active
INTRODUCTION
People targeted /reached globally in 2021-2022 with:
People in People reached with NFI assistance

millions
People reached with Shelter assistance
6
CHART D: Regions by funding received for Shelter-NFI in 2019-2020, in responses where a cluster or cluster-like
mechanism was active.
NFI assistance Shelter assistance
2022
5
76% reached 39% reached
4 Asia Pacific MENA

79.2M 695M
66.2%
35% received 41% received
2022
2022
1%
7.5
%
2022
2021
0.9 24.4%
2022
2 %
Europe
2022
Americas
9M
2022
2022 10.6M
2021
2022
2022
17% received
2021
21% received
2022
2022
2022
1
Africa
2022
2022 2021
2022
2022
2022
2022
255.7M
2021
2021
2021
2021
2022
2021
2021
2021
2021
2021 2021 26% 2021
received 2021 2021
0
Syrian Arab Ethiopia Ukraine D.R.C. Afghanistan Yemen South Sudan Sudan Somalia Venezuela
Republic
Fig. 5: Top ten responses by people reached in 2021-2022 with Shelter and NFI assistance in countries where a cluster or cluster-like mechanism was active.
| Target: 14
ved 6M
cei
re
%
43
Asia-Pacific
eived
| Target 227.3M 2021
2022 37% received |
1M
: 83
rec
%
.5 39 % Ta
r
: 44
received
17
ge
Africa
t: 7
et
Americas Ta
rg
30.1
37% received |
2021
26.7M 646.9M 2021
M
2022 2022
18 % 45 %
M
received received
2.5
M
% 55
19
69
. :
rec 66 %
4
e ived | Target : % re c e g et
ive d | Tar
1.8 11.7 %
3
3.3
%
45%
received
22.4
%
eived
| Target .2 et: 78
5M
31 arg
: 23
rec .1 |T
2%
M
ed
1
ceiv
Europe MENA
55% re
2021
2022 434.7M 606.4M 2021
2022
87% 37 %
.9 M
received received
66
91
:8
re . 20 et
%
77
2
cei %r g
ve d
| Target
:4 % of funding received vs requested | 2021 eceive d | Tar
% of funding received vs requested | 2022
Fig. 6: Regions by funding received for Shelter-NFI in 2021-2022 in responses where a cluster or cluster-like mechanism was active.
xiv SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
OVERVIEW OF CASE STUDIES from South Sudan (A.4), two case studies responding to
the Venezuelan crisis in Latin America and the Caribbean
DIVERSITY IN RESPONSES (A.12, A.13), a case study from Greece responding to
the Mediterranean crisis (A.21), another from Europe
Shelter and settlements assistance is part of a process and supporting refugees of the Ukraine crisis (A.23), and the
crisis-affected people are active participants in that process. last one from Syrian refugees in Jordan (A.25).
How and where assistance is provided in an emergency
can have long-term impacts on people’s ability to improve Ten case studies describe projects that were implemented
their situation and eventually recover. in support of people internally displaced due to conflict
or violence. These include case studies from Burkina Faso
The case studies in this book show a wide range of (A.1), Ethiopia (A.3), Mozambique (A.7), three case studies
approaches to providing shelter and settlements assistance. from Nigeria (A.8, A.9, A.10), Rohingyas in Myanmar
The approaches taken vary significantly due to a wide (A.18), Iraq (A.24), Syrian Arab Republic (A.27), and
range of contextual factors, including the resources, needs, Yemen (A.28).
capacities, vulnerabilities, intentions, priorities and barriers
faced by crisis-affected people, and due to the phase of Eight case studies showcase projects that responded to the
response, organizational mandates and funding availability. impact of disasters (flood, storm, hurricane, earthquake).
These include emergency responses in Malawi (A.6), a
See the table on pages xvii-xviii for a full summary of resettlement case study in Honduras (A.14), a case study
the locations and settlement options, types of shelter on disaster preparedness in Cambodia (A.16), earthquake
assistance and support methods assistance methods and response in Indonesia (A.17), typhoons in the Philippines
settlement typologies of the projects in this book. (A.19), and floods in Timor-Leste (A.20). A housing reha-
bilitation case study after the 2020 Beirut blast (A.26), and
TYPE OF CRISIS AND DISPLACEMENT
a case study on site planning after the 2021-22 fire inci-
Six of the case studies are of projects that supported refugee dents in the Rohingya camps, Bangladesh (A.15) are also
populations: a case study in Kenya supporting refugees included in the publcation.
© Wacela Macamo
Marocani Resettlement site, Ancuabe District, Mozambique, 2021.
xv SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
CONTEXT AND SETTLEMENTS OPTIONS/SITUATIONS SUPPORT METHODS
People assisted by the projects in this edition were reached Projects adopted a variety of support methods to deliver
with shelter support in different types of locations. This shelter assistance. These include the distribution of house-
includes four projects that were implemented only in hold items or shelter materials, tools and kits (e.g. A.1,
urban areas, and seven projects only in rural areas, and A.7, or A.15), the use of cash-based interventions (CBI)
the rest of the projects were a combination of urban, peri- for example through conditional cash transfers (e.g. A.3,
urban, and rural settings, though the definition of what is A.13, A.16), and non-material form of assistance, such as
“urban” varies from one country to another. From a shelter capacity building (e.g. A.6, A.8, A.24), technical assistance
perspective, the location and typology of settlement where (e.g. A.1, A.10, A.28) and advocacy and legal advice for
people are can be considered amongst the main determi- example in relation to Housing Land and Property Rights
nants in selecting appropriate response options. (HLP) (e.g. A.7, A.8 and A.16).
Projects in this book were implemented for displaced Many projects also provided settlements-level support.
populations in planned sites and settlements (A.1, A.4, Seven projects involved site or settlement planning
A.10, A.12, A.14, and A.24); spontaneous camps where including planning for the development, growth and
people self-settled (A.6, A.9, A.12, A.15, and A.28); and upgrading of new and existing displacement sites and
planned and dispersed resettlement sites designed to settlements (e.g. A.4, A.9, A.15, A.16), and supporting
provide longer-term shelter solutions for people who had planning in existing urban and peri-urban areas (e.g. A.1).
been displaced (A.6, A.7 and A.28). Nine projects supported infrastructure improvements,
including improvements to roads, drainage, communal
Many projects also supported populations in dispersed
spaces, and access to local services and amenities. Site and
locations, including people in rental accommodation (A.12,
settlement planning, and infrastructure support was often
A.21, and A.23), people staying with host families (A.1,
implemented with aims to reduce vulnerability to natural
A.3, A.12, and A.23).
hazards, mitigate protection and health risks, and promote
The projects collected also assisted people who were social cohesion.
not displaced but whose homes had been damaged or
destroyed – most of whom had to reloacte in rented or
informally occupied settings (A.14, A16, A1.7, A.19 and
A.26).
SHELTER ASSISTANCE TYPES
The case studies in this edition show a range of different

types of shelter assistance. Eleven projects offered
support in providing materials for or directly constructing
emergency shelters, and seven projects supported the
construction of transitional or semi-permanent shelters
(A.9, A.10, A.13, A.14, A.15, A.18 and A.28). Two projects
supported host families (A.3 and A.16).
Seven projects supported housing repair, retrofit and/or
rehabilitation in support of a combination of displaced
© Sam Allen
people who were renting accommodation (A.13, A.19,

and A.26), returnees and non-displaced local populations
(A.14, A.16, and A.17), and vulnerable host community
Adamawa state, Nigeria.
members (A.3).
Three projects from Europe and the LAC region provided
direct rental assistance (A.13, A.21, A.23).
Five projects supported the construction of core and
permanent housing: a project supported the permanent
reconstruction of severely damaged or destroyed homes
(A.19), and three projects built new permanent housing
developments (A.1, A.4, A.7 and A.8).
© Sahiba Chawdhary
One project (A.10), was specifically focused on shelter

improvement interventions to persons with disabilities.
Delhi, India.
xvi SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
SUMMARY TABLE OF SUPPORT METHODS USED BY THE PROJECTS DESCRIBED IN THE CASE STUDIES
CONTEXT SETTLEMENT OPTIONS/SITUATIONS SHELTER ASSISTANCE TYPES SUPPORT METHODS

Non- Cash-Based In-kind
Displaced, Displaced,
Tech. Assistance / Quality Assurance

Housing repair/retrofit/rehabilitation
Location Displaced
Transitional/semi-permanent shelter
Interventions Distribution
dispersed communal
Guidelines / Mass communication

/ Returns
Unconditional & Unrestricted

Unplanned site / Settlement
Advocacy / Legal assistance
Training / Capacity Building

Shelter materials (incl. kits)
Planned resettlement sites
Spontaneous / Self-settled
Site / Settlement planning

Loans / Micro-credits etc.
Conditional cash transfer
Planned site / Settlement
Debris / Rubble Removal

Restricted cash/voucher
Dispersed resettlement
Structural Assessment
CASE STUDY
WASH items (& kits)

Host family support
Informally occupied
Permanent housing
Emergency shelter
Collective centres
Site Management
Owner occupied
Household items
Cash-for-Work
Rental support
Infrastructure
Core housing
Host families
Tools/Fixings
Peri-urban
Urban
Rental
Rental
Crisis
Rural
A.1 / BURKINA FASO / 2020-2023 / CONFLICT A.1
A.3 / ETHIOPIA / 2022 / CONFLICT A.3
A.4 / KENYA / 2021-2022 / CONFLICT A.4
A.6 / MALAWI / 2022 / TROPICAL STORM ANA A.6
A.7 / MOZAMBIQUE / 2021-2022 / COMPLEX CRISIS A.7
A.8 / NIGERIA / 2018-2021 / CONFLICT A.8
A.12 / VENEZUELA (REGIONAL) / 2019–2023 / CC A.12
A.13 / ECUADOR / 2020-2022 / COMPLEX CRISIS A.13
A.14 / HONDURAS / 2020-2021 / HURRICANES A.14
A.15 / BANGLADESH / 2021-2022 / FIRE RESPONSE A.15
A.16 / CAMBODIA / 2018-2021 / PREPAREDNESS A.16
A.17 / INDONESIA / 2021 / EARTHQUAKE A.17
A.18 / MYANMAR / 2021-2022 / CONFLICT A.18
A.19 / PHILIPPINES / 2021-2023 / TYPHOONES A.19
A.20 / TIMOR-LESTE 2021 / THE DILI FLOODS A.20
A.21 / GREECE / 2019-2023 / COMPLEX CRISIS A.21
A.23 / UKRAINE (REGIONAL) / 2022-2023 / CONFLICT A.23
A.24 / IRAQ / 2019 / CONFLICT A.24
A.25 / JORDAN / 2018-2023 / SYRIAN CRISIS A.25
A.26 / LEBANON / 2020-2022 / BEIRUT PORT BLAST A.26
A.27 / SYRIAN ARAB REP. / 2021-2022 / CONFLICT A.27
A.28 / YEMEN / 2020-2022 / CONFLICT A.28
This table shows the range of types of projects described in the case studies and the variety of contexts in which they were implemented. The
table gives a summary of:
1. Context: whether projects were located in urban, peri-urban and/or rural contexts.
2. Settlement options/situations: the type of settlements in which people were assisted (or assisted to return/move to).
3. Shelter assistance types: broad categories of the kind of shelter assistance provided by the project.
4. Support methods: the methods and modalities through which people were assisted. This includes different forms of Cash-Based Interventions,
in-kind distributions of a variety of shelter and household items, and a wide range of other support methods.
xvii SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
CASE STUDY ANALYSIS AND development and review phases, contributors were
RECURRING THEMES encouraged to discuss these themes in the data collection
form, and peer reviewers provided commentary to make
For this edition of Shelter Projects, the 24 case studies sure the strengths and weaknesses were justified in the
dealing with the operational implementation of programs project description. The results of the classification were
(excluding overviews) were analyzed by subject experts. For validated and then analyzed to extract findings. These are
each case study, the strengths and weaknesses highlighted presented below and in the table on pages xxiii-xxiv.
were taken as the unit of analysis. Each strength and weak-
ness was assigned up to two themes at the intervention/ It is recognized that case studies have inherent biases
output level and up to two themes at the outcome level. due to each author’s perspective and the varying scope
of different case studies. Strengths and weaknesses are
For example: engaging the community in the project (inter- mostly self-reported, and due to the limited length and
CHART X - Strengths
vention/output) and Weaknesses
led to stronger reported (outcome).
social cohesion in the case studies, by theme
specific scope of Shelter Projects – case studies are not
The strengths and weaknesses of each project were exhaustive and the reality can be more nuanced. Case
assigned themes from a list determined by the Shelter studies are also very diverse because of the varying nature
Projects Working Group, based on those used in the of the context in which projects take place. However, by
previous edition of Shelter Projects. In the case study classifying the strengths and weaknesses of each project,
some trends may be observed.
Project planning
Community engagement
Local authority / Government engagement
Coordination and partnerships
Coverage and scale
Other
Durability of shelter solutions
Social cohesion / Community stabilization
Livelihoods / employment opportunities
Monitoring and Evaluation
Socio-Technical Assistance quality
Occupants’ satisfaction
Gender mainstreaming / Women's empowerement
Timeliness of the assistance
Organizational capacity / Preparedness
Cultural appropriateness of shelter solutions
Links with recovery / wider impacts
Cash and market-based approaches
Disaster Risk Reduction
Security of Tenure / HLP
Habitability / Comfort
Procurement and logistics
Integrated programming / Multi-sectoral approaches
Settlements approach
Advocacy
Accessibility / Disability Inclusion
Adaptability (of shelter solutions)
Environmental sustainability
Geographic Targeting
Health
Targeting of assistance
Cost effectiveness
Protection mainstreaming / risk mitigation
Flexibility of the organization / project
Local private sector and partners
Team composition / Staffing
GBV risk mitigation
Local construction techniques / capacities / materials
Strength (output)
Strength (outcome)
Weakness (output)
Weakness (outcome) -15 -10 -5 0 5 10 15
Fig. 7: Strengths and weaknesses reported in the case studies, by theme.
xix SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
SUMMARY OF FINDINGS FROM THE ANALYSIS

Community engagement, Coordination and partnerships, Durability of
Top five strengths overall
shelter solutions, Social cohesion, Occupants’ satisfaction
Project planning, Coverage and scale, Local authority / Government
Top four weaknesses overall
engagement, Timeliness of the assistance
Community engagement, Coordination and partnerships, Durability of
Top four strengths in conflict responses
shelter solutions, Social cohesion
Top two weaknesses in conflict responses Project planning, Coverage and scale
Top two strengths in disaster responses Commuity Engagement, Occupants’ satisfaction
Top weakness in disaster response Project planning
From the analysis, the most reported theme was Project COMMUNITY ENGAGEMENT
Planning (reported in 15 out of the 24 case studies). The
next most reported themes were Community engage- Community engagement was much more likely to be
ment (13 case studies), Coordination and partnerships (12 reported as a strength than a weakness. As a strength,
case studies), Coverage and scale (11 case studies), Local benefits to the project were reported as putting people
authority / Government engagement (12 case studies) and at the center (A.17), addressing issues at the ground level
Durability of shelter solutions (10 case studies). The most (A.3), and the engagement of vulnerable groups (A.24).
recurring themes found through the analysis described Community involvement helped with messaging (A.15),
above, are briefly expanded below. consultation (A.28), sustained participation (A.8), and
taking community issues into account (A.6). Engagement
PROJECT PLANNING moved further towards empowering beneficiaries in deci-
sion making in A8 where transparency and accountability
Project planning was much more likely to be reported as were encouraged, and in A.12 where the project gave rise
a weakness rather than a strength. It is the theme with to co-creation and co-design.
the most weaknesses overall in the analysis. Time and
timing were the most cited factor in the description of the Longer-term benefits of participation included seeing
weaknesses: in several cases the planned project timeline better care for common areas (A.13) and more resilient
was too short (A.1, A.7, A.8) or parts of the project took shelters (A.18). A.16 saw significant benefits of participa-
longer than anticipated (A.12, A.27). Time planning was tion using the PASSA tool and reported the ‘empowering
also seen as a weakness for not taking into consideration approach of PASSA through further mobilizing communities
national festivals (A.17) or the importance of seasonality and rallying their participation, resources, and commitment as
(A.9, A.25). An interesting weakness was noted in A.20 part of disaster risk reduction management and preparedness,
where there was a recognition that there was a missed and response’.
opportunity to carry out evaluations which would have As a weakness, community engagement was difficult to
documented or captured impact. Where project planning organize (A.3, A.7) and was constrained due to access
was reported as a strength, as in A.12, the project struc- to marginalized groups (A.4) with negative relations with
ture was commended for the clarity of roles between local some parts of the community (A.12).
and regional teams, in A.21 the integration of technology
to aid project planning was a success, and in A.23 planned
flexibility in project implementation was positive.
© Abdullah Al Mashrif
© Bahtiar Yuda
Selection of beneficiaries with a local youth committee, Indonesia. Transportation of bamboo poles for the construction of shelters in Cox’s Bazar.
xx SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
© Abubakar Saidu Garba

Malkohi, Yola South, Adamawa State.
COORDINATION AND PARTNERSHIPS organizations, A.14 described a missed opportunity for

dissemination with local organizations, and A.1 said that
Coordination and partnerships are also much more likely to negotiating with partners took up too much time.
be reported as a strength than a weakness. Collaborations
are reported to have program benefits such as timely
COVERAGE AND SCALE
and quality implementation thanks to productive part-
nership between contractors and engineers (A.26), more Coverage and scale is twice as likely to be reported as
complete understanding of context by coordinating with a weakness as opposed to a strength. The weaknesses
local NGOs (A.4), better communication with persons included the small scale of the project compared to the
with disabilities (A.10) because of partnerships with the need (A.3, A.28) and in A.28 this contributed to raised
appropriate disability organization, and localized and tension in some areas. Limited funding was the cause
culturally appropriate IEC materials due to partnership of limited coverage in A.4 and A.20, and high cost per
between engineers and illustrators (A.20). Appropriate household limited coverage in A.8. It was unclear how the
collaborations with partners at different institutional levels project could be scaled up in A.10 and in A.19 the question
was a common thread: A.1 saw project benefits due to was how scaling up could be done cost effectively. In A.23,
links between humanitarian, development and government market forces provided a barrier to coverage because the
actors, A.14 reported program synergies where organiza- cost of accommodation varied at certain times, such as
tions at national, local and international level contributed during holiday periods, making the cost of accommodation
according to their strengths and expertise, and multi-lay- unsustainable. For strengths, additional partners provided
ered coordination with government authorities in A.14 a route to scale: in A.7 the number of partners increased,
facilitated a large scale rental scheme. Private sector in A.1 technical and financial organizations provided a
partnerships in A.23 helped with data processing. A.19 route to scale, in A.20 a partnership with a local maga-
presented an interesting partnership between diaspora zine gave scale to the project, and in A.21 the project was
and local organizations which offers new idea about how implemented throughout the country.
to benefit localization through the flexibility of diaspora
engagement. Longer term benefits were seen in with LOCAL AUTHORITY / GOVERNMENT
sustained partnerships (A.28) and more enthusiasm for ENGAGEMENT
integrated approaches (A.1).
This theme is evenly balanced between strengths and
Where coordination and partnerships were reported as
weaknesses. Local authority engagement strengthened
a weakness, A.24 detailed a lack of coordination with UN
xxi SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
© Gema Cortés/IOM
Venezuelan migrants stranded in Panama city line up for aid distribution.
projects by promoting understanding of the roles and resilience and the benefit of recognizing and strengthening
responsibilities of local authorities to better respond to the role that diasporas can play as key partners in shelter
security and humanitarian crisis (A.1), helping to rapidly response’. The case study highlights the role that diaspora
establish targeting criteria (A.3), providing robust support can play in private sector engagement, offering ‘unique roles
for the project (A.6), helping with coordination (A.28), that diasporas can play in partnership with other non-tradi-
facilitating building permits (A.12), and increasing program tional actors towards the identification of alternative shelter
synergies (A.14). In A.16 the PASSA process provided financing and increased capacities for affected communities’. It
an effective platform to engage with local authorities to also shows that the diaspora community can contribute to
discuss DRR and HLP. At the outcome level, A.1 reported localization by making an impact at the local level.
that the program enhanced local government capacities on
Case study A.23 demonstrates that the rental market
integrated planning and participatory urban development.
has become the location of several intersecting themes:
The project weaknesses caused by local authorities protection, private sector engagement, transitional shelter
included lack of participation in urban interventions (A.12), and social cohesion. The project addresses directly the
not addressing land allocation issues (A.18), constraining protection challenges of a market-based approach, and
shelter modalities (A.20), delaying the project due to partners with private sector organizations to transform
lengthy decision making on camp closures (A.24) and a an e commerce structure into a protective network to
general lack of commitment (A.25). support recovery. The project enables an exit strategy from
collective centers by providing a transition to longer-term
DURABILITY OF SHELTER SOLUTIONS shelter. There is the concern that the individual approach
offered by the market could have the consequence that
This theme is much more likely to be reported as a strength people may not be able to relate to the community and
rather than as a weakness. Durability was reported as therefore miss out on opportunities and services that
being longer lasting, stronger, safer, more private and more contribute to integration and social cohesion.
resilient. When mentioned as a strength, reasons for dura-
Self-reliance and self-recovery are essential to the success
bility included appropriate construction methods (A.9),
of A.19. The project is based around a loan model with
engagement of community leaders (A.12), the appropriate
beneficiaries carrying out retrofitting themselves. This
technology (A.17), quality of materials (A.26) and quality
approach ‘empowers affected communities to be directly
of foundations (A.27). Community participation in A1.8
involved in their own preparedness, response and recovery
led to improvements in design which made the shelters
contributing to a sense of agency that can be translated into
more resilient. Longer-term durability was reported in
longer term buy in and adoption of (good BBS) practices’.
A.13 where the participatory nature of the project led to
Interestingly, diaspora groups were included in BBS stan-
better care for the shelters in the long-term. Maintenance
dards and practices explanations which enhanced the
was the reason given (A.10, A.25) for the lack of durability
sustainability of rebuilding through knowledge transfer.
when reported as a weakness.
A7 offers the HDP Nexus in physical form. The project
INTERESTING POINTS RAISED IN ‘materializes the humanitarian-development-peace nexus
OTHER THEMES through the creation of resettlement sites with basic living
conditions for the resettled families and an improvement
Diaspora engagement was central to A.19: the project of the services and development opportunities also for the
‘provides a clear example of the importance and impact of dias- surrounding communities’.
pora contributions towards disaster recovery and community
xxii SHELTER PROJECTS 9 TH EDITION

INTRODUCTION
SUMMARY TABLE OF PROJECT STRENGTHS AND WEAKNESSES BY THEME
THEMES THEMES
Links with recovery / wider impacts / durable solutions

Integrated programming / Multi-sectoral approaches
Social Cohesion / Community stabilization / Resilience

Local construction techniques / capacity / materials
Gender mainstreaming / / Women’s empowerement
Targeting of assistance (beneficiary selection)

Cultural appropriateness of shelter solutions
Local authority / Government engagement
Protection mainstreaming / risk mitigation

Geographic Targeting (project locations)
Livelihoods / employment opportunities
Organizational capacity / Preparedness

Flexibility of the organization / project
Cash and Market-based approaches
Socio-Technical Assistance quality

Adaptability (of shelter solutions)
Accessibility / Disability Inclusion
Local private sector engagement

Coordination and partnerships
CASE STUDY
Durability of shelter solutions
Team composition / Staffing

Environmental sustainability
Timeliness of the assistance

Monitoring and Evaluation
Procurement and logistics
Security of Tenure / HLP

Community engagement
Disaster Risk Reduction
Occupants’ satisfaction
Habitability / Comfort
Settlements approach
GBV risk mitigation
Coverage and scale
Cost effectiveness
Project planning
Advocacy
Health
Other
Crisis
A.1 / BURKINA FASO / 2020-2023 / CONFLICT S SW W S A.1 S S S W

W W S
A.3 / ETHIOPIA / 2022 / CONFLICT W SW W A.3 W W S S S S W
A.4 / KENYA / 2021-2022 / CONFLICT S W S W S S A.4 S W W S SW
A.6 / MALAWI / 2022 / TROPICAL STORM ANA S S A.6 S S S W S S W
A.7 / MOZAMBIQUE / 2021-2022 / COMPLEX CRISIS W S S A.7 S S W W SW
A.8 / NIGERIA / 2018-2021 / CONFLICT W S W S A.8 W S S W W W
A.9 / NIGERIA / 2021-2022 / CONFLICT S S A.9 S S S W W W S W
A.10 / NIGERIA / 2021-2022 / CONFLICT S S W W A.10 S W W S W
A.12 / VENEZUELA (REGIONAL) / 2019–2023 / CC SW S A.12 S SW W SW S S W
A.13 / ECUADOR / 2020-2022 / COMPLEX CRISIS S S S S A.13 W S W S S
A.14 / HONDURAS / 2020-2021 / HURRICANES S A.14 S S W W W
A.15 / BANGLADESH / 2021-2022 / FIRE RESPONSE S A.15 S W S W
A.16 / CAMBODIA / 2018-2021 / PREPAREDNESS S W S A.16 S S S S S
A.17 / INDONESIA / 2021 / EARTHQUAKE S S A.17 S S S W W W
A.18 / MYANMAR / 2021-2022 / CONFLICT S S S A.18 W S W W
A.19 / PHILIPPINES / 2021-2023 / TYPHOONES S W A.19 S S W S
A.20 / TIMOR-LESTE 2021 / THE DILI FLOODS S SW S SW S S A.20 S S W S W S
A.21 / GREECE / 2019-2023 / COMPLEX CRISIS W S S A.21 W W S S W
A.23 / UKRAINE (REGIONAL) / 2022-2023 / CONFLICT S SW S W A.23 SW SW S W S S S SW S S
A.24 / IRAQ / 2019 / CONFLICT S W A.24 S W W S SW
A.25 / JORDAN / 2018-2023 / SYRIAN CRISIS S S W S A.25 S W W S S
A.26 / LEBANON / 2020-2022 / BEIRUT PORT BLAST S S S W A.26 S S S W W S
A.27 / SYRIAN ARAB REP. / 2021-2022 / CONFLICT W S S S A.27 S W S
A.28 / YEMEN / 2020-2022 / CONFLICT S S W S A.28 S S W W
xxiii SHELTER PROJECTS 9 TH EDITION

SECTION A
CASE STUDIES
& OVERVIEWS
Two Burundian sisters who returned from the United Republic of

Tanzania as orphans, celebrate their repaired mud brick home
alongside members of their community.
© Amber Christino
AFRICA A.1 / BURKINA FASO 2020-2023 / CONFLICT CONFLICT
CASE STUDY BURKINA FASO 2020–2023 / CONFLICT

KEYWORDS: Area-based approach, Core housing, Humanitarian-Development-Peace Nexus, Social cohesion
CRISIS Humanitarian and Displacement Crisis

Mali
PEOPLE AFFECTED 3.5 million people in need* Mauritania
SAHEL
PEOPLE DISPLACED 2 million people approx.** CENTRE-
NORD
NORTHERN
PEOPLE WITH Niger
SHELTER NEEDS 1.5 million people* BAHR EL
GHAZAL
WARRAP
WESTERN
PROJECT LOCATION Kaya, Tougouri, Kongoussi, and Dori across two regions BAHR EL JONGLEI
OUAGADOUGOU
GHAZAL
LAKES
312 HHs (1,800 individuals) with access to housing
15,000 people in each municipality had increased WESTERN EASTERN
Benin
PEOPLE SUPPORTED EQUATORIA
access to public and community infrastructure EQUATORIA
BY THE PROJECT Côte d’Ivoire
CENTRAL
Ghana Togo
4,000 people received trainings EQUATORIA
125,000 indirect beneficiaries Project Location
Establishment of the “Cellules Municipale de PROJECT SUMMARY

Resilience Urbaine” (CRMU), a multi-sectoral
Burkina Faso is facing a security crisis resulting
local coordination body | Urban plans at city and
in massive displacement into urban areas. The
neighborhood levels | 312 housing units in four
project aimed to increase the overall resilience of
cities | Interventions in 4 schools (construction and
local authorities and the most vulnerable affected
PROJECT OUTPUTS extension activities) | 4 public health facilites
communities through an integrated approach
constructed | 4 water towers built | Trainings for local
which included: capacity building of stakeholders,
authorities on urban and territorial planning | Deployment
enabling access for the most vulnerable among
of four urban experts to support urban planning
IDPs and host communities to adequate housing,
capacity | Social, economic, and environmnetal
basic urban services, and public spaces, improving
development activities
socio-economic inclusion and social cohesion, and
reducing the environmental impact of rapid urban
Housing: 30 m2 per HH | Schools: 200 m2 each |
SHELTER SIZE population growth.
Health facilities: 200 m2 each
SHELTER DENSITY 3.5 m2 per person *Humanitarian Response Plan 2022

**Lamarche, A., Bentley, A. (2022). After the Coup:
DIRECT COST USD 5,000 per housing unit, including toilet Burkina Faso’s Humanitarian and Displacement Crisis
Note: The Project Cost is not available, as the project costs include health, education, water and other facilities; as well as normative tools; training/capacity
building, and social/economic/environmental development activities.
1 2 3 4 5 6 7 8 9 10
IMPLEMENTATION PHASE 2 11
PROJECT
PLANNING IMPLEMENTATION PHASE 1 HANDOVER
CONTEXT
CONFLICT
TIMELINE OCT JAN FEB MAR APR AUG NOV DEC JAN FEB MAR APR AUG
2015 2020 2021 2022 2023
2015: Increased conflict and insecurity in Burkina Faso. 6 Feb – Mar 2022: Follow-up on land allocations for validity.
1 Feb - Mar 2021: Participatory planning process and capacity 7 June - Aug 2022: Provision of access to water services.
development activities at local and community level including all
stakeholders. 8 Aug 2022: Handover of public infrastructures to government.
2 Apr 2021: Community consultations for deicison-making. 9 Sep 2022: Second coup d’état takes place, which impacted the
period of construction.
3 Aug 2021: Securing land; ensuring landownership regulations.
10 Jan - Mar 2023: Planned construction of housing units.
4 Nov 2021 - May 2022: Starting of construction of public infra-
structures. 11 Jul 2023: Planned handover of housing units to the community.
5 Jan 2022: First coup d’état takes place, changing governance structures.
2 SHELTER PROJECTS 9 TH EDITION

CONFLICT A.1 / BURKINA FASO 2020-2023 / CONFLICT AFRICA
CONTEXT SITUATION DURING/AFTER THE CRISIS
Since 2015, Burkina Faso has struggled with violence from As many IDPs fleed from their homes and areas of origin in
non-identified armed groups (NIAGs) strongly impacting urgent need, many arrived in urban areas without money,
peace, development efforts, and social cohesion. This goods, or livestock. As a result, food security, access to
violence led to a large‑scale displacement crisis with water and shelter, and socio‑economic development
approximately 1.9 million people recorded as internally opportunities were among their major needs. These depri-
displaced as of January 2023, forced from their homes vations often forced IDPs to settle in the urban periphery
in search of safety, shelter, and livelihood opportunities or in informal, unplanned areas in inadequate shelters with
(UNHCR, 2022). In the beginning, violence had centered limited access to basic services. As the displacement crisis
on and increased in the North, Center‑North, Boucle in Burkina Faso has by now become protracted, compe-
du Mouhoun, East, and Sahel regions, however it is now tition for natural resources, land, services, and livelihoods
affecting most regions of the country. is intensifying and contributing to the degradation of land
and living environments while impacting social cohesion
When the project was designed. between March and
between host and displaced communities. Unsurprisingly,
September 2020, conflict and attacks had led to more than
women and girls are among the most vulnerable to such
1 million internally displaced persons (IDPs). This massive
impacts, thus increasing gender‑based violence (GBV).
wave of displacement had triggered a rapid urbanization
process, particularly affecting small and intermediate cities,
thus causing enormous urban planning and management NATIONAL SHELTER STRATEGY
difficulties to both national and local authorities. In addi-
The government has identified national reconciliation
tion, military coups d’état took place in January and in
and social cohesion as one of four strategic priorities for
September 2022, leading to changes in nearly all governing
the transition period after the second coup d’état (Sept
positions, including the head of state, ministers, regional
2022). Among the priorities in the Action Agenda for the
authorities, and mayors.
Transition is the support for emergency housing as part of
the crisis response.
SITUATION BEFORE THE CRISIS
The current government shelter strategy prioritizes
Before the current crisis, Burkina Faso faced a myriad of vulnerable populations, in particular female‑headed house-
development challenges as one of the world’s least devel- holds, children, the elderly, and people with disabilities. The
oped countries. In 2014, the country ranked 183 out of 186 government is supported by humanitarian and develop-
on the Human Development Index (HDI), struggling with ment actors, who are working to ensure sustainable urban
chronic vulnerabilities, food insecurities (1.3 million people development and more durable shelter solutions. For their
in need), recurrent shocks (droughts, floods, epidemics, construction, changes in land use and enforcement of
locusts, etc.) and challenges in responding to the needs housing, land and property (HLP) need to be obtained in
of 34,000 refugees displaced from Mali due to ongoing adequately located urban and peri-urban areas. However,
conflict. Urbanization was advancing rapidly before the due to the unforeseen dimension of the displacement crisis,
crisis, leading to accelerated growth of informal settlements the government agreed to the establishment of “SATs”
and inadequate living conditions in terms of housing and (Sites d’Abri Temporaire – transitional shelter areas) in
service provision. However, while some of these dynamics either peri‑urban areas or at a certain distance from cities
were already pressing before the crisis, it was only after the and towns. Many of the SATs are overcrowded, located far
large-scale conflict-induced displacement that national and from basic services and from livelihood opportunities in
international attention was drawn to these challenges and urban areas and often don’t provide adequate living condi-
the need to develop specific “urban” solutions. tions, e.g. inadequate shelter, insufficient water, sanitation
and hygiene (WASH) services, etc.
© Sheila Sanouid
Inadequate living conditions of the IDPs in Kongoussi, one of the locations of the project.
SHELTER PROJECTS 9 TH EDITION 3

PROJECT DESIGN
The project’s approach and design were guided by the

need to identify and implement durable solutions in four
selected The project’s approach and design were guided
by the need to identify and implement durable solutions in
four selected cities/towns – Kaya, Konguossi, Tougouri, and
Dori – while fostering humanitarian‑development‑peace
nexus through the construction of more than 300
adequate housing units for people in vulnerable situations,
© Sheila Sanouidi
as well as basic and social services, such as access to safe
drinking water, dignifying sanitation facilities, schools,
health centers and green public spaces. The project was
conceptualized to include development‑oriented actions
(inclusive governance, participation of displacement-af- For increased ownership of the project, the new neighborhoods and housing
fected communities, capacity building, increased service units were designed in a participatory planning process, including all relevant
stakeholders at all levels.
provision, access to HLP rights, etc.) implemented in
humanitarian crisis contexts and fostering local integration
now thrive in an improved urban environment with better
of displaced people into urban communities by strategically
opportunities for their socio-economic development, thus
selecting project locations that were close to city centers
fostering social cohesion between communities.
and could be densified and would allow a social population
mix. The adequate location of the project sites favored This approach was relevant as it responded to the need to
more investments from public authorities, such as building empower local authorities, in particular municipal author-
an access bridge or bringing electricity in the case of Kaya. ities, which are on the front line in these crises. However,
Displaced and host communities benefitted from the authorities often lack the financial means or technical
project’s co‑design elements, which included participation capacity to carry out needed participatory urban planning
and decision-making on what services were needed in the and crisis management processes to scale up housing and
selected neighborhoods, as well as joint skills development basic service provisions to timely and adequately address
for increasing access to livelihood opportunities. As local the impacts of massive internal displacement. Thus, it was
authorities were key actors and would provide services considered essential to implement durable solutions that
such as water, energy, education and health in the long built on synergies with government priorities and logi-
term, the project was developed and implemented in close cally addressed the ongoing humanitarian challenges. The
cooperation with them and decentralized government project included four outcomes:
authorities with aim to increase trust between populations Outcome 1: Increased institutional capacity of local author-
and public authorities that were now seen as fulfilling their ities for urban planning and management in selected urban
social contracts. areas impacted by massive displacement and COVID-19.
The overall objective of the project aimed to strengthen Outcome 2: Enhanced social cohesion by applying
the capacity of local authorities to respond to challenges participatory planning approaches and consultations for
and issues raised by the displacement crisis and local urban awareness raising on land tenure rights, gender issues and
development using an integrated area-based approach. improved urban environments.
This would be done by providing host and displaced
populations in vulnerable situations with access to better Outcome 3: Improved access to adequate housing, basic
living conditions, adequate shelter/housing, tenure security, services, and public space to people in vulnerable situations
basic social services including WASH and improved health from both host and displaced communities, enabling them
and education facilities. Overall, these populations would to live a dignified life and enhancing social cohesion.
© Bertin Korogo
© UN-Habitat
In the city of Kongoussi, the project activities included the construction of 57 housing units, and water supply infrastructure (Left) Construction phase; (Right)
Completed construction.

Outcome 4: Mitigated environmental impact of large-scale • the houses, benefit all people in a neighborhood, i.e.
population movements in the targeted municipalities. local and displaced communities, thus helping to reduce
tensions between them. Coordination through the
In accordance with these premises, the project was
CMRUs ensured that local mechanisms were set up to
designed with the following methodological approaches
maintain services even after the crisis, thus increasing
and rationales:
local ownership, including at neighborhood level.
• A whole-of-government approach with multi-level
• The project used integrated urban and territorial plan-
governance, multi-sectoral cooperation, and a specific
ning approaches, which are cross-sectoral by nature,
focus on enhancing the capacity of local authorities from
as an entry point for promoting sustainable (urban)
different sectors was utilized. Local authorities were
development. This approach is essential when housing,
key actors, while national actors supported the process
basic services, and strategies to foster social cohesion
led by the Ministry for Urban Development. This also
and livelihoods are needed.
included cooperation/coordination with the Ministry
for Humanitarian Action, the Ministry of Education, • A strong emphasis was put from the very beginning on
the Ministry of Health, the Ministry of Finance, and the making land in the selected locations available for the
Ministry for Environmental Protection, Especially through project. Indeed, if unsolved, land issues create longer-
their decentralised services in the targeted regions. term challenges, leading to secondary displacement or
conflict and hindering further investments. Ensuring
• The inclusion of all relevant local stakeholders in deci-
that HLP rights have been cleared with local and tradi-
sion-making processes, including local and decentralised
tional authorities and transparently communicated
government officials, host and displaced community
with communities, is crucial for implementing durable
representatives, faith leaders, traditional leaders, the
solutions
private sector, and academia through the establishment
of Municipal Urban Resilience Cells (Cellules Municipales The project builds upon the strategies developed by the
de la Resilience Urbaine, or CMRUs, led by the Mayor. government and works closely with the local authorities
by utilizing development-oriented, long-term planning for
• Integrated area-based approaches including consider-
urban population growth, acknowledging that the displace-
ations for social, economic, and environmental devel-
ment situation is protracted and that [some] households
opment as well as cross-sectoral coordination. Area-
or household members will not return quickly, but also
based approaches focus on improving living conditions
aiming to improve living conditions for all people living in
in a given geographical area (neighbourhood, village
the selected neighborhoods. It was considered important
or town) rather than a sector or target group. Thus,
to not only supply housing, but also increase the govern-
project outputs, which include WASH, education and
ment’s ability to provide additional services (education;
health facilities and public green spaces in addition to
© UN-Habitat
In the city of Kaya, the project activities included the construction of 100 housing units.

IMPLEMENTATION
With the purpose of ensuring an integrated multi-sector

approach and providing local authorities with the neces-
sary skills and knowledge, CMRUs were established in
each project location. Existing coordination structures at
the municipal level were accounted for, and a platform to
share alternative viewpoints and jointly find solutions at
local level was provided.
As the main decision-making and steering mechanism body,
CMRUs consisted of representatives from relevant munic-
ipal services from different sectors, government structures
at the provincial and regional levels, concessionary services
(e.g. for water and electricity), local community leaders,
© UN-Habitat
and representatives of displaced communities. To help
ensure a participatory nature, CMRUs were used for local
consultations, as conflict resolution bodies (e.g., on land),
and for ensuring local ownership of the infrastructure and Four neighborhoods (communal housing estates) have been built in four cities
of Burkina Faso, with a total of 312 housing units.
improved neighborhoods. Through the project, CMRUs as
well as local authorities benefitted from the support of
four national Urban Experts from the implementing organ- Detailed urban plans were developed in each target loca-
ization, one based in each targeted municipality. tion, building on consultations between the CMRUs and
landowners. This participatory planning exercise allowed
To ensure that the project also led to and contributed to priority areas to be identified for housing interventions,
changes in policies and institutional processes (e.g., urban service expansion, and public spaces. Criteria for sites
planning and approval procedures), a rapid review of the included: (i) the accessibility and location within the urban
existing planning instruments was implemented using a fabric for fostering social inclusion and cohesion, as the
participatory planning approach. Resulting recommenda- project benefitted all people within the neighborhood); (ii)
tions included taking the crisis dimension into local devel- land tenure rights held by or transferred to municipalities;
opment plans, fostering participatory and inclusive local and where possible, (iii) sites already part of a planned
processes, and identifying priority areas of interventions in neighborhood or planned city extension.
the short, medium, and long-term.
The housing units, which were designed through partici-
patory planning sessions with the CMRUs, were later built
LAND ALLOCATION AND TENURE
taking consideration of cultural and climatic specificities, as
Acknowledging that questions on HLP rights are critically much as the budget allowed. The housing units built have
important and to avoid further conflict over the use of toilets, (off-grid) electricity and were planned of a similar
limited natural resources, the CMRUs were also crucial standard to homes in neighboring areas to avoid tensions
for conflict prevention and resolution, particularly on between local and new residents. Each targeted neighbor-
land tenure issues. Land for housing units was provided hood included access to water, a public green space and
by the municipalities in three cities, while negotiations nearby health and education facilities which were built and
and compensation processes with traditional landowners improved.
(applying land value capture) were necessary in Tougouri, a
municipality where the population had tripled in just two TARGETING
years because of displacement. Where applicable, land-
owners were compensated by the allocation of plots in CMRUs were responsible, in collaboration with the local
upgraded areas; in most cases, plots were demarcated on government humanitarian coordination teams, for selecting
municipal/public land. beneficiaries for the houses (312 households, or 1,800
Detailed urban plans were developed in each target loca-

tion, building on consultations between the CMRUs and
landowners. This participatory planning exercise allowed
priority areas to be identified for housing interventions,
service expansion, and public spaces. Criteria for sites
included: (i) the accessibility and location within the urban
© Sheila Sanouidi
fabric for fostering social inclusion and cohesion, as the

project benefitted all people within the neighborhood); (ii)
land tenure rights held by or transferred to municipalities;
and where possible, (iii) sites already part of a planned
neighborhood or planned city extension. Extension building for Health Center in Dori, March 2022.

individuals in total in the project). Vulnerability criteria longer than expected. Given these delays, by the time
focused on economic and social situations, particularly construction was to begin – prices for construction mate-
supporting female-headed households. There was a quota rials had increased. As a solution to budgetary challenges,
for IDPs, but also for local populations in vulnerable situ- the overall number of homes was reduced from 500 to
ations to ensure a social mix in the new neighborhoods. 312 units. Those houses provided families with adequate
Displaced and local communities were represented in the accommodation of a limited size (two rooms), toilets,
CMRUs, as a primary decision-making body at the local off-grid electricity and a small courtyard.
level of the project.
CROSSCUT TING ISSUES
MAIN CHALLENGES
The project included activities for awareness raising on GBV,
The coups d’état in January and in September 2022 changed and a strong component on environmental care. The selec-
the governance structures of Burkina Faso and impacted tion criteria of participants put a strong effort into gender
the project, as the head of state, ministers and mayors were balance for housing units and socio-economic activities.
dismissed. However, many technical actors belonging to the
CMRUs remained in service and capacity-building activities have TECHNICAL SOLUTIONS
proven useful to strengthen long-term institutional capacity.
While exchanges between mayors were not possible after the Toilets constructed used specific technology which was
coups, decisions, where necessary, needed to be postponed more ecological by allowing a lower frequency of emptying
until the mayors were replaced by local government bodies. pits. These used a specific filter method to separate liquid
from solid excrement. The septic tank is designed to be
The declining security situation also heavily impacted project ecological, in the sense that it allows for the infiltration of
implementation. Rising incidents of violence have, by June water by decantation and filtration into the water table,
2022, restricted access to Dori and Tougouri, reducing after decomposition by enzymes.
the mobility of project staff. However, construction firms
continued working while regular site visits for quality control
were conducted by local partners, such as the team of archi- EXIT/HANDOVER
tects and engineers, while project staff carefully supervised Through CMRUs, the project put local actors at the center
operations remotely mainly through video phone calls. regarding its needs assessment, capacity‑building, and
Despite the inclusion of landowners in the CMRU sessions ownership. By ensuring that the CMRUs, which included
and mediations, processes and conflicts surrounding land local authorities, had ownership and decision‑making
allocation, land rights and the demarcation of sites took power – the local-level capacity to prepare for and respond
© Stephanie Loose
Each targeted neighborhood included access to water, a public green space and nearby health and education facilities which were built and improved.

to crisis and displacement was increased. It was clear from Outcome 2: Local government actors achieved a better
the beginning that public infrastructure would be managed understanding of engaging in participatory and inclusive
and maintained in the long term by local actors, thus urban planning processes, as the CMRUs are now insti-
helping to ensure sustainability, including e.g. the provision tutionalized (by municipal law). For example, in Dori, the
of teachers for the schools or equipment and staff for the Municipal Development Plan has been formally approved,
health centers. with the CMRU being consulted on its content, marking
the first time IDP representatives have had the possibility
OUTCOMES AND WIDER IMPACTS to influence the development of a strategic plan at the local
level.
Outcome 1: The overwhelming feedback from partic-
Outcome 3: More than 1,800 people have now access
ipating authorities confirmed that the establishment of
to decent housing in the four project neighborhoods and
highly collaborative mechanisms for the coordination of
many more to water, education and health services. There
decentralized government services, service providers,
is a clear improvement in access to basic social and public
and populations through the CMRUs has proven to be
services for IDP and vulnerable populations. The exten-
successful and replicable in other locations. For example,
sions of schools and health centers and drilling of water
Kaya and Dori are two regional humanitarian hubs where
service points are benefitting 100,000 people in the four
the CMRUs are now the official coordination bodies
target cities/towns. They were handed over to government
between local authorities and Humanitarian-Development-
authorities, as well as 312 new housing units and public
Peace actors. Overall, the selected municipalities have an
spaces in formally planned neighborhoods.
increased understanding of the components needed for
sustainable, inclusive, and integrated urban development, Outcome 4: The capacity and mechanisms for waste
which will influence future development planning and management where enhanced in the targeted neighbor-
enable the advancement of inclusive/participatory govern- hoods, and alternative cooking methods introduced to
ance processes. reduce wood consumption. Awareness was raised of the
importance of environmental care.
© UN-Habitat
One of the four primary schools built through the project in the four areas of intervention.
© UN-Habitat
Four water towers and 19 standpipes were built in the four neighborhoods to facilitate access to water for vulnerable populations.

STRENGTHS, WEAKNESSES AND LESSONS LEARNED
STRENGTHS WEAKNESSES
√ The project reinforced the understanding of the x Context-specific solutions had to be found for clar-
roles and responsibilities of local authorities to ifying land ownership and allocating suitable land to
be better prepared and able to respond to urban avoid major delays. Individual landowners challenged
crisis contexts provoked by massive displacements, decisions regarding the plots and its usage, delaying
also advancing the humanitarian-development-peace construction processes in Kaya and Tougouri, while
(HDP) nexus in Burkina Faso. land allocation of suitable land in Dori took longer than
expected where urban land available for construction
√ The project enhanced local government capac-
ities for integrated urban and territorial planning
was very difficult to find.
and participatory urban development processes. x Land questions required several follow-up meet-
Municipal and decentralized government actors ings and consultations with all relevant stakeholders,
utilized the tools and methodological approaches to which was not originally accounted for in the given
urban planning based on spatial and cross-sectoral time frame and budget allocation.
analysis. HDP nexus approaches will now be included x The process to demarcate land and plots is usually
in upcoming guidelines for future planning tools and led and financed by the municipal authorities. It was
the CMRU is established as an important mechanism therefore not factored into the project’s budget. Due
for coordination. to the lack of capacity and resources of local authori-
√ Living conditions for local and displaced populations ties, more financial support and time from the project
in project locations have been enhanced through was needed than initially allocated.
improved access to basic social and public services,
x The relevant procurement processes were lengthy
and there was increased potential for mix-use and
and complex. Because these processes relied on
social mix in the neighborhood and public housing
available land for construction, there was a thin line
projects.
between advancing procurement operations (and
√ The project enhanced coordination between taking risks during the construction) or waiting for all
humanitarian, development, and government actors stakeholders to be “in consent” until all challenges in
at the city level by making the CMRUs the single the neighborhoods were resolved.
interface for interactions between municipalities and
x The project’s construction budget was relatively
humanitarian and development structures. As noted,
low. Considering that construction prices increased
an interest in integrated and inclusive approaches has
massively during the project’s implementation phase,
emerged, leading to increased enthusiasm for coordi-
the situation didn’t allow for building all originally
nation and partnership between actors.
planned 500 housing units or to innovate by using local
√ The project findings influenced the current devel- building materials and implement designs for natural
opment of the Durable Solution Strategy for cooling, which could have advanced energy efficiency.
Burkina Faso, now including consideration of inte-
x The project’s budget did not consider the increased
grated approaches and land questions in the currently
security restrictions for site visits and missions
ongoing processes for national-level strategies.
following the degraded security context in the
√ Advocacy for durable and longer-term solutions to country, putting challenges on mobility of project staff
the IDP crisis increased through the project. and members of the CMRUs, reducing the frequency
√ Financial and technical partners have shown strong and opportunities for exchanges between local actors
interest resulting in ongoing discussions on how to of the four cities.
upscale the project’s approaches and currently the x The original anticipated project timeline was too
project’s approach is being replicated for a new initi- short.
ative which includes housing and urban agriculture in
displacement-affected municipalities.
√ The participation and engagement of local part-
FURTHER READING ON SHELTER PROJECTS
ners who remained in service made it possible to
continue implementation during and after the January On Burkina Faso: A.1 / BURKINA FASO 2019–2020;
and September 2022 coups d’état and throughout the A.2 / BURKINA FASO 2012 B.2 / BURKINA FASO 2009
continually declining security situation. On HDPN: A.3 / CHAD 2018–2020
On social cohesion: A.32 / TURKEY 2017–2018;

LESSONS LEARNED
• The strategic choice of the locations for the project interventions (selected neighborhood in each city/
town) was crucial: all neighborhoods are located close to the city center and where the city is planned to
grow. Today these neighborhoods are occupied by the most vulnerable (host and displaced communities); if
tomorrow IDPs decide to return to their areas of origin, these newly built-up areas, which are managed by
the municipalities (i.e. these are publicly managed assets for social purposes) will surely be occupied by others.
Basically, the project has favored accelerated urban growth in a location where the city would have grown
anyway. The project triggered important investments from central government in Kaya, for example, where
a bridge was built to facilitate the access to the selected site and electricity was brought in through central
government funds.-
• The area-based approach applied at both city and neighborhood levels allows for a spatially integrated
and coherent intervention which leads to social cohesion between displaced and host communities, also
thanks to the adopted participatory approach. It avoids spatial discrimination of IDPs, which is common when
humanitarian actors set up camps or temporary resettlement sites are built 5-10 km away from the city, and
favors economy of scale and livelihoods/job opportunities for all.
• Technical coordination groups like the CMRUs are valuable coordination bodies at the local level, enabling
representatives of local and displaced communities to exchange and take decisions jointly, and encouraging local
authorities and leadership fostered ownership and trust.
• The Urban Experts which were deployed during the project were important to increase the ‘urban
capacity’ of local authorities as they were integrated with the local governance system, fostering coordination
between different actors at the local level for building capacity on sustainable development approaches.
• The evaluation of existing planning tools and the analysis of how those can be adapted to crisis contexts is
crucial.
• Identifying land for interventions and solving land rights and ownership challenges with the close collabo-
ration of local authorities is vital.
• Working with a local partner for urban plans and applying participatory planning processes (including for
needs assessment and housing) helped to ensure that structures were aligned with Burkinabe standards.
• Constant follow-ups with construction firms are important to ensure that the desired quality of construc-
tion is met, and timelines are respected.
• Awareness-raising activities are useful, but there is a need to further incorporate activities around environ-
mental care, reduce inequalities and increase service provision capacity and resources in municipal strategies
for longer-term impacts.
RECOMMENDATIONS MOVING FORWARD
• The project provided more than 1,800 people access to safe and dignified shelter, and approximately 100,000
people can now access water, education and health facilities – this high number of beneficiaries is mainly due to
the water point drilled in Dori which is producing an exceptional high discharge for such an arid area, benefiting
the whole city of more than 50,000 people. It also put local government and local actors, such as local and
displaced communities in the center for decision-making process.
• Due to the scale of the crisis, it will be important to scale the project to different locations and in size, to
increase the number of people, who’s shelter needs can be met – but also, who’s needs regarding livelihood
opportunities, education, health and other components, which need an integrated approach, can be met.
• The project’s focus on Shelter – as main entry point for increasing the opportunities for people in extremely
vulnerable situations – for their access to water, health and other services but also livelihood opportunities,
clearly showcases the centrality of shelter, but also its “wider impact” on other their possibilities to live a digni-
fied live.
• The area-based approach and proper decision-making on where to intervene are key aspects to foster durable
solutions and promote the HDP nexus. There is a need to apply adequate spatial planning reasoning so that any
project intervention can have multiplier effects. This was clear in the case of Kaya where central government
basically decided to add funds to the project by building the bridge and bringing the electricity, which represent
major investments.
10 www.shelterprojects.org SHELTER PROJECTS 9 TH EDITION

COMPLEX/MULTIPLE A.2 / DEM. REP. OF THE CONGO 2022 / COMPLEX CRISIS / OVERVIEW AFRICA
OVERVIEW DEM. REP. OF THE CONGO 2022 / COMPLEX CRISIS
Persistence of armed and inter-community Sudan

CRISIS Chad
conflicts in the in eastern of DR Congo
PEOPLE AFFECTED
27 million people in need Cameroon
Central
South
African
8.8 million people targeted in 2022* Republic Sudan
NORTHERN
PEOPLE WITH BAHR EL
SHELTER NEEDS 4 million people* GHAZAL ITURI
WARRAP
Congo
WESTERN
Gabon JONGLEI
NORTH
LOCATION Ituri, North Kivu, South Kivu, Tanganyika provinces BAHR EL KIVU
GHAZAL
LAKES
SOUTH
PEOPLE SUPPORTED KINSHASA KIVU
IN THE RESPONSE 460,475, among which 238,285 women WESTERN EASTERN
Tanzania
EQUATORIA EQUATORIA
CENTRAL
75,077 shelters built Angola
EQUATORIA
TANGANYIKA
460,475 people assisted in shelter including:
• 185,000 people received transitional shelters Response Location Zambia
RESPONSE OUTPUTS • 138,000 people received emergency shelters
• 56,000 people received light assistance kit
in shelters (2 tarps) *Humanitarian Needs Overview, DRC, 2022
• 32,000 people assisted with rental support
SUMMARY OF THE RESPONSE
The Democratic Republic of Congo has been facing a complex and protracted crisis, or a crisis characterized by a continuous resurgence for the last
25 years. In 2022, the number of people in need of shelter was estimated at 4 million (HNO); of which 1 million were targeted within the response
(HRP). By the end of 2022, only around 460,000 people had received some kind of shelter assistance.
1 2 3 4
PROJECT
RESPONSE
CONTEXT
TIMELINE MAY FEB MAR APR MAY JUN JUL AUG SEP OCT
1998 2022 2023
1998: The Second Congo War, also known as the Great War of
Africa or the Great African War, began in the Democratic Repub‑
lic of the Congo in August 1998.
May 2021: Volcanic eruption of Nyiragongo displaced 450,000

people in the region.
1 Feb 2022: Strategic workshop with sectoral donors in Kinshasa.
2 Mar 2022: Decline of the March 23 Movement (M23).

© DRC Shelter Cluster
3 Mar 2022: Establishment of the Environmental Protection Work‑

ing Group.
4 Oct 2022: Evaluation of the impact of shelter interventions on

the environment in Tanganyika and South Kivu provinces.
Emergency response - Construction of emergency shelters on site.

AFRICA A.2 / DEM. REP. OF THE CONGO 2022 / COMPLEX CRISIS / OVERVIEW COMPLEX/MULTIPLE
CONTEXT SITUATION BEFORE THE CRISIS
The Democratic Republic of the Congo (DRC) is the third The situation in the DRC is that of a prolonged crisis, and
most populated country in Africa, with over 100 million thus it is difficult to describe the situation prior. However,
inhabitants. It shares borders with nine neighboring coun‑ according to the study published in 2019 by the DRC Shelter
tries: Angola, the Republic of Congo, the Central African Cluster with the support of CRATERRE on local constructive
Republic, South Sudan, Uganda, Rwanda, Burundi, Tanzania, cultures for sustainable and resilient habitats, populations
and Zambia. lived in a variety of homes before the advent of the crisis.
Inhabitants of different regions developed local solutions
The DRC is experiencing one of the most complex
to adapt to their contexts and meet needs by using locally
humanitarian crises in the world, with multiple conflicts
available resources for the construction of their housing.
affecting several parts of its vast territory. The country
According to another survey on the perception of poverty
is home to the largest population of Internally Displaced
conducted by the Unité de Pilotage du Processus d’Élabo‑
Persons (IDPs) in Africa, with nearly six million people
ration et de Mise en Oeuvre de la Stratégie de Réduction
displaced to date. Since 2021, the provinces of North
de la Pauvreté (Poverty Reduction Strategy Development
Kivu and Ituri have been under a state of siege, due to the
and Implementation Process Steering Unit), 81 percent of
resurgence of armed and intercommunal conflicts. In May
households said they were not satisfied with their housing.
2021, the province of North Kivu experienced the volcanic
According to the same source, 76 percent of households
eruption of Nyiragongo, displacing nearly 300,000 inhabi‑
lived in overcrowded settings throughout the country. It
tants of some neighborhoods in the city of Goma. During
is therefore in a context of underdevelopment and struc‑
2022, the security and humanitarian situation deteriorated
tural challenges. The country has 145 territories with a
further in the eastern provinces (North Kivu and Ituri)
total of 339 communes, including 137 urban communes
and the western province of Mayi‑Ndombe. In addition,
and 202 rural communes. The provinces of North Kivu,
flooding affected the entire country, particularly the city of
South Kivu, and Ituri account for 50 of the communes, 80
Kinshasa and the province of Equateur, between October
percent of which are in rural areas. In total, these three
and December 2022.
provinces are home to a population of more than 21
With the crisis-affected areas primarily accessible by air, million people, or approximately 21 percent of the total
logistic challenges and constraints remained throughout population of the DRC (estimated at 106 million in 2022).
2022 given the size of the country and the bad condition
of its road infrastructures. Additionally, the cancelation The context of North Kivu provides a better illustration of
and/or price increase in United Nations Humanitarian Air the situation before the onset of the crisis. Indeed, when
Service (UNHAS) flight services reduced the humanitarian the Nyiragongo volcano erupted in 2021 the population of
actors’ response capacity to assist in those areas. This Goma was approximately 400,000. Today, it is estimated
problem led many actors to resort to private companies, to be over one million. The city has experienced waves of
despite persistent untimely cancellations of flights from migration from the countryside. This demographic growth
their side too. In addition, the war in Ukraine affected as has led to a high demand for housing in the face of a limited
well import and transport activities and the costs of shelter supply due to seismicity and ground deformation in several
and household items, which had an impact on operations zones, which often indicates the presence of magma under
and sectoral response. the urban area of the city of Goma. © DRC Shelter Cluster
View of a Transitional shelter.

SITUATION AFTER THE CRISIS In addition, the diagram below (Fig 1.) represents the
guidelines of the Shelter Cluster’s operational strategy
The deterioration of the security and humanitarian situ‑ according to the location of the displaced persons and the
ation has led to large‑scale population movements. It has support activities that can be provided to them, for each of
also led to the loss or destruction of essential household the emergency phases /transitional/development.
items, the partial or destruction of homes in towns or
villages of origin, and the accommodation of displaced
NATIONAL SHELTER RESPONSE
households in host families, collective centers, camps, or
sites for displaced people with the risk of exposure to In 2022, shelter actors assisted 446,000 people, including
insecurity, overcrowding, risks of protection and GBV, the 238,000 women and 234,000 children – representing 44
deterioration of health and epidemics, among other things. percent of the Humanitarian Response Plan (HRP) 2022
sectoral targets.
NATIONAL SHELTER STRATEGY
Prior to 2022, the funded shelter response represented a
The Shelter Cluster promotes that any sectoral interven‑ low proportion of the sectoral targets of the Humanitarian
tion must include exit routes or longer-term solutions to Response Plan (HRP). As an indication, by the end of 2021,
contribute to the recovery of affected households in a the shelter response only reached 19 percent of its target.
sustainable manner. But with the persistence of conflicts in Against the backdrop of these poor results, Shelter Cluster
the country, individuals or families are forced to remain on partners set two objectives for 2022. First, to strengthen
the move for extended periods. This justifies valuing tran‑ or improve the advocacy to raise the funds needed to
sitional solutions alongside emergency responses as well as meet the sectoral needs identified during the year. Second,
durable solutions, which are generally not implemented in to review the methodology for estimating sectoral needs
the medium term. as part of the 2022 humanitarian planning cycle (HPC).
The Shelter Cluster bases its response strategy addressing Regarding the second objective in particular, the Cluster
the following five scenarios, which consider various situa‑ reviewed its sectoral indicators as well as the ratios used
tions or locations of displaced persons and the needs of for the identification of people in need of shelter, and
their host communities: for targeting, including the sectoral budget estimate. The
• Displaced persons in host families. review focused on the following points:
• Displaced in urban situations. • The integration of the IDP/host population ratio;
• Displaced in camps or collective centers. • The reduction of the host community rate to 10
percent of the sectoral persons in need;
• Returnees.
• The reduction of targeting rates according to the
• Host Communities. operational or financial capacities of the actors;
Fig 1. Guidelines of the Shelter Cluster’s operational strategy.

• the harmonization of the costs of intervention CLUSTER RESPONSE ACTIVITIES AND COSTING
packages.
Individual Shelter
This also justifies the fact that the sectoral target for 2022 Types of activity $/HH Details
was one million people out of the four million identified as
2 tarpaulins, 1 roll of rope /
being in need. 1. Lightweight
50 HH - 1 collective tool kit / 10
Shelter Kit / MPCA
In addition, since the HRP in DRC is activity-based, each max HH
cluster uses its methodology to identify the number of 2. Emergency
122 Emergency or cash for shelters
people in need and the targets for its sector. It then derives shelter
the costs from the list of standard activities. As an example, 3. Rent 240 20-60$/month/ HH
in 2021, out of the 89 percent of displaced persons hosted
Construction of family latrines,
by a host family, the Shelter Cluster targeted 65 percent 4. Upgrading (Host
150 addition of a room, repairs,
as participants in the response. In 2022, this methodology Families)
internal separation, etc.)
was revised by considering 25 percent, which was the
5. Local For the returnees, rehabilita‑
percentage of final sectoral achievements reached in 2021 construction 350 tion or construction of a new
(see table below). shelter
6. Restitution of
MAIN CHALLENGES 30 +/- cost of a parcel card
documents
In 2022, major challenges included: Collective shelter

1. Upgrade of the Family latrines, repairs, internal
• The decrease in funds to cover sectoral needs, which 143
collective center separation
explains why more than 50 percent of households in
2. Construction of Construction of a collective
need were not able to benefit from adequate shelter. 400
collective shelters shed
• The lack of capacity to cover the needs of more than
100,000 people impacted by the eruption of the
Nyiragongo Volcano in May 2021.
• The increase in population displacements following
the resurgence of conflicts in the east of the country
(M23 crisis, community conflict in Ituri, ADF crisis,
etc.) as well as the emergence of conflict in the west
of the country with the Kwamouth crisis between
Teke and Yaka.
• The destruction of emergency shelters built in some

IDP sites following the resurgence of armed clashes.
This was the case in the Rwasa site (North Kivu),
where nearly 4,000 emergency shelters were immedi‑
ately destroyed by clashes between the Armed Forces
of the Democratic Republic of the Congo (FARDC)
and the 23 March Movement (M23, also known as the Transitional response - Collective transitional shelters.
Congolese Revolutionary Army).
METHODOLOGY FOR CALCULATING THE PIN AND SECTORAL TARGETS FOR HPC
Consequence 1: PIN TARGETED PEOPLE

Risk of life population movement of less than 6 months 2021 & 2022 2021 & 2022
IDPs Host families 89% 65% 25%

IDPs Site or camps 89% 85% 25%
Returnees Damaged house or secondary occupancy 90% 71% 25%
Host community High vulnerable households in need of shelter 10% 30% 5%
Consequence 2: PIN TARGETED PEOPLE
Living conditions population movement of more than 6 months 2021 & 2022 2021 & 2022
IDPs Host families 65% 100% 25%
IDPs Sites or camps 50% 100% 25%

• The resistance of the authorities to grant sites to 2022, a working group on the environment was set up,
accommodate the move, disregarding that the site composed of five cluster members, including a United
remains a last resort. Nations agency, two international non-governmental
organizations (INGOs), and two national organizations.
• The extreme disrepair of roads and infrastructure.
The working group established an annual work plan, which
Operational actors had difficulty delivering aid in most
allowed the following results to be achieved: Training of
displacement areas.
Cluster partners at the national and local levels on refor‑
• The need to allocate considerable resources to cover estation techniques and environmental assessment tools.
the delivery of kits by air, especially in landlocked areas
1. Development of the country’s environmental profile.
or with markets with low absorptive capacity. This
situation has impacted the deployment of assistance, 2. An impact assessment of sectoral interventions on
also considering the limited availability or number of the environment in two provinces in the east of the
airlines. country (South Kivu and Tanganyika), which made
it possible to survey 2,000 households and reach
OUTCOMES AND WIDER IMPACTS 18 localities assessed using the NEAT+ (Nexus
Environment Assessment Tool).
In parallel with the sectoral emergency response, shelter
In addition, these environmental initiatives contributed to
actors have met to discuss sectoral environmental protec‑
the capacity building of actors on environmental issues and
tion and/or the identification of mitigation strategies
will lead to the definition of an environmental protection
necessary to reduce the risk of environmental deteriora‑
strategy in the shelter sector.
tion following humanitarian interventions. Thus, in March

Durable response - Shelters constructed for the returnees using local construction techniques.

LESSONS LEARNED
In the context of multiple crises, the consideration of the principle of harmlessness (Do No Harm) is essential. Thus,
the Cluster identified the following actions as those to be undertaken to minimize the risk of inadvertent harm:
• Targeting: The establishment of a joint committee with the community, and the prioritization of a community
approach alongside the use of a Shelter Vulnerability Score tool. Clarity should be provided on the objectives of
the project and of targeting criteria. Labor should be recruited locally and involve the community in the selec‑
tion of participants. Verify land or shelter ownership in the context of targeting a project participant for shelter
assistance. For rent support activities, provide participants with a rent payment tracking booklet alongside the
written agreement.
• Brick production: Awareness of the requirements for mud-brick storage, to ensure their protection and avoid
potential delays in future projects (using tarpaulins/straw, etc.).
• Rainy season: The rains affect the production of bricks in particular; and may also slow down shelter construc‑
tion in general. It is important to set up a construction schedule that is adapted to the seasonal or agricultural
calendar.
In 2023, the Shelter Cluster will continue to achieve the goals assigned through the ten key principles outlined in
its strategy:
1. Putting communities at the heart of the shelter response;
2. Seeking an equitable and efficient response;
3. Promoting accessibility through universal design;
4. Valuing local standards and practices;
5. Promoting greater household choice and autonomy while optimizing project costs;
6. Accompanying households in (re)construction; Supporting households in the (re)construction, rehabilitation or
upgrading of their homes;
7. Taking into account land tenure issues,
8. Taking into account community dynamics and gender in the design of the project;
9. Mitigating the risks of negative impact on the environment and;
10. Promoting a multi-sectoral approach in the same area.
In addition, the Cluster plans to develop its environmental strategy to reduce the negative sectoral impact on the
environment. Emphasis will be placed on cross-cutting issues and cross-sectoral synergies. Shelter responses will
include gender and GBV issues by promoting gender equity in interventions and contributing to a protective envi‑
ronment for women and girls. Responses will be implemented following assessments to identify and understand
specific household needs. Thus, responses will consider age, gender, disability, and the cross-cutting protection prin‑
ciples of dignity, do no harm, accountability, access, participation, and empowerment. In terms of location, Shelter
and AME interventions will involve local structures or organizations to the maximum extent possible to achieve
an optimal exit or sustainability strategy. The Shelter Cluster and AME Working Group will support collaborative
initiatives between international and national or local partner organizations, including the transfer of knowledge and
experience.

On Dem. Rep. of Congo: A.4 / DR CONGO 2019–2020; A.2 / DR CONGO 2018; A.17 DR CONGO 2008–2016
On Africa: A.1 / BURKINA FASO 2019–2020; A.6 MOZAMBIQUE 2020–2021; A.6 / SOUTH SUDAN 2018
On coordination: A.9 / SOUTH SUDAN 2018; A.12 / ECUADOR 2016–2018; A.7 / NIGERIA 2017–2020

CONFLICT A.3 / ETHIOPIA 2022 / CONFLICT AFRICA
CASE STUDY ETHIOPIA 2022 / CONFLICT

KEYWORDS: Host family support, NFI distributions, Social cohesion
CRISIS The Tigray War Eritrea

MEKELLE
PEOPLE AFFECTED 5.2 million people* Sudan
PEOPLE DISPLACED
Over 2 million people (432,358 individuals)*
displaced within 1 to 26 June 2021 NORTHERN Djibouti
BAHR EL
GHAZAL
PROJECT LOCATION Mekelle, Tigray. WARRAP
ADDIS
WESTERNA B A B A
PEOPLE SUPPORTED BAHR EL JONGLEI
BY THE PROJECT 300 HHs (1,523 individuals) GHAZAL
LAKES
South EAST
Sudan HARARGHE
Expansion of shelters of 75 HHs of host families WESTERN EASTERN
Renovation of 135 HHs with upgrade to roofs, doors
EQUATORIA EQUATORIA
CENTRAL Somalia
and windows | Rehabilitation of 90 HHs with minor
EQUATORIA
Kenya
PROJECT OUTPUTS Project Area
shelter repair through Shelter-related NFI and CBI
Integration of IDPs in host communities increased for
PROJECT SUMMARY
76% of HHs in the project
The project targeted the displaced population
SHELTER SIZE 21.29 m2 on average who arrived to Mekelly city due to the conflict in
Tigray region which started in November 2020, and
particularly those living with host community families.
SHELTER DENSITY 4.25 m2 per person The assistance provided included different shelter
and NFI kits according to the category of the needs
DIRECT COST
USD 200–250 for expansion, renovation and identified during the door-to-door assessments
rehabilitation activities conducted (shelters in need of an extension, shelters
in need of a major renovation, and shelters in need
PROJECT COST USD 67,500, with average USD 225 per shelter of minor works). The project aimed to improve the
living conditions while increasing social cohesion
*Ethiopia - Tigray Region Humanitarian Update Situation Report, OCHA, August 2021 among displaced and host communities.
**Ethiopia - Emergency Site Assessment - Northern Ethiopia Crisis - Round 7
1 2 3 4 5 6 7 8 9
HANDOVER
PROJECT
PLANNING IMPLEMENTATION PHASE
CONTEXT
CONFLICT
TIMELINE NOV NOV DEC JAN FEB MAR APR MAY JUN JUL AUG SEP OCT
2020 2021 2022
Nov 2020: Tigray war, that lasted from Nov 2020 to Nov 2022.
1 Jan 2022: Project sensitization, awareness creation.
2 Feb 2022: Local authority, IDP and host community engagagement.
3 Mar 2022: Intention survey that examined the readiness of both

host families and IDPs.
4 Apr 2022: Beneficiary and HLP verification conducted.
5 Apr 2022: Conception of 3 typologies, based on the intention

survey results, HLP assessments and response paterns, HH-level
observation and technical classifications.
© Samuel Bekele
6 May–June 2022: Procurement of shelter materials from market.
7 Jul–Aug 2022: Distribution of kits and Cash-based Intervention.
8 Aug 2022: Supervision and monitoring.
9 Sep 2022: Post-Distribution Monitoring (PDM) conducted. Renovation of roofing and porch in Kedamayweyane sub city, Mekelle.

AFRICA A.3 / ETHIOPIA 2022 / CONFLICT CONFLICT
CONTEXT the Camp Coordination and Camp Management (CCCM)

Cluster in Tigray in July 2021 evidenced that 7 percent and
In November 2022, the Tigray regional government and 20 percent of IDPs were still living in collective centers
the Ethiopian federal government entered into a conflict in Shire and Mekelle cities respectively, and a longer term
that resulted in more than two million internally displaced solution was required.
persons (IDPs) and approximately one million households
(5.2 million people) in need of urgent humanitarian assis-
NATIONAL SHELTER RESPONSE
tance. The capital city of Tigray, Mekelle, had a popula-
tion of over 550,000 before the war. A large IDP influx Initially, a large part of the displaced population settled in
to Mekelle occurred during and after the war from the makeshift shelters in spontaneous camps. Later, authori-
western, eastern, central, and north‑western zones of ties and humanitarian actors set up planned camps and
Tigray. The city lies at an elevation of 2,254 meters above provided emergency shelter assistance to those staying
sea level in a semi‑arid area and is divided into seven local also in unfinished buildings and collective centers.
administrations or sub-cities.
The partners of the Shelter and NFI sub-Cluster in Tigray,
in coordination with relevant authorities (relocation task
force, disaster risk management office, and Bureau of
Before the crisis, Tigray specifically and Ethiopia in general Labor and Social Affairs), designed a program to support
experienced fast growth and development with remarkable IDPs living with host families and the families hosting them,
average annual double-digit GDP growth. In Tigray, approxi- fostering family ties and cultural bondage, and aiming to
mately 80 percent of the population lives in rural areas with decongest the collective settings such as camps and collec-
agriculture as their means of primary economic activity. tive centers, as in those settings, protection risks were high
and there were limited economic opportunities and access
The typical houses in Tigray are characterized by dry stone to services.
walls and flat mud roofs. The local vernacular architecture
style is called ‘Hidmo’. Rural settlements are dispersed loca-
PROJECT DESIGN
tions across the villages without a clear pattern. In urban
areas, buildings are commonly raised using stone, reinforced IDPs populations living with host families in urban areas
concrete, and glass. Due to the conflict, many typical vernac- significantly increased since the war erupted in Tigray in
ular homes as well as modern urban buildings have been November 2020. The implementing organization under-
damaged to varying degrees. took community engagement efforts at the neighborhood
level across the seven sub-cities of Mekelle city, as well
SITUATION DURING/AFTER THE CRISIS as needs assessments on the households hosting IDPs –
which evidenced three categories of needs:
Since November 2020, large numbers of IDPs arrived
in cities and towns across Tigray and started to settle • Homes in need of an expansion;
in collective centers, unfinished buildings, spontaneous • Homes in need of a major renovation;
camps, and also with host families. Surveys carried out by
• Homes in need of a minor renovation.
© Ghideon Musa
View of a traditional Hidmo house in the Tigray region characterized by masonry walls and flat mud roofs.

The modalities of assistance for the three scenarios • Participant verification and HLP assessment, followed
consisted of the distribution of three different in kind kits by participant sensitization and grouping.
of shelter items for each of the scenarios and a cash grant • Distribution of in-kind kits and cash:
to implement the construction works.
» Two in-kind kit distributions to the three scenarios
and one installment of cash for the rehabilitation
scenario.
• Construction works.
• Supervision and monitoring.
• Post Distribution Monitoring.
Other implementation activities included the establish-
ment of a project master schedule, project diary, official
letters communication with different bureaus, face to face
and virtual meetings (with IDPs, Mekelle city administra-
tion, sub-city leaders, different organizations, and Shelter/
NFI national and subnational Cluster), format/s (in Tigrigna
Scenario 1: New expansion scenario.
and English), intention survey, KOBO tool (for data collec-
tion and analysis) and scenario analysis and development.
The implementing organization engaged shelter and
WASH units during field assessments of homes, as well
as the protection unit, who trained the staff involved in
the distributions in mitigating GBV risks and participated in
awareness campaigns during the distributions.
TARGETING
Door-to-door exercises were conducted to identify and

assess eligible households as they were spread across the
city. The criteria for inclusion in the program included:
• IDPs from areas in Tigray where the conflict is active.
Scenario 2: Renovation scenario. • IDPs living within the host community with proof of a
letter from a lower local authority.
• IDPs with different vulnerable cases were prioritized
such as female headed households, separated or at
risk children and foster families, pregnant or lactating
mothers, Persons with Disabilities, those suffering
from serious medical conditions, and the elderly.
Participant verification was conducted house to house
jointly by the implementing organization with represen-
tatives from the local authorities from each sub-city and
kebeles (small administrative unit in Ethiopia).
Scenario 3: Rehabilitation scenario.
PROJECT IMPLEMENTATION
A hybrid response including in-kind support and CBI

allowed the host community to absorb IDPs through
a neighborhood approach during the project. This was
implemented through the following phases and milestone
activities:
© Samuel Bekele
• Local authority, IDPs, and host community engagement.

• Surveys for both IDPs and host families.
• The conception of three typologies (expansion, major
and minor renovations). New expansion of shelter in Semen sub city, Mekelle. October, 2022.

AFRICA A.3 / ETHIOPIA 2022 / CONFLICT CONFLICT
COMMUNITY ENGAGEMENT CROSS-CUT TING ISSUES
The communities and local authorities were engaged at From project inception, the targeting was based on vulner-
the commencement of the project for their involvement ability criteria, and special attention was given to women
in the design of the response, the identification of gaps, and girls. In each distribution phase, the organization’s
defining of target pilot phase communities, and support protection unit engaged vulnerable groups in creating
in the sensitization efforts. Information sessions were awareness on how to handle gender based violence (GBV)
held for authorities, IDPs living in collective centers, host cases. The risk of GBV was minimized as new spaces were
communities, and local and international NGOs. Feedback created and secured through shelter expansion, boosting
and complaint mechanisms were put in place to assist security and privacy in cases of reconstruction and rehabil-
participants throughout the process of upgrading homes. itation scenarios.
Intention surveys were conducted to identify host families
with the capacity to host IDPs and IDPs in need to find MATERIALS AND SUPPLY
a hosting family for moving out from a collective center.
Due to the embargo, there was no access to industrial
The assessments of host families included the verification
materials from the central market. As a result, drastic price
of their property with authorities’ records, and HLP veri-
increments and variations were inevitable, and the supply
fications were conducted based on Standard Operating
chain of the building materials market collapsed. Overhead
Procedures defined within the cluster partners to prevent
costs such as material transportation to and from ware-
any situation of eviction.
houses were high because crude oil was only available
During shelter construction, households were organized through illicit means.
in groups of ten, by sub-communities, to encourage assis-
tance between them during construction, repairs, and OUTCOMES AND WIDER IMPACTS
maintenance works. Supervision and monitoring activities
were implemented by the organization’s shelter unit during New shelter construction, renovation, and rehabilitation
the construction process phase. activities on existing shelters for urban IDPs living with host
families provided additional safety, security, and dignity for
MAIN CHALLENGES vulnerable groups – particularly for women and girls at risk
of gender‑based violence (GBV) in collective centers. To
• Due to an embargo, there was a lack of fuel and cash increase social interaction and trust among the IDPs and
which delayed the project. As a result, the original CBI the host families, partial NFIs were provided in addition to
cash amount was reduced by 60 percent to allow for
the project to continue and the cash to be replaced by the in-kind shelter kits and CBI support. Industrial mate-
equivalent in-kind shelter kits. rials were purchased within the local market when financial
institutions were not functioning, injecting additional cash
• While each household initially preferred tailored
solutions and kits on a case-by-case basis, to make into the market.
the project scalable as a pilot it was determined to
have three kits according to the identified category
of needs.
• The three kits were limited to industrial material
(nails, corrugated iron sheets, cement, etc.) as local
material could not be procured due to the embargo.
The material already available in the region increased
in price significantly during the project, often to twice
that of pre war prices.
© Samuel Bekele
• The budget for the three kits was created based on

need, however, Kit 1 (expansion) was 18 percent
more expensive than the other two kits/scenarios.
This required strong sensitization at the start of the
project to reduce conflict during distribution.
• Communication between dispersed locations of host
family homes became a bottleneck for registration,
verification, and PDM. In response, the organization
clustered and grouped the households according to
proximity.
• Poor quality of data from the sub-cities or local
authority made verification difficult.
© Samuel Bekele
• The initial quota of IDPs targeted per sub city was

altered, as original quotas were equal across sub-city,
but the locations did not have the same levels of IDPs
from western Tigray.
• Sub-city offices had limited distribution space and (above) NFI kits distribution in Adihaki, Mekelle, July 2022; (below) Cash
stores for in kind kits. distribution in Adihaki, Mekelle, August 2022.

√ To address issues at the ground level, there was strong x The project couldn’t address holistic needs within
involvement with affected communities and leaders the defined community outside of the scope of the
as well as coordination with local NGOs and govern- project.
ment from the project’s outset.
x The project lacked multisectoral and multidisci-
√ Intention surveys and HLP verification supported plinary components that could have complemented
the efficiency of the project process. the project’s impact.
√ The response addressed and benefited both the x Slight difference among the kit and cash distribu-
IDPs and host families, resulting in increased social tion according to each scenario.
cohesion between the two groups.
x The partial NFI was only provided to 10 percent of
√ Targeting criteria for IDPs and host communities vulnerable host communities.
were established quickly through collaboration with
x Due to the lack of cash availability, CBI activities
local authorities such as the Bureau of Labor and
were conducted after two phases of in‑kind kit distri-
Social Affairs (BoLSA).
butions were completed.
LESSONS LEARNED
x Focus group discussions (FGDs) were difficult to
organize due to the dispersed nature of the host
• Community and local authority engagement community families.
were crucial in fostering ownership and social
x Demand and need for shelter support varied dras-
cohesion.
tically among IDPs, making it difficult to understand
• The hybrid response of in-kind distribution and the needs of the entire population.
CBI allowed for increased flexibility throughout
implementation.
• Urban IDPs are often the most neglected and
have the highest levels of need, especially in
shelter circumstances.
• A thorough participant registration and verifi-
cation process can help avoid a conflict-of-in-
terest type situation.
• Family ties and cultural bonds between IDPs
© Samuel Bekele
and host community families can be utilized to
enhance project effectiveness.
• Industrial material procurement processes
should start as early as possible. Distribution of shelter items, July 2022.
• The project observed that the provision of cash

enhanced the flexibility of the user, and thus
may be more impactful than in kind support.
• The three scenarios (expansion, major and
minor renovation) were designed to tailor
assistance to household needs. However, most
of the families in the PDM surveys reported FURTHER READING ON SHELTER PROJECTS
the need for more flexibility in the kit’s
On Ethiopia: A.5 / ETHIOPIA 2019–2020; A.26 / ETHIOPIA
composition. 2014-2016; A.8 / ETHIOPIA 2011
• A multidisciplinary approach should be utilized On host family support: A.16 / BENIN 2010-2011;
if the project is replicated (eg. The integra- A.30 / SYRIAN ARAB REP. 2015-2016
tion of water, sanitation, and hygiene (WASH)
On social cohesion: A.32 / TURKEY 2017–2018
activities).
SHELTER PROJECTS 9 TH EDITION www.shelterprojects.org 21

AFRICA A.4 / KENYA 2021-2022 / SOUTH SUDAN CRISIS CONFLICT
CASE STUDY KENYA 2021–2022 / SOUTH SUDAN CRISIS

KEYWORDS: Coordinations and partnerships, Disability inclusion, Permanent houses
Conflict and Violence (South Sudan Crisis: South Ethiopia

CRISIS Sudan
Refugees in Kenya)
TURKANA
PEOPLE WITH 3,435 persons with specific needs in COUNTY
SHELTER/NFI NEEDS Kalobeyei settlement*
PROJECT LOCATION Kalobeyei Settlement, Turkana County, Kenya Uganda

Somalia
WARRAP
20 HHs with persons with specific needs (11 families JONGLEI
with their members living with disability and 9 families with child-
NAIROBI
headed families and GBV survivors; 50% male, 50% female) LAKES
PEOPLE SUPPORTED - 18 refugee HHs and 2 HHs from host community (Turkana)
BY THE PROJECT WESTERN EASTERN
EQUATORIA
Tanzania EQUATORIA
55 masons/artisans from both host and refugee communities with CENTRAL
EQUATORIA
Indian
Ocean
trainings and casual labor
Project Location
20 individual permanent shelters and latrines (Natural PROJECT SUMMARY

Turkana stone blocks and Hollow blocks)
PROJECT OUTPUTS In the newly established Kalobeyei settlement
55 masons/artisans trained on how to construct the near Kakuma camp, the project targeted
shelters and use of the locally available materials households with vulnerable individuals such
as persons with disabilities, GBV survivors,
SHELTER SIZE 25.6 m2 per HH as well as elderly and children, for the
provision of inclusive shelters adapted to
SHELTER DENSITY 5 m2 per person their needs, which had previously been
overseen within the humanitarian response.
The project participants were engaged from
DIRECT COST USD 4,254 per HH the early stages of the process, throughout its
completion. Masons and artisans were trained
PROJECT COST USD 5,952 per HH in the construction techniques considered for
the shelter design, which used locally available
*UNHCR, Kakuma-Kenya materials.
1 2 3 4 5 6 7 8 9 11 12 13 14
PLANNING 10
PROJECT
IMPLEMENTATION HANDOVER
CONTEXT
CONFLICT
TIMELINE DEC JUN JAN MAY JUL AUG DEC MAR APR MAY JUN JUL AUG FEB MAR APR MAY JUN JUL AUG
2013 2015 2016 2020 2021 2022
Dec 2013: South Sudanese civil war, movements to Kenya. 7 Aug 2021: Planning of activities, local partners engagement and
signing of agreement of corporation.
1 Jun 2015: Land allocated for development of new integrated 8 Feb 2022: Beneficiaries’ selection.
refugee and host community settlement in Kalobeyei.
9 5 & 11 Mar 2022: Two community engagement forums.
2 Jan 2016: Establishment and spatial Planning of Kalobeyei new
settlement to host approximately 45,000-60,000 persons. 10 Mar 2022: Project planning and shelter design.
3 May 2016: Emergency response activities began in Kalobeyei new Mar 2022: Training on the basic construction skills, tools and
11
settlement after crisis erupted in South Sudan. planning.
4 Jul 2016: The Kalobeyei Integrated Socio-Economic Development 12 Apr 2022: Construction commenced.
Plan (KISEDP) Framework MoU signed.
13 Jul 2022: Full construction of all the shelters.
5 Dec 2020: Population in Kalobeyei settlement reached over
40, 000 persons, majority being from South Sudan 29,778. 14 Aug 2022: Selected beneficiaries are issued their shelters.
6 Mar 2021: Funding approved and allocated.

CONFLICT A.4 / KENYA 2021-2022 / SOUTH SUDAN CRISIS AFRICA
CONTEXT Following the South Sudan Civil War in 2013, and the
consequent arrival of refugees to the area, Kakuma camp
Kalobeyei Integrated Settlement is located in Turkana, the was extended, and a new camp named Kakuma 4 was set
second largest of the 47 counties in Kenya, covering an up to receive the new influx. The land was initially bare,
area of 71,597.6 km2 (County Government of Turkana, with no existing infrastructure, and had just the presence
2016). The county is in the Northwest of Kenya and of local shrubs. The collapse of the South Sudan peace deal
borders Uganda to the west and South Sudan and Ethiopia in 2015 exacerbated the arrival of refugees to the new
to the north and northeast respectively. The main town settlement.
that serves the settlement of Kalobeyei is Kakuma Town,
whose economy and growth is mainly linked to the refugee
support system – active for many years in the region. In
addition, Kakuma is home to Kenya’s second-largest In 2015, the Government of Kenya and the County
refugee population, (as the camp was established in 1992 Government of Turkana, in collaboration with the United
following an influx from Sudan, then later from Ethiopia and Nations and partners, officially established Kalobeyei
Somalia, among other origins), which represents a unique Settlement with the aim to reduce the population burden
human settlement and economic system that requires on Kakuma camps, improve the living conditions of the refu-
policymakers to strategize on how to build resilience and gees and facilitate a shift towards an area‑based develop-
support sustainability and socio‑economic development ment model that addressed the longer‑term prospects and
(UN-Habitat, 2018) needs of both refugees and host communities (UNHCR,
Turkana County is generally characterized by a hot and 2019). This was made the core of the Kalobeyei Integrated
dry climate with temperatures ranging between 15°C and Social Economic Development Program, a 15-year,
35°C. While precipitation in the area is highly variable, the comprehensive, multi‑sectoral, and multi‑stakeholder
‘long rains’ occur between April and July, and the ‘short plan. As the plan was aligned with the Turkana County
rains’ between October and November. The Kakuma- Government objectives, the program was also integrated
Kalobeyei region is susceptible to both flash flooding and into the Turkana County Integrated Development Plan.
drought. Heavy rains cause seasonal river flooding, blocking The plan proposed the construction of permanent and
roads and leading to the loss of agriculture, infrastructure, durable shelters with local materials. Key to the improved
and sometimes human life. Protracted droughts impact the assistance was innovative cash-based intervention (CBI)
ability of refugees to farm, increasing their dependence on programming, where refugees received cash on special
humanitarian aid. ATM cards to purchase cement, sand, stone blocks, and
the rest of the materials to build shelters and latrines.
(UNHCR, 2019)
SITUATION DURING/AFTER THE CRISIS PROJECT DESIGN/STRATEGY
Land use map of the Kalobeyei settlement with zoning of the different services.

© UN-Habitat
© UN-Habitat
Images of the site construction activities. (Left) Excavations carried out by an artisan and two helpers for 2-3 days depending on the nature of the ground. (Right)
Dressed stones were used for the walling of the superstructure.
PROJECT DESIGN/STRATEGY The internal height was increased to reduce room tempera-
ture. Security and safety needs were incorporated using
The project covered in this case study was designed aiming strong reinforced steel doors and windows. Sanitation
to assist in the recovery and to enhance the integration blocks were also provided, detached from the shelter.
and self-reliance of Persons with Disabilities, and those
with special needs through the provision of a more durable
and accessible shelter. Additionally, the project sought to
promote skills development and knowledge dissemination
as well as capacity building for both host communities
2 5
and refugees, particularly for those who were involved in 3
the design and construction of the shelters. In doing so,
this project promoted social cohesion between the two
communities and encouraged peaceful coexistence. 1
4
Kalobeyei Settlement hosted refugees with disabilities
and special needs, but these individuals’ needs were not
3D view of the shelter design.
fully mainstreamed in shelter planning and design. Thus,
these refugees were living in an environment that did
The floor lined with concrete to easen mobility inside
not meet their unique standards. This project aimed to 1
the shelter.
address these identified basic components and gaps. Most
refugees transitioned their shelters from the T‑shelter The kitchen has its walling made of fabricated steel
(Transitional Shelter) to more permanent and durable sections to allow ease circulation of air and also located
2
shelters constructed of Natural Turkana Stone Blocks. on one of its gable side to allow access to the room
especially during night and when its raining.
IMPLEMENTATION Hollow blocks used to help control maximum temper-

3
atures inside the shelter.
The organization adopted a community led approach in A ramp to help access the shelter which is raised to
planning, design, beneficiary selection, and activity imple- 4
help prevent flooding water.
mentation. The participants and community members
Door and windows increased in size to enable acces-
were given priority to comment on the design and to
5 sibility. Quality of material for the window and door
suggest their preferred location, and all feedback was
strengthened to guarantee security.
incorporated into the final plan.
SHELTER DESIGN SKILLS TRAINING
The shelter was designed considering the need of privacy Construction workers were selected in coordination with
for improving the dignity of the users while maintaining relevant stakeholders within the settlement i.e., village
a reduced footprint. The shelters measured 8m by 3.2m and neighborhood leaders as well as organized commu-
and accommodated an average household size of five. The nity based organizations. For gender inclusivity, female
components include a partitioned bedroom, a kitchen, and members were considered and trained as well to become
a sitting room accessible for people with reduced mobility. skilled laborers. The project involved a one day skills training
Ramps were provided accordingly, and adequate openings for all selected artisans and masons on how to construct
and wide windows were incorporated to ensure adequate the shelters. Both refugees and host communities were
ventilation. included in the selection of workers for the project.

TARGETING for the project throughout the settlement. Mobilization

PARTICIPANT SELECTION
for community meetings was done door‑to‑door by the
settlement case workers. The organization promoted the
Participant identification and selection for the provision participation of both men and women and ensured age,
of new shelters were carried out through a collaborative gender, and village representation in community forums.
approach with partners working in shelter and protection
programs, particularly those involved in activities with DISASTER RISK REDUCTION
persons with disabilities and those with special needs
(older persons at risk, children at risk, GBV survivors and Flood risk areas were identified in the settlement‑wide
LGBTQI+ individuals). Criteria for selection were based integrated planning, as the land of Kalobeyei Settlement
on specific physical disability or medical conditions as well had recurrently experienced flash floods during the rainy
as other factors including impairments and the degree of season. Additionally, efforts were made to construct
impairment and special protection required. The assess- nature-based water retention facilities to reduce the
ment and verification of people supported by the project surface run-off of the rainwater. Some delineated areas
were implemented in collaboration with community were converted to green spaces while others near the
leaders from different nationalities in the camps as well as streams were used as agricultural plots. Considering the
in the host community. Community leaders assisted in the flood risks, shelters were built with deeper foundations
identification and tracking of selected participants. A final and raised the ground floor slab incorporating a ramp.
assessment verified their location, taking into consideration Drain channels using sandbags were also implemented
alternative areas in the settlement where they expressed around the shelters.
their interest to be resettled.
PLOT IDENTIFICATION MAIN CHALLENGES
All partners, specifically those in charge of site planning COVID-19: The COVID-19 crisis directly impacted the
in the settlement, were involved in the identification implementation and delivery of the project, as work was
of appropriate and safe plots for shelter construction, meant to begin in mid 2021 but – due to the prevailing
following the Kalobeyei Settlement Advisory Plan, a master conditions and government restriction protocols – engage-
plan governing land use and allocation in the settlement. ment and planning were delayed significantly.
Other factors considered in site/plot selection were,
Inadequate project resources: The initial planning and
among others, proximity to close relatives, caregivers,
programming of this project, unfortunately, omitted one
essential basic facilities, plot adequacy, and availability as
critical aspect required to make shelters highly inclusive
well as flood risks, involving the different communities
and accessible for people with disabilities. That critical facet
living in the area.
was accessible sanitation blocks. This resulted in changes
in implementation with recommendations to source extra
COMMUNITY ENGAGEMENT funding and material support from partners to include
Cross-coordination with all village and neighborhood the construction of the WASH blocks. This resulted in
leaders as well as host community representatives was the delayed completion of sanitation blocks and increased
enhanced to reduce any chance of tension during the pressure from participant complaints that were already
project. Moreover, the involvement and participation settled while construction was ongoing.
of community members, particularly those with special Logistics involved in the construction: Plots identified
needs, led to strengthened ownership and understanding during a joint assessment spread across the entire Kalobeyei
of the project. Communication was addressed involving settlement. This resulted in major challenges, especially
the relevant protection actors in the settlement as well when delivering construction materials and supervising the
as the community leadership and case workers employed project.
© UN-Habitat
© UN-Habitat
Community engagement forum attended by the project participants. Camp officer training the masons on the inclusive shelter design.

© UN-Habitat
© UN-Habitat
(Left) A view of the completed shelter. (Right) After relocation, refugees took ownership of the shelters and some evidence of it were the external painting added
or the shaded space over the entrance.
LINKS WITH RECOVERY delivered and stored on‑site for ease of access and use.
Delivery was done in phases depending on the work plan
Selected participants had lived in the camp for some time and construction areas. The use of local materials, building
before the project started. , despite the lack of adequate techniques, and local skills and capacities (including labor)
shelters or having to live with relatives or caregivers. was cost-effective and contributed to the local economy.
Selected households were also allowed the shelter design The construction tools purchased under this project were
to better satisfy their needs. For example, some partici- handed over to trained masons/carpenters to enable them
pants painted their shelters and others added extensions to continue with their daily activities.
such as an outside overhang for shading. These alterations
required minimal supervision and were built at their own
OUTCOMES AND WIDER IMPACTS
expense. The shelters as constructed were durable and
flexible, with adequate partitions – aiming to provide Effective community engagement fostered meaningful
adequacy, safety, security, and privacy. interaction, ownership, and understanding within both
communities. The project also aimed to ensure the sharing
MATERIALS AND SUPPLY of resources through the provision of shelters to the
host community, in support of peaceful coexistence and
The stone blocks, sand, and aggregate were sourced locally. reduced potential conflict. The project provided a very
Iron sheets, reinforcing steel, cement, and timber were simple all-inclusive, durable, and easy‑to‑construct model
supplied by locally authorized contractors and suppliers. shelter for people with disabilities that can easily be repli-
All materials were delivered to the site using trucks. The cated in other parts of the settlement. Partners involved
storage of hardware material was off‑site, while construc- found it acceptable for scaling up in future interventions.
tion materials such as quarry stones and sand were
© UN-Habitat
Families await the completition of their shelters. Passive cooling methods such as the use of natural turkana stone blocks and hollow blocks used in the construction
controlled the temperatures inside the shelters.

√ Inclusive shelter planning and design: The planning x Many participants required modified shelters to fit
and design of the shelter was done in close consul- their specific needs: The organisation had no plan to
tation with community members as well as relevant support or intervene for the majority in terms of new
organizations taking into consideration the specific or full construction due to budget constraints.
needs of all households. This included protection x Limited scale of the project due to limited donor
issues and specific requirements for PWDs. funding.
√ Coordination: Working through local NGOs helped
x Shelters constructed were located across the commu-
to ensure an enhanced understanding of the local
nity and difficult to monitor.
context, the prevailing circumstance for persons with
special needs, and areas in need of intervention. x No training was provided on repair or maintenance
√ Shelter durability: The shelter will enhance safety and of the shelters.
privacy for participants. x Engagement of the participants during construction
√ The availability of locally sourced raw construction work was constrained due to various factors such as
materials increased opportunities for employment their current living location and the type of disabilities.
for the local population.
√ Enhanced livelihoods, skill development, training, and LESSONS LEARNED
income generation for the artisans and masons who • There is a significant gap in shelter inclusion for
were selected from the host and refugee communities. PWDs, as well as those with special needs and
√ Skills development and training were carried lack of involvement of people with disabilities
out prior to the commencement of the construc- and special needs during the planning stages.
tion works, which greatly contributed to skills and • Coordination with other agencies already
knowledge enhancement for both communities and working for people with special needs is imper-
increased social cohesion. ative and was strengthened.
√ The design and construction of shelters were appro- • Communication and community engagement is
priate for the settlement and the host areas and paramount in shelter project provision: Many
were relatively easy to construct using local knowl- people with disabilities are open and willing to
edge and skills. participate in planning and designing of their
√ Community integration: Enhanced social integration
shelter, and the organization intends to engage
and cohesion between the host and refugee commu- more with these participants and stakeholders
nities through working and training together. in the future.
• Effective community engagement and shelter
RECOMMENDATIONS MOVING FORWARD allocation.
• It was imperative for partners to continuously
• The project intended to model and use the promote community project programming and
existing 20 shelters to mobilize funding from the the inclusion of persons with special needs in
donor for future upscaling of the project. The their projects.
planning phase failed to establish the impor-
tance of sanitation blocks to be constructed • Promoting the use of locally available materials,
concurrently with the shelters, resulting in especially earth materials, reduced costs and
a delay in filling the gap and resourcing for promoted social economic cohesion for the
additional funds. Sanitation blocks and acces- host community.
sibility to all existing amenities are vital factors • The alignment of the project with Kalobeyei
in adequately addressing the needs of persons Integrated Social and Economic Development
with special needs. Program (KISDEP) objectives was achieved.

On South Sudan: A.9 / SOUTH SUDAN 2018; A.23 / SOUTH SUDAN 2013–2016; A.26 / SOUTH SUDAN 2012
On permanent houses: A.22 / SOMALIA 2011–2013; A.14 / PHILIPPINES 2016–2020; A.11 / DOMINICA 2017–2018
On Disability Inclusion: A.21 / LEBANON 2018–2021

AFRICA A.5 / MADAGASCAR 2022 / TROPICAL CYCLONES / OVERVIEW DISASTER
OVERVIEW MADAGASCAR 2022 / TROPICAL CYCLONES
Madagascar Tropical Storm and cyclone

CRISIS 2022 Batsirai (Feb 15) and Emnati (Feb
22) cyclones
Mozambique
PEOPLE AFFECTED 423,800 individuals affected*

AND DISPLACED
61,489 individuals displaced* NORTHERN
BAHR EL
Mozambique
GHAZAL
Channel
HOMES DAMAGED/ 11,163 homes destroyed** WARRAP
WESTERN
DESTROYED
33,226 homes damaged** BAHR EL JONGLEI
Indian
GHAZAL A N TA N A N A R I V O
LAKES Ocean
PEOPLE WITH
SHELTER NEEDS 35,000 HHs (210,000 individuals) WESTERN EASTERN
EQUATORIA VATOVAVY
EQUATORIA
CENTRAL AND FITOVINANY
PROJECT LOCATION Atsimo Atsinanana, Vatovavy and Fitovinany regions EQUATORIA
PEOPLE SUPPORTED ATSIMO-

BY THE RESPONSE 18,356 HHs (82,606 individuals) ATSINANANA
9,786 HHs supported with emergency

Response Location
shelter materials and essential house-
hold items
17,564 HHs supported with Cash-for- SUMMARY OF THE RESPONSE
Shelter assistance to repair, retrofit or rebuild
Madagascar has been hit by six tropical weather systems from
14,736 HHs supported with technical sup-
January to April 2022. Two category 4 Tropical Cyclones Batsirai
RESPONSE OUTPUTS port, safe shelter and building back safer awareness
and Emnati in February impacted three regions on the east
1,693 HHs supported with in-kind house
coast. This overview refers to the response implemented at
reconstruction
sectoral level, especially around the conditional Cash-for-Shelter,
71 HHs supported with Cash for Rent Shelter
that was implemented at scale in peri-urban and rural areas.
assistance****
The coordinated inter-agency response supported shelter self-
3,333 HHs supported with emergency assis-
recovery through owner-driven repair and reconstruction, while
tance in evacuation centre
disseminating safe shelter awareness and building back safer
principles at community level. Moreover, the tools developed,
*BNGRC – National Office for Risk and Disaster Management, Madagascar
and the experience gained on Cash-for-Shelter programming
**Multisectoral Rapid Assessment February 2022 aimed to allow faster and more effective assistance to the
***Flash Appeal 2021-2022, revised version June 2022, p.14 communities affected by Tropical Cyclone Freddy that landed
****Dashboard, Madagascar Tropical Storm and Cyclone 2022, Global Shelter Cluster in the same regions one year after Cyclones Batsirai and Emnati.
1 2 3 4 5 6 7
PROJECT EARLY RECOVERY

PLANNING
RESPONSE
TIMELINE FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC JAN FEB
2022 2023
05 Feb 2022: Tropical cyclone Batsirai; landfall on East Coast. 5 May 2022: Validation of the Cash for Shelter implementation mo-
dalities by BNGRC and Shelter Cluster Lead and co-Lead.
1 Feb 2022: National Shelter Cluster meeting; Decision to host
discussions around CCCM and NFIs within Shelter Cluster coor- 6 Jul 2022: First reported cash for shelter and in kind reconstruction.
dination structure.
22 Feb 2022: Tropical cyclone Emnati, landfall on East Coast. 7 Dec 2022: Last reported Cash for shelter distribution.
2 Feb 2022: First reported distribution on NFIs. 21 Feb 2023: Tropical cyclone Freddy, Landfall on same area than
Batsirai.
3 Mar 2022: Presentation of the National Shelter Response Strategy.
4 Apr 2022: Validation of the Cash for Shelter Strategy by BNGRC
and Shelter Cluster Lead and co-Lead.

DISASTER A.5 / MADAGASCAR 2022 / TROPICAL CYCLONES / OVERVIEW AFRICA
CONTEXT
Madagascar is the world’s fifth largest island, situated in

the Indian Ocean off the coast of southern Africa and
prone to various shocks such as earthquakes, cyclones,
floods, droughts, epidemics, fire, malnutrition, and locust
infestation. The country boasts a unique ecosystem,
with many species of plants and animals found nowhere
© Pascal Panosetti
else. Tropical cyclones are common in the southwest
Indian Ocean region, and Madagascar often experi-
ences multiple landfalls each year with up to Category 4
events like Tropical Cyclone Enawo in 2017 – when the
National Shelter Cluster was activated for the first time.
The country has faced challenges to its socioeconomic

development, and in recent decades, it has experienced
stagnation in per capita income and a rise in absolute
poverty. The country has the fourth-highest rate of chronic
malnutrition, and its nascent social protection system covers
only six percent of the extremely poor. Safety net spending
is extremely low – only 0.3 percent of Madagascar’s GDP
– compared to the average 1.2 percent across sub-Saharan
Africa.
© Xavier Génot
SITUATION BEFORE THE CYCLONES
Coupled with the socio-economic impacts generated by

the COVID-19 pandemic, the fragility of households was
exacerbated. By December 2021, more than 1.6 million Shelter assessments were carried out for the houses damaged by the impact
people in southern Madagascar were estimated to have of the cyclones, March and August 2022.
been suffering from high levels of food insecurity, with The two Category 4 cyclones (Batsirai and Emnati)
hundreds pushed to leave their homes and migrate in affected 423,800 individuals, including 136 people killed.
search of more secure livelihoods. Environmental degrada- It is estimated that 11,163 homes were destroyed and
tion and climate change have aggravated prolonged drought 33,226 were damaged. Assessments conducted at the
consequences, which in combination with other complex regional and national levels identified enormous damage to
social drivers, pushed the region into a humanitarian crisis. basic infrastructure, especially within rural and peri-urban
communities. This led the Malagasy government to declare
In Madagascar, the government leads response oper- a “state of national disaster” already on January 28, 2022,
ations through its national disaster risk management when the two cyclones were yet to arrive.
agency (BNGRC) in close collaboration with humanitarian
partners. The Shelter Cluster is led by the Ministry of
Population, Social Protection and Women (MPPSPF)
and co-led by one national humanitarian agency with the The collective impact of the 2022 storms left 21,922
support of one of the two Global Shelter Cluster Leads. people displaced across 68 emergency relocation sites.
While Camp Coordination and Camp Management
SITUATION AFTER THE CYCLONES (CCCM) was not formally included within the national
cluster’s mechanisms, it was decided to host collective
Six tropical weather systems hit Madagascar from January center management issues and discussions within Shelter
to April 2022. In January, Tropical Storm Ana brought Cluster coordination, as there were high-level needs for
heavy rainfall and flooding that affected approximately both displaced and non-displaced populations.
131,500 people and killed 55 – primarily in the central
and northern parts of the country. Subsequently, Tropical The Shelter Cluster strategy was adapted from the one
Cyclone Batsirai made landfall near Mananjary city on 5 implemented for the response to Tropical Cyclone Enawo
February – affecting the regions of Atsimo Atsinanana, (2004), with three key objectives:
Vatovavy, and Fitovinany. These were the same areas that 1. To ensure the health, safety, privacy, and dignity of
were later impacted by tropical Cyclone Emnati, which women and men, girls and boys affected by the Cyclone
made landfall in Manakara town on 23 February. According by providing emergency shelter and NFI assistance.
to Meteo-France, the cyclonic impact in this area of
2. To support sustainable solutions for protracted
the island had not reached this level for over 25 years. displacement (while avoiding the creation of camps
and facilitating the exit of families in collective centers).

3. To promote rapid self-recovery through a community NATIONAL SHELTER/NFI RESPONSE

participation approach integrating WASH, health,
livelihoods, and protection, with support for owner- The first phase of the response focused on providing emer-
driven recovery processes and standardization of gency shelter and household items to displaced people in
partner approaches. emergency relocation sites and for non-displaced commu-
nities that started to recover. A total of 8,901 households
Key response activities were defined, with targeting criteria: received shelter assistance in July 2022. The Conditional
• For emergency: Standardized NFIS kits for people Cash for Shelter (CCFS) response option was the most
displaced in relocation sites and not displaced people suitable to meet the affected shelter recovery needs at
with houses damaged or flooded, with two install- scale for the second phase of the response – to support
ment of 100,000 AR (23 USD) unconditional cash, communities that have started to repair or rebuild. A
to be coordinated through the Cash Working Group “Cash Strategy for the partial reconstruction of homes
according to the Minimum Expenditures Basket. following the cyclones Batsirai and Emnati” was finalized
and validated by the BNGRC. Implementation modalities
• For recovery for the most vulnerable non displaced were developed through the dedicated shelter Cluster
people living on site of their damaged or destroyed
technical working group and were validated by BNGRC
house: Assisted reconstruction in line with guidance
and all partners involved.
from the Secretary of State in charge of New Cities and
Housing (SEVNH), and support to self-reconstruction To help ensure that recipients used cash for agreed-upon
including training, distribution of difficult material to purposes, payments were made in several installments and
find on market and distribution of cash grant with light monitoring activities occurred between each. As traditional
conditionality for products easily available. homes can be built in five to seven days, a distribution in
two installments supported this rapid approach. The first
• To assist recovery of most vulnerable tenants: Cash condition for support was the attendance of an awareness
for rent support for 3 to 6 months and for an amount session on Building Back Safer (BBS) principles and a cash
not exceeding the cash for shelter one, linking with book training on registering and monitoring expenditures.
other sectors to identify complementary assistance as The second condition was the verification of the use of
for income generating activities. the first installment to purchase materials, tools, and/
or labor commitments in addition to the application of
• For all affected communities: Appropriation and
housing improvements presented during the BBS training.
awareness raising of construction techniques at the
local level (community and authorities), and training The maximum amount of AR 350,000 (USD 80) for the
for masons, carpenters, authorities and community partial reconstruction per household was decided in
members involved in support to self-reconstruction agreement with the BNGRC, the MPPSPF, and the shelter
programs. sector partners. This amount was calculated as approxi-
Response options were established with an agreed vulner- mately 25 percent of the materials needed to build a house
ability and selection criteria scorecard for households of 3x4m plus labor. The improved dwelling hut proposed
targeted by NFI distribution, with a minimum score to be would resist cyclones according to the SEVNH guide. The
included. This approach aimed to address transparency in amount corresponds to the minimum amount necessary
accountability to the affected population and equity in an to start essential elements of the house and has been
calculated on the assumption that the households that will
under-resourced response.
benefit from this amount, following the BBS sensitization
given, will be able to support part of their reconstruction.
© Susie Jasmin Velo
© Pascal Panosetti
Shelter partners’ training on Build Back Safer, March 2022. Safer building awareness, Cash for Shelter program, August 2022.

A complete set of programming, management, and moni- The initial vulnerability and selection criteria scorecard for
toring tools were developed and circulated to support households was adapted to CCFS, understanding that it
partners and participants in their programming. Tools could be adapted in consultation with communities where
were made available in both French and Malagasy languages the approach would be implemented. For community
so that each document could allow for a common under- mobilization and participation, a targeting and reconstruc-
standing between all interlocutors. tion committee was developed with appropriate complaint
mechanisms through various channels. To support BBS
The seven BBS principles were identified through the
principle dissemination for the entire community, at least
capitalization of past projects in Madagascar, with graphic one model house was built for each project, and commu-
support to ensure equal awareness through all self-recon- nity carpenters were trained for households involved in
struction (through CCFS) projects implemented for this CCFS projects.
response.
It was recommended to create groups of ten to fifteen
Key messages included in the improved construction eligible households based on their location to support each
awareness session: other by electing a skilled treasurer and a chairperson to
Introduction to improvements to traditional houses in south-
mitigate high levels of illiteracy within targeted communi-
east Madagascar ties. Through this methodology, households would super-
vise each other and would be more likely to support each
# Build Back Safer Messages other to ensure collective progress during reconstruction
1 Install the posts at a minimum depth of 75 cm and repair works. The grouping also allowed participants
to jointly track expenditures against funds received or
and fill the hole with small gravel to a height of
jointly order and purchase the necessary materials to
10 cm
reduce transportation costs. It also aimed to encourage
2 Fix diagonal bracing at all corners and nurture community solidarity mechanisms, and to
3 Fix horizontal bracing between the bottom and ensure that the most vulnerable were helped by others.
top rails at the 4 corners CCFS projects were implemented by most partners, with
4 Install trusses on each side of the house some to repair or rent through CERF funding. Ten months
5 Attach diagonal braces between the truss spike after the cyclone impact, approximately 17,564 households
and the ridge purlin received Cash for Shelter assistance to repair, retrofit or
rebuild their homes, 1,693 households were supported
6 Nail purlin supports to the rafters through in-kind house reconstruction, and 71 households
7 Tie a 12mm wire or rope or vines around all were provided with Cash-for-Rent shelter assistance.
connections to resist the wind
MAIN CHALLENGES
Access to affected communities was often difficult due to

logistic constraints, as some villages were only accessible by
sea or river with no road to reach the most dispersed and
remote settlements. This also caused delays in delivery and
implementation. The response was also under-resourced,
with only 26 percent of the required funding received and
only seven active humanitarian partners. Initial assessments
and monitoring of needs were challenging due to resources
and access issues.
The first phase of the response was delayed due to the
succession of cyclones. The CCFS approach’s implemen-
tation also suffered from delays in decision-making from
authorities regarding an agreement to raise the initial
amount from AR 100,000 to 350,000 (USD 23 to 80) and
the validation of strategy and implementation modalities,
which put partners funded through the CERF allocation,
particularly under pressure. While this approach supported
households in repairing damaged or flooded homes, the
amount was not sufficient to enable total support for
those who lost their homes entirely.
It was also challenging to define fair targeting criteria and
scoring benchmarks, due to the high level of extreme
poverty of affected communities, exacerbated by the low
level of resources available to respond to their shelter
needs.
IEC materials for building back safer awareness used for Cash for Shelter
programme.

WIDER IMPACTS
The CCFS approach used to rebuild or repair tradi-

tional housing considering BBS principles improved the
knowledge of the community and local workers on safer
construction techniques. Participants sensitized could
cascade knowledge within the community. Because some
households started to repair homes before CCFS activities
started, the new inputs assisted them in retrofitting efforts.
knowledge, but instead were aimed to reactivate, replicate
and improve local construction practices and indigenous
© Pascal Panosetti
knowledge. The CCFS approach was also used for rental
assistance in some urban settlements. Tools, experience,
and learning from this part of the response should be
helpful to meet urban shelter needs for other parts of the
country. The community is trained on the use of tarpaulin for the shelters.
The CCFS approach was culturally adapted to affected

communities, as most settlements were homogenic in
the typologies of homes built. These structures followed
a mortise and tenon joint type of structure. None of the
BBS disseminated messages contradicted local traditional
knowledge, but instead were aimed to reactivate, replicate
and improve local construction practices and indigenous
knowledge. The CCFS approach was also used for rental
assistance in some urban settlements. Tools, experience,
and learning from this part of the response should be
helpful to meet urban shelter needs for other parts of the
© Pascal Panosetti
country.
“We learned many things, including how to choose wisely in
terms of where to rebuild our houses and how to make them
resistant to strong winds, while also using local materials. The House repairing process with Conditional Cash for Shelter approach.
shelter we built together confidently withstood the strong winds
we heard last night!,” said Tsoto. “Now, the community can see
that our techniques are working. I am willing to encourage
and support them with the actual rebuilding of their homes.”
- Tsotso, a carpenter involved in a ‘build back safer’ shelter
programme in Madagascar interviewed after the impact of
TC Freddy in February 2023.
© Hector Esteban
Training of the community carpenters.

© Hector Esteban
© Xavier Génot
Shelter kit received by household, repacked to allow transportation for long Building of a model house with trained carpenters, Conditional Cash for Shelter
distance walk. program.

LESSONS LEARNED
• Conditional Cash for Shelter programming, on top of emergency shelter assistance, was an appropriate
approach to support the self-recovery of affected populations while enhancing Building Back Safer message
dissemination. The amount of cash distributed should be re-assessed each time to reflect the actual budget
needed to repair or rebuild homes without hampering the implementation of BBS measures. Further advocacy
to authorities would be necessary to increase the amount, with an additional 25 percent as the baseline for
future responses to allow reconstruction at scale.
• Cash for shelter programming might have an adverse impact on the environment, as the timber used to
repair or rebuild homes was often purchased in areas close to the project’s locations from landowners who
were not registered as official suppliers. This was notably due to transportation costs that were unbearable
for targeted communities too distanced from markets. Additional supply chain support for timber should be
explored for the next response.
• Literacy levels and the absence of participant documentation such as identity cards, birth certificates, or
land certificates in rural areas created challenges in participant capacity to receive cash installments. An analysis
of alternative means of identification should be explored, if possible, to fast-track access to this type of cash
assistance.
• The coordination of the response benefited from enhanced participation of authorities at the national and
regional level, with strong engagement of humanitarian partners for standardization of response modalities. The
capitalization of the CCFS experience, tools and methodology during this response would allow for a faster
response in future post-cyclone and other relevant contexts.
© Xavier Génot
Model house build at the centre of main settlement to enhance safe shelter awareness at community level. It was used for training of volunteers before assisting eligible households.

On Madagascar: A.18 / MADAGASCAR 2012 TROPICAL STORM;
On tropical cyclones/hurricanes: A.8 / BAHAMAS 2019–2020; A.21 / PHILIPPINES 2016–2018; A.5 / DOMINICAN REP. 2012
On capacity building: A.19 / NEPAL 2017–2018; A.11 / DOMINICA 2017–2018; A.21 / MALAWI 2015–2016

AFRICA A.6 / MALAWI 2022 / TROPICAL STORM ANA DISASTER
CASE STUDY MALAWI 2022 / TROPICAL STORM ANA

KEYWORDS: Community engagement, Emergency shelter, NFI distribution
Tanzania
CRISIS Tropical Storm Ana, January 2022
PEOPLE AFFECTED 221,127 HHs (995,072 individuals)*

PEOPLE DISPLACED 32,935 HHs (152,786 individuals)* Zambia
NORTHERN
HOMES DAMAGED/ 59,860 homes completely destroyed BAHR EL
GHAZAL
DESTROYED
135,941 homes damaged WESTERN
WARRAP
L I L O N G WJONGLEI
E
BAHR EL
PEOPLE WITH GHAZAL
SHELTER NEEDS 190,429 people* LAKES
PROJECT LOCATION Chikwawa district, Southern Malawi CHIKWAWA

WESTERN EASTERN
EQUATORIA EQUATORIA
CENTRAL
730 HHs (3,432 individuals) EQUATORIA
Mozambique
PEOPLE SUPPORTED Response Location
BY THE PROJECT 4,257 individuals reached with Build Back
Better messages
PROJECT SUMMARY
Distribution of ESKs and NFI to 730 HHs In response to the effects of Tropical Storm Ana,
PROJECT OUTPUTS Construction of 730 temporary shelters this humanitarian project focused on meeting the
Community awareness and trainings on Safe emergency shelter needs of the affected population
Shelter construction in the Chikwawa district, focusing on supporting
self-recovery pathways. The are of intervention was
SHELTER SIZE
20 m2 (Using 6*4 canvas as roof, considering some selected based on a multi-sectoral needs assessment
inclination and folding) and analysis, with the project implemented in
coordination with other stakeholders at the district
SHELTER DENSITY 4 m2 per person (average of 5 persons per HH) and national level. The affected communities
were the central actors throughout the project
DIRECT COST
USD 208 per HH (Includes procurement of ESKs, implementation, receiving support through shelter
NFIs, labor, and training on the use of ESKs.) construction and NFIs.
PROJECT COST USD 251 per HH *Malawi Floods Flash Update No. 2, February 2022
1 3 5 7 8 9 10
2 4 6
HANDOVER
PROJECT
CONTEXT
CRISIS
TIMELINE JAN FEB MAR APR MAY JUN JUL
2022
Jan 2022: Tropical Storm Ana caused floods, destruction, and

fatalities in Malwai.
1 Jan 2022: Multi-sector Needs Assessment.
2 Apr 2022: Project inception meetings with District Civil
Protection Committees and District executive committees.
3 Apr 2022: Project inception meetings with Local structures.
4 Apr - May 2022: Beneficiary selection and verification exercise.
© Habitat for Humanity
5 May 2022: Safe house construction (BBB) awareness meetings.

6 May 2022: Training on how to use the emergency shelter kits.
7 May 2022: Emergency shelter training for staff.
8 Jun - Jul 2022: Distribution of Emergency shelter kits and NFIs.
9 Jun - Jul 2022: Construction of 730 temporary shelters.
In the months of June and July, 730 HHs were asssisted with temporary shelter
10 Jul 2022: Project monitoring and post-distribution survey. construction.

DISASTER A.6 / MALAWI 2022 / TROPICAL STORM ANA AFRICA
CONTEXT Some IDPs were hosted by relatives and friends. Most

displacement sites were overcrowded, with limited access
Malawi is one of the world’s least-developed countries. to basic services such as water, sanitation, and hygiene –
The economy is based on agriculture and has a largely rural raising concerns over possible disease outbreaks, including
and growing population. The country faces challenges in the spread of COVID-19. Protection concerns were raised,
building and expanding the economy, improving education, particularly gender-based violence (GBV). Additionally,
healthcare, and environmental protection. The climate is there were increased vulnerabilities of people with disabili-
hot in low-lying areas in the south of the country. Several ties, people living with HIV, and persons with albinism.
languages are spoken, and there is an array of religious
beliefs. Malawi has a low life expectancy and high infant A state of disaster was announced across 15 districts in
mortality. the southern and central regions of Malawi, and an appeal
for humanitarian assistance was made by the government
Tropical Storm Ana lashed the southern and central to support displaced people in the camps with food and
districts of Malawi in January 2022, bringing strong winds essential household items (EHI), to provide healthcare to
and heavy rains. Within hours of landfall, communities injured people through the deployment of mobile clinics,
were faced with significant flooding. Some of the storm-af- and to provide water, sanitation, and hygiene (WASH)
fected areas were already suffering from floods due to activities.
the ongoing rainy season. According to the Government
of Malawi – Department of Disaster Management Affairs
(DoDMA), by 31 January 2022, 37 people were reported
dead, 22 were missing and 158 were injured. Over 193,558 In February 2022, the national government released a
households (948,434 individuals) were affected, and 740 consolidated four-month response plan targeting 166,000
hectares of crops were destroyed. Before the disaster, households (747,000 people) with immediate survival
the areas impacted were already under Integrated Food needs, the restoration of essential socio economic services,
Security Phase Classification 2 (stressed) and 3 (crisis). and transition support to early recovery. A total of USD
Bridges were washed away by swollen rivers, while live- 70 million was required to implement the plan, with USD
stock drowned, and fields were submerged – destroying 4 million for Shelter and Camp Management. The Shelter
the livelihoods of rural families. Damage to public infra- Cluster’s overall response objective was to facilitate the
structure (health facilities, churches, and schools including provision of safe, adequate shelter and to collect and
damage to teaching materials) was also reported. manage data for people and institutions affected by the
disaster, whose homes were destroyed or rendered unin-
More than 140 emergency camps were set up to deal with habitable. According to the UN Flash Appeal for Malawi
thousands of displaced and injured people. 22,364 house- (February to May 2022), 159,000 individuals required
holds (109,359 people) were hosted in these camps, and emergency shelter support – of which approximately
displaced households sought refuge in designated open 96,000 were living in camps.
areas, churches, schools, and other public structures.
© UNICEF Malawi/2022/HD Plus
The Government of Malawi led the humanitarian response, through the Department of Disaster Management Affairs (DoDMA), with support from humanitarian
partners, including NGOs, the UN and donor agencies.

PROJECT DESIGN/STRATEGY implementing entity’s experience in the field and coordi-

nation within the Cluster partners. Cash modalities were
Project Objective: The project aimed to support the most considered not effective in this context because individuals
vulnerable affected populations in the Chikwawa district often used cash support on non-shelter related expenses.
regarding temporary shelter needs and accompanying
them on their pathways to recovery in safe areas.
Output 1: Communities in the Chikwawa disaster-af-
fected areas were supported in terms of their needs for
emergency shelter and household items in IDP camps.
Activities included:
• The distribution of 730 emergency shelter kits (ESK),
including a supplementary timber supply (eight pieces
of timber – 16 feet long and 75mm x 75mm or 3 inch

x 3 inch section).
• Community training on the use of shelter kits and
how participants can build temporary shelters with
the materials provided.
• Distribution of non-food item (NFI) kits and kitchen
Families received relief items including NFIs and kitchen sets.
sets to 730 households.
Output 2: Communities in Chikwawa disaster-affected
areas were supported in their voluntary request to resettle
in safer areas.
© Annie Maduka
Activities included:
• The provision of awareness raising guidance and tech-
nical support in safe shelter design and settlement
planning.
• Training on improved construction techniques.

• Community support to secure land tenure in reloca-
tion areas.
“Emergency Shelter Kit” content:

Distribution of Emergency Shelter Kits to construct temporary shelters.
Item Quantity/kit
Rope 1 x 30m IMPLEMENTATION
Handsaw 1 The affected community requested a government-sup-
Nail for roof sheets ½ Kg (1lb.) ported relocation to a safer area, due to deteriorating
Shovel 1 conditions in the camp. In coordination with the affected
communities, the Shelter Cluster, and civil protection
Hoe 1
committees, it was agreed that Emergency Shelter Kits
Machete 1 (ESKs) would be provided to construct temporary emer-
Nails (Large) ½ Kg (1lb.) gency shelters in their original location, and the camps
Nails (Small) ½ Kg (1lb) would be dismantled. In the second stage, once the
Claw Hammer 1 government could finalize the procurement of new land in
a safer area and support the relocation, participants would
Woven Sack 1
use the same tarps and timber in the final location. Such a
Tarpaulin (4m x 6m) 2 double-step path re-using the ESKs was followed by 292
“Household NFIs kits” content: households, while the other 438 moved directly from the
Blankets (Light type) 2 camps to the final allocated plot – for a total of 730 HHs
Sleeping Mats (Plastic style) 2
supported by the project.
Jerrycan 20L / Bucket with lid 20 L 1 The project was run by a team of eight staff, of which three
Laundry Soap (Start-up Kit) ½ Kg/HH/month were construction supervisors. The discussions held with
relevant government authorities facilitated the provision of
Personal Hygiene Soap 3/HH/month
land tenure documents for the IDPs on the final relocation
plots (25x20m for each HH). Land ownership documents
Regarding assistance modality, the in-kind distribution were temporarily granted to the community leadership
was preferred over the provision of cash, based on the until the individual land tenure titles were processed.

TARGETING selection criteria were agreed upon – the registration of

participants for the project took place at the camps. A
Vulnerabilities considered during beneficiary selection are preliminary list was submitted to the organization, who
as follows: together with the District Civil Protection Committee,
• Individuals directly impacted by the disaster. and the Protection and Camp Management committees
conducted a door-to-door verification while assessing
• Child-led households.
household vulnerability.
• Elderly-led households.
Once verifications were complete, the 730 HHs were
• Household members with chronic illnesses.
selected from 1,500 visited, and the final list was endorsed
• Children receiving supplementary feeding. by the community and the rest of the stakeholders
• Female-led households. engaged. Complaint and feedback committees (of at least
• Households with orphaned children. three people) were established in different locations, and a
• Household members with disabilities. complaints desk was established at distribution sites.
• Households with pregnant and lactating mothers.
COMMUNITY ENGAGEMENT
• Recovery capacity: Households with low self-re-
covery capacity and those who haven’t been able to The pre-existing community committees played a key role
rebuild a safe shelter. in the identification and selection of the project partici-
• Displaced families living in camps, collective centers, pants, but also in the safe shelter awareness campaign that
transitional centers or host households. the project promoted. A total of 70 local leaders were
trained and replicated the training within several commu-
• Families living in unsafe structures, threatening their
nities, reaching over 4,200 people with messaging and a
own safety.
construction manual on how to improve the disaster
• Level of damage to household. resistance of new construction considering site selection,
house design, construction materials, and techniques.
Following an inception meeting conducted with the The committees were also trained in quality control and
camp management committee, Village Civil Protection provided daily reports on the progress of the shelter
Committees, and Village Development Committees where construction.
The response included community awareness and trainings on Safe Shelter construction during distributions.

COORDINATION LINKS WITH RECOVERY
The Shelter Cluster was led by the Ministry of Housing, The project provided useful tools like hoes, shovels, and
co-led by the Malawi Red Cross, and was established at machetes to support households with livelihood activities.
national and district levels. The strategy of the project The tools enhanced beneficiary capacity to return to work
was based on multi-sector assessments promoted from in the construction and agriculture sectors, both key to
the Cluster, and also the contents of the ESK packages Malawi’s economy.
were agreed upon at a Cluster level. District civil protec-
tion meetings were also held, where local stakeholders OUTCOMES AND WIDER IMPACTS
and the Disaster Management Affairs Department were
kept informed on project activities, challenges, and lessons • This was the only shelter response project in the
learned. district that incorporated issues related to safe house
construction. Therefore, the project posed a learning
MAIN CHALLENGES opportunity for other stakeholders doing similar
interventions.
• Procurement was impacted by market volatility, as the
• The project raised awareness about Safe Shelter
country was affected by an increase in inflation rates
Construction among over 4,000 people. Thus, the
resulting in higher prices and delivery delays. It was
project indirectly encouraged more families to build
decided to procure all the relief items and building
their homes following the safe house construction
materials at once, instead of small purchases, to secure
guidelines.
fixed prices.
• The project supported the government and the
• Fuel scarcity affected the mobility of staff to supervise
communities in the resettlement process, doing advo-
and monitor the project as required and had to be
cacy on land tenure issues.
sourced from neighboring districts.
ENVIRONMENTAL CONSIDERATIONS
To discourage deforestation during the construction of the

shelters, the project provided timber purchased through
a nationwide open bidding process, to which qualified
suppliers from different districts applied.
© Sheila
© Annie Sanouid
Maduka
This was the only shelter response project in the district that incorporated issues related to safe house construction.

√ Robust support. The project received robust support x Financial resources. The entity, a national civil society
from affected communities and other stakeholders, organization, did not have the financial resources to
such as district government agencies (Civil Protection, respond immediately and needed to mobilize external
Public Works, and Housing) and Shelter Cluster resources. This delayed the initiation of response
partners. activities on the ground.
√ Participatory approach. A participatory approach x All needs not covered. Kitchen utensils were not
to community engagement allowed the project to provided through the project, which was a major gap
address issues raised by affected communities, as according to post distribution monitoring. The provi-
opinions and preferences were seriously considered – sion of tarp, timber, tools, and fixings could not cover
enhancing beneficiary ownership of the project. all needs, since most of the project participants had
lost everything.
√ Increased resilience. The project increased commu-
nity efficacy and resilience to disasters through skills
training and information sharing (i.e., site location,
erecting temporary shelters, and community orga-
nizing to share key disaster messages). FURTHER READING ON SHELTER PROJECTS
√ Learning from past experiences. The implementing On Malawi: A.19 / MALAWI 2015; A.20 / MALAWI 2015
entity, a national civil society organization, had
On cyclones: A.15 / FIJI 2016; A.18 / MADAGASCAR 2012
previous experience in disaster risk reduction and
response shelter projects. On emergency shelter: A.4 / NEPAL 2015; A.15 / KENYA 2011
In-kind distribution was preferred over the provision of cash, based on the Over time, families built their permanent houses after securing land tenure in
implementing entity’s experience in the field and coordination within the the new safe location.
Cluster partners.
LESSONS LEARNED
• Coordination with district-level structures demonstrated the importance of strong and effective partner-
ships – as evidenced in the response efforts – which resulted in the decommissioning of camps in the district,
among other benefits.
• Community empowerment is vital in reaching out to larger masses with Build Back Better messages.
• Prepositioning of relief items. There was a need to preposition all relief items prior to a disaster to assist
affected communities as soon as possible and save lives.
• Need for resilient temporary shelters. Emergency shelters (tarpaulin shelters) have been home to most
affected families for over seven months due to different vulnerabilities – demonstrating the importance of
building resilient temporary shelters.
• Self-led household recovery was hindered due to the financial crisis. It would be convenient to combine the
distribution of ESKs and NFIs with cash grants to enhance recovery.

AFRICA A.7 MOZAMBIQUE 2021–2022 / COMPLEX CRISIS COMPLEX/MULTIPLE
CASE STUDY MOZAMBIQUE 2021-2022 / COMPLEX CRISIS

KEYWORDS: Community engagement, Gender mainstreaming, Local construction techniques, Permanent houses
Conflict-Induced Displacement in Cabo

CRISIS Tanzania
Delgado
Zambia
PEOPLE AFFECTED 2,267,715 people affected*

Malawi ANCUABE,
CABO
PEOPLE DELGADO
DISPLACED 946,508 people displaced**
PEOPLE WITH
SHELTER NEEDS 30,333 HHs (120,227 individuals)***
Zimbabwe
PROJECT
Marocani Resettlement Site, Ancuabe District
LOCATION
Madagascar
PEOPLE
SUPPORTED BY
Total of 250 direct benficiaries Eswatini
Indian Ocean
THE PROJECT (50 women and girls headed households) South
Africa
M A P U T0
2 typological executive projects for resilient and Project Location
gender sensitive housing solutions for IDPs
50 permanent housing units built PROJECT SUMMARY
PROJECT
OUTPUTS 40+ women trained in resilient construction
This project serves as a pilot initiative targeting one of
67 local artisans trained in resilient housing the actual 26 sustainable villages where the displaced
construction
population is resettling across the region, impacting
3 local associations reinforced directly in the improvement of the quality of life of the
4500 inhabitants of Marocani sustainable village. The
SHELTER Model 1 (3 bedrooms): 42 m2 main objective of the project was to strengthen the
SIZE
Model 2 (2 bedrooms): 36 m2 mechanisms for the protection of displaced women
and girls, from the first accommodation to the definitive
SHELTER resettlement, through their empowerment and inclusion
DENSITY 4.25 m2 per person for both model types in the process of recovering their livelihoods and in the
design and construction of their housing so that they
Model 1: USD 2,000 are adequate, accessible, resilient, and safe. The adopted
DIRECT COST
Model 2: USD 1,500 models and implementation approach has been entirely
co-designed with the national and local authorities
Model 1: USD 2,750
PROJECT COST responsible for the management of the displacement
Model 2: USD 2,250
crisis, engaging the beneficiaries from the design phase
* Total population of Cabo Delgado - Census 2017, INE (with participatory design workshops) up to the
construction, to be at the same time to be “gender
** IDP Baseline Assessment Round 16, IOM-DTM, June 2022
sensitive” and “cyclone resilient”.
*** CCCM, June 2022
1 2 3 4 5
HANDOVER
PROJECT
PLANNING IMPLEMENTATION
CONTEXT
CRISIS
TIMELINE JUN JUL AUG SEP OCT MAR APR MAY JUN JUL AUG SEP OCT NOV DEC JAN FEB MAR
2020 2021 2022 2023
2020: Escalation of the security incidents in Northern Mozam- 3 Sep 2021: Construction of adequate, affordable, safe, and resilient
bique, which were ongoing since 2017. housing model with community participation, until Mar 2023.
1 Jun 2021: Housing models planned and designed through a 4 Mar 2022: Continuous monitoring, documenting, and assessing
participatory process with the involvement of displaced women the impact on beneficiaries to document good practices.
and girls.
5 Mar 2023: Scale-up phase, with support from other shelter part-
2 Sep 2021: A technical training and community engagement to ners, replicating the model.
ensure women’s participation.

COMPLEX/MULTIPLE A.6 MOZAMBIQUE 2020–2021 / COMPLEX CRISIS AFRICA
CONTEXT as mentioned, the region registered extreme climate events

in recent years, such as the landfall of Cyclone Kenneth in
Mozambique has been chronically affected by disasters April 2019, affecting approximately half a million house-
(floods and cyclones in particular) and conflict-induced holds, who saw their homes partially or totally destroyed.
displacement, almost since its independence. More than Approximately 90 percent of housing units are built with
a decade of civil war (1964-1974) shaped its settlement’s traditional or mixed materials, using natural resources
geography, leading to an increase in the urbanization available in the surroundings of the human settlements,
rate and the gradual transformation of a previously rural and often having corrugated metal sheets for improving
model of sparse settlements with limited connectivity and the roofing. The primary construction modality is self-con-
availability of public services and infrastructures. Since struction, with households relying on local artisans for
the beginning of 2020, the ongoing conflict in northern specific jobs such as carpentry. Families in Cabo Delgado
Mozambique between government forces and Non-State used to build according to the Swahili tradition, on small
Armed Groups (NSAG) intensified and increased atten- plots, fenced for enhanced privacy and with the housing
tion at the international level, followed by the provision of unit facing the street side – connected to the public space,
humanitarian and development interventions. and keeping the backyard private.
SITUATION BEFORE THE CRISIS SITUATION AFTER THE CRISIS

Cabo Delgado, despite being rich in natural resources, high The conflict and resulting massive displacements, combined
biodiversity, and environmental capital – has the second with the effects of previous disasters and high socio-eco-
highest rate of chronic malnutrition and child marriage. As nomic vulnerability, had profound impacts on land use and
well as the highest rate of illiteracy and multidimensional tenure in recipient urban settlements (larger towns such as
poverty in the country, which overall ranks 180 out of 189 Pemba had a significant 30 percent increase in size within
in the Human Development Index. In addition to that and
Site plan of Marocani, with indication of the different land-use interventions developed by the organization.

months), challenging the local authorities’ capacity to PROJECT DESIGN

respond. This resulted in a lack of access to basic services
(water, sanitation, waste management, schools, health The project aimed to strengthen the mechanisms of protec-
centers, electricity, etc.) and the improper use of natural tion for displaced women and girls, from the phase of first
resources (e.g., deforestation, leading to land degradation). temporary accommodation to final resettlement, through
Additionally, the IDP food security levels were also inade- empowerment and inclusion in the process of recovering
quate. Numerous cases of conflict between IDPs and host their livelihoods and building their housing to be adequate,
communities were registered, as well as violence within accessible, resilient, and secure. Throughout the implemen-
individual households – especially gender based violence. tation of the initiative, displaced women and girls were at
189 in the Human Development Index. In addition to that the center of the transformation process, being actively
and as mentioned, the region registered extreme climate involved in all phases of implementation from assessment
events months), challenging the local authorities’ capacity to decision-making. This approach aimed to improve their
to respond. This resulted in a lack of access to basic services technical-constructive skills and livelihoods while also
(water, sanitation, waste management, schools, health contributing to self-employment and entrepreneurship.
centers, electricity, etc.) and the improper use of natural The Government of Mozambique advocated for durable
resources (e.g., deforestation, leading to land degradation). solutions to housing and sustainable settlements in general,
Additionally, the IDP food security levels were also inade- setting up mechanisms of support of self (re)construction,
quate. Numerous cases of conflict between IDPs and host providing construction materials to displaced families in
communities were registered, as well as violence within permanent resettlement sites – where plots of land were
individual households – especially Gender Based Violence. distributed to IDP households and basic services, and
infrastructure were under construction and improvement.
NATIONAL SHELTER STRATEGY With its extensive experience in resilient and gender-sen-
sitive housing in Mozambique, the implementing organiza-
The Government of Mozambique, supported by human- tion supported the government at all levels in creating a
itarian and development partners, addressed the crisis in model that could be replicated and scaled up, serving as a
Cabo Delgado to help ensure protection and livelihoods pilot approach in the region.
for the displaced persons – both in resettlement areas
and within host communities (primarily in the main urban
IMPLEMENTATION
areas). This also included those returning to pacified conflict
areas, through integrated plans for recovery and develop- During the first phase, a project support technical
ment, resulting from the joint assessments conducted. committee was established to ensure engagement with
The government created the Agency for the Integrated the government at various levels (provincial directorate
Development of Northern Mozambique (ADIN), which for Land and Environment, Public Works and Housing, and
has among its responsibilities to promote integrated local Gender and Social Action, as well as district authorities)
economic development as the overall coordinating body and their endorsement of the process. The project was
for crisis response and recovery. ADIN elaborated and structured to strengthen an already existing mechanism of
presented the strategy to assist and implement durable assisted self-construction that was functioning through the
solutions for conflict-affected populations, including the delivery of permanent housing within the framework of
creation of new settlements for around 70,000 house- the PREDIN (Programme for the Resilience and Integrated
holds. Within government plans, housing had a central Development of the North) – where the housing compo-
role, together with an increase in livelihoods, employment nent had a very relevant role, absorbing around 25
opportunities, and sustainable development for youth, all percent of the total budget. The participatory design
set as key elements towards peace building.
© Claudio Monteiro (UN-Habitat Moz)
© Edson Pereira (UN-Habitat Moz)
Local carpenters under training on reinforced roof structure connection, November More than 40 women were trained in resilient construction techniques. They
2021. were trained in plastering techniques using local mud, December 2021.

phase contributed to diversifying housing models, intro- safety conditions (which unfortunately deteriorated during
duced elements of resilience to extreme events in roofing project implementation, when NSAG attacks targeted the
(cyclones and strong winds in particular), and promoted a Ancuabe district).
gender sensitive approach within the housing space.
Beneficiaries for the housing units were selected through
The implementing agency ensured technical and oper- an integrated and multidimensional survey targeting
ational support on-site, creating teams of skilled and women and girls living in the site, promoted directly by
unskilled workers within the displaced community, and the implementing organization’s gender unit and with the
engaging with families for the provision of local construc- support of the Ministry of Gender Youth and Social Action
tion materials available in the surrounding areas (wood, (MGCAS) and UN partners. The three main criteria used
bamboo, gravel, sand, etc.). The implementing organiza- in the profiling of participants were as follows:
tion’s local team of architects and engineers developed a • Being a displaced woman or girl (with priority on the
multi-stakeholder training program, targeting local author- single head of the family and the elderly).
ities, community members, NGOs, and CBOs engaged in
• Have a degree of disability in the family.
reconstruction, to help ensure the enhanced knowledge
sharing and institutionalization of the approach. A team of • Household size.
three national architects (a Project Manager and two field
supervisors) was engaged in the implementation of the
project (on a routine of weekly field visits, with increased
frequency in key construction phases). A gender and an
environment specialist were also deployed to support
the participatory design phase, the definition of stories
and awareness materials, as well as in the definition of an
Environmental and Social Safeguard Screening Framework.
An analysis of the use and needs of natural resources
around resettlement sites was promoted by a partner
organization, to be taken in consideration to implement
mitigation actions, above all on reforestation.
The land was provided by the provincial government with
a partial settlement plan. The definition of plots and a
community cadaster were handed over to local authori-
ties. To strengthen the security of tenure of target women Floor plan of the 2-bedroom model house, measuring 36 m2.
and girls, the project supported the process of emission of
official and personal land use rights. Latrines were designed
with the project contribution, using models provided by
the WASH Cluster and partners who supported families
on the WASH component (including the 50 housing units
targeted by the project).
The kitchen of the home was left as a flexible element,
where families had the opportunity to decide where to
locate it in the plot – inside the home or outside under the
veranda. The majority of participants used the previous
emergency shelter provided – readapted and improved
– as an external kitchen. The majority of the households
Longitudinal section of the 2-bedroom model house.
were also provided by other partners within the Food
Security Cluster with improved charcoal cooking stoves,
which allowed them to save energy.
TARGETING
© Wacela Macamo (UN-Habitat Moz
The site where the project was implemented was pre-iden-

tified by the government to become a pilot and demon-
strative case to develop an integrated and durable settle-
ment establishment, with the support of humanitarian and
development partners. Marocani is one of the 70 new
sustainable settlements planned to be built by the ADIN in
the Northern Region. The location has also been selected
by the implementing organization for its proximity to the The housing model was widely accepted by the community, being an improved
capital of the province (around two hours) and for its version of the traditional home built in the region.

COMMUNITY ENGAGEMENT where continuous engagement of implementing partners

(NGOs) was not required and strong coordination with the
A total of 40 women and 67 local artisans, belonging to the community and local authorities could help ensure imple-
displaced and surrounding host communities, were trained mentation even with periodic supervision. In the approach,
on resilient housing construction and engaged in the capacity development, with frequent on-the-job training
process. Many participants replicated what they learned and the use of simple and traditionally accepted construc-
to provide support to other families in building perma- tion techniques, counterbalanced the limited availability
nent homes with the support of the government. Thanks of skilled labor within the IDP and hosting community
to the project, small carpentry services, masonry teams, of Marocani. Participant engagement increased along the
plastering teams, and local material providers have grown implementation process thanks to efforts in community
locally – resulting in a more dynamic socio-economic envi- mobilization and the definition of implementation modali-
ronment and a conductive production chain for improved ties that could provide participants with clear comparative
housing. advantages resulting from their engagement in construc-
tion. To cope with the limited availability of conventional
COORDINATION materials in the local market and long and costly trans-
portation, the project developed a model of permanent
A Technical Implementation Group (working group) housing that was based on the traditional Swahili house,
composed of the Provincial Infrastructure Service (SPI), with some technical improvement and the reduced use of
Provincial Environmental Service (SPA), National Institute commercial materials in comparison with other permanent
for Disaster Management (INGD), National Institute for housing typologies.
Refugee Support (INAR), and the Provincial Social Affairs
Service (SPAS) was established with the primary task of
OUTCOME AND WIDER IMPACTS
carrying out monitoring and supervision activities during
project implementation. ADIN endorsed the approach The simple and recognizable approach to providing durable
and proposed it to other humanitarian and development solutions in permanent resettlement settings was widely
partners. In Marocani, the process of housing construc- accepted at the government level and with high potential
tion moved forward with the main support of UN partner, for replication and scale-up. The “Marocani model” was
who assisted the community with the construction of 200 presented in various thematic coordination meetings also
housing units. The implementing organization provided with development partners such as the Shelter Cluster,
pro-bono advice and technical assistance to other NGOs and the Multi-stakeholder Platform (MSP) and inspired
engaged in shelter support, to spread the housing approach housing reconstruction initiatives all over the Northern
in other resettlement sites. Region. The gender-sensitive and resilient housing solution
was appreciated in terms of cost-benefit, adaptability to
DISASTER RISK REDUCTION the local context, and simplicity in implementation. The
constant engagement of local labor, including from local
As mentioned, Mozambique in general, and Cabo Delgado women, served as an instrument of local empowerment,
in particular, are geographic contexts highly vulnerable a moment of social cohesion, and an example of gender
to climate-related shocks. The implementing organiza- balance and inclusion.
tion included a strong DRR transversal approach to all its
project activities. The homes described in the case study
were built following mixed materials construction best
practices widely tested and institutionalized in previous
projects like the Coastal Cities Adaptation program and
the Safer Schools and Safer Hospitals approach, developed
together with a UN partner which resulted in new national
resilient building codes for public infrastructures, such as
hospitals and schools.
MAIN CHALLENGES
© Wild do Rosário (UN-Habitat Moz)
The project encountered many challenges throughout the

implementation process, above all related to the volatile
security situation, the limited availability of skilled labor, the
difficult initial engagement of participants, and the compli-
cated logistics for the provision of conventional construc-
tion materials.
Due to the security situation and limited and non-contin-
uous access to the project site, the implementing organiza-
tion decided to set up an assisted self-construction process Two typologies of houses built (Model 1 and 2) side by side serving as a
community gathering place.

√ The housing model was widely accepted by partic- x The project underestimated the time needed for
ipants (in particular women and girls), being an the construction of this model considering the local
improved version of the traditional home built in the capacities of skilled and unskilled labor.
region. x There were initial difficulties in reaching a solid level
√ The creation of a local environment for the improve- of engagement with participants and communities
ment of socio-economic activities, job creation, and in providing support to the construction with local
skills development beyond the shelter provision. materials (wooden poles, sand, water, etc.).
√ Alignment with government priorities and ongoing x It was costly to respond to a such wide target of
plans, promoting the nexus approach for durable solu- households in need, hence necessary to improve the
tions and using the housing need as a central element. fundraising strategy and the alignment of other part-
ners to the same model.
√ Inclusion of gender and resilience perspectives into
the housing development. x There were challenges in having definitive land
titles attributed to the participants, combined
√ Scalability of the approach through the engagement
with productive land for livelihood means (land issue
of additional partners promoting the Marocani model
remained under discussion among the government
(from the 50 homes included in the project, now
and partners).
more than 500 units have been built on the site with
the same approach).
LESSONS LEARNED
• Enabling the role of the government at

various levels in transforming camps into
permanent sustainable villages contributes to
social cohesion and peacebuilding.
© Wacela Macamo (UN-Habitat Moz)

• Putting housing and communities at the
center of the recovery process allows the
project to intervene in an integrated and
sustainable way, towards durable solutions.
• Training and capacity building is a key aspect
of the construction process, to increase resil-
ience, durability, and quality of units, providing
knowledge to local stakeholders to replicate
activities without external support.
The project participants were included in the design and construction of their
housing so that they are adequate, accessible, resilient, and safe.
A project that proposes such an integrated and FURTHER READING ON SHELTER PROJECTS
long-term approach to housing should be commis- On Mozambique: A.18 / MOZAMBIQUE 2007;
sioned for a mid-to-long-term implementation B.14 / MOZAMBIQUE 2007; A.6 / MOZAMBIQUE 2007
period, considering the possibility of interruptions
due to increases in insecurity and challenges to On permanent houses: A.14 / PHILIPPINES 2016–2020;
A.22 / SOMALIA 2011-2013
seasonal accessibility. Resettlement sites closer to
big cities that are more integrated with settlement On local construction techniques: A.5 / ETHIOPIA 2019–2020;
networks could be prioritized for scaling up, aiming A.2 / DEM. REP. OF CONGO 2018; A.19 / NEPAL 2017–2018
to ensure easier implementation modalities and
lower costs (in terms of transport, supervision, and
monitoring).

AFRICA A.8 / NIGERIA 2018-2021 / CONFLICT CONFLICT
CASE STUDY NIGERIA 2018–2021 / CONFLICT

KEYWORDS: Permanent houses, Restricted vouchers, Trainings, Wider impacts
Boko Haram and Islamic State’s West Africa Mali

CRISIS
Province (ISWAP) Insurgency (Armed Conflict)
Niger
PEOPLE DISPLACED 2,197,824 individuals displaced as of June 2022*
HOMES DAMAGED/ 5,095 houses completely damaged**
DESTROYED
4,845 houses partially damaged
Benin
PEOPLE WITH BORNO
SHELTER NEEDS 2.95 million people*** ABUJA
STATE
PROJECT LOCATION Bama and Gwoza Local Government Areas, Borno State.
PEOPLE SUPPORTED 650 HHs (5,533 individuals) | Over 700 local skilled and
Cameroon
unskilled laborers | 58 locally hired shelter field supervisors.
BY THE PROJECT
Project Area
PROJECT OUTPUTS 650 permanent shelters with micro solar systems
*IOM Nigeria Displacement Report, Round
SHELTER SIZE 25.92 m2 for 2 single rooms covered area per shelter 41, Baseline Assessment in Northeast Nigeria
**Assessment done by the organization,
November 2020
SHELTER DENSITY 4.32 m2 per person for an average household size of 6
***Humanitarian Response Plan, Nigeria,
DIRECT COST USD 1,932 per HH 2022 (February 2022)
PROJECT COST USD 2,206 per HH

PROJECT SUMMARY
650 permanent shelters installed with micro home solar systems were constructed to the most vulnerable households with completely
damaged shelters in Bama and Gwoza local government areas of Borno State. The local communities were directly engaged and trained on
shelter construction skills to design and build back their shelters which has contributed to increased sense of ownership of the beneficiaries
to their shelters. Based on learnings from implementing transitional shelter programming in Damboa, Dikwa and Ngala Local Government
Areas, a cash-based approach to shelter construction was employed in the project which ensured household participation in the shelter
design process, thus building towards better ownership and links to recovery of the affected population.
1 2 4 5 6 7 8
3 IMPLEMENTATION
PHASE 2
PROJECT
PLANNING IMPLEMENTATION PHASE 1 HANDOVER
CONTEXT
CONFLICT
TIMELINE JUL OCT NOV MAR APR JUL AUG SEP OCT NOV DEC JAN FEB MAR APR
2009 2018 2019 2020 2021
Jul 2009: Boko Haram uprising began, now in its 14th year.
1 Oct 2018: Needs and Housing Typology Assessment in Gwoza.

2 Nov 2018: Inception Meeting in Gwoza.
3 Nov 2018: Mapping of damaged houses in Gwoza.
4 Nov 2018: Shelter design workshop with the local communities
in Gwoza.
© Mercy Corps
5 Mar 2019: Pilot shelter construction in Gwoza.

6 June 2020: Pilot shelter construction in Bama.
7 Aug 2020: Completion of 325 permanent shelters in Gwoza.
8 Nov 2020: Completion of 325 permanent shelters in Bama. View of a completed shelter with micro solar installation.

CONFLICT A.8 / NIGERIA 2018-2021 / CONFLICT AFRICA
In 2022, the conflict in northeast Nigeria entered its In Bama, an initial camp was set up to accommodate
13th year since Boko Haram launched operations in the returnees in the government general hospital. Due to its
region, which experienced brutal attacks on civilians and quick congestion, the camp was later relocated to the
the massive destruction of infrastructure. The conflict has Government Senior Secondary School. Shelter capacity
claimed the lives of tens and thousands (including women and other services were overstretched, as the number
and children) while displacing millions across the shores of of returnees continued to increase. Flash floods during
Lake Chad through Niger, Chad, and Cameroon – some rainy seasons became a recurrent hazard, damaging
moving as far as the Central African Republic and Sudan. and destroying shelters across the camps regularly. The
The threat of potential attack by armed groups and mili- Gwoza local government established a camp for Internally
tary restrictions also negatively impacted trade, livelihoods, Displaced Persons (IDPs) after communities were secured
and markets – leaving many civilians dependent on human- by the Nigerian military. However, rural areas under the
itarian assistance. two local government zones remained uninhabitable due
to the activities of non-state actors in the region.
Although major military campaigns from 2015–2016
succeeded in reducing the group’s territorial control, Boko
Haram has proven remarkably adaptable in its tactics. The NATIONAL SHELTER STRATEGY
end of 2018 once again saw a rise in attacks in Nigeria’s The national shelter strategy in 2020 aimed to ensure the
Borno State, and by March 2022 in northeast Nigeria, sufficient, coordinated, and adequate delivery of emergency,
approximately 2,171,652 individuals (446,740 households) transitional, and permanent shelter solutions to respond to
were displaced. the immediate and long-term needs of the affected popu-
lation (displaced, returnees, and host communities) in the
SITUATION BEFORE THE CRISIS different areas.
The Bama and Gwoza local government areas are peri-
urban areas, with most homes primarily built with concrete PROJECT DESIGN
blocks and corrugated galvanized iron roofing sheets. Some A 36-month multisectoral project was designed with the
households also used mud bricks for walls. In remote areas, objective of increasing social cohesion and resilience to
individuals live in thatch homes, which accommodate both economic, social, and climate-related shocks for up to
people and their cattle, as most individuals are farmers and 200,000 men, women, boys, and girls from conflict-affected
herdsmen. communities in Borno State. Four intermediate outcomes
Following the crisis, roads were closed and accessed only were established to contribute to achieving the objective,
by military escort until March 2018, when they were including:
reopened by the state government for free access. This i. Improve rural livelihoods in an ecologically sustainable
enabled markets to reopen and encouraged displaced way by enabling households to take advantage of
people to return home. existing and new agricultural market opportunities.
ii. Adolescents and youth empowered as economic
actors in their communities through access to
employment and diversified livelihood opportunities,
financial services, vocational training, and business
development initiatives.
iii. Improved access to social protection and communi-
ty-based services for women, youth and adolescent
breadwinners, and other at-risk groups.
iv. Social cohesion will be strengthened within and
between conflict-affected communities and environ-
mental resource management improved in areas of
displacement and return.
A component of the third outcome was the construc-
tion of 650 permanent shelters for the most vulnerable
returnees, IDPs, and host community members.
Although the project initially considered the engagement
© Mercy Corps
of a contractor for the construction of 300 shelters, the

idea was later abandoned based on the learnings from
the implementation of transitional shelters in other Local
A completely damaged shelter in Bama Local Goverment Area, Borno State. Government Areas (LGAs) of Borno state. A community-led

approach was established, which reduced the unit cost of with the desk office of the local government areas by the
the shelters and allowed the caseload to be increased to organization’s Housing, Land, and Property (HLP) Officer
650 units within the same overall budget. and each participant household.
The organization collaborated with local communities and Together with the mentioned HLP Officer, the organiza-
involved participants during each stage of the process. tion’s team was composed of a Shelter Manager and a
Communities led in the mapping of damaged homes, Shelter coordinator overseeing all shelter programming in
designing of shelters, and pre selecting the most vulnerable Borno State, as well as a dedicated team for the project,
people based on agreed vulnerability criteria. A final draft which included a Senior Program Officer, two Officers and
design was agreed upon by the communities during a design four Assistants: a combination of engineers and commu-
workshop, which was later finalized based on recommen- nity mobilizers in charge of both technical issues and the
dations and approval of the Ministry of Reconstruction, relation with the community. The organization hired 58
Rehabilitation and Resettlement (MRRR). field supervisors from the communities, with technical
backgrounds for day-to-day monitoring of the construc-
IMPLEMENTATION tion work of 10-12 shelters each.
Skilled and unskilled laborers from the communities were TARGETING

trained, engaged, and paid on daily rates to construct the
shelters, while the construction materials were redeemed A total of 650 vulnerable households were selected for
by the project’s participants at pre‑selected vendor shops permanent shelter construction in Bama and Gwoza LGA.
using an e-voucher system. A community-led shelter design was adopted and finalized
based on recommendations and approval of the Ministry of
Reconstruction, Rehabilitation, and Resettlement (MRRR).
The first stage of the participant selection process consisted
of engaging the communities to conduct a mapping of
completely damaged homes. After that, each community
was asked to draft the vulnerability criteria. A vulnerability
vetting session was organized with representatives of all
the communities (men, women, boys, girls, and persons
© Mercy Corps
with disabilities per community), and the final criteria were

agreed during the session.
Sensitization sessions were then conducted across all
Meeting with local laborers before the implementation phase. the communities on the agreed vulnerability criteria, and
the participant lists were developed by each community
accordingly. The organization then verified the lists using the
agreed criteria and selected the final 650 HHs. Community
feedback mechanisms were installed to receive complaints
from the communities. The agreed vulnerability criteria
included:
• Households with completely damaged homes.
© Mercy Corps
• Families with no economically productive head of

household due to gender or other proven cause.
• People with permanent disabilities living with a family.
Design workshop with the local community in Bama.
• Women-headed households were given priority, for
widows who lost their husbands due to recent conflict.
As most of the targeted participants were returnees, the
shelters were built on the same land plots where their • Large families (7+) with more minors under 5-year
previous homes had been destroyed once the property age (4+), or living in the camp who have a damaged
was verified in coordination with the local government. For house and cannot rebuild, or living in destroyed mud
house(s) and have no capacity to rebuild them.
cases where the participant’s land was not accessible due
to security issues, some were able to prove the ownership • Large families (7+) Elderly (+65 years) headed families,
of another land plot within the community, and others living alone and/or elderly with a household.or elderly
were authorized to build on land belonging to relatives. with a household.
• Households sheltering separated children.
For each land plot, a land access and use authority (LAUA)
agreement and a memorandum of understanding were • Child-headed or Chronically ill head of household
signed between the organization and all landowners, aiming household.
to ensure security of tenure prior to the commencement • Large families (7+) with more women and girls (4+),
of construction works. Both documents were registered who are dependent on the household.

© Mercy Corps
© Mercy Corps
Sensitization activity before distributions of materials. Construction of the permamanet shelters using blockwork.
DISASTER RISK REDUCTION
The project was coupled with Disaster Risk Reduction

(DRR) sensitization activities. Specifically, orientation
sessions were organized on fire safety prevention and miti-
gation for the 650 direct participant households, commu-
nity groups, and field supervisors. Information, Education,
and Communication (IEC) materials were also distributed
to shelter participants covering: fire safety and sensitiza-
© Mercy Corps
tion in site and settlement, best practices of building a safe

kitchen, and the utilization of fuel-efficient stoves.
Distributions were carried out using vouchers. (Below) Members of families PREPAREDNESS
queue to receive shelter materials from a local vendor.
Set up community fire committees, for training and firefighting. Make fire stations with buckets, sand, fire beaters
and fire extinguishers
IN CASE OF FIRE
Clothes on fire Tent on fire Burns

© Mercy Corps
STOP, DROP AND ROLL.

If your clothes are on fire,
- STOP where you are, - Check that there is no-one inside. Cool the burn area with cold water or a wet
- DROP to the ground and - THEN knock down the tent. This will cloth immediately.
- ROLL to extinguish the flames help stop the fire from spreading.
COORDINATION PREVENTION
The organization is an active member of the Shelter Cluster,

Camp Coordination and Camp Management (CCCM)
NO open fires or bare flames
Cluster, and Non-Food Item (NFI) Sector working groups inside tents
- Candles must be placed in lamps or in jars
in Borno State. It uses these platforms to discuss, assess,

analyze, plan, develop technical standards, and monitor
project implementation. It also participated in state and
national-level coordination mechanisms at both govern- Never leave a candle lit while sleeping or
when leaving the tent. - Tents walls must be a minimum of 16 feet apart.
ment and humanitarian organization levels. Activities were

coordinated with Shelter Working Group members in
target areas to avoid duplication and further harmonize
approaches. It also worked closely with all stakeholders Electric light bulbs must be at least 6 inches
at both LGA and field levels to ensure effective coordina-

- Stoves must not touch tent walls. - Do not smoke inside tents.
from the tent canvas.
- Chimneys should go through a solid wall or through a
fire-proof plate.
tion and the sharing of information from periodic needs

assessments and identification of risks to humanitarian IEC materials on fire safety (Preparedness and Prevention) were distributed to
operations. the community, both in English and Hausa.

© Mercy Corps
A view of a permanent shelter after construction. The project removed a major source of anxiety and risk for vulnerable households, allowing them to focus on
other long-term needs such as education and vocational training, health and livelihoods.
MAIN CHALLENGES in enhanced community acceptance of construction

activities and heightened social cohesion and commu-
• Lockdowns resulting from COVID-19 contributed to nity ownership of the project.
delays in the progress of shelter program implemen-
tation. The project quickly adapted by formulating • Before the inception of the activities in Bama and
COVID-19 mitigation measures on construction sites Gwoza, there were very few local vendors who could
to proceed with activities. supply construction materials due to the insurgency.
Engaging local vendors who had shops before the
• An attack on a humanitarian helicopter by insurgents advent of the insurgency helped in empowering them
led to the suspension of flights to all deep field locations and boosting the local economy. The number of
within Borno State for over a month, which resulted vendors increased in both locations.
in the delay of activities by skilled/unskilled labor due
to difficulties in transporting cash for payments. • The construction of permanent shelters for 650
households provided privacy, safety and security to the
• Delays were also experienced in securing approvals most vulnerable community members and helped to
concerning the movement of cash to deep field loca- enhance dignity and well-being. The project removed
tions for labor payments in Gwoza, disrupting the a major source of anxiety and risk for vulnerable
smooth progress of construction activities. households, allowing them to focus on other long-
term needs such as education and vocational training,
TECHNICAL SOLUTIONS health, and livelihoods.
During project implementation, micro-home solar power
systems were installed in the 650 shelters. Local volun-
teers were trained on the repair and maintenance of solar
power systems for sustainability. Existing techniques were
adapted for the construction of shelters.
• Through collaboration with the LGA and the organiza-

© Mercy Corps
tional HLP unit, participants now have legal documen-

tation for their land
• At the design stage of the project, local stakeholders
and community members were engaged – resulting Over 700 local skilled and unskilled laborers were trained in technical trainings.

√ Participatory approach to community engagement: x The project’s high cost per household and the
The organization collaborated with local communities modest number of individuals assisted (3,900) does
and took a transparent and accountable approach, not meet the massive need in the region.
involving participants in every stage of the process. x Preparatory stages for this project took longer
The communities led in the mapping of damaged than expected, as this was the first project of its kind
homes, designing of shelters, and pre-selecting the for the organization in Nigeria – impacting the delivery
most vulnerable people based on agreed vulnerability timeline.
criteria.
x Once designed, shelter construction was not flex-
√ Local labor engagement and livelihood support:
ible to meet additional needs. No allowance could
Local skilled and unskilled laborers were engaged and
be made for large families, who would ideally have
trained to construct shelters in their communities.
received an expanded shelter. The specific needs of
Local field construction supervisors with technical
vulnerable individuals and groups were not directly
backgrounds were also engaged and trained to support
addressed.
the on-site supervision of construction works.
√ Clean Energy: A local partner was engaged to install x Although the project took a community-focused
micro-home solar power systems in permanent approach, more could have been done to design
shelters, which provided the participants with clean project activities in a way that better supported
energy for lighting and small home appliances. women’s involvement.
x Time needed for project implementation was under-
estimated and should have included adequate contin-
gency time for unforeseen circumstances.
x Laborer payments upon completion of construction
work took longer than anticipated (more than a week)
due to internal organizational processes.
LESSONS LEARNED
• The cost of permanent shelter was not affordable to low-income individuals from the project communities.
• Active community engagement throughout the project cycle helps to increase a sense of shelter ownership and
contributes to the recovery of the affected population.
• A market-based approach to shelter construction using local materials, local vendors, and local laborers instead
of a traditional contractor reduced the cost of construction and increased the target caseload from 300 to 650
households.
• Different shelter options should be considered for Persons with Disabilities.

• The organization invested in shelter applied research and studies aimed at improving local technologies and
practices to enhance the sustainability of humanitarian assistance in Borno state in collaboration with local
academic institutions and government agencies. An early outcome of this ongoing research was mud brick
stabilization, leading to improved quality of locally produced mud bricks (water resistance and compressive
strength) using local materials. The organization will use the stabilized mud bricks for low-cost housing in its
future programs, expecting to reduce the cost of permanent shelter construction by more than 50 percent.

On Nigeria: A.4 / NIGERIA 2017–2018; A.7 / NIGERIA 2017–2020; A.18 / NIGERIA 2015–2016
On permanent houses: A.21 / MALAWI 2015-2016; A.22 / SOMALIA 2011-2013; A.20 / PHILIPPINES 2015–2017
On vouchers: A.7 / SOUTH SUDAN 2017–2018; A.27 / IRAQ 2017–2018


KEYWORDS: Cooridnation and partnerships, Livelihoods, Recovery, Transitional shelter
CRISIS Boko Haram Crisis, Northeast Nigeria

Mali
Niger
PEOPLE DISPLACED 2,197,824 individuals displaced June 2022*
PEOPLE WITH
SHELTER NEEDS 2.95 million people (589,169 HHs)*
PROJECT LOCATION Yola, Mubi, Gwoza, Pulka (Borno and Adamawa)
Benin WARRAP
PEOPLE SUPPORTED JONGLEI BORNO

BY THE PROJECT 1,500 individuals (3,000 HHs) ABUJA
LAKES
ADAMAWA
340 durable mud shelters (165 Yola, WESTERN
EQUATORIA
EASTERN
EQUATORIA
25 Mubi, 75 Gwoza, 75 Pulka) | 300 NFI CENTRAL
EQUATORIA Cameroon
PROJECT OUTPUTS
kits distributed | 60 sanitation facilities
Response Location
constructed | 60 local labor construction
trainings | 60 local labour Cash-for-Work
PROJECT SUMMARY
program
Durable solutions have been provided through mud shelters
SHELTER SIZE
Type A: 21 m2 (3.4m x 6.4m) modalities which is a pilot idea in the Northeast Nigerian
Type B: 18 m2 (3m x 6m) context, welcomed by displaced persons, host communities and
the government, especially as it aligns with the government long
term policy on displaced persons. The project aimed to provide
SHELTER DENSITY 3.6 m2 per person
settlement planning and durable mud shelter solutions as an
alternative to emergency shelter options. The mud shelters were
DIRECT COST USD 700 designed through consultations with the community through
prototyping and discussions, and were based on local shelter
PROJECT COST USD 1,000 typologies and construction methods, which were improved
upon previous models built by other shelter partners in the
region. One of the main objectives was to provide livelihood
*IOM Nigeria Displacement Report, Round 41, Baseline Assessment in Northeast Nigeria
opportunities by employing members of local communities
**Humanitarian Response Plan, Nigeria, 2022 (February 2022) through cash-for-work programs.
1 2 3 4 5 4 5
IMPLEMENTATION
PHASE 1 IMPLEMENTATION HANDOVER
PHASE 2
PROJECT
PLANNING
CONTEXT
CONFLICT
TIMELINE JUL JAN MAR APR MAY JUN JUL NOV DEC JAN FEB MAR OCT NOV DEC
2009 2021 2022
2009: Boko Haram uprising began in 2009, now in its 14th year.
1 Mar 2021: Trainings of local technicians.
2 Mar 2021: HLP arrangement with landowners.
3 Apr 2021: Pilot FGDs with women.
4 Dec 2021, Oct 2022: Construction of the mud shelters.

© NRC
5 Dec 2021, Nov 2022: Distribution of NFI items.
The project supported the construction of 320 mud shelters across four
locations in Northeast Nigeria.

Nigeria is a country located in West Africa with a popula- Due to the conflict and violence, individuals were forced to
tion of over 200 million people. The weather and climate flee, leaving their homes behind in damaged conditions and
in the country vary depending on location, but gener- having to seek emergency/temporary shelter provisions
ally, the country has a tropical climate with two distinct often provided by humanitarian actors or by the govern-
seasons: the wet season and the dry season. The northeast ment. As the conflict became protracted, shelters were
region experiences a hot and dry climate, with tempera- often used beyond their expected lifespan – causing a need
tures reaching up to 40°C during the day. Nigeria is also for periodic repair or replacement and putting the affected
home to a diverse range of ethnic groups, with over 250 population in recurrent vulnerable conditions. While having
different languages spoken throughout the country. Most to deal with privacy, protection, and eviction issues, people
of the population is either Muslim or Christian, with a small often had to seek accommodation in host communities or
minority practicing other traditional religions. planned/spontaneous settlements, depending on the pres-
ence of humanitarian or government actors in the location.
The northeast region of the country has been affected
by a long-standing conflict, primarily due to insurgency Displaced communities had to supplement aid provisions
by the Boko Haram armed group, which began in 2009. with local materials (often grass mats) to address their
The conflict led to the displacement of millions of people shelter needs as the assistance was limited and not always
and has had since a significant impact on the socio-eco- adequate. Unfortunately, sourcing those materials some-
nomic development of the region. Given this context, in times forced them to access unsafe territories, and have to
2021 there was a significant need for shelter solutions for be again exposed to non-state actors such as Boko Haram.
displaced households. The potentially fatal consequences highlighted the need
to provide adequate and durable shelter solutions in safe
SITUATION BEFORE THE CRISIS locations.
Like in most cases in Nigeria, the target population lived in NATIONAL SHELTER STRATEGY
communal settlements primarily made of mud shelters and
a small number of concrete buildings in rural communities. The National Shelter Strategy/Response was developed in
Families usually live in private spaces sometimes enclosed coordination with various Clusters and sectors, and aimed
by light fencing made either of mud walls or grass mats, to address the shelter needs of displaced persons across
sometimes with no fencing at all. For individuals that had the country, through different shelter solutions, including
the space and financial ability, more than one building was durable solutions, to displaced persons.
built to better accommodate their large families. Roads
The plan included the provision of land for resettlement,
were wide and undeveloped with no clear provision for
the construction of affordable and sustainable housing,
drainage, causing considerable access challenges during the
and the promotion of livelihood opportunities. The overall
rainy season. There was a limited electricity supply, making
shelter response was coordinated within the SNFI cluster,
households rely on kerosine lamps, flashlights, and on fire-
together with other sectors to address the different
wood for cooking fuel. For utilities, small cooking spaces
components of the shelter response, including planning,
were primarily separate from the main homes and in some
construction, and delivery.
cases fitted into a small attachment to the house. WASH
utilities were also placed separately as a standard cultural
practice for better hygiene.
© NRC
A view of the site with the mud shelters. 340 shelters with two different sizes of 18 m2 and 21 m2 were constructed.

PROJECT DESIGN/STRATEGY
The main goal of the project was to provide a durable mud

shelter solution in a planned settlement as an alternative to
recurrent emergency shelter options for displaced house-
holds in the northeast region of Nigeria. The project was
designed based on local shelter typologies and construc-
tion methods and aimed to continue building upon the
experience of previous models built by other shelter
partners in the region. The project also aimed to provide
increased security of tenure through long-term land-use
agreements to targeted households who had informally
© NRC
resided in makeshift shelters on private lands.
The construction activities were implemented using a cash- Around 60 construction trainings were provided for capacity building.
for-work methodology to provide livelihood opportunities
to members of local communities through the production IMPLEMENTATION
of mud bricks and constructing shelters, as the intended The project was implemented through a community-based
outcomes of the project were to provide durable solutions approach, which involved community members in the
to displaced persons and improve their living conditions design of the project, and further engaged the community
while supporting their long-term resettlement. through:
The intervention filled critical gaps in the ongoing response • Consultations with IDPs to help ensure that the
by not only alleviating the suffering of the affected popula- shelter design was culturally appropriate and relevant
tion but also by enhancing participants’ dignity and protec- to the household needs.
tion from various vulnerabilities that arose from the lack
• Capacity-building activities provided to local commu-
of privacy due to a lack of shelter during the period of
nities on shelter construction methods and good
displacement. maintenance practices, as well as awareness sessions
In addition, capacity building to the affected population on fire safety, environmental sanitation, and flood
on construction methodologies and habitability condi- mitigation.
tions prior to and during implementation was aimed to • The construction of a prototype shelter for the confir-
strengthen the knowledge and skills of the affected people mation of the design through focus group discussions.
to maintain alternative options for their recovery.
• The training of local workers, including IDPs and
The use of mud for the construction of the shelter walls members of the nearby host community who were
was also motivated by the aim to mitigate the environ- also employed in the project through the local
mental impact of the project, as temporary emergency contractor commissioned with the production of the
solutions required a high demand for wood and the use mud bricks.
of other manufactured materials would have required
procurement and transportation, with a negative impact TARGETING
to the environment through the different processes for the
Project areas were selected through detailed site profiling
production and the sea shipments.
which included the location and conditions of existing
makeshift shelters and household demographic structures.
The households targeted by the project were those who
resided in informal makeshift shelters on private lands
and were assessed as the most vulnerable. The project
provided two or more shelters to families with five or
more members.
The project had Disaster Risk Reduction (DRR) compo-

nents aimed at addressing hazards and threats faced by the
affected population. The mud shelter solutions provided
were designed to be resilient to the harsh climatic condi-
tions in the northeast region of Nigeria. The project also
© NRC
included training for the community on DRR measures

such as environmental planning, flood mitigation measures,
The project ensured that women were actively involved in the decision-making
process and were provided with equal opportunities for employment and and fire safety.
participation in the project activities.

MAIN CHALLENGES Moreover, capacity-building activities were provided to the

affected population on construction methodologies and
The project faced significant challenges related to season- habitability measures before and during the implementa-
ality, market conditions, and currency fluctuations, which tion, which enhanced participant knowledge and skills in
were addressed through various measures such as reducing maintaining alternative options for their recovery.
delivery time, increasing communication with local authori-
ties and communities, and adjusting the project budget and The project also had wider impacts, such as aligning with
timeline to account for the challenges. the government’s long-term policy on displaced persons
and providing a model for scaling up a response to support
While mud shelters face challenges such as off-season mud durable solutions for the IDOs. Unexpected or unintended
brick sourcing, the comparison with the cost of other consequences were not documented.
short-term solutions, and the difficulties of carrying out
the construction during the rainy season, they prove to be
viable long-term solutions if done with adequate planning
and management of the implementation process. However,
the provision of mud shelters was limited by issues related
to the availability of land with secure tenure agreements,
especially in garrisoned areas where land is scarce due to
increased shelter needs caused by new arrivals and the
demands of private landowners. Addressing these chal-
lenges required ongoing collaboration with the Information,
Counselling, and Legal Assistance (ICLA) team within the
organization, relevant sector working groups, and the
government.
CROSSCUT TING ISSUES
© NRC
The project considered and addressed crosscutting issues
such as security of tenure and environmental impact. One Distribution of NFI items were carried out in two phases – in the month of
key issue was gender, and the project ensured that women December 2021, and November 2022. 300 NFI kits were distributed.
were actively involved in the decision-making process and
were provided with equal opportunities for employment
and participation in the project activities.
LINKS WITH RECOVERY
The mud shelter project in northeast Nigeria aimed to

link relief and recovery phases by providing durable shelter
solutions that could integrate support to displaced house-
holds in the short-term through the livelihoods opportu-
nities generated within the construction activities, in the
long-term with the land use agreement that ensured the
© NRC
security of tenure, and throughout the phases with the

provision itself of a long-lasting shelter. Focus Group Discussions with the women in the community, April 2021.
© NRC
© NRC
Coordination with the WASH sector for provision of latrine facility. The community wes included in the design phase of the mud shelters,
ensuring engagement througout the project cycle.

√ The development of a shelter design based on local x The project faced significant construction chal-
typologies and construction methods, and building lenges during the rainy season, which impacted
upon the experience of previous models built by delivery time and increased pressure on the project
other shelter partners in the region. team and artisans.
√ The project maximized the use of land space by x The cost of constructing durable mud shelters was
conducting detailed site profiling to map the loca- higher compared to temporary shelter options, which
tion and conditions of existing makeshift shelters and posed a challenge in budget management.
designing Shelter Clusters based on the size of house-
x Negotiating access to private land for shelter
holds and the location of makeshift shelters. Families
construction was a significant challenge that required
with five members were given two or more shelters,
more time and resources than anticipated.
which provided them with exclusive and demarcated
footprints for external space. x Sourcing mud bricks during the rainy season
√ The mud shelters provided longer lasting and more presented an additional challenge that could
durable solutions in comparison to temporary have been mitigated through better planning and
shelter construction. This was a significant improve- preparation.
ment, especially for displaced households who had
informally resided in makeshift shelters on private LESSONS LEARNED
lands without long-term security of tenure.
• Optimal construction can be achieved during
√ The mud shelters provided improved privacy and dry seasons.
protection from weather elements, which helped
to address critical gaps in the ongoing response. This • Temporary tarpaulin covers can help mitigate
not only saved lives and alleviated the suffering of the rain-related setbacks during construction.
affected population but also promoted their dignity • The use of 9-inch mud blocks instead of 6 inch
and protection from various vulnerabilities that may blocks improves structural stability.
arise due to lack of privacy resulting from inadequate • The internal use of 3 by 3 inch timber posts can
shelter. anchor roof systems to the ground and prevent
√ The project provided livelihood opportunities by damage from strong winds.
employing members of local communities through • Increased use of bitumen and engine oil in mud
CfW programs for making mud bricks and constructing plaster sand can enhance durability and reduce
the shelters, contributing to wider impacts. leaching.
• Construction during the dry season helps to ensure top-quality delivery while reducing the risk of potential
losses in project delivery time and construction materials – a constant challenge during monsoons. Construction
in the dry season also removes the additional cost of protective covers. The covers are not absolute protection
against driving rain, but only mitigate the impact to a small degree. The associated monitoring of the use of
these covers by artisans are an additional challenge best avoided by constructing in the dry season.
• Construction during this season also helps to avoid the bending of mud walls at later stages of construction.
This challenge is notable during the rainy season, as mud walls are constructed in three levels, with break inter-
vals to allow the walls set properly. Strong winds and rains during such intervals affect the setting time of the
walls causing a bend. Consequently, the walls will either need corrective work or reconstruction, which will
impact all project parameters negatively.
• For project planning, the delivery time and the work plans must be developed in a way as to allow for construc-
tion before and/or after the rainy season period which spans about five to six months in the northeastern
Nigerian context. It is also the peak period to produce mud bricks, taking advantage of abundant sunlight for
proper curing.

On transitional shelters: A.24 / SRI LANKA 2017; A.10 / JORDAN 2013; A.13 / INDONESIA 2018–2020
On recovery: A.19 / NEPAL 2017–2018; A.4 / NIGERIA 2017–2018; A.3 / KENYA 2018

A locally-made fence around the mud shelters,
which ensures privacy and protection.
© NRC

KEYWORDS: Community engagement, Coordination and partnerships, Persons with disabilities
CRISIS Boko Haram Crisis, North-East Nigeria

Niger BORNO
STATE
PEOPLE WITH 0.5 million persons with disabilities in the
SHELTER NEEDS states of Adamawa, Borno and Yobe*
Assessment conducted across 14 IDP sites; Pilot

PROJECT LOCATION interventions conducted in Gubio camp (Konduga LGA)
and GSSSS camp (Bama LGA), Borno state Benin
WARRAP
Togo JONGLEI
PEOPLE SUPPORTED 221 persons with disabilities and their families ABUJA
LAKES
BY THE PROJECT (965 individuals)
WESTERN Cameroon
221 persons with disabilities (and their families) EQUATORIA
EASTERN
EQUATORIA
CENTRAL
received shelter improvements EQUATORIA
Project Location
Development of one catalogue of shelter
improvements
40 project participants of the Shelter Improvement PROJECT SUMMARY
Project received NFI kits Following a qualitative assessment of the shelter needs
1 person with disability involved in production of of people with different types of disabilities living in
PROJECT OUTPUTS
shelter improvement materials various types of shelters in IDP camps, the team,
22 staff members trained on improvements of based on consultations with the people themselves,
shelter for persons with disabilities developed designs and bills of quantity for around 50
individualized improvements to cater for a variety of
23 staff members trained on health referrals, needs and challenges in accessing or using shelters
community engagement, MHPSS and Child protection for
and their immediate surroundings. The interventions
persons with disabilities
were piloted across two locations in two subsequent
Community engagement using drama, music and
phases building on an incremental learning process.
dance to communicate the key messages of the project to
Partnerships were developed with local organizations of
the camp population
people with disabilities as well as physical rehabilitation
service providers for referrals. Several community
DIRECT COST USD 276 per HH on average engagement and communication mechanisms were used,
which ensured that the project was understood by the
PROJECT COST USD 430 per HH on average participants and the wider camp community, facilitated
the individuals’ choice for the preferred shelter upgrades,
and improved their quality of living.
*Nigeria Humanitarian Response Plan 2022, OCHA
1 2 3 4 6 5 6 6
IMPLEMENTATION
PHASE 2
DESIGN & PLANNING/ASSESSMENT/
PROCUREMENT IMPLEMENTATION DESIGN PHASE 2
PROJECT PHASE 1
PLANNING ASSESSMENT
CONTEXT
CONFLICT
TIMELINE JUL NOV DEC
NOV JAN FEB MAR APR AUG SEP OCT NOV DEC JAN FEB MAR APR MAY
2009 2020 2021 2022
2009: Boko Haram uprising began in 2009.
1 Nov–Dec 2020: Research and strengthening of partnerships with

relevant stakeholders, establishing referral pathways.
2 Jan 2021: Staff training on shelter for persons with disabilities.
3 Jan 2021: Qualitative data collection, including FGDs.
4 Apr–May 2021: Development of Information, Education and Com-

© IOM Nigeria
munication (IEC) materials and catalogue for all improvement types.
5 Oct 2021: Lessons learned workshop.

6 Sep,Dec 2021 / May 2022: Community engagement and socio-
cultural events. A raised wooden bed with rail suppport was one of the improvement types
for persons with lower body physical impairements.

CONTEXT members of a local organization for persons with disabilities

who participated during the assessment stage, while lever-
For more background information on the Boko Haram crisis aging on the support of site management team members.
see the “Further Reading” section on Pg. 63.
Staff training was an essential component and included a
wide range of topics, from communicating with caregivers
and mental health and psychosocial support to commu-
Before the crisis, northern Nigeria was the least developed nity engagement, referral pathways and child caregiver
region in the country regarding education, socioeconomics engagement.
and structural development. Many lived in rural areas in Fourteen sites were selected for the initial assessment to
mud houses and makeshift tents. Poverty, lack of opportu- capture different variables, such as type of shelter models,
nities and social inclusion were the pervasive norm. Prior settlement types (both planned and spontaneous), popula-
to the crisis, record shows that the North-East had a high tion sizes, congestion levels and disability types.
number of persons living with a disability. While acces-
sibility to housing, basic services and livelihoods were a Assessment: Questionnaires were finalized following field
visible challenge to persons with disability, most of them trials and a gender-balanced team was formed for each site
and their caregivers had modified and adapted their houses to carry out stages of assessments. The first stage involved
and mobility aids to cope with their disability. Prior to the focus group discussions with some persons with disability
displacement, crafted stools, ramps, walking sticks, raised within each camp on daily challenges encountered within
beds, rails, etc were made with moulded clay and timber the camp. The second stage involved shelter visits and key
poles to aid persons with disability in their day-to-day life. informant questionnaires to persons with disability and
their caregivers. To maintain diversity in the type of disabil-
SITUATION AFTER THE CRISIS ities and shelters assessed, a “shelter-disability” matrix was
used giving a daily overview of the gaps in the data that
Displaced persons with disability are the most marginal- the teams would need to focus on in subsequent days.
ized, facing increased barriers to accessing shelter, food, The shelter visits involved direct questions, observations
education, and livelihoods. Due to the emergency and and sketches of the shelter and surrounding environments,
spontaneous nature of most camps, persons living with the barriers people encountered and possible solutions.
disability were greatly affected because of limited resources Thirdly, focus group discussions were conducted with
to create more friendly environments by improving access, some caregivers in the sites, to figure out the challenges
shelters and mobility aids. The constant influx of new they faced due to caregiving and other day-to-day tasks.
arrivals, inadequate resources and the various magnitudes Improvements: Persons with disabilities respond to their
of disability made them more vulnerable within camps. immediate environment in distinct ways based on their
After several years of the crisis, a variety of shelter types impairment and shelter typology. Five major types of
were found in camp settings, broadly ranging from emer- disability were observed in the assessment: Lower body
gency tarpaulin shelters, shelters made of zinc sheets, mud physical impairment, Upper body physical impairment,
shelters, and makeshift shelters built with fabric, nets, and Visual impairment, Cognitive impairment, and Hearing
local materials. impairment. Following shelter visits, the 20 most common
needs for improvements were compiled and designs
IMPLEMENTATION were developed for each. Some of the improvements are
discussed in the following section.
The project was implemented by a team of 17 staff which
included 1 consultant, 10 staff from the shelter team, 3
people with disability engaged within the camps, and 3
© Muse Mohammed
© Muse Mohammed
© Muse Mohammed
© Alfred Caballero
Some of the different typologies of shelters in camp settings include emergency shelters, makeshift shelters, and shelters built with local materials, amongst others.

Type of disability Lower body physical impairment Type of disability Upper body physical impairment
Using the squat toilet type; Challenge Getting into and out of bed
Climbing upstairs for shelters
Challenge A raised wooden bed with rail
that are significantly elevated
support was designed, which the
above the ground level Improvement person can lean upon/pull on to
A wooden toilet seat which the get out of bed
person can sit comfortably to use
the toilet without having to exert
body weight on weak limbs;
Steps and ramps with handrails
made from locally available mate-
Improvement
rials like stitched jute bags filled
with sand and rails made from
octagonal-shaped timber for easy
handling; Wooden seating stool;
Raised cooking area; Lower
storage unit
Type of disability Wheelchair users

Challenge Inaccessibility
Door widths were increased at
entrances, door stoppers were
Improvement removed, as well as ramps for
unfettered wheeling either by
their caregivers or themselves
Type of disability Visual impairment

Lack of sight to properly navigate
Challenge
around shelter
Octagonal shaped wooden
handrails were introduced as a
Improvement
tactile directional guide around
the shelter

Type of disability Other improvements
© IOM Nigeria
Persons with lower body
impairment, the aged and people
Challenge with limited mobility spend long
hours in a stationary position and
indoors due to their condition
The raised wooden chair was
Improvement conceived to ease the long hours
spent in a stationary position
Extended shaded area between two shelters.
Improvements were designed to use locally available mate-

rials to facilitate maintenance or upgrades. The costs of
improvements varied based on the needs of the persons
with disabilities living in the targeted households, and the
average cost was approximately USD 276. The maximum
budget per household of persons with disabilities was USD
Improvement External shaded area 500, to ensure that the value of improvements did not
exceed the cost of a new shelter nor potentially cause
tension within the household or with other camp resi-
dents. This was also aimed at making it scalable to reach
more participants in the future.
Standardized, flexible Bills of Quantity (BoQs) were devel-
oped for each of the improvement types, to make the
procurement and implementation processes easier. A local
vendor was selected following competitive bidding, exten-
sive discussions, and guidance by the project team.
Additional windows to enhance
Improvement
the indoor space quality Construction process: To aid site navigation, a map was
shared with the contractor, and team members introduced
the contractor’s representatives to participants. Some
improvements were implemented as standard modules
while others were adapted to fit specific situations. To
enable continued access to their living spaces, only works
that required loose materials were executed within and
around the shelter, while fabrication and assembly works
were done in a centralized location in the camp.
During the second phase of the pilot, some standard
improvements were mass-produced at an external work-
Covered shower space to
shop and taken to the site, and one of the participants
Improvement increase privacy when nearby
spots are used for showering
were also engaged to produce some of the local mate-
rials (e.g., traditional grass mats) which were used for the
improvements.
Handover: To ensure a comprehensive and accurate
handover, a detailed form was developed. This form
included live photos and detailed drawings with indicated
dimensions of the improved design and its location in
relation to the shelter. The form was carefully reviewed
and signed by the participants themselves to validate that
the improvements met their needs. For participants who
were mentally impaired, their caregivers were engaged to
confirm the receipt of the assistance on their behalf. The
results of the handover process were positive, with 94.7
percent of participants expressing satisfaction with the
improvements they received.

COMMUNITY ENGAGEMENT • Due to the high number of shelter projects running

concurrently with deadlines approaching, having dedi-
Formation of persons with disabilities committee: A cated staff on the project for extended periods of
“persons with disabilities committee” was set up consisting time was challenging. This resulted in excessive time
of 11 members (4 women and 7 men). Overall, the constraints in bringing new staff up to speed on the
committee was particularly useful in creating a sense of ongoing project.
ownership in the project and a medium for engagement
and communication with the community of persons with • Some of the local materials used in the improvements
disability and the camp governing structure. took longer time to mass produce and so, controlling
inventory was difficult.
Camp community and stakeholder engagement:
Recognizing that engagement with persons with disabilities
WIDER IMPACTS
alone was insufficient, the team understood the importance
of involving the entire community. Focusing on structures • Encouraged inclusion of persons with disabilities in
such as community leaders, camp committees, camp project locations by actively engaging the dedicated
security, etc, the team embarked on a series of meetings. committee in the camp governing structure.
However, they soon realized that meetings were not enough
to effectively convey the message regarding the needs of sons • Persons with disabilities gained recognition in the
with disabilities and why they required specific assistance. selected site as a result of the project, most notable
was the effect of the sociocultural event in the camp
This realization emphasized the necessity for additional which was publicised in audio and print media. This
tools to further explain and solidify the idea within the led to more focus on the inclusion of considerations
community. Consequently, the team developed several on needs of persons with disabilities within camps in
IEC materials with the aim of providing a comprehensive respect to participation, and access to other assistance.
understanding.
• Consequently, the chairman and secretary of the persons
Community engagement event: To maximize the impact of with disabilities committee were included in the camp
the above-mentioned IEC materials, sociocultural engage- management committees of the concerned camps which
ment activities were carried out in the camp including is the governing structure of every camp. This gave them
cultural dances, songs and drama performances. In addi- access to advocacy on decisions concerning persons with
tion to providing an innovative communication medium disability within the camp population.
that included inscriptions on T-shirts, banners, pamphlets,
and amplified audio recordings for the entire audience, the
event also served as a channel to strengthen social cohe-
sion. This provided a platform for persons with disabilities
who featured in the performances to showcase their talent
during the event which also had media coverage, and propa-
gated information and awareness on the project.
COORDINATION
© IOM Nigeria
During the implementation, various components of coor-

dination were set up with the camp management, commit-
tees within the camp, OPDs such as the Joint National
Association of Persons living With Disability (JONAPWD), Qualitative data was collected during the assessment phase, which included
as well as the Physical Rehabilitation Centre at the FGDs, individual shelter visits, and working with other actors on the site.
University Teaching Hospital in Maiduguri. In addition, the
project team worked together with WASH, health, MHPSS,
and Non-Food items teams. A clear referral pathway was
established in addition to a responsive complaints and
feedback mechanism.
MAIN CHALLENGES
• Delay in response to referrals in other sectors such as

WASH and health delayed the holistic realization of
the project rationale, which was clear to participants
that their quality of living will be impacted upon when
© IOM Nigeria
the objectives are achieved.

• The contractor and his team took a long time to
grasp the concept of the project leading to errors and Door-to-door sensitization on the key messages of the project was carried
corrections during the pilot. out by community volunteers to reach all groups in the camp.


√ Individualized shelter visits and improvements. The x Preparatory stages took time as it was a pilot and
individual shelter visits provided participants with an novel project. This would not have been possible
avenue to state their distinct shelter needs and proffer without dedicated efforts from many team members
possible solutions to make their shelters and surround- and the support of an external consultant with experi-
ings more accessible. All persons with disabilities, regard- ence on the subject. Hence, this type of project is not
less of the type of disability, have distinct needs. Paying easy to conduct or replicate in all contexts.
exclusive visits for each of them gave them the liberty to x Some of the project participants needed much
choose which improvement best suits them and partici- more improvements than others but that could not
pate fully in decisions that would affect their lives, leading be achieved due to limited funding.
to high beneficiary satisfaction.
x Referrals to other sectors for critical services
√ Use of Information, Education and Communication
often took long time. A multisectoral approach or
materials. The use of multiple IEC materials helped in
a stronger synergy with other units or partners from
reaching various groups of persons with disability during
the start could have reduced this issue.
the project. The flyers with pictorial representation and
radio broadcast of the key messages were used during x There was no mechanism in place to equip the
the sensitization and awareness campaign, including the persons with disability and their caregivers with
event. The catalogue was used during the shelter visits basic maintenance skills so that they could maintain
at the second phase of the project. the improvements made.
√ Gender balance. The gender balance of the teams x Referrals for physical rehabilitation in Maiduguri
facilitated effective communication with the persons was limited to specific aspects. No partner or sector
with disability and their caregivers, as they felt was willing to handle corrective surgeries for persons
more comfortable talking about their living condi- with disability who needed such services. Following the
tions. Having a gender-balanced committee further completion of this pilot, more funding was received by
strengthened their participation and provided a sense the CCCM Unit to complement some of these iden-
of representation among them. tified gaps.
√ Participation of Organization of Persons with x The project was small scale and required a signifi-
Disabilities (OPDs). The involvement of JONAPWD cant time and human resource support. It remained
during the assessment was particularly useful and made unclear, following the end of the second stage of the
communication with the persons with disability easier. pilot, how to scale up the project going forward.
LESSONS LEARNED
• The integration between Shelter and WASH teams could have been improved with joint planning, funding, and imple-
mentation to enable both teams to support various improvements. Joint proposals could better address the barriers
faced by persons with disability within IDP camps. During the second phase of the pilot, more partners in the WASH
sector were engaged through referrals to complement the assistance provided.
• A child-friendly questionnaire would have been very useful to administer to child caregivers during the data collection
stage. This was not contemplated initially; but was found to be the case in many instances.
• Due to the individualized nature of the improvements, the contractor needed to be trained by the team to fully understand
the concept of the project and the proper way to communicate with persons with disabilities.
• The sociocultural event conducted in the camp where persons with disabilities showcased their talent helped in
breaking barriers and creating a sense of acceptance. Persons with disabilities, who before were often in hiding, came
out to identify themselves. During the second phase of the pilot, following lessons from the first phase, this event was
conducted much earlier in the process.
• Pre-fabrication and assembling of all the standard improvements significantly reduced delivery time. This can be
considered for future projects to scale up this type of intervention.
• At the proposal stage, multi-sectoral components need to be integrated to achieve wide reaching impact on the living
and economic status of persons with disabilities.
• It is recommended to build the capacity of persons with disabilities and their caregivers on technical skills relevant for
basic maintenance and to ensure durability of their improvements.

On Disability inclusion: A.21 / LEBANON 2018–2021 On Nigeria: A.7 / NIGERIA 2017–2020; A.4 / NIGERIA 2017–2018

Awareness session on improvement of traditional house
construction, part of conditional cash for shelter program
in response to the tropical cyclone Batsirai impact.
© Xavier Génot
AMERICAS A.11 / VENEZUELA (REGIONAL) 2019–2023 / COMPLEX CRISIS / OVERVIEW COMPLEX/MULTIPLE
OVERVIEW VENEZUELA (REGIONAL) 2019–2023 / COMPLEX CRISIS
Response to the situation of refugees and The United States

CRISIS The Dominican
migrants from Venezuela Republic
PEOPLE DISPLACED
7.24 million Venezuelans in the world* Mexico Curaçao
6.10 million Venezuelans in the LAC region* Costa Rica
Aruba Trinidad and
Tobago
Panama
PEOPLE WITH Colombia Guyana
SHELTER NEEDS 6.63 million people, including host communities** Ecuador
Peru
Argentina, Aruba, Bolivia, Brazil, Chile, Colombia, Curaçao, Brazil
Pacific
LOCATIONS Costa Rica, Ecuador, Guyana, Mexico, Panama, Paraguay, Peru, Ocean Bolivia
The Dominican Republic Trinidad and Tobago, and Uruguay
Chile Paraguay
2022 | Total supported: 215,540 people Uruguay
Temporary Collective Shelter: 175,423 people

Argentina
Individual shelter solutions: 78,232 people Venezuela
Settlements: 4,341 people Response Area
Household NFIs: 87,022 people

SUMMARY OF THE RESPONSE
2021 | Total supported: 284,879 people The complex crisis that Venezuela has been
PEOPLE
Temporary Collective Shelter: 255,341 people experiencing since 2015 has triggered the
SUPPORTED IN
THE RESPONSE*** Individual shelter solutions: 86,736 people departure of more than 7 million people. More than
Settlements: 8,002 people 6 million of them have arrived in Latin American
and Caribbean countries, which has forced
Household NFIs: 147,438 people
governments and humanitarian organizations in
the region to coordinate to provide adequate and
2020 | Total supported: 122,400 people
timely assistance to the Venezuelan refugee and
Collective Shelter: 175,551 people migrant population. The regional shelter sector of
Individual shelter solutions: 63,973 people the Interagency Coordination Platform for Refugees
Settlements: 26,891 people and Migrants in Venezuela (R4V), together with the
national and sub-regional shelter sectors (multi-
*The Interagency Coordination Platform for Refugees and Migrants (R4V), online dashboard. sectors) present in 16 countries, coordinate the
**The Interagency Coordination Platform for Refugees and Migrants (R4V), Shelter sector. humanitarian response of the different actors in
***These figures represent the sum of the beneficiaries of the activities in each month, so each country to the needs for shelter and NFIs.
there are duplications among people who received assistance for more than one month.
© Gema Cortés/IOM
Migrants disembark from a boat in Lajas Blancas, Panama, after walking across the Darien Gap from Colombia. Thousands of migrants from three continents
converge in the Darien Gap looking for a better future.

COMPLEX/MULTIPLE A.11 / VENEZUELA (REGIONAL) 2019–2023 / COMPLEX CRISIS / OVERVIEW AMERICAS
1 2 3 4 5 6 7 8 9 10 11 12
PROJECT
PLANNING RESPONSE
CONTEXT
CRISIS
TIMELINE APR SEP OCT NOV DEC OCT NOV DEC JAN FEB MAR APR MAY DEC DEC MAR
2015 2018 2019 2020 2021 2022 2023
2015: First migratory movement recorded outside Venezuela. Mar 2020: WHO pandemic declaration of COVID-19.
Apr 2018: A sharp increase in population outflows from Apr 2020: Formal definition of the Multisector Shelter / NFI /
1 8
Venezuela is recorded. Humanitarian Transportation.
Apr 2018: Activation of the Regional Interagency Coordination May 2020: First Donors Conference in Solidarity with Venezuelan
2 Platform for Refugees and Migrants from Venezuela by the Secre- 9 Refugees and Migrants.
tary General of the United Nations (UN).
Dec 2021: Division of the multisector into Shelter and Humani-
3 Sep 2018: First R4V coordination meeting takes place in Panama. 10 tarian Transportation, with separate co-leaderships.
4 Oct 2018: Increased UN response inside Venezuela. Dec 2022: Strategic Response Plan for Refugees and Migrants in
11 Venezuela (2023 - 2024).
Dec 2018: 2019 Strategic Response Plan for Refugees and
5 Migrants in Venezuela (RMRP). Mar 2023: International Conference of Solidarity with Venezuelan
12 Refugees and Migrants and their host countries and communities.
6 Oct 2019: International Solidarity Conference.
Jan 2020: Creation of the Regional Multisector for Shelter / NFI /
7
Humanitarian Transportation.
CONTEXT SITUATION BEFORE THE CRISIS
Millions of Venezuelans fled their country in pursuit of In the LAC – since the middle of the last century – housing
safety and better living conditions during 2014 and 2015 assistance initiatives undertaken by governments and inter-
as a result of the drop in oil prices, economic, institu- national organizations have mainly focused on a develop-
tional, and political turmoil, and a lack of commodities ment support response. In most countries of the region,
and services. Since then and until the end of 2022, more large state programs of a social nature were carried out
than seven million Venezuelan migrants and refugees have to facilitate access to adequate housing for the most
departed – most of them on foot and facing dangers such vulnerable populations. Likewise, efforts were made for
as abuse, assault, and obstacles to access basic necessities. the improvement of the most marginal neighborhoods or
More than six million of them have settled across Latin settlements, which lacked comprehensive urban planning.
America and the Caribbean (LAC), with Colombia, Peru, Emergency responses linked to shelter, the delivery of
and Ecuador serving as the primary recipient countries. essential Non-Food Items (NFIs) and the setup, manage-
The region was forced to adjust to the situation and act ment and coordination of collective shelters were typically
to effectively manage one of the largest humanitarian and linked to one-off disasters – such as earthquakes or hurri-
integration crises in recent history. canes. In these cases, short term assistance was prioritized
and concentrated at the time of the event. An exception
© Marta Leboreiro/IOM
Former Lobitos Temporary Collective Shelter in Iquique, Tarapacá region, with capacity for about 300 people in individual and collective tents. Managed by a private
company, financed by local authorities in Tarapaga, Chile.

to that would be the case of the internal armed conflict in The regional sector structure has been reflected at the
Colombia, for which the humanitarian Cluster coordination subregional, national, and, in some cases, local levels in
system was activated in a timely manner, under the which the Shelter/CCCM/NFI sector is generally unified into
regional coordination of REDLAC (Regional Group on a multi-sector of basic needs for greater resource efficiency.
Risks, Emergencies and Disasters for Latin America and
the Caribbean). REGIONAL SHELTER/NFI STRATEGY
Shelter and Non‑Food Items (NFIs) have ranked within the

SITUATION DURING/AFTER THE CRISIS
top three needs of the Venezuelan refugee and migrant
Given the political, economic, and physical disparities in population living in the 17 R4V countries regularly since
each country in the region, the condition and needs of the 2019, as per the needs assessments conducted by various
displaced Venezuelans vary to some extent depending on partners. In 2022, shelter and NFI needs increased, and
where they settled after a journey through waterfronts, ranked first in terms of humanitarian priorities in Uruguay,
rainforest, jungle, and hazardous mountains. In some host and second in Ecuador, Argentina, and Bolivia. The sector
countries, there is no established migration policy for strategy is reflected in the Regional Refugee and Migrant
regularization and the host populations experience severe Response Plan (RMRP) and focuses on the following four
shortages recurrently. Since there are so many different objectives:
shelter-related requirements and needs throughout the Objective 1: Temporary Collective Shelter.
region, humanitarian organizations are required to consider
a wide range of response initiatives. The number of people in transit in the region has
continued to increase since 2018. With COVID‑19‑related
The impact of COVID-19 reduced people’s capacity to movement restrictions, border closures, and the economic
access means of livelihood for covering housing costs or crisis, travel conditions for refugees and migrants from
basic food basket items. Family debt escalated alongside Venezuela have deteriorated. As a result, the number of
the risks of eviction, to the point where the popula- people crossing borders irregularly, traveling with very
tion often settled in unsafe places or became homeless. limited financial resources, and prioritizing survival needs
Likewise, pandemic prevention and mitigation measures such as food increased significantly. The Temporary
by governments and response partners forced a reduction Collective Accommodation response consisted of the
in the number of available spots in collective shelters and creation of a network of humanitarian infrastructures that
the relocation of funds for the fight against COVID 19. provided short‑term shelter for people in transit or who
Additionally, discrimination and xenophobia in the host had recently arrived at a destination. Due to COVID‑19,
countries have also increased following the influx, adding the collective shelters decreased their capacity and had to
additional challenges for refugees and migrants in accessing house people for longer periods (up to 3 months in coun-
adequate housing. tries such as Colombia, Ecuador, and Peru).
COORDINATION
The Interagency Coordination Platform for Refugees and

Migrants from Venezuela (R4V) was created in 2018 by
the United Nations Secretary-General, who designated
the United Nations Refugee Agency (UNHCR) and the
International Organization for Migration (IOM) as the
entities in charge of coordinating the response to the
Venezuelan population. A regional coordination mecha-
nism was consolidated, organized in thematic sectors, and
working groups.
The first response plan was drafted in 2018 focusing on
four areas of intervention, including direct emergency
© DRC
assistance, protection, socio-cultural integration, and

capacity building for host governments. Regional sectorial Centro de Atención Integral (CAI), Maicao, La Guajira, Colombia. The center
groups were formed based on the existing capacities of was closed in September 2022.
the partners. Between 2019 and 2020, a first Shelter, NFI,
Collective Shelter Coordination and Management (CCCM), The main activities linked to the first objective were: staff
and Humanitarian Transport sector group was established, training, the management and coordination of centers
splitting later in 2021 from Humanitarian Transportation, (CCCM), and the opening and improvement of infrastruc-
and currently covering Shelter, CCCM and NFI. The sector ture. These centers served as places of rest and recovery for
has since coordinated an average of 70+ implementing families, and offered comprehensive care, ranging from the
partners who implemented activities in 16 of the 17 coun- delivery of NFIs to the creation of savings plans, legal assis-
tries in which R4V is active (not including Aruba). tance, and exit strategies for integration into the community.

© Diana Hernández / GIFMM
© Marta Leboreiro / IOM

A host community in El Pasito, Riohacha, Colombia, gave part of its land to a A view of a hotel room for the refugee and migrant population in Iquique,
group of organizations to build these houses, used as individual accomodations Tarapacá, Chile.
for the displaced Venezuelan Wayuu population.
Objective 2: Individual Shelter Solutions. Objective 3: Community improvement in infra-

structure and basic services.
Activities in individual shelter/housing solutions focused on
achieving durable solutions for refugees and migrants who The response itself has demonstrated in recent years the
were at their destination. Likewise, specific support was need to reinforce a territorial approach (Area-Based/
offered to family groups in transit in areas where there Settlements) for a better integration of refugee and migrant
were no Temporary Collective Shelters or where they were populations in host communities. These approaches
oversaturated. In the latter case, the response consisted of promote social cohesion by improving infrastructure and
booking hotel rooms/hostels for 1 to 15 nights. In excep- services collectively, with the aim of boosting socio-eco-
tional cases, as in Chile, certain hotels/hostels were rented nomic revival and security in marginalized neighborhoods.
in their entirety by humanitarian organizations, which was In 2021, sector partners reported an increase in informal
considered part of Objective 1. settlements in the region, particularly in countries such as
Colombia or Peru.
As part of the R4V strategy to support the integration of
the refugee and migrant population in host communities Objective 4: Distribution of NFIs.
since 2021, the sector sought to strengthen and increase This objective included the delivery of NFI kits and safe
programs that facilitate access to adequate housing, partic- transit kits adapted to the climate of the place of transit
ularly through rental assistance. The activities proposed in (e.g., sun protection or warm clothing) at border points,
the strategy, among which is the delivery of cash transfers, along the migratory route, and in temporary collective
are based on the global framework of access to housing. shelters. The kits included items for COVID‑19 preven-
This includes issues and actions such as: Housing, Land, and tion. In countries where the rental support programs had
Property (HLP) awareness campaigns, the rights and duties a longer trajectory, furniture, and other household items
of landlords and tenants, a focus on avoiding situations of were also provided for the individual accommodation.
abuse and/or exploitation, conflict resolution, and housing
improvement interventions, among others.
© Paula Vásquez / IOM
Delivery of safe transit kits to refugees and migrants in transit through humanitarian trucks in Huaquillas, Ecuador (border with Peru).

IMPLEMENTATION MAIN CHALLENGES
From the regional level, the response primarily focused on Remote work and geographic scope. Regional sector
coordination tasks, working hand in hand with the national coordination work has covered 16 countries and more
and subregional structures that make up R4V. The work of than 79 partner organizations, which primarily required
this structure is reflected in the development of regional working virtually with limited travel to allow for individu-
coordination meetings, workshops, and specific training, alized follow-up in different countries. This created certain
the compilation and dissemination of lessons learned and barriers between the local and regional levels. While tech-
good practices, support and technical guidance to sectors nology has helped to minimize challenges, much work
and partners upon request, and advocacy and fund- remains to be done to achieve light and fast communica-
raising, among others. These activities made it possible to tion between the various levels of coordination and with
adequately monitor strategy implementation and identify partners in the field.
new needs or changes in the context while enhancing the
Diversity of cultural contexts. The LAC region brings
visibility of the housing situation for the Venezuelan refugee
together different cultures, ethnic groups, and contexts –
and migrant population.
mainly determined by the geographical variety and histor-
Operationally, despite funding limitations, the Shelter ical background of the region. Defining a shelter strategy
sector was able to successfully carry out specific activities, that can capture all characteristics of the context has
focusing mainly on two areas: been a major challenge, particularly to reflect the needs of
minority groups such as displaced indigenous populations
i. Capacity building for the partners managing tempo-
and culturally adapt the response in each local context.
rary collective shelters, as well as technical support
in the creation of Information, Education and Exit strategies. Sector partners consistently reported that
Communication (IEC) materials. one of the largest challenges at the programmatic level
is the sustainability of the programs, heavily impacted by
ii. Development and delivery of tools and technical
COVID 19 and the reduction of funding in recent years.
guidelines for a better articulation of rental assistance
This implied, for example, that in Temporary Collective
programs in urban areas, and awareness of the impor-
Shelters and settlements in Brazil, the indigenous popu-
tance of accessing adequate housing.
lation was stranded for more than three years. Or in
To acquire a holistic look at the shelter and NFI response Ecuador, where it was required to accept re entry into
for Venezuelan refugees and migrants, the sector sought temporary collective housing for people who had already
to strengthen intersectoral work – particularly with left and were renting housing. Or also in Peru, where it
Communication with Communities (CwC) / Accountability has been necessary to design rental programs that assume
to Affected Populations (AAP), Protection from Sexual previous payment debts to the landlords.
Exploitation and Abuse (PSEA), Health and WASH and
Coordination. While humanitarian coordination mech-
Integration.
anisms have been set up in many countries dealing with
conflicts, disasters, or complex crises – the R4V is not
a traditional Cluster system and was first set up at the
regional level. A lack of understanding of the coordination
architecture and procedures for fundraising and reporting © Marta Leboreiro / IOM
Informal settlement in Alto Hospicio (Tarapacá, Chile), which houses Venezuelan, Colombian and Bolivian migrants, as well as Chileans.

© Marta Leboreiro / IOM

The town of Canaan Membrillo, Darien, Panama. First community to welcome Venezuelan migrants and refugees upon their arrival in Panama, hosting the Emberaa
Wounan indigenous population.
posed major challenges for partners, and for the sector OUTCOMES AND WIDER IMPACTS
co-leaders who worked to define their role within the
The strategies defined within the Shelter sector guided
structure – linking the field level with the strategic and
activities implemented by partners, allowing a transition
more political aspect of the response.
in the response focus through phases. In 2019, the work
Lack of funding for coordination and operations. Funding focused on emergency assistance – mainly through the
gaps have severely limited the scope of the response. In delivery of kits. In 2022, efforts were focused on programs
2021, only 21 percent of the funds required by the shelter to promote access to adequate housing through a territo-
strategy were received. This was reflected in the lack of rial lens such as initiatives linked to the evaluation of the
available quotas in collective accommodation settings and rental market or the strengthening of landlord networks
the difficulties in the sustainability of individual housing and HLP programs.
programs. Due to funding constraints, it was also difficult
for the project to acquire appropriate staffing expertise at
various levels of the coordination structure – including in
Shelter and Information Management.
Diversity of response phases. The continuous move-
ment of the population, mixed flows, pendular flows,
and coexistence among affected people who are at very
different stages on their way to achieve durable solutions,
© Claudio Trindade / IOM
emphasized the need for a greater diversity of activities in

response proposals.
A temporary collective shelter in Brazil, led by the Brazilian government.

LESSONS LEARNED
• Adaptation to urban contexts. The traditional humanitarian emergency response of planning camps and deliv-
ering tents has lost sense in urban settings, where emergencies are increasing. It is required to update programs
and assistance modalities to approaches that would transition from emergency shelters to adequate housing,
based on markets through an urban lens.
• Crosscutting synergies. Joint solutions should be explored between shelter, HLP, CwC, AAP and integration
thematic areas to achieve greater social cohesion and security in marginalized areas hosting vulnerable and
crisis-affected populations. For example, access to shelter with the registration of a postal address allows for
better socio-economic integration of refugee and migrant families, as it gives the possibility to access regular-
ization, documentation and schooling.
• Inter-agency coordination. The work developed in Temporary Collective Shelters is just one of the examples
that helped to reflect how coordination mechanisms are operationalized in the field. These are comprehensive
assistance centers for refugee and migrant individuals and for the community in which they are established.
There are shelters where up to 11 partners work on different response types, as is the case in Ecuador.
• Local coordination structures. Mirror structures between the regional, national and local levels help to elevate
and raise the awareness about the needs from the field, while allowing the correct operationalization of the
response following humanitarian standards.
The Regional Shelter Sector looks into 2023 2024 with the hope of continuing to strengthen the response at the
urban level, in areas of destination of the refugee and migrant population while gradually reducing the need for
emergency response for those in transit.
© Factstory / R4V
Children play in a temporary collective shelter in Tapachula, Mexico, 2022.
On Venezuela: A.10 / VENEZUELA 2020
On Latin America and the Caribbean (LAC) Region: A.4 / HAITI 2010; A.39 / ECUADOR 2016; A.3 / HURRICANE SANDY 2012
On coordination: A.17 / NEPAL 2015–2019; A.16 / UKRAINE 2016–2021; A.7 / NIGERIA 2017–2020

COMPLEX/MULTIPLE A.12 / VENEZUELA (REGIONAL) 2019-2023 / COMPLEX CRISIS AMERICAS
CASE STUDY VENEZUELA (REGIONAL) 2019–2023 / COMPLEX CRISIS

KEYWORDS: Community engagement, Infrastructure, Local authority engagement, Settlements approach
Response to the situation of refugees and

CRISIS
migrants from Venezuela Dominican Republic
Bucaramanga
Colombia, Peru, Ecuador, Dominican Republic, Panama, and Panama
LOCATIONS Trinidad and
Trinidad & Tobago Tobago
PEOPLE 800 direct and 1,300 indirect beneficiaries* Colombia

SUPPORTED IN (average of 30 direct and 50 indirect beneficiaries for each of
THE PROJECT
the 26 tactical urbanism actions) Ecuador
PROJECT OUTPUTS
26 tactical urbanism actions Brazil
(2 to 4 interventions per each of the 10 targeted cities)
Peru
DIRECT COST USD 4,000 per intervention*
Venezuela
PROJECT COST USD 6,000 per intervention* Project Location
PROJECT SUMMARY
The project aimed to formulate strategies to support the integration of refugees and migrants with host communities in neighboring countries of Venezuela.
A key component of the project has been 26 tactical urbanism actions: strategic interventions in public spaces aiming to transform the physical conditions
to promote the use of the space and the social cohesion of the users, strengthening community bonds and sense of belonging. The case study focuses on a
particular intervention in Bucaramanga, Colombia, consisting of a poor-quality and polluted alley around a waterway, which was then transformed with the
active involvement of the community into an open space classroom for children in the community without access to formal education.
*Note: The present case study focuses on the tactical urbanism actions implemented within a wider-scope project, and the above-mentioned figures of beneficiaries and costs
refer only to those activities. The overall project’s budget was 16 million Euros (USD 17.6 MN), and the outcomes were developed around five expected results: 1. Analysis,
data, and evidence for decision-making; 2. Formulation of co-created solutions and plans; 3. Social Cohesion and Conflict Prevention activities (including tactical urbanism
actions); 4. Capacity building; and 5. Community of learning. The project developed information tools for decision-making, urban plans to strengthen territorial conditions,
activities to promote economic integration, and training for territorial stakeholders.
1 2 3 4 5 6 7
PROJECT
CONTEXT
CRISIS
TIMELINE SEP OCT NOV DEC JAN FEB MAR APR JAN FEB NOV DEC JAN FEB NOV DEC
2015 2019 2020 2021 2022 2023
2015: First migratory movement recorded outside Venezuela.
1 2019–2020: Methodological definition of medium and long-term

integration of refugees and migrants at the territorial level.
2 2019–2020: Baseline assessment to identify the opportunities and

constraints of Venezuelan human mobility and host communities
to access opportunities and rights in target cities.
3 2021–2022: Co-creation workshops at the neighborhood level that

allowed for the identification of differentiated access to opportunities
and services for Venezuelans in comparison to local populations.
4 2021–2022: Formulation of the intervention plan for target cities.

© Muse Mohammed
5 2022: Implementation of actions to boost integration at the

neighborhood level.
6 2022: Co-creation and co-design of tactical urbanism actions.
7 2023: After the co-creation process, participatory processes were

conducted to implement the interventions, with communities being Venezuelan refugees and migrants cross the Puente Internacional Simón Bolí-
encouraged to participate in the construction process. var, the busiest border point connecting Venezuela and Colombia.

AMERICAS A.12 / VENEZUELA (REGIONAL) 2019-2023 / COMPLEX CRISIS COMPLEX/MULTIPLE
CONTEXT Moreover, the economic and political situation generated

a security crisis, with recurrent episodes of social unrest.
Since 2015, more than 7.2 million people have left Venezuela
due to political and economic crises. Approximately 84 At the regional level, Latin American cities were subject
percent of those emigrated to neighboring countries in the to inequality before the influx of the Venezuelan dias-
Latin American and Caribbean regions. These figures do pora. According to the Development Bank of Latin
not include Venezuelan returnees, making the Venezuelan America, 23 percent of the people in the region
diaspora the most acute human mobility crisis in the live in settlements with inadequate housing condi-
region. The crisis has added pressure to the national and tions. Additionally, before the COVID‑19 crisis,
local governments, considering the already precarious poverty rates reached 24 percent of the population
social support systems and employment markets. Most while in 2021 this number increased to 26.5 percent.
Venezuelans have sought refuge in cities, which often could
not accommodate this rapid influx in an adequate manner. For more background information on the context of Venezuela,
see the Regional Overview in Pg. 66.
Due to the socioeconomic vulnerability of most of the
migrants, flows have shifted from formal to informal.
SITUATION AFTER THE CRISIS
Crossing borders irregularly impacts access to employment
and social support systems in the short- and middle-term, Available information shows that Venezuelan commu-
also increasing the overall poverty levels in host coun- nities in host cities have most often settled at or near
tries. Thus, governments face significant pressure and high existing urban centralities (areas that concentrate on
costs for the provision of humanitarian assistance, public economic activities, services, and employment oppor-
services, and employment opportunities while Venezuelans tunities). In the Latin American context, urban spatial
deal with constraints related to their widespread irregular structure often limits access to fundamental rights
status within host country economies already impacted by (housing, basic services, education, health, employment,
the COVID-19 crisis. as well as culture and recreation) due to the presence of
massive transportation systems, which impacts oppor-
SITUATION BEFORE THE CRISIS tunities for Venezuelan and host communities living in
areas disconnected from the main service networks.
Although Venezuela could be considered rich from a
natural resource perspective, the country has a high Regarding access to livelihoods, refugees and migrants are
dependence on oil – representing 99 percent of the coun- predominantly employed in the informal sector – also
try´s exports. The drop in oil prices in 2014 gave place concentrated in urban centralities. On a substantially
to a deep socioeconomic crisis that impacted access to higher degree than the host communities, Venezuelans
services, goods, and the job market, resulting in the are subject to unfair conditions (including lower revenue,
migration of millions of Venezuelans across the region.
© Inclusive Cities, Communities of Solidarity
(Left) Target public space around the waterway in Bucaramanga pre-intervention; (Right) Resulting tactical intervention on target public space during the night.

longer hours of work, and no formal contracts) as well as moments of the day, and for different activities. Children
a lack of access to social security. Regarding housing and use the space for recreation with a community‑based orga-
affordability, Venezuelans live predominantly in rental units, nization, while adults use it during non-school hours for
often overcrowded, lacking access to a bathroom and/or social encounters and exchanges. Moreover, the interven-
a kitchen, and other basic services. Venezuelans also face tion transformed the public space and its surroundings into
constraints to rent properties at fair prices and are often a dynamic area (busy during the day and night) and conse-
rejected by landlords due to widespread xenophobia and quently displaced criminal and anti‑social practices related
discrimination. to drug dealing and consumption conditions and access to
the right to the city at the city, neighborhood, and commu-
NATIONAL SHELTER STRATEGY nity levels. Among them, the so-called ‘tactical urbanism’
interventions are included to transform spatial conditions
In the culture of Latin America, public spaces use to while promoting social integration.
facilitate social and economic relations while providing
opportunities for cultural, political, and religious events. IMPLEMENTATION
Venezuelan refugees and migrants with access to public
spaces can eventually build relations and bonds with The intervention in Bucaramanga was implemented
locals to enhance their economic and social inclusion. through the following steps:
1. Identification of potential public spaces through partic-
Different governments across the region have implemented
ipatory processes developed with project participants,
efforts to promote access to adequate living conditions
local government, and other stakeholders at different
for the Venezuelan community. Colombia took a holistic
levels.
approach intending to facilitate their access to housing but
also to improve neighborhood conditions, investing efforts 2. Action prioritization for the selected public space:
in the provision of social support infrastructure including through a participatory exercise (workshop) with the
schools, healthcare facilities, parks, and cultural spaces community, the project aimed to identify the primary
(among others). needs and demands for the public space and territo-
rial assets that could be seen as advantages during the
PROJECT DESIGN intervention.
3. Co-design of interventions with participants
The project proposed a territorial approach, integrating
(Venezuelan and host community members) according
multiple sectors and intervening at different levels, to
to their primary needs and demands.
promote the effective medium- and long-term integra-
tion of Venezuelan and vulnerable host communities 4. Socialization of intervention proposal for community
across the region, developing an action agenda to be approval.
consolidated in Territorial Intervention Plans. These plans
5. The physical construction with community participa-
consider integration challenges at the city, neighbor-
tion – this was planned for approximately seven days,
hood, and community levels and propose actions aiming
according to the complexity of the intervention.
to increase the potential of inclusion in urban areas.
6. Activation of the public space to promote the appro-
These activities consider the location and situation (spatial, priation of the community by cultural and recreational
physical contexts) of Venezuelans in host cities, and iden- activities.
tify challenges regarding their access to opportunities and
adequate living conditions for the overall population of
those neighborhoods and differentials in their access by
Venezuelan communities. The plans collect those designed
through participatory processes to improve prosperity
conditions and access to the right to the city at the city,
neighborhood, and community levels. Among them, the
so-called ‘tactical urbanism’ interventions are included

to transform spatial conditions while promoting social
integration.
THE EXPERIENCE OF BUCARAMANGA (COLOMBIA)
This intervention aimed to obtain a high impact with
a low budget. It focused on a poor-quality and polluted
alley around a waterway, which was then transformed
into an open space classroom for children in the commu-
nity without access to formal education. Lighting was also
introduced together with sitting areas. The space started
Intervention process at target public space.
to be used daily by different community groups, at different

TARGETING a focal point on-site. While the regional team was respon-
sible for the design, technical details, and the provision
Considering that the overall project had a multi-scale of materials, the field focal point was responsible for the
approach, it included actions at the city, neighborhood, participation of the community during different phases. The
and community levels. Tactical urbanism actions were intervention was facilitated by the support of local leaders,
implemented at the community level in public spaces that who contacted community members and promoted their
complied with the following criteria: participation. In addition, they also provided safe locations
1. Ownership:The area must be the property of the for materials storage during the construction process.
local government or the community to ensure that
the action will be implemented strictly on public or
community property.
The public space could be in an area
2. Risk condition:
with risk only when it does not imply vulnerability or
healthy concern for users.
The public space is located at a strategic and
3. Location:
central point at the neighborhood level.
4. Presence of Venezuelan community: The public
space must have the potential to be used by host and
Venezuelan communities in equal conditions.
The selection of the public space in the Granjas de Provenza

neighborhood was based on the above‑mentioned criteria.
The waterway crosses the entire neighborhood and is a
center point for everyday activities. Moreover, the selec-
tion of the space was supported by the presence of
Venezuelan and host communities considering that several
Venezuelan households are living around the waterway.
Finally, Venezuelan children are the most affected by the
lack of access to education. Hence, Venezuelan children
represent a significant percentage of the “Open Street
School” participants, which after the intervention started
to operate in the public space. The co-creation of spaces contributed to social cohesion among the host and
Venezuelan communities.
Community engagement was a vital aspect of the

design and implementation phases of the project.
Neighbors, children, and parents of the “Open Street
School” participated. The engagement of the commu-
nity helped to ensure the timely completion of the work.
A fundamental part of community engagement was the

link and support of community leaders and the relation of
the project focal point with community members in the
neighborhood. Thanks to the proximity of participants,
community engagement during the intervention helped to
guarantee the sustainability of the action. As soon as the
intervention was finalized, children utilized the public space

and gave life to an open-street classroom. The last step of
the intervention, the public space activation, was led and
conducted by the project participant community.
COORDINATION
Although tactical urbanism was approached as an on-site

intervention, the project designed and coordinated the
action through a regional team (architects, urban designers,
and an acquisition team) that organized the activities with Members of the Open Street School at the intervention site.

MAIN CHALLENGES OUTCOMES AND WIDER IMPACTS
The most pressing issue during the intervention was time. Women and LGBTQI+ communities were consid-
Considering that tactical urbanism consists of soft inter- ered a priority within the overall project. The inter-
ventions (not civil engineering infrastructure), actions vention in Bucaramanga proved to be effective in
were not planned to take more than seven days. Longer the transformation of the physical space through the
interventions were considered not cost-effective. In the provision of furniture, lighting, and signs, promoting
case of Bucaramanga, the team was able to complete the space’s use by all groups in the community. It did
80 percent of the work on time. Challenges in material not consider the construction of civil infrastructure
delivery caused slight delays in activity implementation. such as roads, retaining walls, or other similar items.
The community took charge of the remaining actions
and finalized the intervention. Another relevant chal- Within that scope, the action indirectly benefited the
lenge was to provide technical direction to the commu- entire population of the Granjas de Provenza neighbor-
nity after the departure of the regional team, flagging the hood through the transformation of the public space, the
importance of counting on a technical person on‑site mitigation of environmental pollution, and the reduced risk
to lead the preparation and implementation of actions. of exposure to criminal gangs.
Moreover, the intervention directly benefited at least 20
Additionally, to facilitate community participation during
children that were part of the community-based group and
the construction phase, the project organized its construc-
20 households (around 80 people) living in the surrounding
tion according to the availability of a specialized labor
area of the intervened public space. Regarding Venezuelans,
force. Hence, activities that did not require training were
they are counted as both direct and indirect participants
implemented at the times of the day when the community
in the activity. As a result of the action, the surrounding
could collaborate most effectively. Considering security
waterway was transformed into a space for community
conditions, the presence of criminal gangs added pressure
encounters and recreation.
during the construction phase. The participants mitigated
security threats and facilitated the full development of the
intervention.
As soon as the intervention was finalized, children utilized the public space and gave life to an open-street classroom.

√ The territorial integration approach was effective x Limited budget and scope of interventions: The chal-
to promote the inclusion of mobile communities while lenges identified exceeded the reach of the project,
linking humanitarian assistance with effective integra- security-, socioeconomic- and spatial-wise.
tion and development.
x A lack of monitoring tools to effectively measure the
√ Community participation helped guarantee that integration of participants.
proposed actions were responding to needs in x The proposed methodology did not consider
accessing fundamental rights and opportunities Venezuelans’ limitations to participating in work-
(housing, employment, healthcare, education, recrea- shops and community activities, especially related to
tion, cultural expression, and community participation). time availability.
√ Co-creation of spaces strengthened the relation- x Difficulties in the relation with some stakeholders
ship between host and Venezuelan communities and (not considering community and community leaders)
boosted integration processes. that influence public space dynamics, including criminal
√ The support of community leaders and the munic- gangs, municipal officials, and private actors.
ipal government helped guarantee the sustainability x The municipal government provided permits but
of tactical urbanism interventions. did not participate in the intervention, due to their
√ On-site teams oversaw the relationship with the limited capabilities.
community, participatory processes, and general
implementation. A regional team oversaw the coor- LESSONS LEARNED
dination and provision of technical and specialized • Tactical urbanism activities must be planned,
assistance.
designed and implemented with communi-
√ Agreements with the local government facilitated ties to enhance the sense of belonging and
the obtaining of building permits. ownership.
• Community engagement activities are key to
strengthening local bonds and facilitating partic-
The project promoted the effective integration of ipatory processes towards the interventions.
refugees and migrants with tools flexible enough • Co-creation and participatory workshops
to be adapted for a differentiated approach for any should include activities for children so the
vulnerable community. In that context, as improve- entire family can attend, including parents
ment opportunities, the following conditions were (especially single mothers).
identified:
• Xenophobia can result from the sense of
• Establish a strong monitoring baseline at the competition between host and vulnerable
city-level with the location of refugees and communities, collaborative projects can help
migrants that guide all project activities on the mitigate this.
ground.
• Host and Venezuelan communities have the
• Ensure the active participation of local govern- same expectations from their neighborhoods
ments in the design and implementation of and public spaces, and both were willing to
tactical urbanism actions. contribute to improvements.
• Implement community actions (related to • Future interventions should more heavily
culture and recreation) from the beginning of consider the availability of communities with
the project to promote community engage- a predominant share of work in the informal
ment during next phases. sector.
• Strengthen local stakeholders’ participation • Co-design and co-creation workshops generate
in the project to sensitize participants on the expectations in the community. It is important
advantages that migration could bring to the to plan all phases within a short timeframe to
community and neighborhood. adequately manage them.
On local authority engagement: A.19 / IRAQ 2019–2021; A.8 / BAHAMAS 2018–2019; A.16 / UKRAINE 2016–2021
On community engagement: A.14 / PHILIPPINES 2016–2020; A.18 / NEPAL 2016–2017; A.23 / SRI LANKA 2010-2016

COMPLEX/MULTIPLE A.13 / ECUADOR 2020-2022 / COMPLEX CRISIS AMERICAS
CASE STUDY ECUADOR 2020–2022 / COMPLEX CRISIS

KEYWORDS: Host community integration, Local authorities engagement, Rental assistance, Security of tenure, Social cohesion
Response to the situation of refugees and

CRISIS
migrants from Venezuela
Colombia
LOCATIONS Guayas, El Oro, Manabi, Pichincha
PEOPLE 13,358 individuals

SUPPORTED BY - 7,533 individuals from organization 1 Pichincha
THE PROJECT
- 5,825 individuals from organization 2
Manabi
Activities Org. 1 Org. 2
Repair and upgrade of collective 54 24

PROJECT OUTPUTS shelter/housing
Guayas
Distribution of NFI 675 HH --
El Oro
Cash-for-rent 800 HH 550 HH
Training and grant support 404 HH
DIRECT COST USD 4,142 per HH (Organization 1)
PROJECT COST USD 7,300 per HH (Organization 1) Project Location
PROJECT SUMMARY
The organization 1 designed a project with 3 components: 1) Protection - Connecting vulnerable families to the national protection network,
supported with a multipurpose cash-based intervention (CBI) and non-food item (NFI) habitability kits; 2) Shelter - Providing shelter solutions
by helping migrants and refugees move out of short-term shelters into long-term housing, building a trusted landlord network, and making
infrastructure upgrades in single & multi-family housing units and community centers, and 3) Livelihood - generating capacities for self-employment
and entrepreneurship.
The organization 2 designed a project focusing on infrastructure improvements of collective housing buildings (emphasizing durability and
functionality), the establishment of new temporary accommodation centers, and the construction of community integration centers, aimed to
provide spaces for workshops, learning activities, recreation, and protection(multi-sectors) present in 16 countries, coordinate the humanitarian
response of the different actors in each country to the needs for shelter and NFIs.
© José Hidalgo / AVSI
© Jorge Ludeña
Recreational area for children in a community centre. Temporary accommodation centres.

AMERICAS A.13 / ECUADOR 2020-2022 / COMPLEX CRISIS COMPLEX/MULTIPLE
CONTEXT Despite difficulties, the Ecuadorian State managed to keep

the Public Asylum System operating virtually. However,
The Republic of Ecuador is in the northwestern region access barriers to housing were identified for compre-
of South America, bordering Colombia to the north, hensive care and response to priority groups that were
Peru to the south and east, and the Pacific Ocean to the reflected in the continued assessments conducted in
west. In 2019, the country registered an influx of more borders and main strategic cities on the South-North
than 1,850,000 million Venezuelans, most of whom have route. Refugees and migrants often found themselves
transited through its territory toward third countries. It constantly moving from one place to another in search
is estimated that approximately 417,285 of these individ- of more affordable or better accommodation, as evictions
uals remained in Ecuador (R4V, June 2020). Approximately increased significantly due to difficulties to pay the rent –
70 percent of them were living in highly vulnerable condi- leading to an increase in homelessness.
tions in spaces below the minimum habitability standards
without access to infrastructure and basic services.
In March 2020, a border closure process began to prevent Needs assessments conducted in Colombia and Ecuador
the spread of the COVID-19 pandemic, a situation that identified shelter as the second greatest need for refugees
evolved into social confinement measures and limitations and migrants from Venezuela. The regional Venezuelan
on access to public space and to public services like health migrant response network (known as R4V), identified the
and education. This scenario also had an enormous impact reinforcement of temporary collective shelter options,
on the livelihoods of the Venezuelan and Ecuadorian popu- rental assistance as an individual option, and Area-Based
lation, paralyzing informal income-generating activities to Approaches as its main priorities.
cover basic needs and the cost of rent for housing – adding For more background information on the context of Venezuela,
to the strong impact in terms of mental health due to see the “Further Reading” section on Pg. 85.
confinement and uncertainty about the future.
The sector response and related procedures were harmo-
nized to support a complementary multi sectoral approach.
The pandemic exacerbated vulnerabilities caused by the Protection was to be mainstreamed to contribute to the
difficulties of accessing decent housing and the absence mitigation of risks, including evictions and gender based
of spaces for community integration that would support violence (GBV). The Shelter Sector continued to work
processes to strengthen protection networks and peaceful alongside the WASH, Health, and Food Security sectors
coexistence. The precarious conditions of accommodation to ensure access to services and assistance including
had an impact on the increase in exposure to protection COVID-19 mitigation activities. Additionally, the link with
risks such as physical and sexual abuse, discrimination, the Support Spaces Working Group was strengthened
exploitation, and human trafficking. to provide timely information regarding adequate shelter
© Gema Cortés/IOM
Migrants crossing Tufiño Bridge, one of the main gateways between Colombia and Ecuador.

options available across the region. Close collaboration implementation were complemented by direct assistance
was ensured with the Integration Sector to encourage the mechanisms through the delivery of cash and non-food
transition from emergency assistance toward durable solu- item kits, training, and seed capital to generate means of
tions. The Shelter Sector response strengthened collabo- self employment. This was done to enhance access to basic
ration with the regional Cash Working Group, prioritizing goods and services, aiming to enhance the sustainability of
the Cash and Voucher Assistance (CVA) modality for rent, the intervention in the long term.
temporary accommodation in hotels, and the provision of
A two-year project was deemed necessary to better
essential household items.
address the needs of full integration and economic inde-
pendence of migrants. Integration can be a protracted
PROJECT DESIGN process and most people encountered setbacks along the
This case study reports on the experiences of two orga- way – especially those with special needs. The project
nizations in Ecuador, which worked on similar projects continued to assist participants throughout the first and
with the general objective of improving the well being second years of implementation while adding new partici-
and integration of the most vulnerable people in Ecuador pants during the latter.
– including Venezuelan migrants and refugees – for the
benefit of all people. This was addressed through three
specific components: shelter, protection, and livelihood:
The shelter component focused on improving the housing
conditions of Venezuelan migrants and refugees through
the identification and adaptation of spaces for decent
and dignified housing. This component aimed to facili-
tate access to adequate long term housing to enhance
the welfare of the participant population and support the
process of integration. To achieve this, the project focused
on five activities:
• The articulation of (collective) shelter exit strategies.
• The implementation of Cash Based Interventions
(CBI).
• The identification and creation of safe accommodation
maps.
• The facilitation of guidance on the rights to housing
and tenants.
• The identification, improvement, and adaptation of
family homes.
• Improving community infrastructure and equipping
common and individual spaces.
• The distribution of non food items.
The protection component aimed to guarantee the funda-
mental rights of migrants and refugees, such as protection
against eviction, exit strategies from collective centers,
support for the homeless, the incorporation of project
participant families into local protection networks, and the
strengthening of community-based protection networks.
These activities were approached from a gender perspec-
tive where women’s unique needs were considered and
prioritized.
The livelihood component aimed to strengthen economic
support mechanisms through tools and training courses,
with a focus on autonomy and the development of busi-
ness schemes. It aimed to expand the income gener-
© Jorge Ludeña
ation of participants through training and support for

self-employment.
The project was designed with a comprehensive protec-
tion approach. Infrastructure adaptations through direct The construction of community integration centers counted with differentiated
adaptations for women, men, and children. The centers were equipped and
furnished to accommodate various activities.
IMPLEMENTATION TARGETING
The conceptual framework of Human Rights and The criteria for potential housing space and household
Community Protection was holistically integrated with selection were based on studies carried out by various
the project through the lens of Age, Gender and Diversity organizations and the field experience of personnel who
(AGD) and other parameters proposed by the Sphere were working in the territory.
Manual.
From the perspective of shelter, the selection criteria for
YEAR 1 dwellings were:
During the first year of the project, work teams in each • Low cost rental living spaces managed, generally, by
territory were made up of three individuals: a protection the owner, and that were rented long-term by vulner-
officer, a social promoter, and an architect. The human- able families.
itarian assistance materialized through CVA, was initially • The owner or person in charge expressed sensitivity
delivered to homeowners as rent payments for the popu- towards migratory issues and towards the population
lation of interest. Adaptations and interventions of infra- of interest and who showed a commitment to take
structure were directed primarily to multi family and single part in the project.
family housing spaces. Through the livelihood component, • Minimum conditions of shelter and safety (without
the project offered workshops and provided seed capital structural risk and with basic services).
grants to participants who developed business plans, in
• No evidence of rights violation for the tenants.
addition to other activities that created opportunities for
income generation. From the social point of view, the criteria for the selection
YEAR 2
of families were:
• Single-parent home with the presence of one or more
In the second year, a social worker was incorporated in
family members with catastrophic or chronic illnesses.
each location to follow up on interventions carried out
during Year 1. Regarding infrastructure, the implementa- • Single-parent household with the presence of one or
tion of friendly spaces for children and adolescents began more children or adolescents.
in Year 2. These spaces promoted the right to education • Pregnant or lactating women.
and play, generated safe spaces for the care of the little
• Single/widow women.
ones, and helped to optimize the time of adults respon-
sible for their care. During the second year, interventions • Persons with disabilities.
in Community Development Centers were addressed with • LGBTQI+ individuals.
greater force – generating greater impact on community
well-being, starting from spaces already active in vulnerable • The elderly.
areas of each city and improving homes within the param- • Victims of trafficking, persecution, or torture.
eters of decent housing.
• GBV survivors.
Additionally, work continued within the protection • Victims of domestic violence.
component through the direct provision of assistance and
the referral of cases to/from other institutions. Activities • Homeless individuals.
under the livelihood component consisted of the continua- • Those in informal or formal temporary shelter.
tion of employability activities, training, the delivery of seed
• Those at imminent risk of eviction.
capital, and support for entrepreneurs.
© David Viteri / AVSI
© David Viteri / AVSI
Friendly space for children in the multifamily Callejón Solís in Portoviejo, Manabí. The making of a vegetable patch by community work with the people of the
multifamily Carcelén in Quito, Pichincha. Manabí.

For the selection of dwellings and families, the intersection- MAIN CHALLENGES
ality and sum of vulnerability factors were considered, and
interviews were conducted by the social team to reduce Due to the complexity of each territory, particular chal-
possible risks and identify specific needs. lenges were identified in each of the provinces. A summary
of the most relevant can be found below:
COMMUNITY ENGAGEMENT Main challenges Responses
Neighborhoods with lower rental costs – and therefore Constant monitoring and
Recurrent emergency dynamics
the most common for vulnerable Venezuelan families – evaluation of implementation
at the border
often have fewer public services and the community plays a modalities
key role in ensuring people’s safety. To enhance community The ability to call people of Planning of the delivery of
engagement efforts, support was provided by neighbor- interest to participate in work- humanitarian assistance with
hood leaders who helped facilitate access to the selected shops was limited if there material resources was coordi-
project locations. Without these support networks, it were no material resources to nated with other institutions to
would have been impossible to complete activities. distribute carry out workshops jointly
The community protection strategy focused on the contin- WASH infrastructure in
Renovations were conducted
uous monitoring and coordination of activities within the dwellings was old and
within WASH infrastructure
dwellings and community centers, also contributing to the deteriorated
visibility and presence of other organizations of the protec- Provision of water purification
tion network and local governments in each city. Access to quality water was devices. Talks and workshops
limited on good use and management
COORDINATION of water
Waste management was Talks and workshops on
Coordination of this project was carried out at various
inefficient waste management
levels. Internally, a coordinator was appointed for each
of the three components (shelter, protection, and liveli- Structural problems in homes
Structural reinforcements
hoods). In the field, a project manager was appointed to and community centers
coordinate the project with key actors (such as NGOs and Humidity and fungi due to lack Improvement of ventilation
government stakeholders) in response to the Venezuelan ventilation or construction and sanitation of walls and
situation. This distribution helped to maintain a close defects ceilings
accompaniment of activities by the field teams – optimizing Training and job placement
resources, managing appropriate solutions, and planning Lack of sustainability in the
supported by other organiza-
the indicators in an organized manner. livelihoods component
tions were reinforced
Additional coordination mechanisms took place in specific Interventions in sanitation
Gray water disposal
sub-localities considering that the work and protection infrastructure
tables for refugees and migrants at the national level are Overcrowding caused by poor
Spatial redistribution
present in each locality of the project. spatial distribution
Strengthen and support the
Very large territory team with a greater number
of people, coordinated with
the team of other projects
from the organization
Improvement of electrical
Poor electrical installations
installations
CROSS-CUT TING ISSUES
Gender was the primary cross-cutting issue in project

design and implementation. Across infrastructure,
protection, and livelihood activities the specific needs
of women and girls were considered at every stage.
Within infrastructure interventions, privacy consider-

© Jorge Ludeña
ations through the repair, replacement, and/or instal-

lation of doors in private spaces and sanitary batteries
were prioritized. Bathrooms in common areas were
also sectored by gender. Spaces shared between several
Workshops on participatory design and social construction of the habitat. family nuclei were separated by internal divisions.

The asymmetric distribution of childcare efforts increased • Workshops to raise awareness of GBV were held
responsibilities and decreased free and productive time, in shelter spaces nationwide as a strategy for GBV
especially for women. The target population lived in homes prevention programs – having implemented 358 GBV
that, prior to the intervention, did not have friendly spaces programs to date.
set up for educational and recreational activities aimed • Within the livelihood component, 216 people
at children and adolescents. From a shelter component, completed skills and entrepreneurship training and
suitable and safe spaces were created for this social group received certifications, 192 business plans were
where they could access their right to play and multiple assessed and 60 seed capital grants were provided.
learnings that affect their comprehensive development. For Wider impacts related to the project include:
this, safe spaces for children’s games were identified within
homes for children and adolescents. It was verified that the • The organization’s habitability strategy was developed
spaces did not have any infrastructure risk and that they together with the main Shelter actors in Ecuador in
were accessible to all the people who lived in the home. 2019. The project provided improvements to the
The project also set up small booksellers that allowed the methodology, integrating income-generating activities
provision of literature, encyclopedias, and reference books for the supported families.
to children and adolescents • The good practices and improvement of housing for
the population in human mobility that emerged from
OUTCOMES AND WIDER IMPACTS this project were presented to the Ministry of Housing
of Ecuador as an option to cover housing needs based
Among the most important outcomes of the project were:
on a methodology of housing improvement and
• In relation to housing access for one of the projects, protection. This allowed the organization to engage
126 refugees and migrants were supported with in meetings for the construction of the country’s new
the improvement of their homes, while 444 families public housing and urban planning policy, where much
benefitted from legal advice on accommodation and emphasis was placed on considering the specific needs
housing options. Additionally, 832 families received of the population in terms of human mobility.
rent support for the first time and 827 families received
rent support recurrently. Of the second project, a • This project also showed that it is important to
total of 615 families (2,422 individuals) were relocated cover the wider scale needs in terms of habitability
into safe housing units and granted cash-for-rent. and access to decent housing through infrastruc-
• A total of 686 families improved the conditions of ture improvements, but with a focus on facilitating
their homes through the reception of non food item income-generating activities in the house. This has led
(NFI) kits. the organization to propose an improved habitability
strategy based on productivity, focused primarily on
• Approximately 97 percent of families who received
cash and in kind support indicated in post-activity mothers who are heads of households who cannot
monitoring that they successfully met their family’s leave their homes because they do not have a support
basic needs. network to care for their children. The organization is
currently carrying out this strategy in another project.
• A total of 36 community development workshops
were held.
• Concerning infrastructure interventions: six commu-
nity centers (common space), three informal shel-
ters, and 45 multi family homes were upgraded.
Additionally, 61 safe spaces for children and adoles-
cents were designed and built within care network
plans. The implementing organization also provided
197 tablets and 499 sim cards for connectivity and
enhanced access to education.
• Seventy seven families were relocated from informal
shelters to safe dignified and secured accommodations
previously assessed and mapped and that have bene-
fited from program improvements and upgrades.
• Reactivation of 24 neighborhood committees using a
strengthening process in coordination with local orga-
nizations and governments.
• A total of 71 WASH plans were implemented and
68 COVID 19 prevention and hygiene plans were
© COOPI
completed. Additionally, 1,011 bio health and hygiene

kits were distributed.
Within the livelihoods component, participants completed skills and entrepre-
• Access to safe water was improved for 1,907
neurship training.
individuals.

√ An effective needs survey system contributed to x Inadequate staff planning by the executing agency led
tailoring the emergency response to the assessed to delays in the identification and selection of homes
needs in each territory. to be repaired and subsequent disagreements with
√ A participatory process was promoted to strengthen
owners. The technical shelter component should
space acquisition. This enhanced the sustainability of also have been involved during the first contact with
family stability to inhabit spaces and increase a sense homeowners and project participants.
of belonging and care for the space in the long-term. x Within the livelihood component, it has been a chal-
√ Community and common spaces were strengthened to lenge to enhance sustainability within enterprises
support peaceful coexistence and integration between considering that the monitoring of each case ends
project participants and the host communities. with the project.
√ The protection and livelihood approaches comple- x It was a challenge to achieve sustainability among fami-
mented shelter programming and enhanced sustaina- lies so that they could generate income once the CBI
bility from a more comprehensive and effective long- payment deadline is over, especially for the families
term sphere. that were taken out of the shelters with this payment.
Exit strategies in that regard should be included in the
√ The assistance through MPCA was calculated to design of the project.
exceed the cost of the rent, so that the project partic-
ipants could also cover food, health, and education
expenses. RECOMMENDATIONS MOVING FORWARD
√ Through this project, the existence of informal shelters
On the implementation of similar projects moving
was revealed, which are hostel type spaces with costs
of between USD 5–10 per night which have serious forward, the organizations have identified four main
protection problems because they are frequently used points:
as spaces of sexual exploitation. Newly arrived fami- • Implementing organizations should be highly
lies with small children are often accommodated in selective concerning potential landlords to
these spaces. A continuous monitoring and follow up work with. This should be done to ensure that
mechanism was established together with partners to landlords will not mistreat the target partici-
provide information and services within these spaces pants after improvements have been made to
in the province of Pichincha, which allowed some their properties.
families to better understand the context and their
options and ended up being relocated to safe spaces. • An individualized approach in each territory
should be followed from the beginning, under-
standing that the dynamics are different in each
place.
• Accountability system and protocols should be
prioritized At times, the implementing entity’s
accountability to the project participant popu-
lation was weak, and they did not know how to
© Geoconda García
communicate with the implementing organiza-

tion or submit a complaint. A new comprehen-
sive protocol was designed that will be imple-
mented going forward.
The community orchestra using the main room after the infrastructure inter- • Livelihood programming should be connected
vention of the Art Center Picoazá in Portoviejo, Manabí.
more closely with shelter assistance, to take
advantage of the productive activities that
FURTHER READING ON SHELTER PROJECTS occasionally may emerge naturally from neigh-
bors in proximity and to enhance options for
On Venezuela: A.10 / VENEZUELA 2020; A.11 / VENEZUELA income generation. Through this, participants
(REGIONAL) 2019-2023 can pay the rent after project support ends.
On coordination and partnerships: A.19 / IRAQ 2019–2021; In the next phase of the project, “produc-
A.11 / BANGLADESH 2018–2021 tive housing” activities will be conducted by
providing USD 2,500 grants for training and
On social cohesion: A.32 / TURKEY 2017–2018 equipment in ten multifamily housing units.

LESSONS LEARNED
• Multiple feedback channels should be opened with the participants as the project covered different aspects
within the assistance. For example, for staff in the territory, it was important to establish lines of communica-
tion with individuals who use the same technical language in the search for solutions to unexpected problems.
• Within the context of Ecuador, there must be separate implementation strategies for each territory and not a
general one, considering that the needs of each locality vary. For livelihoods, this relates to an openness to the
different skills/trades that are in demand and the opportunities for training in each place.
• Inter institutional work is key to articulating and strengthening protection networks. Without a mapping of
stakeholders linked to the project, aid to project participant families is inefficient.
• There are risks involved in outsourcing livelihood training because trainers might not know the target popula-
tion well and might not be flexible to their unique needs.
• Implementing building upgrades from a gender perspective has been essential in the building of care spaces,
especially spaces for children and adolescents.
• It is essential to understand and streamline the connectedness between habitability and protection to provide
a more comprehensive response to many of the identified needs.
• A margin of adaptability within the project to different scenarios was essential for the success of the activities.
• This project showed that the primary selection criteria for a selected dwelling to function as a long-term safe
space for assisted families revolves around landlords who show sensitivity and empathy towards the families’
situation. In some dwellings where this selection criterion was not strict, families were evicted once the adjust-
ments were completed. This situation did not happen as the project progressed because the implementing
organization was more selective with owners and dwellings.
• The project provided several important lessons including the importance of building a strong relationship with
host-community landlords in the shelter response, the potential of multipurpose cash transfers as a protection
practice when it is properly monitored for ensuring the intended outcomes, and the increasing need to short
stay shelters for new arrivals or people in transit.
© Jorge Ludeña
The improvements implemented in the collective housing included recreational spaces for children.

DISASTER A.14 / HONDURAS 2020-21 / HURRICANES ETA AND IOTA AMERICAS
CASE STUDY HONDURAS 2020-2021 / HURRICANES ETA AND IOTA

KEYWORDS: Emergency shelter, Training, Transitional shelter, Wider impacts
CRISIS Hurricanes Eta and Iota Belize Caribbean

Sea
Guatemala
PEOPLE AFFECTED 4 million+ people* CORTÉS COLÓN
ATLÁNTIDA
HOMES DAMAGED/ 82,307 homes damaged** SANTA
BARBARA
YORO
DESTROYED
9,315 homes completely destroyed** NORTHERN
COPÁN
BAHR EL
GHAZAL
PEOPLE WITH 88,000 people in need of temporary shelter** WESTERN
WARRAP
GRACIAS
SHELTER NEEDS
35,000 people in need of house repairs** BAHR EL
GHAZAL
JONGLEI
T E G U C I G A L PA A DIOS
El Salvador LAKES
Departments of Atlántida, Colón, Copán Cortés, Gracias a
PROJECT LOCATION
Dios, Santa Barbara, y Yoro. (24 municipalities in total) Pacific WESTERN Nicaragua
EASTERN
Ocean EQUATORIA EQUATORIA
PEOPLE SUPPORTED CENTRAL
BY THE PROJECT 3,208 HHs (14,264 individuals) Project Location EQUATORIA
PROJECT SUMMARY
Emergency Phase and Early Recovery:
- 3,208 HHs recived Emergency Shelter Kits This project is part of a coordinated regional
- Provision of Shelter Kit training at household and intervention in Honduras, Guatemala, and
community levels to support repairing local housing and Nicaragua, led by three national entities of a global
building transitional shelters with local materials through a housing network, which worked in each country
PROJECT OUTPUTS self-recovery approach in partnership with the governments, and other
- Build Back Safer training and support to target local and international organizations. In Honduras,
households the housing agency partnered with an international
Reconstruction phase: NGO specializing in emergency shelter, a local
branch of a civil society entity, and some local
- Resettlement of 26 HHs, to evolve from a temporary
government agencies (municipalities). With this
shelter to permanent housing
support, the project participants with damaged
homes carried out housing repairs and extensions.
SHELTER SIZE
Temporary shelters were 18m2 (3 x 6m) or Others whose houses were destroyed received
12 m2 (3 x 4m) depending on resources available. support for their reconstruction processes through
emergency and transitional shelter, and some of the
SHELTER DENSITY 3.6 m2 per person (average of 5 persons per HH) most vulnerable with core housing.
DIRECT COST USD 130.50 per HH *Weekly Situation Update, LAC, OCHA, Nov 2020.
**Factsheet, Honduras Hurricanes Eta and Iota,
PROJECT COST USD 218.20 per HH Global Shelter Cluster, Dec 2021.
1 2 3 4 5
IMPLEMENTATION PH 1 IMPLEMENTATION PH 2
PROJECT
PLANNING PH 1 HANDOVER PH 1 PLANNING PH 2 HANDOVER PH 2
CONTEXT
CRISIS
TIMELINE NOV DEC JAN FEB MAR APR MAY JAN FEB MAR APR MAY JUN JUL AUG
2020 2021 2022
Nov 2020: Hurricane Eta (Cat 4) and Iota (Cat 5) caused severe
damage in Central America and the Caribbean.
1 Nov 2020: Agreement signed between the three partners.
2 Feb 2021: Arrival of the kits to San Pedro Sula from Panama.
© Delmer Martinez
3 Apr 2021: Distribution of emergency shelter materials completed.
4 Jun 2021: Relocation project completed.

5 Jul 2021: Envisioning a resettlement project.
Hurricane victims take refuge under a bridge in San Pedro Sula, Honduras.

AMERICAS A.14 / HONDURAS 2020-21 / HURRICANES ETA AND IOTA DISASTER
CONTEXT Despite the efforts of communities, governments and

NGOs, there was not enough space in evacuation centers
Honduras is the second largest country in Central for all displaced people following minimum standards of
America, with a population of more than 9.4 million as habitability. The lack of alternative temporary solutions
of 2021. According to the National Institute of Statistics (rental or hosting families), or available safe spaces for
(INE) as of 2020, 48 percent of its population is male, and vulnerable population groups (pregnant women, nursing
52 percent is female. The urban population is comprised mothers, infants, children, etc.) exacerbated the over-
of 5,157,115 (55 percent) inhabitants. The economically crowding of the emergency shelters available, increasing the
active population represents 43.8 percent of the work- risk of gender-based violence and the spread of COVID‑19
ing-age population, of which 23.4 percent is employed in and seasonal diseases, such as dengue, chikungunya, and
agriculture, 18.7 percent in commerce, and 16.2 percent in zika.
industry. Financially, Honduras remains one of the poorest
and most unequal countries in the Western Hemisphere.
Honduras is also a country vulnerable to various hazards,
which generated 82 hazards between 1970 and 2019 – of
which, 67 had hydrometeorological or climatic causes. The
disasters generated by hurricanes Fifi in 1974 and Mitch in
1998, which caused 8,000 and 14,000 deaths respectively,
stand out. Storms have become increasingly frequent in
the country. Between the two hurricanes, there were six
storms, and between Hurricane Mitch (1998) and Tropical
Storm Eta and Hurricane Iota (both occurring in November
2020), there were 11 tropical storms. Before the two 2020
impacts, 25.2 percent of the Honduran population lived in
extreme poverty and almost half (4.4 million people) lived
in poverty, according to official poverty lines.
© UNFPA

Survey reports suggested that shelters faced challenges in implementing
The housing deficit in Honduras reached a total value of COVID-19 prevention measures and lacked access to water and sanitation,
1,366,691 housing units, of which 522,076 are new homes waste storage, power, non-food items (NFI), food kits, etc.
and 844,615 are improvements. About 11.5 percent of
households do not have access to potable water, and 23 NATIONAL SHELTER STRATEGY
percent of homes have earthen floors.
The damage and needs assessments were conducted by
Approximately 11.5 percent of the population in the Sula the Office of Risk Management and National Contingencies
Valley Region resides in irregular settlements. Most of of the Government (COPECO) with support from
these irregular or informal settlements are in areas of the the Honduran Red Cross and other agencies of the
city without infrastructure (peripheries), on riverbanks, Humanitarian Network (led by OCHA). In coordination
on the sides of old railroad tracks where train companies with local and national institutions and authorities, and
have not operated for decades, or in other areas at risk of within the framework of national and municipal strategic
flooding and landslides. These communities lack access to plans, the shelter and settlements technical working group
basic services such as water, energy, and sanitation. Poor proposed the following response strategic lines:
socioeconomic conditions compound the disaster risk in
the area. • Support for the safe and dignified return of affected
communities, with housing solutions designed for the
SITUATION DURING/AFTER THE CRISIS short, medium, and long term.
• Support for interventions with a territorial approach,
Tropical Storm Eta and Hurricane Iota affected at least 5 rehabilitation of infrastructure and community facili-
percent of the country’s 1.8 million housing units. The most ties in settlements, paying particular attention to the
affected departments were those in the Sulla Valley: Copán, conditions of people with special needs and in circum-
Cortés, Olancho, and Yoro. These departments represent stances of vulnerability due to gender, age, disability,
37 percent of all occupied housing units nationwide but etc.
experienced 82 percent of the damage and destruction of
homes with a total of 27,856 homes affected. • Identification of housing solutions to meet the popu-
lation’s needs in uninhabitable (unfit and high-risk)
Over 71,000 individuals (among which 11,700 children) areas, considering context situations and special needs
were displaced and accommodated in collective emer- of groups with high levels of vulnerability and special
gency shelters. A total of 93 schools, churches, and other needs.
buildings were used for this purpose.

PROJECT DESIGN/STRATEGY basic services was conducted. Two municipalities

offered land for families who were living in damaged
The intervention’s objective was to assist vulnerable house- homes in high flood-risk areas. From the planning
holds impacted by the Eta/Iota storms in the north and of these new settlements, coordinated with the
west of the country. During the emergency phase, they government housing institution (Comisión Nacional
were provided with tarpaulins and tools to repair damaged de Vivienda y Asentamientos Humanos de Honduras
houses or set up temporary shelters for displaced people. “CONVIVIENDA”) and local municipalities, perma-
They also welcomed technical guidance. Families living in nent homes were considered. First, transitional shel-
high-risk areas who requested relocation to safer places ters were set up which had concrete foundations and
received support in the recovery phase through transi- the footprint of a future permanent home, tarps for
tional shelters that later became permanent. walling, and Aluzinc sheets for roofing (plus a timber
frame). The families lived in their temporary shelters
IMPLEMENTATION for approximately one year, the time needed to get
all the preparations for permanent homes, including
The project focused on: financing. Then, families moved their temporary
• The distribution of 3,208 emergency shelter kits shelters to the back of their plots and participated in
(comprised of tarpaulins and basic tools) and house- constructing permanent dwellings, with an area of 36
hold items such as solar lamps, mosquito nets, kitchen m2 covered space.
sets, water filters, and rugs.
• Shelter kit training was provided at the household and TARGETING
community levels. The training was carried out by the Target communities were selected with the support of
technical staff of the national housing entity (who were local governments, following the criteria of greatest need
previously trained virtually by its partner international for temporary housing. A technical team visited all selected
emergency shelter NGO), which included information communities to collect data that informed the assignment
on the proper use of shelter kits and Build Back Better of the type of shelter kits. In target communities, leaders
and Safer messaging. were contacted to identify households in the most precar-
• Building materials (timber and roof sheeting) were ious and affected conditions, considering the following
distributed to 130 households in the areas of greatest vulnerability criteria: social-economic vulnerability, age,
vulnerability and impact of the storms. marital status, and gender.
• Training and technical advice to support self-recovery Additionally, the selection of households was based on
was conducted for families and masons (the Municipal need and shelter kit potential and adequate use, so that
Emergency Committee, or CODEM) who accompa- participants could either properly repair, adapt and rebuild
nied families to help repair homes or build temporary their homes or build a temporary shelter in a safe and
shelters. secure manner and location. Selected communities were
clustered in villages or settlements. However, due to indi-
• The relocation of 26 households to safer areas with
vidual choice, level of damage, and family social‑economic
© Habitat for Humanity Honduras
(Left) Old man carrying a distributed shelter tool kit, March 2020. (Right) A woman and her son carrying distribued shelter and household non-food items, March 2020..


A view of transitional housing built in a resettlement site. Trainings at hosuehold and community levels enabled self-recovery of the targeted population. June 2020.
their homes or build a temporary shelter in a safe and from the government and other NGOs and supported the
secure manner and location. Selected communities were mitigation of activity duplication. In some municipalities,
clustered in villages or settlements. However, due to indi- coordination with other NGOs took place, also led by
vidual choice, level of damage, and family social‑economic CODEM which enhanced the response further through
conditions, some internally displaced households moved integrating WASH Solutions, hygiene kits, shelter kits,
from collective centers back to their damaged homes. food, water, and other NFIs.
COMMUNITY ENGAGEMENT MAIN CHALLENGES
• Community leaders coordinated and participated in • No significant disasters occurred in the country in
the selection of participants, the mobilization of the recent years, and the housing national organization
targeted population, and in the distribution of kits. had no longer staff with experience in humanitarian
The approach applied was mainly community visits, response efforts.
which were adjusted for each of the municipalities, in
• Project planning took longer than anticipated, and
which measures to prevent the spread of COVID 19
implementation began months after the impact of the
were considered.
storms. The shipment of goods could not proceed until
• Prior to shelter kit distribution, selected community all parties signed a Memorandum of Understanding.
members were trained and replicated the training
• The project faced challenges in transferring disaster
further in their communities.
response knowledge to local municipalities (i.e., in
• Direct communication with the affected community some cases, local authorities built 12m2 shelters that
took place during training sessions and when kits were did not meet Sphere minimal standards).
delivered. Indirect communication was also carried
• Due to the COVID 19 pandemic, local and national
out through community leaders who socialized in
authorities had insufficient funds to respond to the
more detail with each of the participant families.
storm disaster, and there were restrictions on staff
movement and the implementation of community
COORDINATION activities during the response period.
Project partners actively participated in the activities of • Lack of sufficient funding for sustainable reconstruc-
the Emergency Shelter Coordination Board, which was tion phase due to the institutional context of the
key to reaching those in need and avoiding duplication country.
of attention to communities. In each municipality, work
was coordinated with the relevant Municipal Emergency
Committee (CODEM), who previously received support

LINKS WITH RECOVERY OUTCOMES AND WIDER IMPACTS
The intervention followed the global housing network-de- • The response to this disaster was a learning process
signed approach, which aims to place affected families on for the national housing organization, which prepared
a path that enables incremental progress toward achieving the organization better to respond to future human-
permanent and durable housing and settlements solutions. itarian crises.
This focuses as much on the process of sheltering and risk
• The project was also fundamental in advocacy on land
reduction as it does on the factors that may support it.
tenure, response capacity, risk reduction, affordable
Thus, the activities implemented responded to priority
and proper housing conditions for the most vulner-
short, medium, and long-term shelter needs to enable
able people, as well as with the national government
households to recover.
institution CONVIVIENDA, to make possible the two
resettlement projects that began with temporary
MATERIAL AND SUPPLY shelters and transitioned to permanent homes.
• The shelter kits were brought by truck from Panama, • This response project involved several municipal
where the international NGO specialized in shel- governments and NGOs, collaborating with distribu-
ter-prepositioned material in a regional warehouse. tions and transportation in a coordinated and effective
manner which set up a positive basis for any future
• Roofing metal sheets and timber were purchased
response needed.
locally.
A view of the permanent dwellings built in a resettlement area. Following the global housing network-designed approach, progressively allowed to relocate affected
families from flood-prone areas to safer plots.

√ Effective collaboration among partners increased x This was the first humanitarian response by the
programme synergies. The national housing orga- housing network national entity in many years.
nization led the response at both the programmatic Thus, its current staff lacked humanitarian exper-
and implementation levels, with technical and finan- tise. After this experience, the organization has been
cial support from the network. The international positioned in the national humanitarian network as
emergency shelter NGO provided shelter kits and an actor with knowledge and experience in housing
expertise in this activity. The civil society local branch solutions, which also permitted the organization to be
provided the availability of facilities, volunteers, and part of the Honduran WASH Cluster and work on
relevant contacts within target municipalities. other responses after Eta and Iota.
√ The international NGO specialized in emergency x The delivery of the goods was delayed due to inef-
shelter focused on the initial response, while the ficiencies in the logistics management processes,
housing national entity developed strategies and resulting in slower-than-expected shipments.
built relations to facilitate the process to long-term
housing and settlement solutions.
LESSONS LEARNED
• Partnerships at various levels during implementation reduced costs and intervention times. Building alliances
with social organizations working in the affected reduced logistics costs, as they may provide information on
pre-existing needs and the relief distribution system.
• A prior socialized and signed MOU could help earlier project implementation.
• Local volunteer support was beneficial for the response (a group of approximately 40 people collaborated in
the storage center to receive, unpack, assemble, or group and load the kits that were being dispatched to the
communities).
• Prepositioning the shelter kits in Panamá anticipated the supply shortage that occurred a few months later for
some items, such as tools and water filters.
• The involvement of participant families is crucial as it generates long term sustainability.
• Where project teams consist of multiple organizations and individual volunteers, a process of induction should
be considered for ensuring the commitment of all the partners in meeting humanitarian minimum standards.
• For further replication of the activities, additional training for implementing teams to conduct distributions
would be recommended, as well as training for partners and participants on how the shelters should be better
located.
• Provide letters of guidance to local government that include clauses relating to the prohibition of politiciza-
tion of aid. Further to this, the project team found that the more communities and civil society partnerships
involved, the less likely distributions will be used as political tools.
• Logistics issues:
i. It would be worth tracking the full shipment of emergency shelter kits at the same time since this is a much
cheaper option – if warehouse capacity is available to receive.
ii. Logistics scoping should incorporate diminished capacities of warehousing facilities due to COVID 19 mitigation.
iii. Deploying international teams (particularly logistics specialists) would have added additional capacity and should
be considered where COVID 19 mitigation restrictions allow.

On Honduras: C.1 / HONDURAS 1998; C.8 / HONDURAS 1974
On transitional shelter: A.7 / FIJI 2012; A.27 / TANZANIA 2016–2017; A.28 / GAZA (PALESTINE) 2014–2016

DISASTER A.15 / BANGLADESH 2021-2022 / FIRE RESPONSE ASIA-PACIFIC
CASE STUDY BANGLADESH 2021–2022 / FIRE RESPONSE

KEYWORDS: Community engagement, Disaster Risk Reduction, Site planning, Transitional Shelter
Major fire incidents in Kutupalong-Balukhali Expan-

CRISIS
sion (KBE) Camps in March 2021 and January 2022
India
10,473 HHs (50,037 individuals in total)*

PEOPLE WITH
SHELTER NEEDS - 10,100 HHs (48,300 individuals), March 2021
- 373 HHs (1,737 individuals), January 2022
WARRAP DHAKA
Kutupalong-Balukhali Expansion (KBE), Ukhiya, Cox’s Bazar,
PROJECT LOCATION
Bangladesh (Camps 9, 8E, 8W in Mar 2021, Camp 16 in Jan 2022) JONGLEI
India
LAKES
PEOPLE SUPPORTED 10,473 HHs (50,037 individuals directly supported);
BY THE PROJECT
895,515 individuals indirectly supported WESTERN
EQUATORIA
EASTERN
EQUATORIA
CENTRAL
EQUATORIA COX’S
Activities Fire incident Fire incident BAZAR
Bay of Bengal Myanmar
Mar 2021 Jan 2022
Shelter plots re-planned - 373

PROJECT SUMMARY
PROJECT OUTPUTS Slope stabilization 77,444 m 2
4,450 m2
The densely populated settlement of
Drainage construction 12,546 l.m. 206 l.m. Kutupalong-Balukhali was developed on
hilly terrain, prone to recurrent landslides
Improvement of access 8,388 l.m. 250 l.m.
and floods particularly during the monsoon
Increase in WASH facilities - 19 % season; and also using flammable materials
such as bamboo and tarpaulin for both shelter
construction and site development works, as
SHELTER SIZE 13.9-18 m2 (As per govt. guidelines on max. shelter size) the settlement is considered temporary by
the authorities. This case study analyses the
responses implemented after two fire incidents
Shelter density: 3m2 per person which occurred in 2021 and 2022, reflecting
SHELTER DENSITY
Site density: 9-15 m2 per person on the (re)planning approach incorporated
in the post-fire reconstruction. Addressing
contextual challenges, the scale of the fires,
DIRECT COST
USD 1.091 per shelter and the social and political complexities,
USD 364 per HH for site development the response incorporated lessons learned
from different approaches, and focused on a
PROJECT COST USD 1891.5 per HH strategic, adaptive, and participatory planning
process to address local priorities, sticking to
*Fire Incident Initial Rapid Joint Needs Assessment Report, March 2021, ISCG
the pre-fire layout.
*C16 Fire Situation Report, January 2022
A view of the affected area in Camps 9, 8E, 8W, the day after the fire in March 2021.

ASIA-PACIFIC A.15 / BANGLADESH 2021-2022 / FIRE RESPONSE DISASTER
1 2 3 4
IMPLEMENTATION RESPONSE 2
IMPLEMENTATION RESPONSE 1
PROJECT
PLANNING RESPONSE 1 PLANNING RESPONSE 2
CONTEXT 1ST FIRE 2ND FIRE
TIMELINE MAR APR MAY JUN JUL AUG SEP OCT NOV DEC JAN FEB MAR APR MAY JUN JUL
2017 2021 2022
25 Aug 2017: Violence in Rakhine State which drove an estimated

655,500 Rohingya across the border into Cox’s Bazar, Bangladesh.
22 Mar, 2021: The fire broke out in one of the densest areas of
the camp, destroying over 10,000 shelters.
May 2021: Government issued an instruction on the allowed
1 modality of Shelter support, i.e. to be built by agencies following
an agreed footprint. By this time, the community had rebuilt tem-
porary shelters on their pre-fire plots, in effect largely ‘cementing’
the pre-fire site plan.
9 Jan, 2022: The second major fire incident. The fire source was
unique, and fire was contained relatively quickly.
© IOM Bangladesh
Jan 2022: Government approval for planning approach in C16
2 reconstruction and allocation of shelter partners responsibility.
Mar 2022: Reconstruction of 2nd fire affected structures (with
3 dedicated funding).
Jun 2022: Completion of the reconstruction of the area affected Debris removal started immediately in the initial phase of the response in
4 by the first fire in March 2021. both the fire inclidents, incolving many community volunteers and laborers.
CONTEXT Fire response tasks in the camps were assigned to the

Disaster Management Unit (DMU) Rohingya volunteers,
Since the 1970s, multiple waves of Rohingya have fled from who were regularly trained to act as the first line of
Rakhine State in Myanmar to Cox’s Bazar in Bangladesh. responders to fire incidents. The DMUs established avail-
The largest influx occurred in August 2017, with more than able fire points (drums filled with water) scattered across
745,000 Rohingya seeking safety from violence – leading the camps and supported in extinguishing small fires or
to the establishment of densely populated camps on hilly containing larger fires by demolishing structures and
and flood-prone terrain. Five years later, around 920,000 creating fire breaks until the national fire service would
Rohingya refugees are solely dependent on humanitarian arrive (which could take over an hour). Additional systems
aid to survive and remain in five nearby locations – including such as small vehicles equipped with mobile water tanks, a
the world’s largest refugee settlement. network of water reservoirs with easy-to-access hydrants,
Due to deforestation and the loss of green coverage and fire stations within the camps were implemented grad-
caused by rapid self-settlement in 2017, shelter construc- ually to complement existing mechanisms for fire response.
tion – as well as access and slope stabilization efforts –
utilized flammable material such as bamboo, tarpaulin, and SITUATION DURING/AFTER THE CRISIS
geotextiles in congested areas with limited access routes
or fire breaks. Since 2017, more than 404 fire incidents of The fire incident in March 2021 spread across 63,590 m2 in
a varied scale have occurred; among which two significant Camps 8E, 8W, and 9, impacting 48,300 individuals directly
fires occurred in March 2021 and January 2022 affecting (including 11 fatalities) and destroying 10,100 shelters and
48,300 and 1,737 individuals respectively. all major facilities in one of the most highly congested areas
of the camps. Slope stabilization in the area was largely
For more background information on the Rohingya crisis, see affected, and accessibility, drainage networks, and solar
A.11 , A.12 (Shelter Projects 8th edition), and A.14 , A.15 streetlights were also damaged. Despite generous funding
(Shelter Projects 2017-2018). dedicated to reconstruction, gaps remained in infrastruc-
ture coverage in the fire-affected area more than one year
SITUATION BEFORE THE CRISIS after the incident.
Government restrictions against expanding the camp area A later fire incident in January 2022, while considerably
or allowing the construction of two-story shelters limited smaller than the previous event, still affected 15,425 m2
any possibility to decongest the most overcrowded zones, in Camp 16 – impacting 1,737 individuals and destroying
and created significant challenges to providing fire breaks 373 shelters and communal facilities. As before, slope
or improving emergency access. The presence of a major stabilization, stairs, pathways, and drainages were heavily
market in the relevant area also made households reluctant damaged. Dedicated funding was again provided, and since
to be relocated – even to areas with significantly better the area was much smaller, the reconstruction of most of
conditions and lower risks. the affected infrastructure was possible in a timely manner.

NATIONAL SHELTER STRATEGY replace their recently rebuilt shelter with the govern-
ment-approved design. The households were registered,
In the immediate aftermath of each fire, United Nations and community members willing to take part as labor for
agencies, NGOs, and partners – in coordination with the camp reconstruction were trained on the techniques used.
government – began providing life-saving services and During the following months, more than 90 percent of the
emergency support (including food, NFI distribution, and affected households agreed to have their shelter recon-
temporary shelter items such as bamboo, tarpaulins, rope, structed, as the new one (while slightly smaller), would be
or tents). This was followed by the reconstruction of shel- built using bamboo poles treated against insect infections,
ters, public facilities, site development works, and WASH metal footings anchoring the frame to the ground while
blocks during a second phase. preventing its degrading by the ground dampness, and
After the first big fire incident in March 2021, prolonged steel-rod connections between the main frame elements.
negotiations with the authorities regarding the prescribed However, due to an early agreement with the government,
shelter sizes for varying family sizes delayed the start of the site planning team was obliged to provide formal site
shelter reconstruction and prevented substantial replan- plans – even after it became clear the approach was not
ning, as families had already rebuilt on their pre-fire shelter appropriate. Though it was made clear that the plans were
footprints. indicative only and should be superseded by the plans
In addition, advocacy efforts from humanitarian actors developed locally through the row-by-row approach, this
coordinated at the cluster level to maintain minimum created challenges in some situations, for example with
standards of shelter size were unsuccessful, as the govern- a WASH actor seeking to build a latrine exactly where
ment-approved shelter for households of up to six shown on the preliminary indicative plan, but where a
members (13.9 m2 ) was smaller than the previous design shelter had since been built.
used as a reference in the replanning exercises (18 m2 ) – After the January 2022 fire incident, utilizing learning from
which entailed reiterative community consultation. previous experience, the replanning focused on making local
During the fire incident of January 2022, quick instructions improvements to the pre-fire layout, addressing priority
were provided by the government to all partners to hold issues of access, drainage, slope stabilization, and WASH
reconstruction until a site plan was prepared within seven gaps while incorporating feedback from the community
days and clear guidelines on shelter size were already avail- and all stakeholders from the initial assessment stage. An
able from the previous event in 2021. This ensured shelter on-site participatory planning approach was taken from
partners’ commitment to contribute to the development the start which enabled better field coordination with all
site plans and effectively guided the reconstruction of slope partners and better engagement with the community. In
stabilization and shelters on time. this case, no indicative site plans were provided before
After the March 2021 fire incident, the replanning of the

fire-affected area aimed to build back safer through the
identification of new roads, fire breaks, landslide risk areas,
priority areas for replanning, and rationalized facilities.
While the first two actions were successful, the compre-
hensive replanning and redevelopment of these priority
areas was rendered impossible by delayed confirmation
of the mandated shelter design, as the community had
already largely rebuilt on their existing plots before it was
even possible to discuss site plans with them.
Instead, the initial comprehensive replanning approach
changed to a ‘row-by-row’ approach, which set out a
series of steps and indicative plans for shelter partners to
develop localized site plans with groups of 5 to 15 fami-
lies living in consecutive shelters (shelters are often placed
in rows along terraces considering the hilly topography).
This included discussions with the community and the aim
to closely follow the existing layout while trying to secure
local improvements (uniform plot sizes, additional WASH
facilities, wider pathways, etc.).
Following the approved shelter design, a sample was built
in a central location of the affected area to be explained
to the community for households that would agree to A ‘Priority Access and Landslide Risk Areas’ map, prepared during the plan-
ning phase for Camps 9, 8E and 8W after the first incident in March 2021.

the community consultations but rather developed during The implementation timeline for the 2022 fire response is
field visits, incorporating community feedback. Site plans highlighted below:
remained adaptive and provided options for replotting
• Initial Phase: Debris cleaning and emergency support,
through door-to-door community consultations. This
including temporary shelter and WASH and NFI kit
helped to create achievable and agreed‑upon site plans in
distribution, began immediately. Communication to
a complex site which were followed by the reconstruction
communities regarding the steps of the response was
of shelters and WASH facilities.
also delivered from the beginning. The initial phase
also included a needs assessment for shelter and site
PROJECT IMPLEMENTATION development works and – from the site planning
perspective – the identification of bottlenecks and
Reconstruction work in response to the 2021 fire inci-
opportunities to improve overall access, fire breaks
dent took over a year given the caseload of over 10,000
and drainage networks.
shelters, compared to only three months after the 2022
incident of 373 shelters. The site planning period was also • Clear frameworks and approvals: After the second
substantially longer in response to the 2021 fire (three fire incident – building on experience from the
months compared to two weeks), though site planning and previous one – advocacy efforts to obtain clear-
reconstruction proceeded simultaneously (the site plan- ance from the government on replanning and shelter
ning team was almost the same size for both responses, reconstruction resulted in timely instruction from the
despite the difference in scale). government on shelter size and the endorsement of
the planning approach – which enabled a more coor-
After the first fire incident, the implementation of larg-
dinated response.
er-scale priorities such as the creation of new access roads
(which double as fire breaks) and slope stabilization worked • Reconstruction phase: The affected area was divided
well, contributing to long-term hazard mitigation in the area. into zones (each one assigned to one shelter partner
Moving from comprehensive replanning to a ‘row-by-row’ – or rows) to facilitate the quick reconstruction of
approach allowed Shelter and Site Development teams shelters. Plots were categorized as follows to indicate
to implement quickly while securing local improvements. whether shelter construction could be started:
Though the indicative site plans provided some guidance to i. Plot is ready for shelter construction.
the teams on the ground (for instance, as to areas where
additional latrines were needed and might be best placed), ii. Plot requires site development work before recon-
struction or not.
they also at times created confusion and even the risk of
forced relocations when plans did not match spontaneous iii. Community agreed to the site plan or consultation
community-led reconstruction. It would have been prefer- in process.
able to abandon the indicative plans once it became clear In parallel, site development work was done to prepare
that the more ambitious replanning approach was not plots for shelter and WASH facilities. Door-to-door
feasible, as the developing of these plans also absorbed site community consultations with site plans were done
planning resources that could have been better used in the through shelter partner and site management through the
field. implementation period to validate the plans and integrate
eventual changes.
A map of the ‘Existing Access Network’ with network bottlenecks prepared in Site development work of reconstruction of bamboo slope stabilisation and
order to address them by replanning. (Second fire response, January 2022). access carried out by people engaged in Cash for Work, February 2022.

(Left) Re-planning of the fire affected areas focused on access and drainage, amongst others. (Right) View of the reconstruction phase with emergency and transitional shelters.
COMMUNITY ENGAGEMENT COORDINATION
Intensive community consultation was carried out following Overall coordination at the field level during fire incident
both incidents: response was conducted through regular meetings to
share information, set priorities and avoid duplication with
• After the first incident (2021), the Communicating
all sector focal points, partners, and government represen-
with Communities (CwC) team had multiple discus-
tatives. Instruction to partners regarding site plans after
sions with community groups at the ‘maji-block’
the second fire incident (facilitated by joint technical visits
level (around 100 families) in the weeks immediately
and participatory planning) reduced gaps in coordination
following the fire, aimed at understanding the priorities
and enabled a unified approach to reconstruction.
of the communities and their willingness for replan-
ning and redeveloping the area. They were supported
by the Site Planning team, who produced indicative DISASTER RISK REDUCTION
plans for them to use as the basis of discussions. The Unplanned construction, the narrowing of waterways and
community was initially very willing to engage in the hill cutting accompanied by increasing demand for new
process, but this was challenged first by the delay construction in a monsoon climatic area pose great risks of
in confirming the approved shelter size and then by landslide, flooding, and fire hazards in the camps of Cox’s
the size itself, as it was significantly smaller than the Bazar. A total of 81,894 m2 of slope stabilization for plot
community deemed acceptable.
preparation, 8,638 linear meters of vehicular roads, path-
• After the second incident (2022), community consul- ways, stairs, and bridges and 12,958 linear meters of drains
tation took place from the initial assessment and data were reconstructed after the major fire incidents which
collection stage, and community demands on access, contributed to mitigating landslide and flooding risk and
drainage, and WASH were incorporated priori- reinstate and improve access. The improvement of road
tizing the needs of Persons with Disabilities (PWD) and pathway networks is particularly important to create
or Extremely Vulnerable Individuals (EVI). Group fire breaks, facilitate the access of the firefighting response
sessions and door-to-door consultations took place and improve evacuation routes in case of emergency.
throughout the implementation period and site plans
were continuously adapted. MAIN CHALLENGES
• Limitations of the re-planning: Considering the

context in the fire affected camps – in hilly areas with
high density and the requirement to accommodate
back all affected households in the same area and the
limitations imposed in terms of shelter typology and
materials, the capacity from the replanning carried out
to improve the networks and site plans was reduced.
Opportunities were identified and locations where
the replanning could lead to bigger improvement were
prioritized.
• Timing: Though the field-based process helped coor-
dination efforts – the need to provide site plans before
the shelter reconstruction forced the teams to work
The Communicating with Communities (CwC) team enagaged with the quickly, and site plans were to be delivered within
community groups to understand their needs and priorities, which helped the seven days. In some locations, slope stabilization
Site Planning team to develop the plans for replanning.

• efforts were needed prior to shelter reconstruction. • out on their plots. This delayed the process and
The affected area was thus divided into zones and site further discussions were needed, which prevented
planning activities began in parallel so that all partners some planned improvements.
could operate simultaneously where needed. improve-
ments.created opportunities for plantation. WIDER IMPACTS
• Data availability: Family data from fire-affected house- Improved living conditions through replanning (reduction
holds were outdated and there were no spatial refer- of bottlenecks for access and drainage) and increasing the
ences to the data. During community consultations, number of WASH facilities by 19 percent (2nd fire inci-
some community members presented borrowed dent) were primary outcomes of the project. Improved
family counting number cards to receive bigger shelter/ accessibility ensured safe movement and access to facil-
plot allocations. Later, family data was updated, assis- ities – especially for Persons with Disabilities and EVIs.
tance delivered and planning done according to real This created further emergency evacuation routes while
household size. improvements to the drainage network helped flood miti-
• Social context: In some cases, the host community gation and ensured the safe discharge of grey water and
resided next to target refugee households. In some rainwater by preventing water to get inside shelters. Slope
instances, during replanning and plot preparation stabilization works contributed to overall safety from
activities, host community members did not allow the land erosion of shelter and facilities plots, and access and
works for slope stabilization and access to be carried created opportunities for plantation.
© IOM Bangladesh
A view of Camp 9 after the reconstruction in April 2022.
√ Integration of lessons learnedt and change on plan- x Planning timeliness and rigidity of approved plans.
ning modality. On-site planning, together with shelter, A comprehensive replanning effort takes time, while
WASH, Site Management and Site Development reconstruction efforts happen quickly – limiting a
(SMSD) field teams helped reduce gaps in communi- plan’s capacity to guide reconstruction. This was the
cation, enhance understanding of priorities, encourage case after the first fire incident where the develop-
community feedback, and reduce the gap in site-plan- ment of the plan took longer (due to the lack of clarity
ning and implementation. on the shelter size approved and scale of the incident).
√ Community messaging and consultation: Community
As a result, the final plan approved by the government
messaging and consultation played a key role in the did not reflect the situation on the ground and, in
implementation of the site planning and reconstruc- some instances, led to relocations of reconstructed
tion activities. Community consultations were done shelters to make space for WASH blocks according to
through several phases, such as during preliminary the approved plan.
community messaging on the steps for shelter recon-
struction and the purposes and modalities for re-plan-
ning, during door-to-door consultations, during valida-
tion of site plans, and implementation.

LESSONS LEARNED
• Agreeing on the process and setting parameters. Any delays in setting the parameters for replanning will
render substantial replanning impossible, as communities will take matters into their own hands. A context-spe-
cific Standard Operations Procedure for fire response and reconstruction defining the roles and responsibilities
across different sectors and clarity on government approvals and limitations is key to facilitate the process.
• Risks of the enforcement of site plans. Implementing organizations should avoid the production of rigid
site plans for government approval, especially if substantial replanning may not be possible. The extent of
realistic site planning and further adaptation through community consultation should be clarified to relevant
authorities.
• Prioritizing planning at different scales. The cost/benefit of the replanning needs to be assessed, as reconstruc-
tion on the ground cannot wait until thorough and comprehensive site planning is completed. Some replanning
components such as facility rationalization and decongestion require lengthy procedures which may be too
ambitious during a quick response. If the scale of the fire is large, it may be preferable to prioritize replanning
larger-scale infrastructure such as access roads and priority facilities – identifying more strategic opportunities
for improvement in networks while not defining in detail the plot in some pockets or areas where, considering
the topography or the context, little benefits or improvements can be achieved with replanning.
• On-site planning and securing space for key infrastructure early on: Joint technical field visits and on-site
planning with all stakeholders decrease gaps in coordination and time needed for replanning while enabling a
more participatory approach. Hand-drawn site plans were a useful tool, which allowed consultation and flexible
changes on the ground to ensure that alterations are consistent with reality and topography. On the contrary,
a desktop planning approach required time-consuming data collection in the field to guide decision-making for
planning and is less flexible to integrate changes and inputs from consultations. Some preparation in terms of
analysis of existing networks, hierarchy, and opportunities should be done from the desktop prior to on-site
planning sessions and as early as possible in coordination with partners.
• Ensuring participation. To facilitate participation, door-to-door consultations, and group discussions were held
to collect updated data on family size. This was important to ensure that the allocation of space and support
to each household was accurate and fair, according to agreed-upon standards.
• Increased Participation. With more resources in terms of

community mobilization and consultation, it could be possible
to be more ambitious on the possibilities for re-planning to
achieve more significant improvements on the layout and facility
coverage. This would require participatory planning sessions
with communities which could be integrated in the re-plan-
ning process and would need dedicated sessions with different
community groups (women, community leaders, etc.).
• Strengthened Advocacy. Further advocacy on double story
shelter and improved facility coverage could allow for more
improvements through replanning. In the Cox’s Bazar context

this might not be feasible considering approvals however in
other contexts can be considered and would benefit the replan-
ning outcomes.
Reconstruction of the fire affected shelters in Camp 9
through Cash-for-Work.
On Bangladesh: B.1 / BANGLADESH 2009; B.2 / BANGLADESH 2007; A.13 / BANGLADESH 2017–2018;
On site planning: A.9 / SOUTH SUDAN 2018; A.26 / IRAQ 2016–2017; A.18 / NIGERIA 2015–2016
On fire responses: A.38 / CHILE 2014-2016

ASIA-PACIFIC A.16 / CAMBODIA 2018-2021 / DISASTER PREPAREDNESS DISASTER
CASE STUDY CAMBODIA 2018–2021 / DISASTER PREPAREDNESS

KEYWORDS: Conditional cash transfer, Disaster Risk Reduction, Infrastructure, PASSA
PROJECT LOCATION Battambang province, Cambodia Laos
PEOPLE SUPPORTED 42,270 individuals directly supported Thailand

BY THE PROJECT
82,556 individuals indirectly supported
BATTAMBANG
48 Participatory Approach for Safe NORTHERN
BAHR EL
Shelter Awareness (PASSA) groups with 415 GHAZAL
WARRAP
members (257 females), were formed and trained on
WESTERN
the approach BAHR EL JONGLEI
GHAZAL
48 disaster action plans were developed, and LAKES
PHNOM PENH
PROJECT OUTPUTS
30 community projects were implemented
WESTERN
42 urban informal settlements leaders received EQUATORIA
EASTERN
Vietnam
EQUATORIA
CENTRAL
Training of Trainers on housing policy EQUATORIA
1,052 individuals were trained in housing-
related policies
1,669 individuals attended awareness raising Gulf of Thailand
events
DIRECT COST
USD 360-3,900 for each of the community
projects Project Location
PROJECT SUMMARY
The project focused on reducing the vulnerabilities to disaster risks and enhancing the response capacity of the communities living in informal
settlements in Battambang city, most of which were set up in areas with high risks of flooding, landslides, windstorms, and fire. Through the Participatory
Approach for Safe Shelter Awareness (PASSA), groups were formed in different settlements involving the communities, and other governmental and
non-governmental stakeholders, for the development of Disaster Action Plans. Following the plans, 30 community projects were implemented with
the resources mobilized by the project.
1 2 3 4 5 6
HANDOVER
PROJECT
CONTEXT
TIMELINE APR MAY JUN JUL AUG JAN FEB MAR OCT NOV DEC JAN FEB MAR APR MAY JUN
2018 2019 2020 2021
1 Aug 2018: Introducing the project to relevant stakeholders and

project partners.
© Habitat for Humanity Cambodia/Sorng Bunna
2 Aug–Dec 2018: Initiating and introducing the approach in the

target communities of the project.
3 Jan 2019–Dec 2020: Forming of the groups in the target villages

and building of their capacity.
4 Mar 2019–Apr 2021: With micro-grant support, the groups im-

plemented their community-based Disaster Response, Recovery
and Restore-oriented projects.
5 Oct–Nov 2020: Part of the group’s scope of work, they mobi-

lized the resources to respond to the flood crisis.
6 Apr 2021–Jun 2021: The project’s final evaluation was undertak-

en and documented. Participants of the PASSA groups played an integral role in the community-de-
signed plans.

DISASTER A.16 / CAMBODIA 2018-2021 / DISASTER PREPAREDNESS ASIA-PACIFIC
CONTEXT Most of them consisted of tiny wooden houses without

access to water or proper sanitation services. Many house-
Cambodia is one of the most disaster-prone countries holds were living without land titles in areas where author-
in Southeast Asia due to hazards such as floods, storms, ities could carry out relocations if the land was needed for
typhoons, and cyclical droughts, which frequently result in development. Many households’ livelihoods depended on
significant economic and social impacts. Poor rural areas work in small local businesses such as street food vendors,
and urban informal settlements in Cambodia bear the motor taxis, or household labor.
brunt of these hazards and continue to experience crip-
pling challenges due to poor adaptive capacities, which In late 2020, tropical storms resulted in severe flooding
are worsened by the negative influence of climate change. in Battambang province. Most residents living along
Shelter and settlement risks and vulnerabilities are also the Sangker River experienced damage in their houses,
increasing due to changes in disaster trends, the impact of as well as in the roads and drainage systems. A total of
climate change, growing social and economic marginaliza- 66,088 households were affected, and 4,592 of them were
tion, and the impact of the process of urbanization. displaced, struggling to access clean water and hygiene
during the evacuation, which exacerbated tropical illnesses
Informal settlements in the developing world are increasing among the displaced. The Government distributed food
in number and worsening in living conditions in the face of and cash and coordinated with humanitarian partners for
overpopulation, economic instability, and unprecedented complementing the provision of food as well as WASH,
climate variance. In Cambodia, cities act as powerful NFIs, and shelter kits.
magnets for rural populations who lack local opportuni-
ties and who seek to achieve prosperity for their imme-
diate and future generations. However, these cities fail to
provide basic needs and services for increasing numbers The implementing organization has operated in Battambang
of internal migrants. In Battambang City alone, the munic- since 2007. Before the 2020 flood event, the organiza-
ipality recorded in 2018 that 2,586 households were living tion implemented housing, WASH, and urban develop-
in 34 informal settlements, which had been set on public ment projects in the area. Through its people-centered
lands such as road edges, railways, riverbanks, and canals, approach, the organization partnered with vulnerable
and therefore without any tenure security for the inhabi- communities who raised (through a feedback mechanism)
tants., Like many secondary cities, Battambang suffers from increasing concerns for disaster risks, as the areas they
a land deficit, and accessing decent housing is not only diffi- lived in were along the Tonle Sap River where flooding
cult but economically unfeasible for the urban poor. was recurrently experienced. As responding to disasters
Battambang is one of Cambodia’s largest provinces. It is was part of the strategic priorities of the organization, it
located on the northwestern side of the country and is designed a project aiming to strengthen the capacities of
comprised of interconnected landscapes and watersheds poor urban households who experienced crippling chal-
that provide essential ecosystem services to the region. The lenges due to insufficient adaptive mechanisms worsened
province relies on the Sangker River, which served as the by the negative influence of climate change. Women were
primary foundation for city and agriculture development. likely more vulnerable due to cultural normative respon-
Battambang City consists of ten Sangkats (or districts) and sibilities such as securing water, cooking, and taking over
92 villages with approximately 196,709 residents. Urban household activities and sanitation practices. The project
regulations have often failed to keep up with rapid urban- adopted a Participatory Approach for Safe Shelter
ization, leading to a heterogeneous urban fabric. Awareness (PASSA) to promote disaster risk reduction.
Several informal settlements were set along the Sangker

River and railway, in areas prone to landslides and flooding.
© World Habitat
© AFP Photo
A flooded village in Cambodia’s western Battambang province, following heavy Increase of informal settlements in Phnom Penh, and rest of the country, consisting
rains in the region, October 2020. of makeshift housing, lack of land security and services, and poor sanitation.

Strengthen disaster risk management capacities savings activities based on financial management training
of local communities, especially first line provided by the implementing organization. The project
Goal team assisted the groups on the development of proposals
responders, in the most vulnerable urban poor
communities in Battambang Municipality. and community action plans and provided government-re-
Increased Community Participation in quested documentation.
decision-making and management of disaster
Outcome 1 Training on the minimum Construction Quality Standards
preparedness and reducing vulnerability
concept was provided to all groups to enhance awareness
through the PASSA approach.
of the implementing organization’s construction policies.
Increased Capacity on Land Frameworks and Before any housing construction‑related work through the
Outcome 2 National Housing policy among the community micro-grant began, the project’s construction supervisor
and local authorities. reviewed the design and trained the monitoring committee
to conduct independent monitoring.
Under Outcome 1, the project aimed to tackle disaster
concerns such as flooding and landslides while raising
awareness about disaster preparedness and response in The project formed 48 PASSA groups in the urban
61 poor urban communities (railways, riverbanks, drainage Battambang province comprised of 415 members (62% of
canals, and public state lands). Under Outcome 2, the whom [or 257 in total] were female). Two of the groups
implementing organization partnered with the Ministry were led by Persons with Disabilities. Each member was a
of Land Management, Urbanization and Planning, and a representative of the community – including local leaders,
National Policy Specialist to build the community’s capacity authorities, Persons with Disabilities, youth, the National
and knowledge in topics such as social land concession, Committee for Disaster Management (NCDM), and local
urban framework, and housing policy. Youth, individuals NGO partners. Team leaders in each group were voted by
from the community, and local authorities who joined their members.
the training played an essential role by advocating with
the government for implementing upgrading works in the The implementing organization provided group coaching
informal settlements. and monitoring on proposal development and grant
IMPLEMENTATION

The project was implemented in coordination with author-
ities at different levels - Municipality, Province, and Ministry
as well as universities and other stakeholders.
Through the PASSA approach, the project aimed to
strengthen the resilience and safety of urban informal
settlements in Battambang City by implementing a shelter
and settlement improvement plan to enhance the disaster
preparedness capacity of vulnerable communities. PASSA
groups in the communities were formed and empowered
to lead and coordinate processes independently. These
groups were comprised of five units (construction, savings,
monitoring, budget management, and case management) Training was provided to the groups to identify main hazards in their commu-
and led during the development of action plans and group nity, which further contributed to the Development Action Plans (DAPs).
Community members attended various awareness raising events on DRR. Training on the PASSA approach to the selected groups, May 2020.

support to selected action. There were 30 micro-grants

distributed through the project to 30 groups, who had
identified the main eight hazards that their communities
© Habitat for Humanity Cambodia/PASSA Group

were susceptible to, including: flooding, landslide, fire,
windstorms, theft, the COVID 19 pandemic, lightning and
poor sanitation infrastructure and hygiene conditions.
After that, they elaborated Development Action Plans
(DAPs) to respond to the identified issues. The proposed
interventions included:
1. Renovating roads damaged by a flash flood.
2. Building a drainage system to prevent flooding.
3. Restoring water canals.
4. Installing fire extinguishers in communal halls and
schools. Damaged roads after the impact of flooding. The community projects imple-
mented included the renovation of roads, amongst others.
5. Installing solar panels for community lighting along the
streets. TARGETING
6. Providing COVID-19 kits to poor, vulnerable
households. A total of 34 informal settlement communities were iden-
tified as the most vulnerable to climatic shocks, living on
7. Housing repairs for poor, vulnerable households.
government and private land along rivers and roadsides.
8. Raising disaster preparedness and response aware- The communities included Persons with Disabilities,
ness in the community and building the capacity for women headed households, people affected by HIV/AIDS,
disaster mitigation. and older people with limited family support. The team
A total of 42,270 individuals, including 25,721 women coordinated the selection of settlements for the project
and 97 Persons with Disabilities (56 male, 41 female) with district and communal officials. During the verifi-
from 15,112 families benefited from DAPs that improved cation and selection process, the technical team visited
community living conditions. The average micro-grant communities to understand their needs and challenges and
amount supported by the implementing organization was conducted a resource mapping exercise.
USD 1,188 per DAP. In addition to funding supplied by During the assessment to establish the PASSA groups,
the project, the PASSA groups also mobilized funding from Battambang local authorities were engaged within the
their community members and the private sector, which group forming recruitment process, including its goal,
was an average of USD 230 per DAP. objective, target, and community engagement purpose.
The project team also consulted with the community at
different levels to collect their ideas and suggestions on
applying the approach in their settlements.
The project engaged with communities and local author-

ities through key communication flows such as outreach,
consultation, collaboration, and shared leadership. The
community participated actively in project activities,
including PASSA formation and training, proposal writing,
and implementing micro-grants. Primary knowledge and
skills were shared to contribute to project implementation.

A project signboard was installed as a complaint mecha-
nism box and an online channel was set up through an app
within the community for their members and authorities
to share information and provide and receive feedback.
The groups identified the main challenges in each commu-
nity and developed a proposal as a key action plan – in
consultation with local authorities – to address them.
Additionally, the groups played an essential role in tracking
and monitoring information at the community level –
assisting in creating coordinating communication mecha-
The project provided grant support to the groups to renovate the community’s nisms with government bodies, private sector actors, and
water drainage system.

different organizations to mobilize resources for prepared- -tation projects, and project participant tracking. However,
ness, response to, and mitigating the impact of disasters. the implementing organization developed remote moni-
The groups delivered the awareness raising of hazard toring tools at the field level. Groups were coordinated
prevention training among people in the community and using online apps to schedule meetings, provide progress
prepared each proposal to request micro-grants for the updates, and report on achievements.
implementation.
EXIT/HANDOVER
COORDINATION
Project staff promoted saving groups to sustain the DAPs
The implementing organization conducted a project on a longer term. Micro-grants enabled communities to
launch to provide a project orientation and information implement interventions of community development
on monitoring plans, objectives, and activities to commu- through the creation and management of DAPs, by iden-
nity members, local authorities, and local NGO partners. tifying issues, planning for solutions, and implementing
Collaboration with the Provincial Government was estab- them. Local authorities at the commune level acknowl-
lished from the start of the project. edged the groups’ organizational structure and terms of
reference (ToR) as they were considered community-led
MAIN CHALLENGES groups contributing to improving the living condition of
their different settlements.
Project sites became a hotspot for COVID-19. The
Government of Cambodia and local authorities strictly WIDER IMPACTS
banned mass gatherings – among other community events
– for several months during the project period. Hefty The project increased community participation in deci-
fines were imposed and those who violated the proto- sion-making in terms of disaster management and vulner-
cols were incarcerated. The project was also obliged to ability reduction through its PASSA groups. Each group
follow government protocols and was guided by the ‘Do assessed the levels of exposure and potential impacts from
No Harm’ principle to ensure the safety of participants adverse events at the community level, and engaged their
and staff. In response to this, challenges arose when field communities in proposing an intervention to mitigate the
monitoring had to be postponed, leading to further delays hazard. This increased their sense of responsibility for
of activities such as training, workshops, and individual disaster preparedness, leading to behavioral change within
coaching. To mitigate further delays and challenges, addi- the community and the development of settlement hazard
tional training was conducted for the staff to build tech- mapping. Other significant outcomes of the project were
nological capacities in relation to software and online tools creating safe spaces for women and girls through installing
for project design and monitoring. solar lights along the main roads and improving sanitation
facilities and practices for the community. Members of the
CROSS-CUT TING ISSUES savings group were also able to use loans to invest in family
livelihood development, shelter improvements (including
• Environmental Impact: Garbage bins with waste house repair and upgrade), and WASH improvements
disaggregation (organic waste, plastic waste, and solid (including clear water connection and toilet construction).
waste) and street solar lighting were included in the
Battambang Municipality also required the strengthening
proposals.
of multi-stakeholder involvement to develop a holistic
• Gender Equality: Approximately 60% of the project strategic development plan for the city. Consequently, the
participants were women, who joined project activi- implementing organization advocated for land allocation
ties such as meetings, workshops, training, and aware- and onsite upgrading for the most vulnerable households
ness-raising. The project provided women with equal in informal settlements. The implementing organization
opportunities to raise their voices and participate was involved in a governmental multi-stakeholder platform
in the community development plan. The project where issues could be raised concerning development
encouraged women to be leaders in their communi- plans on disaster risk reduction and preparedness.
ties – the project had 6 female led group leaders.
• Disability Inclusiveness: The project promoted
© Habitat for Humanity Cambodia/
the participation of Persons with Disabilities. Two

groups were led by people with disabilities and 25 (6
percent) of all participants trained were Persons with
Disabilities.
Sorng Bunna
TECHNICAL SOLUTIONS
During the COVID-19 pandemic, the project team faced

challenges with project monitoring, including information Communication mechanisms were establised with community members, local
collection, tracking progress on the micro-grant implemen- authorities, and local NGO partners from the start of the project.

√ The PASSA approach aimed to develop local capaci- x Rigorous documentation could have better included
ties to reduce shelter-related risks by raising aware- the engagement and impact of project participant
ness and developing skills within communities. In demographics (female participants, Persons with
the context of Cambodia, the implementing organiza- Disabilities, and the elderly).
tion moved from raising awareness and education to
an empowering approach through the further mobi- x A lesson-learned workshop would have allowed the
lizing of communities and rallying their participation, project to disseminate learnings and results of the
resources, and commitment as part of disaster risk project evaluation beyond its project partners.
reduction management, preparedness and response.
√ The project gave the community ownership of
project implementation and capacitated project
participants to manage their own projects to respond

to the needs of their communities.
√ The project constructively engaged with local
authorities in areas around disaster risk reduction,
land and housing solutions.
LESSONS LEARNED
• The project kick-off orientation with local

authorities was crucial, as they were engaged
in all work processes with specific plans and
schedules and for additional support.
• It is important to schedule frequent coaching
consultations with group leaders on micro grant
implementation to maximize potential support
and enhance a smooth DAP implementation.
• The remote monitoring capability helped accel-
erate the implementation plan while COVID-19
was impacting the project implementation.
Similarly, it boosted the technological capacity © Habitat for Humanity Cambodia/PASSA Group
of project staff, participant groups, NGO part-
ners and local authorities.
• Concerning the cash transfer program – future

projects should utilize the Minimum Expense
Basket (MEB) of the cash working group in
Cambodia and focus on five primary sectors
The project provided grant support to the groups to install solar street lamps
(Shelter, Education, WASH, Livelihood, and along the community streets, August 2020.
Health) during disaster response.
• Saving group funding support should be scaled
up for the affected communities.
• Similar projects should add a component and/
On DRR: A.15 / VANUATU 2018–2019; A.21 / MALAWI 2015-16
or activities addressing project participant
livelihoods to provide enhanced pathways to On conditional cash transfer: A.5 / ETHIOPIA 2019–2020
recovery.
On infrastructure: A.19 / IRAQ 2019–2021; A.16 / MYANMAR 2012

ASIA-PACIFIC A.17 / INDONESIA 2021 / EARTHQUAKE DISASTER
CASE STUDY INDONESIA 2021 / EARTHQUAKE

KEYWORDS: Community engagement, Gender mainstreaming, Housing repair and retrofitting, Training
CRISIS Earthquake
PEOPLE DISPLACED 95,157 individuals displaced* Thailand Vietnam
Cambodia
HOMES DAMAGED/ Philippines
DESTROYED 16,293 homes* Brunei
Singapore
WEST
PEOPLE WITH Malaysia SULAWESI Papua New
SHELTER NEEDS 65,172 individuals (average HH size of 4)* Guinea
Karampuang and Botteng village, Mamuju District,

PROJECT LOCATION
West Sulawesi Province
J A K A RTA
PEOPLE SUPPORTED
BY THE PROJECT 536 HHs Project Location Australia
- 67 houses retrofitted | 7 household toilets PROJECT SUMMARY
constructed | 2 community facilities renovated West Sulawesi Disaster Response (WSDR) project is a
- 232 HHs received community shelter repair kits | 150 housing repair and retrofitting project that focuses on
medium and light damaged houses after the earthquake in
HHs received hygiene kits | 80 HHs received PPE
PROJECT OUTPUTS 2021. The project developed participatory assessment tools
- 46 people received Community Based Disaster Risk
to gather related information such as building typology,
Management (CBDRM) training | 61 people damage spots, site safety, type of technicians needed, using
received basic construction training | 134 local resources and existing skill while introducing retrofitting
people received training on home improvements with ferrocement techniques through an encouraged women
participation in the construction implementation and project
SHELTER SIZE 25-45 m2 per shelter monitoring. A program was launched in collaboration
with other Shelter Sub-Cluster members involving the
participants throughout all the stages of the project, which
SHELTER DENSITY 5-9 m2 per person
was a model to respond to future disasters, especially in the
early recovery stage.
DIRECT COST USD 1,035
PROJECT COST USD 1,383 *Disaster Info: Issue 1, January 2021, BNPB
1 3 4 5 7 8 © AP Photo/Abdi Latief
2 6
PROJECT
PLANNING IMPLEMENTATION HANDOVER
CONTEXT
TIMELINE JAN FEB MAR APR MAY JUN JUL AUG

2021
15 Jan, 2021: An earthquake of magnitude 6.2 rocked Majene

and Mamuju District resulting in more than a hundred fatalities.
1 20-29 Jan, 2021: Rapid Response Team Assignment & Project
location selection.
2 25 Jan, 2021: Distribution of community rubble removal tools to
to clear debris and prepare site for transitional shelters.
3 1-31 Mar, 2021: Rapid assessment of damaged buildings, and de-
tailed engineering design development.
4 1-15 Apr, 2021: Durable shelter solution through customized re-
construction techniques.
5 15-30 Apr, 2021: Distribution of community shelter kit, hygiene
kit and PPE Covid 19.
6 1-31 Apr, 2021: Family selection.
7 1-30 May, 2021: Trainings and workshops on DRR.

An aerial view of a damaged building following the earthquake in Mamuju,
8 15-30 Jun, 2021: Construction, implementation and completion. West Sulawesi.

DISASTER A.17 / INDONESIA 2021 / EARTHQUAKE ASIA-PACIFIC
CONTEXT AND NATIONAL RESPONSE The project team assessed the areas most affected by the
earthquake, some of them on remote islands just accessible
A 6.2 magnitude earthquake struck West Sulawesi prov- through long boat trips, and conducted technical assess-
ince in Indonesia on 15 January 2021, resulting in 101 ments of the damaged homes using tools developed for
fatalities, 3 disappearances, over 95,000 people evacu- the project to determine the scope of the repairs needed,
ated, and significant damage to homes and infrastructure. materials, and works. Following those assessments, the
Typical home construction in the area used to combine a technical team decided to address the repair of the walls
timber-post frame with brick or infill walls which would using ferrocement, a construction technique introduced in
have no anchorage or connection with the frame or with Indonesia in the 1960s by Engineer Teddy Boen, who spent
crossing walls. Many of these walls collapsed due to the most of his life disseminating its adequacy for reinforcing
earthquake, while the timber frame often did not suffer the existing constructions. (See the dedicated piece to Teddy
relevant damage. Boen on page 193-94). The field assessments also verified
Initially, the government assumed assistance for families property documents for a preliminary selection of house-
whose homes suffered heavier or total damage, while holds to be supported by the project.
requiring that NGOs would assist those with moderate To accelerate the planning and monitoring process of each
and light damages. These were primarily homes where the activity stage, several open-source tools and applications
timber frame resisted, and retrofitting was needed mainly related to Information and Communications were intro-
on the walls. Some homes were clad in wooden plates duced for the use of the field staff.
instead of brick walls.
During the second stage, the government assigned USD IMPLEMENTATION PROCESS
3,200 as in-kind assistance for households with a totally i. Initial survey and shelter needs assessment to deter-
destroyed house, USD 1,600 for those with damage mine project location selection.
assessed as medium, and USD 960 for those with a lightly
damaged house. ii. Formation of village committees.
iii. Household selection and damage level verification.
iv. Public announcement of selected households.
The project’s initial activities consisted of rubble removal v. Technical assistance for households.
and the distribution of Community Shelter Repair Kits to
232 families in the first selected locations, as well as hygiene vi. Agreement with households on construction design
and BOQ.
kits to 150 households and COVID-19 PPE to 80 HHs,
before the repair of the first 67 homes began with the vii. Construction implementation and capacity building.
involvement of the homeowner. The Community Shelter viii. Evaluation.
Repair Kits included tarpaulins, shovels, hoes, crowbars,
etc. The training was organized for both homeowners TARGETING
(home improvement training, attended by 134 individuals,
both males and females) and laborers (basic construction The locations for the project interventions were selected
training, attended by 61 individuals. Community-Based based on the results of the field assessments conducted
Disaster Risk Management training was also conducted to for medium and lightly damaged households. The project
identify the community vulnerabilities and strengthen their focused its activities especially on Karampuang village, given
capacities through the learning captured from past events, the high needs identified and the fact that there was no
identifying potential hazards, and establishing response other organization providing repairs to damaged houses
teams to address future shocks. in the area.
© Bahtiar Yuda
© Suharman
Local youth communities helped transport the building materials from ship to Discussion meeting regarding the pre-construction implementation with the
beneficiaries’ homes. local committee members in Karampuang village.

The project team developed household selection criteria

together with the local village committee. It was agreed
to support the households (HHs) that would meet the
following conditions:
• HHs registered in the village and affected by the
earthquake.
• HHs not included in the government list of recipients.
© Suharman
• HHs whose house damage was assessed as either light
or moderate.
• HHs able to provide proof of land ownership through
evidence such as village certificates. The technical consultant presented the building technique in construction
training for homeowners and local builders.
• HHs with preexisting vulnerabilities (underprivileged
communities, widows, households with toddlers, Process of Ferrocement Construction
disabilities, or pregnant women).
• HHs willing to contribute, participate and assist in the
home improvement process and attend each meeting
and training held by the project.
1 2
The involvement of the community was key to ensuring
the adequate composition of the local committees. Each
household contributed some building materials where
possible and assisted the project staff during the project.
The local committee team undertook supervision func-
tions, while the project team managed the admin tasks and
oversaw the distribution of materials.
3 4
© Puji
© Suharman
5 6
1: Construction training; 2: First formwork; 3: Inner plastering; 4: Outer plas-
tering; 5: Outer plastering completed; 06: View of a completed room.
The community played a huge rule in the distribution of building materials.
Homeowners controlled the quality of materials that were distributed. COORDINATION
The project was coordinated within the Sub-national Shelter

Clusters, using the data provided by the Government of
Indonesia regarding the levels of damage in the affected
areas and the coverage of the Government-led response,
avoiding overlapping. The project reported all households
supported to the District Disaster Management Agency
and District House and Settlement Unit.
MAIN CHALLENGES
© Punjung
• Delays were faced in obtaining household damage data

from the government. The project team coordinated
Discussion meeting regarding the implementation process with the local with the Sub-national Shelter Cluster and followed up
committee members in Karampuang Village. closely until the data was shared.

• Project implementation coincided with the longer Eid sand, and wire were sourced from vendors in the city and
celebrations in the affected areas, limiting the avail- were transported first to a seaport before being moved
ability of the community and the laborers. The project to the island. The project established relationships/part-
team agreed with the donor an adjustment on the nerships with the private sector aiming to contribute to
timeline of the project to accommodate the limita- the local economy in a wider manner while preparing the
tions in the period. organization to react to similar crises.
• Due to recurrent high tides, accessibility challenges
were faced in reaching Karampuang Island for the EXIT/HANDOVER
distribution of construction materials. The project The exit strategy applied was to provide training on retro-
team coordinated closely with the village commit- fitting (ferro-cement) methods to the community. The
tees to determine the most suitable schedules for the method installed ferro-cement layers with chicken wire on
deliveries of the materials, in some cases utilizing local both sides of the wall, so that it is wrapped in a layer of
resident boats. ferro-cement to enhance durability when shaken during an
earthquake. This method was very suitable for the situation
GENDER MAINSTREAMING and economic conditions of the area. Through enhanced
knowledge of more durable retrofitting measures, the
The project team engaged in community consultations
community was able to utilize the practice in the construc-
on the possibility of involving women in the training and
tion and repair of homes post-project conclusion.
the construction activities, as in the traditional culture in
Mamuju such an approach was not common. As a result
of those efforts, a final ratio of 40 percent female and OUTCOMES AND WIDER IMPACTS
60 percent male was agreed with the community and
Direct outcomes:
respected during the project.
• A total of 536 households received Community
LINKS WITH RECOVERY Shelter Repair Kits, hygiene kits and COVID-19 PPE.
• 67 homes were repaired using the retrofitting
The project distributed Community Shelter Kits including
method, 241 were Community Based Disaster Risk
tarpaulins, shovels, hoes, crowbars, etc. to 232 households
Management, Basic Construction with the retrofitting
and later repaired 67 homes with the involvement of the
method, and Healthy Home Improvement Solutions.
homeowner. From the outset of the project, the same
location was targeted to bring the community through Indirect outcomes:
pathways to permanence, from the relief stage to the
• Community members have the capacity to utilize
recovery stage. In addition, the project coordinated with
retrofitting methods, develop disaster management
the government on an assessment to determine the areas
plans, and enhance gender parity in construction/
where the project would intervene during the recovery
repair activities.
period.
Wider Impacts of the project:
MATERIALS AND SUPPLY • Supported households identified that the improved
condition of their homes could eventually open liveli-
Supplies such as coconut wood for the house frame, wood
hood opportunities, such as a small business operated
for doors and windows, and stone for the foundations
from the house.
were procured locally in project villages. Cement, iron,
© Sadri
© Sadri
The Karampuang Village Community Hall before and after reconstruction. The project facilitated the community in Karampuang to the renovate two Community
Centres. The renovations were carried out using retrofitting and ferrocement methods, The renovation focused to improve better space, ventilation and lighting.

• Approximately 70 percent of respondents agreed that (where challenges in construction materials trans-
they would have a better chance to get a job and 77.5 portation were experienced). Because material trans-
percent of respondents agreed that they had better portation to this area relied on ocean currents and
opportunities to earn money after the project. the availability of boats, it took time to provide the
community with an understanding of participatory
• The project – and the retrofitting program in partic-
and retrofitting methods.
ular – received positive responses from local author-
ities and individuals in the Karampuang island area
© Bahtiar Yuda
A family outside their completed transitional shelter. 67 houses were retrofitted in total across the project.
√ Community Engagement. The project put people x The organization-centralized procurement and
at the center of the response as the main actor, and payment system was not flexible enough to accom-
community participation continued from the design modate a recovery project in a remote area with
phase to the conclusion of the project. limited internet and bank access.
√ Gender. The project enhanced female representation x Needs assessment planning did not properly factor
during all phases of the post-disaster recovery process. in the fasting period and Eid al-Fitr, delaying the
construction implementation period.
√ Durability. The retrofitting method enhanced the
strength and safety of non-engineered homes. x Financial limitations of the implementing organiza-
Retrofitting with ferro-cement can provide shelter tion inhibited the rental of additional boats to support
solutions for families who are unable to afford the material transport to Karampuang Island.
building of a house in compliance with the Indonesian
building code.

√ Livelihoods. The project used local laborers and

vendors. In some cases, individuals reached were able
to restart home-based entrepreneurship again after
house completion.
√ Suitability. Most households viewed home repairs
carried out through retrofitting and ferro-cement
methods as an easy and inexpensive way to make
home improvements that may be further developed.
This approach also empowered individual homes to
retrofit their homes to suit their own needs, rather
than forcing a one-size-fits-all solution across all iden-
tified households.
© Punjung
Construction training using retrofitting method (ferrocement) for women in
Karampuang Village.
LESSONS LEARNED
• Due to limited monitoring staff from the implementing organization and accessibility challenges, construction
monitoring was carried out by village committees and assisted by laborers and affected households. Via this
participatory monitoring process, homeowners’ and laborers’ capacity was enhanced regarding safer home
construction/repair.
• Retrofitting – in particular with the ferro-cement method – was initially considered strange by residents,
and the prevailing notion was that costly brick walls provided the most durability. Through the retrofitting
methods using the ferro-cement method, community shelter knowledge was enhanced, the durability of homes
increased, and construction costs were reduced.
• The project triggered the promotion of three webinars post-project completion and offline training with the
Mamuju District officials and the Karampuang community. Non-engineered homes remain widespread across
Indonesia, and the project could be upscaled to enhance communities’ resilience and involve broader shelter
practitioners. Technical guidelines and guidelines for villages to reach funding sources to construct more durable
homes should be promoted.
• Rapid assessments and planning should factor in community cultural seasons and/or events, especially in rela-
tion to livelihoods and activities that impact project schedule (ex. seasons when ships cannot be developed).
• While the procurement of material in large quantities is cost efficient, it is necessary to consider external factors
such as small capacity carriers and less spacious port capacity to unload shipments. This may be managed by a
committee or members of the affected community.
• There is a need to develop a participatory and inclusive monitoring model in the construction of housing
improvements, including the monitoring of gender and social inclusion.
• There is also a need for capacity building within existing local community organisations, such as Disaster Risk
Reduction forums.
• A strategy could be developed to integrate the strengthening of community livelihoods within the construction
and/or repair of community members whose livelihoods were affected by the crisis.

On Indonesia: A.13 / INDONESIA 2018–2020; B.5 / INDONESIA, JOGYAKARTA 2006; A.12 / INDONESIA, SUMATRA 2009
On earthquakes: A.18 / NEPAL 2016–2017; A.4 - A.11 / HAITI 2010; B.7 / INDIA 2001
On housing repair/retrofitting: A.24 / SRI LANKA 2017; A.34 / IRAQ 2015-2016; A.6 / HAITI 2012

ASIA-PACIFIC A.18 / MYANMAR 2021-2022 / CONFLICT CONFLICT
CASE STUDY MYANMAR 2021–2022 / CONFLICT

KEYWORDS: Coordination and partnerships, Emergency shelter; Transitional shelter, Wider impacts
CRISIS Rohingya Crisis India
PEOPLE AFFECTED 630,000 individuals approx.*

Bangladesh
PEOPLE DISPLACED
148,000 individuals displaced in Central Rakhine China
State camps** NORTHERN
BAHR EL
PAUKTAW
GHAZAL N AY P Y I D AW
PEOPLE WITH Laos
SHELTER NEEDS 24,075 HHs (137,884 individuals)*** KYAUKPHYU
WESTERN
WARRAP
JONGLEI
SITTWE
BAHR EL
PROJECT LOCATION Sittwe, Pauktaw, and Kyaukphyu Townships GHAZAL
LAKES
Thailand
PEOPLE SUPPORTED 8,580 HHs (47,190 individuals) supported with WESTERN EASTERN
BY THE PROJECT shelter reconstruction EQUATORIA EQUATORIA
CENTRAL
EQUATORIA
Project Location
1,050 longhouse shelters constructed in 2021
and 2022
PROJECT SUMMARY
PROJECT OUTPUTS 1,210 mega-tarps installed in 2021 and 2022
Shelter design improvement increased the lifespan of Following the 2012 intercommunal violence in
Rakhine State, over 130,000 people, including
shelters from 1 year to 5 years Rohingya, Kaman, Rakhine, and other groups were
displaced. While other groups have since been allowed
SHELTER SIZE 15.5 m2 per unit (124.7 m2 per longhouse shelter) to return or have been relocated, the Rohingya and
Kaman still remain in the camps. In these camps they
are deprived of basic human rights including access
SHELTER DENSITY
3.11 m2 per person (8 unit longhouse) to citizenship, freedom of movement, and livelihoods.
2.49 m2 per person (10 unit longhouse) In the face of significant challenges, the CCCM/
Shelter/NFI Cluster and its partners have overseen
a constantly evolving strategy to improve the quality
DIRECT COST
USD 8,200 per longhouse (USD 1,025 per HH) and design of longhouse shelters, and to ensure the
USD 140 per mega-tarp (USD 17.5 per HH) reconstruction of shelters using a multi-functional
approach that includes consistent advocacy for
both short-term and durable solutions, stakeholder
PROJECT COST USD 1,107 per HH (USD 9.5 million overall) coordination, and protection mainstreaming. This
case study looks at the implementation experience
*Myanmar, UNHCR and the strategic framework that guided the
**CCCM/Shelter/NFI Cluster, Rakhine State reconstruction of 1,050 longhouse shelters for the
***CCCM Camp Profiles, CCCM/Shelter/NFI Cluster, Rakhine State benefit of over 46,000 Rohingya and Kaman IDPs in
2021 and 2022.
7 8 HANDOVER 9
1 2 3 3 5 6
PLANNING PH 2
IMPLEMENTATION PHASE 1 AND 2
PROJECT
PLANNING PH 1
CONTEXT
CONFLICT
TIMELINE JUL AUG SEP OCT NOV DEC JAN FEB MAR JUL AUG SEP OCT NOV DEC JAN
1982 2012 2015 2016 2017 2020 2021 2022
Oct 1982: Burma Citizenship Law passed, effectively stripping 4 July 2020: CCCM/Shelter/NFI Cluster conducts annual compre-
Rohingya of the right to nationality. hensive shelter assessment of all longhouses.
5 Sep 2020: Cluster reviews and prioritizes shelters from the
1 Jun 2012: Intercommunal violence erupts across Rakhine state be-
assessment, works with CCCM household data to target and batch
tween Muslims and Buddhists. Over 130,000 people were displaced
shelters for reconstruction.
into sites and camps. Rohingya, Kaman, Rakhine, Hindu, and other
IDPs are placed by the government into central Rakhine camps. 6 Nov 2020: First version of Shelter Reconstruction SoP developed
to emphasise a multi-functional approach.
2 2015: IDPs of Rakhine, Hindu, and other ethnicities are allowed to
return to place of origin or are relocated. Rohingya and Kaman in 7 Jan 2021: The first pre-demolition meetings with community
camps remain there. members, CMCs, contractors, and humanitarian actors occur. They
re-occur on a rolling basis, batch by batch roughly every four weeks.
3 2016, 2017: A series of military ‘clearance operations’ in northern 8 Mar 2021: The first shelter handovers occur as the first batch of
Rakhine State result in the displacement of approximately 800,000 shelters is completed, this re-occurs roughly every six weeks.
Rohingya to Bangladesh. Those in central Rakhine camps remain
largely unaffected.camps. 9 Jan 2022: Second revision of Shelter Reconstruction SoP based on
lessons learned from 2021 implementation.

CONFLICT A.18 / MYANMAR 2021-2022 / CONFLICT ASIA-PACIFIC
CONTEXT These have the same footprint as an 8-unit design, thus

the space per household was even farther below SPHERE
The Rohingya ethnic group has faced decades of de facto standards at only 2.49 m2 per person on average.
and de jure discrimination in Myanmar. The Rohingya people
are from Rakhine State, which has historically experienced The basic longhouse is composed of eight rooms with
several waves of violence and displacement. Amongst the one allocated to each family. The outer area was planned
most significant was a wave of intercommunal violence as a kitchen space while the interior is a living/sleeping
between Rakhine and Rohingya communities in 2012. space. The interior ceiling was made of bamboo and the
This violence culminated in the forced displacement of at floor of solid wood while the interior walls are plywood.
least 130,000 people into camps for internally displaced Galvanized CGI roofing is used to mitigate roof deteriora-
persons (IDPs). By 2015 IDPs of Rakhine, Hindu, and other tion due to the wet tropical climate and damage from high
non-Muslim ethnicities were allowed to return or were winds during the monsoon season.
resettled by the de facto authorities, while the Rohingya
and Kaman were forced to remain in the camps. Before NATIONAL SHELTER RESPONSE
the 2012 violence, most of the Rohingya population lived
in downtown areas of major towns and cities or in rural The Cluster’s shelter response and strategy for Rohingya
villages comparable to those of other ethnic groups. and Kaman camps in central Rakhine is focused on the
overall situation of the camps, with a primary objective of
In Myanmar, still today, about 140,000 Rohingya and Kaman inter-agency advocacy towards durable solutions and camp
live across 21 camps with limited freedom of movement closure. However, the Cluster maintains that continuing
and continued exposure to longstanding protection risks life saving shelter assistance and construction activities are
including barriers to accessing basic services (livelihoods, necessary to minimize harm to the IDPs so long as they
education, and healthcare). Of the over 24,000 households are forced to reside in the camps without access to basic
in the camps, approximately 18,100 live in multi-shelter rights and access to desegregated services.
unit longhouses while approximately 5,900 live in self-made
or ‘makeshift’ shelters. PROJECT DESIGN
SITUATION AFTER THE CRISIS The primary goals of the CCCM/Shelter/NFI Cluster and
partners in Rakhine State in the context of shelter recon-
Longhouses are the only officially permitted shelter type struction in the camps were and remain as follows:
for Rohingya and Kaman IDPs in 17 camps. Current restric-
• To advocate for the expansion of camps to accom-
tions mandate that all longhouses must be temporary in
modate all IDPs in safe shelters that meet SPHERE
nature, and they were originally built to last one year. These standards until durable solutions are achieved.
light structures are primarily made of bamboo and rope
were extremely weak and vulnerable to cyclones. Over the • To ensure that shelter reconstruction activities are
years, the CCCM/Shelter/NFI Cluster and partners have monitored and implemented in a contextually sensi-
successfully advocated to gradually raise construction stan- tive manner that does not create secondary harm to
IDPs.
dards to include timber framing, flooring, and CGI roofing.
The current longhouse design was updated in 2021 and • To work with all shelter actors to develop and follow a
has an ideal lifespan of five years. common approach that mitigates the most significant
challenges and protection risks in the shelter recon-
Despite successfully advocating to improve the design struction process.
quality with the de facto authorities in Rakhine State,
• To carefully monitor reconstruction activities to
increasing the shelter’s footprint has not been possible. For
ensure high-quality shelters and to ensure to the
an average family of five, the space provided was well below
highest degree possible that IDPs have safe and digni-
the SPHERE standard of 3.5 m2 per person in the typical
fied living conditions.
8-unit shelter – only 3.11 m2 per person. Additionally,
there are several camps that have 10-unit longhouses. These guiding objectives frame the overall approach to shelter
construction in this complicated and constrained environment.
© Ye Ko Oo
© Ye Ko Oo
Damaged shelters in Sittwe Township camp, March 2022. Temporary makeshift shelters before reconstruction.

An excerpt of a shelter needs assessment map for Say Tha Mar Gyi camp in Sittwe Township, designating shelters in need of reconstruction (red) as well as batches
for reconstruction, June 2021.
IMPLEMENTATION 3. The revision of the longhouse shelter design following

meetings of the Shelter Technical Working Group to
REFLECTION
accommodate common requests from IDPs following
The Rakhine CCCM/Shelter/NFI Cluster bases shelter recon- an exercise of field visits and post construction feed-
struction on a participatory approach with protection at its back led by CCCM and Shelter. These included lock-
center due to the complex nature of the context. At the end able window frames for enhanced security, increased
of 2021, the Cluster and its members reviewed key lessons floor height for more usable under-shelter space, and
learned from previous years regarding common challenges clearly marked nut and bolt locations in shelter designs
and technical standards. This reflection resulted in three key to improve structural integrity.
outcomes:
PwSN IDENTIFICATION AND BATCH SELECTION
1. Cluster-endorsed Rakhine Shelter Reconstruction
The Cluster shelter unit maintained a master database of all
Standard Operating Procedures (SOPs) outlined the
longhouses, their reconstruction history, and their current
formal institution of a multi functional approach to
condition based on camp-wide annual shelter assessments.
shelter reconstruction and the different roles of key
This database is complemented with ad hoc data and veri-
humanitarian stakeholders including shelter teams,
fications. The master database was the central tool for
government liaisons, protection teams, and CCCM
shelter reconstruction coordination among shelter actors.
teams operating in the Rohingya and Kaman camps. The
Longhouses were grouped for reconstruction in geograph-
SoPs also provide context-specific guidance regarding
ically clustered batches to balance practical criteria related
the construction and monitoring process, stake-
to household vulnerability and logistical considerations.
holder management, and camp-specific environmental
Shelter batches were referred against the CCCM house-
concerns.
hold list and cross-checked with Protection actors to
2. A focus on monitoring households during the time identify Persons with Specific Needs (PwSN). The prior-
they must live in temporary makeshift shelters while itization of shelter batches was based on a combination
their shelter is being constructed. This led to a policy of of shelter conditions in a batch, and the amount of PwSN
increased coordination between CCCM, Shelter, and living within the group of shelters.
Protection actors during implementation, and the stan-
This system allowed for practical prioritization criteria that
dard provision of padlocks and keys prior to demolition so
was considerate of IDP needs and could easily be explained
IDPs could lock their temporary shelter and use the lock
to IDPs or other camp level stakeholders when questions
again for their new shelter when it is complete. This also
arose about why some shelters were being built before
led to a greater overall physical presence of humanitarian
others. The explanation of the system often had an effect
actors monitoring shelter reconstruction and enhanced
of reducing tensions with IDPs or other stakeholders who
communication with communities (CwC) practices.
were upset that certain shelters were not being rebuilt first.

PRE-CONSTRUCTION COMMUNITY ENGAGE- MEGA TARPS

MENT AND PROTECTION MAINSTREAMING
For shelters that will not be reconstructed during the year
After shelters were batched and prioritized for reconstruc- but were in a significant state of deterioration, the Cluster
tion, a meeting was called with all concerned stakeholders lead agency provided and assisted in the installation of
including community leaders, IDPs, contractors, and rele- ‘mega-tarps’. These were locally cut and heat-pressed long
vant camp-level humanitarian actors including CCCM and rolls of standard tarpaulin that were reshaped into a 15m
Protection agencies prior to the demolition of each batch. by 12m piece that could be installed securely over the roof
In these meetings, the shelter agency reviewed the recon- of an entire longhouse. Field testing showed high IDP satis-
struction work plan, the labor rights of IDPs, conditions and faction and a lifespan of over one year. The tarps helped
policies on the use of materials from demolished shelters, provide temporary coverage to shelters not marked for
the contractors and their key staff, and referral pathways immediate reconstruction and keep families living in those
for complaints and feedback related to the reconstruction shelters dry through the rainy season. The ‘mega-tarps’
process. Protection actors then reviewed sexual exploita- are often used following reconstruction to roof tea shops,
tion and abuse (SEA) policies with meeting participants markets, and other structures in the camps.
and reporting mechanisms for protection-related issues
that may arise, including gender-based violence. Time was
provided for meeting participants to ask questions so they
could be answered by all concerned stakeholders.
These pre-construction meetings are an essential part of
the process as they allow all information to be simultane-
ously shared with IDPs, Camp Management Committees
(CMCs) appointed by local administrations, contractors,
and camp-level humanitarian service providers. This has
helped ensure there wasn’t confusion between various
stakeholders and limited the ability of influential individuals
or groups to present misinformation during the project
© Nay Lin
that could lead to extortion or abuse of power.
Separately, to further mainstream protection – ‘Do
No Harm’ trainings were conducted with construction A shelter team inspects ongoing construction works, September 2021.
company members and Camp Management Committees
(CMCs) ahead of the reconstruction project.
During the rainy season, tarpaulin and rope were also
provided to households undergoing shelter construction
shortly after pre construction community meetings to help
extend or maintain the temporary makeshift shelters IDPs
made with materials from the demolished old shelter.
CONSTRUCTION
Once shelters are demolished, reconstruction begins.
Throughout the reconstruction process, engineers
© Ye Ko Oo
conduct weekly monitoring visits in each camp to ensure

quality control. Attention to detail during this process was
essential, and specific feedback down to the level of indi- ‘Mega-tarps’ used to cover shelters not marked for reconstruction ahead of
vidual posts and bolts was given for contractors to correct rainy season.the project, June 2022.
following the regular checks. Items marked for improve-
ment or correction are noted and followed up with on
subsequent visits.
While construction was ongoing, Protection actors carried
out regular focus group discussions (FGD) and monitoring
of households in temporary makeshift shelters. Results
from FGDs and field visits were communicated to other
humanitarian agencies and stakeholders. This helped in
understanding the needs of the community during the
shelter reconstruction process with an age, gender, and
© UNHCR
diversity (AGD) lens. This monitoring also allowed for the

rapid referral of protection cases and issues as they were
identified. The reconstruction work incorporated pre-cast footings for extending the
lifespan of the timber frames, while improving the anchorage of the building
to the ground.

MAIN CHALLENGES and the provision of durable and sustainable solutions for
the IDPs, including camp closures done in a consultative
Access to project sites and permissions: Accessibility and participatory manner and the guarantee of human
in Rakhine State, like the majority of Myanmar, is highly rights for IDPs after camp closure. However, given that
unpredictable and subject to decisions of the de facto the short-term environment in Myanmar is not conducive
authorities. Permissions were issued monthly, and situa- to durable solutions, if people are subject to living in the
tions where access and permission to continue reconstruc- camps it is part of the humanitarian imperative to ensure
tion was revoked or stalled mid-project were common. safe shelter conditions and to advocate for the improve-
This resulted in delayed construction, and IDP households ment of the shelter and camp situations that are below
having to live in temporary makeshift shelters for longer SPHERE standards.
than originally planned. Mitigating these challenges required
robust advocacy from the Cluster system, UN organiza-
tions, and coordination between the government liaison
departments of different humanitarian agencies. Clear and consistent advocacy from the CCCM/Shelter/
Stakeholder engagement: Camp Management NFI Cluster since the establishment of the camps in 2013
Committees, alleged landowners and other camp level led to increased shelter quality standards for those living in
stakeholders could at times act as challenges by blocking the longhouse shelters, with the permitted lifespan being
access at the camp level, interrupting activities, or in increased from 1 to 5 years. This advocacy also helped
extreme cases by engaging in physical violence in attempts in getting funding over the course of 2021 and 2022 for
to see their demands met. Continuing the practices of the construction of 1,050 longhouses. This has ensured
pre-construction community meetings, a focus on commu- safe shelters for over 47,190 Rohingya and Kaman IDPs.
nication with communities and the rapid referral of and Additionally, the Cluster’s adoption of a multi-functional
action taken for serious issues helped reduce the impacts approach to shelter reconstruction has helped mitigate
of these stakeholders. some of the major risks associated with activities, and
increased collaboration and communication with commu-
The economic context: Since the February 2021 mili- nities making the overall shelter reconstruction process
tary takeover, Myanmar’s economy has been in a state of more accountable and focused on IDPs. The experience
decline. The national currency (MMK) has rapidly depre- led to an enhanced relationship between operational
ciated, and the nation has been suffering a paper cash CCCM, Shelter and Protection actors, allowing them to
shortage and a banking crisis. This has directly impacted operate more effectively in their specialized roles, but with
shelter reconstruction with inflation, supply chain issues, a more collaborative and less siloed mentality. In parallel,
and humanitarian procurement and finance functions advocacy for Rohingya and Kaman IDP access to deseg-
affected in different ways. Shelter items prices in MMK have regated services and basic rights including citizenship and
risen by 20 percent, there are often material shortages and return to place of origin continues.
contractors require greater liquidity than ever to purchase
large amounts of material as up-front cash payments are
required and credit systems have ceased. Finally, payments
from shelter agencies to contractors are often delayed
due to strict banking regulations imposed by the de facto
authorities.
Durable solutions: The overarching goal for Rohingya and
Kaman IDPs is to return to their place of origin in a safe and
dignified manner, ensuring sustainability and access to basic
© UNHCR
rights and services (as per the UN Principles on Housing

and Property Restitution for Refugees and Displaced
Persons). In Rakhine, this would mean the closure of camps The reconstruction works included the replacement of the timber frame and
bamboo cladding elements of the longhouse.
© Ye Ko Oo
© Ye Ko Oo
(Left) A longhouse in Sin Tet Maw camp in Pauktaw Township before reconstructiom, September 2021. (Right) The same shelter in Sin Tet Maw camp after reconstruction in 2021.

√ Clear and consistent advocacy focused on needs: x Lack of beneficiary registration system could mean
Evidence based advocacy focused on IDP needs was misallocation of shelters: Due to the difficult envi-
generally successful in securing both the funding and ronment with de facto authorities and the nature of
permissions for shelter reconstruction projects. This the Rohingya context, IDPs have no formal registra-
allowed for the reconstruction of shelters to benefit tion. Buying and selling of shelters once completed is
over 47,000 IDPs. difficult to manage and can result in non camp resi-
dents living in the camp to receive assistance.
√ A multi-functional approach to shelter reconstruc-
tion increased accountability to and protection of x The camps do not have enough space for the current
IDPs: Standardizing coordination and roles during population, which forces people to live in unrecog-
shelter construction between Shelter, CCCM and nized makeshift shelters: Since no new space for
Protection actors improved project implementation shelters has been allocated by the de facto authorities
quality and helped mitigate protection risks during to the camp since their establishment 10 years ago
despite advocacy from the cluster, natural population
reconstruction.
growth has forced many outside of the longhouses.
√ Community feedback and practical concerns were Assisting these vulnerable households remains sensi-
incorporated into the shelter design: Over the tive since their shelters are not recognized as “official”
years, the Shelter Technical Working group incorpo- by the de facto authorities.
rated improvements to the longhouse design based
x Shelter construction in camps is not a durable
on direct feedback from IDPs and practical engi- solution to the Rohingya situation: The situation
neering concerns to make the shelters more resilient of the camps in central Rakhine is a manifestation of
to harsh weather conditions. IDP feedback has been violations against the rights of Rohingya and Kaman
overwhelmingly positive on the most recent designs, people. The ultimate objectives of humanitarians must
though advocacy will continue with the de facto be focused on camp closure and the achievement
authorities to attempt to meet SPHERE standards. of access to desegregated services and basic rights
including citizenship for the people. In the meantime,
shelter construction is a life saving service provided
as a gap filling measure in an attempt to meet a basic
need for a population confined.
LESSONS LEARNED
• A multi-functional approach to shelter reconstruction improves project implementation and mitigates

risks: Defining roles and focusing on clear and consistent coordination between all stakeholders involved in
shelter reconstruction resulted in a more efficient process that helps to mitigate challenges such as access,
communication with communities and protection risks.
• In complex environments such as the Rohingya and Kaman IDP camps in central Rakhine State, shelter
assistance must be viewed as part of the continuum towards durable solutions: The ultimate goal is camp
closure and access to desegregated services and access to basic rights including citizenship for the IDPs. Shelter
reconstruction is just one activity required from humanitarian actors to meet a basic need for Rohingya and
Kaman IDPs while they must live in camps. Given the protracted nature of displacement and the human
rights situation surrounding this IDP population, shelter interventions require constant reflection on balancing
possible effects on camp closure processes, impacts on short- and long-term protection concerns, and the
roles that humanitarian and non-humanitarian stakeholders have in the overall situation.
• Constant monitoring and oversight are essential to ensure quality, and systems need to adapt in real-time to the
context: Experience from shelter actors has shown that the best way to ensure high quality shelter reconstruc-
tion is constant monitoring of the construction process. Considerable effort and forethought must be put into
contingency planning for monitoring and inspection systems. When shelter actors have access to project sites,
regular field visits enhance the process and interaction with IDPs and labor groups are prioritized. However,
robust remote monitoring systems should be in place too and reviewed with relevant stakeholders before the
start of construction to ensure a smooth transition to remote modalities in the event of loss of access.

On Myanmar: A.1 / MYANMAR 2013–2016; A.16 / MYANMAR 2012; A.19 / MYANMAR 2008;
On reconstruction: A.18 / IRAQ 2018–2021; A.23 / SRI LANKA 2010–2016; A.38 / CHILE 2014–2016
On partnerships: A.2 / CHAD 2019–2020; A.16 / UKRAINE 2016–2021; A.40 / ECUADOR 2016

ASIA-PACIFIC A.19 / PHILIPPINES 2021-2023 / TYPHOON GONI AND RAI DISASTER
CASE STUDY PHILIPPINES 2021–2023 / TYPHOON GONI AND RAI

KEYWORDS: Diaspora engagement, Localization, Private sector enagagement, Structural assessment
Typhoon Goni/Rolly (Nov 2020) and

CRISIS
Typhoon Rai/Odette (Dec 2021)
Typhoon Goni/Rolly:
845,000 individuals affected*
PEOPLE AFFECTED/ 130,266 individuals displaced* NORTHERN
BAHR EL M A N I L A
DISPLACED GHAZAL
Typhoon Rai/Odette: CAVITEWARRAP
12 million individuals affected** WESTERN
BAHR EL JONGLEI
6,825 individuals displaced** GHAZAL
LAKES
Typhoon Goni/Rolly: WESTERN EASTERN

133,324 homes partially damaged*** EQUATORIA
CENTRAL
EQUATORIA
BOHOL
HOMES DAMAGED/ 37,449 homes totally destroyed*** EQUATORIA
DESTROYED Typhoon Rai/Odette:

1,704,086 homes partially damaged****
404,603 homes totally destroyed**** Indonesia
Pilot 1: Cavite, Philippines (2021) Project Location

PROJECT LOCATION
Pilot 2: Bohol, Philippines (2022)
PROJECT SUMMARY
PEOPLE SUPPORTED 15 female-led HHs (Cavite)
BY THE PROJECT
30 female-led HHs (Bohol) The project conducted a successful pilot programme in
the Philippines, providing retrofitting and loans for the
reconstruction and repairs to the houses damaged by
1 “Resilient Housing Loan” diaspora
Typhoons Goni/Rolly (2020) and Rai/Odette (2021). An
guarantor model developed with a Micro-Finance
innovative financial model was developed for this project,
institution for retrofiting houses
piloting the use of remittances from the U.S.-based
Orientation and trainings on Build Back Safer
Filipino Diaspora as an initial guarantee for obtaining
Shelter Practices to participants and micro-finance staff
PROJECT OUTPUTS microcredits from a local Micro-Finance Institution in the
45 shelters strengthened, retrofitted, Philippines. The implementing organization coordinated
and monitored through issuing of “Resilient the different stakeholders while promoting the use of
Housing Loans” (roof repair, floor renovation, wall safer shelter and disaster risk reduction construction
repair, ceiling strengthening, room partition, house methods (through training and the provision of technical
reconstruction, toilet room repair, etc.) assistance during the construction works) among the
female-led households selected for the programme.
SHELTER SIZE 20 m2 as per Sphere Standards
*Philippines: Super Typhoon Goni (Rolly) Humanitarian Needs
SHELTER DENSITY 4 m2 per person (average of 5 persons per HH) and Priorities (Nov 2020 - April 2021), OCHA
**Philippines: Super Typhoon Rai (Odette) - Situation Report No.
DIRECT COST
Pilot 1: USD 90 – USD 445 per HH 9 (As of 26 May 2022), OCHA
Pilot 1: USD 90 – USD 535 per HH ***Shelter Cluster Strategic Advisory Group Meeting for
Typhoon Rolly (November 2020)
****Shelter Cluster Strategic Advisory Group Meeting for
PROJECT COST
Pilot 1: USD 895 per HH Typhoon Rolly (November 2020)
Pilot 1: USD 980 per HH SOPs on Diaspora Engagement in Shelter Assistance
© Erik de Castro /AFP
Typhoon Goni/Rolly, one of the most powerful storms in 2020, left thousands displaced in Philippines with damaged homes, no drinking water, or electricity.

DISASTER A.19 / PHILIPPINES 2021-2023 / TYPHOON GONI AND ROLLY ASIA-PACIFIC
8 11 F G J K
1 2 3 4 5 6 A B D C I
9 10 E H
7 HANDOVER
PROJECT IMPLEMENTATION IMPLEMENTATION

PLANNING PLANNING
CONTEXT
TIMELINE NOV DEC JAN FEB MAR APR MAY AUG SEP OCT DEC JAN FEB AUG SEP DEC
2020 2021 2022 2023
Nov 2020: Typhoon Rolly/Goni hit Philippines amidst the 5 E Aug 2021, Aug 2022: MFI staff orientation and training.
COVID-19 pandemic.
6 F Sep 2021, Aug–Sep 2022: Selection of participants.
Dec 2021: Typhoon Rai/Odette made landfall on Dec 2021 in
7 G Sep 2021, Sep 2022: Participants orientation training.
southeastern Philippines.
8 H Sep 2021, Sep 2022: Loan disbursement to participants
1 A Jan 2021, Jan 2022: Diaspora engagement and project and material distribution.
conceptualization.
9 I Sep 2021, Sep 2022: Shelter construction began.
2 B Mar 2021, Jan 2022: Micro-Finance Institutions (MFI)
partnership selection. 10 J Oct 2021, Nov 2022: Final monitoring assessment.
3 C Apr 2021, Aug 2022: Loan manual review and finalization. 11 K Oct 2021, Dec 2022: Handover to the MFI.
4 D May 2021, Feb 2022: Site identification with Diaspora, MFI
and community members.
CONTEXT storms that struck between 2019–2020, causing signifi-

cant loss of life and damage to infrastructure including the
The Philippines is highly susceptible to natural hazards destruction of 56,000 homes that left 775,000 in need of
that affect the lives of local communities and subsequently humanitarian assistance. A joint analysis of disaster expo-
their global diaspora. Recent decades have shown how sure (JADE) conducted by UNOCHA and partners before
the impacts of climate change have led to increased Typhoon Goni determined that 68.6 million people lived
shocks, rising sea levels, land subsidence, precipitation, and in the exposed area, with 2.3 million persons in vulnerable
droughts. The Philippines’ vulnerability to natural hazards situations in the areas expected to be the worst affected.
requires the country to invest in significant preparedness,
monitoring, and response efforts to mitigate the impact of Furthermore, while minimum health protocols to prevent
disasters. COVID-19 transmission needed to be reinforced, poor
conditions in evacuation camps were also experienced due
The Filipino diaspora is extensively connected to their to a lack of WASH facilities, electricity, and cooking areas.
country of origin, and continues to contribute through The displacement led to the non‑cultivation of agricul-
humanitarian and emergency response interventions tural land (particularly rice paddies and corn areas), which
collectively and significantly. The Filipino diaspora is further threatened food security.
among the top ten largest in the world, with many living
temporarily or permanently abroad. As a middle income
country, the Philippines relies heavily on its agricultural,
industrial, and service sectors as well as diaspora remit-
tances. Considering the above, the project was piloted in
two communities, Cavite and Bohol, following the environ-
mental crises that struck the Philippines in 2020 and 2021.
Cavite is a province located directly southwest of Manila,
in the Calabrazon region, within Luzon. The province faces
significant economic risks due to geographical hazards such
as tsunamis, landslides, flooding, storm surge, and earth-
quakes. Bohol is a province located in the Central Visayas,
and is the tenth-largest island of the Philippines.
SITUATION BEFORE THE TYPHOONS

© Alfie Calingacion
Before Typhoons Goni/Rolly made landfall in November

2020, the Philippines was already combatting a multifaceted
crisis, including one of the highest COVID-19 transmission
rates in the Asia-Pacific region. Further, many communities
Over 2.1 million houses were damaged by Super Typhoon Rai/Odette, which
were still recovering from previous typhoons and tropical affected the livelihoods of many farmers and fishermen by destroying hundreds
of thousands of acres of coconut trees and crops, and damaged fishing boats.

ASIA-PACIFIC A.19 / PHILIPPINES 2021-2023 / TYPHOON GONI AND ROLLY DISASTER
SITUATION AFTER THE TYPHOONS
Typhoon Goni (known in the Philippines as Super Typhoon

Rolly) struck the Philippines on 1 November 2020 as a
Category 5 super typhoon, with wind gusts up to 280
kilometers per hour, one of the strongest landfall of a
typhoon on record. The storm killed over 6,000 people
and displaced over 130,000 individuals across eight regions.
The 19th storm to hit the Philippines in 2020, Typhoon
Goni exacerbated the limited coping capacities of those in
hardest‑hit regions. Priority needs include shelter, WASH,
nutrition, psychosocial support, and protection according
© Redentor Atanacio
to initial assessments.
Super Typhoon Rai, locally known as Odette, made
landfall in December 2021, and was the third strongest
storm recorded in the Northern Hemisphere that year.
The impact of Typhoon Rai spread across several islands, House rebuilding process in October 2022, after Typhoon Rai.
damaging infrastructure, compromising access to safe water
and sanitation facilities, and heightening the risk of commu- communities wanted to incorporate safe shelter practices
nicable disease outbreaks and exacerbating communities’ but did not have the financial means to bear such costs
vulnerabilities – especially during the COVID‑19 pandemic. upfront. Therefore, diaspora organizations were linked
Low-lying areas and vegetation farms along water tribu- with MFIs to bridge safe shelter funding gaps in vulner-
taries and dams were flooded. With homes and vertical able communities. This also diversified funding options for
infrastructures as well as other properties and crops affected communities by exploring alternative diaspora
affected, livestock, poultry, and agri-fishery damaged, Bohol funding mechanisms, which encouraged community self-re-
was declared under a state of calamity a day after the liance through a loan repayment model in comparison to
disaster struck, with a total of 290,593 homes damaged. the provision of grants/direct remittances.
NATIONAL SHELTER STRATEGY IMPLEMENTATION

With the approach of the typhoons, the Government DIASPORA AND LOCALIZATION: PRIVATE SECTOR
of the Philippines led pre‑emptive evacuations of over ENGAGEMENT
480,000 people in affected areas to protect persons
In partnership to leverage diaspora networks for safer
and infrastructure. After Super Typhoon Rai (Odette),
shelters of communities in the Philippines, the imple-
the National Disaster Risk Reduction and Management
menting organization, and a US-based Filipino diaspora
Council (NDRRMC) Operations Center reported a total
organization met to discuss how to increase access to safe
of 2,224,803 affected families, including 401 individuals
shelters through partnerships with MFI. Once the concept
reported dead, 1,261 injured and 65 missing. With this,
for a diaspora remittance loan model was developed, both
486 cities and municipalities declared a State of Calamity
parties sought an MFI partner.
(SOC), and two million homes were reported as totally
damaged. DEVELOPMENT OF RESILIENT HOUSING LOAN
With the scheduled national elections in May 2022, Through months of consultations and discussions on
non-permitted expenditures as part of the election ban, and the diaspora remittance loan model with relevant stake-
the change of leadership in almost all national government holders, the “Resilient Housing Loan” diaspora guarantor
agencies, no further actions have been further undertaken model was developed for retrofitting homes. The specifics
by the government towards recovery and rehabilitation of of the loan and the disbursement methodology were
the Typhoon Rai-affected populace. agreed upon, and Cavite was selected as the first pilot
community due to the number of homes damaged and
PROJECT DESIGN the strong presence of the MFI in this community. Due
to the success of the Cavite pilot, Bohol was selected as a
The project aimed to increase access to safe shelters for second pilot community in 2022 where both the number
vulnerable communities, both by: 1) increasing access to of participants and loan amount were increased to meet
safe shelter funding opportunities by working with Micro- rebuilding needs following Typhoon Rai. Since diaspora
Finance Institutions (MFIs) and by, 2) equipping MFIs and organizations needed to see proof of concept that this
loan recipients with Build Back Safer (BBS) knowledge loan model worked before donating their remittances,
through training and rebuilding evaluations by the imple- seed funding of USD 5,000 was provided to act as a dias-
menting organization’s shelter experts. While promoting pora remittance pool. This allowed for lower, fixed interest
the importance of disaster risk reduction (DRR) through rates (a key aspect of the loan) to be realized.
skills transfer and awareness raising, it was evident that

Participants could select loan amounts from USD 90-445 • Client Rating Assessment: MFI staff conducted an
in Cavite and amounts from USD 90-535 in Bohol, both internal review of the beneficiary repayment ability
for a period of three, six, nine or 12 months. of those selected during the vulnerability assessment.
The capacity to repay through a cash flow analysis,
METHODOLOGY along with meeting the vulnerability index was an eligi-
bility factor in beneficiary selection.
In addition to the aforementioned project planning, part-
nership building, and loan model development, the meth- • Technical Support and Shelter Assessment: The
odology of project implementation included: organizations’ engineers assessed the selected shelters
(all of them female-headed households) for ensuring
• Selection of participants via a vulnerability index. the adequacy of the loan figure to the shelter needs.
• Orientation and training on Build Back Safer (BBS)
shelter practices to micro-finance staff and partici- TRAINING AND ORIENTATION
pants (loan recipients).
To receive the funding for shelter materials, the project’s
• Fund allocation (direct to participants or direct to a participants were required to attend a one-day orientation
vendor); Material disbursement as applicable. session on DRR practices and BBS methods in collabora-
• Masons provided retrofitting services under provi- tion with the masons and laborers on hand. The training
sions and monitoring of implementing organization was led by the implementing organization’s engineers, and
engineers, who returned after completion to conduct MFI staff gave an overview of the loan package.
a final assessment. In parallel with training and orientation, participants
• Payment monitoring and diaspora (or seed funding accessed Information, Education, and Communication
from the implementing organization) guarantee (IEC) materials developed under the project as well as
disbursement, as needed. ongoing consultative support from construction experts.
The IEC material covered step-by-step instructions on
A total of 15 shelters in Cavite and 30 shelters in Bohol how to better construct shelters based on international
were strengthened, retrofitted, or rebuilt, with monitoring standards with risk reduction and resilience in mind. These
by shelter experts through the issuing of “Resilient Housing materials were referenced by participants and the MFI staff
Loans” (from roof repair, floor renovation, wall repair, and during the construction process.
ceiling strengthening to house reconstruction, etc.).
INCREASED RESILIENCE
TARGETING
Because the MFI staff were also trained on DRR and BBS,
The selection of participants was determined through a they were able to provide guidance to participants when
collaborative and consultative approach in a four-step performing regular check-ins that were more frequent than
process: monitoring provided by the organization engineers. This
• Diaspora strategy on-site identification: The dias- allowed for timely improvements and increased the capacity
pora organization assisted in the identification of of MFI staff to provide such guidance to their other members
vulnerable households with shelter needs through its and the community at large. Not only were participants
network and long-standing partnership with the MFI. supported by the MFI, but they also formed an informal
community among themselves for peer-to-peer exchange
• Vulnerability Assessment: The organization that brought benefits in other areas of their lives and live-
conducted a vulnerability and needs assessment of lihoods. Therefore, the training and partnerships cultivated
households within the two municipalities to deter- by the diaspora and the lead organization also empowered
mine the initial participants for the program. local actors such as the MFI and participants, contributing to
increased community resilience through localization.
45 shelters were retrofitted through issuance of the Resilient Housing Loans. Homes were repaired and upgraded with monitoring and assessment throughout.

ASIA-PACIFIC A.19 / PHILIPPINES 2021-2023 / TYPHOON GONI AND ROLLY DISASTER
FEMALE-LED RECOVERY • Creation of a micro-finance model that may be replicated

and scaled up to benefit other affected populations. The
Of the initial compiled list of participants, and based on project also provided inspiration for the use of dias-
the vulnerability index criteria, the project consisted of 45 pora resources to promote safer shelters and increase
female‑led households who retrofitted and rebuilt their community resilience beyond the 1:1 household level.
homes promoting restored livelihood means. Many partici-
pants utilize their homes for work, for example, hair salon, Consequently, this direct engagement led to increased
garment/sari stores, etc. awareness and the project received positive feedback
and the interest of several key partners, including dias-
MAIN CHALLENGES pora organizations, local officials (government of Bohol),
academia, and other micro-finance institutions.
Financial model innovation: The financial model devel-
oped in collaboration between the Filipino diaspora and SCALING UP IN THE FUTURE
project stakeholders was novel in its nature. Project part-
ners agreed that it would be necessary to implement a With the success of the first and second pilot phases,
successful initial pilot phase before eliciting diaspora funding another iteration of the project is currently under devel-
into the remittance fund. While this methodology allowed opment in the Philippines that will increase the scope of
for ensured transparency and awareness-raising among the the project. The loan model will go through several rounds
Filipino diaspora, it limited the pool of the remittance fund of revisions to accommodate the context and affected
during the first phase, with greater diaspora fundraising to populations’ needs, such as for preparedness rather than
occur in the second phase. Nevertheless, the guarantee in response to a recent crisis. The financial model will be
fund provided by the implementing organization lowered designed to adapt to crisis contexts and conditions with
interest rates and demonstrated beneficiary capacity to the hope of engaging national actors, additional local
make timely loan payments. The loan timelines varied from stakeholders (e.g., universities, masons, construction), and
3-12 months with loan payments at 12 weeks, 23 weeks, potentially other MFIs that are interested in scaling up this
35 weeks, 46 weeks, etc. methodology in other regions.
Limited capacity and resources: The pilot was imple- In this respect, a diaspora outreach and fundraising
mented at a smaller scale, with 45 households in total, campaign will be launched to support the funding mech-
to determine the viability of the financial model. The anism. Further, the project seeks to increase gender and
maximum loan amount was limited to PHP 25,000–30,000 protection mainstreaming and Age, Gender, and Diversity
(USD 440-550) depending on location, and the partici- (AGD) considerations from design through evaluation,
pant’s capacity for loan repayment, considering that smaller with a continued focus on women and girls (female-led
rebuilding loans will be piloted first. households) and the promotion of participation and
inclusion of community members – especially persons
WIDER IMPACTS in vulnerable situations. This includes building upon the
orientation training to include cross-cutting components
The project successfully piloted the loan model and on Mental Health and Psychosocial Support (MHPSS) and
multi-stakeholder partnership, garnering interest for future Gender‑Based Violence (GBV) risk mitigation in addition
iterations. to the inclusion of male household members where appro-
Specifically, the initiative led to several direct and indirect priate to increase buy‑in and support their efforts in the
impacts, including: construction. Moreover, the financial model will seek to
integrate ongoing, new BBS housing designs to ensure
• Access to finance for female-headed households, who, participants have options for sustainable and durable
in the absence of a diaspora’s guarantee might have shelter solutions.
not been able to request or be granted housing loans.
• Access to technical assistance during the retrofitting
process, which was instrumental to ensure that retro-
fitted homes met BBS standards and are consequently
more resilient to the effects of future climatic shocks.
• Increased local communities’ and participants’ capacity
thanks to their involvement in the retrofitting process
and exposure to BBS and DRR concepts and practices.
• Increased sustainability of shelters built and retro-
fitted, as participants were able to afford more sturdy

materials (e.g., concrete) rather than less expensive
materials that would need to be replaced over time
(e.g., coco lumber).
The initiative allowed female-heads of households access to finance loans.

√ By leveraging diaspora and local partnerships, this x While a client rating assessment during beneficiary
model provides a clear example of the importance selection was recommended by the MFI to lower
and impact of diaspora contributions towards disaster the risk of the pilot and ascertain initial viability, the
recovery and community resilience, and the benefit of assessment can impact the selection of the most
recognizing and strengthening the role that diasporas vulnerable members of the community. Future iter-
play as key partners in shelter response. Moreover, ations should explore other methods to ensure loan
this project highlighted a successful private‑public repayment to ensure that the most vulnerable in the
partnership to demonstrate the adaptive and unique society can benefit now that the pilots have proven
roles that diasporas can play in partnership with other successful.
non‑traditional local actor(s) towards the identification
x As this was an initial pilot, the scale was limited to
of alternative shelter financing and increased capacities
a small number of households. The narrow scale
for affected communities.
was imperative to test and ensure the viability of the
√ This loan model empowered affected communities project but meant that results and relative impact
to be directly involved in their preparedness, response, are subsequently limited. The overall visibility of the
and recovery contributing to a sense of agency that project was also low, as the proof‑of‑concept was
can be translated into longer‑term buy‑in and adop- being tested. Therefore, it should also be noted that
tion of practices. Repayment rates were high, with 42 the current scale of the project is cost-intensive, and it
households (93 percent) on schedule and two behind is key to understand how many households should be
on payments due to extenuating circumstances. targeted at a minimum to ensure cost-effectiveness.
Although the project was successful at a limited scale,
it is essential to understand to what extent the model
can be brought to a larger caseload.
LESSONS LEARNED
• Bridging the Community and Diaspora: Multiple stakeholders were engaged in the project, but the main
actors (diaspora and MFI) had formal partnerships through service agreements or Project Implementation
Agreements with the implementing organization. The loan model itself also outlined the roles and responsibil-
ities of each partner.
• Diaspora contributions to localization and community resilience: The project empowered actors at multiple
levels, demonstrating how the diaspora inherently supports localization by providing assistance to local actors.
• BBS Resources and Information: In providing loans, participants were able to overcome financial obstacles,
while the technical BBS guidance allowed them to ensure their investment was an efficient and sustainable use
of their funds.
• The need for adaptable financial models per context: This pilot included a specific set of agreed-upon finan-
cial terms and interest rates, however, varying and flexible loan options (e.g., lower interest rates) should be
explored with the diaspora to reduce the risk for both borrowers and loan agents.
• Exploration of the uses of the diaspora guarantee: As payments were ongoing at the time of report writing,
seed funding for the diaspora guarantee had not been disbursed yet. Follow-up and future pilots are needed to
explore diverse methodologies of utilizing the diaspora guarantee.
Future iterations of the model should include a formal evaluation to better understand outcomes and increase the
effectiveness of the intervention. This can be supplemented by a monitoring report encapsulating the view of the
community on the success of the approach, which can guide additional phases and help to ensure more localized
approaches. Future iterations should also explore the viability of non-members, who may be more in need or
vulnerable, or explore ways to increase access membership of institutions.

On Philippines: A.20 / PHILIPPINES 2015–2017; A.22 / PHILIPPINES 2018; A.8 / PHILIPPINES 2013-2016
On private sector engagement: A.7 / SOUTH SUDAN 2017–2018; A.27 / IRAQ 2017–2018; A.32 / TURKEY 2017–2018

ASIA-PACIFIC A.20 / TIMOR-LESTE 2021 / THE DILI FLOODS DISASTER
CASE STUDY TIMOR LESTE 2021 / THE DILI FLOODS

KEYWORDS: Community engagement, Coordination and partnerships, Infrastructure, Preparedness
CRISIS The Dili Floods Banda Sea
PEOPLE AFFECTED 25,709 HHs affected* DILI Indonesia

HOMES DAMAGED/ Indonesia
DESTROYED 4,546 homes**
PROJECT LOCATION Dili, Timor-Leste
Savu Sea
7,154 individuals supported through
Indonesia
community infrastructure projects
PEOPLE SUPPORTED 1,826 individuals supported with emergency Timor Sea
BY THE PROJECT items (Food and Non-Food items)
Project Location
103,000 HHs reached through the safer
shelter awareness campaign
PROJECT SUMMARY
10 communities were facilitated to develop Responding to the Dili floods of 2021, this project worked
to localize the humanitarian response by empowering
and manage 16 unique settlement/
communities to enact their own shelter and settlements
infrastructure projects based on a participatory
plans and paired this with an innovative collaboration
budgeting process
between global, national and local levels to develop truly
103,000 HHs were reached with locally
PROJECT OUTPUTS localized shelter IEC materials. The community developed
designed, locally illustrated safer home
community-enacted projects through participatory
construction IEC messages
budgeting which led to a set of unique settlement
National Shelter manual developed
projects, bespoke to each participating village which
and locally illustrated in coordination with an
focused around the repair and construction of various
expert consortium of shelter INGOs, NGOs, and
DRR related infrastructure works. Local engineers and
Government
illustrators developed culturally appropriate IEC materials,
and through collaboration with a long-standing community
PROJECT COST USD 113,070 for the overall project magazine publisher distributed those materials and
messaging through its extensive network to reach over
*UN Resident Coordinator’s Office Situation Report No. 7, April 2021
100,000 households including messaging for children.
**Timor-Leste Civil Protection
1 2 3 4 5 6
PROJECT IMPLEMENTATION
PLANNING EVALUATION
CONTEXT
FLOODS
TIMELINE APR MAY JUN JUL AUG SEP OCT NOV DEC JAN
2021 2022
Apr 2021: Flash floods and landslides affected 13 municipalities in

Timor-Leste, especially the capital Dili, and surrouding low-lying areas.
1 Jun 2021: Gender and Shelter assessments to capture the community’s
perspective related to their homes and their community development.
2 Jun–Jul 2021: Community consultations and meetings conducted
at 10 sub-villages (aldeias) to identify shelter priorities.
3 Aug–Oct 2021: Community shelter activities which included
cleaning and repairs of drainage and culverts, installation of water
disposable units, repair of water canals.
4 Oct 2021: Distribution of emergency items to more than 283 HHs.
5 Jan 2022: A community-led evaluation process based on the
aspects that best suited the project context, timeframe, feasibility
and budget.
6 Jan 2022: Post Distribution monitoring conducted which focused on Women groups of Persons with Disabilities attended FGDs as part of the
the emergency items distributions and safer shelter awareness campaign. project evaluation process, January 2022.

DISASTER A.20 / TIMOR-LESTE 2021 / THE DILI FLOODS ASIA-PACIFIC
CONTEXT SITUATION AFTER THE CRISIS
Timor-Leste is a small country with a population of From 29 March to 4 April 2021, heavy rains across Timor-
approximately 1.3 million (as of 2020). It is particularly Leste caused flash floods and landslides – the worst
mountainous, with central mountains rising to 3,000m and flooding in 50 years. A total of eight municipalities were
many rural communities located in hard to reach places. affected, the capital Dili and its surrounding low lying areas
Local people in these communities most commonly reside being the worst affected. While most of those displaced
in self-constructed single story timber frame houses, by floods were able to return to the site of their homes
sometimes on stilts, with other materials such as bamboo, within weeks, many others had to settle in partially
thatch, and mud used for the secondary structure based damaged structures or with neighbors where individuals’
on what is locally available. The country is particularly homes had been fully destroyed. On 8 April 2021, the
exposed to natural hazards such as cyclones, earthquakes, Government of Timor-Leste declared a state of calamity
tsunamis, and heavy rainfall, which – in combination with in Dili for 30 days and requested international assistance
the substandard local vernacular construction practices, for the flood response. In this context, a large population
limited and inadequate infrastructure, and social welfare – of affected households were repairing or reconstructing
enhances vulnerability. their homes on their own (referred to as self-recovery) at
a scale beyond the scope of humanitarian actors to fully
SITUATION BEFORE THE CRISIS reach traditional material shelter support.
Prior to this crisis in March/April 2021, Dili (the capital
NATIONAL RESPONSE
city) had not fully recovered from flooding in 2020, the
impact of which took lives, damaged homes, and paralyzed The Government of Timor-Leste requested urgent
infrastructure. support after the floods, which was answered in part by
In general, much of the informal housing in Timor-Leste donors, national and international humanitarian actors,
exhibits inherent structural vulnerabilities, such as weak and civil society organizations. Specifically, the government
connections between framing elements, poorly arranged asked for support in the dissemination of health messages
structural frames lacking cross-bracing elements, and and the distribution of emergency and shelter non-food
low-lying buildings lacking a raised plinth to enhance resil- items. Strict COVID-19 lockdowns in the Dili municipality
ience to flood waters. Additionally, informal construction were temporarily suspended because of the ongoing flood
is usually located on sites exposed to risks such as flooding, response.
high winds, and heavy rainfall-induced soil erosion – a Later in the crisis, the government issued a decree declaring
recurring hazard and common cause of emergency shelter its intent to coordinate a national cash program with UN
needs. This meant that many of the poorest households in agencies, requesting NGO support in complementing the
the country who faced the impacts of this crisis were pre program with government prescribed material distribu-
exposed and vulnerable to multiple significant risks with tions. This created constraints to INGO shelter program-
little knowledge of safe and/or sustainable building tech- ming that sought to address needs beyond emergency
niques to mitigate the impact. distributions.
© WFP/Machel Silveira
Torrential rains caused the worst flooding in recent years in Timor-Leste, April 2021.

PROJECT DESIGN/STRATEGY This engaged groups such as women, men, girls, boys, the
elderly, and Persons with Disabilities. The gendered forums
Based on rapid needs assessments conducted in June 2021, aimed to amplify varying community voices and shaped the
initial emergency distributions of shelter non-food items project through ongoing consultation and engagement
(kitchen supplies and hygiene kits) and food items were once activities commenced.
carried out by the organization to respond to acute house-
hold shelter needs of the most vulnerable. Through the inclusion of gendered perspectives, women,
girls, and other marginalized groups were given a plat-
The shelter strategy was developed alongside emer- form for participation from the start of the project.
gency assistance with a focus on supporting the longer For example, this catalyzed a conversation between the
term efforts of communities toward shelter self-re- men and women in each community around role assign-
covery. Following this approach, the program sought to ments for community projects. As a result, women in the
better understand households’ efforts to self-recovery community deliberately assigned themselves key roles in
before designing shelter inputs to best complement these many of the community projects – including some of the
recovery pathways. Initially, the project strategy aimed to more traditionally male roles such as drainage clearance
support households in self recovery through a mix of cash and construction.
and in-kind material support for reconstruction, to maxi-
mize beneficiary choice and agency in the application of Many of the discussions that began in the gendered shelter
humanitarian resources. However, the government decree assessment went on to inform project selection and devel-
and changing context prompted the organization to evolve opment. For example, discussions on ongoing recovery
this strategy. challenges around drainage canals and flooding debris
directly resulted in several communities electing to develop
Additionally, it was identified that commonly utilized drainage clearance projects. Projects like these were not
practices in vernacular construction were not addressing pre-designed by the organization, but rather emerged out
vulnerabilities during reconstruction and repair, which of discussions with the communities themselves.
could have led to exposure and risk in future hazard
events. Examples included the poor positioning of new One of the key learnings from the gendered shelter assess-
constructions near riverbanks and the lack of internally ment was that, for participatory assessments to be mean-
reinforcing cross-bracing elements in the timber frames. ingful, they must tie into and directly influence activity
For these reasons, the program retained its emphasis on planning. The themes and ideas brought up during the
shelter self-recovery support but pivoted its implemen- participatory assessment remained strong influences for
tation strategy away from household-level shelter provi- the programs that followed them.
sion to addressing settlement-level infrastructure needs
and the broader knowledge management needs of shelter
reconstruction.
By adapting project programming to the country’s
rapidly changing context and the results of a consultative
gendered shelter assessment (detailed in the next section),
the implementing organization developed innovative and
community-led recovery projects and played a key role
in the development of a national Information, Education
and Communication (IEC) campaign around safer home
construction.
ASSESSMENT
GENDERED SHELTER ASSESSMENT

From the early phases of the project, the implementing
organization wanted to capture nuanced community data
related to homes and communities by developing a qual-
itative assessment tool that included gendered and disag-
gregated reflection, focus group discussions, and key infor-
mant interviews.
The organization was committed to the idea that gendered
perspectives like those of women and girls can often be
© CARE
lost in more generalized assessment processes. Because of

this, special efforts were made to engage different groups
Assessments of the damaged households was a qualitative approach through
separately on their terms (as opposed to engagement KIIs and FGDs by engaging groups of women, men, girls, boys, elderly and
through mixed community forums). Persons with Disabilities., June 2021.

transfer mechanisms led to a compromise with in-kind

material procurement.
This approach empowered each community to develop
their program based on the needs they perceived them.
The process was received positively by participants in the
community-led evaluation. While this process did not
result in traditional household-level shelter construction,
the interventions determined by each community were
seen as more relevant, impactful, and complementing
existing government programs at the household-level to
support self-recovery.
SAFER SHELTER AWARENESS CAMPAIGN
The implementing organization also took on a key role
at the national level to promote safer shelter aware-
ness messaging using IEC materials including a magazine
campaign, a manual, and poster signage. Technical messages
were developed by global shelter advisors, in coordination
with local engineers, the national government, and the
Technical Working Group of INGOs, addressing vernac-
ular construction practices designed to provide accessible
and affordable guidance on rural home construction. To
prioritize the localization of shelter messages, the imple-
menting organization utilized a 20-year relationship built
© CARE
with the publisher of a community magazine to illustrate

and publish shelter IEC material in a culturally appropriate
Women from the community enagaged in debris cleaning process.
and accessible style.
IMPLEMENTATION Once key messages were tested and agreed upon, the
organization worked with experienced illustrators from
COMMUNITY-LED RECOVERY PROJECTS the community magazine to translate technical content
into accessible and culturally appropriate visual guidance
To address settlement-level needs and empower commu-
materials. These included materials bespoke to the maga-
nity-led self-recovery efforts, the organization assisted
zine and its audiences, including specific messaging for
each affected community through a participatory process
children. The magazine itself was used as a platform to
including risk assessment and project identification. This
distribute these materials and reached a wide audience of
led each aldea (village) in the development of its own
more than 100,000 households.
set of INGO-funded settlement level activities, resulting
in a diverse set of community-managed projects such Additionally, the organization worked with other Shelter
as drainage canal repair and/or reconstruction, refuse NGOs and INGOs, the National Government, and the
management, water system repair, retaining wall construc- IEC Technical Working Group to develop a national shelter
tion and community building construction. manual, “Hari’I Uma ne’ebe Ho Seguru husi Disastre no
Asesivel”. Following the IEC Compendium and protocol,
Communities started this process by reflecting on the
the agencies worked together assigning and conducting
impacts of the crisis and how settlement and house-
responsibilities between themselves for different steps of
hold-level exposure to risk had exacerbated the crisis. The
the process. The implementing organization of this case
communities were then supported in the brainstorming
study developed detailed IEC for audiences/stakeholders,
and formulation of community-level project ideas to
while a peer organization worked on developing the roll
address flood risks with the support of engineers to cost
out strategy, confirming the IEC objective and the moni-
the proposals. Through participatory budgeting, communi-
toring, revision, and evaluation framework.
ties worked within allocated funding constraints to short-
list the projects they felt were most relevant to them. The
organization then supported implementation by managing
the procurement of in-kind construction materials and Efforts were made at every stage of program development
some small cash transfers to communities to support the and implementation to maximize community participation
local procurement of food and locally available items where and engagement – especially regarding women and girls –
possible. The original intent was to fund these projects with the goal of fostering community ownership of the
through community-managed cash tranches. However, project. This approach supported shelter self-recovery by
the short time frame over the COVID-19 period and recognizing, enhancing, and complementing the agency of
limited experience at the country office in conditional cash affected people in their recovery efforts.

© CARE
Rehabilitation of water tanks was one of the community infrastructure
activities implemented.
this high unit cost hindered the organization from reaching

vulnerable participants at-scale as intended within the
scope of the available budget.
This contextual challenge – in combination with gaps iden-
tified through community consultations around resilient
rural construction knowledge and a lack of settlement-level
recovery interventions – led the organization to pivot its
programming. With the wider impacts of shelter in mind,
the organization designed a program consisting of multiple
activity inputs to shelter self-recovery pathways, aimed
at addressing community-level infrastructure and knowl-
edge needs rather than the usual household-level shelter
interventions.
Community led projects were evaluated by revisiting

the participating communities using the ‘most significant
changes’ methodology, while the Magazine Safer Shelter
Awareness Campaign was assessed through a sample
respondent assessment survey. Given more time/budget, it
would have been desirable to return with peer agencies to
the sites of reconstructed homes to better document and
Locally illustrated safer home construction IEC messages were disseminated-
evidence a behavioral change in vernacular construction.
through the Lafaek community magazine. The monitoring and evaluation undertaken revealed that
the program not only addressed short-term needs that
MAIN CHALLENGES emerged in the wake of the flooding but also initiated
reflection, analysis, co-creation, and action on the ground –
One of the major challenges of the response was imple- led by the communities themselves. The project also lever-
menting the project within the COVID-19 context. This aged national capacity through the community magazine
delayed some activities, as COVID-19 mitigation policies distribution network, local artists, and engineers in combi-
were put into place that slowed cooperation between nation with global technical support and Global Shelter
global-level technical teams and country-level field teams, Cluster IEC learning to develop an effective and localized
prohibiting travel and limiting all external support to be approach to safer-shelter awareness. Overall, the project’s
carried out remotely. Another major challenge was the approach enabled a short term project to begin addressing
government decree early in the emergency that shelter longer-term aspects of knowledge, preparedness, and
material distributions had to meet a minimum of USD 600 disaster risk reduction while it strengthened the role of
per person and adhere to a government-approved mate- the community in self-recovery efforts – as reflected by
rial list. Taking the size of the project into consideration, the community-led evaluation.

√ The project’s donor allowed the project to pivot x Due to contextual constraints, community-led
towards community-identified gaps in settle- projects relied on the provision of in-kind materials
ment-level recovery activities and construction knowl- rather than cash transfers which would have given the
edge for more resilient rural reconstruction. community groups more agency.
√ The gendered shelter assessment was consciously x Larger budget allocations for community-led
designed to give women and girls a voice and role in recovery projects could have led to more sustain-
recovery and reconstruction. able DRR interventions, such as more significant flood
√ Participatory budgeting and project development
protections for housing, river diversions, and forest
exercises worked well, allowing communities to take
planting.
meaningful decisions and lead in programming. x Additional post-distribution monitoring and
in-depth evaluations of the safer shelter awareness
√ A collaboration with local engineers and illustrators
campaign could have contributed to lessons learned
enabled the development of localized and culturally
by measuring its impact on behavioral change in
appropriate IEC materials.
building practices, thus informing future iterations of
√ The project’s partnership with a local magazine this approach.
allowed the organization to tap into a wide distri-
x While the community-led recovery projects were
bution network and augment the reach of technical
successful in attesting that communities can respon-
messaging.
sibly develop, plan and manage their projects – the
approach could benefit from additional funding to
increase project scale.
x Additional efforts to document and capture the
project’s impact on rural housing construction and/
or reconstruction against the baseline could have
strengthened outcome evidence.
• While the safer shelter awareness campaign
LESSONS LEARNED
focused on IEC and technical knowledge
management products, more could have been • Shelter program design should not forget
done to connect this activity to community settlement needs when identifying household
and household-level reconstruction efforts. needs.
For example, the inclusion of technical support
• Communities are capable of developing and
through a mobile community shelter team,
managing funds and activities if the project is
tasked to support participants in the recon-
structured toward this approach.
struction of their homes, may have helped
amplify and better apply messages at the • Highly participatory approaches can be
household level. deployed during short time frames. Emergency
timeframes should not limit humanitarian
• Additional field visits from technical staff and
actors to only utilizing activities with a short-
community-level training events during recon-
term impact.
struction could have also enhanced under-
standing of IEC material and improved the • The creation of child-friendly messaging by
final construction of homes. The COVID-19 local editors and illustrators shows that new
pandemic largely prohibited the implementa- pathways can be found for technical knowledge
tion of more ambitious field-level activities. In disbursement.
response, more resilient implementation strat- • Meaningful participation with communities
egies should be developed to achieve outcomes – especially women and girls – can alter the
in the face of unforeseen constraints like those course of a program toward more appropriate
experienced during this project. and impactful humanitarian outcomes.

On community engagement: A.14 / PHILIPPINES 2016–2020; A.27 / TURKEY 2017–2020; A.10 / UGANDA 2017–2018 / CONFLICT
On infrastructure: A.23 / SYRIAN ARAB REPUBLIC 2019–2020; A.16 / MYANMAR 2012; A.3 / COLOMBIA 2010–2011

EUROPE A.21 GREECE 2019–2023 / COMPLEX CRISIS COMPLEX/MULTIPLE
CASE STUDY GREECE 2019–2023 / COMPLEX CRISIS

KEYWORDS: Host community integration, Local authorities engagement, Rental assistance, Security of tenure, Social cohesion
CRISIS Mediterranean Migration Crisis Bulgaria
North
PEOPLE Macedonia
AFFECTED 391,568 people affected* Albania
RESPONSE Aegean
Multiple locations in Greece Sea
LOCATION Turkiye
Ionian
Total of35,777people and 15,942 HHs Sea AT H E N S
PEOPLE
SUPPORTED BY
48% female and 52% male beneficiaries
THE PROJECT 39% assisted were children | 54% were adults | 7% were Mediterranean
Sea Project Location
people in their old age (50+ years)
PROJECT SUMMARY
19 Integration Learning Centres established in 13 cities The project aimed to promote self-reliance
throughout the country within the migrant population and to support
21,876 people/ 9,249 HHs benefitted from monthly the Greek authorities in establishing a sustainable
rental subsidies for apartments leased in the beneficiary’s name integration mechanism into the society, as part
9,384 people enrolled in the Integration Courses of the overall Migration Management System,
through the provision of a holistic set of services
PROJECT
OUTPUTS
27,971 integration monitoring sessions conducted
including integration courses, consisting of Greek
10,477 individual job counselling sessions conducted language and soft skills courses, accommodation
6,8639 beneficiaries skills’ profiles created support services, including rental subsidies,
233 focus group discussions conducted employability support services, integration
97 sensitization events conducted monitoring services and sensitization activities.
The project focused towards a multifaceted and
43 career days and employability events conducted flexible approach to service provision adaptable
to current and future needs while adapting the
* International Protection applications (2013 – January 2023) Source: Greek Asylum Service response to Covid-19 restrictive measures.
1 2 3 4 5
PROJECT
PLANNING IMPLEMENTATION PHASE 1 IMPLEMENTATION PHASE 2
CONTEXT
CONFLICT
TIMELINE DEC MAY MAY JUN MAR APR MAY JUN JUL AUG SEP DEC JAN JUN JUL APR
2015 2018 2019 2020 2021 2022 2023
2015: Mixed migration flows escalated due to mass influx of

Syrians, Iraqis, Libyans, Afghans and Eritreans fleeing war, ethnic
conflict or economic hardship.
1 Mar- May 2020: Adaptation to remote service provision and

extraordinary extension of rental subsidies entitlements due to
COVID restrictions.
2 Jul 2020: 19 Integration Learning Centres were established across

Greece as service provision locations.
© Ggia,CC BY-SA 4.0
3 Sep 2020: Fire at Lesvos Moria reception and identification centre,

led to intensified outreach and enrollment activities.
4 Dec 2021: Transition to national government funding.
5 Jun-Jul 2022: Project target group population expanded to

include Beneficiaries of Temporary Protection (BTP) and increase
in the duration and amounts of rental subsidies to incentivize
integration in the country. Syrian and Iraqi refugees arrive from Turkey to Skala Sykamias, Lesbos island,
Greece

COMPLEX/MULTIPLE A.21 GREECE 2019–2023 / COMPLEX CRISIS EUROPE
CONTEXT reception and identification centers, short and long-term

open accommodation centers, safe zones and shelters for
Greece is the southeasternmost mainland European Union unaccompanied children, protective housing programs,
member state. The country encountered continuously and accommodation projects in chartered hotel facilities
high numbers of mixed migration flows since the end of and rented urban apartments. These are considered as
2014, with the biggest influx being recorded during 2015– participants’ residence locations prior to enrolling in the
2016. While migration flows have followed a steady decline project (and residence therein during recognition serves as
in numbers since, over 390,000 international protection a prerequisite for enrollment). Pre-crisis infrastructure was
applications have been submitted from 2014 to August strictly limited compared to the accommodation schemes
2022, according to the Greek Asylum Service. set up in response.
The dominant narrative in Greece is that the country has a
nationally, linguistically, and religiously homogenous popu- NATIONAL SHELTER STRATEGY
lation. In this regard, most of the population of Greece is
of Greek origin (local population groups and descendants In accordance with EU Directive 2013/33 of the European
of early 20th century Greek refugees from Asia Minor), Parliament and of the Council of 26 June 2013 – laying
Greek-speaking and Greek Orthodox. The only officially down standards for the reception of applicants of inter-
recognized minority is that of the Muslim population national protection – the Government of Greece began
living in the region near Turkey. Nevertheless, after 1990, creating temporary accommodation facilities in mainland
Greece became a destination country for over one million Greece as early as February 2016. By September 2017,
migrants from the Balkan countries (mainly Albania) and 49 temporary accommodation facilities with a total
Eastern Europe. capacity of 50,000 individuals were established in mainland
Greece. In addition, accommodation for asylum seekers
The country’s economy is comprised primarily of tertiary in apartments was also provided through the UNHCR-
sector enterprises, with a thriving tourist industry. High- implemented ESTIA project (Emergency Support to
quality Greek agricultural products, favored by the typi- Integration and Accommodation) with a capacity of 27,000
cally Mediterranean climate, are also exported throughout individuals. However, no additional support was foreseen
Europe and Russia. However, because of the global finan- for the migrants who were granted international protection
cial crises of 2007–2009, the Greek economy suffered status, resulting in congestion in reception accommodation
important setbacks in the period 2009–2018, which schemes. Since its conception, the project aimed to facili-
resulted in a significant decrease in the income per capita tate the stranded participants of international protection
and consequent living standards, while the social welfare to exit reception accommodation schemes. The project
system had to undergo substantial cuts. was planned and established as an integration mechanism,
to provide a holistic set of services to participants, and
SITUATION BEFORE THE CRISIS since July 2022, temporary status of protection.
Although Greece has been a transit country for migrants
PROJECT DESIGN
predominantly from the Middle East and Central Asia,
the migration flows of 2014–2016 due to the expansion The main goals of the project were to increase migrants’
of the Islamic State in Syria and Iraq was unprecedented. prospects towards self-reliance and to support them in
Over a million people entered the country through Turkey, becoming active members of Greek society through a
primarily landing on the islands of the Aegean Sea and holistic set of services that touched upon basic elements
– to a lesser extent – by crossing the Evros River (the of integration, i.e., integration courses (Greek language and
natural border between the two countries). The refugees soft skills), accommodation and employability support,
were predominantly Arabs, Kurds, and Afghans from both individual integration monitoring and host community
the urban centers and the rural areas of Syria, Iraq, and sensitization.
Afghanistan.
SITUATION AFTER THE CRISIS
Upon arrival on the Greek islands, the intent of many refu-

gees was to use the Western Balkans Route (from Greece
to North Macedonia, to Serbia and Croatia, through
Slovenia to Austria and Germany). The main exit point
from Greece was the irregular crossing of Idomeni, where
an informal refugee camp was created on farming fields.
© IOM Greece
However, border crossing restrictions began in November

2015 and a complete shutdown of the irregular crossings
took place in March 2016. The Greek state responded
during the crisis by setting up accommodation schemes A recognized refugee receives information about job opportunities in Greece
of the Greek Reception System, including open and closed after attending in a Career Day co-organized by the organization.

One intended outcome was to support the national TARGETING

authorities to establish a sustainable integration mecha-
nism for these participants in Greece, as part of the overall The project was designed for implementation at the
Migration Management System in the country. The project national level, following relevant coordination with impor-
also intended to work as a rotation mechanism for the tant stakeholders. Furthermore, the target population was
Greek Reception System (GRS), offering an exit strategy initially those receiving international protection (refugees
– along with the integration policy – to decongest GRS and participants of subsidiary protection) and then, as of
accommodation schemes or address participant needs July 2022, included those receiving temporary protection
after exiting others accommodated as applicants. (on the basis of the published Implementing Decision (EU)
2022/382 of the Council of the European Union).
The project included rental subsidies as financial support
for apartments leased by participants in their names, Project outreach activities took place at accommoda-
utilized to have participants understand and use the same tion schemes of the Greek Reception System (Open
methods, credentials, and platforms any other citizen in Accommodation Centers, Reception and Identification
the country would use to rent a property. Centers, and Hotels). Areas for the establishment of the
project’s Integration Learning Centers were targeted
based on a preexisting presence of participant populations
IMPLEMENTATION
of rented urban apartment accommodations schemes
Nineteen Integration Learning Centers (ILC) were estab- (ESTIA).
lished in thirteen cities as service provision locations to
host project activities, in addition to field teams roving the
government reception accommodation facilities. The value
and duration of rental subsidies were revisited to match
the situation in the housing market and to respond to the
needs of the participants as identified through project
feedback mechanisms. Land allocation or land issues were
not a project concern, as the intended housing units were
existing registered private properties in the country avail-
able for rent.
© IOM Greece
A refugee working in an elderly care facility together with his colleague, after
receiving integration support by the organization.
© IOM Greece
It is crucial that beneficiaries of shelter provision projects are timely informed,

periodically reminded and adequately empowered to address their needs after
the end of service provision.
Government-imposed movement restriction meas-

ures enforced during the initial phases of the COVID-19
pandemic urged the project to design remote implementa-
tion mechanisms. These were eventually maintained after
the end of the restriction period – resulting in the availa-
bility of hybrid services (in-person and remote/online).
The project was implemented by an international agency
© IOM Greece
with the support of ten partners. The initial overall

personnel structure included five hundred staff. Over time,
the number of staff involved was amended in accordance
with the number of participants enrolled in the project in
each period. Beneficiaries of the organization moving-in to their new apartment.

COMMUNITY ENGAGEMENT COORDINATION
Integration is a two-way process that requires the invest- The project falls under the general Migration Management
ment of both the host and the hosted communities. In continuum in Greece. In this regard, close coordination
this regard, participants of the project were required to with the governmental and local authorities was required,
attend mandatory integration courses, were provided with to support the National and Local Integration Strategies
optional accommodation and employment services, and and to support building the state’s integration mechanism
were invited to participate in individual integration moni- that is not in place yet. The project was developed in close
toring and sensitization activities. Consequently, to benefit coordination with the Ministry of Migration and Asylum and
from the complete set of offered services, participants all primary decisions were taken trilaterally (MoMA, DG
were required to be actively involved. Home, and the implementing agency) during international
funding and bilaterally (MoMA – international agency) after
Moreover, the project launched impact and satisfac-
the transition to national funding. Strong coordination with
tion services where participants provided feedback and
implementing partners in accommodation and education
suggestions on offered services. Project participants and
resulted in project quality and credibility, which was estab-
members of the local population also had the opportunity
lished as the main integration mechanism of the country.
to interact through 233 focus group discussions and 97
sensitization events organized by the sensitization compo-
nent of the project. This feedback mechanism resulted in MAIN CHALLENGES
significant changes to provisions throughout the project, The onset of COVID-19, and the first restrictive measures
such as the increase in the duration and amounts of the on mobility between March and May of 2020, were chal-
monthly rental subsidies. lenging to a project designed for face-to-face implementa-
tion. The project response was to adapt and overcome by
redesigning implementation modalities for remote service
provision. Additionally, with regards to financial support,
an extraordinary extension of rental subsidies beyond
participants’ entitlements was agreed with the donor and
implemented for the period needed, due to the COVID-19
mobility restriction impacts on the labor market.
The closing of the Moria Reception and Identification
Center on Lesvos Island due to fire led to intensified
outreach and enrollment activities from September–
October 2020. The project’s target group population was
then expanded in June-July 2022 to include those receiving
temporary protection in Greece based on the published
© IOM Greece
Implementing Decision (EU) 2022/382 of the Council of

the European Union. This put in motion a parallel design
and implementation mechanism geared towards this
specific population of participants.
Refugees are visiting an apple orchard as part of the employability support
provided by the organization.
© IOM Greece
© IOM Greece
© IOM Greece
Illustrations promoting community living as part of an awareness raising campaign towards integration.

CROSSCUT TING ISSUES e-learning modality being offered for integration courses
was available for sourcing from within the international
Aiming to ensure equal gender accessibility, mandatory agency but was adapted to cover the project and partic-
integration courses were offered in three shifts during the ipants’ needs. Remote implementation solutions imple-
day so that each family had the possibility to organize their mented during the movement restriction period, such as
schedule and childcare according to needs. The project digital job fairs, remote apartment verification process via
also offered recreational activities through specialized staff geolocation, and virtual house visits were maintained after
available at Integration Learning Centers to take care of the the lift of the measures due to high-quality results achieved.
children aged 2–7 while their parents attend mandatory
classes. In addition to the above, a mother-toddler space
operated in one ILC in Thessaloniki provided the possibility
to mothers of children younger than two years of age to
also attend integration courses. Specific employability and
sensitization events, tailored to the needs of female project
participants, took place to promote social integration and
labor market inclusion.
Information on how to use the tools developed for accessing housing were
prepared and disseminated for effective programming.

Findings indicate increased resilience and integration
potential of participants when accommodation support
is embedded in a support scheme that addresses various
aspects of daily life in the protection-granting country –
© IOM Greece
opening and sustaining an integration pathway. The sustain-

ability of a participant household in subsidized accommo-
dation is significantly enhanced when integration pathways
Refugees attend language courses lessons in dedicated Integration Learning
are initiated and supported. This is achieved as a rental
Centers, run by the organization and its partners. subsidy provision and is matched with educational (Greek
language and soft skills courses) opportunities/obligations,
TECHNICAL SOLUTIONS local labor market inclusion support, and integration moni-
toring provisions. The project provided a model for scaling
The project’s website was not a technical innovation per up a response, as evidenced programmatically with the
se, as websites with listings for apartments to rent are inclusion of a second new participant target population
common. The innovation was qualitative, as a platform in mid-2022, and reactively with the intensive outreach
with participant-friendly listings for project pre-verified to and enrollment of high numbers of participants in a
housing options and employment opportunities. The concentrated timeframe.
© IOM Greece
For increased ownership, the project’s new neighborhoods and housing units
Various tools were developed to facilitate the provision of rental assitance were planned in a participatory planning process, including all relevant stake-
including a website providing information on apartment listings. holders at all levels.

√ The project is the first country-wide holistic inte- x Some beneficiaries could not sustain their rental
gration project implemented in Greece, it engaged agreement after the project due to limited employ-
tens of thousands of participants and adapted to ment opportunities during the COVID 19 pandemic
fluctuating circumstances, especially during pandemic and the fixed value and duration of rental subsidies.
restrictions.
x The link between course attendance and the provi-
√ Multilateral cooperation was achieved through a sion of rental subsidies was sometimes not clearly
concrete multilayered coordination structure as the understood by the beneficiaries, who would only
project was implemented with the support of ten realize the consequences of non attendance after
implementing partners and in close cooperation with their deregistration from the project, with very limited
government authorities. possibility of re-enrolment.
√ Rental subsidies assisted individuals facing the threat x The project’s unified approach targeting many bene-
of marginalization especially those about to exit the ficiaries decreased the possibility of supporting
government accommodation schemes, also decon- people with vulnerabilities related to health, which
gesting the Greek Reception Systems. render them in need of such tailored and intensive
support not foreseen in the project.
√ Tools such as the online platform, accommodation
workshops and the facilitation of communication with x The project dedicated comprehensive efforts to
apartment owners contributed to an efficient provi- promote decentralization from the main urban
sion of services. centers, with additional monthly rental subsidies
combined with employment opportunities. However,
√ Provision of skills building courses with a tailored
the lack of supporting networks of co-nationals was
curriculum through e-learning facilitated integration.
an insurmountable obstacle to this end.
√ Employability events for beneficiaries resulted in effec-
tively bringing together local employers and project
beneficiaries, facilitating the access of the latter in the
labour market. • Given funding restrictions, the project did
not include additional types of employability
LESSONS LEARNED services, such as traineeships or vocational
training. This expansion is foreseen in the
• Standalone accommodation provision is not next funding period, negotiated with relevant
sufficient in terms of promoting integra- authorities beginning in February 2023.
tion of third country nationals (TCNs) in a
• It is also acknowledged that the housing market
host community. Data received through the
project’s feedback mechanisms portray that in Greece – in urban centers and tourist desti-
the beneficiaries who receive the entire set of nations particularly – lacks affordable oppor-
project services are more positive regarding tunities. Nevertheless, a significant number of
their integration potentials in the country. properties remains outside the market due
to needed repairs and upgrades whose cost
• In the context of rental subsidy approach, it exceeds their owners’ budgets. The project
is possible that the service provider will come will need to explore synergies with affordable
across individuals whose traumatic experiences housing initiatives and to advocate for the
and previous cultural setting render them accessibility of TCNs to relevant social housing
reluctant to leave their collective accommoda- policies adopted by the State.
tion, even when these appear to be inadequate
for their integration needs.
• Targeted geographical distribution to regions
with job opportunities requires additional
incentives. On local govt. engagement: A.12 / ECUADOR, 2016 – 2018;
A.16 / UKRAINE, 2016 – 2021; A.18 / IRAQ, 2018-2021
• It is crucial that beneficiaries of shelter provi-
On rental assistance: A.8 / BAHAMAS, 2019 – 2020;
sion projects are timely informed, periodi-
A.20 / JORDAN, 2018 – 2020
cally reminded and adequately empowered to
address their needs after the end of service On social cohesion and integration: A.2 / CHAD, 2019 – 2020;
provision. A.3 / CHAD, 2018 – 2020 ; A.32 / TURKEY, 2017 – 2018

EUROPE A.22 / UKRAINE 2022-2023 / CONFLICT / OVERVIEW CONFLICT
OVERVIEW UKRAINE 2022–2023 / CONFLICT
CRISIS Russian invasion of Ukraine (2022) Lithuania
PEOPLE 21.3 million people affected Belarus

AFFECTED
17.6 million people in need* Poland
Russia
KYIV
PEOPLE 5.35 million IDP**
Slovakia
DISPLACED
8.17 million refugees across Europe*** Moldova
WARRAP
Hungary
HOMES 1.4 million**** residential units have been damaged Romania
JONGLEI
DAMAGED/ 499,056 units (Over one-third of the damaged units) are LAKES
DESTROYED
destroyed, while two-thirds are partially damaged. Response Location BLACK SEA
PEOPLE WITH SUMMARY OF THE RESPONSE

SHELTER 8.3 million individuals with shelter and NFI needs*
NEEDS The Ukraine Shelter Cluster is currently coordinating
three different shelter responses to the ongoing
Whole of Ukraine with following contexts: conflict in Ukraine, tailored to different geographical
1. Oblasts receiving displaced populations, mainly Western and areas affected by the ongoing conflict. In the western
some Central oblasts. areas and where there has been a large influx of IDPs,
LOCATION
2. Conflict-affected-mainly Eastern oblasts. the focus of the response has been on improving and
3. Newly accessible areas, liberated and where it is foreseen the creating accommodation options in collective sites,
situation might remain stable in terms of security. finding rental solutions, and distributing essential goods.
In the areas that were formerly occupied, (N & E) the
PEOPLE
response has focused on repairing damaged homes
SUPPORTED IN Over 4,336,000 individuals reached*****
THE RESPONSE and replacing NFIs. In the areas of contact, NGCA,
and difficult to reach areas, the response has been to
605,806 individuals reached with shelter distribute Emergency Shelter Kits and provide NFI
emergency support for bomb shelters. Winterization activities have been
carried out throughout the territory reaching out to
28,547 individuals reached with rental support
the neediest households. Overall, the Ukraine Shelter
2,084,876 individuals were distributed NFI kits at Cluster has been and will need to continue evolving
HH level and adapting to the dynamic situation in the country to
901,803 individuals received NFIs in collective address the diverse needs arising from the conflict and
RESPONSE and reception sites maintaining its relevance as the crises evolves beyond
OUTPUTS 24,086 with NFI kits for bomb shelters emergency ensuring the affected populations have
access to safe and adequate living conditions.
70,732 with light & medium repairs
76,850 with basic refurbishment of buildings to be used *Humanitarian Response Plan 2023
as collective sites
** IOM Internal Displacement Report
44,251 with hosting families’ support *** Operational Data Portal, UNHCR
1,988,920 individuals supported through **** Rapid Damage and Needs Assessment (Round 2)
winterization ***** Ukraine Shelter Cluster dashboard
© Serhii Nuzhnenko/Reuters
© Google maps
A residential building destroyed by shelling in Irpin, Ukraine, March 2, 2022, and the same building in May 2015.

CONFLICT A.22 / UKRAINE 2022-2023 / CONFLICT / OVERVIEW EUROPE
1 2 3 4 5 6 7 8 9 10 11 12 13
RESPONSE
RESPONSE
CONTEXT
CONFLICT
TIMELINE FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC JAN FEB MAR APR MAY
2014 2015 2022 2023
2014: Russia-Ukraine conflict. 8 Mar-Sep 2022: Light and medium repairs Technical Working
Group (TWiG) was activated in March. Shelter Cluster Light and
1 2015: Activation of shelter cluster in Donbas. Medium repairs SOP was published in September.
Feb 2022: Russia full scale invasion of Ukraine. 9 Apr-Oct 2022: Winterization Technical Working Group (TWiG)
was re-launched in April. Shelter Cluster Winterization recommen-
2 Feb 2022: Transformation of the Ukraine Shelter Cluster scope dations was published in October.
and structure to extend beyond Donbas region.
10 Feb 2023: Ukraine Humaitarian Response Plan (HRP) 2023 was
3 Mar-Apr 2022: Flash appeal for the humanitarian response in published.
2022 was published in March and reviewed in April.
11 Mar 2023: Shelter Cluster Refurbishment of Collective Sites -
4 Apr 2022: Shelter Cluster Damaged building assessment Technical Building targeting criteria was released by Collective Sites TWiG
Working Group (TWiG) was activated.
12 May 2023: Shelter Cluster CBI Implementation Guidelines for
5 Jun 2022: Ukraine Shelter Cluster strategy was approved. L&M Repairs was released by Light and Medium repairs TWiG
13 May 2023: Expression Of Interest for renewal of SAG and TWiG
6 Mar-Jun 2022: Technical Working Group (TWiG) for Collective for durable housing solutions. Elaborate the cluster role in shift to
sites was activated in March. Collective sites Guiding Framework more durable solutions as GOU compensation scheme is launched.
was published in June. Commencement of the development of a multi-year Shelter Clus-
7 Apr-Aug 2022: Cash for rent Technical Working Group (TWiG)
was activated in April. Shelter Cluster Recommendations on Cash
for Rent was published in August
CONTEXT
On 24 February 2022, a full-scale invasion of Ukraine by
© Svitlana Vovk, DRC Ukraine

the Russian Federation began – causing massive loss of
life, catastrophic suffering, and immense infrastructure
destruction throughout the country. For 2023, the estima-
tion of people in need of humanitarian aid is more than 17
million. Given the intensity of the conflict, including missile
attacks in cities all over the country, the crisis has led to
the largest displacement crisis in Europe since World War
II. The latest estimations note that (of a population of 42 A neighborhood in Mykolaiv. 300,000 of the pre-war population of 600,000
million) 5 million Ukrainians are internally displaced and 8 have left the city to find refuge, protection, and safety elsewhere.
million have been registered as refugees across Europe –
primarily in Poland, Germany, and the Czech Republic. SITUATION BEFORE THE CRISIS
Inside the country, the eastern oblasts (sometimes trans- Since 2014, Ukraine has faced a humanitarian crisis caused
lated as region or province) have been the most frequently by the conflict between the government and pro-Russian
attacked areas, facing humanitarian access constraints and separatists in the Donetsk and Luhansk oblasts.
limitations to the movement of civilians. One of the worst
affected cities in this sense – Mariupol – was besieged This situation resulted in a total internal displacement
for more than two months. The western oblasts were of 1.3 million people. The population in need during this
also affected by bombardments and struggled to deliver specific crisis reached a peak in 2015 when the figure was
adequate shelter and access to services to newly arrived estimated at approximately 5 million people the moment
individuals. In parallel, in a third context, reconstruction the clusters were activated. A total of 21 Shelter Cluster
work began as soon as some areas were liberated from the partners worked for almost seven years in a shelter
presence of Russian troops. response focused on light, medium, and heavy repairs,
the improvement of conditions in collective sites, and the
An additional level of complexity is added to the crisis due distribution of household and winterization items. The
to the fluidity of the boundaries between the three situ- Shelter Cluster was in the process of being deactivated and
ations mentioned. Furthermore, temperatures in Ukraine handed over to the national authorities at the beginning of
can drop below -20°C during the coldest months and 2022. A protocol was developed to transition responsi-
many areas have suffered during the past winters’ signifi- bilities to relevant ministries. (For more information on the
cant disruptions to electricity and heating supply due to cluster deactivation and handover to national authorities, see
targeted attacks on energy infrastructures. A.16, Shelter Projects 8th edition).

When the current crisis escalated and full-scale war began,

the cluster coordination structure and the Shelter Cluster
partners initiated a process of adaptation to the new
humanitarian crisis. While this was considerably larger and
more complex, previous work on coordination tools and
technical guidelines provided a solid foundation for the

new structure.
Particularly important during the early stages was contin-
gency planning prepared by the cluster during the hand-
over process, with an identification of priority activities, a
first draft of the kit composition, and the latest calculation
of activity costs. By utilizing information from contingency
planning and determining the most relevant interventions
using existing technical guidelines – reaching a consensus The impact of the full-scale war, the freezing winter temperatures coupled with
among the Shelter Cluster (SC) partners on strategy was the energy crisis, exacerbate pre-existing needs and are likely to lead to new
not difficult. Another key tool that supported the founda- multi-sectoral humanitarian needs.
tion for relevant cluster work was a pre-existing damaged
infrastructure database.
SITUATION DURING THE CRISIS
The war with Russia has substantially damaged and

destroyed the residential housing stock and key basic infra-
structure in the country. This has increased the level of
© Bathoul Ahmed, UNHCR

vulnerability of the affected population, especially during
winter months. In many geographical locations, the harsh
living conditions are linked to challenges with repairing
homes and accessing basic needs and public services. In
other cases, this is due to the lack of safety to remain
because of the ongoing attacks, the lack of privacy and
space when living in collective sites or with host families, Specialists were consulted and engaged with the Shelter Cluster for debris
and the difficulty to find suitable accommodation and to be management prior to reconstruction due to the presence of unexploded
able to pay the rent. ordnance and asbestos.
NATIONAL SHELTER-NFI STRATEGY
The Shelter Cluster has designed the humanitarian

response for 2023 with two objectives:
Objective 1: Provide shelter assistance responding to the
needs of IDPs, people who remain at home, and returnees.

This is to be done through emergency shelter support,
temporary housing, light and medium repairs (in-kind and
in cash), heavy repairs, the rehabilitation of collective sites,
rental support, and host family support.
Objective 2: Provide essential Non Food Item (NFI)
support based on the needs for IDPs, people who remain Reconstruction work began as soon as some areas were liberated from the
at home, and returnees at the household level, including presence of Russian troops.
those residing in collective sites.
The second objective is to be achieved through the distri- The winterization TWiG was instrumental in coordinating
bution of NFI kits for collective sites, NFI kits for individ- partner efforts across the entire country to assist the
uals, NFIs for bomb shelters, and the provision of winter most vulnerable households in coping with harsh winter
clothes and winter heating and support for winter energy conditions.
needs (in-kind and in cash).
By defining and coordinating the strategic allocation of
For the adequate implementation of the shelter response resources and implementation of activities, the SC partners
and the provision of guidance to Shelter Cluster partners, have provided essential support, including insulation mate-
the different Technical Working Groups set up within the rials, heating equipment, warm clothing, and fuel supplies,
Cluster structure played a key role. to improve living conditions and enhance resilience.

CONFLICT A.22 / UKRAINE 2022-2023 / CONFLICT / OVERVIEW EUROPE
The next phase of Shelter/NFI strategy development will

focus on creating a multi-year document covering ongoing
emergency shelter and NFI needs, as well as outlining activ-
© John Wain, Shelter Cluster Ukraine

ities to pave the way for a smooth transition to sustainable
shelter solutions and longer-term recovery activities and
actors.
MAIN CHALLENGES
• There were strong access constraints for some popu-

lations during extended periods, particularly in the
case of besieged cities. The organization of humani-
tarian convoys was in some cases the only way to send For the adequate implementation of the shelter response and the provision of
NFIs among other supplies to select locations. guidance to Shelter Cluster partners, different Technical Working Groups were
set up within the Cluster structure.
• Target locations were in extremely different contexts:
areas under heavy attacks, areas receiving displaced
populations, and newly liberated areas. The shel-
ter-specific response was designed to address the
needs of the population in each of them, but flexibility
in programming was required to adapt to the situa-
tion’s evolvement.
• Complexity of debris management prior to recon-
© Alisa Kyrpychova, IOM

struction due to the presence of unexploded ordnance
and asbestos. Specialists were consulted and engaged
with the Shelter Cluster for this matter.
• Scarcity of detailed information about specific shelter
and NFI needs for each of the target population
groups. The cluster provided shelter assitance across Ukraine through shelter support,
temporary housing, light and medium repairs, heavy repairs, the rehabilitation
• The perception that the cluster system is not neces- of collective sites, rental support, and host family support.
sarily fit-for-purpose for the Ukrainian context has put
additional pressure on the Shelter Cluster to perform.
It took time for the cluster to scale up to appropriate
capacity from a position where it was transitioning to
national structures. Ukraine is a large and developed
country with a strong functioning and competent
civil service. Additionally, there are many local enti-
© Alisa Kyrpychova, IOM
ties providing shelter and NFI services. The cluster –
through its national and four sub-hub structure – is
working hard to widen cluster participation with non
traditional localized actors (volunteer groups, civil
society organizations, etc.) while forging positive rela-
tionships with authorities. The winterization TWiG was instrumental in coordinating partner efforts
across the entire country to assist the most vulnerable households in coping
• Localization and the perception that area-based coor-
with harsh winter conditions.
dination (ABC) mechanisms were required led to the
creation of a ‘reorienting coordination task force,’ and WIDER IMPACTS
the exploration of several pilot initiatives. It is neces-
The Government of Ukraine passed laws addressing infra-
sary that OCHA articulates exactly what is required
structure damage compensation schemes and recently
from this approach and how ABC mechanisms will
launched its housing restoration – or “eVidnovlenia” –
connect efficiently with established cluster sub-hub
program. The Shelter/NFI Cluster is developing a damage
mechanisms.
assessment platform, called ‘SIDAR’, in collaboration with
• Need for humanitarian shelter initiatives to reassess an international agency, to facilitate improved coordination
and remain focused on their mandate while consid- of humanitarian assistance at the address level among
ering how they can be a conduit for a smooth transi- participants, local authorities, and humanitarian organi-
tion to durable housing solutions in parallel with the zations. By providing comprehensive information on the
government’s longer-term reconstruction programs. shelter needs and resources available in conflict-affected
areas, SIDAR aims to enable a more effective and efficient
response to the ongoing crisis in Ukraine.

© Bathoul Ahmed, UNHCR

The war with Russia has substantially damaged and destroyed the residential housing stock and key basic infrastructure in the country. This has increased the level
of vulnerability of the affected population, especially during winter months.
LESSONS LEARNED
• Localization measures should be implemented (coordination and response) from the start of programming to
ensure project mechanisms are fit for purpose.
• Key to the success of the project was adequate staff contributing to quality shelter coordination at the national
and sub-national levels.
• National staff capacity-building efforts to promote suitable contractual modalities should be undertaken to
retain strong candidates.
• Establishing an effective collaboration with government bodies should start from the beginning of the crisis.
• It is key to enhance integration with relevant sectors such as WASH, CCCM, Livelihoods, etc. as well as
strengthen collaboration with cash coordination actors for a more efficient response.
• Contingency planning must be systematic and informed as a preparatory measure to avoid being caught unaware
when situations rapidly deteriorate.
• It is important to have a strong field presence through enhanced partner collaboration and co chair mechanisms.
• A multi-year strategy should be developed considering the immediate shelter and NFI needs of the most
vulnerable individuals in collaboration with relevant stakeholders. Exit strategies for sustainability should be
considered during design.
• A multi-year Shelter and NFI strategy need to evolve and include relevance for emergency responses while
acting as a catalyst for the development of longer term housing solutions linking to reconstruction schemes of
the government with a feasible exit plan.
• The humanitarian Shelter and NFI Cluster coordination mechanism should transition effectively to longer term
sectoral coordination suitably resourced with expertise and aligned with national development policies as the
conflict unfolds. Scenario based contingency planning is critical to ensure shelter and NFI needs are adequately
considered to address the needs and severity of both displaced and non displaced vulnerable Ukrainians.

On local govt. engagement: A.12 / ECUADOR, 2016 – 2018; A.16 / UKRAINE, 2016 – 2021; A.18 / IRAQ, 2018-2021
On rental assistance: A.8 / BAHAMAS, 2019 – 2020

CONFLICT A.23 / UKRAINE (REGIONAL) 2022-2023 / CONFLICT EUROPE
CASE STUDY UKRAINE (REGIONAL) 2022-2023 / CONFLICT

KEYWORDS: Private sector engagement, Remote management, Rental assistance, Social cohesion, Urban accommodation
Russia’s invasion of Ukraine (2022) – Influx into

CRISIS Baltic Sea LITHUANIA
neighboring countries
PEOPLE Belarus
DISPLACED 8,240,000 people displaced (outside Ukraine)* POLAND
CZECHIA UKRAINE
PEOPLE WITH
SHELTER NEEDS 3,130,000 people** S L O VAWARRAP
KIA
H U N G A RY M O L D O VA Russia
JONGLEI
ROMANIA
RESPONSE Multiple cities in Czechia, Hungary, Lithuania, Moldova, Poland, LAKES
LOCATION Romania, Slovakia Black Sea
Bulgaria
Italy WESTERN
PEOPLE EASTERN
EQUATORIA
SUPPORTED BY 2,593 HHs (7,008 individuals) EQUATORIA
Project Location
THE PROJECT
PROJECT SUMMARY
175,889 safe-nights were provided through safe, dignified, The project enabled access to temporary
and secure accommodation individual accommodation through existing
PROJECT 2,593 HHs (7,008 individuals) were provided short- term tools and capacities in the rental market, such
OUTPUTS as an accommodation listing platform with large
accommodation assistance at 112 cities across 7 countries
repository of accommodations by landlords from
Project also supported the local economy through the private
the host community. In addition, the project
host network who had rented their apartments
offered complementary support and services, such
as MPCA, psychosocial support, and employment
DIRECT COST USD 29.37 (Avg. accommodation cost per person per night) support. Given the scale of the short-term rental
service offered through the e-commerce platform
PROJECT COST USD 6,000,000 and the efficiency of the system, it was possible to
provide individual transitional accommodation to
* Ukranian Situation. Operational Data Portal May 2023. UNHCR thousands of people in a quick, efficient, safe, and
** Profiles and Intentions of Refugees from Ukraine. UNHCR dignified manner.
1 2 3 4 5 6 7 8 9
PROJECT IMPLEMENTATION PHASE

PLANNING
CONTEXT
CONFLICT
TIMELINE FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC JAN FEB MAR
2022 2023
Feb 2022: Start of war in Ukraine led to huge refugee influx in

neighboring countries.
1 Mar 2022: Organization partnered with non profit partners to
access digtal platform for providing accommodation assistance in
Hungary, Poland, Moldova, Romania and Slovakia.
2 Apr 2022: First household received assistance under the project.
3 Apr - May 2022: Coordination mechanisms were set up and

trainings on the use of platform were conducted for staff.
4 May - Jul 2022: Tools and resources were developed for remote
management and implementation of the project.
5 May 2022: Country offices started advertsing locally.

© IOM / Gema Cortés
6 Jul 2022: Prioritization criteria for receiving assistance were

revised and periodic review of the criteria was introduced.
7 Sep 2022: Project was expanded to Czechia and Lithuania.
8 Jan 2023: Post Activity Monitoring was conducted.

8.24 million Ukrainian and 650,000 Third Country Nationals (TCN) were
9 Mar 2023: Conducted an After Action Review (AAR) recorded as having crossed borders into neighboring countries in 2022.

UKRAINE A.23 / UKRAINE (REGIONAL) 2022-2023 / CONFLICT CONFLICT
CONTEXT extended timeline and increased resources – such as modi-

fying tax laws to support the affected population.
On 24 February 2022, the Russian Federation launched
a full-scale invasion against Ukraine. One year after the In some cases, regulatory efforts that were intended to
invasion, approximately 8.24 million Ukrainian and 650,000 protect tenants ended up exacerbating the consequences
Third Country Nationals (TCN) were recorded as having of people’s vulnerability. For example, existing tenant rights
crossed borders into neighboring countries. Such a human- regulations that prevent the eviction of women-headed
itarian crisis had a regional impact, and in addition to the HHs with children and people with specific needs, during
10 countries close to Ukraine which were included in the the winters, had an adverse effect on the landlords’ hesi-
response plan, there have been more than 30 other coun- tancy to rent to those HHs.
tries hosting Ukrainian refugees. With an uncertain time- For many, navigating the rental market in a foreign language,
line for the resolution of the conflict and varying degrees with limited understanding of the legal frameworks and,
of support available, people moved across country borders in many cases, without personal, financial, or employment
– primarily to cities – throughout the whole of 2022. documentation or an existing social support network, was
a major challenge. Risks of exploitation and abuse, as well
THE ACCOMMODATION CHALLENGE as gender-based violence (GBV), were of high concern as
approximately 90% of refugees fleeing Ukraine have been
Neighboring countries responded to the influx and the women and children.
resulting need for shelter and accommodation in different
ways. Most governments prompted a response that offered While Ukraine-neighboring countries have used a variety of
a combination of collective and individual accommodation, tools to meet the housing needs of refugees, the general aim
including host family support (subsidized or voluntary). has been to support their integration towards self-sufficiency.
The sudden influx stretched the already saturated housing Rental assistance is considered as a rapid solution to
markets (especially in urban areas) and the social rental provide financial or other necessary support for accessing
assistance systems. Access to individual accommodation accommodation options available within the local rental
became particularly challenging for the displaced TCNs. market stocks. However, access to the rental market is not
People and governments relied heavily on host communi- always easy due to multiple barriers, including economic
ties and the rental market available stocks, often providing barrier. In many cases, intermediation, information sharing,
support through compensation for host HHs, cash support and legal advice, in addition to the provision of cash were
for renting or making student residences, and tourist required to provide adequate access to the rental market.
accommodation centers available for the displaced. The A rental assistance program may cover various compo-
different approaches enabled most people to access indi- nent, such as: protection, information, housing standards,
vidual accommodation solutions, with around 20% being security of tenure, financial support, sustainability, and
housed in collective centers. As host community support accountability to the affected population. These compo-
programs decreased, vulnerable Ukrainian refugees started nents may involve different actions as they may be directed
to face difficulties paying the rent, as their savings were at the refugee population, the host communities, or the
consumed over time. Rental prices increased significantly, admin and legal processes involved.By considering coher-
and in countries such as Poland, Czech Republic, Estonia, ently all components, the risk of causing volatility in the
and Slovakia the increase in the demand in major cities rental market or posing a high risk to the well-being, safety,
provoked an increase in the rents to over 20%. and dignity of refugees can be minimized.
RENTAL ASSISTANCE AND HOUSING A rental assistance program might be an implementation

MARKET of an individual or a combination of components, ensuring
economic, social, legal, and political operational frame-
The rental and housing market in Europe is highly regu- works appropriate to the needs, capacities, and circum-
lated. The processes for adapting regulatory structures to stances of each country, thus establishing it as an adequate
an emerging influx situation and needs would require an modality of shelter assistance in the given context.
© IOM / Nikolae Grosu
The refugee influx in 2022 stretched the already saturated housing market Rental assistance as a solution to access the local housing market offered by
and social rental assistance systems in Europe. the host community and to better integrate within the community.

PROJECT DESIGN The assistance offered consisted of a free-of-charge stay

limited to 29 nights (with exceptional stays of up to 89
An international organization developed a project for nights for the 10% of the families) in accommodations
providing immediate temporary relief to people fleeing listed on the accommodations listing platform.
the war in Ukraine, by ensuring safe, secure, and dignified
accommodation, aiming to: reduce the number of people The 10% longer-term exception allowed the organization to
that needed collective accommodation, support those like increase the assistance to HHs that were in vulnerable situa-
TCNs who had limited access to any assistance, provide tions (e.g., pregnant, and lactating women, persons undergoing
short-term stability for those still deciding their mid- and medical treatment) for whom individual private accommoda-
longer-term plans, and allow new arrivals to any location to tion was essential.
start the process of finding long term solutions. The project created opportunities to link the target popu-
As the geographic scope of the project involved different lation to medium- and long-term housing programs. For
countries, the organization established a partnership with a example, some families continued to rent the same apart-
partner from the nonprofit sector, to facilitate the use of an ments for longer terms after the project ended, thereby
e-commerce short-term accommodations listing platform enabling easier access to the complex rental market and/
with listings offered to the public regularly by hosts/land- or acquiring enhanced knowledge of it.
lords across the world. The accommodations listing platform comprised of an online
The conditions of the partnership allowed the organization search engine with an interactive map showing the accommo-
to focus on three strategic lines: dation listings with pictures and descriptions, public feedback
and complaint resolution mechanism, insurance coverage for
1. The organization would focus primarily on the landlords, and secure online payment systems.
identification of accommodation needs, addressing
protection concerns, and providing complementary Within the project, only non-congregated accommodation
assistance to the target population by adopting a case listings, such as apartments or private hotel rooms with an
management approach. attached bathroom were allowed, to minimize protection
risks and ensure privacy and dignity of the affected population.
2. The partner would provide access to an existing
e-commerce accommodations platform for renting The main steps for the implementation of the project
short-term accommodations and would manage the involved: identifying participants, registration, accommo-
relationship with the landlords, including contracts, dation verification, booking accommodation, case manage-
damage insurance, and payments. ment, and monitoring.
3. The organization’s representatives in each country

would define the target population profiles based
on needs, referrals, and location preference, provide
all relevant information on their responsibilities and
rights as short-term tenants, ensure they had access to
feedback and complaints resolution mechanisms, refer
them to other services, and where necessary, support
them in accessing longer term accommodation.
Rental assistance may consists of various components. It should take into

consideration the economic, social, legal, and political operational frameworks.
IMPLEMENTATION
The project started in June 2022 in five countries: Hungary,

Poland, the Republic of Moldova, Romania, and Slovakia, The partnership provided verification of services and ensured minimum
and it was extended to the Czech Republic and Lithuania in standard quality of accommodation, a complaints and information system,
an insurance system for housing situations, monitoring of costs and direct
September as needs in those countries increased. payments to landlords.

TARGETING Most accommodation requests were in larger urban areas

and cities, often in the capitals where rental costs were
The project assisted Ukrainian citizens and third-country higher and the availability of affordable housing was limited,
nationals (TCN) who were fleeing Ukraine after the full-scale including for local populations. In addition to referrals, an
Russian invasion (on or after 24 February 2022). Project email address was set up and disseminated where people
outreach mechanisms and the identification of participants could request assistance. The organization followed up
included tools such as social media, local advertisements, with phone interviews to assess needs, the urgency of the
and referrals from other agencies and governments. cases, and the profile of the HH, and conducted an accom-
People with extreme vulnerabilities who needed “around- modation availability check in the preferred locations. If a
the-clock services,” had special needs, or unaccompanied listed accommodation met the needs of the HH, the orga-
minors, were referred to specialized service providers. The nization would inform the landlord about the project and
organization prioritized those in immediate need of shelter make the reservation on their behalf via the platform. Some
(HHs at the moment without shelter or facing imminent landlords offered discounts and even free accommodation
risks of losing their accommodation), HHs in overcrowded when the organization explained the project’s purpose.
reception or collective centers, HHs facing other protection As the platform offers self-check-in and immediate reser-
risks, single-parent HHs, HHs with pregnant or lactating vations, the family could have access to accommodation
women, people with disabilities or chronic illness, and within a matter of hours. In some cases, the organiza-
elderly headed HHs. These prioritization criteria were flex- tion’s reception teams at Points of Entry would provide
ible to be adapted based on the needs and context of the transportation to HHs crossing the border and make the
country. Remote or in-person interviews were conducted reservation whilst on transit ensuring that on arrival at the
by the organization staff to assess the target population destination city, the family would have a safe place to stay.
based on the set prioritization criteria. As the focus of the The predominantly contactless check-in and check-outs
overall Ukraine response was put on Ukrainian nationals, also ensured minimal interactions between landlords and
TCNs were generally at risk of being left behind and faced tenants, thereby minimizing associated protection risks.
difficulties in accessing state support. They became one
of the primary target groups of the project, constituting
approximately 11% of the people reached on average.
THE PARTNERSHIP
The platform has an existing identified pool of apartments

from landlords and an instant reservation system in place,
eliminating lengthy administrative processes. Moreover, it
allowed the organization to assess and verify accommoda-
tions and landlords through a mechanism of public reviews
and feedback from the experiences of previous guests,
© IOM Poland
which proved to be invaluable in assessing possible risks or

undesirable behavior on the part of the landlord. This also
ensured that accommodation met minimum habitability
conditions and addressed the specific needs of the tenants Follow-up calls or visits were set up by the organization to ensure safety
such as physical accessibility, availability of utility services, and assess any additional needs of beneficiaries. Based on the needs, other
and pet friendliness. complementary services such as multi-purpose cash, psychosocial support,
and employment support were provided.
Since the project involved extensive case management, the
organization relied on a robust existing complaint and griev-
ance resolution mechanism in place through the platform. This
unique mechanism dealt with all complaints by the tenants
and the landlords, with limited liability towards tenants. While
the platform ensured participant protection, it also protected
and compensated the landlords in case of any damages.
RENTAL PROCESS
The project, using an existing and easy-to-use platform,

helped to provide adequate accommodation depending
© Brigitta Mezei
on specific needs and taking into consideration the pref-

erences of tenants. The platform also allows remote
follow-up mechanisms such as secure electronic transfer
of relevant information and open communication channel Organization staff assessing and ensuring that accommodation met minimum
with the landlords, during the rental process. habitability conditions and addressed the specific needs of the tenants.

Early in the response, when people’s needs changed rapidly flexibility to use other modalities such as mid-term leases
(e.g., families who planned to stay in one city for three and hotels or apartments available outside the platform.
weeks but decided to relocate to be closer to family
Despite follow-up and clear obligations in place for the land-
or livelihoods vacated the accommodation earlier than
lords, there were some cases of unsuitable accommodation,
planned), the project offered the possibility of modifying
privacy breach, discrimination, attempt to charge additional
reservations and repurposing bookings for other families,
fees, and eviction. Due to the partner’s flexibility, the organi-
for more effective and efficient use of available resources.
zation quickly found alternatives for those HHs and mitigated
Before check-in, tenants were provided with all neces- the risks, scaling up monitoring and follow-up activities.
sary information regarding the accommodation, including
A lack of certainty over future plans, language barriers that
a guest fact sheet including data on emergency services,
reduced the possibility to access livelihood opportunities,
their rights and responsibilities as short-term tenants, their
and other obstacles prevented some people from finding
rights and duties in the hosting country, and other relevant
longer-term accommodation right away.
emergency contact information. Moreover, they were also
provided with information on how to report incidents of
exploitation or abuse. To ensure safety and assess any addi-
tional needs of beneficiaries, a minimum of three follow-up The project supported the immediate physical well-being of
calls or visits were set up by the organization throughout people in vulnerable situations by providing a roof over their
their duration of stay. Depending on their needs, other heads, as well as impacting their mental and emotional well-
complementary services such as multi-purpose cash, being by providing a sense of safety, security, and dignity. It
psychosocial support, and employment support were was particularly helpful for those who were excluded from
provided directly or through establishing referral pathways. host government benefits and who faced additional barriers
The rental payments for short-term accommodation were in accessing accommodation due to socio-cultural discrimina-
channelized directly through the platform to the local tion such as TCNs, HHs belonging to a particular community,
homeowners eliminating any direct transaction between HHs with multiple children, large HHs with a single-income
the tenants and the landlords minimizing the risk of any member, HHs with people with disabilities, LGBTQI, etc.
potential financial exploitation. The project provided people fleeing the war in Ukraine,
with immediate temporary relief, which helped them to
MAIN CHALLENGES assess and plan their next steps. It also promoted inte-
gration and cohesion by enabling access to livelihood
Lack of baseline information on needs, the movement of
opportunities, education, social life, and other services in
people across cities and borders, and varied accommodation
the urban context such as the fact of obtaining an address
prices across cities and countries, made it difficult to predict
from the moment of the arrival to a country, facilitated for
the number of people that would be served from the design
the refugees some services available in the urban context,
phase. Anticipated caseloads were revised frequently, (e.g.,
such as opening a bank account or applying for jobs.
in the summer of 2022 some governments announced the
removal of subsidies, affecting those with fewer resources). The project also proved to be a huge financial relief for the
tenants as the cost of accommodation was a major source
Prices increased due to the influx and increased demand,
of stress for Ukrainian refugees and the affected popula-
but in some cities, this coincided with seasonal price changes
tion due to the rising costs in the housing markets and
(e.g., tourist/vacation season), presenting new challenges to
general housing shortages. It also posed a financial benefit
the project. In case of a lack of available affordable accom-
for the landlords/hosting community, as it served as a cash
modation listings on the platform, the project had the
boost to stimulate the local economy.
According to post-activity monitoring, approximately 64% of
respondents reported that the assistance within the project
improved their mental/physical health. Around 58% of
respondents felt the assistance provided them with a better
sense of security. 57% reported financial relief to focus
on other necessary items like food, medicines, etc. Many
reported being able to plan for their future and process
© IOM / Khristina Misiuchenka
administrative formalities without having to worry about

accommodation. More than 90% of respondents reported a
high level of satisfaction with the assistance received.
ACCOMMODATION AFTER THE PROJECT
After receiving short-term accommodation assistance,

The project supported people at risk of being left behind and faced difficulties around 20% of the respondents reported that they were
in accessing state support such as TCNs, people with disabilities, large house-
able to partially/fully self-support the accommodation cost.
holds with children, HHs belonging to particular community etc.

Around 29% of respondents went back for accommodation in rental assistance programs as well as other similar short term
collective centers while 13% continued living in hostels/hotels. accommodation assistance for transit. Moreover, the impact,
10% were reported to be hosted by people either free of cost strengths, and lessons learned from this project have set path
or within the government scheme. Around 8% of respondents for future responses of similar nature.
reportedly looked for cheaper or shared accommodation
The project also underlined the solidarity of individuals
while 6% of them continued to receive rental assistance. As
and nonprofit sector actors to support people in need,
this project was designed to be used as a pathway to mid-
providing an opportunity for people who would usually
and longer-term options, in many countries it paved the way
not know how to support refugees to do their part such
for scale-up of the organization’s response in providing other
as providing their accommodation units for free.
accommodation assistance including setting up mid-long term

V
√ Minimal personal data requirement from land- x The flexibility to assess and support cases remotely
lords, as compared to long-term rental assistance due increased efficiency, but in some cases, it stretched
to existing bilateral agreement between the platform the organization’s services to new locations. Although
and the landlords. the organization established effective referral path-
ways to expand complementary services, additional
√ Availability of public reviews and feedback resources to reach people physically would have
regarding the accommodation and landlords that were improved support.
used to assess the protection risks.
x Due to individual accommodation, people may lose
√ Since there was no direct transaction with the land- the ability to inform and relate to the community,
lords, there was limited interaction which ensured missing out on opportunities and services that
the safety of tenants to an extent from any unlawful contribute to integration and cohesion.
means that could be exercised by the landlord.
x Despite detailed reviews and image descriptions of
√ Minimum habitability conditions were ensured the listed accommodation, some did not match the
as the listed accommodation was assessed and vetted images, or the actual locations were not found suitable.
by the platform and prior users via publicly available Although the organization found alternative accommo-
reviews on the platform. Accommodation units were dation, it took time and people had to move to more
pre-assessed on various parameters including accessi- adequate locations. This affected the initial anticipation
bility and availability of utilities. of staff needs, adversely affecting staff welfare.
√ Project flexibility allowed the provision of assistance x The project only allowed accommodation for 29 nights.
to people who were particularly excluded from host Although an extension of up to 89 nights was permitted
government protection schemes and faced addi- for up to 10% of the caseload, often it was not sufficient.
tional barriers to accessing accommodation assistance. x The cost of accommodation assistance varied significantly
e.g., Roma Population or TCNs. due to dynamic market forces, often making it unsustain-
√ Availability of a legally binding minimum guaranteed able during times of high demand like the holiday season.
security of tenure.
x Tenants could check out often without information
√ The project contributed to the local economy by which hindered effective monitoring and follow-up.
providing the landlords with rent as well as insurance
coverage, in case of any damage.
√ Project flexibility allowed providing assistance outside
the platform such as hotels, hostels, motels, etc., to
be able to meet the demands of the market and
thereby contribute to the local economy.
√ Project flexibility allowed for adaptations
depending on needs and changing situations such as
extension of assistance duration and repurposing of
bookings in case of unavoidable cancellations.
© Kristina Lenart
√ Availability of a dashboard on the partner platform,

allowed for real-time monitoring of bookings made
pursuant to the partnership agreement.
√ Established complaint and grievance resolution
mechanism through the partner platform. The project provided people fleeing the war in Ukraine, with immediate
temporary relief, which helped them to assess and plan their next steps.

LESSONS LEARNED RECOMMENDATIONS MOVING FORWARD
• The project teams worked in close coordina- • Project’s strevngth is the ability to implement
tion with protection specialists including service market-based rental solutions in less time and
mapping, case management etc. This was a critical cost if the right operating tools are in place. A
aspect of the project which should be replicated. combination of the activities that make up a
• Establishing partnerships and referral pathways rental assistance program along with market-
for providing complementary service along with based alternatives can enable many actors
accommodation enabled integration and cohesion. without sufficient capacity or funds to support
• Tenants were sensitized on their rights, protection long-term housing by providing transitional
risks, staff code of conduct, and access to complaint emergency accommodation assistance as a
and grievance resolution mechanisms through complementary measure to other programs.
information materials before checking into the • The learnings for the organization on the use
accommodation through digital / print resources, of a private sector platform, its challenges, and
but other communication materials (e.g., video opportunities, have opened the possibility for
instructions) may have been more effective. the development of tools such as the online
• The project highlighted the need to explore search engine and the contractual conditions
possible links with the nonprofit and private of the platform, adapted to other contexts
sectors for preparedness activities where such resources and partnerships are not
in place.
• Project staff managed communication with
the landlord and tenants, effectively mediating • To improve the effectiveness of the project
communication which took time and signifi- and have significant outputs, the organization
cantly more effort than anticipated. Initial calcu- would recommend setting some prerequisite
lations of staff per caseload ratio were quickly conditions for the implementation of a similar
surpassed and the frequency of communication future programming, such as working in close
with tenants was more than expected. coordination and support of the protection
specialists, having an existing internal complaint
• This project required soft skills rather than tradi- and feedback mechanism, and a functional exit
tional shelter skills. A coordination group was strategy, promoting integration and mid- or
set up across the countries where staff could ask long-term accommodation, in place.
questions and always reach specialists.

On Ukraine : A.22 / UKRAINE, 2022-2023 (Overview); A.16 / UKRAINE, 2016 – 2021
On social cohesion : A.21 / GREECE, 2019 – 2023; A.2 / CHAD, 2019 – 2020; A.3 / CHAD, 2018 – 2020 ; A.32 / TURKEY, 2017 – 2018
On urban accommodation : A.34 / GREECE, 2016 – 2018; A.8 / BAHAMAS, 2019 – 2020; A.20 / JORDAN, 2018 – 2020
61% 39%
MALE
LITHUANIA
FEMALE
2,615
7% HOUSEHOLDS SAFE NIGHTS*
175,889
With a pregnant or lactating woman
19% HOUSEHOLDS
With people with disabilities
nights of safe, secure and dignified housing 20% HOUSEHOLDS POLAND

referred for other assistance
provided to displaced families
DEMOGRAPHICS 53,272 SAFE
NIGHTS
7,008
individuals reached CZECHIA
MOLDOVA
89% 11% 2,493 SAFE
2,593 Ukrainian Nationals TCNs

NIGHTS*
SLOVAKIA 23,999 SAFE
NIGHTS
households supported NATIONATILTY 16,495 SAFE

NIGHTS
25 33%
HUNGARY
Average stay (per booking, night)
Children
31,923 SAFE
NIGHTS
ROMANIA
58%
(below 18)
112 9% 45,092
Adult SAFE
(18-60) NIGHTS
Elderly
cities across 7 countries, where (above 60)
assistance was provided HOUSEHOLD COMPOSITION *Since programming began in October
This map is for illustration purposes only.

A Cash-for-Work program involving women from vulnerable households
provided solid motivation to rely on themselves in carrying out the daily
maintenance of their shelters inside the camp, even when they return
to their areas of origin.
© Sami Abdullah
MIDDLE EAST A.24 / IRAQ 2019 / CONFLICT CONFLICT
CASE STUDY IRAQ 2019 / CONFLICT

KEYWORDS: Community engagement, Emergency shelter, Gender mainstreaming
Türkiye
CRISIS Iraq conflict, 2014 onwards
PEOPLE
AFFECTED 5.62 million affected* NINEVEH
PEOPLE WITH Syrian Arab

SHELTER NEEDS 2.40 million individuals* Republic
Iran
LOCATION Jeddah Camps, Nineveh Governorate BAGHDAD
PEOPLE 2,500 HHs supported with tent repairs

SUPPORTED BY
THE PROJECT
1,000 HHs supported with financial assistance
through Cash-for-Work Saudi Arabia
Project Location
2,500 tents repaired
PROJECT 1,000+ female-headed HHs participated in
OUTPUTS PROJECT SUMMARY
repair work and received financial assistance
Trainings provided along with Cash-for-Work The project consisted of the maintenance, repair and replacement
of damaged tents in the Jaddah camps located in the Governorate of
SHELTER SIZE 24 m2 (4 x 6m) Ninewa, Iraq. It targeted 2,500 vulnerable households and it involved
SHELTER +1,000 females in the works through a Cash-for Work program,
DENSITY 4.8 m2 per person (household of 5) enhancing the limited livelihood opportunities for them in the camps.
It also enabled the women to enagage in communcal activities in the
DIRECT COST
USD 286 per tent (excluding steel structure) camp, which are otherwise restricted because of the cultural context.
USD 30 (labor cost + additional materials) The project participants were allowed to implement the works
by themselves with technical support from the organization and
PROJECT COST USD 332 per household on-the-job training, or could also chose to get the works done by a
local contractor.
*Humanitarian Needs Overview Iraq 2020, OCHA
1 2 3 4 5 6
HANDOVER
PROJECT
CONTEXT
TIMELINE MAR APR MAY JUN JUL AUG SEP OCT

2019
2014–2017: Iraq conflict.
1 Mar–May 2019: Assessment, planning, preparation of all BoQs,

tools, and materials procurement.
2 May 2019: Registration process and informing families of the date

of replacing their tents and preparing the schedules.
3 Jun–Oct 2019: Selecting and assigning team for the supervision of

the project activities, and engagement of the CFW workers.
4 Jun–Oct 2019: Uploading, offloading, dismantling, and replacing

© Dayana Kamel
the tents storage processes.
5 Oct 2019: Collecting documents signed by the participants.
6 Oct 2019: Monitoring, evaluation and preparing final reports.

New tents were installed with the support of the female participants of the
project, September 2019.

CONFLICT A.24 / IRAQ 2019 / CONFLICT MIDDLE EAST
CONTEXT SITUATION AFTER THE CRISIS
The conflict between the Islamic State of Iraq, the Levant The economy of Mosul experienced a significant regression
(ISIL), and the Iraqi Security Forces began in late 2013 in the period under ISIS control, and the infrastructure of
and moved to the country’s core governorates in June the city suffered major destruction during the liberation
2014. The Ninewa governorate received a portion of the campaign, leaving only around 25 percent of the buildings
displaced population, and from late 2016 to mid‑2017, six undamaged, and another 22 percent destroyed. After the
camps were set up in its Jeddah-Qayarah district, hosting campaign, no regular electricity or piped water networks
Yazidi, Sunni, Arab and Kurdish people from urban and were functioning across the city.
rural areas with diverse religious, cultural, political and
educational backgrounds. These individuals have resided in NATIONAL SHELTER STRATEGY
the camps since then.
During ISIS’s occupation of Mosul, the government (in
The summer and winter weather conditions in the camps are cooperation with UN agencies, NGOs, and INGOs) estab-
harsh. Temperatures reach 48°C in the summer, and sand- lished 22 IDP camps in the north of Iraq to shelter fami-
storms frequently affect the area. During the winter, torren- lies fleeing violence and oppression. Between these are
tial rains often lead to flash flood episodes. The camps often Al‑Jeddah camps in the Qayyarah subdistrict of Ninawa
face sensitive political and security situations and accessing Governorate, where Jeddah 1 camp was established at
them requires coordination with the military authorities. the end of 2016 with a capacity of 2,500 shelter plots.
By mid‑2017, five more camps (2–6) were established
In Ninawa governorate, most inhabitants are farmers, with the capacity for an additional 15,600 plots to receive
shepherds, and government employees. It is common displaced people from other governorates.
for constructions in the area to use cement blocks and
concrete in the urban settlements while in the rural envi- PROJECT DESIGN
ronments, many homes are built with mud walls. Before The tents used for those camps were the MoMD (Ministry
the conflict, Mosul, the capital of the governorate, was one of Migration and Displacement) tunnel type, with a galva-
of the largest and wealthiest cities in Iraq, with a popula- nized steel pipe frame covered by a three-layered canvas
tion of almost four million. The city was occupied by ISIS- and a limited lifespan. Camp residents reported, however,
affiliated armed factions in June 2014, provoking a massive that the tents had not been maintained since 2016 when
displacement of the civilian population while many others the camps were constructed. Severe summer condi-
remained and endured the oppressive civil and social rules tions over the years rendered nearly all tents unusable.
imposed. The military operation to liberate the city began
in December 2016 and lasted until June 2017. Upon the area’s liberation from ISIS in late 2017, the
government decided to close many of the camps in
different governorates. However, the Jeddah ones remained
© Sada Auaed
1000 women from vulnerable households were given technical training to take part in the maintenance and repair of tents, September 2019.

open due to security, tribal and religious concerns in the constraints forced the implementation of the project to
areas where their inhabitants would return to. More than take place in the summer, when temperatures exceeded
a year after the camps were set up, residents reported 45°C. Because of this, work needed to begin in the early
that tent cover had not been maintained, and the dete- morning and hydration was of increased importance for
rioration suffered had left many unusable. The imple- participant safety. After numerous agreements with the
menting organization was permitted by the Iraqi pool different stakeholders involved, the project team was
budget to upgrade the tent covers in Jeddah, Qayarah, and able to successfully implement the activities, and positive
Haj Ali camps. Approximately 52 percent of the house- comments were received from the IDPs impacted.
holds living in those camps were female-headed, and
their socio-economic situation was particularly vulner-
able since the cultural context and security situation
would not allow them any income-generation activity.
Through focus group discussions held with the female-

headed households in the Jeddah camps, the project team
and the community decided to engage women living in
damaged shelters through a cash‑for‑work approach,
aiming to generate livelihoods opportunities for them
while engaging with others in the community.
© Mariam Kamel
IMPLEMENTATION
The project organized groups consisting of five workers

each – either of three women/two men or three men/
two women – to repair ten tents each day of work.
Project team engineers supervised each tent repair group.
Information management staff built an electronic cash-for-
work database to manage the recruitment of the teams,
preventing any discrimination in the participant selection.
All participants had the right to register in the system –
their names were recorded for future action. Each week,
the cash focal point selected names based on the prede-
termined criteria to assess the household vulnerability, and
those selected were prepared for on-the-job training and
the start of repair work the following day. Training was
provided upon check-in on the day of work by technical
© Dunya Fathi
staff. Using between 12–15 groups per day, an average
of 135 tents were replaced daily – with variations due to
attendance and working conditions. Teams were replaced
weekly, and additional tasks for them included loading The groups of women took charge of additional tasks, such as loading of the tent
tents, supporting offloading processes, lifting tents, or parts, arranging the steel frames, lifting the tents, and storing the used tents.
storing used tents.
The construction materials and tools were sourced from

local markets near the camp, increasing demand and
contributing to the recovery of the local economies. Many
of the participants gained experience in the field of elec-
trical repair and other technical works through the project.
A comprehensive assessment of damaged tents was made
by a technical team from the implementing agency to indi-
cate the extent of the need to replace damaged pieces of
each tent.
© IOM Iraq
MAIN CHALLENGES
Because the implementing organization did not manage

the Jeddah camps, accessibility challenges were preva- Focus Group Discussions were held with the female-headed households to
lent and resulted in delivery delays. Additionally, access enagage them in the tent repair work, which would generate livelihoods oppor-
tunities for them.

CONFLICT A.24 / IRAQ 2019 / CONFLICT MIDDLE EAST
COMMUNITY ENGAGEMENT WIDER IMPACTS
Some households were initially reluctant to repair/replace- The direct results of the initiative were the replacement
ment work through the project, and others did not of approximately 2,500 tents, three years after their
approve of the participation of women in cash‑for‑work construction and the inclusion of women in camp activities
activities. However, as the project was being implemented, for the first time. Participants’ (male and female) names
and participants were sensitized on project activities and were registered in the system for future activities and
benefits – households increasingly accepted the impor- will be utilized as primary actors after the success of this
tance of the project, its purpose, methodology, and bene- project and positive government feedback and support.
fits to both men and women. The project intends for upcoming events to provide
women with on-the-job training on how to address elec-
tricity problems in the camps.
© Dunya Sanad
© Nahla Rafeaa
(Above) Women filling the bags with sand. (Below) Many of the participants also gained experience in the field of electrical repair and other technical works through
the project.

√ Despite initial delays in procurement and access ap- x A lack of coordination between the implementing
provals for transportation and entering the camp – organization and MoMD led to overlapping activities
the project was implemented before starting the which required the repurposing of the tasks and iden-
rainy season. tification of new location sites, causing delays.
√ Despite the difficulty of the camp’s religious situation x Camp closure and camp consolidation: The Gov-
and security concerns, the project succeeded in uti- ernor of Ninewa took the decision in the latter
lizing women in primary implementation roles. part of 2019 to close and consolidate camps (in-
√ The strategy employed in tent replacement to effec- cluding the ones targeted by this reserve alloca-
tively address special constraints of female headed tion), which impacted the scope of this project.
households was enhanced by the project’s focus
group discussions with women. Moreover, the Governor of Ninewa announced
√ The success of on-the-job training for women was en- the creation of a small committee at the end of
hanced by support and cooperation from male par- June 2019 to oversee the consolidation and clo-
ticipants considering time and working hours. sure of camps and return of IDPs to their areas of
origin within 3 to 6 months (prioritizing returns
for families from other governorates). As a result,
Jeddah camp was consolidated, with several sub-
LESSONS LEARNED camps being closed and Jeddah 5 remaining open.
This put the project on hold for some time initially.
• Clear communication and collaboration were
vital for project success. Government coun- In March 2021, it was announced that Jeddah 5
terparts at various levels should be directly would be closed, this also led to delays in decision
engaged as early as possible to enhance the making process regarding whether tent replace-
feasibility and efficiency of project activities. ments would have been viable for these camps.
• It is important to adopt flexible approaches at
the project conception stage in terms of both During this evolving situation, the project team, in
usage and locations in a context where camps close coordination with the CCCM and Shelter Clus-
can be closed without sufficient notice. ters and Camp Management agencies, continued
• If similar projects are conceived, it is recom-
monitoring the situation and continued utilizing the
mended to have full tents rather than tent tent items as needed and as appropriate. However,
covers only, as tent covers are only useful for the camp closures meant that there were not enough
replacement purposes. tents in the camps left in Federal Iraq that required
covers replacement.
• Enhanced focus is needed on gender-specific
involvement. This may have been accomplished x Delay in access approvals: Despite access coordi-
by differentiating the tent replacement needs of nation with relevant authorities, delays were experi-
women and men, addressing the constraints of enced in obtaining clearances for the transportation
female-headed households to promote gender of tent covers from the border with Turkey to Qay-
equality during implementation and providing yarah sub-district.
women with alternative sources of income. x Duration/time of implementation: As implementa-
tion extended into the summer season, it was not
feasible to implement the scope of work within the
original timeline.
• The Cash-for-Work database was expanded

and improved, and thousands of women regis- FURTHER READING ON SHELTER PROJECTS
tered for future activities, as the tent replace- On Iraq: A.18 / IRAQ 2018–2021; A.27 / IRAQ 2017–2018;
ment project had difficulties in identifying A.9 / IRAQ 2013
enough number of women available to partic-
On community engagement: A.14 / PHILIPPINES 2016–2020;
ipate. Since CCCM agencies would partner A.27 / TURKEY 2017–2020; A.18 / NEPAL 2016–2017
with MoMD in managing Jeddah camps, the
collected database was made available for On gender mainstreaming: A.15 / VANUATU 2018–2019;
future activities. A.16 / BENIN 2010-2011

CONFLICT A.25 / JORDAN 2018-2023 / SYRIAN CRISIS MIDDLE EAST
CASE STUDY JORDAN 2018–2023 / SYRIAN CRISIS

KEYWORDS: Environmental sustainability, Livelihoods, Social cohesion
CRISIS Syrian Crisis

Lebanon
Jordan is still hosting around 674,148 Syrian refugees, leading Mediterranean Syrian Arab
PEOPLE DISPLACED
to a 10 % increase in the total population* Sea Republic
PROJECT LOCATION Gweirah (South), Zarqa (Centre) and Rihab (North), Jordan NORTHERN RIHAB
BAHR EL
West
First phase (completed) | 656 HHs provided with
GHAZAL ZARQA
Bank
WARRAP
livelihoods support (short-term work) which includes 54% WESTERN AMMAN
BAHR EL JONGLEI
Jordanians, 46% Syrians, 45% women, 55% men, 3.6% GHAZAL
Israel LAKES
Persons with Disabilities | 138,000 people in the
PEOPLE SUPPORTED surrounding area of the four parks
WESTERN EASTERN
BY THE PROJECT
Second phase (planned)| 420 HHs provided with Egypt EQUATORIA EQUATORIA
Saudi Arabia
CENTRAL
livelihoods support (short-term work) which includes 50% GWEIRAHEQUATORIA
Jordanians, 50% Syrians of which 30% women including
3% Persons with Disabilities | 19,000 people in the
Project Location
surrounding area of the two parks
First phase | 4 public spaces rehabilitated PROJECT SUMMARY

(28,400m2 of land) | Public space management
As cities become denser, access to green public
and maintenance in 4 locations | 463 trees and 1,639 shrubs spaces becomes more and more important
planted | 656 workers benefitted from short-term work as a space to socialise and play, contributing
and skills generation to social cohesion, health and wellbeing. This
PROJECT OUTPUTS
Second phase | 2 public spaces to be rehabilitated project in Jordan supported the rehabilitation
(14,265m2 of land) | Public space management and and maintenance of public spaces through Cash
maintenance in 2 locations | 275 trees and 4,000 shrubs to for Work, using a participatory design approach.
The rehabilitation of the public spaces not only
be planted | 420 workers to be benefitted from short-
improved the settlement’s assets, but provided
term work and skills generation
short term work to more than 1000 workers,
fostering employability through trainings and
DIRECT COST
First phase | USD 1,550,557 for four interventions labour market services, creating social cohesion
Second phase | USD 751,135 for two interventions between Syrian and Jordanians, and contributing
to women’s empowerment, including People
PROJECT COST
First phase: USD 1,924,052 for four interventions with Disabilities. The added value of this initiative
Second phase: USD 1,080,000 for two interventions helps one to reflect on the importance of
rehabilitated public spaces and its positive affects
*Jordan - Statistical Report on UNHCR Registered Syrians, March 2022 on the local community.
© AVSI
Women from the community involved in mosaic work for a wall in Janaa park, Zarqa, 2020.

MIDDLE EAST A.25 / JORDAN 2018-2023 / SYRIAN CRISIS CONFLICT
1 2 3 4 5 6 7 8 9
IMPLEMENTATION PHASE 1
PROJECT
PLANNING IMPLEMENTATION PHASE 2
CONTEXT
CONFLICT
TIMELINE AUG FEB MAR JAN FEB NOV DEC JAN NOV DEC JAN SEP NOV MAR APR MAY JUN
2017 2018 2019 2020 2021 2022 2023
2011: Unrest and conflict in the Syrian Arab Republic. 3 Dec 2021: Rihab and Djenieh park (Mafraq Governorate) rehabili-
tated. Janaa park handover to the municipality.
* MoUs signed with different municipalities at all stages of the project. 4 Aug - Sep 2022: Trainings to mainstream the protection com-
ponent in CfW interventions, especially towards children, gender
Engagement of the community on a regular basis since Mar 2018. and People with Disabilities issues.
Community events in the parks rehabilitated on a regular basis 5 Sep 2022: Public spaces networking event which served as a kick-
throughout the project timeline. off moment to unite the stakeholders and ignite debate.
6 Mar 2023: Potential extension (phase 3) including new locations
Creation of steering committees at the end of each intervention. and additional cash workers.
On the job training for CfW workers on construction sector, and 7 Apr 2023: Queen Noor park handover to the municipality.
planting and upkeeping community garden activities.
8 May 2023: Djenieh park handover to the municipality.
1 Feb 2019: Gweirah park and Humayma park (Aqaba Governo-
rate) rehabilitated. Gweirah park handover to the municipality. 9 Jun 2023: Rihab park handover to the municipality.
2 Nov 2020: Janaa park and Queen Noor Park (Zarqa Governo-
rate) rehabilitated. Humayma park handover to the municipality.
CONTEXT The rapid population growth put immense pressure on

Jordan and its people, forcing them to compete for jobs,
As of figures from March 2022, Jordan was host to 1.3 water, electricity, and food. In many municipalities, infra-
million refugees, of which 674,148 were Syrian. About 19 structure no longer met the needs of the growing popu-
percent of this Syrian population has been identified as lation and municipalities lacked the resources to maintain
having a specific need, including serious medical conditions and create public open spaces. Jordan is one of the most
(10.1 percent), specific legal or physical protection needs arid countries in the world, and during the rapid process
(4.4 percent) and/or children at risk (3.7 percent). Jordan of urbanization – the planning of public green spaces was
is the second largest refugee‑hosting country per capita in not prioritized.
the world, after Lebanon.
Adequate and accessible green open spaces are a key factor
Moreover, since the beginning of the Syrian refugee to human well‑being as they stimulate recreational activi-
response, the country has allowed for refugee inclusion in ties and support social cohesion. Functional public green
critical areas including education, health care, and (most spaces, networks, and recreational areas are essential for
recently) universal access to the national COVID‑19 health the improvement of the urban climate, which can foster
response and vaccination program. biodiversity and contribute to climate change adaptation.
The displacement of refugees from Syria is protracted, while At the time of implementation, the unemployment rate
national, regional, and global socio‑economic dynamics in in Jordan was around 19 percent and there were few job
recent years provoked shocks that deepened the vulner- opportunities in the low-wage sectors – of which, not
abilities of the population across Jordan. The COVID‑19 all were open to non-Jordanians. As a result, the living
pandemic further exacerbated pre‑existing challenges, conditions of refugees and vulnerable Jordanians in urban,
including poor economic performance at the national level, suburban, and rural areas were deteriorating rapidly. Under
food insecurity, water scarcity, high electricity tariffs, and the economic pressure, environmental challenges were
weak infrastructure. It has also significantly reduced access not regarded as a priority, yet Jordan’s natural systems are
to livelihoods for refugees and host communities. extremely fragile.
SITUATION DURING/AFTER THE CRISIS NATIONAL SHELTER STRATEGY

By June 2019, more than 664,000 refugees from Syria While there was no specific national strategy for public
were officially registered in Jordan according to UNHCR. spaces, the Jordan Response Plan (framework addressing
However, a large number were not officially registered as the Syrian crisis in Jordan) indicated two main pillars:
refugees under the Geneva Convention. Refugee/Humanitarian and Resilience. These consisted
This influx resulted in more than a ten percent increase of three components: Refugee Needs, Host Community
in the country’s population in just a few years. Around 80 Needs, and Infrastructure and Institutional Capacity
percent of refugees would not live in refugee camps, but in Development. Therefore, projects should contribute
host communities such as urban areas. toward the self‑reliance of Syrian refugees while main-
taining quality services for the host community.

© Farah Tell
© Farah Tell
Before and after images of Janaa park, taken in 2019 and 2021 respectively. The community was involved in each phase of the intervention, from design to implementation.
PROJECT DESIGN/STRATEGY the space and empowered women and youth to inhabit
other public spaces in their community, which made them
The objectives of the project were to support the rehabil- more visible in the public sphere and promoted equal
itation and maintenance of public spaces using a participa- access and ownership.
tory design approach, and to create short‑term employ-
ment opportunities, skills, and employability. IMPLEMENTATION
This was achieved using a labor‑intensive approach (Cash-
MUNICIPALITY-LEVEL MOUS
for-Work [CfW]) which benefited both displaced persons
(Syrians) and host communities (Jordanians). The laborers Engagement with local authorities played an important
raised walls, installed benches, planted trees, created picnic element in the sustainability and ownership of the project
areas, and restored parks, playgrounds, and sports facilities, through joint planning, induction sessions, and the co‑de-
using local materials to minimize the impact on the environ- sign of activities. In preparation for implementation and
ment. The project paid particular attention to the needs prior to their commencing, memorandums of under-
of women and girls in public, especially regarding safety standing (MoUs) were signed with municipalities to agree
in public spaces and gender‑based violence (GBV)‑related and define tasks, roles, and responsibilities.
issues. All CfW activities targeted also women and girls,
PARTICIPATORY DESIGN PROCESS
enhancing their livelihood capacities through marketable
skills development (e.g., mosaics, paintings, and planting). The project design phase was conducted in collaboration
These activities also employed Persons with Disabilities in with the community and local stakeholders through co‑de-
the rehabilitation – creating a safe and comfortable work sign workshops. This approach had several benefits such
environment that responded to those specific needs.as as fostering community involvement, enhancing ownership,
well as capacity building for both the host community identifying community strengths, and generating realistic
skills development (e.g., mosaics, paintings, and planting). expectations about the project. Co‑design workshops with
These activities also employed Persons with Disabilities in the municipality and local community managed expecta-
the rehabilitation – creating a safe and comfortable work tions and the need for the open green spaces that were
environment that responded to those specific needs. incorporated into a proposal for the rehabilitation work.
The workshops also offered an opportunity to provide
Around 1,000 workers were employed for at least two
information about the CfW initiative and register potential
months in three locations. Of these, 50 per cent were
workers.
vulnerable Jordanians, and 50 percent were Syrian refugees.
About 40 percent of the total were women. The workers CASH-FOR-WORK
benefitted from on‑the‑job training in mosaic production, One objective of the project – the creation of job oppor-
mural painting, earth, and stone construction, planting, tunities for the local community – was maximized using a
and training in life skills, and labor market services. More labor-intensive approach which required a large workforce.
than 30 training sessions were completed, and also more The construction techniques for the proposed open green
than 30 community events such as co‑design workshops, spaces follow these criteria: Proposals were a) labor-inten-
planting, women’s and children’s sessions, and inauguration sive, b) technically feasible with an unskilled workforce, and
events were organized to promote ownership of the parks c) environmentally friendly, using locally available materials
by the community and raise awareness of environmental and resilient planting using low water consumption of
topics. native species to reduce negative environmental impact.
Youth were engaged in awareness sessions and recre- Although these criteria were prioritized, some essential
ational activities to spread awareness on the value of public urban furniture elements such as playground equipment,
spaces. Women requested dedicated events to address pergolas, and lighting needed to be delivered and installed
women’s‑related issues and to spend time together in a using skilled local contractors, who were also requested
comfortable space. This engagement improved the use of to train unskilled cash workers in construction techniques.

© Farah Tell
© Farah Tell
Before and after images of Humayma park, taken in 2019 and 2020 respectively. Safe spaces for women were created, taking in account their needs and expectations.
identified and included in community engagement, psycho-

social and recreational activities. Engaging the individuals
reduced the risk of incident recurrence by exhibiting the
value of the open space for the community.
MAINTENANCE: After the handover of the parks to
the municipality, women maintenance committees were
established in each location to ensure day‑to‑day main-
tenance in coordination with the community, municipal
© Dania Tondini
authorities, and key stakeholders. This provided a contin-

uous presence in the parks to ensure the longevity of the
greenery planted and the replacement of those that had
died, allowing a continuation of awareness raising in the
Textile production process carried out by the women in the community, local community and municipality on the importance of
Gweirah, 2019. proper maintenance and use of the park and strengthening
the space management committee – giving women more
visibility in the public sphere.
TARGETING
LOCAL AUTHORITY ENGAGEMENT: In one case,
Worker registration was conducted via a public announce- the organization faced challenges in engaging local munic-
ment, followed by a vulnerability assessment of each ipal authorities, which resulted in the limited use of the
candidate using the following criteria: household income, park. Without municipal authority support, it was not
household size, household members’ age and condition possible to guarantee maintenance and surveillance after
(presence of pregnant women, Persons with Disabilities or regular working hours. The park remains functional almost
illnesses, etc.), and housing tenure (rented/owned). every day during daylight.
COORDINATION CROSS-CUT TING ISSUES

There is a clear need in Jordan to restart and mainstream The parks were transformed into a safe space where
a debate around public spaces. A lack of commitment women can socialize and spend time with their children
and technical/financial capacity is one of the constraints and friends. The initial assessment found that the areas
identified in previous public space interventions in Jordan, lacked a recreational space where children and families
jeopardizing the sustainability of such initiatives. could spend time together and meet with other people
To influence the national debate around public space, the from the community. From a safety and security point of
implementing organization kicked off a debate on public view, women wanted a quiet, clean, and pleasant space
spaces in Jordan through a networking and discussion where they could stay without being harassed, fearing for
event hosted in Amman in June 2022. This was followed by their children, or suffering from the heat.
field visits to several municipalities to show, document, and Additionally, Cash-for-Work activities engaged Persons
discuss innovative practices for public space creation and with Disabilities, providing them with opportunities to
management while highlighting social benefits and commu- learn new skills and connect with new people. Moreover,
nity impact. by including Persons with Disabilities’ voices in the design
of the intervention, the implementing organization was
MAIN CHALLENGES able to consider specific aspects and elements to ensure a
friendly and inclusive architectural space (e.g., ramps, hand-
VANDALISM: Some cases of vandalism by local youth
rails, colorful signals, etc.).
were observed during the project. The individuals were

© Farah Tell
© Farah Tell
Before and after images of the terrace area in Janaa park, taken in 2019 and 2021. 463 trees and 1,639 native shrubs were overall planted during the first phase.
The rehabilitation of green public spaces contributed to accompaniment, took ownership of the park since the
the overall improvement of neighborhoods from a social, rehabilitation works and oversaw daily maintenance. The
economic, and environmental point of view. Environmental open spaces were transformed into safe spaces for women
awareness sessions and events were organized, and partic- where they could socialize, spend time with their children
ipants were trained on how to take care of the park, and friends and organize communal activities. By including
respect, and upkeep the environment. women in the design, implementation and maintenance of
public spaces, the project created a space which responded
EXIT/HANDOVER to their needs and expectations.
After the handover of the parks to the municipality, a The project was observed with interest by other munic-
presence was maintained through support to the space ipalities who requested it to be expanded to six parks in
management committees, employing women’s mainte- the center and north of Jordan. The project showed also
nance committees, and organizing regular community how the CfW approach can be used to create, rehabilitate
events. This helped to ensure a smooth transition, allowed and maintain inclusive public spaces in a participatory and
the trees and plants to settle and grow, and promoted sustainable way, reducing social tensions and contributing
the ownership of the parks by the local community and to smarter cities. In response to positive project feedback
municipality. from engaged communities, the implementing organi-
zation encouraged the creation of Space Management
Committees (SMC). The SMCs would oversee decisions
WIDER IMPACTS
on the future scope of the parks, as well as organizing
Through the project: events and activities for children and other attendees of
• Six public green spaces were rehabilitated. the space.
• A total of 1,000 people were trained and provided
with short-term work.
• More than 30 community events were organized.
The project was conceived as a second phase and scale-up
© Franco Sciorilli
of a previous project implemented in 2018 in the south

of Jordan, which consisted of two rehabilitated and
reopened parks in Gweirah and Humayma. Women, who
previously were unable to leave their homes without male
Mosaic training for women, Humayma Park, 2019.
© Farah Tell
© Farah Tell
Before and after images of the grandstand area in Janaa park, taken in 2019 and 2021. The project encouraged the use of locally available materials in its construction.

√ Empowering women to safely and comfortably x The project faced a lack of municipality commitment
inhabit public spaces in their communities would also in one location. The park is only partially open during
enhance their visibility in the public sphere. municipality working hours, not allowing the local
√ CfW provided equal access to opportunities community to enjoy the facilities on a regular basis.
and resources for people who might otherwise be x Challenges to the long-term maintenance of parks
excluded (women, Persons with Disabilities, etc.). By remained due to a lack of awareness concerning the
engaging people from different backgrounds, social value and importance of green open spaces. Financial
cohesion was fostered, facilitating exchanges and rela- resources will also be needed to implement mainte-
tionships between the host community and displaced nance interventions.
population.
x CfW is a valid option in contributing to enhanced skills
√ CfW opportunities enhanced skills development and employability. However, to meaningfully enhance
in target communities while building a better under- worker employability post-intervention, it must be
standing of the job market in the area and of the part of a wider program supporting additional
possible opportunities for cash workers and their new actions that directly affect skills development.
skills through a comprehensive labor market services
component.
√ The promotion of training in traditional Jordanian
techniques, such as mosaic and stone production,
enhanced the dissemination and safeguarding of
cultural heritage.
© AVSI
Children at Gweirah park after rehabilitation, 2020.
LESSONS LEARNED
• Holistic public space rehabilitation: The rehabilitation of public spaces can be instrumental not only in
improving green infrastructure, but also in providing short-term employment, fostering employability through
trainings and labor market services, creating social cohesion between Syrian and Jordanians and contributing to
women’s empowerment and Persons with Disabilities inclusion.
• Participation and Sustainability: Enhanced participation is necessary for project sustainability. In this project,
participation is promoted in the design phase, through the implementation of the works and during mainte-
nance with the establishment and follow-up of the space management committees.
• Social cohesion: Through CfW it is possible to foster inclusiveness and social cohesion, by providing equal
access to opportunities and resources for people who might otherwise be excluded by creating safe working
environments.
• Empowering women: This intervention, while enhancing accessibility to open green spaces, also serves to
empower women in safely and comfortably inhabiting public spaces in their community, making them more
visible in the public sphere and promoting fair and more equal access. The inclusion of women in the design,
implementation and maintenance of public spaces was crucial in creating spaces which responded to their
needs and expectations.
• Safeguarding the cultural heritage: CfW can be extended beyond traditional sectors such as agriculture into
green infrastructure and cultural heritage preservation through training in traditional local techniques such as
mosaic production and stone construction.

On Jordan: A.20 / JORDAN 2018–2020; A.12 / JORDAN 2014; A.10 / JORDAN 2013
On environmental sustainability: A.4 / DEM. REP. OF THE CONGO 2019–2020; A.11 / BANGLADESH 2018–2021
On Cash-for-Work: A.8 / SOUTH SUDAN 2017–2018; A.12 / BANGLADESH 2019–2020

DISASTER A.26 / LEBANON 2020-2022 / BEIRUT PORT BLAST MIDDLE EAST
CASE STUDY LEBANON 2020–2022 / BEIRUT PORT BLAST

KEYWORDS: Area based approach, Housing rehabilitation, Infrastructure, Urban neighborhoods
CRISIS Beirut Port Blast
PEOPLE 200+ people dead*

AFFECTED
6,500 people injured*
PEOPLE DISPLACED 300,000 people** Mediterranean sea
BEIRUT
WARRAP
HOMES DAMAGED 73,000 apartments in 9,200 buildings damaged*
JONGLEI
PEOPLE WITH LAKES

SHELTER NEEDS 219,000 people*
Syria
WESTERN EASTERN
PROJECT EQUATORIA
Burj Hammoud, Beirut EQUATORIA
LOCATION CENTRAL
EQUATORIA
Israel Project Location
PEOPLE 206 HHs (710 ind.) through shelter repairs
SUPPORTED BY 283 HHs and businesses (1190 direct and indirect PROJECT SUMMARY
THE PROJECT
individuals) through Urban Recovery The project responded to the shelter
needs in the aftermath of the port blast,
206 shelters and 24 shopfronts repaired (154 shelters which shook a country with heightened
supported with light repairs and 52 with moderate repairs ) social tensions, and collective psychological
PROJECT exhaustion due to an unprecedented
OUTPUTS 1 urban recovery project implemented (rehabilitation of 11 financial crisis, unemployment, crippled
building facades, installation of 21 streetlights and cable management public services, inflation, and Covid-19
along 230 l.m. of streets, creation of a green public space) lockdowns. The project seeked to support
the recovery of affected households
Cost of shelter repairs: USD 329,022 (USD 1,597 per HH) including an urban recovery component
DIRECT COST Cost of shopfront repairs: USD 50,000 (USD 2,083 per shop) that engaged the wider community,
significantly contributing towards improved
Cost of urban project: USD 99,220 (USD 350 per HHs & business)
access to services that enhanced safety and
security and promoted social cohesion.
PROJECT COST USD 1,153,000 approx.
* The humanitarian response to the Beirut port explosions: Lebanon 2020 Flash Appeal - End report
** Leduc, Clémence. “The Beirut blast and what it says about how displacement is monitored.” IDMC, 1 Sept, 2020
1 2 3 4 5 6
HANDOVER
PROJECT
PLANNING IMPLEMENTATION PHASE 1 IMPLEMENTATION PHASE 2
CONTEXT
CRISIS
TIMELINE AUG SEP OCT NOV DEC JAN FEB MAR APR MAY JUN OCT NOV DEC JAN FEB
2020 2021 2022
Aug 2020: Explosion took place in the Port of Beirut causing a
blast wave that radiated through the city and beyond
1 Aug 2020: Monitoring of information and data shared through
The Associated Press
emergency coordinating bodies.

2 Sep - Oct 2020: A strategic partner was identified and scope
of partnership was developed. Four implementing partners were
selected and trained on implementation and programmatic tools.
3 Nov 2020: Zone 78 and 79 were assigned to the organization for
Humanity
implementation of minor and moderate rehabilitation and repair.

Malla,
4 Feb 2021: Identification of urban recovery interventions after KI-

interviews, transect walks across neighborhoods, and focus group
Husseinfor
discussions with the community.

© Habitat
5 May - Jun 2021: HH assessments were conducted and new area

was selected through Area based Approach (ABA).
6 Nov 2021: Completion of After-Action Review (AAR). Lessons A massive explosion damaged 9,200 buildings across the city of Beirut, sending
learned influenced implementation in the new zone. a giant mushroom cloud into the sky while leaving 300,000 people displaced.

MIDDLE EAST A.26 / LEBANON 2020-2022 / BEIRUT PORT BLAST DISASTER
CONTEXT
On 4 August 2020, an estimated 2,750 tons of ammo- The devaluation of the Lebanese pound meant that many
nium nitrate – a fertilizer and highly flammable substance families found themselves unable to cover basic needs.
– exploded in the Port of Beirut on the city’s northern For the Syrian and Palestinian refugees in the country, the
Mediterranean coast, causing a blast wave that radiated economic crisis caused a greater need for social assistance
through the city and beyond. The explosion destroyed a to cover basic needs, including rent.
section of the shoreline, and homes as far as ten kilometers Some refugees moved from residential areas to informal
away were affected by the blast. The Governor of Beirut settlements. However, registered Syrian refugees continued
estimated that roughly 300,000 people were displaced by to receive cash benefits in USD through local NGO cash
the explosion and that 40,000 homes and apartments were programming.
damaged and required demolition – with at least 150,000
windows needing installation. The following period brought This discrepancy, along with competition over limited
a shortage of aluminum and glass, and a severely disrupted employment opportunities, gave rise to social tensions
supply chain due to the port’s destruction and the global between the host community and refugee groups and
and national COVID-19 lockdowns. increased perception of aid bias.
The country was already suffering a severe economic crisis UN Habitat’s Geographic Poverty Index labels Burj
with a local currency devaluation at almost 95 percent, Hammoud, one of the areas most impacted by the explo-
which complicated the import of additional resources and sion – and one of Lebanon’s most densely populated neigh-
exerted significant upwards pressure on the cost of essen- borhoods – as majority poor. It is a commercial, residen-
tial goods and construction materials to support recovery tial, and industrial town. Historically, it was home to the
and reconstruction. Lebanese Armenian community after the First World War,
and it received displaced Lebanese during the Lebanese
Damage from the explosion was categorized into three civil war.
levels, as per the inter-agency coordination map:
Over the years, however, migrant workers from Bangladesh,
Level 3: Within 1 kilometer of the port. Major structural Ethiopia, Sri Lanka, and Egypt have flocked to the neigh-
damage to buildings. borhood seeking affordable rent, and more recently, even
Level 2: Within 2 kilometers of the port. Home to 750,000 Syrian refugees who work in its bustling small businesses
people. Windows and doors shattered, and some balco- or the port nearby.
nies collapsed. Damage within this area was classified as mostly light and
Level 1: Within 3 kilometers of the port. Minor damage, moderate, whereby light damage (level 1) was identified as
such as windows damage and cracks in older structures. any level of building damage such as broken glass, broken
doors, locks, or the collapse of a false ceiling with no struc-
Authorities estimated that initial total property damage tural damage. It meant that the shelter remained habitable
was as high as USD 10-15 billion. for the family with no or minor compromises on safety,
security, and access to services, including water, sanitation,
SITUATION BEFORE THE CRISIS and electricity.
Amidst a stagnant economy and high unemployment, the Moderate damage (level 2) was greater than level 1, but
Lebanese Government announced taxes on fuel, tobacco, still with no structural damage. At level 2, the house was
and VoIP applications such as WhatsApp in October either not habitable or it was habitable with the safety
2019. This triggered nationwide protests and signaled the and security of the premises significantly compromised.
beginning of an ongoing economic and financial crisis which Services including water, sanitation, and electricity were
resulted in the widespread loss of livelihoods. either not or only partly accessible.
© AP Photo, Felipe Dana
© AFP, Anwar Amro
An estimated 40,000 homes and apartments were damaged and required demolition – with at least 150,000 windows needing installation. A shortage of aluminium
and glass, and a severely disrupted supply chain due to the port’s destruction and the global and national COVID-19 lockdowns was witnessed during this time.

SITUATION AFTER THE CRISIS PROJECT DESIGN
The COVID-19 pandemic and the port explosion were The implementing organizations carried out early recovery
catastrophic for both the Lebanese and the refugee popu- activities (housing rehabilitation and repair work) in the
lation. Unofficial estimates rated unemployment at approx- areas identified and assigned by the Shelter Working
imately 44 percent in 2021, while the Economic and Social Group. In addition, they repaired some small stores and
Commission for Western Asia (ESCWA) studies stated businesses affected by the blast to restore their livelihoods.
that multi-dimensional poverty reached a staggering 82
Project teams employed common approaches to support
percent in 2022 (Multi-dimensional poverty measures
affected households and communities recovering from
households deprived along three dimensions of well-being
the Beirut port explosion including the use of participa-
– monetary poverty, education, and basic infrastructure
tory methodologies which allowed communities to be
services – to provide a complete picture of poverty).
meaningfully engaged in decision-making on activity design,
In reaction to the explosion, the government declared a including shelter repairs and the identification of commu-
two-week state of emergency. Protests and public outrage nity micro-projects. Such shelter interventions applied
towards the government’s performance caused the cabinet community-based and settlement-based approaches,
to resign on 10 August 2020. Many residents in Burj operating at multiple scales to strengthen local capacities.
Hammoud were temporarily moved out of their homes
The project focused on providing light and medium repairs
and sought to live with relatives and friends, returning
to damaged homes and communal infrastructure, rehabil-
to their area of residence only following humanitarian
itating public spaces and small businesses, and providing
interventions and aid. The explosion also damaged busi-
technical assistance on shelter issues to households and
nesses, causing significant economic disruption for the local
local organizations.
community. Lebanon’s housing stock had been neglected
and poorly maintained pre-crisis, its decay post-crisis was The project also aimed to empower the community by
striking to intervening actors. providing opportunities for self-reliance and building local
capacity through targeted livelihood initiatives. Project
NATIONAL SHELTER STRATEGY/RESPONSE Objectives were as follows:
• Objective 1: The most vulnerable affected households
UN agencies and the Lebanese Armed Forces led the
regain access to safe, secure, and dignified shelter
response to ensure that humanitarian assistance reached
through direct support to selected partners.
the most affected, with partners under the Lebanon Crisis
Response Plan (LCRP), developed by the Government • Objective 2: Local partners implementing shelter &
of Lebanon and the UN to support displaced Syrians, settlement recovery programs have increased capacity
vulnerable Lebanese, and Palestinian refugees in Lebanon to support affected families and neighborhoods
expanding and adapting their services. The UN launched a through the provision of technical assistance.
comprehensive response in three phases: immediate relief,
Activities included minor repairs (up to USD 1,500),
early recovery, and reconstruction. The strategy involved
moderate repairs and rehabilitations (up to USD 4,500),
the establishment of a specific coordination structure
shopfront repairs, urban recovery programming, and
under the Humanitarian Coordinator’s leadership to facil-
mentoring and capacity building of implementing partners.
itate joint needs assessments and alignment in collective
Repairs were categorized based on damage from the blast,
response strategies, and the oversight of the principled
accounting for pre-existing shelter vulnerabilities such as a
delivery of emergency assistance. The strategy included
lack of sanitation, lighting, ventilation, waterproofing, etc.
the issuance of a flash appeal, seeking USD 354.9 million to
support the collective response to the most urgent protec-
tion and humanitarian needs of the affected population.
Through coordination with the shelter working group
and as per the Shelter Partner’s Distribution, the imple-
menting organizations were assigned to two areas in Burj
Hammoud, within a 3-kilometer radius from the blast with
minor and moderate damage.
The response to the Beirut port explosion continued to
evolve and gradually shifted towards providing cash assis-
tance to increase households’ purchasing power for food
and other necessities and interventions to support longer-

term recovery and reconstruction. Early recovery activi-
ties, such as cash-for-work, support for small and medium
enterprises, and recovery and reconstruction work were
conducted and integrated into the Reform, Recovery, and
Reconstruction Framework.
Construction work on a building facade as part of the urban recovery project.

IMPLEMENTATION Following the completion of work in designated zones, the

implementing entities switched to an Area Based Approach
The international partner agencies met with the Burj (ABA) in the newly identified Maraash zone, due to the
Hammoud municipality to coordinate the response and multi-sectoral needs identified (such as food, health, and
initiated conversations with potential local partners to welfare) and the high level of vulnerability of its population.
agree on the approach to adopt. Due to the economic/
financial and fuel crisis, the country faced local currency This urban recovery intervention aimed to enhance the
devaluation and fluctuating prices. community’s well-being and contribute to social cohesion
within the neighborhood and focused on four components:
A contractor-led approach was therefore taken to avoid an open space upgrade, managing entangled cables, lighting
price changes for items, as contractors were obligated to streets, and rehabilitating building facades.
comply with initial quotations submitted for the duration
of the project. Also, a contractor-led approach would The design of the open space included elements that
require fewer monitoring visits to households than a considered sustainability, durability, safety, and inclusivity
tenant-led approach, which was preferable considering the for people of different age groups, genders, and abilities.
COVID-19 outbreak. The space featured LED lighting, native plantings, heavy-
duty furniture, rainwater harvesting, toilets for people
Various additional tasks were undertaken, such as the with disabilities, a children’s play area, murals, shading, and
repairing or reinstalling of windows and doors, installing a steel fence for safety. The design for the open space was
safer electrical and lighting solutions to reduce the risk of discussed with the community in a Focus Group Discussion
fire, upgrading kitchen and bathroom facilities to improve (FGD) and was coordinated with the municipality.
functionality, weatherproofing to prevent moisture, and
addressing any dampness or mold on walls and ceilings
TARGETING
that could cause health issues. These tasks were essential
in restoring minimum habitability standards and creating a Given the context and the similarity in damage within
comfortable living environment for participants. the same area, partner agencies decided to conduct a
Another crucial addition was the installation of mapping of households through door-to-door assess-
handrails on balconies and stairs to enhance safety. ments. Eligibility was determined based on shelter damage
Output targets and unit costs for light and moderate resulting from the blast. When partners expanded to the
repairs were based on sector estimates of approximately urban recovery project in the Maraash area, it was decided
USD 1,500 for light repairs and USD 4,500 for moderate to identify which households still had damage from the
repairs. The targets were adjusted based on actual needs blast through referrals from the municipality and referrals
according to the results of the assessment. received from the field by community members.
As part of the shelter repairs, tripartite agreements were

signed for rental units between the implementing entity,
targeted tenants, and landlords, stipulating a rent freeze for
households for 12 months, in addition to refraining from
evicting the tenant household from the housing unit.
A Housing, Land, and Property (HLP) guidance note
in the context of the Beirut blast was developed by the
© Rawan Mazeh
implementing organization and disseminated to the shelter

sector actors. HLP material with information on tenants,
housing, and land rights was also developed to be dissemi-
nated in targeted communities.
Small businesses were unable to cover the repairs cost. They were at high risk
However, these were not eventually disseminated to others of closing down and required assistance in fixing damage caused by the blast.
as advised by the local authorities to avoid any community
tensions between landlords and tenants.
Partners conducted regular visits to monitor repairs, check
the quality of materials used, and ensure the repairs were
done based on the agreed Bill of Quantity (BOQ) and with
the desired quality. A site inspection tool was developed for
monitoring visits. Once repairs were complete, the project
team would inspect and sign a handover document with
© Rawan Mazeh
the participant and conduct a survey measuring the level

of satisfaction with the quality of repairs, safety measures,
accountability, COVID-19 measures, the contractor used,
workers, and staff behavior and conduct. The survey
demonstrated overall positive feedback from participants. A house repaired after the explosion including windows and doors restoration,
fixing of plumbing lines, and installation of water heater.

COMMUNITY ENGAGEMENT The refusal of some tenants and landlords to sign three-
party agreements prevented the intervention in some
Project teams worked to ensure transparency in commu- vulnerable households. Following the handover of the
nication with participants throughout the project’s time- public space, the municipality struggled to maintain opening
line. Clear and consistent communication on the role hours due to financial and labor restrictions. Opening
of partners, what to expect in terms of implementation hours were then limited to municipal staff availability.
and the duration of the rehabilitation works allowed the
participants to feel included in the project and built trust
EXIT/HANDOVER
between service providers and household residents.
To help ensure engagement, project teams conducted Household participants signed a clearance form stating
community consultations, established a community that all work agreed with them had been executed per
committee, and liaised with local authorities, community quality standards. Concerning the urban recovery project,
leaders, and various community members. an opening schedule and maintenance plan for the public
space were shared with the municipality to ensure owner-
By involving affected people in the project, the imple- ship and handover.
menting entities were able to: Improve shelter quality,
helping to ensure that interventions meet shelter needs and To formalize the completion of the project, an official
preferences leading to better outcomes for the community opening ceremony of the public space took place and
and empower the community, allowing affected people included municipal officials and community members.
to be aware of key activities, involving them in the deci-
sion-making processes, and enhancing ownership of the OUTCOMES AND WIDER IMPACTS
project.
A total of 154 households were supported through essen-
tial minor repairs and rehabilitations and 52 households
MAIN CHALLENGES were supported through essential moderate repairs and
Limited resources: the crisis put a strain on the country’s rehabilitations.
resources. This made it more difficult for organizations to A total of 24 shopfronts were repaired because of finan-
secure all necessary funding and materials to carry out and cial and technical assistance provided by the implementing
cover all needs. entities and local implementing partners.
The disruption of supply chains due to the pandemic One urban recovery and rehabilitation project in the
outbreak in addition to the currency devaluation increased Maraash neighborhood of Burj Hammoud in Beirut was
the cost of materials, fuel, and transportation needed for conducted. Urban recovery activities included the instal-
projects, construction materials, and supplies. lation of 21 energy-efficient streetlights and electric cable
This resulted in higher and fluctuating project costs, which management along 230 linear meters of streets, essential
were challenging for planning and implementation, and repairs to 11 building facades, and the creation of a green
heavily impacted the creation of BoQs. and open-public space prioritized for use by women, youth,
and the elderly.
Sporadic strikes and road blocking continued after the
blast and made it difficult for teams and contractors to A total of 13 workshops and training were provided to
commute to the project areas which posed a challenge to four local partners, where topics focused on: minimum
implementation and project activities. shelter standards, implementation processes and tools,
monitoring, tendering and procurement, database manage-
It was difficult to find suitable land, especially for communal ment, referrals and service mapping, and an after-action
projects as open spaces in the target areas are limited. review.
The urban recovery intervention aimed to enhance the community’s well-being An official opening ceremony of the public space took place and included
and contribute to social cohesion within the neighborhood. municipal officials and community members, for a formal handover.

√ Process and sequencing: site division amongst partners x Local implementing partners had limited experi-
within a defined area and referrals from municipality ence and required additional training.
actors aided in reaching participants in high need. x Participants made direct requests to contractors
√ Light Monitoring survey that measured factors such without implementing entity approval, requiring addi-
as COVID-19 measures, contractor performance, tional support for local partners in terms of partici-
quality, and safety of work fostered the building of pant management.
trust between partners and participants. x Inability to ensure environmentally friendly and
√ The registration database resulted in the creation of sustainable solutions for both shelter and urban
substantial data that allowed for strong referrals to recovery projects due to budget allocation.
other organizations. x The international partner organizations were not
√ Strong coordination between the contractor, engi- registered in the country, which limited their ability
neer, and participants ensured a timely and quality to influence the sector – specifically in the HLP
implementation and delivery, enhancing the inclusion component, whereby their ability to call for a nation-
of participants in the decision-making processes. al-level housing forum or dialogue was affected.
√ Adherence to minimum building standards resulted in x There is a need to update stakeholder mapping of
positive feedback from participants on construction available services and build referral SOPs that ensure
safety and quality. acknowledgment of referrals by service providers,
at minimum. The referral system used did not track
√ Approximately 92 percent of households responding services by other service providers. Conducting
to the satisfaction survey reported feeling safer case management for referral services would better
because of shelter repairs and communal interventions. serve targeted communities and complement the
√ All surveyed households reported that they were intervention.
satisfied or somewhat satisfied with the quality and
type of materials used in the shelter repairs.
√ All surveyed households were either satisfied or
somewhat satisfied with the execution of the works
by the contractor and labor.
LESSONS LEARNED
• Many of the successes of this project can be attributed to actions taken in the planning and design phase as
the project team anticipated challenges and took steps to mitigate them. Through careful planning, the local
partners were able to implement project activities and complete the repairs with a minimum number of home
visits.
• Clear lines of communication and a unified vision and tools (planning, tracking, scoring, and monitoring tools)
allow for quality and timely implementation and the exchange of experiences and learning.
• Many actors conducted assessments and left the affected area without following through with the communities
or enacting interventions. Focusing on a geographically bound area allowed the implementing agencies to build
trust with community members and enabled successful implementation and recovery efforts.
• Agility in implementation and adaptability of the team is key to delivering an effective response. The imple-
menting partners’ ability to make quick amendments to the BoQs, provide complementing referral services for
excluded households or those in need of additional humanitarian assistance, and continued presence on the
ground to ensure proper coordination with the local authorities and different actors proved to be essential for
a timely and quality response.
• A holistic integrated approach should be used when supporting crisis-affected communities from the outset
of the intervention, to meet household and community-level needs in target areas through infrastructure and
shelter repairs within the same geographically bound zone.
• Before the development of any learning material, dissemination channels should be pre-determined to ensure
optimal sharing.

• The project should benchmark social cohesion levels to enable an accurate and evidence-based assessment of
the contribution to social cohesion at the community level. This is especially necessary as the intervention set
out to strengthen the social fabric and mitigate tensions within and between neighborhoods in the communal
project’s component as part of the original design.
• Projects should build MEAL systems with enhanced metrics while conducting baseline studies for outcomes
measurement. Stronger MEAL systems would inform and support the quality of implementation, enhance
accountability to the affected population, and produce evidence and learning more systematically and
methodically.
• The intervention should be designed with a gender lens, in addition to prioritizing households from a gender
perspective and conducting a gender assessment to inform program activities. This was not possible at the time
of implementation because the local partners did not have this technical capacity in-house.
• Establishment of a community-based feedback mechanism with clear SOPs on feedback and complaint handling
and resolution – although a feedback reporting mechanism was already established by the partners, it did not
have methodical or systemic parameters or oversight by the implementing entity, and feedback was handled
by partners.
• Include energy-efficient shelter solutions like rechargeable LED lights, water-saving sanitary ware, etc. in current
projects to ensure more sustainable and environmental-friendly interventions.
• Networking opportunities afforded to us through this project will allow us to plan with relevant housing stake-
holders to develop more innovative and crosscutting solutions.

On Lebanon: A.21 / LEBANON 2018 – 2021; A.31 / LEBANON 2015-2016
On housing rehabilitation: A.29 / SYRIAN ARAB REPUBLIC 2017 – 2018; A.20 / JORDAN 2018 – 2020; A.32 / TURKEY 2017 – 2018
Urban recovery intervention focused on four components: an open space upgrade, managing entangled cables, lighting streets, and rehabilitating building facades.

MIDDLE EAST A.27 / SYRIAN ARAB REP. 2021-2022 / SYRIAN CRISIS CONFLICT
CASE STUDY SYRIAN ARAB REP. 2021–2022 / SYRIAN CRISIS

KEYWORDS: Emergency shelter, Habitability, NFI distribution, Winterization
CRISIS Syrian crisis, 2011 onwards Turkey

IDLIB
PEOPLE AFFECTED
14.6 million people in need Gaziantep
6.9 million IDPs*
PEOPLE WITH ALEPPO
SHELTER NEEDS 5.9 million people within Syria*
IDLEB
LOCATION Idlib, Northwest Syria Iraq
Lebanon
Tent Leveling Pilot:
685 people (120 HH) were supported in the DAMASCUS
PEOPLE SUPPORTED pilot

IN THE PROJECT Core Winterisation Package: Jordan
13,423 people (2,300 HH) received NFI kits
Project Location
and clothing kits
120 tent bases constructed ahead of flooding PROJECT SUMMARY

event The objective of the tent leveling activity, which was part
PROJECT OUTPUTS
2,300 NFI kits distributed of a larger winterization project, was to provide protection
7,953 clothing packages distributed to family’s tents and belongings in time for the seasonal wet
weather, through the provision of concrete tent bases. This
Tent base sizes were 6x4m, 5x4m, 9x4m, tent leveling supported 120 households across 2 camps in
SHELTER SIZE
12x4m. (Depended on the size of the tents) Idlib. An evaluation took place 6 months after construction,
in a timeframe that allowed learning to be captured before
project planning would commence for the next winterisation
SHELTER DENSITY 3.3 m2 per person project. At a relatively low cost, the impact of tent leveling
was high with positive results around the wider impacts of
DIRECT COST USD 160 per tent shelter and settlements. The tent base was successful in
protecting participants homes from flooding wet weather.
PROJECT COST USD 173 per tent However in general, the tent leveling support is not effective at
protecting people from winter conditions if they do not have
a weatherproof shelter that will sit on top of the tent base, or
* 2022 Humanitarian Needs Overview: Syrian Arab Republic, February 2022.
a durable shelter solution, such as stone or concrete houses.
1 2 3 4 5 6
PROJECT IMPLEMENTATION PHASE

PLANNING
CONTEXT
CONFLICT
TIMELINE JAN FEB MAR AUG SEP OCT NOV DEC JAN JUN
2011 2020 2021 2022
2011: Syrian crisis began.
Jan 2020: Severe flooding across Northwest Syria affecting over

126 IDP sites and over 67,000 people, including 40% of the peo-
ple supported by the 2020 winterisation project.
1 Mar 2020: NFI response to families who had critical needs due to
the floods.
© Ali Haj Suleimanuidi
2 Aug 2021: Plans developed for tent leveling pilot project.
3 07–25 Nov 2021: Tent leveling phase.
4 Nov 2021–Dec 2022: Distribution of NFI kits, clothing packages.

5 22 Dec 2021: Post-Distrubution Monitoring for tent leveling.
Aerial image of a camp in Idlib devastated by the heavy floods, forcing many
6 1 Jun–04 Jun 2022: Tent leveling evaluation. families to leave their homes during the night and take shelter elsewhere.

CONFLICT A.27 / SYRIAN ARAB REP. 2021-2022 / SYRIAN CRISIS MIDDLE EAST
CONTEXT hostilities and their long-term consequences, including

widespread destruction of civilian infrastructure, explo-
The crisis in the Syrian Arab Republic (Syria) began in sive ordnance contamination, and the largest number of
March 2011 and has since displaced over 5 million people displaced populations in the world. The protracted crisis
to neighboring countries and over 6.9 million people has inflicted immense suffering on the civilian population,
internally (Syrian Humanitarian Response Plan, 2022). who have been subject to massive and systematic viola-
The current crisis is compounded by interlinking factors tions of international humanitarian and human rights law.
and events (ongoing hostilities, regional economic crisis, More recently, the accelerating economic deterioration
damage to infrastructure, COVID‑19, and environmental and impacts of climate change have increasingly become
shocks) that caused significant suffering to the population. additional key drivers of needs, compounding vulnera-
Northwest (NW) Syria experiences harsh winter condi- bilities even further. In 2022, approximately 14.6 million
tions with freezing temperatures, rain, and snowfall. This people needed humanitarian assistance, an increase of 1.2
is particularly worrying for displaced families living in camp million from 2021. Syria remains one of the largest human-
settings, many of whom are residing in tents and makeshift itarian responses in the world, with assistance delivered to
shelters. Increasing the thermal comfort of households 6.8 million people per month in 2022 (2022 Syria HRP).
via winterization activities is a priority for the Shelter and
Non-Food Item (SNFI) Cluster.
SITUATION BEFORE THE CRISIS The SNFI Cluster set its winterization activities in 2021,
focused on increasing thermal warmth. This was consid-
In NW Syria, over 1.8 million people live in 1,421 sites ered to be a lifesaving intervention due to the many
of last resort – 87 percent of which are self‑settled interlinked vulnerabilities of the displaced population and
Internally Displaced Persons (IDP) tented camps. Those the extreme weather associated with winter (2021 SNFI
sites are more vulnerable to flooding due to the lack of Strategy).
site planning, infrastructure, and management systems –
which coupled with the annual heavy rainfall in the winter The priorities were “1. Fuel and stove distribution;
and spring months leaves the sites particularly at risk of 2. Winterization NFI packages (including tarpaulin, rope);
flooding events. In 2022, approximately 30 percent of IDP 3. Winter clothing for children and vulnerable adults; and
sites in NW Syria experienced flooding, affecting over 4. Tent leveling” (2021 SNFI Strategy). Drawing on organiza-
540,000 people (Syria, HNO 2023). Self‑settled camps are tional experience, the project focused on Priority 2 (winter
often located in high‑risk areas such as in river systems NFIs) and Priority 3 (winter clothing). A tent leveling pilot
or agricultural land compounding vulnerability to flooding component was added, aiming to expand that experience
and (in some cases) creating difficulties or even preventing and increase the impact of the overall intervention.
relief efforts as access is impacted due to unpaved roads NW Syria experiences seasonal wet weather and flooding
and heavy mud. events, which can have devastating impacts on families
whose homes and belongings are vulnerable to rain and
SITUATION DURING/AFTER THE CRISIS flood water. By raising tents off the ground around 20
centimeters via concrete and gravel bases, the intervention
Syria remains a complex humanitarian and protection aimed to mitigate potential damage to homes and posses-
emergency characterized by over 10 years of ongoing sions that could impact that household’s ability to keep
© United Nations
The harsh winter makes life very difficult for displaced people in camps. It’s really particularly difficult for the elderly people and people with disabilities, who live in
torn and ripped and flimsy tents in sub-zero temperatures. (Mark Cutts, 2022)

warm (e.g., if carpets, mattresses, and blankets get wet or if Through coordination with the Syria SNFI Cluster, camps
they are destroyed). Through evaluation activities following with a need for core winterization and tent leveling support
the project, 80 percent of respondents reported that the were identified. Post‑identification, camp, and house-
tent base provided protection from the cold. hold‑level surveys were conducted to understand the
needs of the population within each area. Selection criteria
During the design of this pilot, the organizational strategy
were then applied within each camp to identify which indi-
was focused on supporting people at the individual and
viduals required support. This information was then shared
household levels. As such, broader interventions focused
back within SNFI Cluster for further coordination.
on community-level infrastructure and flooding mitigation
through drainage network implementation were outside of As this was the organization’s first attempt to implement
the scope of this project. tent leveling support, a small caseload was identified (120)
to ensure that improvements could be verified in all areas
PROJECT DESIGN/STRATEGY (e.g., camp and household identification, procurement,
construction, and participant engagement) before commit-
Following the winter of 2020, large-scale rainfall caused ting to a larger scale intervention.
localized flooding events that impacted at least 192
household‑level surveys were conducted to understand the
informal camps. As a result, many households that had
needs of the population within each area. Selection criteria
been recently supported with winterization packages lost
were then applied within each camp to identify which indi-
their items due to flood damage. It was then decided to
viduals required support. This information was then shared
conduct a pilot project for tent leveling using the SNFI
back within SNFI Cluster for further coordination.
cluster technical guidance.
As this was the organization’s first attempt to implement
Given that a large proportion of the previous year’s assisted
tent leveling support, a small caseload was identified (120)
IDPs in the area had been impacted by flooding and the
to ensure that improvements could be verified in all areas
increasing likelihood of flooding events moving forward,
(e.g., camp and household identification, procurement,
a project was needed that added a layer of protection
construction, and participant engagement) before commit-
to participants by mitigating the impact of flooding. The
ting to a larger scale intervention.
tent leveling modality offered a cost‑effective solution that
could be retrofitted to existing tents and makeshift shel-
ters, allowing participants to remain in their current loca-
tion – limiting disruption and onward displacement. While
the tent bases are not a permanent durable solution, with
an under-layer of polythene or similar acting as a dump
barrier, they offer a significant improvement to the living
condition of participants and could potentially provide a
foundation on which incremental improvements could be
made.
© Shelter Box
IMPLEMENTATION
To move the project forward, the organization (based

outside of Syria) contributed by providing technical shelter
expertise and support, procurement assistance and Tent leveling construction activities - (above) Building of the tent base perime-
ter with mortar blocks, November 2021. (below) Filling of the tent base with
advice (with the tender of the contractor and due dili- aggregate before the final cement layer, November 2021.
gence process), and remote monitoring and evaluation.
The partner team (based in Syria) undertook stakeholder
engagement, including with the regional government while
also conducting Housing, Land and Property (HLP) assess-
ments to ensure rights of tenure for participants. Once
the project implementation started, the in‑country team
provided oversight of the entire process to ensure quality
control and that humanitarian principles were upheld. In
addition, the in‑country team provided vital coordination
with camp management and implemented the field moni-
toring and evaluation process which encompassed tent
leveling quality checks that were conducted within two
days of construction, Post Distribution Monitoring (PDM)
© Shelter Box
activities that were conducted one month after installation

and evaluation activities that were conducted six months
after installation.

© Shelter Box
© Shelter Box
Cementing of the tent bases, November 2021. Size of the different tents were measured, and the tent bases were constructed according to the tent sizes.
TARGETING PDM, and evaluation activities was instrumental in helping

the organization shape the next project and ensured that
A total of 120 families in two camps were selected by the the project design was appropriate to the needs of the
partner in-country team based on the following criteria: affected population.
• Families living in IDP or refugee camp/tent settlements
who were susceptible to flooding on their existing MAIN CHALLENGES
plots.
• Camp Selection for Tent Bases: During camp assess-
• Tent/shelter sites where tent bases would improve ments for the tent leveling pilot, it was recognized that
resilience and protection from flooding without tent sizes varied across camps. The initial use of rigid
resulting in a complete loss of household shelters criteria for tent sizes as part of camp selection led
and materials (to determine this, the in-country team to lengthy assessment times and difficulties in iden-
conducted camp level and household level needs tifying suitable locations. Once tent base installation
assessments to ascertain which locations and housing commenced, the in-country team and contractor
structures were most vulnerable to flooding damage if adopted a more flexible approach, where the size of
heavy rains were to occur, and then which households participant’s homes was measured, and tent bases
would benefit from a tent base construction). were constructed tailored to the tent size. The proj-
• Families with critical shelter and household items need ect’s contingency budget was able to accommodate
or few, if any, available resources. the flexible approach.
• Tent base ramps: During the construction of tent
COMMUNITY CONSULTATIONS bases, several families were identified as having
members with disabilities. There was concern that
• Needs Assessments were conducted at the camp and raising tents off the ground by 20cm would make
household levels to ensure feedback was incorporated access to homes more difficult. When identified
into the project design. post-construction, the in country team visited these
• Follow up construction quality checks were conducted families to offer the addition of a concrete ramp to
to ensure that each tent base was of high quality and ease access into the raised homes. While families
to refer damages to the constructor (if any) that shared that adding ramps wasn’t a priority need at the
required repair. time, the project team felt strongly that these ramps
should have been an option for families before the
• Post Distribution Monitoring was conducted, which construction.
helped the organization to understand the extent to
which the project objective and outcome were met. • Poor quality tents: The in country project team
identified several tents that required replacement or
An evaluation was conducted six months after the repair. While this information was shared with the
construction of tent bases and included interviews with coordinating body, it was not certain that they would
project participants and key informants. receive this support in time for the wet weather.
As this was a new modality for both organizations involved, Tent base construction was successful in protecting
the pilot project offered a good learning opportunity. households from flooding damage, but many people
Community consultations during the needs assessment provided feedback that the poor quality tents were
phase helped in the adoption of a flexible approach to the not fully protective from winter weather conditions.
sizing of concrete base structures. There were also many The team identified that adding in future interventions
touch points after the installation, where project partici- a complimentary tarpaulin to the tent leveling support
pants were asked to provide feedback on the project activ- may be a simple solution to help families in enhancing
ities. Feedback gathered through tent base quality checks, the weather resilience of their homes if needed.

MATERIALS AND SUPPLY
The in‑country partner engaged a civil‑works contractor

through a competitive procurement process, contracting
out the tent base construction package. Once the team
had conducted due diligence checks and was satisfied
with the civil works contractor’s policies and processes,
responsibility for the following elements was passed on to
the contractor: procurement of materials (cement blocks,
gravel, and cement), transportation of the materials to the
installation site and the labor required for the construc-
© Shelter Box
tion of tent bases. Contractor work was overseen by the
in-country team and a construction foreman, ensuring it
was delivered according to the agreed‑upon specifications,
timeframes, and quality. Interior view of a tent after the construction of the tent base.
TENT BASE CONSTRUCTION PROCESS

Materials were delivered and unloaded at each tent location on the day of its construction to mitigate
Step 1 family obstruction.
Families’ belongings were removed from the tent. The tent canvas was then either rolled up from the
Step 2 ground or the entire tent was disassembled.
Step 3 The tent base outline was measured and marked out.
Step 4 The surface of the ground was cleared of any rocks or debris to place the gravel and blocks.
Step 5 A layer of fine gravel was laid and leveled to provide a base for the concrete mix and blocks.
Step 6 A string line was set to mark the height of the base. The blocks were placed and fixed with concrete.
Step 7 Once the block layer was complete, the concrete was left to cure before the addition of gravel.
Step 8 Once the concrete was cured, a 15cm layer of coarse gravel was placed and leveled within the base.
© Shelter Box
Survey results and KIIs indicated that eighty percent of the people felt the tent base did a good job at providing insulation from the cold, and also highlighted the im-
portance of tent bases are for families’ health, wellbeing and flood protection.

√ Evaluation results showed that the tent leveling x When providing tent leveling support, the condition
support had a positive impact on people’s health of tents should also be addressed, either with tent
and well-being. A total of 98 percent of families felt replacements or with additional tarpaulins to make
that the tent base improved how safe they felt during repairs.
the winter months, 96 percent said that the tent base
had a positive impact on their wellbeing and 100 per- x Access to the tent base (20cm off the ground) for
cent said that the tent base helped to protect their people with disabilities was not initially considered
and their family’s health. However, separate lines of within the tent leveling design.
questioning highlighted that the tent base didn’t pro- x The initial use of rigid criteria for tent sizes as part
vide complete protection to health and wellbeing, of camp selection led to lengthy assessment times
with 14 percent of respondents saying that flooding and difficulties in identifying suitable camps. A flexible
caused damage to family members’ health. approach to sizing is recommended in future projects.
√ The tent bases were constructed in November 2021
ahead of any heavy rain and flooding events. Six
months later, 96 percent of respondents stated that LESSONS LEARNED
the tent base had fulfilled its purpose of preventing
flooding damage throughout the winter season. • The project highlighted the importance of
incorporating the needs of people with disabil-
√ The tent leveling cost is USD 70 per tent base and ities within the tent leveling design. People
can be constructed within one day. Given the pos- with disabilities should be identified before
itive evaluation of the participants, the organization construction and consulted on whether there
deemed this to be a good value for money. is a need for adjustments to the tent base to
√ Engagement with project participants at two days, allow for easier access (which is raised 20cm
one month, and six months after the initial installa- off the ground).
tion provided valuable opportunities for feedback. • While the tent base was effective in protecting
Through feedback activities, the organization found peoples’ homes and possessions from flood
that people were able to augment/improve their bases damage, feedback was received that shelters
themselves. These augmentations provided further in- would leak due to the wet weather. Further
sight into how future projects may enhance effective- considerations should be made on shelter resil-
ness in meeting beneficiary needs. ience to wet weather, in addition to any vulner-
abilities that may exist regarding flooding.
RECOMMENDATIONS MOVING FORWARD • Most people have either added, planned to
add, or wished to add a layer of cement to
• A ramp was added during installation for those their tent base. The purpose of this was to
identified as having mobility challenges and/or improve weather protection and improve the
those who would benefit from a ramp. comfort of people living on top of the base.
• A single tarpaulin and a rope were given to A concrete layer could thus be added to the
each household during installation to enhance initial construction of the tent, to avoid partic-
the weather resilience of existing tents and ipants having to spend this money themselves
mitigate potential water ingress. when they have competing priority needs and
• A skim layer of concrete was added during to improve overall impact. Incorporating this
installation to improve household comfort and cement layer during construction will also
weather protection. ensure that the design meets high-quality stan-
dards and that the improvements are made
ahead of any potential flooding.
• Although only a relatively small number of
FURTHER READING ON SHELTER PROJECTS families added additional bricks to the perim-
eter of their tent base (e.g., raised wall), half of
On Syrian Arab Rep.: A.23 / SYRIAN ARAB REP. 2019–2020; the respondents felt this was something that
A.31 / SYRIAN ARAB REP. 2018; A.8 / SYRIAN ARAB REP. 2011
should be done at the point of construction. It
On NFI distribution: A.9 / PARAGUAY 2019–2020; is recommended that future projects consider
A.10 / PHILIPPINES 2013-2015 A.4 / CUBA 2012 adding additional bricks to the perimeter of the
On Winterization: A.4 / NEPAL 2015
tent base at the point of construction.

MIDDLE EAST A.28 / YEMEN 2020-2022 / CONFLICT CONFLICT
CASE STUDY YEMEN 2020–2022 / CONFLICT

KEYWORDS: Community engagement, Security of tenure, Transitional shelter
CRISIS Armed conflict
PEOPLE AFFECTED
23.4 million people affected Saudi Arabia
12.9 million people assessed to be in acute need.*

PEOPLE DISPLACED 4.3 million people since the start of the crisis** NORTHERN
BAHR EL
RedGHAZAL
Sea
PEOPLE WITH WARRAP
SHELTER NEEDS 7.4 million people* WESTERN MA’RIB
BAHR EL JONGLEI
WEST
GHAZAL
COAST SAN A’A
PROJECT LOCATION Ma’rib, Ta’iz, and the West Coast LAKES
TA’IZ Gulf of Aden

PEOPLE SUPPORTED
BY THE PROJECT 2,125 HHs (14,875 individuals) WESTERN
EQUATORIA
EASTERN
EQUATORIA
Djibouti CENTRAL
EQUATORIA
PROJECT OUTPUTS
2,125 transitional shelters handed over to the
most vulnerable households Ethiopia Somalia
SHELTER SIZE 18 m2 per transitional shelter Project Location
SHELTER DENSITY 3.5 m2 per person * Yemen Humanitarian Needs Overview 2022
** Yemen Humanitarian Response Plan 2022
DIRECT COST USD 1,000 per shelter
PROJECT SUMMARY
This project aimed to improve the living conditions of households living in IDP sites through the construction of transitional shelters in Ta’iz, West
Coast, and Ma’rib governorates. The project specifically focused on the organization’s Second Line Emergency Response (SLER) to the shelter needs
of households displaced for more than three to six months. Beneficiary selection targeted most vulnerable households with severe shelter needs,
i.e. households living under inadequate or inappropriate shelter conditions; female headed households; households with elderly or people with
special needs. Affected families were provided with transitional shelter assistance with the aim of establishing safe, dignified, and sustainable shelters
solutions in secure settlements.
1 2 3 4 5
HANDOVER
PROJECT
CONTEXT
CONFLICT
TIMELINE MAR SEP JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC JAN FEB MAR APR
2015 2020 2021 2022
2015: Start of crisis in Yemen
1 Jan - Jun 2021: Planning and coordination meetings with different

stakeholders including local authorities, SNFI cluster, beneficiaries.
2 Jul - Sep 2021: Conducted needs assessments, verification and

registration exercises.
© OCHA- Giles Clarke
3 Oct 2021: Provided technical training to staff and beneficiaries on

construction related skills. Provided awareness raising on targeting
and selection criteria to beneficiaries.
4 Nov 2021 - Mar 2022: Development of BoQs and designs,

distribution of materials, construction of transitional shelters.
5 Apr 2022: Post distribution monitoring exercises to determine Child walking in Aden, Yemen, an area that has been affected by war since
the efficiency and effectiveness of the project. 2015

CONFLICT A.28 / YEMEN 2020-2022 / CONFLICT MIDDLE EAST
CONTEXT need. The increase in need is primarily due to the recent

conflict, which induced displacement of 234,000 people,
Yemen, a small country on the Arabian Peninsula, has the impact of climate change (which affected nearly 517,00
become the site of grave civilian suffering amid an intrac- people in 2022) and the protracted nature of the crisis –
table civil war. Yemen’s civil war began in 2014 when Houthi affecting over four million people who have been displaced
insurgents took control of Yemen’s capital and largest city, for more than a year.
Sana’a, demanding lower fuel prices and a new govern-
ment. Following failed negotiations, the rebels seized the
SITUATION DURING THE CRISIS
presidential palace in January 2015, leading the president
and his government to resign. Beginning in March 2015, Yemen’s public services and infrastructure have been
a coalition of Gulf states led by Saudi Arabia launched a severely impacted by the conflict, the deteriorating
campaign of economic isolation and air strikes against the economy, and recurrent natural hazards. By the end of
Houthi insurgents. The president rescinded his resignation 2022, more than 80 percent of the country’s population
and returned to Aden in September 2015, and fighting has struggled to access food, safe drinking water and adequate
continued since. health services, while nearly 90 percent of the popula-
A United Nations-brokered truce was agreed upon tion had no access to publicly supplied electricity. Most
and came into effect on 2 April 2022. The subsequent public sector employees, including teachers and healthcare
six-month truce period, up to its expiry on 2 October, workers, have not received a regular salary in years.
offered a glimpse of hope for many people. Among the IDPs continue to face a myriad of challenges, with the
many overarching benefits of this period were an overall average displacement duration being eight years with at
reduction in fighting – the first extended reprieve since least 25 percent being displaced two or more times during
2015. Civilian casualties and displacement decreased, and that period. Of the 4.5 million IDPs, over two-thirds are
no airstrikes or major military operations took place. The living in rental accommodations or hosting arrangements.
truce also saw an increase in fuel deliveries and the smooth A recent study showed that 82 percent of them reported
flow of other essential items through Al Hodeidah Port, as serious difficulties in paying rent, and 76 percent did not
well as the reopening of Sana’a International Airport after pay rent for more than three months, thus heightening
years of closure, enabling approximately 40,000 people to the risk of eviction, particularly in low-income households
travel on commercial flights including to access medical whose ability to meet basic needs diminished due to dete-
treatment and education opportunities abroad. However, riorating economic conditions and increased cost of neces-
fighting did not completely cease, and localized clashes sities. The other one-third of displaced people reside in
continued in some pockets of the country. last-resort informal and spontaneous settlements, exposed
At the end of 2022, nearly nine years into the current to hazards such as flooding, landslides, fire risks, and even
conflict, a comprehensive political settlement remains landmines and unexploded ordnances.
elusive. The Shelter and Non-Food Items (NFI) Cluster The economy has shrunk by more than half since the
estimates that 7.5 million people in Yemen reside in inade- conflict escalated in 2015, largely due to currency depre-
quate shelter conditions, often lacking essential household ciation, loss of government revenue and rising commodity
items. Among them, over 5.3 million people are in acute prices.
© IOM Yemen
2,125 transitional shelters were handed over to the most vulnerable households in Ma’rib, Ta’iz, and the West Coast

COUNTRY HUMANITARIAN RESPONSE

PLAN (HRP)
The Country Humanitarian Response Plan (HRP) objec-

tives included the provision of life-saving emergency shel-
ters and Non-Food Item (NFI) support to newly displaced
people by conflict and disasters, as well as rental subsidies,
maintenance and upgrade interventions, construction of
transitional shelters and home rehabilitation and recon-
struction. As per the plan, relevant Shelter/NFI interven-
tions for vulnerable households would include protection
from natural hazard risks, winterization assistance and
support for achieving relative security of tenure. The
Shelter/NFI Cluster aligned its objectives with the HRP. Design of the t-shelter allowed for easy dismantling and transporting the shel-
ters to another location.
PROJECT DESIGN
The project aimed to construct 2,200 transitional shelters

(TS) for displaced households residing in informal IDP sites,
to reach the most vulnerable populations affected by the
crisis.
Targeted households were provided with all material and
labor required for their self-construction of the shelters.
Implementing organization engineers and technical team
focal points provided technical assistance and conducted
training sessions on shelter construction and maintenance.
The shelter design was determined according to cluster
guidance, beneficiary preferences, local practices and land
property conditions: as most of landlords would not allow
Targeted households were provided with all material and labor required for
to build permanent structures on their land, materials their self-construction of the shelters. All materials were procured locally.
such as concrete or brick were not permitted, and the
design previewed the possibility of easily dismantling and
transporting the shelters to another location. Materials
were procured locally.
IMPLEMENTATION
Prior to implementation, the project team conducted need

assessments identifying target sites where the support was
feasible and allowed by landowners. The team conducted
IDP household registration and verification according to
the selection criteria of vulnerable households displaced
over six months with the intention of staying for another
six months in the same site.
The team also provided sensitization on the overall project
to ensure participants understood the intervention.
Sensitization was conducted in three stages: 1) Target
community was briefed on the overall project, donor and
selection criteria; 2) Door-to-door awareness raising was
carried out to reiterate previous info shared and to provide
more details on the implementation process and feedback
mechanism; 3) During construction, teams informed
participants of their roles in the construction process.
Prior to launching activities, the team obtained the
required landowners’ approvals in coordination with the
organization Camp Coordination and Camp Management
(CCCM) team and local authorities.
Detailed drawing of a transitional shelter constructed in Ta’iz and Ma’rib

Through a public tender, a contractor was identified TARGETING

to supply the required materials and implement the
construction. The organization team conducted market • Participant selection targeted the most vulnerable
assessments and consultations with relevant stakeholders households (HHs) with severe shelter needs, such as:
including affected households, landowners, CCCM teams, • Female-headed and child-headed HHs.
WASH teams, the SNFI Cluster and local authorities.
• HHs with pregnant and lactating women, widows, and
Accordingly, the SNFI team finalized the designs and bills adult women in families with multiple wives.
of quantities (BoQs) ensuring the use of plywood and
non-permanent materials such as cement and bricks, as • HHs with older persons (above 60), and HHs headed
agreed with the landowners. Continuous coordination, by elderly.
follow-up, monitoring, and guidance was maintained • HHs with people with disabilities (mental or physical).
throughout implementation. Community members willing
• HHs with people with chronic diseases/serious medical
to participate were trained in the construction process
and techniques and encouraged to take ownership in the conditions.
implementation by coordinating closely with the contractor • Large families with more than 5 children (under 18
and providing guidance as needed. years old).
• Newly displaced HHs who have been living on the site
for six months or above.
• Marginalized individuals.
• Isolated elderly individuals.
• HHs living in emergency shelter, family tent, or local
material and do not have the capacity to rehabilitate
and upgrade their shelters.
• IDP families living in structures without solid walls,
such as IDPs without shelters and people living in
© IOM Yemen
damaged or unfinished buildings.

• IDPs in dire need of shelter assistance who had not
been supported with SNFI in the past.
Community ownership and participation was encouraged throughout the
• Families with inadequate shelter or living in old/
implementation of the project
damaged local transitional shelters (it does not protect
them from external influences, whether natural or
other including heavy rain, strong wind, and heat).
• A displaced family with many members who would
not have enough living space in their shelter or more
families living in the same space and would not have
enough shelter to accommodate them all.
Community ownership and participation were encour-

aged through focus group discussions and in consultation
with affected households to ensure that participants were
actively involved in all phases of the intervention.
The outcomes highlighted key preferences which were
taken into consideration during the design stage, including
Al-Oqabi, IOM Yemen
adding insulation sheets to the roof, improvements to

provide more protection for water leakage by painting the
shelter from the outside and changing the slope direction
of the roof, adding more than one window for better
ventilation and increasing the height of the structure for
Yemen
more air circulation.

Elham
©© IOM
Community participation promoted community owner-

ship, aiming to enhance self-resilience and sustainability of
Family after moving to a new wooden transitional shelter that provided safety,
security and comfort from harsh envirorment conditions. the assistance.

MAIN CHALLENGES
The activities were stopped due to interference by land-

owners and site community members who tried to add
additional families to the project who did not meet selec-
tion criteria. Despite continued efforts and several meetings
with landowners, a compromise was not easily identified,
and works were suspended several times.The construction
was actually prolonged and exceeded the timeline of the
project due to a combination of factors: accessibility issues,
reoccurrence conflict, delays in the materials delivery and
skilled labor availability.
© IOM Yemen
HLP issues represented one of the main challenges. Most
IDPs resided in informal settlements, where the majority
live with precarious tenure arrangements (undocumented
and verbal agreements), leaving IDPs vulnerable to price Organization provided technical assistance and conducted training sessions on
increases, evictions, and other forms of exploitation. shelter construction and maintenance for the targeted households.
In addition, competition over the access and use of land

and water resources had resulted in tensions and disputes
between IDPs and the host communities.
The implementing organization faced bureaucratic chal-
lenges and lengthy processes to receive access permits by
local authorities where they requested the organization
to coordinate with landowners and obtain all necessary
permits and landowner’s approval, which delayed the
implementation of assessments, verification, and registra-
tion activities.
Unexpected rejections from these landowners to
© IOM Yemen
construct shelters continued to delay project implemen-
tation despite the approval documents obtained and led
to fear among other landowners. This occurred in cases
where there were multiple landowners on the same land.
Roof was insulated to protect from the harsh environmental conditions.
The transitional shelters provided a higher quality than

emergency shelters, extending their lifespan and were
aimed to offer affected households safe, secure, healthy,
and dignified accommodation.
The materials and construction methods chosen for tran-
© IOM Yemen
sitional shelters were familiar to the community, utilizing

the skills and tools they could access. The designs and
materials were also chosen so that after the construction
was completed, the transitional shelters may be upgraded, The shelters were painted from the outside for additional protection against
reused for other functions, even sold, or recycled into water leakage.
permanent housing.
The outcomes of this project were measured by observing
the lifespan of the shelters and how much protection
© Elham Al-Oqabi, IOM Yemen
they provided from external factors (floods, sun, or rain).

Beneficiary satisfaction surveys and monitoring through
regular field visits were conducted.
The local authorities were satisfied with the shelter design
© IOM Yemen
and requested other shelter partners to provide similar

interventions. The project was used as an advocacy
element to promote transitional shelter interventions in
other locations. Design considerations from community participation and feedback were imple-
mented to achieve the final outcome.

√ Continued consultation and engagement with target x The number of the transitional shelters implemented
households throughout all stages of the project. could not cover the huge need on the ground, and
the project targeted the most critical needs only –
√ Lessons learned and recommendations from the
raising tensions in some areas. However, through
community were taken into the consideration
regular awareness raising on the targeting and selection
and designs improved based on input from the
community.
criteria – the project was successfully implemented.
√ Continued coordination with local authorities, shelter

x Early in implementation, the host community around
cluster, community leaders, CCCM and protection IDP sites were not fully engaged in project activities
partners. which led to the disruption of activities and secu-
rity threats to staff and workers at the site. After
√ The implementing organization conducted capacity establishing regular engagement with the community
building programs with the community and site leaders and conducting awareness raising on targeting
leaders on different topics including targeting and criteria, the situation was resolved and the project
selection criteria for the transitional shelters. activities continued smoothly.
x The project also faced delays in procurement and
construction, mainly due to the current situation
in Yemen including security and HLP related issues.
LESSONS LEARNED The implementing organization is exploring different
approaches to ensure effective project implemen-
• Educating target beneficiaries and community tation. Currently the transitional shelters are being
leaders on the targeting and selection criteria implemented either through vendor based or commu-
for transitional shelters was crucial for activity nity-based approaches.
success. Additionally, the provision of orienta-
tion on selection criteria to CCCM focal points RECOMMENDATIONS MOVING FORWARD
and site leaders was helpful to support project
activities. • HLP issues were the main challenges for the
• It was important to maintain regular coordina- implementation of transitional shelters in
tion with local authorities, the CCCM team and Yemen. Due to this, prior coordination with
the shelter cluster to facilitate and secure land relevant stakeholders including local authorities,
approvals from all landowners and obtain land landowners, HLP experts or technical working
authorization/approval before moving with the groups and the shelter cluster should be given
construction of the transitional shelters. HLP utmost importance before implementation.
experts or the HLP technical working group • Target beneficiaries should be consulted at
should be engaged to address HLP related all stages starting from the project inception
issues. stage.
• Awareness on the importance of learning • Identify the skills and capacity available within
how to install transitional shelters should be the community, provide technical training
conducted while motivating affected house- to community members on the installation
holds through their work with the contractor and construction of transitional shelters and
for a daily wage. motivate the community to participate in the
• The transitional shelter model should be construction for daily wages and to gain tech-
designed in consultation with the community nical skills.
to improve its quality, efficiency, resistance and • Engage the host community from the earliest
suitability in the area. Continue to revisit and tages of the project and include the vulnerable
improve the transitional shelter model after host community households as participants of
each stage of implementation. the project.

On transitional shelter : A.3 / CHAD, 2018–2020 / CONFLICT; A.8 / ETHIOPIA, 2011 / SUDANESE CONFLICT ;
A.10 / JORDAN, 2013 / SYRIA CONFLICT; A.3 / NEPAL, 2015 / EARTHQUAKE OVERVIEW; A.7 / DRC, 2002 / VOLCANO

SECTION B
RESEARCH PIECES
An inclusive cooking space constructed using local materials
and simple construction techniques for easy upgrade and
maintenance for persons with disabilities.
© Stylia Kampani
B.1 / INFLUENCES ON THE DECISION TO USE CASH ASSISTANCE TO SUPPORT SHELTER AND SETTLEMENTS RESEARCH PIECES
INFLUENCES ON THE DECISION TO USE CASH ASSISTANCE

TO SUPPORT SHELTER AND SETTLEMENTS
By Madeline Burnham, Jim Kennedy, Lizzie Babister, Leeanne Marshall and Jenny Weatherall
INTRODUCTION DECISION-MAKING
This article reflects on the decision-making process shelter While the advantages and disadvantages of a particular
practitioners go through in order to consider whether modality may appear straightforward from a technical
to use cash assistance, the evidence they use, and the perspective, decision-making in the field takes into account
influences on this process. The use of cash assistance in many other considerations. These considerations include
support of those who have lost their shelter and settle- decision-making as an organisation or group of organisa-
ments has a long track record5, and shelter practitioners tions, rather than as an individual. For the most part, of
have often programmed cash assistance in coordination those interviewed, all practitioners did state that they were
with local financial institutions and national governments. the ones who took the decisions, but in many cases, their
Despite this, the source of much of the evidence which decisions followed one of two scenarios where a high-level
frames cash programming in humanitarian crises originates decision to use cash had already been made by others.
from the food security sector6. Little research has been
In the first scenario, there was an acknowledgement that
produced concerning shelter and settlements in human-
very often by the time the individual shelter practitioner
itarian crises7, and this has contributed to shelter practi-
arrives in the field, a general decision to at least consider
tioners describing a lack of confidence when choosing to
whether to include cash as an option had already been
use cash programming8. This article presents new evidence
taken – by country representatives, overall heads of emer-
based on primary and secondary data, providing a contri-
gency programming, or by donors. This in turn influenced
bution towards more confident cash programming.
the shelter practitioner in any Go/No-go decision, and in
any subsequent decisions about how to combine modali-
METHODOLOGY ties. More widely mentioned among the interview group,
was the second scenario, whereby there was already a
This article summarises early findings from a wider study
decision to use multi-purpose cash, taken at a cross-sec-
being undertaken by the Global Shelter Cluster, concerning
toral level. This meant that the shelter practitioners were
Cash and Shelter. While the overarching study asks about
then limited in their decision-making, in terms of how to
the criteria shelter practitioners use when they decide
ensure that other shelter activities could be designed to
whether or not to use cash, this article focuses more
achieve programme objectives, as add-ons to the main
specifically on what influences these decisions. These influ-
unconditional cash support, such as technical training or
ences are explored below.
the distribution of key shelter materials not available in local
The data for this research has been collected from litera- markets. The shelter practitioners recounted instances
ture reviews, an on-line questionnaire, and semi-structured where it was difficult to insist upon shelter-related condi-
interviews with shelter practitioners with relevant experi- tionalities (e.g. making the payments in tranches, depen-
ence in the field as decision makers. The interview group dent upon the completion of intermediary stages of the
was made up of shelter programme managers, global and shelter construction) after a cross-sectoral decision to use
regional advisors, cluster coordinators, international and unconditional, multi-purpose cash had already been taken.
national staff, and donor representatives. Within the inter-
view group, there was a balance between genders, the
types of responses where they had been working (disaster
or conflict-related; new emergencies or protracted situ-
ations), and the range of different geographic locations,
including Africa, Asia, Europe, the Middle East, and Latin
America and the Caribbean.
5 For example, in response to the South Asian Tsunami: ODI Cash Learning
Project (calpnetwork.org) and External Evaluation Report on the Cash
for Repair and Reconstruction Project Sri Lanka - The CALP Network.
© Turkish Red Crescent
6 For example, The CaLP Library contains 488 resources which mention
shelter, and 1899 which mention food (Search - The CALP Network);
visited 30.05.23.
7 Peacock, W.G. Dash, N. Zhang, Y. (2007) Sheltering and Housing
Recovery Following Disaster. In: Handbook of Disaster Research.
Handbooks of Sociology and Social Research. Springer, New York, NY.
Sheltering and Housing Recovery Following Disaster* | SpringerLink;
visited 31.05.23 A refugee withdraws financial assistance, which she receives as part of a cash
8 Global Shelter Cluster: Research Priorities Baseline 2022. GSC, 2022. assistance programme in Turkey, from an ATM.

RESEARCH PIECES B.1 / INFLUENCES ON THE DECISION TO USE CASH ASSISTANCE TO SUPPORT SHELTER AND SETTLEMENTS
FIVE KEY INFLUENCES FIVE KEY INFLUENCES
The shelter practitioners were then able to provide The shelter practitioners were then able to provide more
more details, and extensive narratives from their own details, and extensive narratives from their own experi-
experience in the field, about the specific influences on ence in the field, about the specific influences on their
their decision-making. The following influences emerged decision-making. The following influences emerged from
from the data as those which frequently shape the deci- the data as those which frequently shape the decision on
sion on whether and how to programme cash assistance whether and how to program cash assistance in support of
© Jennifer Hardy, CRS

in support of shelter and settlements. They include the shelter and settlements. They include the range of poten-
range of potential shelter options, the capacity to provide tial shelter options, the capacity to provide responsible
responsible programming, the relationship with Multi- programming, the relationship with Multi-Purpose Cash
Purpose Cash programmes, the influence of other actors programs, the influence of other actors and the sustain-
and the sustainability of the programme. ability of the programme.
1. RESOURCES TO PROVIDE RESPONSIBLE SHELTER The Ronda family received cash grants to construct their home as part of the
PROGRAMMING Typhoon Haiyan response in the Philippines.
The first most commonly mentioned influence on deci- the necessary shelter staff to undertake the assessments,
sion-making was the degree to which the shelter prac- outreach and monitoring to ensure that shelter objectives
titioners thought their programmes would be able to were actually being achieved. Another interviewee noted
provide all the other necessary components for respon- that once the “first inject [of funding] has gone out […],
sible and quality shelter programming. These include tech- there's just not enough funding left to do a meaningful more
nical training and capacity-building of households receiving quality and more shelter-focused funding.” Shelter practi-
the cash, engagement with support for security of tenure tioners highlighted the strengths of multi-purpose cash for
and other HLP issues, and programme monitoring by delivering on shelter needs in the onset of an emergency
shelter staff. Decision-makers repeatedly emphasised that while indicating it is just as essential that funding be in place
cash-only programming does not necessarily secure a safe to develop shelter specific programming that can secure
and dignified shelter outcome, often because of concerns shelter outcomes in the medium to long-term.
for construction quality and structural safety. One inter- 3. SUSTAINABILITY OF PROGRAMMES
viewee stated, “if you only look into the financial transac-
A third influence for the shelter practitioners, was the
tion, it's not working for me because I don't think I will be
degree to which a shelter programme which included cash
able to achieve the impact with the intervention.” This finding
assistance, would be sustainable in the longer-term. For
suggests that decision-makers do not consider cash alone
many practitioners, considerations about the future can
to be a form of shelter assistance, rather they consider
be a decisive Go/No-go factor as much as the current
cash as a modality that may be used to accompany the
situation on the ground. Although a lack of sustainability
technical elements that form the backbone of a strong
was less often cited as a risk for emergency-phase provi-
shelter programme.
sion of shelter materials, it was seen as a consistent risk
2. RELATIONSHIP WITH MULTI-PURPOSE CASH for supporting shelter upgrades and housing repairs, with
PROGRAMMES regard to the necessary structural qualities of such repairs,
The second influence on decision-making was described and with regards to build-back-safer issues. The most
by the interviewees as the presence of other, often common concern, however, was over the risks associated
larger, multi-purpose cash programmes established at with rental support, whereby more than one interviewee
the inter-sectoral level. In these examples, cash working stated that they might consider deciding not to provide
groups run by the cash sector had taken the decision to cash support for rent, if there was no clear answer for
use inter-sectoral multi-purpose cash programming. For what would happen to the renting households, once the
decision-makers within the shelter sector, this then influ- period of rental support had come to an end. In speaking
enced - and in some cases became the overriding influ- to the importance of exit strategies with Cash-for-Rent
ence – on all the other aspects of shelter programming programmes, one decision maker stated “every time that I
which would be necessary to complement the access to have anyone submitting Cash-for-Rent proposal, the first ques-
cash (similar to the aspects listed in the discussion of the tion I asked is like, okay, what next?” continuing, “what other
second commonly listed influence, above. One interviewee complementary activities are you doing to so that you ensure
stated “… the cash working group and their position that can that this person after six months will be able to continue
be a defining factor,” indicating “you might decide to redesign paying?”.
your programme accordingly”. 4. INFLUENCES OF OTHER ACTORS
In the case above where inter-sectoral multi-cash A fourth influence on decision-making was the range of
programmes were present, there was a further concern both the information and the decisions coming from other
expressed that multi-cash programmes may take up most, actors at the field level. Decision makers most often cited
or all, of any donor funding available. There would then be other shelter actors in this regard, as well as other partner
not enough funds remaining for technical training or for organisations, including partners in national shelter clusters

B.1 / INFLUENCES ON THE DECISION TO USE CASH ASSISTANCE TO SUPPORT SHELTER AND SETTLEMENTS RESEARCH PIECES
or other shelter coordination forums. Practitioners stated

that if one or more other shelter actors had already taken
decisions to include or not include cash, then it would be
more likely for them to move their programming in the
same direction. The attitudes of local authorities, and to
a lesser extent humanitarian donors, was also consistently
© Lanah Torralba/ IFRC, Philippines

cited as a heavily influence on the decision-making process.
For the most part, local authorities in host communities
were described as being more hesitant about using cash
assistance for shelter support and were more likely to
argue for limitations in its implementation. On the other
hand, interviewees described donors as limiting potential
cash and shelter programming in some responses, but
actively encouraging such approaches in other responses.
Decision makers are navigating a complex web of inter-
A man receiving cash assistance for shelter repairs after Typhoon Bopha counts his
vening variables which regularly shift in influence based on money before buying construction materials at a local hardware store in the Philippines.
the context at the time of their operation. As summarised
by one decision maker, “you're triangulating multiple informa- for support to individual households, the inevitably larger
tion sources…and you're trying to gather all that information at amounts necessary for site planning improvements, either
once”. The information and analysis coming from colleagues in total for the programme or for each individual site-im-
and partners in other sectors, particularly the analysis of provement task, means that cash is less likely to be consid-
markets and of the viability of cash-transfer mechanisms, ered at the settlements level.
was often cited as influential. This was particularly in cases
where personal visits to local markets or to the affected
communities were not possible, or where there was an CONCLUSION
assumption that a single visit to one market might only
This article has provided an initial framework which
provide limited information. Less commonly mentioned,
highlights the discussions and information analysis
were potential interactions either with colleagues from
necessary for the decision to choose cash assistance,
other sectors (e.g. WASH or Camp Management), or
as a series of pointers for interpreting decision-making
participation in national Cash coordination forums.
criteria at the field level. In all cases, the question
5. SCALE OF POTENTIAL SHELTER OPTIONS of whether responsible shelter programming could
The fifth influence on decision-making, was the scale of still be provided was perhaps the greatest concern
different shelter and settlement options which shelter beyond all others. The presence of multi-purpose cash
practitioners thought could be considered, in their deci- programmes was seen as providing flexibility in short-
sions about cash assistance. Cash assistance was often term first-phase shelter responses, but only where
considered for household level interventions, but less so resources for complementary, more shelter-specific
for settlement level programming. The examples shared support programming are included for the longer
were predominantly of shelter assistance given to individual term, and with resulting higher risks for shelter quality.
households. Despite there being examples in case studies Sustainability of programming was highlighted as a
from the Shelter Projects Shelter and Cash: 16 Case Studies particular type of influence – one which considered
booklet5 of approaches of cash assistance to ‘solidarity’ the risk to future shelter outcomes just as much as any
or multi-household groupings, little about these types of current situation on the ground.
interventions were highlighted in the interviews. Similarly, A range of actors were described as being influ-
few examples were given for the use of cash assistance at ential in the decision-making, generally with more
the settlements level, for instance for site improvement in influence ascribed for local communities and local
camps or collective centres, or for community infrastruc- authorities, and less for colleagues working in other
ture projects. One possible implication here, is that whilst humanitarian sectors. For the range of shelter options
relatively modest amounts of cash are indeed becoming which could be considered for cash assistance, there
more accepted as a modality for support to individual may be greater potential to explore cash support
households, the inevitably larger amounts necessary for site beyond support for single households. The identifica-
planning improvements, either in total for the programme tion of these influences on the cash and shelter deci-
or for each individual site-improvement task, means that sion-making is intended to support further efforts to
cash is less likely to be considered at the settlements level. increase the evidence base for shelter practitioners in
community infrastructure projects. One possible impli- the future. This evidence can inform their capacity for
cation here, is that whilst relatively modest amounts of market analysis and risk analysis, and guide case studies
cash are indeed becoming more accepted as a modality and other sectoral resources analysing the increasing
number of programmes where cash assistance.
5 See: Afghanistan 2012, Pakistan 2010.

RESEARCH PIECES B.2 / CONSTRUCTIVE AMBIGUITY: SUPPORTING RECOVERY FROM HUMANITARIAN CRISES
CONSTRUCTIVE AMBIGUITY:
SUPPORTING RECOVERY FROM HUMANITARIAN CRISES
By Lizzie Babister, Aaron Opdyke, Arvin Hadlos, Charles Parrack, Bill Flinn
INTRODUCTION METHODOLOGY
For communities affected by crises, their experience of This article draws on the early findings of a wider study
recovery is a continuous journey and an ongoing process, commissioned by the Global Shelter Cluster following a
but for the diverse actors supporting them, recovery from consultation to establish research priorities. The wider
humanitarian crises can be understood in many ways. study takes the top priority of approaches to longer-term
Humanitarian agencies, government and donors often recovery and focuses on the connections and barriers
have overlapping, but different, perspectives on recovery. between providing relief and supporting the recovery of
These variations in understanding mean that the space for shelter and settlements in humanitarian crises. An initial
supporting recovery is not often given, but needs to be review of academic and grey literature was conducted,
negotiated. This study explores how this negotiation takes followed by semi-structured interviews. The main inclusion
between humanitarian shelter practitioners and other key criteria for participants were those with field experience
stakeholders such as donors and governments, using the involving the transition from providing relief to supporting
term ‘constructive ambiguity‘, which has emerged from this household recovery, from a range of geographical and crisis
research, to explain these approaches. Constructive ambi- contexts.
guity describes the way practitioners are finding a middle
ground that key stakeholders can support, while taking DIVERSE STAKEHOLDERS, DIVERSE OBJECTIVES
into account wider limitations which can not necessarily
be immediately addressed. For those who support communities recovering from
crises, their perspectives on the meaning of success can
Stephenson calls upon humanitarian agencies to “reflect
differ. This is particularly the case for stakeholders who
on how they understand and define recovery, as this affects
place boundaries (such as mandates, teams, or budget
the objectives they set, the design of their programmes and
lines) around their humanitarian or development work.
their evaluation of results”1. This study begins by consid-
‘Recovery’ as an overarching term has become useful to
ering more widely how recovery has been understood
encompass a range of more specific ideas, such as reha-
by humanitarian and development actors, to reflect on
bilitation, reconstruction, resilience, peacebuilding, sustain-
how humanitarian practitioners might approach their own
ability, and durable solutions which can fall across these
role and objectives in recovery. The second half of this
boundaries. In humanitarian settings, some of these terms
article presents a collection of practitioner experiences
have taken on sensitive associations when the objectives of
highlighting how they have used constructive ambiguity
different stakeholders do not necessarily align (for instance
to manage the challenges and opportunities of supporting
terms associated with construction and permanent build-
households to move forward with their recovery.
ings). The objectives of different stakeholders may be influ-
enced by the length of time they plan to be involved in the
1 Stephenson, M. (2018) ‘Chapter 5: Transition to Recovery’ in ‘The State humanitarian crisis, and how they prioritise communities,
of Humanitarian Shelter and Settlements’, Global Shelter Cluster, Geneva. for instance, by vulnerability, by location or political affilia-
The State of Humanitarian Shelter and Settlements 2018-CHAPTER 5.pdf tion. This results in organisations and institutions working
(sheltercluster.s3.eu-central-1.amazonaws.com) visited 31.05.23 together with a range of perspectives on whose recovery
should be prioritised, who should support, for how long
and what can be achieved. The following section describes
the evolution of frameworks to support recovery from
humanitarian crises which have attempted to bring
together these diverse perspectives and objectives.
AN EVOLUTION OF RECOVERY FRAMEWORKS
Initially, recovery was most often understood as a linear

process, and described by phases which followed an
initial emergency response2. Supporting recovery through
bridging from short-term relief to longer-term outcomes
© CARE UK
2 Quarantelli, E. L. (1982) ‘Sheltering and housing after major commu-

nity disasters: case studies and general observations’ University of
Delaware Disaster Research Center. Sheltering And Housing After Major
A transitional shelter built with emergency funds, considered by the household Community Disasters: Case Studies And General Observations (udel.edu)
to be their permanent home. visited 31.05.23

B.2 / CONSTRUCTIVE AMBIGUITY: SUPPORTING RECOVERY FROM HUMANITARIAN CRISES RESEARCH PIECES
supported by development actors has roots in the Linking aligned the development concern for reducing risk, and
Relief, Rehabilitation and Development (LRRD) move- increasing resilience, with the humanitarian concern for
ment that emerged in the 1980s3. Later, the Humanitarian alleviating suffering, in that “Recovery offers the oppor-
Reform process identified that recovery repeatedly fell tunity to address the underlying risk factors from multiple
between organisational boundaries of humanitarian assis- hazards and ‘build back better’”9. Crucially, BBB, and later
tance and longer-term development; between emergency ‘Build Back Safer’10, provided a platform for humanitarian
relief and durable solutions, but with the expectation that actors to not only plan ahead but to overlap their concerns
humanitarian agencies would “facilitate transitions from with development actors “by integrating relief and devel-
emergency to recovery”4. opment through long-term planning and disaster risk
reduction”11.
Recognising that the lived experience of affected commu-
nities does not fit neatly into humanitarian or devel- A further evolution in understanding is represented by
opment boundaries, Corsellis and Vitale’s ‘transitional ‘early recovery’, which acknowledges recovery as a series
shelter’ approach provided shelter practitioners an of overlapping processes, some of which must start early
interim outcome between emergency shelter and perma- because they have a longer trajectory:
nent reconstruction or resettlement5. This approach was
“Early recovery is a multidimensional process of recovery that
particularly valuable in conflict contexts where a linear
begins in a humanitarian setting. It is guided by development
journey towards recovery rarely occurs. It acknowledged
principles that seek to build on humanitarian programmes
the reality of the time lag between the type of support
and catalyze sustainable development opportunities”.12
offered by key stakeholders, where “reconstruction takes
usually between two and five years, but that a tent only In 2013 the Inter-Agency Standing Committee (IASC) took
lasts for around one year”6, causing households to remain the step to request all clusters integrate early recovery
in tents for an inappropriate period of time. The South into their operations. Much of the discourse on early
Asian Tsunami of 2004 also contributed useful evidence recovery at this time centred on preparing the ground
showing how recovery might be supported, acknowledging for an effective ‘exit strategy’ for humanitarian actors and
that there are interim outcomes between short-term and the expanded development of guidelines on ‘durable solu-
long-term recovery7. In other words, recovery involves a tions’13 by establishing the base on which nationally-led
series of outcomes, some of which can be achieved quickly, development can occur after a crisis14.
and other outcomes will take longer.
More recently, a growing theme has been to unify and
Initially the endpoint of recovery was understood as connect recovery with the sustainable development
a return to normal for affected communities, while it agenda15. This can be seen in the United Nations Office for
is now recognised that recovery should connect with a Disaster Risk Reduction’s current definition of recovery as:
‘new normal’, moving beyond comparisons to pre-disaster
“the restoring or improving of livelihoods and health, as well as
conditions. Following the South Asian Tsunami, the “build
economic, physical, social, cultural and environmental assets,
back better” (BBB) approach, formalised by the United
systems and activities, of a disaster-affected community
Nations Secretary-General’s Special Envoy for Tsunami
or society, aligning with the principles of sustainable devel-
Recovery, became a priority of the Sendai Framework
opment and “build back better”, to avoid or reduce future
for Disaster Risk Reduction 2015–20308. This approach
disaster risk”16.
3 Mosel,I. and Levine, S ‘Remaking the case for linking relief, rehabilitation 9 Ievers, J., & Bhatia, S. (2011). ‘Global Assessment Report on Disaster
Risk Reduction – Recovery as a catalyst for reducing risk’ International
and development’, ODI, London. Remaking the case for linking relief, reha-
Recovery Platform, ISDR. Ievers_&_Bhatia_2011.pdf (preventionweb.net)
bilitation and development | ODI: Think change visited 31.05.23
4 Adinolfi C, Bassiouni DS, Lauritzsen HF, Williams HR (2005) visited 31.05.23
Humanitarian Response Review. United Nations, New York and Geneva. 10 Flinn,B. and Morel, L. (2017) ‘The Case for Self-Recovery’ Forced
Humanitarian Response Review 2005 (interagencystandingcommittee.org) Migration Review, Oxford. The case for self-recovery | Forced Migration
visited 31.05.23 Review (fmreview.org) visited 25.0523
5 Corsellis, T. and Vitale, A. (2005) ‘Transitional Settlement: Displaced 11 Kennedy, J. Ashmore, J. Babister, E. and Kelman, I. (2008) ‘The meaning
of “build back better”: Evidence From post-tsunami Aceh and Sri Lanka’,
Populations’, Oxfam, Oxford. Transitional Settlement, Displaced
Journal of Contingencies and Crisis Management, 16(1), 24–36. https://doi.
Populations - Oxfam Policy & Practice visited 31.05.23
6 Collins, S. Corsellis, T. and Vitale, A. (2010) ‘Case Study 5 Transitional org/10.1111/j.1468-5973.2008.00529.x visited 31.05.05
Shelter: Understanding shelter from the emergency through reconstruc- 12 CWGER (2008) Guidance note on Early Recovery. United Nations
tion and beyond’, ALNAP, ODI, London. Transitional shelter: under- Development Programme, Geneva. Guidance Note on Early Recovery
standing shelter from the emergency through reconstruction and beyond CWGER April 2008 | United Nations Development Programme (undp.
- ALNAP Innovation Case Study no. 5 | ALNAP visited 31.05.05 org) visited 31.05.23
7 Ingram, J. C., Franco,G. Rio,C. and Khazai, B. (2006) ‘Post-disaster 13 Blay, C. Crozet, S. (2017) ‘Durable Solutions in Practice’ Global
recovery dilemmas: challenges in balancing short-term and long-term Cluster for Early Recovery, Geneva. durable_solutions_in_practice_-_
needs for vulnerability reduction’ Environmental Science & Policy, 9 (7–8): handbook_sept_2017.pdf visited 31.05.05
607–613. https://doi.org/10.1016/j.envsci.2006.07.006 visited 31.05.05 14 UNDP (2012) UNDP in Early Recovery, UNDP. UNDP in Early
8 Fernandez and Ahmed (2019) ‘“Build back better” approach to disaster Recovery | United Nations Development Programme visited 31.05.05
recovery: Research trends since 2006’ Progress in Disaster Science. “Build 15 Take Action for the Sustainable Development Goals - United Nations
back better” approach to disaster recovery: Research trends since 2006 - Sustainable Development visited 26.04.23
ScienceDirect visited 31.05.23 16 Recovery | UNDRR visited 31.05.05

RESEARCH PIECES B.2 / CONSTRUCTIVE AMBIGUITY: SUPPORTING RECOVERY FROM HUMANITARIAN CRISES
This is however increasingly contested in the context of resources and legislation have not necessarily yet evolved
protracted crises where normality and extended periods of to suit a complex multi-dimensional, multi-actor process.
displacement come with unique challenges17. In protracted For instance, international funding instruments22 and
crises, the multidimensional nature of recovery has existing national building codes may not serve the blend
become recognised through Humanitarian, Development, of humanitarian and development approaches required in
and Peacebuilding Nexus (HDPN) which acknowledges a crisis. In addition, there are sometimes few incentives
that simultaneous rather than sequential involvement of for governments and host communities to support the
different stakeholders is required: recovery of communities who become displaced without
warning, for example refugees from a new conflict or rural
“… strengthening the coherence between humanitarian,
IDPs displaced into urban areas. Constructive ambiguity
development and peace efforts, … effectively reducing
then becomes a necessary approach to secure appro-
people’s needs, risks and vulnerabilities, supporting preven-
priate and ongoing support by finding a middle ground.
tion efforts and thus, shifting from delivering humanitarian
The preceding section documented the recurring issue of
assistance to ending need”.18
addressing recovery in a coordinated way, and construc-
The HDPN approach has enabled notable gains to oper- tive ambiguity is one way practitioners have managed this.
ationalise the meaning of recovery for conflict settings – The following section is informed by primary data from
connecting peacebuilding, stabilisation, state-building, and key informant interviews with shelter practitioners and
the ‘durable solutions’ of voluntary repatriation, local inte- uses examples to explain how shelter practitioners have
gration and resettlement.19 successfully employed this approach.
For shelter practitioners, a further extension to under-
standing recovery has emerged from the traditions of CONSTRUCTIVE AMBIGUITY IN PRACTICE
participation and people centred housing20. The notion This research found that constructive ambiguity has been
of ‘self-recovery’ acknowledges that the majority of used in a range of crises over many years, but without
those affected by crises shelter and settle themselves on being identified as a specific approach. This section identi-
their own without external support21. The self-recovery fies several different types of constructive ambiguity which
approach encourages practitioners to use household level have successfully moved support forward from relief to
recovery priorities as a starting point, in contrast to the recovery. These include carefully choosing terminology,
humanitarian or developmental boundaries organisations funding channels, materials, or legislation.
and institution place around their support.
One way shelter practitioners have used constructive ambi-
WHY DID CONSTRUCTIVE AMBIGUITY EMERGE? guity to make space for support to recovery is to focus
on terminology which highlights humanitarian needs, and
Despite the evolution of recovery policies and approaches, is acceptable to all parties. At a certain point in time after
these have not always translated smoothly into practice for the onset or peak of a crisis, the life-saving relief provided
the recovery of shelter and settlements. The ways in which begins to fail to alleviate suffering. In Syria, although IDP
organisations, institutions and governments organise their families still live in tents, construction using concrete in
the process of sheltering IDPs was initially restricted by
17 Devictor, X. and Q.-T. Do. (2016) ‘How Many Years Have Refugees
national authorities. Humanitarian agencies addressed this
Been in Exile?’ Population Movement and Development, Volume 43, Issue by advocating for ‘dignified shelter’ rather than using termi-
2 https://doi.org/10.1111/padr.12061 nology related to recovery or permanence23. By renaming
18 The DAC Recommendation on the OECD Legal Instruments the desired outcome as ‘dignified shelter’, and away from
Humanitarian-Development-Peace Nexus 643.en.pdf (oecd.org) visited specific materials with sensitive associations, humanitarian
25.05.23 agencies were able to support shelter recovery with more
19 UNHCR (2011) United Nations High Commissioner for Refugees
substantial options beyond tents. Another example of using
Resettlement Handbook’, UNHCR. UNHCR Resettlement Handbook
(complete publication) | UNHCR visited 31.05.05
specific humanitarian terminology was shared by a prac-
20 For example: M, Lyons. and T, Schilderman. (Eds.) (2010) ‘Building titioner working in Lebanon, where one donor provided
Back Better: Delivering people-centred housing’, Practical Action, London ‘emergency’ funds on an annual basis, but no funding for
South Bank University, and International Federation of Red Cross and longer-term activities. As humanitarian agencies worked
Red Crescent Societies. Building Back Better: Delivering people-centred with the same communities and local authorities year after
housing reconstruction at scale - World | ReliefWeb visited 25.05.23 year, the communities began to recover and their needs
21 Flinn, B. Schofield. H and Morel. L (2017) ‘The Case for Self Recovery’,
Forced Migration Review, Oxford. download_file (ox.ac.uk) visited on
31.05.23 22 See also Babister (2022) ‘Overseas Development Aid for
Humanitarian Crises: Implications for the Recovery of Shelter and
Parrack, C. Flinn, B. and Passey, M. (2014) (PDF) Getting the Message
Settlements’, Open University, Open Research Online. Overseas
Across for Safer Self-Recovery in Post-Disaster Shelter (researchgate.net)
Development Aid for Humanitarian Crises: Implications for the Recovery
visited on 31.05.23
of Shelter and Settlements - Open Research Online visited 25.05.23
Twigg et al (2017) ‘Self Recovery from disasters: an interdisciplinary 23 Dignified and Safer Living Conditions for IDPs in Protracted Crises:
perspective’ Working Paper 523. ODI, London. (PDF) Self-recovery from North West Syria, Global Shelter Cluster. Dignified and Safer Living
disasters: an interdisciplinary perspective (researchgate.net) visited on Conditions for IDPs in Protracted Crises: North West Syria | Shelter
31.05.23 Cluster visited 25.0523

B.2 / CONSTRUCTIVE AMBIGUITY: SUPPORTING RECOVERY FROM HUMANITARIAN CRISES RESEARCH PIECES
evolved. The humanitarian agency worked with the donor for permanent construction. Humanitarian agencies used
to make sure the terminology in their reports fulfilled these emergency funds to provide cash assistance for
the donor’s humanitarian requirements, and the donor construction with a restricted pallet of materials. Using less
allowed programming flexibility in the knowledge that no masonry and more timber allowed households to qualify
other funds were available. for the funds. The households, however, openly stated that
they considered the houses to be their permanent homes,
In other situations, it is the source of resources which needs
not transitional, and an indicator of their recovery.
to change, rather than just the terminology. For instance, in
the Central African Republic, one practitioner found that The examples above demonstrate that effective construc-
donors would not fund construction from their humani- tive ambiguity can take many forms, but the common
tarian budgets, yet would use their development budgets objective is discovering what is acceptable to key stake-
to fund construction for the same affected communi- holders. Practitioners can use terminology to advocate for
ties. Similarly in Burkina Faso, certain donors would fund recovery, or they can negotiate with donors in a range of
durable shelter solutions from their long-term budgets. For ways to secure funds for recovery. Where legislation is a
the humanitarian agencies in these locations, it was a case barrier, they can negotiate which materials are used or find
of liaising with several different donor teams and knowing the key pieces of legislation which enable recovery to take
how to describe the same activities in different ways to place.
secure resources.
CONCLUSION
A further type of restriction is legislation in the form of
building legislation or tenure legislation. In these cases, As recovery policy evolves to advocate for a more
practitioners may need to adapt the shelter design or complex multi-dimensional, multi-actor understanding,
simply know the right type of legislation to apply. An in practice, shelter practitioners may need skills to think
example of changing the shelter design occurred after outside the box and collaborate with a range of different
Typhoon Haiyan in 2013 in the Philippines. The national actors to negotiate the space for recovery. The examples
government created ‘no-build’ zones in coastal location, of ‘constructive ambiguity’ above demonstrate two key
which restricted construction of shelters to using only points. First, they provide insights into how shelter prac-
lightweight materials. Some humanitarian agencies negoti- titioners can successfully support the recovery of house-
ated with local governments to use pre-cast concrete only holds from humanitarian crises, despite barriers created
in the pillar foundations, because these could be removed, by different understandings of the process and outcomes
so that more resilient shelters could be constructed while a of recovery. Second, they highlight the opportunities to
sustainable relocation process could be planned. After the advocate for more connection between the promotion
2010 earthquake in Haiti, humanitarian agencies applied of recovery processes and outcomes in policy and the
specific tenure legislation to support households with their methods by which this can be achieved on the ground.
next step of recovery. Land tenure issues made recon- When faced with the transition between providing relief
struction difficult for those without formal tenure docu- and supporting the recovery of shelter and settlements in
mentation. Some agencies were able to support families humanitarian crises, practitioners can assess whether the
to register their transitional shelters as temporary rather understanding of recovery going forward is shared among
than permanent construction, similar to a ‘usufruct’241 stakeholders. By reviewing how the process and outcomes
agreement, to allow for occupancy while formal tenure are understood, some shared middle ground may be estab-
discussions continued. A further example where the choice lished. For instance, questions to ask may include what
of materials allowed for flexibility followed the Padang different stakeholders expect to achieve and by when, who
earthquake in 2008, Indonesia. Donors restricted their is expected to be involved in the process and how, and
emergency funds to the construction of transitional shel- whether joint assessment and analysis might be possible.
ters, even though local materials and labour were available By starting to ask these questions it may become clearer
to practitioners how to secure resources for recovery and
24 See here for a definition: Usufruct | law | Britannica visited 25.05.23 create a platform to advocate for a smooth transition.
© IOM
A range of masonry shelters in Northwest Syria.

RESEARCH PIECES B.3 / ADDRESSING THE CHALLENGES TO ADEQUATE HOUSING FOR VENEZUELAN REFUGEES
ADDRESSING THE CHALLENGES TO ADEQUATE HOUSING

FOR VENEZUELAN REFUGEES IN LATIN AMERICA AND THE CARIBBEAN
AN EXAMINATION OF RENTAL ASSISTANCE FOR STRENGTHENING HLP AND TENURE SECURITY
By Melina Holder
© Gema Cortés/IOM
© Gema Cortés/IOM
Venezuelan migrants crossing the border in Pacaraima, a city in northern Brazil Katisuka Fernandez, 31, six months pregnant, getting prenatal consultation
that lies just across the border from Venezuela and is the main entry point into in a small open school in Sakao Motá, an indigenous remote border village
Brazil for thousands of migrants. hosting Brazilians and Venezuelans in northern Brazil.
INTRODUCTION BACKGROUND
Emergency rental assistance has emerged as an oppor- The right to adequate housing is a fundamental human
tunity to support HLP rights and tenure security for right that is enshrined in international human rights law3. It
displaced persons in urban areas, especially as most people ensures that every person has the right to live somewhere
in urban areas engage in rental markets. In Latin America with security, peace, and dignity, and to be protected
and the Caribbean (LAC), rental assistance in the form of against forced evictions4. Housing, land, and property
cash for rent has become a major method for supporting (HLP) rights are crucial for protecting the human right to
access to adequate housing for refugees in response to the adequate housing and ensuring that people can establish
Venezuelan displacement crisis. However, challenges such themselves in a self-determined location without fear of
as social barriers and economic constraints pose risks to displacement.
tenure security despite rental payment support. Overall,
Security of tenure is a critical condition for housing to be
rental assistance can be critical to delivering HLP and
considered "adequate," and it is essential for a person's
tenure security support for migrants, refugees and IDPs
ability to access social services5. Displacement can signifi-
in urban areas, but additional efforts are needed to ensure
cantly impact HLP rights and tenure security of individ-
that it is effective in providing long-term solutions.
uals, resulting in forced eviction, loss of property, social
The context of urban displacement in Perú was analyzed to support networks, and limited access to essential services
identify the primary challenges faced by migrants, refugees, and resources.
and asylum seekers from Venezuela in accessing adequate
Previously, HLP rights in the humanitarian context have
housing through rental assistance and the greatest needs
focused on securing land or buildings for emergency camps
in rental assistance programming to support long-term
and shelters, facilitating restitution for internally displaced
tenure security. Perú hosts the second-most (1.49 million)
persons (IDPs) back to their property, or resettling persons
Venezuelan refugees and migrants in LAC1 and is home
to new land if return is not possible. However, as urbaniza-
to the third-largest city in Latin America, Lima, where
tion, climate change, conflict, and economic hardship lead
approximately 80% of Venezuelan migrants and refu-
to prolonged displacement, humanitarian responses to
gees have settled2. Therefore, Perú provides a complex
HLP and tenure security must focus on long-term solutions
context of urban displacement which highlights the need
for long-term HLP and tenure security strategies that can 3 UN Habitat. (2000). The Right to Adequate Housing – Factsheet 21.
have greater implications for HLP programming in Latin P. 3-27
America. 4 International Organization for Migration (IOM). (2018). Guidance Note:
Integrating Housing, Land, and Property Issues into Key Humanitarian,
1 USAID. (2021). Venezuela Migration Crisis Peru: Second Largest Transitional and Developing Planning Processes. P. 1-15.
Destination for Venezuelan Migrants. 5 Payne, Geoffrey, Lasserve, Alain. (2012). Holding on: Security of Tenure
2 Ibid. – Types, Policies, Practices and Challenges. P. 10-25.

B.3 / ADDRESSING THE CHALLENGES TO ADEQUATE HOUSING FOR VENEZUELAN REFUGEES RESEARCH PIECES
for urban integration, while ensuring that settled commu- issue had a disproportionate impact on women, who were
nities have the capacity to welcome increasing numbers of more likely to be accompanied by children. Additionally,
migrants and refugees. xenophobia and conflicts between renters and landlords
often resulted in forced eviction or harassment to the
Urban areas pose particularly difficult challenges for
extent that renters would be forced to leave without any
migrants, refugees, and IDPs in accessing adequate housing
recourse.
due to higher living costs, xenophobia, and difficulties in
acquiring legal documentation to safeguard their rights as The limited availability of legal or customary mechanisms
tenants. In addition, the coexistence of informal and formal for resolving disputes, coupled with a lack of awareness
housing markets and shortages of housing and services in regarding existing legal and social support, exacerbated
urban areas create further challenges for these populations6 the issue. Limited childcare options or social support for
migrants and refugees in shelters also limited people’s
METHODOLOGY ability to leave the shelter to look for work and housing.
Lack of awareness building about renters’ rights and land-
The research took place over a six-week period in Lima,
lord responsibilities also served as a social barrier to tenure
Perú, supported by the Global Shelter Cluster. Site visits
security. This was especially prevalent in the context of
and interviews were conducted in two regions: central
disability inclusion. There were some cases where a person
Peru, Lima, and the Amazon region of Madre de Dios on
with disabilities were unaware of their rights to request for
the borders of Brazil and Bolivia. Field visits were coordi-
housing modifications or support that met their require-
nated with support from the International Organization
ments, or where to access other protection, social or live-
for Migration (IOM). The research design focused on
lihood support.
qualitative data collected from semi-structured field inter-
views and desk research, including case study research on ECONOMIC BARRIERS
CCCM and shelter projects with HLP and tenure security
The cost of living in Lima and Madre de Dios presented
components, disability inclusion, settlements approach,
a significant challenge for migrants and refugees to afford
eviction response and mitigation case studies, gender
their rent. Rental payments often were not provided
mainstreaming in HLP programming, and case studies on
long enough for rental assistance recipients to secure
addressing GBV in shelter and CCCM projects.
their economic position enough to continue their rental
Interviews were conducted with country offices and part- payments. In Madre de Dios especially, there were limited
ners implementing rental assistance programs in LAC to job opportunities that would provide enough income to
understand skills, capacities, and gaps in addressing HLP cover the cost of rent in the area. Further, the options
and tenure security through rental assistance for different most available to women were often in environments were
populations. The field interviews with Venezuelan migrants there was increased threat of exploitation.
and refugees focused on two groups: beneficiaries of
RENTAL PRACTICES
Cáritas' rental assistance project in Lima and those who
have not received rental assistance in Madre de Dios. A The common practice of verbal rental agreements posed
list of questions guided the interview discussions informed challenges for both renters and landlords, lacking assur-
by discussions with staff from Cáritas in Lima working on ances and protections in case of disputes or forced evic-
an ongoing rental assistance project, contextual informa- tions. There were cases where landlords would cut off
tion provided by operational Perú teams and data from essential services despite rent being paid, leaving renters
the R4V Interagency Coordination Platform for Refugees with limited options: staying without services or becoming
and Migrants from Venezuela. The questions focused on displaced once again. Even when documented rental agree-
understanding the greatest challenges faced by Venezuelan ments were used, they did not always have sufficient terms
migrants and refugees in accessing a place to rent, types and conditions to offer comprehensive protection. Further,
of rental agreements and level of tenure security. Overall, legal or formal pathways for enforcing rental agreements
the qualitative data collected from case study research and and systems to resolve rental violations were often unclear
practitioner interviews were analyzed to draw out key and inaccessible.
takeaways and recommendations.
WHAT ARE THE MAIN CHALLENGES TO TENURE

SECURITY FACED BY VENEZUELAN MIGRANTS
AND REFUGEES?
SOCIAL BARRIERS
© Melina Holder
Discrimination, particularly targeting pregnant women

and individuals with children, posed a significant obstacle
in securing appropriate rental accommodations. This issue
6 University of Oxford. (2010). Adapting to Urban Displacement. Forced An example of rental advertisement in Madre de Dios, Perú (example of infor-
Migration Review. P.7 mality of rental situation)

RESEARCH PIECES B.3 / ADDRESSING THE CHALLENGES TO ADEQUATE HOUSING FOR VENEZUELAN REFUGEES
WHAT ARE THE MAIN CHALLENGES TO TENURE occasionally impacted rental assistance project managers’
SECURITY SUPPORT IN RENTAL ASSISTANCE? ability to ensure persons with disabilities who receive
FUNDING & CAPACITY CHALLENGES rental assistance have adequate support and resources to
accessible housing, project information, and legal, commu-
Due to time, budget and capacity constraints, there was nication or other social support.
limited ability to monitor rental assistance recipients’
post-assistance to evaluate if assistance was provided long WHAT DO RENTAL ASSISTANCE PROJECTS NEED
enough to improve the livelihood situation of the recipient TO SUPPORT TENURE SECURITY?
and maintain tenure security, or what factors continued
to pose challenges. Additionally, rental assistance was only ACTIONS TO ADDRESS SOCIAL, RENTING & ECONOMIC
BARRIERS
provided for a maximum of three months due to funding
constraints. Community sensitization, either through information
INFORMATIONAL CHALLENGES campaigns or direct engagement with landlords, could help
ease tensions between renters and landlords. It is impor-
Performing comprehensive independent due diligence tant to engage directly with landlords and property owners
processes to verify information provided by rental assis- to understand their hesitation and provide the necessary
tance recipients and landlords was a challenge to ensuring
all needs of the renters were met and conditions were suit- projects, use of documented rental agreements, rights and
able to proceed with assistance. For example, due to the responsibilities of renters and landlords, available mecha-
high rates of discrimination towards people with children, nisms for resolving disputes and provision of rental agree-
some families would say they had fewer children out of fear ment templates.
of becoming ineligible for assistance. Additionally, land- Social support network mapping could also assist in
lords sometimes provided inaccurate information about addressing social barriers. This should focus on iden-
their property ownership or the property’s adherence to tifying relevant organizations and individuals that can
habitability requirements. provide assistance in addressing HLP concerns, childcare
Other informational challenges, such as establishing reli- and legal support, organizations that specialize in support
able methods of communication between rental assistance for persons with disabilities, such as Organizations of
project managers and recipients hindered the monitoring Persons with Disabilities (OPDs), or other social services.
of rental payments and the resolution of disputes or The support network is also a valuable tool for collecting
response to evictions. Additionally, inadequate information information about the tenure security context, addressing
on procedures and timing of rental payments occasion- disputes and providing referrals for other available assis-
ally made it difficult for renters to explain the process to tance, such as job support services or other programs to
prospective landlords, leading to hesitancy in renting. help renters continue payments post-assistance.
SOCIAL CHALLENGES To ensure rental assistance projects are meeting the needs
of all rental assistance recipients, a disability inclusive that
Social barriers, such as discrimination and xenophobia is rooted in the principles established by the Convention
often prevented landlords from renting to rental assis- on the Rights of Persons with Disabilities, including respect
tance recipients despite the fact that payments were made for dignity; participation and inclusion; non-discrimination
directly to the landlords. In some cases, renters were still at and equality of opportunity; and equality between men,
risk of eviction and harassment even after rental payments amongst others7. Further, a case management approach
were made. that integrates housing and tenure security support
Additionally, limited awareness about the support require- with income generation, legal support, protection and
ments for different populations of persons with disabilities support for caregivers or family members should be
included in rental assistance programming when applicable.
Assessments that identify persons with disabilities and their
needs should employ recognized data collection methodol-
ogies, such as the Washington Group Questionnaire Sets8.
COMPREHENSIVE INFORMATION GATHERING
Conducting HLP and tenure security assessments, either

independently or in coordination with the overall rental
market assessment, that evaluates the level of tenure
© Melina Holder
7 IASC. Inclusion of Persons with Disabilities in Humanitarian Action.

P.7. https://reliefweb.int/attachments/ebc305c6-9252-3412-8ddd-
2695ece185af/iasc_guidelines_on_the_inclusion_of_persons_with_disabili-
ties_in_humanitarian_action_2019.pdf
8 Washington Group on Disability Statistics. (N.D.) Washington
An image of Iñapari, Perú, one of the most porous borders between Brazil and Group Questionnaire Set. https://www.washingtongroup-disability.com/
Perú where many migrants cross and there is only one operating service provider. question-sets

B.3 / ADDRESSING THE CHALLENGES TO ADEQUATE HOUSING FOR VENEZUELAN REFUGEES RESEARCH PIECES
security that an individual or community has in their land, refugees and IDPs to help secure housing and acquire the
property, or in this case, rental accommodation could stability to plan next steps. Rental assistance, when paired
help rental assistance projects better understand the HLP with awareness-building, can also play an important role in
and tenure security context, proactively address tenure community integration and sensitization towards renting
security barriers and plan for needed awareness-building, to migrant and refugee populations.
referrals and exit strategies. HLP due diligence focused
To effectively scale long-term HLP and tenure security
on independently verifying the landlord’s right to rent out
support and minimize the risk of eviction and secondary
the property, and any information provided by renters
displacement, rental assistance projects need to incorpo-
and landlords that has the potential to weaken the rent-
rate exit planning and programming that tackles key obsta-
er’s security of tenure is also needed to ensure project
cles to tenure security from the beginning of the project.
managers are accounting for all variables that could impact
This includes addressing social and financial barriers,
tenure security.
promoting renting awareness, tailoring support for different
EXIT PLANNING vulnerable populations, and ensuring independent verifi-
Although rental assistance projects can enhance tenure cation of information relevant to HLP rights. Identifying
security during the period of assistance, it is crucial to opportunities to leverage existing support and resources,
plan from the beginning of the project how renters will such as through coordinating with development-sector
be able to continue their rental payments and maintain programs or organizations working with municipal govern-
or improve their tenure security. This could include iden- ment-funded could help overcome barriers with funding
tifying and linking renters to complementary income and emergency timelines.
generation or development sector programs, appropriate Scaling such an approach could have significant implications
job-skills trainings, or local organizations already working for addressing urban displacement in Perú and serve as
with government-funded livelihood programs. Monitoring an example for HLP programming in other LAC coun-
programming is also needed to understand the impact tries. Given the magnitude of the Venezuelan refugee crisis
rental assistance programs had on beneficiary tenure secu- and the challenges faced by Venezuelan refugees in real-
rity and ability to improve living conditions. izing their right to adequate housing, implementing effec-
Rental assistance projects provide an opportunity to deliver tive rental assistance programs can play a crucial role in
tenure security and HLP support in the context of urban providing HLP and tenure security support for displaced
displacement by providing targeted resources to migrants, populations throughout the region.
© Gema Cortés/IOM
Venezuelan migrants line up for migration procedures in the Brazilian city of Pacaraima, close to the borders of Venezuela.

TRIBUTE DR. TEDDY BOEN AND FERROCEMENT SEISMIC RETROFITS
DR. TEDDY BOEN AND FERROCEMENT SEISMIC RETROFITS

By Arwin Soelaksono and Dave Hodgkin
This article is written to honour the memory of Dr. Teddy codes, a combination of calculation and laboratory
Boen, (1934-2023) an engineer who worked for decades tests are required to validate calculations.
to improve the safety of dwellings in Indonesia.
3. Retrofitting to improve seismic performance needs
In 1962 Dr. Boen was the first Indonesian engineer to be to be simple and economical. Whenever possible
sent by the Indonesian government to Japan, specifically it should be implemented using affordable building
to study earthquake engineering. From 1964 onwards he materials easily found in local markets and hardware
published numerous papers, manuals and guidelines related stores. Dr. Boen calculated that retrofitting an existing
to earthquake-resistant designs, empowering commu- building for seismic resilience commonly costs only
nities to retrofit and upgrade houses to reduce the risks around 30% of the cost of building a new structure.
from earthquakes, as well as working tirelessly to support
Dr. Boen recognised that to achieve such a societal change
communities to rebuild more safely after earthquakes.
to building practices a combination of regulatory work,
Dr Boen was responsible for the development and intro- and engagement on supply and demand is required.
duction of the first formal earthquake engineering syllabus
On the regulatory side you need to work with govern-
in Indonesia at the University of Indonesia and Trisakti
ments and authorities to ensure that it is within the
University back in 1967, and personally lectured on
building codes.
earthquake-resistant design to countless civil engineering
students across Indonesia. Dr. Boen served as the Director On the supply side you need to work with the building
of the International Association for Earthquake Engineering trades to ensure that the industry has the capacity to build
(IAEE) from 1978-1986 and then continued on as the using the approach.
Indonesian national delegate to the IAEE through to 1992.
On the demand side you need to work with vulnerable
In 2022, a year before his passing at the age of 89, DR Boen
communities to ensure that they are their aware about
became one of only four recipients of the ACECC Asian
this simple and affordable technique. You also need to
Civil Engineering Achievement Award for his “outstanding
encourage the understanding of the risks that they face
& remarkable contribution to the advancement of civil
and the importance of investment in risk reduction.
engineering & development in Asia”, in recognition to his
lifelong career. Many emerging nations throughout the world face the problem
that a significant portion of the country’s housing stock was
The following article highlights the use of Ferrocement
built prior to the enforcement of appropriate seismic building
reinforcement, which was one of the many technical solu-
codes and is therefore inadequate for the seismic risks they
tions promoted by Dr Boen for improving the earthquake
are likely to face. This leaves many communities highly vulner-
resilience of housing in Indonesia.
able and in need of urgent support to reduce risk. Simply
waiting for disaster to strike will result in unnecessary loss
FERROCEMENT RETROFITTING AS AN of life and much higher cost in recovery and reconstruction.
AFFORDABLE MEASURE TO STRENGTHEN
HOUSES IN THE PREPAREDNESS AND Retrofit solutions such as the ferrocement system devel-
RECOVERY CONTEXT oped by Dr Teddy Boen offer a practical and affordable
solution for development agencies to assist local govern-
There were three basic principles that Dr. Teddy Boen
ments and communities to be better prepared.
taught his students about retrofitting with ferrocement.
1. Civil engineering, including earthquake engineering, is
a matter of respecting and following the natural flow
of loads. This is the same whether these are static
vertical loads or dynamic load caused by wind or an
earthquake. Structures might fully or partially collapse
if the structural elements cannot carry the loads.
2. People should implement civil engineering principles
by following building codes. These do not need an
© Teddyboen.com
engineering degree. If builders are trained to read the

drawings, to fix rebar correctly and work with the
proper admixture, they can create strong structures.
For those civil engineers who produce the building

DR. TEDDY BOEN AND FERROCEMENT SEISMIC RETROFITS TRIBUTE
FERROCEMENT RETROFITTING IS SAFE, incomes. For these people additional assistance and incen-
ACHIEVABLE, AND AFFORDABLE tives may be required along with information and commu-
nications programs.
Dr. Boen was the first engineer in Indonesia to research
and document retrofitting through the use of ferroce- In Indonesia, more than 70 percent of houses are built
ment for seismic resilience. The simplest system developed without any assistance from licensed construction profes-
used a combination of chicken wire, steel rods, common sionals. As a result a large proportion of the national
fastenings and cement render to create a ‘ferrocement’ housing stock is suspected to be highly vulnerable to earth-
layer. This layer encased the masonry walls of a building quakes. This is also true in many other emerging nations
to create an integrated earthquake resilient structure. The where poor building code enforcement and a lack of
beauty of this methodology is that it can easily applied to training leave many households vulnerable to seismic risks.
existing, new or repaired brick walls. It provides an effec- In these contexts improving the demand/capacity for
tive, low-cost seismic retrofit solution. This solution can seismic retrofitting is essential and can be done by commu-
be particularly appropriate for heritage listed masonry nity mobilization through sensitization of earthquake risk.
buildings in need of seismic upgrading or post-earthquake
repairs. The low cost and relative ease of the system also A pilot programme was conducted in 2020 in Sukabumi,
makes it appropriate for a wide range of simple non-en- West Java and Banyuwangi, East Java, both in Indonesia .
gineered community masonry structures such as houses This programme saw a series of local-language trainings
and shops. on ferrocement retrofitting using a community-based
approach. These trainings were made available, not only
Dr Boen extensively tested ferrocement techniques using for local builders and tradespeople but also to local.
calculation and computer analysis to identify where forces
are largest, and how ferrocement can strengthens those to local leaders, housewives and any other community
parts. He validated these theoretical models with full-scale members who could benefit from access to such training
shake table tests. This modelling and research showed that and help ensure improved resilience.
ferrocement renders is inexpensive compared to building In Indonesia, Dr. Boen worked tirelessly to train local
a new structure and is simple to apply and can be done by builders and volunteered to teach shelter agencies and
anyone. During many hands-on trainings with with both their teams about recovery initiatives through ferrocement
men and women, builders and homeowners , people learnt training. As recently as 2019 at the age of 84, Dr. Boen
to fix the wire mesh in the x-shaped cracks formed by travelled to Palu to support the Indonesia National Shelter
seismic stresses on a wall. Cluster during the ongoing response to the 2018 Central
Ferrocement retrofitting works well on houses with Sulawesi earthquake. Shelter agencies were subsequently
masonry walls and can be applied after disasters or as a able to better convey important retrofitting messages to
preparedness measure. However, the technique is quite both the local government and the affected community.
different to standard construction practice in Indonesia so Whilst Ferrocement is still far from standard in Indonesia,
requires time investment within a given community to raise it is now accepted in building codes and the beginning of
awareness. the work to ensure that people are aware of it and use it
is well underway.
THE IDEA OF MASSIVE RETROFITTING FOR
PREPAREDNESS MEASURES
The ferrocement retrofitting system developed by Teddy

Boen is an appropriate and applicable technology for For Teddy Boen's publications, such as manuals, guidelines,
masonry houses in many parts of the world. Implementing posters, and drawings please visit the website:
this system will however need to be actively promoted teddyboen.com
both with government agencies and with local communi-
ties. Ideally implementation of this system should include
additional local research and engineering as Dr. Boen
conducted to ensure that it meets the requirements of
local building codes and is appropriate to local seismic
risk and construction techniques. Implementation in new
contexts will also need to be accompanied by appropriate
public information campaigns to create understanding and
demand for this cost-effective retrofitting solution.
The gap between retrofitting ferrocement knowledge and
public willingness for people to retrofit their houses can be
significant. The most challenging part for the retrofitting of
vulnerable houses is for homeowners with extremely low

Siargao Island, Philippines. © Lorrie Micalob
In 2021 and 2022, the total number of people displaced
by crises in the world continued to grow. By the end of
2021, 89.3 million people were displaced due to conflict
or violence, and during 2022, 185 million people were
affected by disasters. With such large-scale needs, there
is also an imperative to ensure that the assistance that is
delivered makes best use of often limited resources.
Spanning humanitarian responses from all over the
world, this book is the eighth in a series of compilations
of shelter and settlements case studies, response
overviews and opinion pieces. The case studies included
in this book show projects that took place in contexts of
conflict, disasters and complex crises, demonstrating
a wide range of approaches to shelter and settlements
assistance.
The book is intended to support learning by highlighting
the strengths, weaknesses and some of the lessons
that can be learned from different projects, which try
to maximize emergency funds to safeguard the health,
security and dignity of affected people, whilst – wherever
possible – supporting longer-term shelter and settlement
needs and sustainable recovery.
The target audience is humanitarian managers and
shelter and settlements program staff from local, national
and international organizations at all levels of experience,
as well as local and national government representatives
involved in crisis response and recovery. Shelter Projects
is also a useful resource for advocacy purposes,
showcasing the work done by the sector, as well as for
research and capacity-building activities.
All case studies and overviews contained in this book, as
well as from all past editions, can be found online at:
www.shelterprojects.org

ShelterCluster.org

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SHELTER PROJECTS 9th edition

CASE STUDIES OF HUMANITARIAN SHELTER AND SETTLEMENT RESPONSES 2021-2022

Global Shelter Cluster

Global Shelter Cluster

Available online on www.shelterprojects.org

To be printed in September 2023.

This publication was issued without formal editing by IOM.

Copyright for back cover photos:

ii SHELTER PROJECTS 9 TH EDITION

INDEX OF CASE STUDIES/OVERVIEWS BY COUNTRY PUBLISHED IN SHELTER PROJECTS (2008-2022)

Number of case studies/

iii SHELTER PROJECTS 9 TH EDITION

For comments, feedback or questions, please visit the website or contact

iv SHELTER PROJECTS 9 TH EDITION

AGD Age, Gender and Diversity IDP Internally Displaced Person

A NOTE ON TERMINOLOGY Sometimes these terms are used interchangeably, and

v SHELTER PROJECTS 9 TH EDITION

Construction of new camps for IDP families in Northern Aleppo,

FOREWORD iii A.17 INDONESIA / 2021 / EARTHQUAKE 106

vii SHELTER PROJECTS 9 TH EDITION

Woman builds on shelter frame with

Durable shelters in Malkohi, Adamawa State, Nigeria, 2022.

ABOUT THIS BOOK CASE STUDY SELECTION

ix SHELTER PROJECTS 9 TH EDITION

CONFLICTS AND VIOLENCE

At the end of 2021, a total of 89.3 million were forcibly

Similar to 2020, more than two-thirds (69 per cent) of

x SHELTER PROJECTS 9 TH EDITION

DISASTERS This edition includes multiple shelter responses to trop-

1 UCLouvain, CRED, USAID (2022). Disasters in Numbers 2021

11.5m 10.1m 451,000 240,000 37,000 20,000

In Mid-June 2022, Pakistan witnessed extreme flooding which damaged

xi SHELTER PROJECTS 9 TH EDITION

SHELTER RESPONSES IN 2021 AND 2022

6 All data in this section is from the Global Shelter Cluster

2015 Reached: 18.1m

Syrian Arab Republic (Northwest Syria), 2022.

xii SHELTER PROJECTS 9 TH EDITION

xiii SHELTER PROJECTS 9 TH EDITION

People targeted /reached globally in 2021-2022 with:

People in People reached with NFI assistance

4 Asia Pacific MENA

% of funding received vs requested | 2022

xiv SHELTER PROJECTS 9 TH EDITION

Marocani Resettlement site, Ancuabe District, Mozambique, 2021.

xv SHELTER PROJECTS 9 TH EDITION

CONTEXT AND SETTLEMENTS OPTIONS/SITUATIONS SUPPORT METHODS

SHELTER ASSISTANCE TYPES

The case studies in this edition show a range of different

people who were renting accommodation (A.13, A.19,

One project (A.10), was specifically focused on shelter

xvi SHELTER PROJECTS 9 TH EDITION

CONTEXT SETTLEMENT OPTIONS/SITUATIONS SHELTER ASSISTANCE TYPES SUPPORT METHODS

Tech. Assistance / Quality Assurance

Guidelines / Mass communication

Unconditional & Unrestricted

Advocacy / Legal assistance

Training / Capacity Building

Site / Settlement planning

Debris / Rubble Removal