mid-term shelter programme€¦ · adequate shelter is necessary to provide security and personal...

MID-TERM SHELTER PROGRAMME:BANGLADESH ROHINGYA REFUGEE CRISIS RESPONSE

MID-TERM SHELTER PROGRAMMEMID-TERM SHELTER PROGRAMME

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TABLE OF CONTENTS

OVERVIEW OF SHELTER NEEDS - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 6RESPONSE - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 7 CAMP 20 EXTENSION MAP - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 8 MTS ‘AT A GLANCE’ - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 9 PROGRAMME SUMMARY - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 10 DESIGN AND CONSTRUCTION - - - - - - - - - - - - - - - - - - - - - - - - - - - - 13 EXTERIOR - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 16 FOUNDATION - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 19 INTERIOR . - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 20 ENVIRONMENTAL CONSIDERATIONS I- - - - - - - - - - - - - - - - - - - - - - - - - 21 DISASTER RISK REDUCTION J - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 22 PROTECTION - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 24IMPACT J.- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 26 COMMUNITY INVOLVEMENT .. - - - - - - - - - - - - - - - - - - - - - - - - - - - - 29 OPPORTUNITY TO IMPROVE .- - - - - - - - - - - - - - - - - - - - - - - - - - - - - 30 CONCLUSION - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 31

PROGRAMME CONTEXT

On 25 August 2017, a mass exodus of Rohingya refugees traveled from northern Rakhine State, Myanmar, to Cox’s Bazar, Bangladesh. Over 712,000 individuals arrived during the first few months of the crisis, joining the hundreds of thousands of individuals who had fled previously - bringing the total Rohingya population to more than 930,000 and the total population in need in Cox’s Bazar to 1.2 million.

Over two years later, the majority of Rohingya remain in a state of protracted displacement, and are almost entirely dependent on aid from the international community and support from the Government of Bangladesh. Despite progress made, the Rohingya remain in an extremely precarious situation - the root causes of their plight in Myanmar have not been properly addressed and their future is uncertain.

The crisis created a historic humanitarian need for shelter, as a city was rapidly formed where there had been little before. Beyond its impact on immediate survival, adequate shelter is necessary to provide security and personal safety, protect vulnerable individuals from the shocks of natural hazards and enhance resistance to ill health and disease. Through innovative shelter and non-food item programming, IOM seeks to address beneficiary needs and enhance resilience with sustainable solutions.


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CFP Community Focal Point

CSU Community Shelter Upgrade

DRR Disaster Risk Reduction

EVI Extremely Vulnerable Individuals

FGD Focus Group Discussion

GESI Gender Equality and Social Inclusion

HHSSN Household with Shelter Special Needs

IEC Information Education Communication

INGO International Non-Governmental Organization

IOM International Organization for Migration

KBE Kutupalong-Balukhali Expansion

MHPSS Mental Health and Psycho-Social Support

MTS Mid-term Shelter

NFI Non-Food Item

RRRC Refugee Relief and Repatriation Commissioner

SOP Standard Operating Procedure

TOT Training of Trainers

TSA Transitional Shelter Assistance

USK Upgrade Shelter Kit

ACRONYMS


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Spanning almost 1,500 hectares and housing well over half a million individuals, Kutupalong-Balukhali Expansion (KBE) Site is one of the world’s largest refugee camps. With an average living space of 20 square meters per person across the camp and just 10 square meters per person in many areas - it is also one of the world’s most congested. Due to the camp’s rapid formation during the 2017 influx, it suffers from poor site planning, low quality infrastructure and high risks to both landslides and floods. Because of the congestion, many health and protection risks like the spread of illness and disease or gender-based violence are exacerbated, especially for disproportionately affected beneficiaries like women and children.

In early 2018, the Government of Bangladesh gave IOM permission to expand the KBE camp westward into a limited area in order to create new accommodation for families living in the most congested and high-risk areas. This new area was designated as Camp 20 Extension. In line with Phase 3 of the Shelter Sector’s Rohingya Response Strategy, IOM’s Midterm Shelter Programme seeks to utilize Camp 20 Extension, provided by the Bangladeshi Government, to improve the well-being of beneficiaries while reducing congestion within the camp in parallel.

RESPONSE

OVERVIEW OF SHELTER NEEDS


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The Mid-term Shelter programme is designed to enhance the strength, durability and habitability of beneficiary shelters while alleviating congestion in KBE camp. In consultation with the beneficiary community in Camp 20 Extension, IOM has designed, prototyped and piloted new and larger shelters built with durable materials and stronger construction details to be utilized by relocated beneficiaries from the most congested or hazard-prone areas of the rest of the camp.

Operating in parallel to IOM’s Transitional Shelter Assistance (TSA) Programme implemented across KBE to upgrade existing shelters, the MTS programme is exclusively for areas of new development. Plots are arranged in coordination with Site Management and Site Development, secured from landslide risks and offering a shelter size that is in line with the Sphere-recommended minimum space of 3.5 m2 per person, excluding cooking space, bathing area and sanitation facilities.

As of December 2019, IOM has received approval to construct 539 MTS shelters in Camp 20 Extension. Once at full capacity, this equates to over 2,500 beneficiaries who are directly impacted by the MTS programme, while countless others in the eastern area of KBE benefit from reduced congestion.

MTS ‘AT A GLANCE’

SPHERE RECOMMENDED STANDARD OF 3.5 M2 LIVING SPACE IN EACH MID-TERM SHELTER

3.5m2

USD 430,000INCOME ADDED TO ROHINGYA CARPENTER EMPLOYEES PER YEAR THROUGH MTS CASH FOR WORK

BAMBOO CRAFTING UNIT ESTABLISHED TO PROVIDE SKILLS DEVELOPMENT OPPORTUNITIES IN SUPPORT OF MTS PROGRAMME

CAMP 20 EXT. WITHIN KBE


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PROJECT OBJECTIVE - The MTS Programme aims to provide robust midterm shelters in line with DRR principles and the Sphere Standard of covered living space per person to beneficiaries from congested and hazard-prone areas.

The MTS programme is designed to provide beneficiaries with shelters that exceed the lifespan of emergency and transitional structures currently in widespread use across KBE, spontaneously built by unskilled labour and in congested and unsafe areas. IOM’s MTS includes more resistant and durable elements, such as precast concrete footings, treated bamboo and metal rod connections . Each MTS is built by skilled Rohingya carpenters, and are located in areas safe from landslides and flooding by Site Development works. As of December 2019, IOM’s design is actively used in Camp 20 Extension - including a standard shelter for the average family size of five (maximum), and a mezzanine shelter option for larger families of six and above which offers more space in height within the same plot.

IOM’s Site Planning Unit developed a site layout for the valley areas, designed in line with sector-agreed standards and ensuring land allocation for WASH and community facilities. After the plan was approved, construction began in June of 2019. It is the responsibility of the Shelter sector to validate each design prepared by various agencies - developed by guidance and lessons learned from past

crises - ensuring the contextualization of each structure to suit the appropriate climate, culture and available materials in Cox’s Bazar. While there is flexibility in the design of midterm shelters, the incorporation of Disaster Risk Reduction (DRR) and other cross-cutting elements like protection mainstreaming standards are paramount to the effectiveness and sustainability of the programme results. DRR components in the design of each shelter, from roofing and drainage to bracing and anchorage techniques, are utilized to mitigate the risks of flooding, or shelter collapse due to strong winds and other natural hazards. Structural-

RELIEVING CONGESTION

components with increased resilience, like chemically treated bamboo from IOM’s Bamboo Treatment Facility, are used to increase the life of material used – both enhancing programme result sustainability and reducing bamboo deforestation in the region. Through the MTS programme’s life cycle, beneficiaries will be provided with a more habitable and durable alternative to the shelters that have existed over the first two years of the Rohingya crisis – reducing the constant need for maintenance and upgrade. Upon the MTS programme’s successful completion, structure handover will be conducted to Site Management for the identification and relocation of beneficiaries in congested areas to their new MTS accommodation in Camp 20 Extension.

FUNDING REQUIREMENT:$1,000/ STANDARD SHELTER$1,500/ MEZZANINE SHELTER

NUMBER OF SHELTERS APPROVED AS OF DEC-19:

539

PROGRAMME SUMMARY


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Maahi is a 19 year-old household leader looking after her mother and daughter in Camp 20 Extension. Recently relocated into a Mid-term Shelter from neighboring India, she noted that “the new shelter is bigger and stronger than what we were living in before.” Maahi also pointed out that the ventilation allows her family to cook inside and helps with air circulation.

DRAFTINGBased on identified needs and the minimum standards established by the sector, IOM prepared a technical midterm shelter design which included an optional mezzanine level for larger families within its footprint of 225 square feet. Large families, those consisting of five or more members, make up 20% of the total camp population.

Draft designs were prepared and tested with the initial construction of 3 prototypes, allowing focus group discussions to occur between representatives of the Rohingya community and IOM representatives from the Shelter and Site Management units. This was done in order to ensure considerations are made for a wide range of beneficiaries differing in age, gender and family size. Feedback was considered in the final design, which was then approved in May 2019 by the Shelter Sector and by the RRRC who approved the construction of the first 539 units in Camp 20 Extension.

DESIGN AND CONSTRUCTION


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SITE PLANNING• Plots are secured from landslide and flood-prone areas by previous Site Development work.• Plot sizes are larger: MTS achieves a covered living space of 3.5 m/person as per Sphere Standards.• Shelters are constructed in rows of 2, 4, and 6 to ensure firebreak distance between shelters.• Shelters have adequate access to WASH facilities.

DRR PRINCIPLES IN CONSTRUCTION• Reinforced concrete footings in every column, designed to separate the bamboo structure from the

ground and improve the resistance of the shelter against uplift from wind.• Diagonal treated bamboo bracing is applied in all the corner bays in both directions, enhancing the

structural stability and increasing resistance to wind.• Use of 12mm steel rod connections to improve joint strength.• Hipped roof design to mitigate risks posed by strong wind.• Thick, double bamboo woven mats are used as closure for walls and roofs, improving the resistance

against flying objects during strong storms or even cyclones.• Cement wall plastering in the cooking area to mitigate risks of fire hazard.

PROTECTION ASPECTS• Rows of shelters include no more than 6 units.• Partitions between shelters are built with double bamboo woven mats, ensuring adequate privacy.• An interior partition in all shelters is included with a lockable door, enhancing privacy within the

interior space of the shelter.• All windows are lockable from the inside. Chain and lock are provided for each door.• All exterior walls include a top strip of open woven bamboo (garenja) to ensure cross ventilation.• Larger families with the mezzanine shelter design have access to a sleeping storage space above the

private room with a ladder leading to the area (in addition to amenities provided in the standard design).

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TSDESIGN BREAKDOWN


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EXTERIORThe exterior of the structure consists of a hipped and bamboo woven roof, tarpaulin coverage, and muli bamboo mat walls to mitigate the risks of heavy rains, flooding and strong winds. A minimum space of six feet is ensured between each row of shelters to reduce congestion and fire hazards, while proper ventilation measures are implemented to improve air flow in each structure.


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FOUNDATIONThe foundation of each shelter is raised at least six inches from ground level and is built on concrete footings buried two and a half feet under the floor of the structure. Raising the shelter and ensuring quality soil compaction reduces running flood water into the building and increases floor strength. Proper drainage channels are dug parallel to shelters to assist with additional runoff.

The load bearing structure itself is crafted primarily using steel rod dowels and chemically treated bamboo from IOM’s Bamboo Treatment Facility (BTF). The chemically treated load bearing Borak bamboo has an expected life cycle that is at least three times as long as untreated material due to its resistance to pests and rot.


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INTERIORFor families of five and under, a standard shelter includes a main living space and a private living space connected by a lockable door. A plaster wall is included in the main area to assist with safe indoor cooking. Larger families with the mezzanine shelter design have access to a sleeping storage mezzanine space above the private room with a ladder leading to the area (in addition to the amenities provided in the standard design).

MTS designs are continually innovated and improved-upon by IOM and the sector in order to meet Sphere standards and improve the livelihood of Rohingya beneficiaries. Through this programme, IOM aims to contribute toward the beneficiaries’ existing right to an adequate standard of living, including shelter and the requirements for good health as defined by international law.

As part of a greater global effort to ensure that material demand does not lead to the degradation of environmental resources, IOM has strict measures in place to limit the impact of its shelter activities and the mass-producing and chemically treatment of its primary building material (Borak bamboo). Recognizing that the humanitarian community’s bamboo supply is limited, strengthening and increasing the lifespan of material use in project activities itself contributes to the minimization of overall bamboo usage. By treating load-bearing materials in use, IOM improves resource efficiency, reduces waste and mainstreams sustainable practices.

Treating bamboo can increase material service life radically, to the extent that there is no distinguishable life limit when bamboo is well treated and used in a well-protected manner.

ENVIRONMENTAL CONSIDERATIONS

During the treatment process, material is soaked in a mixture of borax and boric acid that are dissolved in water. Borates are extremely fine, dissolving easily and dissipating throughout the cellular structure of the poles. The chemical solution, which is toxic to common bamboo pests but is relatively harmless to humans, is then filtered and reused to ensure an efficient and environmentally friendly process.

Untreated bamboo after almost 1 year of use, exhibiting clear signs of rot and thorough pest infestation.


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The sustainability of MTS programme results principally relies on the proper incorporation of DRR components into shelter design and site planning. Innovations and improvements are constantly sought by MTS staff, in order to better prepare beneficiaries for harsh natural hazards. Beneficiaries who are selected to relocate to IOM’s midterm shelters will receive a basic community based DRR briefing on the design rationale behind specific components that make up the structure, in order to assist with the handover and provide an understanding of the vital importance of maintenance.

• Plinth protection to prevent erosion and water logging.• Tarpaulin roof tightly fastened to reduce the collection of water.• Effective communal drainage system.

• Minimum space between each shelter to prevent the spread of fires.• Work closely with SM focal points and CiCs to ensure water/sand

buckets are readily available.• Cooking space inside shelter provided with cement plastering to

protect the bamboo wall.

• Hipped roof at a slope to minimize uplift.• Shelter is secured to the ground using strong anchorage

techniques.• Shelters are tied down using 8mm rope.• Appropriate bracing is used at all levels (wall, ceiling and roof).• Strong ties are ensured between all structural elements.

DISASTER RISK REDUCTION


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PROTECTION COMPONENTSAll individuals have the right to live in security, peace and dignity with the confidence of tenure. While shelter plays a survival support role in the initial phases of a crisis, it can also diminish the risk of further exploitation and violence while enhancing the dignity of beneficiaries long after initial crisis shocks. To ensure that protection gaps are diminished during the implementation of the MTS programme, IOM follows an approach based on four sector-approved protection principles.

ALL DEMOGRAPHICS SHOULD BE ENGAGEDThrough active participation from a wide range of community members, the programme aims to identify gaps in programming with the help of beneficiaries while boosting a sense of self-ownership and self-reliance.

SAFETY AND SECURITY ARE THE HIGHEST PRIORITIES Shelter design should include components to address exterior risks, such as landslides, fires and flooding, and internal risks, such as gender-based violence and risk of ill health and disease.

Gender-based violence (GBV) is a prevailing issue across the world in refugee settlements. Case studies show that multiple areas of shelter design and implementation may reduce beneficiary risk to GBV. For example, providing safe cooking areas can reduce beneficiary time spent venturing out to markets or shops for food – reducing the exposure to risks across the camp. Enhanced privacy and has also been linked to the reduction of GBV by providing men and women with individual safe areas.

SHELTER IS A FUNDAMENTAL RIGHTInternational human rights law recognizes the right to an adequate standard of living, including housing or shelter. Rohingya individuals should benefit from protection from the elements and a proper living space with privacy and emotional security.

SHELTER DECISIONS SHOULD BE VOLUNTARY AND WELL-INFORMED Beneficiaries should have access to objective and accurate programme information in order to promote informed shelter decisions, including the right to decline MTS services.


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IMPACT

Abdus Salam, 40, is a newly relocated Rohingya refugee living in one of IOM’s Mezzanine Mid-Term Shelters in Camp 20 Extension. “The shelter is bigger than our old home, and we think it will be stronger during wind and rain.”

Living with his wife and three children, Abdus Salam’s family is utilizing the mezzanine space as a dual-purpose area for both storage and a playroom.


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Rohingya community members are involved at key junctures of the MTS programme from the design phase to implementation completion. Labour is primarily composed of Rohingya beneficiaries from across KBE through cash-for-work programmes, providing hundreds of individuals with a daily working wage. To reduce training costs and provide all beneficiaries in Camp 20 Extension with an opportunity to benefit from the cash-for-work system, IOM utilizes a combination of fixed and rotating labour. Fixed-term staff ensure that project knowledge is preserved and appropriately transferred, while the rotation system (managed by SMSD) safeguards the beneficiaries’ equal opportunity to work without fear of forced payments or recruitment bias.

During the initial design phase, focus group discussions were conducted with a wide variety of Rohingya community members to review shelter prototypes and identify gaps to be filled prior to finalization. Beneficiaries involved in the review process varied in age, gender and family size, and feedback was considered in the final design.

As a result, the midterm shelters are designed to accommodate the needs of families of varying sizes and beneficiaries in differing circumstances. Features are included to address the needs of individuals with disabilities, those who are elderly and child-led/female-led households. In addition, access to MTS is prioritized for those living in flood and landslide-prone areas and with those who possess specific needs.

SKILLS DEVELOPMENTTo extend the impact of Shelter/NFI activities through the MTS Programme, IOM set up a small bamboo crafting unit to provide cash-for-work opportunities to those not directly involved in construction. Trained by senior labour in bamboo weaving, Rohingya workers produce hats, baskets, mats and materials that go on to benefit Shelter programmes in the camp. Predominantly made up of female Rohingya individuals with fewer cash for work options than their male counterparts, bamboo crafting provides a wage and further skills development to a demographic often underutilized.

In addition to the bamboo crafting activities conducted through this programme, IOM supports host communities and Mental Health and Psychosocial Support (MHPSS) activities by providing treated bamboo for the crafting of toys and traditional handicrafts. Artisans from the MHPSS programme are also training women’s groups on how to craft useful household items such as stools.

COMMUNITY INVOLVEMENT


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Challenges to MTS implementation will occur throughout the lifespan of the project, providing IOM with several opportunities to reassess and improve mitigation measures that are currently in place to improve the overall effectiveness of the programme as a whole.

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A) Makeshift camps were built spontaneously, and the initial lack of planning and scarcity of materials contributed to overpopulation and congestion.

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B) Construction coordination was initially challenging, as a wide variety of IOM actors were involved - Site Management, Site Development, Shelter and WASH.

C) Ensuring that proper forecasting is done to meet the needs of a wide variety of family sizes and structures.

A) In early 2018, the Government of Bangladesh gave IOM permission to expand the camp to create new accommodation for families in high risk areas.

B) Regular meetings with designated focal points from each unit to mitigate discrepancies and establish roles and responsibilities.

C) Frequent Focus Group Discussions (FGD) are conducted with beneficiaries and prototype shelters are built for beneficiary review and feedback.

A) After technical consultations and the design of 3 prototypes, the Government of Bangladesh approved the construction of 539 Mid-term Shelters in Camp 20 Extension.

B) Phase 1 of the Camp 20 Extension development (first 261 shelters + WASH facilities + site development works) was completed successfully according to the SOP developed.

C) The proper integration of beneficiary feedback has resulted in appropriate and responsive shelter models that have guided MTS development across Camp 20 Ext.

OPPORTUNITY TO IMPROVE


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Congestion and the lack of adequate living standards remain to be two of the major issues facing Rohingya beneficiaries across KBE. In response, the Midterm Shelter Programme’s contribution to the Rohingya Crisis Humanitarian Response is a unique example of improving shelter standards of direct beneficiaries while alleviating congestion for those adjacent to its activities. As of December 2019, IOM has committed to the construction of 539 midterm shelters in Camp 20 Extension that will directly affect over 2,500 beneficiaries upon use. However, to build upon progress achieved, expand the benefits of midterm shelters to a greater number of beneficiaries and continue relieving congestion in KBE, additional land will need to be granted by the Government of Bangladesh for further development. In this way, the programme is limited by its allocation of space, and intensive advocacy efforts will be required by IOM, partners and donors to further improve upon the success of midterm shelter interventions. With these efforts and the continued support of the Government of Bangladesh and IOM’s donors, the MTS programme will continue to play a major part in the overall humanitarian response.

CONCLUSION

For funding information and all other inquiries, please contact the IOMCox’s Bazar Programme Support Unit at: [email protected]

https://bangladesh.iom.int/Shelter Unit: [email protected]

Programme Support: [email protected]

© 2019 The International Organization for Migration, IOM Cox’s Bazar

Text, Layout and Photography: Nathan Webb / IOM

The names of the beneficiaries have been changed in line with IOM’s data protection principles.

No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, elec-tronic, mechanical, photocopying, recording or otherwise without the prior written permission of the publisher.

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