TRIP REPORT HAITI SHELTER CLUSTER ENVIRONMENT ADVISOR FIELD REVIEW
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Emergency Shelter Cluster
Trip Report
Haiti Shelter Cluster
Environment Advisor
Field Review
Developed under the
Integrating Critical Environmental Issues into
Emergency Shelter Cluster Activities Project
CARE International and ProAct Network
Funded by the Emergency Shelter Cluster
(UNHCR Project CLUS-07/ESC04)Integrating Critical Environmental Issues into Emergency Shelter Cluster Activities Project
Shelter Checklist Review/Gonaives - 30 October 2008
Emergency Shelter Cluster
Trip Report - Haiti shelter cluster
environmental advisor field review
C. Kelly (email: 72734.2412@compuserve.com)
Introduction
The Global Shelter Cluster has funded CARE International and ProAct Network to develop capacities
necessary for deployment of an Environment Advisor to support cluster activities during emergencies.
Under this funding, ProAct Network has:
1. Assembled and developed a set of tools and procedures to support a Environment Advisor in
their work in Shelter Cluster field operations,
2. Developed the terms of reference for the Advisor and,
3. Established a list of individuals who can serve as Advisors in emergency operations.
This report covers a field review of the existing tools and procedures to understand how well these
materials would support the work of a Shelter Cluster Environment Advisor during a humanitarian
emergency. The terms of reference for the field review are provided in Annex A.
Field Review
Haiti was affected by two hurricanes (Gustav and Ike) and two tropical storms (Fay and Hanna) in
August and September, 2008 (see Annex B). The storms resulted in destruction to a reported 27,730
houses and damage to another 103,457 houses. The storms affected much of the country (see Annex
B), although the flooding and subsequent deposition of up to 1.5 meters of soil in Gonaives gained
international attention and became the focus of considerable assistance. In response to the impact of
the four storms, the UN activated the Shelter Cluster, led by IOM Haiti.
Under the terms of the agreement with the Global Shelter Cluster, the author was seconded to
the Shelter Cluster in Haiti as an Environment Advisor to conduct a field review of shelter-related
environmental tools and procedures. The author worked with the Cluster Coordinator and Information
Officer at the IOM office in Port au Prince from 14 to 31 October 20081 (see Annex C).
On arrival in Haiti, briefings on the field review and the role of the Environment Advisor were
provided to the Shelter Cluster Coordinator, the IOM Country Director and the CARE Country Director.
The following activities were undertaken during the work in Haiti in coordination with the Cluster
Coordinator (or her temporary replacement):
1 The period of 17-19 October was spent outside Haiti.
1Integrating Critical Environmental Issues into Emergency Shelter Cluster Activities Project
Shelter Checklist Review/Gonaives - 30 October 2008
1. Dissemination of Shelter-related Environmental Information:
One task of the Environment Advisor is to share environment-related information with Cluster
members. An “Environmental Toolkit” CD (prepared by ProAct Network) was provided to the
Cluster Coordinator. Assistance was provided to the Cluster Information Officer on establishing a
“google groups” web site so that shelter-related environmental information could be provided to
Cluster members. The site, located at http://groups.google.com/group/emergency-shelter-
haiti, provides an information base for Shelter Cluster operations in Haiti.
2. Damage Assessment:
It was noted that there was no detailed (quantitative or qualitative) assessment of the damage to
shelter caused by the four storms aside from a cumulative listing of the number of destroyed and
damaged buildings per administrative area. It was clear that the flooding in Gonaives damaged
or destroyed many homes. But there was no clear picture of the nature of damage done by the
storms elsewhere in the country, or quantitatively what assistance was needed to remediate
this damage. Further, assistance agencies were developing re-sheltering plans but it was not
apparent that these plans were based on a comprehensive assessment of damage or needs, or
that these plans took into account the intentions of disaster-affected populations in terms of
meeting immediate shelter needs 2.
Following discussions with the Cluster Coordinator, assistance was provided on developing a
rapid assessment questionnaire to ascertain:
• The nature and level of damage to shelter across the country, and
• What disaster survivors intended to do to address their immediate shelter needs3.
The assessment tool was launched by the Shelter Cluster on 31 October 2008 following a number
of reviews and field tests. The results are expected to be available by mid-November.
3. Rapid Field Assessments:
Field assessments were conducted in the southwest (Les Cayes, southwest coast to Les Anglais),
and south center (Jacmel, Marigot and points east) of Haiti as well as to Gonaives (two trips). The
trips to the south and southwest were intended to more directly ascertain the nature of damage
caused by the four storms and specifically impacts on the environment and shelter. The Gonaives
assessment was to advise on shelter issues in the town and test the Shelter Checklist. Summary
details are provided below, with more extensive field notes provided in Annex D.
a. Gonaives
i. Shelter Checklist
Shelter Checklists were completed for two temporary shelter sites in Gonaives with the
assistance of IOM/Gonaives staff (see Annex D, Gonaives Emergency Shelter and Environment
Checklist Review). Each checklist took less than 45 minutes to complete through interviews
with site managers, including introductions and limited walk-through of the site. The IOM
counterpart for the use of the checklists felt that he could conduct similar assessments in
the future.
2 It was reported that the IFRC was conducting household-level assessments, but this information was not available to the
Cluster at the time of the field work.
3 French and Creole copies of the assessment form can be found at http://groups.google.com/group/emergency-shelter-
haiti/files .
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Shelter Checklist Review/Gonaives - 30 October 2008
ii. Provisional Shelter
A pressing issue in Gonaives was the departure of displaced from schools and other
institutions as the government (and presumably many site owners) wanted to return these
locations to their normal function. An option proposed was the creation of tented camps for
the displaced, to which the displace would be moved as quickly as possible. Two tent camps
were visited and found to be inadequate (see Annex D).
During discussions in Gonaives it was noted that there was no accurate information on who
was in the temporary shelters and why they were remaining in these locations (which in
most cased were poorly served with basic services). Suggestions to better understand the
reasons behind the continued need for temporary shelters were later implemented in the
form of a rapid assessment of the shelter sites to better understand why they remained open
and under what conditions occupants would return to their normal homes.
It was also noted that the shelter assistance effort in Gonaives did not have an exit strategy
to return people to their normal housing as quickly as possible and to minimize medium
term transitional shelter needs. This point was discussed with staff in Gonaives and the
Shelter Coordinator, leading to a call for additional technical assistance on shelter issues for
the Cluster4.
iii. Waste management
Shortly after the flooding in Gonaives (the second time in 4 years), the WASH Cluster
requested technical assistance on management of the waste generated. This request was
later stopped, with UNDP taking over the coordination of the clean-up, an effort which saw
considerable government and NGO involvement.
As confirmed with Andrew Morton (UNEP expert working in the post disaster needs
assessment and asked to review the waste/debris issue in Gonaives), much of the initial
waste material in Gonaives was composed of silt carried into the city by the flooding. This soil
was cleared from streets and public areas and disposed outside Gonaives at a “least worst”
location (see Annex D)5.
However, once clearing and cleaning of buildings had begun, the proportion of household
and potentially hazardous waste items in the overall waste stream increased. This changing
nature of the clean-up waste was not being taken into account in the collection and disposal
of the waste.
It is unfortunate that waste management experts were not present at the beginning of the
Gonaives clean-up operation. The initial clean-up, largely involving the removal of silt from
roads, wasted considerable resources by dumping this material outside the city and not
using it for more productive uses (e.g., flood barriers, flood evacuation mounds). Similarly,
the failure to adjust collection procedures to the changing nature of waste once household
and other debris became part of the stream, may result in unnecessary future environmental
damage.
4 This assistance was to arrive o/a 17 November 2008 as a secondment to the Shelter Cluster from CARE International.
5 There was a view expressed that the river silt in the city was (severely) contaminated by contaminants, but this view was
not based on testing. Logically, the volume of flood waters and silt was probably so large as to make a widespread high level
of contamination unlikely. Simply put, the flood waters probably washed most contaminants into the sea or diffused them
across the environment.
3Integrating Critical Environmental Issues into Emergency Shelter Cluster Activities Project
Shelter Checklist Review/Gonaives - 30 October 2008
b. Southwest
Very limited wind damage was reported, with most damage caused by local flash flooding
or, in the case of Les Cays, river flooding6. Reconstruction would not likely pose significant
additional resource demands on the environment as materials from damaged/destroyed
buildings could be salvaged for rebuilding or were in excess supply locally (e.g., river stone
for walls). Conditions in designated shelters which were visited in Les Cayes and Cavallion
were below Sphere Standards and posed significant environmental issues. (None of the
shelters were in use at the time of the visit). Little in the way of shelter-related assistance was
reported to have been received in the region.
c. South Center
Localized wind damage was reported, but the most significant damage agent appears to
have been flooding. Relatively little shelter assistance was reported. Damage was severe
(destroyed buildings or buildings which had been inundated with floor waters and sediment)
but localized. Salvaging materials from damaged homes is possible, but some new resources,
particularly timber and zinc, are likely to be needed. Environmental damage from flooding
may be significantly greater than from harvesting local resources for rebuilding, particularly
since stones are widely available for repairing damaged walls.
4. Briefings on Environmental Issues:
Three briefings on environmental issues were provided to Shelter Cluster (twice) and WASH
Cluster meetings in Port au Prince. Copies of the briefings can be found in Annex E.
5. Interaction with the Early Recovery Cluster/Post-Disaster Needs Assessment:
A joint Government/UN/WB/Humanitarian Community post disaster needs assessment was
underway during the field work. Periodic discussions were held with the Shelter Cluster
Coordinator, the UNEP staff person involved in the assessment and several assessment participants
on the integration of shelter-and-environment concerns into recovery planning. However, there
was a lack of clarity as to the boundary between Shelter and Early Recovery efforts with respect
to post-emergency assistance, with transitional/temporary shelter efforts at time apparently
considered as part of the Shelter or Early Recovery Clusters. Raising environmental concerns in
this confusion was difficult.
Results
The results of the field review are divided into two parts, the first dealing with accomplishment of
the ToR and the second with issues related to the process of providing an Environment Advisor to an
operational Shelter Cluster.
Terms of Reference
Accomplishments under the ToR included:
1. The provision of environment-related shelter information to Cluster members (i.e., the
Environment-Shelter CD),
6 Wind is normally a significant damage agent for hurricanes.
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2. Environmental issues raised at Cluster meetings and in discussions with individuals
involved in shelter activities,
3. Practical advice to Cluster members on needs assessments and waste management.
4. Advice on development of shelter plans in Gonaives.
5. Advice on developing an understanding of environmental issues related to the provision
of short and medium term shelter.
6. Testing of the Shelter Checklist in Gonaives.
At the same time, the work was not fully successful in several areas. A review of environmental
policies or tools used by the Shelter Cluster was not possible as, aside from the Checklist test, no
such tools or policies were in use during the field work and the Checklist was not adopted for use
by Shelter Cluster members.
Further, although the Shelter-Environment Toolkit was made available and promoted with Shelter
Cluster members, there is no evidence that the Toolkit was use by any member. As a result, it was
not possible to collect feedback on the utility of the Toolkit.
No modifications were made to existing tool. It was noted that a short review checklist could be
useful to review the environmental impact of proposed transitional shelter interventions. This
checklist would assess the impact of the resources inputs for a project and outline ways to limit
negative impacts. However, this new tool was not developed as there were no shelter project
descriptions available for review.
Overall, four issues limited accomplishment of the ToR. First, the Shelter Cluster was not as advanced
as expected in terms of the collection of damage/needs assessments and shelter planning (e.g.,
establishment of common shelter assistance packages or plans to provide assistance to all the
affected populations). This meant that basic information about post-disaster shelter conditions
was not available, thus limiting the possibilities to conduct environmental reviews of disaster
impact and response plans7.
Second, most emergency shelter attention was focused on Gonaives, and to a lesser degree
areas near St. Mark. Most of the relief effort in Gonaives was focused on clean-up, an effort
being managed by the Early Recovery Cluster, but with significant involvement of shelter-sector
actors.
It appeared that shelter issues were managed on an ad hoc basis and subsidiary to the clean-
up, rather than the clean-up being a step in the process of addressing shelter needs. The lack
of an overall shelter plan for Gonaives made it difficult to define and address shelter-related
environmental issues related to providing adequate shelter. (The decision of UNDP to not follow-
through on the WASH Cluster request for technical assistance on waste management led to a
clean-up effort which was largely ignorant of the resulting negative environmental impacts.)
The focus on Gonaives also meant that other areas of Haiti which suffered shelter losses
received little assistance. The lack of assessments (as noted), shelter plans and organizations
providing assistance in the other parts of Haiti significantly limited the options for defining and
understanding disaster-related environmental impacts and to define environmentally positive
responses.
7 The lack of one or more technical shelter specialists in the Haiti Shelter Cluster probably contributed to the lack of
damage/needs assessments and the slow development of common shelter packages. A technical specialist was deployed in
late November, but with a mandate limited to transitional shelter in Gonaives.
5Integrating Critical Environmental Issues into Emergency Shelter Cluster Activities Project
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Third, the division of responsibilities for transitional shelter between the Shelter and Early
Recovery Clusters was not clear. At one point, it appeared that the Early Recovery Cluster would
take responsibility for transitional shelter, although later this responsibility was apparently passed
back to the Shelter Cluster. Assessing and planning appropriate responses to environmental
issues is a challenge when it is not clear which Cluster has responsibility for coordinating the
underlying assistance effort.
Finally, NGO participation in the Shelter Cluster (and in overall shelter assistance) appears to have
been limited. IOM appeared to be the dominant shelter assistance provider in terms of funding
and operations. (Some organizations appeared to attend Shelter Cluster meetings in search of
IOM funding and the perception that Shelter Cluster meetings were actually IOM meetings may
have limited involvement of some NGOs.)
CRS, Habitat for Humanity, and IFRC/Haitian Red Crescent were reported to be involved in shelter
activities. However, they did not appear to be active participants in the Shelter Cluster based
on the meetings attended during the field work and from information provided by the Shelter
Cluster Coordinator8. The weak participation in Shelter Cluster coordination and information
sharing efforts reduced the effectiveness of the Shelter Cluster, as well as limited the use of
the Shelter Cluster as a base for incorporation of environmental issues into emergency and
transitional shelter operations.
Environment Advisor Posting
There was initial confusion over the incorporation of an Environment Advisor into the Shelter
Cluster coordinating structure. These issues were worked out quickly and the support provided
on the ground in Haiti was excellent.
There was also a lack of clarity in task allocations and reporting once the (initial) Shelter Cluster
Coordinator left country and her position was assumed by an individual also handling operational
management of agency-specific relief operations. As learned from previous Cluster operations,
the “co-hatting” of an individual with Cluster Coordination and operational responsibilities will
negatively impact cluster operations.
Recommendations
1. The terms of reference and length of assignment of a Shelter Cluster Environment Advisor
need to take into account the level of development of a field Cluster operation. If needs/
damage assessments have not been undertaken and/or if assistance plans (including
common shelter packages) have not been developed, the Advisor will need to either
contribute to developing these materials as a prerequisite for further work specifically on
environmental issues, or defer field work with the Cluster until (at the least) assessments
have been completed.
2. The role of the Environment Advisor within the Shelter Cluster Coordination Team needs to
be clear. This is particularly necessary where a Cluster Coordinator is also responsible for relief
operations, a situation where experience indicated that the division (and potential conflict)
between broad Cluster issues and agency-specific operational issues can be problematic.
3. The Environment Advisor needs to take a more proactive and take on a stronger advocacy
roll with respect to environmental issues, including out-reach to agencies involved in shelter
assistance actors who are not fully participating in the Shelter Cluster.
8 IFRC participation in meetings increased with the arrival of shelter unit staff from Geneva.
6Integrating Critical Environmental Issues into Emergency Shelter Cluster Activities Project
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4. Procedures for reporting to the Global Shelter Cluster need to be clarified, if only to limit
appearances that Environment Advisor is inappropriately sharing information about Cluster
operations, or on individual Cluster members, outside the local Cluster management.
5. Responsibility between Clusters for transitional shelter needs to be defined early, and clearly,
so that it is clear which Cluster is responsible for environmental issues related to transitional
shelter.
6. Consideration should be given to developing an additional checklist focusing on assessing
the environmental impacts of shelter assistance packages. This (short) checklist could be
built off of the work by the Shelter Centre on classifying shelter sector inputs
(Shelter Sector Items, see http://www.sheltercentre.org/sites/default/files/Shelter%20
Sector%20Items%20PART%20DRAFT%20Nov%202008.pdf
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ANNEXES - Shelter Checklist Review/Gonaives - 30 October 2008
Annexes
Annex A – Terms of Reference
Haiti Terms of Reference Field Review of Emergency
Shelter-Environment Toolkit
Background
Disasters are often associated with environmental damage from the impact of the disaster event
itself, as the result of poor pre-disaster environmental conditions or from the impact of relief and
recovery activities. Unfortunately, avoidable environmental damage still occurs despite knowing how
to prevent or minimize this damage. This outcome generally occurs because of:
1. A lack of dedicated technical support at the disaster site to provide practical guidance on
how to minimize of avoid negative environmental impacts,
2. A weak application of existing policies on environmental issues and disasters and/or,
3. A lack of access to tools to assess and address negative environmental impacts associated
with relief and recovery activities.
Recognizing these limitations, the Global Emergency Shelter Cluster commissioned the development
of tools and capacities to more effectively identify and address post-disaster shelter-related
environmental issues. This effort, being implemented by ProAct Network and CARE International with
funding provided by the Global Emergency Shelter Cluster, focuses on three activities:
1. Developing a set of policies and tools which can be used in the post-disaster provision of
shelter to minimize immediate and long term negative environmental impacts9.
2. Creating a cadre of environmental experts who can serve as environmental advisors in
emergency shelter operations and use the policies and tools developed.
3. Developing training materials to reinforce the capacities of the shelter-and-environment
experts (and others as the occasion may arise) to better assessment emergency shelter
related environmental impacts and assist in the implementation of shelter relief and recovery
activities which have the least possible negative impact on the environment.
A toolkit of policies and tools based on the experiences of a number of disasters has been developed
under the first activity. This toolkit requires a field review to both validate the materials developed to
date and gain greater understanding as to how the existing tools can be used in different disasters,
and whether any additional tools which may be needed.
9 Note that shelter here is used in the broad sense and includes physical protection from weather and other natural and
social hazards, the water, sanitation and hygiene needed for a minimally adequate life and the basic livelihoods activities
associated a minimally adequate level of life and wellbeing.
8Integrating Critical Environmental Issues into Emergency Shelter Cluster Activities Project
ANNEXES - Shelter Checklist Review/Gonaives - 30 October 2008
Haiti Field Review
As part of the project support to the Global Emergency Shelter Cluster, the Haiti Field Review will
focus on the application of existing Shelter-Environment Toolkit items in the recent hurricanes and
floods which have affected the country. This review will involve:
1. 1. A mapping of relief/recovery and environmental stakeholders involved in the hurricane/
flood response in Haiti.
2. 2. A review of any applicable environmental policies or tools used by the Shelter Cluster
response to the floods/hurricanes.
3. 3. Awareness raising about the existing Shelter-Environment Toolkit as it applies to Haiti.
(This awareness raising will be through the Shelter Cluster or directly with humanitarian
personnel, as circumstances allow).
4. 4. Use of items in the Shelter-Environment Toolkit through the Haiti Emergency Shelter
Cluster in the context of relief and recovery activities in Haiti.
5. 5. The collection of stakeholder feedback as to the utility of the items included in the Shelter-
Environment Toolkit. (“Success” of the toolkit items will be assessed based on their perceived
utility of the tool by shelter sector and environmental stakeholders.)
6. 6. Modification of existing tools, or development of new tools, to respond to specific shelter-
environment needs in Haiti.
While the prime focus of the Haiti Field Review is to demonstrate, review and refine the existing
Shelter-Environment Toolkit, this work is expected to be accomplished in the context of direct
involvement in Shelter Cluster activities to the extent permitted by Cluster members and operational
considerations.
It is recognized that emergency shelter-related activities may have transitioned from immediate
relief to transitional shelter and recovery. The application of the toolkit will take this transition into
account. If requested, assessment outputs from the field review will be provided for consideration in
the development of post-disaster recovery and reconstruction planning.
Schedule
The tentative schedule for the field review is as follows:
• 7-8 October: Consultations in Geneva with IOM, CARE, UNEP, IUCN, OCHA and others on
the field review.
• 14 October: Arrival of consultant in Port au Prince
• 14-16 October: Briefings with key Shelter Cluster members and other stakeholders.
• 17-21 October: Field application of Shelter-Environment Toolkit, including field
assessments and development and application of new/modified tools.
• 22 – 25 October: Briefings and review of use of the Toolkit.
• 26 October: Departure
• 9 November: Draft report on review provided to stakeholders.
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Logistics Support
The consultant will have funds to cover per diem, communications and local travel costs. Haiti
Emergency Shelter Cluster members are requested to provide:
1. Administrative support (lodging reservations and other local support arrangements).
2. Security briefing and security support, as required by local condition.
3. Assistance in securing transport and travel to field sites.
4. Assistance in making contacts with Government and humanitarian actors, including the
United Nations, USAID and other parties involved in shelter, environmental or related
activities. (Note that some preliminary contacts will be made during the visit to Geneva, and
a list of possible contacts will be provided before the consultant arrives in Haiti.)
Annex B – Map of Haiti
(Note: Hurricane Ike passed north of Haiti, but resulted in heavy rainfall in the northern part of the
country.)
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Annex C – Schedule of Activities
Date
Activity
(October 2008)
Meeting with IOM/Geneva (Ricio Sanz)
7
Briefing on Haiti Assignment with ProAct Network staff
Review of ToR with ProAct Network
8
Briefings with CARE and UNHCR
14 Arrival in Port au Prince
Briefing with IOM: Mary Giudie (Cluster Coordinator) and Emmanuelle Laloum
(Cluster Information Officer)
Briefings on Shelter Cluster activities and development of draft damage/
15 needs assessment tools. HRC/IFRC/Oxfam meeting on “emergency markets”.
Participation in Early Recovery/PDNA meetings.
Shelter Cluster meeting/briefing on environmental issues. Discussions on
16
needs assessment and work plan. Depart PaP.
Return to PaP. Cluster meeting, review of needs assessment form and process.
20
Briefing with IOM Country Director Vincent Houver.
21 Field trip – Gonaives
Gonaives, Gonaives-PaP travel, review of Gonaives field work, UNICEF/WASH
22
meeting.
23 Shelter Cluster meeting. Drafting of Gonaives reports.
24 Travel to Les Cayes. Field visits to shelter sites in Les Cayes and Cavallion.
25 Field visit to Southwest Coast
26 Report drafting
Travel to PaP, briefing of IOM, onward travel to Jacmel and travel east of
27
Marigot.
28 Travel to PaP. Presentation to WASH Cluster.
Travel to/from Gonaives for application of Shelter Checklist. Shelter Cluster
29
meeting.
Report drafting, briefing with Cluster Coordinator, Meeting with Handicap on
30
waste management.
Report drafting, handover and exit briefing with Cluster Coordinator. Depart
31
PaP.
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Annex D – Field Notes
Prepared by: C. Kelly10, ProAct Network/Haiti Shelter Cluster Environmental Advisor
Notes on Gonaives Visit, 21-22 October 2008
The following notes cover a field trip to Gonaives on 21 and 22 October to review environmental
issues related to the shelter cluster response to the flooding of the city by Hurricane Hanna. The notes
are for discussion and are solely the views of the author.
1. Little flooding or wind damage was noted on the road from Port au Prince to Gonaives, with
the exception of flood damage to one bridge near Augier. (Wind damage would be expected
from a hurricane, but this does not appear to have been a problem in the areas traveled.)
2. Large areas of Gonaives remain covered by deposits from flooding with depositions over
1 meter in some locations. Most of the deposited material appears to be relatively uniform
clay, with few stones/boulders or organic matter noted.
3. This deposit needs to be removed from roads, drainage systems and housing areas, schools
and commercial locations to allow people to move back into their homes and resume normal
activities.
4. Official clean-up operations are underway with a focus on clearing roads and schools and (it
appears) some houses.
5. Private house/building owners are clearing household debris and clay deposits and placing
these materials in roadways for removal.
6. It is unclear if some or all house cleaning is taking place with government funding, and how
decisions are made as to which houses are to be cleared.
7. Clearing soil/debris is an Early Recovery Cluster task although Shelter Cluster members (e.g.,
IOM) are involved.
8. Links between Early Recovery, Shelter and WASH Clusters on debris management are not
clear, although the clean-up process is moving forward on a daily basis.
9. Household debris is being added to the flood deposited soil from cleaned houses, increasing
the hazardousness (i.e., potential for contamination) of the debris and dumping site11.
10. Within the flood debris are a number of vehicles, which are likely to be unrecoverable and
increase the hazardousness/contamination of the dump site.
11. It can be expected that more waste from households will be dumped on roadways for clean-
up as access to homes becomes possible due to (initial) road clearing. In other words, there
will be a need to clear most roads at least twice, once to open the roads and again to clear
the debris from within houses.
10 Email: 72734.2412@compuserve.com
11 Comments from Morton/UNEP indicate that the dump site, west of Gonaives near a tidal flat, is the least worst option for
fast disposal of the largely clay sediments deposited by the flood, but see point following on waste composition.
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12. In discussions with Morton/UNEP (who also looked at the soil disposal/waste issues), it was
noted that it may be too difficult to remove most of the organic/hazardous materials from the
cleared soil/debris combination due to the viscosity of the clay when we, and the solidness
of the clay when dry.
13. However, it may be possible to recover and recycle vehicles and other “white goods”, such
as computers and appliances, either through a separate collection process or separation at
the dump site.
14. Elements of a complete shelter response plan, with the goal of getting people back to their
homes, exist for Gonaives, but an overall analysis of the current shelter situation (e.g., who
has not returned to their homes and why), needs and gaps, and way forward, appear to be
lacking.
15. Considerable pressure exists to move a reported 23,000 displaced out of schools, with tents
proposed (or already used) as a “solution”.
16. The local Dept. of Education would like to re-open all schools by 10 November, implying that
all IDS should be out of the schools by this date.
17. There is agreement that no IDP will be forced out of shelter, but there are also suggestions/
action taken to move IDPs from schools to tents.
18. While moving the IDPs to tents “solves” the problems for schools, it does not result in people
moving back to their homes.
19. Some IDPs have moved into tents in a transitional shelter site (i.e., “Eben-ezer” site). The site
is transitional because IDPs cannot move back to their flooded homes, but will/want to when
the Savanne Jonc/Savanne Desole lake level drops. (The lake grew with run-off from the
floods.)
20. Eban-ezer site and services are far below minimum standards. There is significant
overcrowding (approx. 225 families for 45 tents). Residents cutting wood for shelter at the
site, and there are other clear unmet needs for minimum shelter in a hot (+38c) environment
at risk of flooding. Residents have little option other than cutting local vegetation for shelter
and other needs if additional assistance is not provided to meet minimum standards for
shelter and other needs (e.g. latrines, sustainable water, waste management, etc.)
21. Because the Eben Ezer site needs to continue in operation for up to 2 years (the estimated
time it may take for the lake level to retreat sufficiently for all site occupants to return to their
homes), a longer term/comprehensive approach to transitional shelter is needed.
22. There appears to be agreement that clearing home sites of debris, and clearing roads to get
access to home sites, is important in returning people to their homes, and in moving people
out of the shelters.
23. There does not appear to be a clear plan on what to do with IDPs who are too poor to clean
their houses (i.e., the classic vulnerable groups12), who have had their homes destroyed or
who rent, and thus cannot move until rental property is available.
24. A possible outcome of the current situation is for the less well endowed IDPs to remain in
worsening environmental conditions (e.g., overcrowded, poorly services camps in at risk
locations) as relief assistance peters out 13.
12 Note, this is a protection as well as Shelter and cross-cutting (e.g. age) issue.
13 Also a protection issue.
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25. It is hard to assess the future environmental impacts of the IDP situation without
a. Knowing why people are in shelters,
b. Having a plan for moving IDPs back to their homes, and
c. Clearly defining how to deal with the classic vulnerable populations, and those
who need new housing or rental housing.
26. While the focus of discussions during the field visit was on IDPs, there are possibly a greater
number of flood-disposed who are living with host families and for whom the issue of cleared
roads and house cleaning are also critical for a return to their normal living situation.
27. To assess the environmental impacts of re-sheltering flood-displaced in Gonaives, it appears
necessary to:
a. Understand why people remain in the shelters,
b. Develop a plan for addressing these reasons and,
c. Assess the environmental impacts and impact minimization options available.
This plan would likely focus on:
• Clearing access (on-going)
• Clearing house locations (inside and out) of debris (partially on-going)
• Providing special assistance to families who cannot afford to clear their homes
for re-occupation.
• Plan and properly develop transitional shelter sites for IDPs who cannot move
back to their former house sites in the near term.
• Provide on-site transitional shelter (following site clearance) where houses
have been destroyed or need significant rehabilitation. (Both rehabilitation
and reconstruction may be covered as part of early recovery activities.)
28. An operational flood warning system is necessary for existing and new IDP sites. Such
a warning system would partially address the use of tents in during the remainder of the
hurricane season. (It is understood that a warning system does exist for Gonaives as a whole,
but this could not be verified.)
29. There appears to be little direct action to reduce the risk posed by flooding to Gonaives and
the surrounding areas (e.g., Eban Ezer).
Southeast Trip Notes (27 Oct 2008)14
1. More damage appears to have occurred in Southeast than in Southwest.
2. Local conversations indicate a combination of flooding and wind as caused of damage tov
shelter.
3. Little shelter assistance appears to have reached areas.
4. Also a need for clean-up of locations such as Marigot.
5. People from destroyed/severely damaged houses are reported to be living with neighbors/
relatives.
14 Disseminated by email on 28 Oct 08 to Judy Dacruz, (Acting Shelter Cluster Coordinator, IOM Haiti) Emmanual – (Cluster
Information and Reports Officer, IOM Haiti), David Stone (ProAct Network) and Karen Walker (ProAct Network)
14Integrating Critical Environmental Issues into Emergency Shelter Cluster Activities Project
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6. Large scale debris flows noted in some areas, but these may be more of one-off events.
7. Flooding also occurred in lower areas of Jacmel, but this is also likely a recurrent event.
8. Housing in flood areas subject to recurrent risk.
9. Displaced who where in schools were told to leave when the schools opened. Where these
populations are at present is not clear. However, it does not appear that they have begun
rebuilding.
10. Most damage noted was from flood debris (mud, rocks, ect.) in houses and damage to walls
from flood waters/debris.
11. Some damage noted in upper reaches of rivers (e.g., Peredo), which may indicate that flood
damage is not only located along the coast.
12. Local coordination capacity exists, but there is no shelter cluster leader, not did it appear many
NGOs involved in shelter activities. (Plan is reported to be planning a kitchen kit
distribution.)
13. Local DPC contact reported that they have more detailed assessment reports and have made
them available to local NGO offices.
14. Shelter/reconstruction impacts on the environment are unclear as there is no overall
assessment of damage, assistance provided and planned, and local recovery plans are not
known.
15. Appears that shelter activities in the South East need to be better coordinated with assistance
allocations made in PaP and transitional shelter assistance increased.
Regards,
Kelly
ProAct Network/Shelter Cluster Environment Advisor
Gonaives Emergency Shelter and Environment Checklist Review
Introduction
This report covers rapid assessments of shelter conditions in Gonaives using the Emergency
Shelter Environmental Impact Assessment and Action Checklist (the “Checklist” – see http://
www.benfieldhrc.org/disaster_studies/rea/checklist_guides.htm). The Checklist is part of
an environmental toolkit developed for use by Shelter Cluster members in emergency and
transition shelter operations. The focus of the Checklist is on defining environmental issues from
an operational perspective with the expectation that improving environment-related conditions
also improves the overall provision of emergency shelter.
The Assessments
The assessments were conducted on 29 October 2008 at two locations in Gonaives, Praville
Camp (a new tent site outside Gonaives with approximately 190 families resident) and Saint
Valarie Public School (725 residents), located in the center of Gonaives. IOM assisted in selecting
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the sites, with contacting site management authorities and in translations. The questions in the
Checklist were translated orally into French by the author and, where necessary, retranslated
into Creole. In most cases, the questions in the Checklist generated more extensive discussions
on the operations of each shelter site. This additional information was passed on to IOM staff in
Gonaives.
It is worth noting that the Praville camp is a new site in the process of being developed. The Saint
Valarie site is normally a school, and is expected to be close as a shelter in the near future. As a
result, the assessment results for
• Praville indicate actions which are needed to improve the camp, and for
• Saint Valarie indicate actions which are needed to bring this temporary shelter site up to
minimum standards if the site is to be used in the future.
Summary of Results
The following lists present the issues identified for each site. The issues are prioritized based on
whether they pose:
1. An immediate threat to human life,
2. A threat to livelihoods or
3. A threats to the environment.
Note that threats to human life or livelihoods usually also include a threat to the environment.
Praville Camp
• The site facilities should be reviewed to ensure they meet Sphere Standards.
• A plan for the evacuation of the camp in the case of a hurricane threat is required.
• A fire safety plan is required.
• Steps need to be taken to lessen the impact of flash flooding and landslides on the camp
site, as well as effective draining of rain and waste water.
• A sustainable source of water needs to be provided.
• Plans, installations and procedures need to be put in place for the management of
latrines/sewage and (human and clothes) washing sites and disposal of the resulting
waste.
• Plans, installations and procedures need to be put in place for the management and
disposal of solid waste.
• Seismic safety measures should be incorporated into the construction of fixed or semi-
fixed facilities in the camp (e.g., clinic, camp office, school).
• Steps need to be taken to ensure that camp residents are safe from traffic accidents on
the road which passes in front of the camp.
• The use of the site as a camp needs to be officially established.
• Consultations are needed with populations inhabiting the camp on the management of
the site.
• Consultations are needed with populations neighboring the camp on the management
of the site.
• Tents in the camp need to be reoriented to take advantage of natural ventilation and
reinforced to limit the impact of high winds.
• Procedures should be put in place to repair shelters/tents and to improve the living
environment of the camp.
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• Sustainable fuel sources and fuel efficient stoves need to be provided to camp
residents.
• Construction in the camp should minimize the volume of resources used and, where
possible, use renewable resources.
• Where possible, rainwater harvesting should be incorporated into building design.
• Further construction at the camp should minimize the removal of vegetation.
• Steps should be taken to limit air and water pollution from the camp.
• A system for monitoring environmental conditions in and near the camp should be
established.
• A decommissioning plan for the site is needed and should include steps to recycle and
reuse the resources in the camp
Saint Valarie Public School
• Steps need to be taken to ensure that camp residents are safe from traffic accidents on
the roads which pass in front of the site.
• The site facilities should be reviewed to ensure they meet Sphere Standards.
• Provisions should be put in place for standards-compliant provision of shelter at the
school.
• A site management plan is required.
• A sustainable supply of potable water for the site is required.
• A flood response plan, including warning and evacuation should be developed for the
site.
• A fire safety plan is required.
• Plans, installations and procedures need to be put in place for the management of
latrines/sewage and (human and clothes) washing sites and disposal of the resulting
waste.
• The current 6 place latrine needs to be cleaned and properly maintained.
• Regular cleaning of the site and appropriate disposal of waste is required.
• Plans and procedures need to be put in place for the management and disposal of solid
waste.
• Consultations are needed with populations inhabiting the camp on the management of
the site.
• Consultations are needed with populations neighboring the camp on the management
of the site.
• Sustainable fuel sources and fuel efficient stoves need to be provided to camp
residents.
• The seismic design of the school building needs to be reviewed to ensure it meets
appropriate standards.
• Rainwater harvesting should be incorporated into building design.
• The drainage from the school yard needs to be improved.
• A system for monitoring environmental conditions in and near the camp should be
established.
• Provisions need to be made for repairs to the school after it has been used as a shelter.
• A plan for closing the shelter site and transitioning back to the normal function as a
school needs to be developed.
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Detailed Results
The following tables list the issues which were identified as not being adequately addressed from
an operational or environmental perspective for each location based on the Checklist questions.
The tables include a description of the issue as well raised as the general type of remedial actions
which are needed. Additional and more specific guidance on addressing the issues identified can
be found in the original assessment form (see http://www.benfieldhrc.org/disaster_studies/rea/
checklist_guides.htm).
Emergency Shelter Site Selection Checklist
(To be completed before a site is chosen for use as a shelter site, or when reviewing an existing site.)
• Person/s Completing the Checklist: C. Kelly
• Date: 29 Oct o8
• General Location (e.g., District): Gonaives
• Specific Location: Praville Camp
Question Answer Guidance
Has the community near or surrounding the site
been consulted about the site selection? Communities near or surrounding
No the site should be involved in the
Consultation with the community near a shelter site site selection process.
is important in minimizing conflict over resources.
Have the prospective site inhabitants been
consulted about the site and types of shelter to Prospective inhabitants of a
be constructed? transitional shelter site should be
No
The resources and effort made to establish a site involved in the site selection and
will be wasted if the prospective inhabitants are shelter design process.
not willing to use the site.
Seismically active or volcanic zones
should be avoided is possible. If
Is the site located in an area subject to earthquakes, Yes these sites must be used, then
or other geological hazards?Although earthquakes seismically resistant construction
and similar events can be rare, establishing Construction should be used in all construction
settlements in at risk sites can increase the risk of non-seismic activities, and early warning systems
future disaster for the disaster survivors. (tents) established (with strong community
participation) from the initial
planning of the site.
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Question Answer Guidance
Flood-vulnerable sites should be
avoided. When such sites must be
Is the site located in an area subject to flooding? used, then provisions for raising
Yes ground level under structures,
Flooding can come from rivers/streams, lagoon
overflow, heavy rains and poor drainage, or from Flash flooding drainage and protective dikes
sea waves, e.g., at high tide or during storms. Note from local are necessary. Such interventions
that sites should have a slope of 2 to 4% to facilitate rainfall may need to be removed during
natural drainage. decommissioning. A local flood
warning system should be
established.
Landslide and erosion prone
sites should be avoided. If not
Is the site subject to landslides or heavy possible, natural vegetation should
erosion? be maintained in the landslide-
Sites with a slope of more than 10% may be prone vulnerable slopes and throughout
Yes
to severe erosion. The steeper the site the more the site, the site should be terraced
likely landslides will occur, particularly during the to limit run-off, and structures
monsoon. should not built on landslide-prone
slopes. A local landslide warning
system should be established.
Is there potable water available on a sustainable
basis for the site? No
A site should not be selected until a
The water can come from wells, stand pipes, bowers/ Efforts sustainable source of potable water
tanks or other sources. “Sustainable” means that underway to is available.
15 liter of potable water per person per day will be address
available throughout the life of the shelter site.
Sites should not be located within
50 meters of main roads. If such
Is the site located near a major road with heavy locations cannot be avoided, the
traffic? site area nearest the road should be
Shelter sites in these locations expose inhabitants Yes allocated to non-residential/non-
to air pollution and well as an increased risk of school activities and barriers should
accidents. be placed along the road side of
the site to reduce the chance for
accidents.
Are the cooking fuels used by the shelter
inhabitants available at the site without requiring
unsustainable harvesting of local natural No
Identify the cooking fuels to be used
resources? as the site and plan for adequate
Plans to
Note that women are often responsible for provide cooked supplies which do not overtax local
collecting fuel. The more time, cost or effort meals. resources.
involved in collecting fuel, the less time for other
recovery tasks.
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Question Answer Guidance
Are fuel efficient stoves available, and are users
familiar with the proper operation of these
stoves? Incorporate the provision of fuel
No efficient stoves and training in their
Properly used fuel efficient stoves reduce demands use into site management plans.
on the environment. Different types of stoves may
be needed depending to domestic activities.
Is there a clear and legally established agreement
to use the shelter site?
This agreement can be in the form of government No
decree, lease or other legal arrangement. No site should be selected without
Government a legal agreement for use and
Agreement terms should cover (1) land
decision to use decommissioning.
ownership,(2) the conditions for the use of the
land
site, (3) decommissioning of the site and (4) any
payments or services due during the occupation or
decommissioning of the site.
Does the site physical plan meet the requirements
set out in Sphere? Review and incorporate appropriate
All site plans should comply with the appropriate Sphere standards into the site
No
Sphere standards, including having sufficient space plan (see the Sphere web site for
for social activities and be based on consultations information on Sphere).
with the site users.
Does the shelter site plan reference a larger area Determine whether the site plan
spatial plan, if one exists? can be adjusted to fit the larger
No
Where possible, shelter sites should not conflict plan, or if a temporary modification
with long term development spatial plans. is needed.
Has the removal of existing trees and vegetation
been minimized?
As much existing vegetation should
Leaving as much vegetation as possible reduces No
be left on the site as possible.
erosion and the need to replant vegetation during
decommissioning.
Does the site plan and management plan provide No Incorporate fire safety into physical
for fire safety? Planned site and management plans.
Do the physical and management plans for toilet
and wash facilities incorporate procedures (1) to
limit excessive water use, (2) limit groundwater
pollution, (3) to avoid waste water run-off, and (4) A waste water management plan
for the safe and environmentally sound disposal No should be developed. The plan
of liquid waste? needs provide for the collection
Toilets
For sites in areas with high ground water levels, improperly of waste water and sewage at
local infiltration of waste water and sewage may sited. the site and later disposal in an
lead to groundwater pollution or to the creation environmentally sound manner.
of stagnant water pools. These outcomes are to
be avoided because of their environmental and
health impacts.
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Question Answer Guidance
Develop a solid waste management
system for the site, including
Have provisions been made for the collection recycling and environmentally
and environmentally sound disposal of solid sound disposal, including the use of
waste? composting to limit the need for land
No
The safe and environmentally sound disposal filling. (Landfills should be approved
of solid waste reduces negative environmental by the appropriate government
impacts and promotes good health conditions. authority). Local environmental
NGOs can provide advice and
assistance on composting.)
Only designs which have been
assessed as resistant to high winds
Are the buildings planned for the site designed should be constructed in the
to be resistant to high winds? emergency shelter sites. Upgrading
The disaster affected area may be subject to sub-standard structures may be
cyclones and severe thunderstorms with strong No necessary in existing shelter sites.
winds. This storm activity can damage or destroy Wire or metal straps to connect roof
buildings which are not constructed to appropriate members together and to connect
standards. roof structures to walls can be an
effective way to increase wind
resistance.
Do all building designs include provisions for
harvesting rainwater?
Rainwater collection (1) reduces the need for All structures should include gutters
groundwater supplies, (2) increases the volume of No
and provision for rain water storage.
water available to each site inhabitant at limited
additional cost, and (3) can reduce the workload
on women.
Do building designs minimize the volume of
construction materials used and use materials
drawn from renewable resources when
possible? Evaluate the quantities and types
of materials being used in building
To limit the impact on the environment, buildings designs to minimize the total
should use as few resources as possible while No
amount of materials used and to
meeting cost criteria and Sphere standards. Use maximize the use of renewable
of renewable resources (e.g., vegetative matter) is resources.
preferred over non-renewable (e.g., sheet metal)
on the basis of the environmental sustainability of
renewable resources.
Can 100% of the materials used in building
construction be reused or recycled once a Building design should use materials
building is no longer needed? and construction methods which
Planning for reuse allows emergency shelter allow all the materials initially used
No
occupant to “carry over” the building materials to be reused for permanent housing
as assets when they move to their new housing. or other uses after the site closes or
Materials which cannot be reused should be recycled (e.g., through composting).
recycled.
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Question Answer Guidance
Does building siting and design take advantage
to natural ventilation?
Where practicable, buildings
Maximizing the use of natural ventilation reduces No should be designed and oriented to
the need for fans and improves user satisfaction maximize natural ventilation.
with the building, making it more likely the building
will be used in hot weather.
During construction at the site have steps been
No Develop plans to limit pollution.
taken to limit air and water pollution?
Shelter Site Management Checklist
(To be used to reviewing the operation of an existing shelter site.)
Question Answer Guidance
Solid waste collection should take
Is there a regular collection and sustainable place at least weekly, or more often
disposal of solid waste? if necessary. Specific collection sites
Regular collection of solid waste aids in maintaining should be established. Disposal
No
overall environmental sanitation and health methods should incorporate
conditions at a site. Sustainable disposal limits the recycling and composting. These
impact of waste on the environment. activities should be managed by
community members.
Sewage collection should take place
as dictated by local circumstances,
Is there a regular collection and sustainable including toilet use, ground water
disposal of sewage? levels and surface water inflows.
Disposal of sewage should not
Regular collection of sewage supports good overall No lead to ground or surface water
environmental sanitation and health conditions pollution and should be approved
at a site. Sustainable disposal limits the impact of by the appropriate government
waste on the environment. authority. These activities should be
managed by community members
to the degree possible.
Are drainage systems well maintained?
Drainage systems need to be maintained, Establish a community-based
particularly during the monsoon, to limit flooding No system for maintaining and
and ponding of water, which can contribute to improving drainage systems.
health problems.
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