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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)

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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

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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

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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.

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Figure 2

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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.

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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.

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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

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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.

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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.

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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.

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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

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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.

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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 10

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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. Hypar

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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 13

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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.

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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

Tech Guidance www.haiyansheltercluster.org 1

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 specifications1.

1 This document is based on the technical strategy from the Pakistan shelter cluster



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 [email protected].

1.1 PRELIMINARY STRATEGY OVERVIEW FOR SHELTER AND NFIS This Shelter strategy runs in two parallel phases:

• EMERGENCY RESPONSE – started 8th Nov estimated to continue to end of Feb 2014

• SUPPORTING SELF RECOVERY – started 8th 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 SHELTER 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 RESPONSE

Until February 2014

SUPPORTING SELF RECOVERY

Immediate start Planning to June 2014

Highest priority

• Tarpaulins X

• Fixings / rope X X

• Tent* X

• Shelter Repair kits (for partial and significant damage)

• Tool Kits • Community clean up kits

X

• Reclaimed and local construction materials X X

• Blankets / Bedding X

Lower priority

• Kitchen sets • solar torches / chargers /

radios X



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 USE 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



2 Shelter Interventions

2.1 EMERGENCY 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_plastic_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)

Materials distribution

Tarpaulins, 190g/m2± 5%, with reinforcement band - 1 per 5-people household,

1,500 to 3,000 Fixings – rope*, nails, etc.

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 SUPPORT 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)

Material distribution or Cash/Voucher

CGI sheets – 26ga (16 x 8ft sheets for 18m2 covered living space)

5,000 to 10,000 Timber - certified timber, or salvaged, various sizes

Coco lumber - certified, various size, or salvaged

Cladding: ply wood, woven bamboo mats



Fixings – rope, nails, etc. (see details below)

Sealant* – Vulca seal or equivalent, can 1 pint (min. 500ml)

Tools Timber saw (450mm), claw hammer, shovel, tin snip, pliers, etc. (see tools specification below)

Technical Assistance Training, technical guidance, monitoring Additional 10-20% 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

Quantities to be provided by agencies. Final content should reflect agency’s need assessment.

Rope, Polypropylene, black, diam. 8-12mm, twisted 30m

Nail (Umbrella), for roof sheets, galvanised, 75mm + watertight washer 2-4kg

Nail, iron, for wood, 75mm or 100mm 1-2 kg

Nail, iron, for wood, 40mm 1-2 kg

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)

Material distribution or Cash/Voucher

Roof thatching – made from nipa palm or coconut leaves (est. 480 pieces for 18m2 covered living space)

5,000 to 10,000

Bamboo – various size, or locally harvested and treated, (3 bundles of 2” x 8’)

Coconut wood - certified, various size, or salvaged - for use as footings.

Cladding: woven bamboo mats (amakan), 2x1.5m

Fixings: rope, natural - coconut husk; nails, 1.5”, 2kg; wire etc.

Tools Timber saw, claw hammer, shovel, pliers, bolo, etc. (see tools specification below)

Technical Assistance

Training, technical guidance, monitoring Additional 10-20% 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



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 COMMUNITY 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 HOUSEHOLD KIT

Household Bedding

Blankets 2

Ground mats 1-2



Other Household Items

Solar lights 1

Radio 1

3.2 KITCHEN 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 HOUSEHOLD CLEAN UP KIT

Material Specification

Bucket Heavy duty rubber, masonry type

Floor Cloth Cotton, 50 X 50cm

Broom Straw brush, 30cm width block, without handle - local manufacture 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



4 Specifications

4.1 TARPAULIN / PLASTIC SHEETING2 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. Lighter versions (180g/m2± 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



4.2 TENTS 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. Tents should provide a minimum of 16m2 usable covered area. Double fly is recommended as it provides: o A ventilated air gap for enhanced thermal performance o Improved water resistance Fabric should meet the specifications outlined in the IFRC Emergency items catalogue3. More on specification is available from “”A guide to the use and logistics of family tents in humanitarian relief4.

KEY COMPONENTS OF A TENT A tent

must be made of waterproof canvas, and must have a strong supporting frame. It must

provide a minimum of 16m2 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



4.3 ROPE SPECIFICATION5

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.



4.4 CORRUGATED IRON SPECIFICATION6 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



4.5 BLANKETS / MATS

There are three main types of blankets and quilts all are acceptable if they conform to the standards below:

Woven blankets: Made of wool, new fibres, or recycled fibres from second hand clothes;

Fleece blankets: Made of pure polyester. They are as efficient as woollen blankets, with better ability to dry, and feel more comfortable when in contact with the skin; and

Quilts: Made of synthetic material or fibres covered by a synthetic sheet (commonly polypropylene).

Quilts are very different from woven blankets and not appropriate for all cultures. Quilts are recommended for cold countries only.

Technical recommendations

Thermal resistance: Where applicable, a minimum TOG value of 2.5 is suggested. Note that local suppliers may not be able to provide TOG values.

Weight and volume: Suitable blankets should have a minimum weight of 300-850 g/m2. This corresponds to a weight 1-2 kg each.

Size: 2m x 1.5m is the minimum blanket size. Polar fleeces and quilts can be larger.

Organisations may deliver children’s blankets, intending that their small size will ensure that only children use them.

Thickness: When specifying thickness, refer to the blanket in a packed, compressed state.

Strength: The strength of a blanket is a useful indicator of its quality and durability. A tensile strength of 25 kg in both warp and weft is a suggested as a minimum.

Colour: Blankets are brown grey or dark coloured for practical reasons.

Finishing: Blankets should have either ribbon borders or have whipped stitching on the edges to prevent them from fraying.

Shrinkage: Most blankets have shrinkage tests included in their specifications. Generally, the maximum shrinkage after hand washing at 40°C is less than 8%.

Fungus and moths: Blankets should be free from fungus damp, mould or moths. Any treatments should be nontoxic and with hypo-allergenic products. (WHOPES, 2006)

Packing: Blankets should be clean, compressed into bales and marked for easy transportation and stock management. If blankets are being airlifted they should be compressed and put into packages before transport.

Technical note: thermal resistance

Thermal resistance is commonly quoted as a TOG value; a measurement of how well a material resists heat flow. The higher the TOG rating, the better the insulation.

Thermal resistance can also be quoted as an R-value, measured in (Km²)/W. The relationship between R-value and TOG value is: R-value = 10 x TOG value.

A heat transfer coefficient, known as a U-Value, may also be quoted, and is measured in W/(m²K). U-Value is related to the other parameters as follows: U-Value = 1/(R-Value) =1/(10 x TOG value). TOG values can only be accurately tested in a laboratory.



4.6 TIMBER AND COCO LUMBER The best and most readily available source of structural material following an emergency is to re-use salvaged timber. Social mobilisation of the community, connecting Debris removal programs to emergency shelter is the most effective way to effective utilise this resource.

Timber: fallen tree study to be made in rural areas to see if there are opportunities to make productive use of fallen timber. If coconut trees are exist in the locality – cluster to coordinate and negotiate with National Coconut authority for the free use of fallen timber for reconstruction within the province.

A general timber availability study to be carried out and strategy to be discussed.

For reference: www.humanitariantimber.org

For technical reference regarding the use of coco lumber: ProTrade, Coconut Palm Stem Processing Technical Handbook, https://www.sheltercluster.org/References/Documents/ProTrade_Coconut-Palm-Processing.pdf

4.7 BAMBOO AND NIPA PALM

Lighter construction houses of lower cost are mostly built using bamboo and ‘nipa palm’ thatching. In some regions bamboo is locally found in and around communities and is used for both framing structure as well as woven into sheets for cladding. Bamboo and nipa roof thatching are therefore material that some household can harvest and make by themselves, though most will be buying from the local markets.

Treatment: for a sustainable use of bamboo and nipa, it is important that these materials are treated prior to use. Common treatments include smoking nipa or coconut leaves prior to use, and soaking of bamboo in running water to remove sap.

For procurement of bamboo and nipa, please see Humanitarian Bamboo Guidelines, https://www.sheltercluster.org/References/Documents/Humanitarian%20bamboo%20guidelines.pdf



5 Case Studies and Key References

Further reference on use of

Emergency Shelter:

Plastic sheeting: http://www.plastic-sheeting.org/ Tents: http://www.plastic-sheeting.org/ref/tents.pdf

Use of Cash and voucher:

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

Timber & Coco lumber:

Timber: www.humanitariantimber.org

Coco lumber: ProTrade, Coconut Palm Stem Processing Technical Handbook, https://www.sheltercluster.org/References/Documents/ProTrade_Coconut-Palm-Processing.pdf

Case Studies:

Recent structural analyses of transitional shelters built in the Philippines

http://sheltercasestudies.org/files/tshelter-8designs/10designs2013/2013-Postdisaster-shelter-10designs-Philippines-1.pdf

and

http://sheltercasestudies.org/files/tshelter-8designs/10designs2013/2013-Postdisaster-shelter-10designs-Philippines-2.pdf

Case studies of shelter project from the Philippines:

Typhoon Megi 2010: http://sheltercasestudies.org/shelterprojects2010/A26-Philippines-2010.pdf

Typhoon Washi 2011: http://sheltercasestudies.org/shelterprojects2011-2012/A25-A27-Philippines-2011.pdf



Annex 1: Dos and Don’ts Of Distribution

DATED: 27/11/2013

The Shelter Cluster coordination team presents these Dos and Don’ts to assist agencies with their distributions.

1. Make contact with local community leaders – Organisations should identify correct community leaders and discuss distribution needs and plans and to ask for initial information on affected families. 2. Verify needs – Organisations should then verify this information during field visits, discussion with other relevant stakeholders, community consultations, and other means. Organisations should ensure that the needs of the most vulnerable have been included in these plans, that both men and women of all age group are consulted through focal group discussions, and that age and sex-disaggregated data is included in assessment7. 3. Agree distribution plans – Where possible, organisations should agree distribution plans with local community leaders, ensuring that this plan is communicated as widely as possible with the whole community. Communities should understand how both needs and targeted beneficiaries have been identified. Ensure groups with specific vulnerabilities (unaccompanied children, female-headed households, elderly, disabled, LGBTI, etc.) receive appropriate support in accessing aid for constructing shelters. 4. Ensure targeted beneficiaries receive distributed items – Where possible, organisations should distribute directly to targeted beneficiaries in order to avoid misdirection of distributed items. 5. Communicate plans with Shelter Cluster – Organisations should always report planned and completed distributions to the Shelter Cluster coordination team8. When reporting, provide clear information on • location • numbers of households targeted • dates • type of assistance (including items to be distributed) Wherever possible, use the reporting template from the cluster9.

6. Participate in the Shelter Cluster – organisations should participate in the Shelter Cluster, to improve coordination, to reduce gaps and overlaps in the response. 7. Coordinate on transitional shelter activities – Organisations should coordinate with other Shelter Cluster members on transitional shelter activities, and specifically with other agencies operating (or coordinating) in the same Commune.

Please forward you distribution advice to [email protected] for inclusion in future revisions of this document.

7 See Shelter Cluster’s “Guidance on mainstreaming gender and diversity in shelter programmes” for more information



Annex 2: Technology based prefabricated shelters for family shelter

TECHNICAL GUIDANCE NOTE

DATED: 13/11/2013

Operations in the Philippines are currently based on very severe logistics constraints. Access to many construction materials is limited, and there are significant unmet needs as a result. As a result operations are focusing in the short term on the delivery of plastic sheeting, fixings, poles and household items to support self help. In the medium term, operations will focus on traditional materials that can be re-used by affected families in the longer term as they move to more durable housing solutions (transitional shelter). For reconstruction, focus will be on durable housing solutions. More on the shelter strategy, anticipated shelter costs, and non food item prioritisation can be found at:

http://www.sheltercluster.org

In terms of emergency response, the general wisdom is against the use of prefabricated shelters using high technology materials for family shelter. Instead programmes should encourage the use of appropriate materials that can be re-used or easily maintained. Key documents such as Sphere (www.sphereproject.org), "UNHCR Handbook for Emergencies (2007)", "Shelter After Disaster" (UNDRO 1982), and "Transitional Settlement and Reconstruction after Natural Disaster" (UN-OCHA, 2009) (both available from www.shelterlibrary.org) all advise against technologically based prefabricated solutions for family use.

It is not currently anticipated that this is a practice that will be reversed for this response.



Annex 3: Notes on Hurricane Straps Taken from: “IFRC, Post disaster shelter: 10 designs, 2013“

Proper connections between the components of a shelter are crucial to its performance during hurricanes and earthquakes. One of the most important connections is between the roof and the supporting walls or columns. Without strong connections, the roof could blow away resulting complete failure of the shelter.

“Hurricane strap” or “coiled strap” is a simple and cost effective product to connect the roof of a wood framed shelter. A hurricane strap is a galvanized steel strap which can be cut to length with tin snips, and has regularly spaced holes to nail or screw into wood framing. Its effectiveness as a hold-down is dependent on exactly how the strap is used to make the connection.

Factors that are important to the effectiveness of a hold-down include:

• NEVER rely on nails or screws loaded in withdrawal (where the loads of a structure are effectively pulling them out of the wood). Instead rely on fasteners loaded in shear (where the loads go across them).

• Strap should be tight to the framing with no slack, and should not allow upward movement of the roof, however small.

• Hold-downs are most effective when wrapped over the top of the rafter or truss. • Providing a strap on only one side framing should be avoided when possible, instead provide

a strap on either side. • Only bend a strap once at any location. Repeated working weakens the steel. • When creating a hold-down detail, remember the hold-down is intended to resist upward

loads.

As an alternative, there are many pre-fabricated hold-downs available from various manufacturers. These products have the advantage of being relatively easy to install for unskilled labour, and to inspect for proper installation.

Some disadvantages are that these products are intended for standard dressed dimension lumber, which may not be available, and that they need to supply many different types according to the connection conditions.

For full specifications see: See IFRC/ICRC Emergency Items Catalogue.

www.procurement.ifrc.org/catalogue

(EHDWSTRAHS16: Hurricane strap, galvanised, Perforated, 32mm)



Good

Marginal

Bad



Annex 4: Information, Education and Communication Material

1. Plastic Sheet fixings guide, available in Tagalong (shown) and English.

2. Illustrated tent sites guidelines

3. Tips to Building Back Safer are available in English, Tagalog (as shown below), Waray (Samar-Leyte), Bisaya (Cebuano) and Hiligaynon (Ilonggo).



Annex 5: Additional Guidance from the regional hubs

Region 8’s Supporting Self-Recovery Shelter Repair Package Guidance: https://www.sheltercluster.org/Asia/Philippines/Typhoon%20Haiyan%202013/Documents/TG_Annex5_RegionVIII_ShelterRepairPack_v5.pdf

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Technical Guidelines - Annex 5

Version 5.0 : 15 December 2013 Typhoon Haiyan – Region 8

Supporting Self Recovery Shelter Repair Package Guidance

Introduction: The following is compliant with the full Typhoon Haiyan Shelter Cluster technical guidelines at 09 December 2013 available here: https://www.sheltercluster.org/Asia/Philippines/Typhoon%20Haiyan%202013/Pages/default.aspx Many agencies aim to procure items for their recovery shelter interventions while undertaking their emergency shelter interventions. Given the number of families affected many agencies are looking to provide a supporting self recovery shelter repair package for those with Damaged Homes which may include more durable materials (such as CGI sheet), tools, cash or vouchers and technical assistance. The guidelines are set out here in terms of Material and Technical assistances. Assistance Guideline: Shelter repair kit Value (PHP) (note1)

Materials distribution or Cash/voucher

CGI sheets – 26 gauge SWG - corresponding to 0.457mm minimum thickness (note 2)

5,000 to 10,000

Plywood -18mm thick Timber - certified timber, various sizes Coconut wood - certified timber, various size Fixings – rope, nails, etc. (see fixings table above) Tools – saw, claw hammer, shovel, pliers, etc (see specifications from community tool kit in technical guidelines)

Technical Assitance Training, technical guidance, monitoring Additional 10-20% on top of material support value

Only the minimum gauge of CGI sheet and the value envelope has been defined by the shelter cluster. Notes: *1 The envelope of assistance has been defined to align with DSWDs proposed package of assistance which is still being agreed at national level, but at 10 Dec 2013 is believed to offer 10,000 PHP equivalent (in-kind material, tool and potentially some cash support) for those with partially damaged houses and 30,000 PHP equivalent for those with totally damaged houses. The materials in kind and/or cash grant would be received after a process of assessment and verification which may last a number of months. It is believed at the 10 Dec 2013 that other than for emergency shelter assistance, if a household receives shelter recovery assistance from any organisation the government will, where possible, “top-up” the assistance to the same level as the DSWD assistance for partially or totally damaged houses. It is therefore important that agencies register the exact household and value of assistance given and pass this information to the DSWD at the municple level. They should also hand to the householder a certificate indicating the value of shelter assistance received.

https://www.sheltercluster.org/Asia/Philippines/Typhoon%20Haiyan%202013/Pages/default.aspx

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*2 CGI 26ga SWG corresponds to 0.457mm or 0.018 Inches as detailed in BS 3737:1964, it is important to measure with calipers if ordering in the Philippines because suppliers may refer to sheet as 26 gauge and this is found to not be the case. It has been agreed by the shelter cluster in Tacloban hub that since it is difficult to procure true 26ga sheet, that for distribution programmes that will complete by the 30th of January 2014 in Leyte, Eastern Samar, and Samar, that sheet which corresponds to 0.400mm (but no less) will temporarily be accepted as compliant by the cluster. Nevertheless, 0.457mm sheet should be the aim for all agencies during this period. This has been agreed to not delay house repair programmes. Further Guidance - Hardware: As stated the shelter cluster is only defining the minimum thickness of CGI sheet and the value envelope of the package. However, the following as been provided as an example to aid agency programme planning and procurement. Prices are an estimate from response to Bohol and may have increased.

Note Description/Item Unit Unit Price [PHP]

Qty / household

Cost/ household

[PHP]

Unit Price [USD]

Cost/ household

[USD]

Canvas Bag for Packing all but CGI. Piece 60 1 60 1.43 1.43

3 CGI Sheet, 8ft, 26 gauge, galvanized steel, painted. Refer to attached further specification guidance.

Piece 220 16 3520 5.24 83.81

4

Umbrella nails, for roofing sheets, twisted, galvanised, 75mm, including watertight washer. Shank diameter 3.4 to 3.8mm, head diameter >18mm. Refer to attached further specification guidance.

Kg 90 4 360 2.14 8.57

5

Nail, iron, for wood, 70mm to 100mm, shank diameter 3.8 to 5mm, head diameter 7.8 to 10mm. Refer to attached further specification guidance.

Kg 65 4 260 1.55 6.19

5

Nail, iron, for wood, length 40mm to 75mm, shank diameter 3 to 3.8mm, head diameter 6.8 to 7.6mm. Refer to attached further specification guidance.

Kg 65 2 130 1.55 3.10

5 Nail, iron, for wood, 40mm, shank diameter 2.2 to 2.8mm, head diameter >8mm. Refer to attached further specification guidance.

Kg 65 1 65 1.55 1.55

Tie wire, galvanised, diameter 2.0 mm, roll of 25m

Roll 80 1 80 1.90 1.90

Metal strapping, galvanized, 5cm wide, 16 gauge, Simpson Strong-Tie CS16 or approved equivalent. Roll of 10m.

Roll 1050 1 1050 25.00 25.00

Elastomere sealing material, Vulca seal or approved equivalent, can of 500mL (or 1pint)

piece 105.42 1 105.42 2.51 2.51

KIT TOTAL 5630.42

PHP 131.55

USD Other Items (no less important than those above):

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- Cash and Vouchers - in addition for purchase of other or additional materials specific to the house and/or hiring of skilled labour.

- Plain galvanised steel sheet 26 guage (used for the ridge capping)

- Lumber - “Good” Lumber, and Coco lumber

- Marine plywood

- Cement bags (for foundations and to allow repair of latrine)

- Tools per household (claw hammer, 450mm long timber saw, tin snips, nail punch),needs to be assessed according to target area

- Some community tools: spades, hoes, shovels, digging bar, crowbar, measuring tape, wheel barrow

Notes: *3 16no. 8ft CGI sheets per household has been suggested based on coverage of a 18m2 house. However, agencies are proposing to assess house by house, and therefore this represents a suggested average for procurement purposes only. *4 It is important to increase the number of umbrella nails with washers to reduce roof failure in future events. Based on provision of purlins at 2ft spacing maximum and increased fixings (1 per corrugation) at edges, gives a need for 35 nails per sheet. 35 umbrella nails approximately weighs 250grams, hence 4kg. *5 Ring shank nails should be considered if available. The number of nails to be provided to each household is high because significantly more bracing is to be encouraged. Further guidance on specifications:

CORRUGATED GALVANISED IRON SHEETS

Dimensions: Length 8ft, 26 gauge, width 2ft 9inch (usable 2ft 6 inch)

Metric : length 2.44m, thickness 0.457mm, width 0.92m (usable 0.84m)

Tensile strength: 300N/mm2

Coating : Coating: hot dip galvanization with minimum 120g/m² aluminium-zinc on each side

that is 240g/m² total coating weight.

Hardness 85 HRB minimum

NAILS

For all types of nails:

Iron nails, made of carbon steel, cold processed, not heat treated except for galvanisation. Hot dip galvanised at 300g/m2 +/-10%, or uncoated, as per contract. Minimum tensile strength 650N/mm2

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With flat smooth circular heads, plain shanks and diamond points. Minimum head diameter to be the double of the shank diameter.

In addition, for roof nails only:

Long pitch square twisted or spiral rolled shank. Spring-head type, with sealed umbrella type steel washer + rubber washer. Hot dip galvanised at 300g/m2 +/-10%. Rubber washer minimum 22mm diameter.

Significant thanks must go to Save the Children and Catholic Relief Services for use of the above lists and draft specifications. Note that the above specifications and BoQ are for guidelines only, agencies should also carry out their own assessments and market evaluation. Guideline for Technical Assistance: Inclusion of technical assitance in the supporting self-recovery package is essential to maximise the effectiveness of this package. As a minimum guideline, agencies should budget to spend a minimum of 10% - 20% on top of their hardware budget (material costs for delivered in-country) in software. This software should include several of the following:

• Orientation sessions with communities

• Information, Education and Communication (IEC) material, with posters and leaflets showing people suggestions on how to build back safer. The following page has IEC material relating to building back safer.


• Training for beneficiaries in building back safer (e.g. bracing, good practice on roof fixing etc.)

• Training for carpenters and masons

• Provision of skilled labour (carpenters and masons) who have knowledge of disaster risk reduction techniques.

• Technical supervision (offering advice on shelter disaster risk reduction to beneficiaries)

• Regular monitoring to ensure resources are being used to maximum efficiency and to appropriately reduce vulnerability to future disasters

• Feedback mechanisms are incorporated in programmes.

Urban vs. Rural package differences: Discussion was had within the Tacloban based TWIG regarding this issue and it was agreed that in urban areas, the target groups that agencies where most likely to still work with previously had timber truss roof structures with CGI sheets or some sort of profiled metal roofing and therefore even if the house had masonry walls the package described in this document was still relevent. Nevertheless, agencies may want to consider supporting families with structural assessments to be followed by retrofitting recommendations and additional material support.


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Specific WASH Guidance: It is understood that approximately 70%1 of households had access to improved latrines in region 8. Initial assessments from cluster partners had shown that although most affected households have partially or totally damaged toilets2, in most cases the substructure remain intact. These may need cleaning, and minor repair to the concrete slab surround for example. Agencies will need to assess on a house-by-house basis what WASH support will be needed. Some agencies are proposing an additional lump sum payment to assist households repair their toilets. In general support for rebuilding the toilets should be part of a Shelter Programme or an Intergrated Recovery Programme being proposed by an agency. Where agencies do not have capacity to assist households with repair of toilets they should highlight this with the WASH Cluster and partner where appropriate. For further information on this annex please contact [email protected]

1 JMP figures will provide more precise data 2 Sometimes known as comfort rooms (CRs)

mailto:[email protected]

Purpose: To highlight important building connections and illustrate the proper

use of various types of connection hardware.

HOME BUILDER’S GUIDE TO COASTAL CONSTRUCTION

4.3: USE OF CONNECTORS AND BRACKETS

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HOME BUILDER’S GUIDE TO COASTAL CONSTRUCTION Technical Fact Sheet No. 4.3

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Use of Connectors and Brackets

Instead, nail connectorto outside face of both top platemembers, or nail to stud and top

plate members

Improper connection to only one member of top plate can lead to failure under uplift loads

Fill all nail holes with speci�ed fasteners, unless reduced nailing is speci�ed by design

The length and diameter of the fasteners must beas speci�ed by the manufacturer or engineer;some speci�cations require non-standard nails

Material to which bracketis attached must haveadequate thickness formaximum bracket capacity

Offset bracket vertically to achieve minimum speci�ed end spacing for bolts

Bolt, screw, or nail diameterand quantity as speci�ed

Proper bracket connection. Proper strap connection.

Key Issuesn In high-wind regions, special hardware is used for most

framing connections. Toe-nailing is not an acceptable method for resisting uplift loads in high-wind regions.

n Hardware must be installed according to the manufacturer’s or engineer’s speci!cations.

n The correct number of the speci!ed fasteners (length and diameter) must be used with connection hardware.

n Avoid cross-grain tension in connections.

n Metal hardware must be adequately protected from corrosion (see NFIP Technical Bulletin 8-96).

n Connections must provide a continuous load path (see Fact Sheet No. 4.1).

Proper fasteners must be used with connection hardware.

Avoid load path failure at roof-to-wall connections.

Never rely on toe-nailing for uplift connections in high-wind areas

Roof-to-Wall Connections are made with metal rafter ties or straps, sometimes referred to as hurricane straps. These connectors

replace toe-nailing and provide added uplift resistance. The strap should

extend above the centerline of the raf-

ter or, for the strongest connection, completely over the rafter.

Truss-to-Truss and Rafter-to-Truss Con-nections are made with metal hangers speci!ed by the truss designer.

Truss Member Connections are made with metal plates that connect the individu-al parts of a truss to form a structural component. Every joint must have a connector plate on each face sized and positioned according to engineered designs. Plates must be fully embedded, and gaps at joints should be mini-mized (see ANSI/TPI-1 95).

Important

Coastal environments are conducive to rapid corrosion of metals. All connection hard-ware must be properly protected. Galvanized coatings on readily available hardware may not be adequate or in compliance with local coastal building codes. Special-ordered hard-ware, re-galvanizing, !eld-applied coatings, or stainless steel may be required.

Connection Hardware Applications



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Header Connections are made with nailed straps. They trans-fer accumulated uplift loads from the header to the jack studs. The straps should extend the full depth of the header.

Joist-to-Beam Connections are made with ties similar to roof-to-wall connections or with wood blocking.

Stud-to-Stud Connec-tions are made with nailed metal straps, or brackets with threaded

rods, that connect one story to the next.

Stud-to-Top-Plate Connec-tions are made with metal straps, nailed to the side and/or face of the stud and

the top of the top plate. These connections replace toe-nailing or

end-nailing and provide added uplift resistance. The strap should wrap over the top plate.

Important

These are examples of typical connectors used in residential construction. For the required continuous load path to be maintained, all connectors used must be adequate to resist the loads expected to act on them. Stronger connectors may be necessary in areas subject to high winds or earthquakes.




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Additional ResourcesAmerican National Standards Institute. National Design Standard for Metal Plate Connected Timber Trusses, ANSI/TPI-1 95.

Wall-to-Foundation Connections are

made with metal brackets or bolts that connect wall studs and/or sill plates to founda-tion walls, beams,

or band joists.

Continuous Rod Connections are made with a system of threaded rods, couplings, and brackets. These connections can be used to tie the roof and walls to band joists and sup-port beams.

Pile Connections are made with special brackets, spiked grids, bolts, or other types of connectors that attach the main "oor beams to the piles. It is extremely impor-tant to follow design speci!cations for this con-nection (see Fact Sheet No. 3.3 for further details).



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Developed in association with the National Association of Home Builders Research Center