Typhoon Yolanda Shelter Assessment Report
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Typhoon Yolanda Shelter Assessment Report
Basey and Marabut, Philippines (Dec. 2013)
Engineering Ministries International
130 E Kiowa St. Ste, 200, Colorado Springs, CO 80903
719.633.2078, emiworld.org
Report Prepared by: Bernard Kim and Michael Young
Project Number: 5618 Philippines DR Shelter (TF)
1 Table of Contents INTRODUCTION .......................................................................................................................... 2 SCHEDULE .................................................................................................................................... 3 DISCUSSION ................................................................................................................................. 5 Interviews in the Basey Municipality: ........................................................................................ 5 Interviews in the Marabut Municipality: .................................................................................... 6 Discussion in Shelter Cluster Meetings: ..................................................................................... 7 STRUCTURAL ASSESSMENT .................................................................................................... 9 SHELTER PROGRAM ALTERNATIVES ................................................................................. 10 Emergency Shelter: ................................................................................................................... 10 Transitional Shelter: .................................................................................................................. 10 Partially Damaged:.................................................................................................................... 10 Totally Damaged:...................................................................................................................... 11 Distribution Program Administration: ...................................................................................... 11 Material Supplies: ..................................................................................................................... 11 ALTERNATIVES FOR IMPROVING STRUCTURAL INTEGRIY ......................................... 13 NON-SHELTER NEEDS ............................................................................................................. 16 RECOMMENDATIONS .............................................................................................................. 17 APPENDIX A: DOCUMENTS PROVIDED BY THE MUNICIPALITY OF MARABUT APPENDIX B: TYPHOON HAIYAN – SHELTER CLUSTER TECHNICAL GUIDANCE APPENDIX C: GUIDELINES FOR THE IMPLEMENTATION OF THE CASH-FOR-WORK PROJECT APPENDIX D: FEMA TECHNICAL FACT SHEET NO. 4.3 – USE OF CONNECTORS AND BRACKETS
2
INTRODUCTION
On November 8, 2013, Typhoon Haiyan–a Category 5 tropical cyclone locally known as
Yolanda–made landfall on the Philippine’s east coast. The high speed winds and torrential rains
caused storm surges and landslides, devastating island communities across nine regions and
affecting millions of people. Typhoon Haiyan is one of the strongest storms in recorded history.
In response to this catastrophic event, Tearfund UK (TF-UK) requested Engineering Ministries
International (EMI) to assist Food for the Hungry Philippines (FHP) in the development of their
shelter response strategy for the next 3-6 months. EMI carried out an in-country needs
assessment and provided technical consultation on their shelter program and strategy. FHP’s
primary regions of focus are the municipalities of Basey and Marabut within the province of
Samar, as shown in Figure 1. It should be noted that the situation in the Philippines is extremely
fluid and information is continually updated day-by-day.
TF-UK is a Christian international aid and development agency working globally to end poverty
and injustice, and to restore dignity and hope in some of the world’s poorest communities. FHP
works in Filipino communities to improve conditions for children in church, school, and at home.
EMI is a non-profit Christian development organization made up of architects, engineers, and
design professionals who donate their skills to help children and families around the world step
out of poverty and into a world of hope. EMI sent the following two volunteers for the in-
country assessment for TF-UK and FHP: Michael Young (Civil and Structural Engineer) and
Bernard Kim (EMI Disaster Response Intern, Structural).
Figure 1
3
SCHEDULE
Dec. 4
- Arrive Manila
- Briefing by Tearfund
Dec. 5
- Meeting with Food for the Hungry Philippines
- Briefing on Shelter Cluster References and Meeting Minutes
Dec. 6
- Meeting with Tearfund
Dec. 7
- Travel to Tacloban (Google Earth pin 1)
Dec. 8
- Travel to Municipalities of Basey and Marabut
- Talk to local church at Mabuhay (Google Earth pin 4)
- Meeting with Mabuhay Barangay Captain (Google Earth pin 4)
- Meeting with the Disaster Risk Reduction Management Officer in Basey (Google
Earth pin 2)
Dec. 9
- Travel to Marabut
- Meeting with Mayor of the Municipality of Marabut (Google Earth pin 3)
Dec. 10
- Meet Food for the Hungry Philippines
- Meeting with the Disaster Risk Reduction Management Officer in Basey with
Medair (Google Earth pin 3)
- Shelter Cluster Meeting (Google Earth pin 1)
Dec. 11
- Shelter Cluster Meeting with focus on transitional shelter (Google Earth pin 1)
- Travel to Manila
Dec. 12 – Depart Manila
NOTE: Figure 2 is a screenshot of Google Earth with locations that we traveled to, indicated by
the numbered pins.
4 Figure 2
5 DISCUSSION To assess the shelter needs for the target communities we made site visits to observe the conditions and to interview various stake holders. The field observations were carried out to complete rapid assessments of buildings that survived the typhoon with little to no damage and severely damaged structures. While this information is not needed to assess shelter needs it can be useful in the design of shelters. Our interviews included local political leaders, members of the public, TF-UK representatives, FHP personnel, and other NGOs such as Samaritan’s Purse. Our discussions with TF-UK and FHP were for the purpose defining their objectives in addressing target community shelter needs. Information was also gathered from attending the regional shelter cluster meetings. On the political level we discussed shelter needs with the Disaster Risk Reduction Management Officer of the municipality of Basey, the Barangay Captain of Mabuhay in the Marabut Municipality, and the Mayor and Engineer of the Marabut Municipality. In addition, we also talked to local residents to gather additional information relevant to the shelter needs and other community concerns. As will be discussed later, non-shelter needs were also identified through the interviews. A common concern expressed in several discussions was the National government’s policy that no new or replacement housing/shelters are to be constructed within a “40 meter zone” from the shoreline. It is also apparent that both municipalities are transitioning from the relief stage to the reconstruction and recovery phase. Interviews in the Basey Municipality: According to the officials we spoke with, the Basey Municipality economy is driven by farming and fishing. The agricultural segment (farming) is primarily coconut and rice. The loss of livelihood is a common area of concern. The typhoon heavily damaged both areas of the local economy and there was expressed need for assistance to restore both. In Basey, we were advised that a “bunk house” program was well under way. This program will provide transitional shelter for those former residents of the “40 meter zone”, and possibly others. Under this program, the material for the “bunk houses” is provided by the national government, the land for the units is provided by the local municipality, and labor for construction will be provided by local residents with pay from the Department of Public Works and Highways (DPWH). The residents to be relocated are housed in the “bunk houses” for 3-5 months while permanent housing at a new location outside of the “40 meter zone” is constructed. As the residents leave the “bunk houses” other residents will take their place until the next round of permanent housing is constructed. The concern was expressed that more than the presently allocated 20-24 “bunk houses” are needed. We were also advised that Basey is planning a program wherein the municipality will provide a shelter kit with materials for a 5 person house. The Disaster Risk Reduction Management Officer has prepared a construction plan that forms the basis for the materials kit. The kit will include lumber, plywood, corrugated metal roofing, nails, cement, and basic tools to construct the house. The estimated cost of each kit is 30,000 PHP (Philippine pesos). The labor to construct the shelter will be the responsibility of the recipient of the shelter kit.
6 It has also been reported that construction materials are becoming harder to obtain and Catbalogan City is the closest city to purchase materials. Merchants are slowly beginning to start their businesses in Tacloban City. Assistance in obtaining basic carpentry and construction tools has been requested. Currently the locals are rebuilding their homes using salvaged materials. Interviews in the Marabut Municipality: At the municipality of Marabut, we were able to talk to the Mayor and Engineer of the Marabut Municipality, Barangay Captain in Mabuhay, and several of the local residents. It has been expressed that there is a great need for shelter repair and replacement. Given that most of the barangays are located along the coast, many homes and buildings were destroyed. The Mayor provided information on the number of residential homes that were damaged and lists including monetary loss in infrastructure, government properties/equipment, and agriculture. The number of residential homes that were both partially and totally damaged add up to 3,795 and losses in infrastructure added up to 1,952,100,000 PHP. The provided documents can be found in Appendix A. In spite of the many varied needs expressed, the people are moving on with their lives not waiting for someone to fix it for them. Homes are quickly being repaired using salvaged materials. They expressed their need to repair and rebuild their homes themselves but they would greatly benefit from receiving construction materials. It has, however, been reported that materials were not readily available. The specific need for shelter materials included concrete block, wood, plywood, cement, nails and corrugated galvanised iron (CGI) sheets for roofing. They were not available in the immediate area and it cost too much to travel several hours to the larger cities to obtain materials, assuming they would be available. Transporting the purchased materials to their homes would also become an obstacle. In addition to the material availability issue there was the economic issue that they had loss their livelihood and had no money to buy the materials if they could even afford to travel to a source. The Mayor also advised us that their Shelter Recovery Plan was nearly completed and would be released on December 15, 2013. We asked to receive a copy and told we would. Lastly, we asked the Mayor if other groups have discussed shelter needs with him and he said there had been none. The National government policy that no construction is to take place within 40 meters of the shoreline was also an issue of concern. As we understand, the policy was established by the National government and is the responsibility of the local government to implement it. This can be a bit of a political problem due to the relocation of those that previously resided in the “40 meter zone” considering that this is a coastal community. Relocation is also recommended to be avoided by the Sphere Standards. Another problem is that we observed structures that have already been repaired or restored located within a few meters of the shore. In other words, some people are remaining within the “40 meter zone”, which was also observed in Basey. As for non-shelter needs, there was expressed concern for food the supply beyond the relief stage. They felt it was adequate presently, but there was a general concern that the food distribution will stop before the locals have the chance to re-establish their livelihood. We were told that most of the fishing boats and motors had been destroyed along with fishing gear, such as nets.
7
Restoration of their livelihood has been noted to be a major concern. There is also no permanent
medical care in the Mabuhay barangay; however a “midwife” visits the barangay once a month
to provide limited medical attention. Otherwise travel to a larger community is required for
immediate care. They also expressed a need for non-food items, such as pots, pans, dishes,
stoves, etc.
Aside from shelter needs, the Mayor and Engineer reported significant damage to their municipal
facilities, such as their municipal hall and a number of schools. Their Municipal Building was
totally destroyed, as shown in Figure 3. We inspected the portion still standing and advised the
Mayor that it was unsafe and people should stay clear of the building. Figure 3 shows that the
remaining portion of the building is severely out of plumb. The remaining structure is planned to
be demolished for reconstruction. Assistance in designing a new structure has been requested.
Figure 3 Figure 4
The Police Station and High School, both located near the Municipal Building, were also
damaged. We did not visit the Police Station, but we did make a quick inspection of the school
(Figure 4). The damage to the school was primarily to the roof structures and generally
consisted of loss of the CGI roof covering and, in some cases, damage to the roof structural
system. However, the school can be repaired. In fact, two groups have discussed the possibility
providing assistance to rehabilitate the school and a number of others, namely Terre Des
Hommes and JTS Korea. Terre Des Hommes expressed interest in collaboration in assisting
with the technical expertise.
Discussion in Shelter Cluster Meetings:
Discussions at the shelter cluster meeting put emphasis on materials. The current production of
coco lumber is three trees per day for one team and costs 600 PHP per day for labor; however
when the payment is changed to 200 PHP per tree the production doubles to 6 trees per day.
Regardless, the production of coco lumber is struggling to keep up with the demand, therefore a
number of organizations have begun to purchase sawmills to produce their own lumber (e.g.
Samaritan’s Purse, Catholic Relief Services, and International Organization of Migration). In
addition, CGI sheeting for roofs that have appropriate thickness is also becoming difficult to
obtain and other groups have begun to look into alternative roofing materials such as fiberglass
8 and PVC. Fiberglass and PVC materials may be expensive and the production capacity may not be enough to sustain all shelter programs. The Hypar roof system has also been suggested. A number of organizations have developed designs and plans for transitional shelters which will become available to all members of the shelter cluster. All members of the shelter cluster will also have access to all relevant building codes. The shelter cluster is organized and provides excellent coordination between groups.
9
STRUCTURAL ASSESSMENT
We have carried out rapid structural assessments throughout our visits to the municipalities of
Basey and Marabut to determine the typical damage that were incurred onto structures. The
rapid assessments were generally carried out as we drove by structures and as we walked around
various cities and barangays. The most common structural damage that was observed was the
damage to the structures’ roof systems. Figures 5 and 6 show examples of the roof sheeting
being ripped off of the roof frame and was primarily caused by large uplift pressures. Figure 6
also shows a portion of the roof’s framing system that also failed with the roofing material. The
roof of the structure is a critical component in maintaining its structural integrity and safety.
Once the roof sheeting fails, this creates a critical opening of the building envelope resulting in
large wind pressures imposed onto windows and doors. The broken windows in Figure 6 are the
result of the failed roof which amplified the net wind pressures; however the concrete block
structure remained standing.
Figure 5 Figure 6
The level of exposure of the building to the wind is a factor that influences the magnitude of
wind pressures. Buildings that are located in major city centers are typically protected from the
wind by the surrounding buildings, as shown in Figure 7. Likewise, single storey structures that
were generally located within forested areas far from the coast experienced less damage due to
sheltering that the surrounding trees provide for the structures. Alternatively, majority of the
buildings located along the coast experienced the most damage (see Figure 8).
Figure 7 Figure 8
Other sources of damage consist of the storm surge, flying debris, and falling trees.10 SHELTER PROGRAM ALTERNATIVES Emergency Shelter: From our field observations and discussion with local officials, it appears that emergency shelter issues have been addressed. However, the Basey Disaster Risk Reduction Management Officer mentioned that they could use approximately “10,000 tarpaulins”. There was no explanation of where these are needed. The provision of some tarpaulins could be considered after confirmation that they are needed. We did not choose to spend time pursuing this issue because our impression was that the community was in the transition from the emergency phase to the reconstruction/recovery phase. Transitional Shelter: One program for transitional shelter is presently being pursued in Basey. This is the “bunk house” program previously described. The local officials feel more units are needed. It should also be noted that this program requires relocation a number of times, i.e. relocation to the bunk houses and relocation from bunk houses to permanent housing, which the Sphere Standard states to avoid and keep to a minimum. The definition for “transitional shelter” can also include some semi-permanent shelter units, for example units with an estimated life of 5, or more, years which most likely will become permanent housing. It is likely that this will happen either with or without future additions to the “transitional” shelter now provided. The reality is that once the unit is built and occupied it will become permanent. In both Basey and Marabut, we observed partially damaged homes that can be repaired and damaged homes that need to be replaced. We will deal with each separately in the following. Partially Damaged: As noted in the Discussion Section, the Filipinos are a proud and self-reliant people. They prefer to take responsibility to rebuild their own homes and not have someone else do it for them. This is especially true for the repairable homes. In most of our discussions we were told that materials were difficult to obtain, for a variety of reasons, but if the materials were available the resident would proceed to repair their home on their own. This suggests a program where either a cash grant is provided to purchase materials or purchase the materials in bulk and distributed as needed, i.e. shelter kits. The challenge of the cash grants for the locals will be for the locals to find a means to travel to the city to purchase the materials and a means for transporting the materials to their land. The feasibility of cash grants will be dictated by the presence of local merchants for the needed building materials. The shelter kit approach is a much more involved alternative and may require a program administrator to oversee the implementation of the program. Both alternatives may require detailed needs assessment to be completed. Appendix B is the draft of the Shelter Cluster Technical Guidelines as of December 16. Contractors, volunteers or a paid team of skilled laborers could also be requested to make the repairs. This alternative was not pursued further for a number of reasons not the least of which is that it runs counter to the cultural mind-set of taking responsibility to make their own repairs.
11 The emergency relief program “cash for work” could be a source of funds. Appendix C provides information on the guidelines for the implementation of “cash for work”. Totally Damaged: As with the partially damaged home program, the totally damaged homes can be replaced through either a cash grant program that covers the cost of materials or a program that provides a kit of materials, tools, and instructions to construct a new home. The cash program could either pay the cost of materials or establish some reasonable level of cash payment that should cover the cost of materials to build a shelter/home. The kit program requires a shelter design, or multiple designs to accommodate family size. The design is necessary to determine the kit(s) components. The kit program can be implemented by FHP or could be contracted out to an organization with experience and staff to carry out such a program, such as Medair. In addition, public training programs for large audiences are also beneficial in implementing typhoon-proof improvements in current construction practices. An alternative program is to construct a specific proprietary type shelter/home unit using local labor trained for the purpose. An example is the Hypar structure which has a special concrete/latex roof set upon either walls of wood or concrete block. More details of the Hypar roof can be found in later sections. Distribution Program Administration: Whether cash is distributed, materials distributed, or third party construction approach is implemented to provide shelter, a process to select recipients, distribute assistance and monitor progress will be necessary. This will be a substantial effort. There are an estimated 3,800 homes with 40%, or more, damage in Marabut alone. To fully address the shelter needs in Basey and Marabut municipalities will require a program with a high level of involvement. We believe a Shelter Program Manger dedicated to shelter program alone will be required. The Shelter Program manager will be responsible for attending all cluster meetings, finding a source for construction materials, manage the shelter program, and work closely with the barangay captains and municipal mayors. Close coordination with the local government will be critical. Eligibility criteria are policy decisions that should also be considered by the program manager. We suggest verification of land ownership or control, level of damage of the structure being repaired or replaced, size of the family home, and number of elderly or infants in the household to be a part of the minimum criterion. Material Supplies: Critical building supplies are currently difficult to obtain such as wood, hollow concrete blocks, concrete, and CGI metal sheets. The combined shelter needs for all the Provinces has, and will continue to limit the availability of certain building materials. This could be a critical link in addressing the shelter needs. The scarcity of certain materials may require alternative materials. Construction lumber is already being cut from coconut wood, which is not generally accepted for construction purposes. This may change and may even have to change to meet the probable demand. It is reported that a number of organizations are beginning to purchase mobile sawmills
12 to cut their own lumber such as Samaritan’s Purse, Catholic Relief Services, and International Organization of Migration and will be focusing on the distribution to their own municipalities. This program may be an alternative TF-UK or FHP may be interested in taking part in. This can also help with restoring the livelihood of the community by providing jobs and an accessible means of obtaining construction materials. Similarly, concrete hollow block manufacturers can also be set up.
13
ALTERNATIVES FOR IMPROVING STRUCTURAL INTEGRIY
In this section, different alternatives for improving a building’s resiliency against strong wind
events such as typhoons are discussed. It should be mentioned that this section is not an
exhaustive list of typhoon mitigation techniques but rather it is a list of suggested alternatives.
As mentioned in the “Structural Assessment Section”, the roof of the building is a critical
component for maintaining the structure’s integrity. One method of improving the roof’s
performance to wind forces is deciding on a more aerodynamic type of roof. Figure 9 shows
four types of roofs and the hip roof is generally used for the resistance to wind loads. Hip roofs
are generally more aerodynamic than the shed, gable, and gambrel roofs and generally
experience lower uplift wind pressures. Figure 10 shows the comparison between a hip roof and
gable roof following Typhoon Yolanda and it can be seen that the hip roof (building on the left)
sustained much less damage.
Figure 9 (http://sci301.uvi.edu/Structure/Framing/RoofTypes.gif)
Figure 1014
It should also be noted that the overhang and the corners of the roof in general experience the
largest net wind pressures which should be considered in the design and construction. Figure 11
shows two photos of roofs that were damaged following the typhoon. The CGI sheets were
being ripped off of the roof frame.
Figure 11
Although hip roofs are preferred, the strength of the connections is critical in maintaining the
structural integrity of a building. The Federal Emergency Management Agency also provides a
good resource for the construction of homes in coastal regions, i.e. “Home Builder’s Guide to
Coastal Construction: Technical Fact Sheets (FEMA P-499)”. Technical Fact Sheet No. 4.3 (see
Appendix D), in the home builder’s guide, gives recommendations of how the roof truss
members can be connected and how the roof truss should be connected with the rest of the
building structure. Appendix B also has technical guidelines for hurricane straps for reinforcing
joints. It is important that the connections are constructed properly so that the forces are
transferred throughout the building structure and finally to the ground. The connections ensure
that the roof sheeting does not get pulled out and damage the building envelope and so that the
roof truss does not get ripped off of the rest of the building structure.
The types of structures currently constructed in the Philippines consist of concrete hollow block
and wood frame buildings. Concrete structures can be designed to be resistant to earthquake
loads and are generally heavy structures that are strong against wind loads. It can be seen on
Figure 6 that even though the roof structure failed, the rest of the structure did not undergo
significant damage. This was generally consistent throughout our observations. However,
cement is currently high in demand and will be expensive to attain. Alternatively, wood frame
structures can also be designed to be resistant to wind and earthquake loads with the condition
that the connections are properly constructed.
Medair currently has design specifications for a 6x4 m braced wood frame shelter with CGI roof
sheeting. The square footage of the design is large enough for a family of 6 people in the Sphere
Standards for space. Their design uses salvaged construction materials to be constructed as a
transitional shelter that can be adapted into permanent dwellings. Their design can also be
designed to incorporate gable roofs. The dwelling can be improved and expanded to be as large
as 72 m2. Lastly, Medair also provides specifications for making the building stronger against
typhoons. Figure 12 is an elevation sketch of Medair’s design for shelter.
In addition to Medair’s shelter design, an alternative is the Hypar roof. Figure 13 is a
photograph of Hypar roof structures that have been previously designed and constructed. Hypar15
roofs have been tested to be strong against earthquake loads and its aerodynamic shape makes it
resistant to wind loads. The roof requires little materials, takes 5 days to construct, and has a 30
year lifespan. The roof is constructed using a fibre mesh, latex modified concrete, and wood
framing. The completed shelter has a footprint of 25m2 which is large enough for a family of 7.
A disadvantage for the Hypar roof is that the latex material used to be mixed with the cement is
expensive.
Figure 12 Figure 1316 NON-SHELTER NEEDS The following “non-shelter needs” are felt important enough to be included. These are possible issues that could be considered by either TF or FHP. The loss of the local Filipino’s livelihood, primarily fishing and farming was an often expressed concern. This was expressed as an issue of greater concern than shelter. This could be addressed through some means of assistance to purchase boats, motors and nets for the fishermen and seed and agricultural implements for the farmers. This assistance could be by direct cash grant (or voucher), through a micro-loan program, or material distribution. Such a program would have obvious positive secondary impacts on the shelter and food issues by providing a source of income. Related to this need to return to work is the concern for food in the near future. While food is not an issue at the moment, there is considerable concern expressed that when the food distribution ends and if they are not working they will not be able to buy food. This argues for assistance to restore their livelihood.
17
RECOMMENDATIONS
In summary, we recommend the following:
1. A Material Kit program that provides small quantities of needed building repair materials
or tools and training for constructing homes more resistant to wind storms for partially
damaged homes.
2. A Shelter Kit program that provides the materials, tools and instructions or training to
construct a new home.
3. The Shelter Kit program should include several designs to accommodate family size.
4. Consider using an experienced shelter provider to implement the Shelter Kit program
and/or hire a Program Director and support staff to administer and coordinate the
program.
5. Explore the possibility of alternative building materials to counter the scarcity of
traditional materials.
6. Consider a program to provide wood or cash to buy boats and cash to purchase motors,
nets for the fishermen, and seed and agricultural implements for the farmers.Shelter Cluster Philippines
ShelterCluster.org
Coordinating Humanitarian Shelter
DRAFT: 16/12/2013
Typhoon Haiyan - Shelter Cluster Technical Guidance
Contents
Typhoon Haiyan - Shelter Cluster Technical Guidance .......................................................................... 1
Contents .................................................................................................................................................. 1
1
Overview .............................................................................................................................................. 1
1.1
Preliminary strategy overview for Shelter and NFIs .................................................................. 2
1.2
Shelter and NFI Prioritisation as of 12/11/2013 ......................................................................... 2
1.3
Use of Cash and Voucher ......................................................................................................... 3
2
Shelter Interventions ............................................................................................................................ 4
2.1
Emergency Shelter .................................................................................................................... 4
2.2
Support to Self-recovery ............................................................................................................ 4
2.3
Community clean up kit ............................................................................................................. 6
3
NFIs Interventions ................................................................................................................................ 6
3.1
Household Kit ............................................................................................................................ 6
3.2
Kitchen Set ................................................................................................................................ 7
3.3
Household clean up kit .............................................................................................................. 7
4
Specifications ....................................................................................................................................... 8
4.1
Tarpaulin / Plastic sheeting ....................................................................................................... 8
4.2
Tents .......................................................................................................................................... 9
4.3
Rope specification ................................................................................................................... 10
4.4
Corrugated iron specification ................................................................................................... 11
4.5
Blankets / mats ........................................................................................................................ 12
4.6
Timber and Coco lumber ......................................................................................................... 13
4.7
Bamboo and Nipa palm ........................................................................................................... 13
5
Case Studies and Key References .................................................................................................... 14
Annex 1: Dos and Don’ts Of Distribution ............................................................................................... 15
Annex 2: Technology based prefabricated shelters for family shelter ................................................... 16
Annex 3: Notes on Hurricane Straps ..................................................................................................... 17
Annex 4: Information, Education and Communication Material ............................................................ 19
1 Overview
This document was first drafted during the week after the Typhoon Haiyan. Its purpose is to provide an
overview of issues relating to specification of shelter materials for relief phases of the response. It
summarises the different kits being distributed and shares common / minimum suggested
1
specifications .
1
This document is based on the technical strategy from the Pakistan shelter cluster
Tech Guidance www.haiyansheltercluster.org 1Shelter Cluster Philippines
ShelterCluster.org
Coordinating Humanitarian Shelter
Local preference and suitability should be consulted with the hub coordination team and/or shelter
cluster focal points. For more information, please see: www.sheltercluster.org
Further reference for specifications can also be found at http://procurement.ifrc.org/catalogue/
Please forward you advice and feedback regarding this guideline to tech2.phil@sheltercluster.org.
1.1
P RELIMINARY
STRATEGY
OVERVIEW
FOR
SHELTER
AND
NFIS
This Shelter strategy runs in two parallel phases:
th
• EMERGENCY RESPONSE – started 8 Nov estimated to continue to end of Feb 2014
th
• SUPPORTING SELF RECOVERY – started 8 Nov
This document does not discuss targeting (host families etc.), or the communications with affected
populations that must accompany distributions.
NFI programmes are subject to how well markets are functioning. At the time of drafting, markets in
affected areas are weak, but recovery is expected. Due to the geographical extent of the affected
areas there are some very different logistical and market capacities. Hence, the response will follow
different times scales for different areas, for example:
• Small inaccessible islands compared to larger land masses with better infrastructure/market
access.
• Also we expect different response/recovery profiles between parts of Samar and Leyte
compared to Capiz and Aklan.
• There are also differences in the damage profile for example areas which were affected by
wind only and areas affected by wind and storm surge.
As markets develop more and more commodities will be able to be procured locally and some NFI
programmes may be able to operate through cash or voucher systems.
1.2
S HELTER
AND
NFI
PRIORITISATION
AS
OF
12/11/2013
The following priority shelter items are illustrated below. All materials with the exception of tents and
suitable quality plastic sheeting can currently be procured in bulk in the Philippines.
EMERGENCY SUPPORTING SELF
RESPONSE RECOVERY
Until February Immediate start
2014 Planning to June 2014
• Tarpaulins X
Highest • Fixings / rope X X
priority
• Tent* X
• Shelter Repair kits (for partial
and significant damage) X
• Tool Kits
• Community clean up kits
• Reclaimed and local X
X
construction materials
• Blankets / Bedding X
Lower priority • Kitchen sets
• solar torches / chargers / X
radios
Tech Guidance www.haiyansheltercluster.org 2Shelter Cluster Philippines
ShelterCluster.org
Coordinating Humanitarian Shelter
Notes on NFIs prioritisation and distribution:
*Tents are no longer a priority for procurement; however, existing pipelines and those already in
country should be distributed as soon as possible at households level to avoid creating new tent cities.
Distribution of tents should be targeted at the most vulnerable and displaced households with totally
destroyed houses who are unable to initiate self-recovery process.
Hygiene kits and buckets / jerry cans are separately being tracked by the WASH cluster.
Coordinate with WASH agencies at distribution sites.
Mosquito nets are not being tracked by the shelter cluster.
1.3
U SE
OF
CASH
AND
VOUCHER
Cash transfer is a form of support that can be used to address basic shelter needs when beneficiaries
have access to functional market. Cash transfer allow targeted beneficiaries to choose from the range
of goods and services directly from local market and service providers, and can often be delivered
more quickly than in-kind commodities. With the speed at which market recovery is happening on the
ground, it is expected that many shelter actors will be looking to cash transfer as a vital part of the
shelter response.
The basic principles in using cash are very similar to commodity-based programing and should include
– consultation of the affected population, need assessment, establishing clear program objectives,
design method of delivery, agree on content and value of support, clear targeting rationale,
coordination with governmental and humanitarian agencies, as well as monitoring and evaluation.
Different forms of cash transfer may be adopted; it can be either conditional or unconditional, one-off
or repeated payments, blanket or targeted, or a mixture of methods can be used to complement each
other.
It is, however, important to note that cash alone will not be sufficient for sustainable shelter recovery. It
has been noted that self-recovery efforts taking place throughout the affected areas, though
impressively prompt, are of worse construction quality. Any programing will need to pay close attention
on technical assistance, which may include information campaign, orientation, trainings, and
monitoring. This is very much so when the program is designed around cash transfer.
Further reference:
IFRC, Guidelines for cash transfer programming, 2007,
http://www.ifrc.org/Global/Publications/disasters/finance/cash-guidelines-en.pdf
GOAL: https://www.sheltercluster.org/Global/Meeting%20documents/Vouchers%20Manual-
GOAL.docm
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2 Shelter Interventions
2.1
E MERGENCY
SHELTER
Emergency shelter support can be in the form of tents or plastic sheeting (tarpaulins) with rope and
fixings. In general plastic sheeting is preferred as it allows for flexible use of material, is more
waterproof and contributes towards initiating self-recovery process. Where possible, basic tools should
be included to allow for effective use and installation of plastic sheeting.
See Annex 4 for sample of IEC material for fixing plastic sheets. A Tagalog version can be
downloaded from
https://www.sheltercluster.org/Asia/Philippines/Typhoon%20Haiyan%202013/Documents/Fixing_plasti
c_sheeting_tagalog.pdf. It is recommended that a short orientation be carried out prior to distribution
regarding the correct and most effective way of using plastic sheeting and tents to maximise their
lifespan.
Emergency shelter Value (PHP)
2
Tarpaulins, 190g/m ± 5%, with reinforcement band - 1
per 5-people household,
Materials distribution
Fixings – rope*, nails, etc. 1,500 to 3,000
Tools – saw, claw hammer, shovel, etc.
Technical Assistance Orientation, technical guidance, monitoring
* If providing Tarpaulins with eyelets, ensure compatible sizing of rope with eyelets
See section 4.2 for tent specification.
Further reference on use of plastic sheeting: http://www.plastic-sheeting.org/
On Tents: http://www.plastic-sheeting.org/ref/tents.pdf
2.2
S UPPORT
TO
SELF-‐RECOVERY
Construction material and tool packages, along with technical assistance, are used to support the on-
going self-recovery process. The shelter cluster had identified durable roofing solutions to be critical to
sustainable self-recovery. As such support to self-recovery should provide adequate resources for
beneficiaries to achieve durable roofing solution.
SHELTER REPAIR KIT
Two main types of household roofing structures have been observed in the affected areas: timber
frame and CGI sheeting; and those with bamboo and nipa shingles. The purpose of shelter repair kit is
to support families towards durable roofing solution.
Shelter repair kits are considered as having 3 main components: construction material, tools and
technical assistance. Final kit content and delivery method should reflect agency’s own need
assessment and technical expertise.
Shelter Repair Kit (CGI) Value (PHP)
CGI sheets – 26ga
2
(16 x 8ft sheets for 18m covered living space)
Material distribution or Timber - certified timber, or salvaged, various sizes 5,000 to 10,000
Cash/Voucher
Coco lumber - certified, various size, or salvaged
Cladding: ply wood, woven bamboo mats
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Fixings – rope, nails, etc. (see details below)
Sealant* – Vulca seal or equivalent, can 1 pint (min.
500ml)
Timber saw (450mm), claw hammer, shovel, tin
Tools
snip, pliers, etc. (see tools specification below)
Training, technical guidance, monitoring Additional 10-20%
Technical Assistance
cost.
* Commonly use in repairing salvaged CGIs and tarpaulins
Below is a list of suggested complimentary fixings – with approximate quantities per household. These
may be distributed individually or in bulk to community committees where possible.
Fixings: Quantity
Rope, Polypropylene, black, diam. 8-12mm, twisted 30m
Quantities to Nail (Umbrella), for roof sheets, galvanised, 75mm +
be provided by 2-4kg
watertight washer
agencies.
Final content Nail, iron, for wood, 75mm or 100mm 1-2 kg
should reflect Nail, iron, for wood, 40mm 1-2 kg
agency’s need
assessment. Tie wire, galvanised, diam. 1.5 mm 25m
Hurricane strapping, galvanised, 32mm 30m
Alternative durable roofing solution such as use of bamboo and nipa palm may also be appropriate in
areas where pre-typhoon constructions were predominantly with bamboo. Assessment should be
made for skills and knowledge in location prior to finalising options.
Shelter Repair kit (Bamboo & Nipa) Value (PHP)
Roof thatching – made from nipa palm or coconut leaves
2
(est. 480 pieces for 18m covered living space)
Bamboo – various size, or locally harvested and treated,
Material (3 bundles of 2” x 8’)
distribution or
Coconut wood - certified, various size, or salvaged - for use as
Cash/Voucher 5,000 to 10,000
footings.
Cladding: woven bamboo mats (amakan), 2x1.5m
Fixings: rope, natural - coconut husk; nails, 1.5”, 2kg; wire etc.
Timber saw, claw hammer, shovel, pliers, bolo, etc. (see tools
Tools
specification below)
Technical Training, technical guidance, monitoring Additional 10-
Assistance 20% cost.
Note: Bamboo has the tensile strength of miles steel, with flexibility that dissipates energy well and is
therefore reacts well to earthquake and storms when properly tied down and with adequate bracing.
with zinc or tiles, but needs good design and construction.
bamboo needs treating if it is expected to stay storm resistant for long
TOOL KITS
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Tool Kit, provided at a household or community level, is used to assist with salvage and recovery
process.
Note: If provision of tool kit is done at the community level or 5 to 10 households group, advocacy, or
community reconstruction committees will be required to ensure that the community knows that tools
are available.
General: repair and construction
Claw Hammer Local specification
Timber saw SAW, for timber, 400mm blade/ SAW, bow type, for wood, 450mm blade
Pliers
Sheet metal cutters Tin snips
Builders bucket
2.3
C OMMUNITY
CLEAN
UP
KIT
Community clean up and rubble removal kit can be used to support salvaging, recycling and removal
of debris in the community.
Clean up and rubble removal
Empty rice bags Local specification
Wheelbarrow Approx. 90l dry solids, strong solid wheel
Hack saw – blades Steel bar frame, wood handle, wing nut, L. 300mm/ 24”
Bolo (knife) Local specification
Barra Twisted Steel Bar with a chisel on the end
Crow bar With angled beak, 300 mm length/with angled beak, 500 mm length
Cold Chisel Flat 20mm, for masonry, 300mm length/1”
Sledge hammer Hardened steel, wood handle, 4800g, 900mm/hardened steel, wood handle,
1200g, 250mm
Shovel /Spade Square faced shovel total length approx.1m
Personnel protection
Gloves Protection, heavy duty soft leather, size 11, pair
Goggles Plastic, with rubber string, eyes protection
Mask Vapour and dust protection, FPP2 disposable half mask
Boots Heavy duty plastic rubber, pair, size various
3 NFIs Interventions
3.1
H OUSEHOLD
KIT
Household Bedding
Blankets 2
Ground mats 1-2
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Other Household Items
Solar lights 1
Radio 1
3.2
K ITCHEN
SET
This is a sample household NFIs kit; there may be variations between organisations.
Household Kitchen Set Quantity
Cooking pots with lids. (3-7 litre and one 5-9 litre) 2
Saucepan 1
Serving spoon / Ladle 2
Table spoon 6
Cups 6
Plates 6
Soup bowls 6
3.3
H OUSEHOLD
CLEAN
UP
KIT
Material Specification
Bucket Heavy duty rubber, masonry type
Floor Cloth Cotton, 50 X 50cm
Straw brush, 30cm width block, without handle - local manufacture
Broom from palm
Mop Fringe wet mop, floor washing, with handle
Dustpan
Scrub brush Hand brush
Sponge Reinforced cellulose, 5 x 10 x 15cm
Detergent Household, general cleaning, liquid, bottle 1L
Gloves Cleaning, rubber, large
Chlorine 1000mg (NaDCC 1670mg), multi-purpose, 1 tablet
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4 Specifications
2
4.1
T ARPAULIN
/
PLASTIC
SHEETING
Note: Plastic sheeting will be distributed as:
• 1 sheet per Household of up to 5 people.
• 2 sheets for households of 6 people and more.
Plastic sheeting is preferable over tents as it:
o Permits flexible use of materials,
o Is more waterproof,
o Allows people to create improved living areas. Its relative weight allows rapid distributed at volume.
Plastic sheeting should be distributed with suitable fixings such as rope or wire.
BACKGROUND
Plastic sheeting is also known as plastic tarpaulin, tarp or polythene sheet. It is a sheet of strong,
flexible, waterproof material.
Although different qualities of plastic sheeting exist, those suitable for humanitarian relief are made
from polyethylene to standards that were effectively agreed between major organisations in the 1990’s.
Some of the specifications such as UV resistance can only be found by detailed laboratory testing. As
such, it may not be possible to verify all of the specifications when sheeting is procured locally.
A standard sheet has a black woven core and is laminated on both sides. All plastic sheeting must
reach minimum performance standards outlined below.
Sheet sizes and number per family
SOURCE SIZE NUMBER REQUIRED PER FAMILY OF UPTO 5
4m x 5m 1
4m x 6m 1
DfID 4m x 7m 1
USAID 4m x 60 Roll cut into 10 pieces (6m lengths). One per family.
Standard specification:
Weight: 200g/m2 ± 5% (ISO 3801). Add 10% for reinforcement.
2
Lighter versions (180g/m ± 5%) that meet the material performance specifications below might also be
considered.
Core material: woven fabric High-Density Polyethylene (HDPE). Black colour, as this provides
privacy, reduces heating under the sheeting due to the sun and is the cheapest way to reduce UV
degradation.
Lamination material: Low-Density Polyethylene (LDPE).
Reinforcement: eyelets (sheets only) or reinforcement bands (rolls and sheets).
• Option 1: eyelets (on edges), one strong aluminium eyelet every 1.00 m ± 5% on edges. Sealed on
all sides (or 2 sides heat sealed and two sides double stitched), with nylon or HDPE ropes in hem.
• Option 2: reinforcement bands, bands of 7.5 cm width made from black woven HDPE laminated on
both sides.
2
See also www.plastic-sheeting.org.
text edited from “selecting NFIs for shelter”, IASC shelter cluster
http://www.sheltercentre.org/sites/default/files/Selecting NFIs for Shelter.pdf
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4.2
T ENTS
Note: Tents are currently a priority, but only if of sufficient quality and they can be delivered by mid-
December. Where there is an option, plastic sheeting should be procured instead to allow response at
scale.
TENT
QUALITY
Past experience has shown that when large quantities of tents are purchased at short notice, the
quality remains unpredictable.
Many tents that are offered by suppliers will not remain waterproof for the heavy rains. Many others
are simply too small.
Tents specialised for humanitarian relief have been developed over many years by major
organisations. To purchase suitable tents requires establishing clear specifications and
understandings with manufacturers.
As an example, in a survey of the estimated 400,000 tents distributed after the Pakistan earthquake in
2005, over 80% were found to be unsuitable for the weather. Most of the distributed tents required
remedial distributions of plastic sheeting. This caused significant delays.
TENT
SPECIFICATION
The procurement of tents requires solid knowledge of tent specification. A normal tent specification
runs to several pages. Failure to have a detailed specification for large scale tent procurements will
frequently lead to issues with quality.
2
Tents should provide a minimum of 16m usable covered area.
Double fly is recommended as it provides:
o A ventilated air gap for enhanced thermal performance
o Improved water resistance
3
Fabric should meet the specifications outlined in the IFRC Emergency items catalogue .
More on specification is available from “”A guide to the use and logistics of family tents in humanitarian
4
relief .
KEY
COMPONENTS
OF
A
TENT
A tent must be made of waterproof canvas, and must have a strong supporting frame. It must
2
provide a minimum of 16m covered area. Additionally, a winterised tent has the following
components:
Fly sheet
• Separate fly sheet, usually made from canvas, which fits over the inner tent.
Structural supports.
• The poles, which form the vertical supports and the ridge beam, should be made of a thick gauge
steel (min 1.5mm) and with an external diameter of 35-50mm. This gives suitable structural resistance
to both high winds and snow loading.
Mud flaps / valences
• The tent must have rot proof mud flaps of suitable quality and length to allow the tent to be dug into
the ground.
3
http://procurement.ifrc.org/catalogue
4
http://www.sheltercentre.org/sites/default/files/UNOCHA_tents.pdf
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5
4.3
R OPE
SPECIFICATION
Rope is one of the most common fixings for plastic sheeting. For fixing plastic sheeting, black 8mm to
14mm diameter rope is preferred. Black rope is preferred as it resists UV degradation, although other
colours (such as blue polypropylene rope) may be cheaper or more available.
Ropes can be made from various types of material, properties of some of the most common materials
are summarised below.
Properties of the most common types of rope (Based on the MSF catalogue)
Natural fibre Polypropylene Nylon / polyester
Strength - + ++
UV resistance +++ - +
Elasticity + ++ ++++
Wear resistance + + ++
Resistance to rot - ++++ ++++
Cost Cheap Average Expensive
Specification - Rope:(natural fibre, nylon and polypropylene)
Basic specification
Weight Large quantities are normally purchased by weight. Minimum
lengths should be specified.
Dimensions 8-14mm diameter. (or 3-4mm if polyester hard braid)
Colour Black for nylon and polypropylene, natural for natural fibres
(subject to availability / cost)
Material Polypropylene, Nylon, other polymers, or natural materials. Fibres
should not be recycled (for quality).
Material specification
Number of strands 3 or 4 strands for twisted rope. Twisted for polypropylene and
natural fibres, braided for nylon.
Testing ISO 9554
Printing and packing
Printing Bales of rope should be marked with type, material, manufacturer,
length, tensile strength, inspection reference.
5
See also www.plasticsheeting.org.
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6
4.4
C ORRUGATED
IRON
SPECIFICATION
Corrugated galvanised iron is also known as corrugated iron, zinc sheet or abbreviated as CGI.
There is alternative metal sheeting to galvanised iron that can also be used
Coating: CGI often has a zinc carbonate coating which protects the iron from rusting. The zinc coating
can usually be identified by the crystalline pattern. Alternative coatings include zinc rich paints.
Painting the zinc coated iron sheet will further increase its life-span. Painting also reduces heating in
sunlight. It is necessary to wait some time before painting CGI to allow the greasy protective layer
applied in the factory to wash off.
On a visual inspection there should be no gaps or bubbles in the coating. It should not easily scratch
or rub off. ‘Coating thickness gauges’ can be bought to measure the thickness of galvanised layers.
Corrugations: Once coated with zinc, the flat sheet is rolled on a press to leave a corrugated pattern.
Corrugations make the sheet more rigid. They can be described by the depth (the height from the top
of a crest to the bottom of a trough) the pitch (the distance between two crests). Corrugation patterns
may vary between manufacturers.
Suggested
SWG 24 26 28 30 32 34
Mm 0.559 0.457 0.376 0.315 0.274 0.234
Inches 0.022 0.018 0.015 0.0124 0.0108 0.0009
Note: other wire gauges are used such as the American Wire Gauge (AWG). Quoted here is British
Standard (Imperial) Wire Gauge (SWG). This was detailed in BS 3737:1964, a standard that has now
been withdrawn.
Thickness: suggested 26 SWG. Thinner gauge sheeting will not last as long and is more likely to fail
in high winds. Note the lower the gauge number, the thicker the sheeting. If sourcing locally, you will
need to measure the sheet with callipers because although the vendor may call it a particular SWG, it
will vary.
Dimensions: Dimensions quoted with a tolerance of ±5mm. Dimensions should be appropriate to
construction. With smaller sheets there is more wastage due to overlap between sheets. Larger sheets
may be harder to transport.
Corrugations: Pitch and depth should be uniform. This allows the sheets to be stacked easily and to
overlap neatly when making a join.
Packing: If they are being airlifted, bundles of sheets of CGI should be packaged in a sturdy wooden
box. This is especially critical if the CGI is under slinging with a helicopter or being stored on or near
an airfield.
HEALTH AND SAFETY
Ensure that handling staff are equipped with gloves and sturdy boots to prevent injury, and that a first
aid package is available at loading and off-loading locations.
6
text edited from “selecting NFIs for shelter”, IASC shelter cluster
http://www.sheltercentre.org/sites/default/files/Selecting NFIs for Shelter.pdf
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