CONCEPT PAPER: SUSTAINABLE SHELTER SOLUTIONS Internally Displaced Persons in Somalia SHELTER CLUSTER STRATEGIC OBJECTIVES 2013-2015 There are an estimated 1.1 million IDPs in Somalia. The needs of different categories of IDPs, i.e., people who have been IDPs for nearly two decades and those displaced more recently, vary. The cluster will continue to provide emergency assistance to newly displaced people affected by natural and man-made disasters (flood, fire, drought, conflict and evictions). As Somalia stabilizes further, the Shelter Cluster will continue to reduce its life-saving activities, making progress towards sustainable and durable (shelter) solutions. For the 3 year Consolidated Appeal Process, the humanitarian Shelter community has taken the opportunity to program and to develop solutions that offer disaster and conflict-affected families longer term solutions. The Shelter Cluster objectives now have strategic outcomes to reflect the need to design interventions that fit better the target populations needs: Emergency objective: Contribute to the protection of newly displaced populations and those affected by natural hazards from life-threatening elements. Transitional objective: Improve the living conditions of people in need in stabilized settlements (with a strong focus on ending humanitarian dependency through sustainable approaches). Durable Solutions objective: Facilitate access to durable solutions for displaced populations through local integration. Community participation and ownership are underlying themes for the three year CAP which are embedded in all cluster activities. THE SEARCH FOR DURABLE SOLUTIONS IN SOMALIA The guiding principle on Internal Displacement stipulates in Principle nr 6 that displacement shall last no longer than required by the circumstances 1. A durable solution is achieved when IDPs no longer have any specific assistance and protection needs that are linked to their displacement and can enjoy their human rights without discrimination on account of their displacement 2. It can be achieved through: Reintegration at the place of origin (return) Local integration in areas where internally displaced persons take refuge (local integration) Integration in another part of the country (settlement elsewhere in the country) The primary responsibility to provide durable solutions for IDPs needs to be assumed by the national authorities. It is most crucial that all stakeholders should respect the individual right of each IDP to make an informed and voluntary choice for his/her durable solution. Humanitarian and development actors both have a role to play in supporting durable solutions from the beginning of the process. 1 UNOCHA Guiding Principles on Internal Displacement 2 IASC Framework on Durable Solutions for Internally Displaced Persons SOMALIA 1
Although the overall security situation has improved since the beginning of 2013, it will be important to determine to what extent a durable solution can be achieved in Somalia. Of the eight criteria set forward in the IASC, four of them remain problematic in achieving final durable solutions in the Somalia context: access to livelihoods; restoration of Housing Land and Property; participation in public affairs; and access to effective remedies/justice. With the absence of development actors in major parts of Somalia, the humanitarian actors will fill in this space to ensure a swift transition towards resilience. Resilience could be defined as follows: The capacity of a system, community or society potentially exposed to hazards to adapt, by resisting or changing in order to reach or maintain an acceptable level of functioning and structure. This is determined by the degree to which the social system is capable of organizing itself to increase its capacity for learning from past disasters for better future protection and to improve risk reduction measures. CARE INTERNATIONAL Resilience is the ability of individuals, communities, organisations or countries exposed to disasters, crises and underlying vulnerabilities to anticipate, reduce the impact of, cope with, and recover from the effects of adversity without compromising their long term prospects INTERNATIONAL FEDERATION OF THE RED CROSS AND RED CRESCENT. SUSTAINABLE SHELTER SOLUTIONS FOR THE SOMALIA CONTEXT The Shelter Cluster is stepping away from care and maintenance towards durable solutions. Although the overall security situation has improved since the beginning of 2013, it will be important to determine to what extent a durable solution can be achieved in Somalia. Of the eight criteria set forward in the IASC, four of them remain problematic in achieving final durable solutions in the Somalia context: access to livelihoods; restoration of Housing Land and Property; participation in public affairs; and access to effective remedies/justice. In this times of change, the humanitarian actors will work to bridge the gap with the development actors. In the Somalia context, the level of Shelter interventions will vary depending on the demographic situation of the household, which is often linked to their livelihood. The needs to accomplish durable solutions in rural and urban settings will vary. Investments in basic services should be the main focus for rural settings to improve the physical access of the agro-pastoralists to infrastructures (like markets, schools and health centres) which will make their solution sustainable. As basic services are already available urban contexts (local integration), there will be a stronger focus on the provision of adequate housing and improved protection at household level, as the base of livelihood is strongly linked to the physical space where the households reside. It will be impossible to accomplish all the criteria 3 in achieving durable solutions for the long term displaced populations in Somalia mainly due to problems related to land tenure, IDP legal rights status and low funding level. The Shelter Cluster will therefore focus on sustainable shelter solutions to ensure that communities are more resilient to future shocks. The dimensions of sustainability are environmental, social, economic, human and political 4. 3 IASC Framework on Durable Solutions for Internally Displaced Persons: access to livelihoods; restoration of HLP ; participation in public affairs; and access to effective remedies/justice 4 Defining disaster resilience (a DFID approach): Resilience-enhancing activities can be usefully classified using the assets pentagon from the sustainable livelihoods framework social, human, physical, financial, and natural. SOMALIA 2
The concept of Transitional Shelter fits well within the focus of resilience and sustainability. Transitional shelter is an incremental process, which supports the shelter of families affected by conflicts and disasters, as they seek to maintain alternative options for their recovery. Recent literature tends to put more emphasis on the requirement that the shelter offers at least one, but preferably all of the following options: upgradeable, reusable, resalable or recyclable. 5 Transitional shelter should be designed to physically complement and contribute to permanent reconstruction. It is important to bear in mind that transitional shelter is a short-term intervention with a long-term impact on the recovery process 6. In the Somalia context, transitional shelter designs can support both the search for durable solutions like local integration with an emphasis on upgradeability and recyclability, as well as the search for resilience building in a protracted crisis with an emphasis on re-usability and re-saleability. Sustainable shelter approaches need to be addressed as a holistic package and needs a strong integrated approach with all other sectors (WASH, education, health, etc.). The following activities need to be incorporated in each action plan: Security of Land Tenure Livelihoods strategy Spatial integration of the settlement (including social and economic spaces) and integration of infrastructure services Culturally adapted Shelter and Settlement design, including protection concerns LIVELIHOODS OWNERSHIP LAND TENURE As this approach is wider than the Shelter Clusters roles and responsibilities, advocacy for the integrated and holistic package will be an integral part of Shelter Responses. The table above reflects the priorities for Shelter. 5 Transitional Shelter Guidelines, Shelter Centre, 2012 6 Transitional Shelter: 8 designs, IFRC, 2011: If transitional shelters are well designed, the materials form the transitional shelter can be reused for housing reconstruction and development. SOMALIA 3
SHELTER CLUSTER PRIORITIES 2013-2015 As the Shelter Cluster will not be able to be responsible for all task related to more sustainable programming, the following three topics will be highlighted throughout their programmes: A. HOUSING, LAND AND PROPERTY Most land in Somalia is privately owned. Dominant clans control land and are often hesitant or unwilling to sell land to outsiders or members of other clans. Lack of access to land and insecurity of tenure are major obstacles to durable solutions and represent a root problem that needs to be addressed in order to affect change. In urban areas of Somalia, evictions are common and likely to increase as the security situation stabilizes, urbanization continues and foreign and domestic investment increases. Rural-Urban migration and growing urbanisation add their own complexity to the situation, as these are global phenomena in developing countries that need to be taken into account. In the Somalia context, land tenure remains a determining factor to shelter options and approaches. There remains a lack of common approach to achieve security of tenure among the Shelter Cluster members. There is also a lack of agreement on the different thresholds of security of tenure for the various shelter types, creating confusion and in some cases, obstacles to achieving durable solutions. access to secure land and security of tenure remain key to achieving durable solutions. The current early recovery context in Somalia has created a momentum to address HLP issues in a systematic manner in order to increase the probability of achieving durable solutions. Knowledge and a common approach on housing, land and property issues will be invaluable as the situation stabilizes further and property owners. The Shelter Cluster has included one outcome indicator related to land tenure in the CAP: Nr of households with improved land tenure. B. OWNER DRIVEN APPROACHES AND COMMUNITY PARTICIPATION Whether we call them owner-driven, community-based or assisted self-help projects, there is evidence of growing interest in the use of participatory approaches for postdisaster recovery and reconstruction in both urban and rural areas 1. In an owner driven approach, the prioritization of needs and the decision-making are in the hands of the affected families, giving them ownership of their project. Owner driven does not imply that the affected family should provide construction labour, but it requires that they manage the reconstruction with technical assistance. Owner Driven projects are defined by three fundamental requirements: 1. Participatory process of decision-making, 2. Adequate technical support and 3. Adequate financial assistance How the beneficiaries or communities participate, the extent of the technical support provided and the amount and distribution mechanism of the financial assistance should be determined based on detailed field assessments including assessments of the capacity of families and communities to manage the process. In the Somalia context, contractor-driven approaches have been the preferred labour assistance method due to difficult access, clan-based tensions, political support, availability of skilled labour and existing capacity. Since the beginning of 2011 in Somalia, there has been a step-by-step approach to increase the inclusion of the beneficiaries in all parts of the process, from the project set-up until the construction itself and the handover. SOMALIA 4
The Shelter Cluster will continue to push towards owner decision making processes where the shelters can be built by the beneficiaries themselves, when sufficient skills are available and disaster risk reduction measures are understood and integrated into traditional building techniques. Self-help labour is the most participatory labour type, but also implies a stronger follow-up in monitoring, more focus on capacity building and the need for flexibility. Cash-Transfer Programmes (CTP) are growing in popularity and can be used when market structures are existing, functional and reliant. The Shelter Cluster will provide mainstreaming sessions on CTP during 2014. Participatory approaches should also be used for decision making on settlement planning, infrastructure services and community layouts with a strong focus on Disaster Risk Reduction measures, on protection and provision of dignified living space 7. C. INTEGRATED PROGRAMMING As this approach is wider than the Shelter Clusters roles and responsibilities, advocacy for the integrated and holistic package will be an integral part of Shelter Responses. The table above reflects the priorities for Shelter. DESIGNING SHELTER Shelter designs should be adapted to each location, response and project. The shelter design should reflect the needs, local culture, vulnerability and capacities of the affected community and the resources available. 8 A design must balance many factors: life-span, size/shape, privacy issues, cultural appropriateness, ventilation and thermal comfort, environment, cost, availability of resources Community participation in the process of Shelter Design is crucial to ensure socio cultural awareness. Customs and traditions, cultural habits and other activities of daily life should be reflected in the design. Additional support should be provided to the most vulnerable people to ensure accessibility of the shelter to all users. The main aim of the Shelter Design is to minimise risk and to ensure shelter safety 9. The design phase is a useful platform for communicating and incorporating disaster risk reduction (DRR) techniques. Designing shelters in response to the local climate increases the performance of the building in keeping the occupants comfortable. Local construction techniques and the availability of materials, will be another crucial factor in taking a decision in the design. In most parts of the world, local construction techniques and the use of local materials have changed significantly during the last century, with the introduction of materials such as corrugated galvanised sheeting. In general, shelter design should try and mirror as much as possible the local construction techniques and materials. Improvements to local techniques can be made if risk reduction measures are required. In the Somalia context, land tenure remains a determining factor to deciding the level of durability. Since the beginning of 2011, there has been a strong push through the Shelter Cluster to diversify the different shelter solutions and methodologies. 7 Participatory Approach for Safe Shelter Awareness (PASSA) is a participatory method of disaster risk reduction (DRR) related to shelter safety, IFRC, 2011 8 Transtional Shelters: eight designs, IFRC, 2011 9 Shelter Safety Handbook, IFRC, 2011 SOMALIA 5
WHERE EMERGENCY ENDS AND WHERE DURABLE SOLUTIONS CAN START Transitional shelter should be designed to physically complement and contribute to permanent reconstruction. It is important to bear in mind that transitional shelter is a short-term intervention with a long-term impact on the recovery process. In the Somalia context, transitional shelter designs can support both the search for durable solutions like local integration with an emphasis on upgradeability and recyclability, as well as the search for resilience building in a protracted crisis with an emphasis on re-usability and re-saleability. The Shelter Cluster is developing a decision making tool, to inform a common strategy on what kind of approaches are most suited to ensure sustainability of the shelter interventions. It will provide a guide to the level of community participation, the support methods used and the level of assistance provided (emergency/transitional/permanent). Specifically for the Somalia operation, the following considerations are to be taken into account: Urban, Rural and Border regions: The needs to accomplish durable solutions in rural and urban settings will vary. Shelter interventions in rural parts of the country, will have a stronger focus on community infrastructure and improving access, while shelter approaches in urban centres will take the household dimension into perspective. Border regions will need to be looked at separately as mass shelter operations in these areas will have a pullfactor and will negatively affect the returnees programs. Accessibility: to be able to provide durable or even sustainable shelter solutions, it will be crucial to have physical access to the beneficiaries (balancing out cost versus impact). Target Groups: the Shelter Cluster deals with different target populations: protracted IDPs (more than 5-10 years), newly displaced persons and host community/urban poor. All populations will be dealt with differently. Intention: Different Shelter approaches should be looked at depending on the intention of the households: local integration, return, relocation to another part of the country and undecided 10. In some cases (ex Mogadishu), the authorities have a strategy to relocate all the IDPs outside town. Land tenure: the level of land tenure will help take decisions on the level of shelter intervention. Market Analysis: (emergency) market mapping and analysis needs to be undertaken to understand the capacity of the local markets to be able to decide what kind of material methods (local/international sourcing and prefabrication) and support methods (cash, vouchers, market interventions, loans,etc.) will be appropriate. Willingness of the community involvement in the construction process: the beneficiaries should make their own choice to what level they want to be involved in the process. This will help define what shelter approach to be considered. Availability of funds: if sufficient funds are available to assist the whole community with durable solutions as a holistic package, the decision can be taken to consider permanent shelter. 10 In some cases (ex Mogadishu), the authorities have a strategy to relocate all the IDPs outside town. The holistic strategy in this document, should also be reflected in relocation strategies. SOMALIA 6