Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
Status
Strategy Status
Version
Status
Effective date
Next revision
3.2
DRAFT
To be reviewed by
SAG
3 March
2014
19 March
2014
Shelter Cluster Structure
Response name
Typhoon Yolanda (international designation ‘Haiyan’’), 2013
Cluster Lead
Agency
DSWD
Government
Lead agency and
contact
Agency: Department of Social Welfare and Development (DSWD)
Name: Assistant secretary Camilo G. Gudmalin
Email: [email protected], Mobile: 09209485383
Cluster
Coordinator
Contact
Name: James Shepherd-Barron
Agency: International Federation of the Red Cross and Red Crescent Societies (IFRC)
Email: [email protected], Mobile: 09084011218
Global Focal
Point Contact
Name: Pablo Medina
Agency: International Federation of the Red Cross and Red Crescent Societies (IFRC)
Email: [email protected], Mobile: +41 (0)79 201 1639
Hubs/Sub-hubs
Hubs: Tacloban (IFRC), Roxas (IFRC), Cebu (IFRC)
Sub-hubs: Ormoc (IOM), Guiuan (IOM)
Strategic
Advisory Group
(SAG) Members
Chair DSWD Assistant Secretary Gudmalin, DPWH, NHA, IFRC, IOM, CRS, HFHI, UNHABITAT, Housing and Urban Development Coordinating Council (HUDCC), Dept of
Interior and Local government (DILG)
Endorsing
Cluster Partners
72 partners active in the cluster, including IFRC, ICRC, IOM, and UN-Habitat (of which 27
are included in the SRP)
Relevant
Technical
Working Groups
(TWiGs)
Housing, Land and Property: co-chaired with the Protection cluster: No build zones,
bunkhouses, relocations, informal settlements and security of tenure. Includes WASH,
CCCM, and Early Recovery & Livelihoods Cluster
Reconstruction and Recovery (technical): chairs UN-HABITAT and DSWD Assistant
Secretary Gudmalin: Permanent shelter design, reconstruction process, housing/shelter
policy, salvage, material supply, guidance, training on DRR
Emergency and Temporary (technical): chair IFRC. Standards, specifications and
guidance for supporting emergency shelter, owner-driven self-recovery, and temporary
shelter
Societal: chairs DSWD and IFRC. Beneficiary selection criteria, communicating with
communities, gender, diversity
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
Situation Analysis
According to the Shelter Cluster Lead, the Department of Social Welfare and
Development (DSWD), in early December 2013, a total of 1,012,790 houses were
damaged or destroyed within a 50km radius of Typhoon Yolanda’s path, of which
493,912 were partially damaged and 518,878 totally damaged.
Following consultations, the government requested humanitarian organisations to
address the shelter needs of 500,000 households in terms of providing a durable roofing
solution (see definitions annexed), of which at least 300,000 were first to receive either
a tent or a single tarpaulin/plastic sheet and shelter-related Non-Food Items.
Situation
During the first 100 days of the response Shelter Cluster partners have provided close to
500,000 households (2.5 million people) with emergency shelter assistance such as
tents and tarpaulins. More than 55,000 households (285,000 people) have received
tools, building and roofing materials that enables families to repair their own homes.
40,000 families have received cash with which they can buy building materials and pay
labourers. In addition, 2,000 families (10,000 people) have received “core shelters” these are complete, simple houses of approximately 20 m² that can be extended by the
families.
Despite these achievements, we are still in a shelter emergency: on average, the
Philippines are hit by 20 major storms per year. This year, survivors of Typhoon Haiyan
already had to face two named storms which damaged and destroyed up to 30 per cent
of emergency shelters in the Eastern Vasayas (Region VIII). The Shelter Cluster
anticipates that more emergency shelter materials will have to be replaced over the
coming months owing to degrading effects of wind, salt and ultra-violet radiation.
Shelter self-recovery is taking place at an impressive rate. However, many houses are
being “built back worse” with the same vulnerabilities as before. To mitigate this,
Shelter Cluster partners are providing the survivors with hands-on training and
assistance to facilitate a progressive “build back safer” approach. This outreach has yet
to come to scale.
Assessment
Findings
MIRA (November 2013): The shelter cluster REACH team participated in the first MIRA.
Key findings:
Most vulnerable populations: Families who have lost legal documentation of land
and property title, those who have migrated, elderly, disabled, female headed
households, poor families without self-coping resources.
Emergency/Life saving Needs
• Support to ECs, host families
• Basic materials for makeshift shelter
• Debris clearance and salvaged materials
Recovery Needs
• Support for self-recovery
• Access to rebuilding and repair materials (tools, CGI, timber, fixings)
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
•
•
•
•
(3 March 2014)
Awareness raising for safer construction
Debris clearance and salvaged materials, waste management
Transitional, core and incremental housing solutions are necessary
Government coordination structures will need support
REACH Shelter & Wash Assessment (December 2013) : Data collection began out of
Tacloban hub of 29 November and Roxas City on 3 December 2013. Key findings:
 27-34% of damaged/destroyed households surveyed said they were in no need
of external assistance.
 63% of survivors are using salvaged materials to repair/rebuild their homes,
using whatever they can find, which in a lot of cases is seriously damaged and
was already of bad quality before the Typhoon.
 79% of survivors have started rebuilding their homes but 49 % have indicated
that they will not be able to complete repairs without assistance.
 21% have not started rebuilding/repairs. The assumption is that this is because
they either don't have the resources or because they don't know where they
will live. This is particularly the case for people currently living in no-dwelling
zones.
 Family size: 4.7
 Household size: 6.5
From the ACAPS secondary data assessment of January 2014, approximately 40% of
damaged housing across the affected area is constructed of wood (30%
brick/stone/concrete and 30% bamboo) and 75% use CGI sheeting for roofing.
Outputs
497,365 households have been provided with emergency shelter materials in the form
of tents and plastic sheets/tarpaulins (Target = 300,000) and 470,142 with NFI packages
(kitchen sets/blankets/mats/solar lights). Such distributions are projected to rise to
550,000. Following a cluster SAG decision in late January, many of these will be the
same households receiving a second tarp either to replace those plastic sheets which
have weathered or to use temporarily in lieu of CGI sheets.
Gap Analysis
58,000 households have been provided with ‘self-recovery’ roofing kits (Target=
500,000) plus an additional 38,000 with cash grants of PHP 10,000 or less. Shelter selfrecovery is hampered by a lack of good quality building and roofing materials –
particularly CGI sheets, hurricane straps, nails, and wire – delays in clearly identifying
no-dwelling zones and uncertainty around issues related to relocation (selection
criteria) as well as the level of government response and uncertainties surrounding
cash compensation payments. These difficulties, together with the lack of funding,
means that shelter self-recovery activities will likely only be able to reach 205,000
households, or approximately 40 per cent of the target (which equates to 20% of total
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
need), by November 2014 i.e within the timespan of the SRP.
Capacity
There are 72 international and national NGO partners active in the Shelter Cluster. This
is likely to reduce by half in June 2014. Although the larger partners will likely stay to
engage in core and permanent shelter, it is not thought likely that many partners will be
able to absorb more emergency or temporary shelter than is currently planned in the
SRP.
Funding
Shelter is the second largest component of the SRP at USD 178,442,176 (which
represents 23% of the overall total) representing 34 projects submitted by 27
organisations yet is currently only 24% funded . This figure, however, does not include
the International Red Cross-Red Crescent Movement appeals – of which approximately
CHF 45 million is likely to be earmarked for emergency and/or temporary shelter – nor
does it capture the shelter activities of the 40+ cluster partners working outside the
SRP, or private sector organisations outside the cluster. A funding gap analysis by the
Shelter Cluster conducted in early February concluded that this component amounted
to at least USD 25 million. The current funding gap is therefore estimated to amount to
USD 66 million.
Strategic Approach
The GoP’s objective as outlined in the Reconstruction Assistance on Yolanda (RAY) of 18
December 2013 is to restore the economic and social conditions of the affected areas at
the very least to their pre-typhoon levels, and to a higher level of disaster resilience.
Accordingly, GoP has launched a programme to support reconstruction through the
distribution of shelter materials in different quantities according to vulnerability and
level of damage sustained. Priority has been given to low income households.
Strategy
While shelter cluster partners already funded will provide durable roofing solutions to
their targeted beneficiaries (estimated at 40 per cent of the shelter cluster caseload or
c.205,000 shelters), they will also continue emergency shelter distributions where need
is identified and households request such support. In addition, in an effort to reach
other families in need before the next hurricane season and reduce vulnerability
further, a second tarp should be combined with salvage material in lieu of CGI sheeting
as an interim roofing measure and/or to replace those that have exceeded their design
life.
Partners are in the meantime expected to implement a more durable self-recovery
strategy, including retrofit, that ‘builds back better and safer’ at the household and
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
community level through provision of construction and roofing materials, tools, shelterrelated non-food items (NFIs), technical support (designs and hands-on skills transfer),
and cash grants (conditional on compliance with building back safer standards, or
unconditional for local purchase of tools, nails, CoCo lumber and CGI sheets).
Alternative roofing solutions in the form of nipa thatching is prioritised where
appropriate. Rental subsidy and support for host families can also be considered.
Partners are not encouraged to construct temporary or transitional shelters, but instead
focus on permanent or ‘progressive’ and core housing. To the extent possible,
mitigation measures to support DSWD and DPWH in bringing newly constructed
‘bunkhouses’ to standard are being considered, and some partners will consider
construction of additional bunkhouses if suitable land is made available.
In addition, the cluster will work with other concerned clusters, OCHA and the
Humanitarian Coordinator to engage the government with a view to finding acceptable
common ground on key policy issues such as “no dwelling zones” and relocation policy.
In this regard, it is essential to ensure that sufficient disaster management expertise and
protection capacity is available to enable an effective hazard and rights based approach
to reducing risks to people living in unsafe areas; mitigate the impact of future disasters;
and to provide appropriate linkages between transitional and durable shelter solutions.
It is therefore important to address related implications of the implementation of no
dwelling zones such as temporary settlements, compensation, beneficiary selection,
relocation plans and possible challenges to the process such as avoiding the creation of
future slums both in relocation sites and in existing sites, reviving livelihoods, ensuring
sustainable income and rebuilding the community, the environment, and social capital.
To this end, the creation of five Disaster Risk Management and Protection Hubs is
envisioned to provide LGUs with information and specialist technical expertise in areas
such as human rights and the integration of high-quality DRR planning and processes
into LGU plans and systems.
Each of the five proposed hubs will be staffed with a team leader and seven experts
provided by UNDP, UNHABITAT, and the Human Rights Commission (vulnerability
assessment; land planning and management; resettlement planning; urban planning;
disaster management; community mobilization).
In addition, the hubs will be supported by a shelter recovery advisor (UN-HABITAT, to be
based in Manila) tasked with providing the coordination and advocacy link with the
Central Government, the HCT, the Shelter Cluster and the Human right Commission.
It is proposed that these hubs be tasked with providing coordination and advocacy links
with the Central Government, the HCT, the Shelter Cluster and the Human Rights
Commission. The hubs will:
 Support LGUs in conducting site-specific vulnerability and risk analysis to identify
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2


(3 March 2014)
the total number of households which could be affected by the Government’s
proposed no dwelling zone recommendation, as well as advice on available risk
mitigation options.
Support LGUs in conducting macro and micro-level risk assessments and hazard
mapping to inform the relocation or reconstruction process including the location of
critical facilities, design of early warning systems, design of physical mitigation
measures etc.
In areas where relocation is deemed absolutely necessary, provide advice and
technical support to LGUs and concerned government agencies to ensure that the
relocation process is rights based and meet minimum standards (as endorsed by the
HCT) and promotes a holistic approach to relocation or reconstruction through land
use planning, site planning, urban planning, recovery planning, and service delivery.
The strategy will focus on the coastal LGUs harbouring the most vulnerable households
in the most at-risk zones. The total number in affected regions could exceed 100,000
households.
If funded, these hubs (including the Manila based UN Habitat recovery advisor in
Manila) will provide appropriate linkages between temporary and more durable
housing solutions, and would be an important element of the shelter cluster’s handover
strategy.
With beneficiaries expressing a preference for more durable (CGI) solutions, partners
wishing to continue distribution of plastic sheeting/tarpaulins should be prepared to
engage in more durable solutions in the same locations.
In principle, partners should be encouraged to focus on fewer municipalities providing
for more Barangays, rather than choosing one or two of the most affected barangays
from a large number of municipalities.
Operational
Framework
There are currently 2,375 families (11,200 people) residing in evacuation centres across
the three affected regions. This caseload is the priority for relocation to temporary
housing.
Recognising that there currently exists a lack of clarity around the types of assistance
that humanitarian agencies may provide to persons living in designated no dwelling
zones; that it is imperative to provide safer temporary shelter and roofing solutions
ahead of the next typhoon season; and that it will take time to find durable solutions,
municipalities are asked to clarify that all humanitarian actors be allowed to provide
humanitarian assistance to persons in designated no dwelling zones, including nonpermanent shelter and corresponding WASH support.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
Non-permanent shelter and related WASH support includes:
 tents, tarpaulins, CGI roofing, fixings, timber (coco lumber) and tools
 Technical advice and training to persons on safe non-permanent construction
practices
 Disaster Risk Reduction (DRR) awareness raising, including early warning and
evacuation practices
 Related WASH support
 Cash assistance
 Shelter-related Non-food items (NFIs)
Thatching with nipa should be promoted in areas where it is customary. Greater
consideration could be given to establishing cooperatives for local income generation
e.g for mass production of amakan matting and coco lumber salvage.
All shelter self-recovery initiatives are expected to work with WASH partners to ensure,
to the extent possible, access to improved sanitation and safe water supply.
Shelter Operational Response Plan
Country Strategic
Response Plan
(SRP) Objectives
STRATEGIC OBJECTIVE 2: Households with destroyed or damaged houses, including
displaced populations, attain protective and sustainable shelter solutions;
Government response planning is evolving and being coordinated through the various
departments involved (DWSD, DPWH, and NHA). In addition, a ‘Presidential Assistant’,
Secretary Lacson, has been appointed for coordination and oversight of rehabilitation
and recovery measures. His office, OPARR, will coordinate efforts of development
actors, including international and national NGOs. The NDRRMC will set, disseminate,
and enforce standards, validating and guiding approaches by all partners.
Government
Response
CATEGORY
AFFECTED FAMILIES SITUATION
ASSISTANCE PACKAGE
I
Affected Family with own
house/lot
Affected family to rebuild on site
but outside of NDZ
Those that fulfil the government’s
vulnerability criteria, who live in a
destroyed or damaged house in a
no dwelling zone
PARTIAL DAMAGE: materials to the
value of 10,000 PHP
TOTAL DAMAGE: materials to the value
of 30,000 PHP
To resettlement sites with the following
options:
• Temporary bunkhouse and then a
• Permanent Row House
• Displacement compensation (balik
probinsya) 10,000 PHP
II
III
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
Cluster
Objectives
(3 March 2014)
Cluster objective 1: Shelter Cluster partners will provide immediate life-saving
emergency shelter in the form of tarpaulins/plastic sheets (and fixings) and tents with
supporting NFI solutions for the most vulnerable typhoon affected households.
Outcome-level indicators and targets
1.1. Number of households that sustained house damage from the typhoon that are
currently living in safe, habitable emergency shelter (300,000 households)
1.2. % of households that are satisfied with the emergency shelter support and
assistance that they received from humanitarian agencies (80%)
Operational Activities:
 Distribution of tarpaulins or plastic sheeting to provide roof coverage for
households with damaged/destroyed houses
 Distribution of emergency tent solutions for households in most affected
areas that have damaged/destroyed houses
 Training and assistance in the appropriate use of tarpaulins
Coordination Activities:
 Information, education, and communication (IEC) materials on appropriate,
safe, building standards are provided to affected populations and
implementing agencies
 Monitoring via other clusters to track outcomes of shelter programming
including household and gender/vulnerability disaggregated satisfaction,
restoration of livelihoods, access to schools, water/sanitation, family health,
etc.
Timeframe: November 2013 to August 2014
Key Target Vulnerable Groups: (see Key Vulnerable Groups)
Cluster objective 2: Shelter Cluster partners will provide support for household selfrecovery through incremental housing solutions using consultative, participatory
processes.
Outcome-level indicators and targets
2.1. Number of households that sustained house damage from the typhoon that
are currently living in safe, habitable dwellings resulting from assistance from
humanitarian partners (500,000 Households)
2.2. % of households that are satisfied with the recovery solutions and
assistance that they received from humanitarian agencies (80%)
Operational Activities:
 Households are provided durable shelter materials and tools to contribute
to rebuilding or repair to damaged/destroyed houses
 Cash distributions (with monitoring) that are intended to enable households
to purchase construction materials or labour that will contribute to
progressive sheltering, monitoring disaggregated by usage type
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)

Technical assistance on safer building practice delivered at household and
community level
 Supporting government with technical assistance on housing, planning and
policy on better/safer building approaches, including debris removal,
salvage, and materials supply chain.
Coordination Activities:
 Information, education, and communication (IEC) materials on appropriate,
safe, building standards are provided to affected populations targeted by
implementing agencies
 Monitoring via other clusters to track outcomes of shelter programming
including household and gender/vulnerability disaggregated satisfaction,
restoration of livelihoods, access to schools, water/sanitation, family health,
etc.
Timeframe: November 2013 to December 2014
Key Target Vulnerable Groups: (see Key Vulnerable Groups)
Cluster objective 3: Shelter Cluster partners will provide support to build communitylevel capacity to rebuild or repair housing damaged by the typhoon including alternative
supplies of materials and skills transfer
Outcome-level indicator and target
3.1. Assist rapid economic recovery in Typhoon affected areas (coastal, inland)
(coordinated with the Early Recovery/Livelihood Cluster).
Operational Activities:
 Training of local carpenters, labourers, plumbers, electricians to be used in
repair and reconstruction efforts
 Production of indigenous building materials (nipa thatch, amakan matting,
and coco lumber) at community level
Timeframe: November 2013 to December 2014
Key Target Vulnerable Groups: (see Key Vulnerable Groups)
Key Vulnerability
Groups
The following groups have been identified by the Vulnerability Working Group as key
groups as most vulnerable or more susceptible to becoming vulnerable:
 Pre-existing vulnerabilities: poor households with persons with reduced mobility,
pregnant and lactating women, women/single/children/older persons/heads of
large households, households with person/child with disability family members,
indigenous persons, etc. This includes also people with new or exacerbated
hardship due to the impact of the typhoon.
 Level of destruction: poor households living in an unsafe structure or an
uninhabitable house due to impact of the typhoon.
 Land and property tenure: households that have lost legal title or those who never
had it.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2





(3 March 2014)
Recovery capacity: poor households with low self-recovery capacity (including loss
of livelihoods), and those that compared to the community situation haven’t been
able to rebuild a safe shelter.
Relocation: households at risk of relocation due to no dwelling zones.
Access to materials: households in rural areas with low access to materials.
Displacement: poor households that are displaced and settled informally.
Host families who are supporting other families, but have limited means.
Vulnerability analysis should take into account personal factors (pre-existing or new
vulnerabilities), environmental factors (impact of typhoon, loss of livelihoods and
materials…) and the household`s capacity to recover. This will help to identify those
persons/households for whom it will be harder to recover without support. Identify
those most vulnerable within the community and prioritise persons facing higher risk.
Baselines
According to the Shelter Cluster Lead, the Department of Social Welfare and
Development (DSWD), a total of 1,012,790 houses were damaged or destroyed within a
50km radius of Typhoon Yolanda’s path, of which 493,912 were partially damaged and
518,878 totally damaged. Different figures are used by other government agencies,
ranging from 1,140,332 by NDRMCC to 775,878 by OPARR. This implies a c.25%
reduction in need. However, these figures will be consolidated by GoP once the results
of the PDNA are known.
Key Issues
No Dwelling Zones
The government has recommended that a 40 metre no dwelling zone be implemented
by LGUs in all affected coastal areas. Currently the government is stating that those that
lived there prior to Yolanda will be relocated, through means of temporary shelter
(bunkhouses) and then permanently. The government has said that no assistance
should be provided to those in the no dwelling zones. This is currently under discussion
with issues such as hazard mapping, community consultation, relocation plans,
mitigation measures being considered instead of a blanket 40m zone being imposed.
Whilst discussions with Government are ongoing, it is proposed that emergency shelter
assistance in the form of re-useable self-recovery materials is provided to the extent
possible and where LGUs have not imposed a blanket ban.
Bunkhouses
The CCCM cluster has played a key role in the discussions, advisory and advocacy
regarding the adequate implementation and use of Bunkhouses.
The Bunkhouse is a temporary sheltering solution used by GoP to house those families
who cannot return to their habitual residence, either because these are now in
designated no dwelling zones or due to lack of coping capacity to tackle reconstruction.
Unlike in other responses, these bunkhouses were initially built below Sphere
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
standards. The HLP Working Group (with CCCM as the lead in this instance) accordingly
created an advisory paper in order to promote the construction and upgrading in line
with international humanitarian recommendations. The Government bodies of the
Philippines welcomed this guidance and together with HCT, requested CCCM cluster to
lead the process and take further action to promote adequate living conditions in
bunkhouses. As such the CCCM cluster conducted an assessment in all built bunkhouse
to identify gaps and required works to upgrade these shelters in line with the Sphere
standards. A complementary action plan engages all relevant partners in the upgrading
of the bunkhouses, which in some cases have already started.
Quantity and quality of building materials
CGI sheets currently available in local markets are below the minimum specification
recommended by the Cluster. It has been suggested to OPARR that these be outlawed
as their continued use in self-recovery will only contribute to ‘building back worse’.
Local manufacturing capacity cannot supply in to the quality and quantity required to
reach cluster targets by onset of the next typhoon season.
Hurricane straps (or their equivalent) are considered an essential component of the
‘build back better and safer’ strategy. This is an unknown technology in this part of the
Philippines, and there is no local manufacturer producing these despite their relative
simplicity. Specifications and guidance have been provided to DPWH for international
procurement and local manufacture is under consideration.
It takes an average of ten coconut trees to supply sufficient lumber for an 18m²
temporary/transitional shelter (550-600 board feet). With 40% of affected houses
requiring timber frames, 4.5 million downed trees will need to be recovered by
July/August after which they will have diminishing usefulness as building materials.
According to the ER&L Cluster, current sawmill processing capacity is estimated at 750
trees per day. On- site processing by (licensed) chainsaw operators and 24/7 sawmill
operations will perhaps quadruple that output. At best, this will produce enough CoCo
lumber for 300 houses per day.
Compensation packages
GoP has yet to agree the levels of ‘compensation’ to be paid per category of housing
damage. This makes it difficult for partners to know how much of their ‘shelter selfrecovery kits’ should be as a cash component.
Early Recovery
and Livelihoods
There are six main ways Shelter Cluster partners are contributing – and can contribute
more – to livelihoods regeneration post-Yolanda:
1. Imparting skills and know-how in most-appropriate construction practices to ownerdriven self-recovery through a risk reduction and resilience approach called “build
back safer”.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
2. Providing construction materials, tools and equipment of lasting value through use
of local supply chains
3. Providing cash ‘top-ups’ for local purchase of building materials in local markets,
and to pay local carpenters, masons, and builders to construct houses for the most
vulnerable who lack capacity to do so themselves
4. Stimulate demand for coconut lumber, including salvage, processing, storage and
use of downed and damaged trees for reconstruction, and alternative uses for byproducts
5. Training of master masons, carpenters, and electricians
6. Local manufacture of building materials such as concrete ‘breeze’ blocks, roofing
material (nipa), and walling materials (amakan) through local cooperatives
Coconut Lumber
Initial reports from the Philippine Coconut Authority indicated that more than 33 million
coconut trees were damaged to varying degrees, of which about half were totally
destroyed. Of these 15 million, only 40% are considered suitable for house
reconstruction. Meanwhile, the processing of organic debris could give rise to several
opportunities.
•
Sawing of the lower parts of the trunks into construction timber
•
Use of lower grade timber for pallets, crates, scaffolding, and fencing
•
Use of the best timbers (including the stumps) for furniture, joinery and flooring
•
Chipping and composting of the palm crowns, bark offcuts and fronds
•
Turning waste timber into charcoal.
Coconut wood can be a promising material for the manufacture of quality furniture and
other high value coconut wood products, like decorative interior walls, parquet floors,
and household items for which there is a worldwide demand.
Charcoal making offers potential income and livelihood opportunities for rural
residents. Simple, low-cost charcoal kilns have been developed by the Forest Products
Research and Development Institute (FRRDI), Department of Science and Technology
(DOST) for efficient conversion of woody biomass into high-quality charcoal and
briquettes.
The chipping of palm crowns, bark offcuts, and fronds can be combined with sawdust
from the milling process to provide compost which can be used to supplement chemical
fertilizer in coconut replanting and intercropping, as well as for smallholder ‘kitchen’
gardens.
Low grade coconut timber is not suitable for house construction but is suitable for
housing components like joists, doors, and window frames.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
Cluster partners will report regularly to Shelter Cluster information management
personnel for compilation of 3W information. These compilations and analyses will be
shared with cluster partners.
Monitoring and
Evaluation
The Shelter Cluster will also conduct situational monitoring every quarter using its
REACH assessment methodology to track progress against outcomes and verification of
output level information.
Cluster Footprint
The shelter cluster currently comprises 20 international IFRC staff operating out of
Manila, three operational ‘hubs’ in Tacloban, Roxas, and Cebu, and two ‘sub-hubs’ in
Guiuan and Ormoc supported by IOM.
The cluster will remain throughout the life of the SRP. However, in terms of transition, a
gradual reduction in international staff will take place through the period May to
October 2014, with progressive building of capacity for DSWD and other local
mechanisms such as the LIAC or PROVIAC in Provincial/City Government offices in the
meantime; the establishment of municipal focal points; and the gradual handover of
housing recovery to UN-Habitat or a partner NGO.
Coordination
in Transition
Trainings in Information Management and Beneficiary Selection with the Cluster’s
counterpart, DSWD, have already begun. At the same time, national counterparts will
be identified from within provincial offices and mentoring provided. However, there are
concerns that additional resources in terms of coordination tools, logistics, computers
with internet access, and budget support for coordination and monitoring will be
needed if responsibilities are to be safely returned to GoP.
Under current planning scenarios, the Roxas Hub will phase out by end April, with the
Cebu Hub by the end of May. It is also likely that the Sub-Hub in Ormoc (managed by
IOM) will phase out at around this time. This will leave Tacloban as the main focus of
operational coordination, with one of its roles to support the Sub-Hub of Guiuan. To
enable this, resources will be strengthened in Tacloban to cover the triple aspects of
transition: Provision of Housing, Land and Property (HLP) policy advice, including on
relocation; the urban caseload; and the rest of Region VIII.
It should be noted that coordination transition planning assumes full funding. As at the
end of February, funds available to IFRC to fulfil its Shelter Cluster responsibilities as
outlined above run out at the end of May 2014. A further USD 800, 000 is being sought.
A coordination and strategic oversight role will remain in Manila to consolidate national
level information and sustain cluster activities for preparedness and contingency
planning under the leadership of a Shelter Cluster Focal Point embedded in IFRC.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
It is anticipated that consolidated IM outputs will reduce to every two weeks, and to
monthly reporting in April. This will also apply to reporting.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
INDICATORS
Outputs
Capacity
Needs
Indicator
Calculation/
Targets
Overall Need for Shelter Assistance – These indicators will inform analysis on defining the overall caseload of
households that will require some form of shelter assistance
N1
Number/% of Houses damaged and destroyed as a
DSWD DROMIC housing
result of the Typhoon
damage
(verified through REACH)
N2
Number/% of HH that are currently displaced from
DSWD DROMIC – Inside EC,
their home plot as a result of the typhoon
Outside EC, CCCM Cluster DTM,
REACH assessment
N3
Number/% of HH that will require relocation due to
DSWD
no-build-zones
N4
Number/% of HH that are considered poverty
National Poverty indicators, 4P
vulnerable and have sustained damaged housing
registry, REACH
N5
Number/% of HH that are settled informally and have DSWD DROMIC - outside ECs
sustained damage from the typhoon
(minus home plot displaced?)
Strategic Target Objectives – Strategic targets as defined by DSWD and Shelter Cluster partners as being the
humanitarian caseload that should be covered through non-governmental humanitarian agencies
OB1
Obj 1 - Shelter Cluster partners will provide
DSWD-chaired Shelter Cluster
immediate life-saving emergency shelter such as
Strategic Advisory Group
300,000 HH
tarpaulin and tents with supporting NFI solutions for
decision
the most vulnerable typhoon affected households.
OB2
Obj 2 - Shelter Cluster partners will provide support
DSWD-chaired Shelter Cluster
for household self-recovery through incremental
Strategic Advisory Group
500,000 HH
housing solutions using consultative, participatory
decision
processes.
C1
Number/% of HH that show evidence of self-recovery REACH
C2
Number/% of HH that are projected to be supported
DSWD
from government responses
C3
Number/% of HH that have been assisted through
REACH
informal civil society interventions
C4
Number/% of HH that are projected to be given
Shelter Cluster 3W Reporting
emergency shelter support from humanitarian
agencies
C5
Number/% of HH that are projected to be given
Shelter Cluster 3W Reporting
recovery shelter support from humanitarian agencies
OP1
# of Households that have been provided a minimum
Shelter Cluster 3W Reporting
of 1 tarpaulin
Shelter Cluster Monitoring
OP2
# of Households that have received a tent solution
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
OP3
# of outreach methods used to convey good practice
Shelter Cluster 3W Reporting
with tarpaulins
Shelter Cluster Monitoring
OP4
# of different IEC materials distributed
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
OP5
Number/% of HH that have been provided a durable
Shelter Cluster 3W Reporting
roof solution
Shelter Cluster Monitoring
OP6
Number of supplementary hardware interventions
Shelter Cluster 3W Reporting
that contribute to durable housing, including tools,
Shelter Cluster Monitoring
wall and structural materials
OP7
# HH who have been provided a cash disbursement of Shelter Cluster 3W Reporting
DRAFT – Shelter Cluster Summary
Source/Informing datasets
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
OP8
10,000 PHP or more
# of awareness raising and outreach campaigns
OP9
# of government departments/units supported
OP10
# of service types provided to Government
OP11
# of monitoring processes during the next year
OP12
OP13
# of individuals employed for salvageable/debris
material recovery
% of employed individuals who are young males
OP14
# of individuals trained
OP15
# of trainings held
OP16
% of employed individuals who are young males
OC1
Number/% of households that sustained house
damage from the Typhoon that are currently living in
a habitable house/dwelling
Number/% of households that sustained house
damage that are satisfied with assistance
 Built back safer
 Willingness towards location
 Access to schools
 Health
 WASH
 Livelihoods

Outcomes
OC2
DRAFT – Shelter Cluster Summary
(3 March 2014)
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster 3W Reporting
Shelter Cluster Monitoring
Shelter Cluster Monitoring
Shelter Cluster Monitoring
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
Intercluster issues
Cluster
Lead-Agency
Comments
Coordination
OCHA
Sitreps, shelter advocacy, FA, SRP, intercluster coordination, advocacy
with Government
CCCM
IOM/UNHCR
NFI’s and shelter needs in collective centres, relocations from and to
collective centres, Displaced Tracking Matrix, beneficiary lists and data
on vulnerable groups
Early Recovery
/Livelihoods
UNDP/ILO
Housing, building codes, debris removal, hazardous and no-build
zones, coco lumber salvaging
Education
UNICEF/StC
Use of schools as collective centres, relocations from schools
Telecom
WFP
Facilitate beneficiary communications e.g. use of mobile networks,
improved operational communication (good bandwidth, security
comms)
Food security
WFP/FAO
Distribution points of food relevant for shelter NFIs. Information on
beneficiary groups and vulnerabilities
Health
WHO
Incidence of disease that can be avoided by provision of appropriate
shelter and NFI, HIV/AIDs and shelter guidance
Logistics
WFP
Transportation, storage, supply chain, customs clearance, security of
movement and humanitarian access
Nutrition
UNICEF
Information on vulnerable groups through therapeutic feeding data
Protection
UNHCR
Loss of documentation, Housing, Land and Property issues, GBV,
female and child headed households, elderly and disabled,
vulnerability data, security
WASH
UNICEF
Ensure shelter sites have WASH facilities, support on identifying
informal settlements
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
DEFINITIONS
[From ‘Omnibus Guideline on Shelter Assistance’, DSWD 11 January 2013]
Core Shelter Assistance (CSA):
CSAP is one of the interventions under the Disaster Mitigation and Preparedness. It aims to provide
environment-friendly, structurally strong shelter units that can withstand up to 220 kph wind velocity,
earthquakes up to intensity 4 of the Richter scale and other similar natural hazards in relocation sites
provided by the national or local government units and using locally available materials to revitalize the local
economy. This may be provided to family-victims of disasters.
Modified Shelter Assistance (MSA):
The provision of limited financial or material assistance to augment resource of families in constructing
houses in relocation sites provided for the purpose and using locally available materials but with modified
structural design different from that of the core shelter assistance in consideration of the cultural, economic,
and religious political realities of the affected areas and families .
Emergency Shelter Assistance (ESA):
The provision of emergency "self-build "shelter assistance through limited materials or financial assistance to
augment resources of affected families who opted not to be transferred to a resettlement site to enable them
to purchase shelter materials required in constructing or repairing damaged houses which were partially or
totally destroyed as a result of natural or man-made disaster/calamities.
Emergency Shelter Assistance for totally Damaged Houses:
The.provision of limited housing materials or financial assistance to families with totally damaged
houses but not qualified for core shelter or modified shelter assistance due to absence of relocation
site or geographical considerations wherein the area is not accessible to transportation . The family
may either not be willing to be resettled or with lost ownership of property, and constructs their
houses on site or in the same location but compliant to safety requirements.
Emergency Shelter Assistance for Partially Damaged Houses:
The provision of limited housing materials or financial assistance to families with partially damaged
houses to augment their resources in repairing their houses on site or the same location but
compliant with safety requirements.
Emergency Shelter
Shelter that provides life saving support; the most basic shelter that can be provided immediately after a
disaster. Provision of emergency shelter materials to support affected populations in case of sudden-onset
disasters. It could include physical distribution of tents, roofing kits, shelter-related-non-food-items, and other
construction materials. It can also be done through cash based approaches. It should be complemented by
technical support and training and respond to possible population displacement. It must support people’s
own choice to stay where they want (if it is safe to do so) but should also consider other displacement to
collective centres and self-settled or planned camps.
Transitional Shelter
Rapid, post-disaster household shelters made from materials that can be upgraded or re-used in more
permanent structures, or that can be relocated from temporary sites to permanent locations. They are
designed to facilitate the transition by affected populations to more durable shelter. Transitional shelters
respond to the fact that post-disaster shelter is often undertaken by the affected population themselves, and
that this resourcefulness and self-management should be supported.
Progressive Shelter
Post-disaster rapid household shelters planned and designed to be later upgraded to a more permanent
status. This is achieved by integrating future transformation and alteration possibilities in the structural basis
of the unit.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org
Strategic Operational Framework
for Transition post-Yolanda
DRAFT 3.2
(3 March 2014)
Core Shelter
Post-disaster household shelters planned and designed as permanent dwelling, to be part of future
permanent housing, allowing and facilitating the future process of extension by the household following its
own means and resources. The aim is to provide one or two rooms providing safe shelter against reasonable
future hazard by reaching permanent housing standards and facilitating development but not completing a
full permanent house.
Permanent Shelter
Post disaster support to allow construction of new permanent houses for people who lost their former
dwellings due to the impact of disaster. It can be done on a household’s previous plot of land or as part of a
facilitated resettlement on new land. Owner driven and community driven reconstruction is recommended.
Retrofitting
Pre or post disaster household support that aims to reinforce or upgrade existing or repaired structures to
become more resistant and resilient to the damaging effects of potential hazard. It might utilize financial,
technical and material support.
DRAFT – Shelter Cluster Summary
www.sheltercluster.org