The magnitude of the destruction and damages in Shelter sector is catastrophic keeping in view the reports generated by Pakistan Shelter Cluster. The reports reveal that in 23 Districts of Sindh 1,596,787 houses have been destroyed or damaged with the coverage of 27% with the standardized package of one tent or two tarpaulins to one household. To meet the unmet needs of the flood affected communities projected coverage of emergency shelter in pipeline has been reported 32% however current situation of remaining targets in emergency shelter becomes 73% in these winterization season (As per report generated on 5^th January Pakistan Shelter cluster).

The situation worsens further with decision of the NDMA and PDMA the Government authorities with the responsibilities to manage the disaster responses and direct humanitarian partners about the schemes of things. The decision of the national and provincial disaster management authorities to stop the relief services and suggested the humanitarian partners to incorporate the relief funds in early recovery framework. Consequently relief services comprising unconditional food support and emergency relief shelter were stopped in nine districts in the month of November out of twelve districts. Three districts namely Sanghar, Mirpurkhas and Umerkot relief services were also stopped in 31^st of December whereas plan was to extend the relief services till March 2012.

District Badin has asked PDMA to extend the relief services keeping in view the severity of the situation but yet no decision has been announced in this regard. The relief phase varies subject to the magnitude of the damages to basic structures and timely response to the relief needs of the affected communities. Three months are suggested the standardized period for the relief phase but subject to the comprehensive planning and meaningful response where as reports suggest that proposed intervention by WFP for unconditional food support to uncovered population have not met the targets besides delay in initiation of the early recovery initiatives.

The Logic and intention of the NDMA to stop relief services are not clear in black and white but verbally in meetings it has been remarked by government authorities that Pakistan card will cover the gap and sustainable development would be prioritized. Yet early recovery contingency planning is in queue and undeclared at District and provincial level and frameworks ,modules, response strategy and implementation for ensuring sustainable infrastructures will take time to address the unmet needs of the vulnerable flood affected community. Situation becomes rather critical when we find that yet 4Ws for early recovery initiatives for permanent shelter is not prepared and announced.

In addition to delayed response from Government for start of early recovery initiatives the current situation in shelter sector is alarming in highly affected eight Districts namely Badin, Umerkot, Sanghar, Mirpurkhas. TandoAllahyar, Tando Muhammad Khan,Shaheed Benazirabad and Tharparkar. As per shelter cluster report till 6^th January 1,358,157 houses fully or partially destroyed and damaged in above mentioned districts whereas coverage has been made yet 29% in emergency shelter.

Early recovery framework is supposed to build transitional and permanent shelter for the flood affected communities and would activate the skilled and unskilled labor markets and by boosting up the supply chain and market relating to building industries.

Peoples’ accountability commission on floods and Participatory Development Initiatives Advocacy secretariat got feedback during the cluster meetings and consultations in various districts that process for rebuilding the shelter is yet under assessment process where as status of approved projects for ERF relating to the shelter are not final. It has been analyzed in the report that delay is inevitable because situation is yet in planning phase. Mostly relief services proposals were submitted in flash appeal by humanitarian partners for relief services and now filtration is going on and those proposals would be approved which match the early recovery frameworks.

This report also records and shows concerns on the inundation situation ad budget requirement in Shelter and NIFs sector. As per report generated by provided by SUPARCO through satellite imaginary dated on 1^st January 2012 yet 2041 (SK) land is inundated majorly in Sanghar District 648 (SK) 483 (SK) in Badin and 200 (SK) in Mirpurkhas. With regard to the unmet funding in Shelter and NFIs sector 46% appeal has been funded. In report the apprehension has been shown that coming post emergency projects will take two months to translate into activities causing sufferings for the flood affected peoples.

Keeping in view the bad situation after the announcement of the Government to roll back the relief phase it has been recommended in weekly situation analyses report on shelter by PACF that peoples are found in spontaneous camps in winter situation without food and emergency shelter support therefore early recovery initiatives particularly in shelter sector should be started immediately to minimize vulnerabilities of the flood affected communities. In addition to it, activities for Cash for work and food for work would curtail the miserable situation by supporting community to be self reliant and self sustained if started within present times.

It has also been observed and recommended in SARF report that inundation situation in many areas have derailed agriculture and shelter sector to come on the feet and district administration should expedite the process of water recession so that process of recovery and rehabilitation can be neutralized. Furthermore participation of the community through cash for work in water recession and early recovery process can be made to avert the concept of the charity form the flood affected community.

This Report

Peoples Accountability Commission on Floods (PACF) a volunteer network of local community activists representing eight flood affected districts along with participation of Karachi and Hyderabad with facilitation of advocacy and research secretariat based at Karachi. This report contains the analysis of shelter status along with early recovery framework response by Government, especially in ERF phase in majorly affected districts namely Umerkot, Shaheed Benazirabad, Badin, TM Khan, Tharparkar, Mirpurkhas, Sanghar and Tando Allahyar. Currently PACF is going to release the 8^th Civil Society Flood Situation Report (CSFSR) on the issue “Emergency Shelter Status and Early Recovery Framework Response”. The report contains analysis of field reports generated by our volunteer network (PACF) district level consultations, field visits to tents cities, FGDs in UCs, meetings with UN OCHA Focal points and secondary data generated from shelter updates, appeals, MSDNA and TSSU reports. The PACF has already issued seven reports on very practical themes which have been covered by Print Media with encouraging response.

Methodology

Primary Source

1. Consultations in Badin and TAY

2. Field Visits to tents cities in TAY and Mithi

3. FGDs in UC Bukera in TAY

4. Meetings with UN OCHA Focal points

Secondary Source

1. Pakistan Shelter cluster updates

2. Flash Appeal Initial three months plan

3. Multi sector damages needs assessment 2011

4. Temporary settlement support Unit phase4 report

Background of the Situation

As per census report in 1998, there were 5.022 million households in Sindh, with average household size at 6.0 persons and occupancy at 3.3 persons per room. The overall housing stock comprised 52 percent kutcha houses mostly without proper water supply, 48 percent semi-pucca houses mostly without planned sanitation or sewerage system. The majority of rural housing is kutcha ( mud ), with minimal water supply and sanitation or drainage services. Almost half of the urban population is living in slums and kutchi abadis, with inadequate housing and living conditions. (Quoted in Moon Soon Contingency Planning 2011 Government of Sindh)

Rapid assessments carried out by PDMA/ OCHA/ WFP, UNHCR (protection) and IOM (Temporary Settlement Monitoring) indicate that severe rain and floods of the 2011 monsoon season damaged or destroyed at least 1,200,000 homes in southern and mid Sindh. As a result, hundreds of thousands became homeless and displaced, and in many cases lost personal belongings such as clothing, bedding, and personal hygiene articles and got sheltering in more than 3,500 dispersed or collective temporary settlements. Reported in Flash Appeal Initial 3 months plan by IOM.

Emergency relief phase

The strategy is based on assisting all of those whose homes have been seriously damaged or destroyed or otherwise cannot access emergency shelter. Within the emergency phase, the shelter/NFI cluster were to ensure that sufficient cost effective emergency shelters and NFI’s would be provided to those whose homes have been seriously damaged or destroyed by the monsoon or cannot otherwise access shelter Protection from the rain and sun as well as providing privacy and dignity with sufficient space in the community shelters were the key objectives.

The shelter cluster were to ensure, through its Temporary Settlements Support Unit (TSSU), that the needs of people in the more than 3,500 temporary settlements would be met, by monitoring and coordinating their movements and mobilizing shelter and health, wash and food support. The unit will also support the government, upon request, in the management and planning of temporary settlements.

Cluster Members

Agency for Technical Cooperation and Development (ACTED), Care International, Concern Worldwide Catholic Organization for Relief & Development Aid (Cordaid), Catholic Relief Services (CRS), Church World Service (CWS), Foundation for Rural Development, FRD, Human Development Foundation (HDF), Help in need Pakistan, Handicap International (HI), International Federation of Red Cross and Red Crescent Societies (IFRC), International Organization for Migration (IOM), Johanniter International, National Disaster Management Authority (NDMA), National Rural Support Programme (NRSP), Norwegian Refugee Council (NRC), Pakistan Red Crescent, Qatar Charity, Red R UK, Salik Development Foundation, Save the Children, Strengthening Participatory Organization (SPO), Society for sustainable Development, Sustainable Peace and Development Organization, Just Peace International, UN-Habitat, Office of the UN High Commissioner for Refugees (UNHCR), World Vision International Committee of the Red Cross (ICRC) (observer)

Status of Damages and Response

As per updates on 6^th January 2012 by Pakistan Flood Shelter Cluster about Emergency Shelter and NFIs coverage and gaps underlying situations has been mentioned.

Provinces	Number of AFFECTED districts*	Houses Destroyed or Damaged*	Emergency Shelter Distributed
Provinces	Number of AFFECTED districts*	Houses Destroyed or Damaged*	Tents	Tarpaulins	Shelters Provided (One tent or two Tarpaulins)	Coverage (Shelters Provided / Need)
Sindh	23	1,596,787	339,060	279,630	438,875	27%

The above mentioned data confirms the 27% coverage in 23 Districts of the Sindh against the government announced case load more than fifteen lacks destroyed and damaged houses. This is the huge caseload demanding the comprehensive strategy. As per census report in one house 6 members live and if we multiply the given figure of 1,596,787 with 6 persons than it becomes huge figure affecting the 9,580,722 populations.

In current updates Pakistan flood emergency shelter cluster has planned 32% coverage for the remaining 1,117,912 affected households but early recovery framework has started and relief phase has ended up and yet priorities for transitional shelter or permanent shelter have not been finalized.

As per humanitarian funding updates on 3^rd January 2012 it has been reported Shelter/NFIs received 48% funding portion of which have been used on 27%. Now Government has suggested incorporating the relief budget on early recovery developments.

Less of funding indicates the gaps in planning and unmet needs of the flood affected communities in providing temporary relief to the displaced population. Whereas it is presumed that relief package in any sector try to cover the 100% target and fact is this that we have not covered our relief support to more than 70% in emergency shelter for protection from sun, rain, privacy and dignity and we are going to initiate transitional and permanent shelter without mobilizing human and financial resources.

Government Response

The available data of Government of Sindh Rehabilitation Department on PDMA website with regard to the emergency shelter support to 22 districts contains the figure till 26^th December 2011. Underlying table shows the government response as under

S#	Donor	Households served
1	PDMA	103,952
3	Relief Department	44,650
4	NDMA	111,241
Total Households served		259,843

The flash appeal was submitted in 17^th September 2011 estimating the funds for the Emergency shelter/NFIs 66,452,014 USD whereas 32,065,805 were gained in funding. Yet no revised appeal has been made to initiate the early recovery interventions.

Current Situation:

Relief phase has been stopped by the Government on 31^st December 2011 and early recovery framework has officially started from January 2012. Surveys confirm conducted by NDMA, UNOCHA and other humanitarian partners that shelter is the most top priority of flood affected people after food whereas peoples displaced have been forced to leave the camps due to the stoppage of the relief services. Currently those peoples who have lost completely their housed and without assets to rebuild their shelters are vulnerable and helpless due to the non-intervention in shelter sector. Situation has further worsened when people are in winter season and living in shadows.

NDMA and UN has surveyed in Multi sector damages needs assessment and found that 57% of the communities were flooded in Thatta, Badin and Tando Mohammad Khan districts and 46% in MirpuKhas, Tharparkar, Umerkot and Sanghar districts.

In a situation where flood has passed more than three months and community suffering inundation2041 (SK), stoppage of unconditional food support, denial of income generation initiatives and absence of effective planning and response from government side, the flood affected are in dire need of the shelter to protect their privacy and dignity.

During the emergency phase the cluster were also to ensure that an early recovery strategy will be developed based on best practices from the 2010 response. This flash appeal did not include the costs associated with post-emergency shelter nor winterization requirements.

S#	District	Houses Completely Destroyed	Houses Partially Damage	Total Damage / Destroyed houses	Tents	Tarpaulins	HH Served	Gap	Coverage / Damage
1	T.M Khan	25,353	47,582	72,935	207,780	11,243	26402	- 46,533	36
2	Badin	210407	172155	382562	48753	56337	76922	-305,640	20
3	Tharparkar	81460	96896	178356	20720	11500	26540	-151,816	15
4	Mirpur Khas	87483	30627	118110	38954	44530	61219	- 56,891	52
5	Tando Allahyar	6031	64132	70163	14082	13622	20893	- 49,270	30
6	Umarkot	28655	93448	122103	20885	24390	33083	- 89,020	27
7	Sanghar	88722	125206	213928	45343	59972	75329	-138,599	35
8	S. Banazir Abad	100000	100000	200000	70084	18175	79172	-120,828	40
Total		628,111	730,046	1,358,157	466,601	239,769	399,560	-958,597	29

The cluster strategy is divided in an emergency and early recovery phase, although these phases were interconnected and overlapping. Additional specific shelter sector assessments were required to define a realistic and most cost effective response to support post-emergency shelter The Flash appeal was limited to the life saving phase and did not include post-emergency shelter nor winterization requirements.

Currently no any kind of the modalities or strategies have been finalized on the ground to initiate the transitional or permanent shelter between the Government and Humanitarian partners. Yet Revised Flash appeal has not been prepared to submit the humanitarian donor agencies whereas revised appeal can take at least two months to translate the proposals in implementing projects. As per protocol revised appeal has to be submitted within the four weeks on the request.

When Flood advocacy secretariat arranged meetings with the coordination structures of the Government and UN OCHA regarding the shelter in context of the early recovery framework it was shared by the coordination mechanisms at District and Provincial level that yet situation is uncertain regarding the funding and revised appeal. It was shared by the District Offices Coordinator UN OCHA based at Karachi that Government does not own the figure of 4.8 million of affected people based on the survey of MSNA and owns the figure of 9 million creating the situation of frustration for humanitarian partners to launch the sustainable situation.

Currently coordination structures are not well defined as OCHA is bound to remain till the relief phase and when ER phase starts it is the responsibility of UNDP to coordinate the efforts. There is a challenge to incorporate the flash appeal based on the relief services into early recovery frameworks. The nature of the relief projects and early recovery projects differ very much financially and technically. Relief works can cover 100% population where as in early recovery frameworks vulnerable are the priority.

As per PDMA report 99% camps have been evacuated whereas spontaneous camps are there in which flood affected peoples are looking for rebuilding their shelter. People have lost their infrastructure and income source to face their financial needs and yet no intervention in transitional or permanent shelter is visible in the field.

In response to flash appeal based on Pakistan Rapid Response Plan for Floods 2011 overall response has met the 46% of the funding and 48% in shelter. In the initial plan of 3 month of emergency shelter post emergency and westernization items were not included in the plan.

Due to the top priority of the shelter revised appeal has to be made where as it was to be made before the stoppage of the relief phase. Yet Districts contingencies plans have not come on the grounds to meet the shelter needs of the community.

Humanitarian partners, Community Activists have great concern on the week and non comprehensive planning from Government side to respond properly to the losses and damages of great magnitude.

Field Observations& Findings

The consultations were conducted in Districts Badin, Tando Allahyar and Mirpurkhas by Peoples Accountability Commission on floods (PACF) with collaboration of Participatory Development Initiatives (PDI) to get the feedback through charter of demands on the issues of the flood affected peoples form the concerned stakeholder as District Administrations, NGOs, Media and Community Activists.

District Level Consultation on the Issues of Flood Affected Communities at Tando Allahyar

It was observed that civil societies as a whole showed despair and distrust on the performance of District Administrations and political representatives. District Revenue departments were categorically targeted in context of favoritism and corruption during agriculture inputs distribution. The flood affected participants of from severely flooded areas in consultation workshop also complained the less interventions and minimum coverage of areas by NGOs and Humanitarian partners. People demanded the right of life for the most vulnerable. It was complained that meaningful access to service for the small growers, minorities, unskilled labor, farmers and chronic poor was the nightmare to them.

With regard to rehabilitation of their temporary and permanent shelters and it was told that neither government nor any NGO yet started building shelter. In District Tando Allahyar it was shared by District Focal person UN OCHA from District Tando Allahyar and TMK some organizations are planning for village model system. He there are lot of villages fully damaged need to be rehabilitated fully with certain model and yet things are in queue. Funding is not encouraging and over all targets in relief services are under achieved. We have almost reached 46 persons out of 100 if services are not derailed to duplication. Development is the mandate of government and UNO is here to support government through meaningful coordination with humanitarian partners.

There was an Ibrahim colony yet inundated nearby the city of Tando allahyar and it was mentioned that District Government bought ten pumping machines but five can be used. It was estimated by an old aged Mr. Imdad khan farmer from UC Buker that maximum 20 days are enough to collapse our kacha houses and we have suffered two months water situation. Now where we can live? Can government tell us we go to live?

After the food, shelter was highlighted the most pressing need of the community. During the consultation the feedback with regard to the shelter it was found that nowhere in the field building of the transitional or permanent shelter has been initiated where as flood affected peoples are rather more vulnerable in winter situation.

Common man is surprised that why the government, international community, philanthropists, and humanitarian donor agencies have ignored them to live the life with dignity. Peoples are frustrated with the repeated commitments by the government to respond their human and unmet basic needs after the flood.

It was remarked by a social activist Mr. Akbar Maganhar living in city Tando allahyar here is considerable amount of underprivileged people do not have labor, shelter, food and any asset to live. Who is responsible for the support of flood affected people? He suggested starting shelter so that man can have labor to earn. He suspected government has any plan to start humanitarian agencies should request government to start recovery initiatives on behalf of community.

It was also known in the consultations that shelter building is not ordinary challenge due to the utter destruction in sanitations, drinking water facilities and hygiene facilities.

Shelter less women in TAY

Communities in spontaneous Camps are threatened by the local lands lords to evacuate the land and are in dire need of assistance to rebuild their damaged kacha houses. A tents city found near the Tando Allah Yar was visited by the PACF members and it was known that once this tent city comprised more than five hundreds families but now living almost one hundreds families were being forcefully made to evacuate the land.

In UC Began Jarwar and Bukera sharif peoples were in tents and their land was under water. People were complaining that neither food assistance nor shelter is being provided to them in this cold season whereas their income source is invisible.

Currently Shelter is top of the dire needs after food as recorded charter of demands (PACFs)

In the meeting with Coordination Districts UN OCHA it was shared that organization are leaving and it is apprehended that it would continue keeping in view the response and situation handling of administration and government. He apprehended funds are more required for shelter and it is expensive venture but very meaningful to support everything. He said UNO is here to render coordination, technical moral support to Government and yet situation is uncertain.

Recommendations

v It is mandatory that government should start on the priority basis rebuilding the fully damaged houses and expedite the process of service delivery.

v The modalities as village model system should be developed keeping in view the environment, social and demographical implications of the shelter projects.

v Community Dialogue and shelter committees should be developed to ensure the participation of the community for the selection of most vulnerable as widow household heads, Disables and asset less poor.

v Winterization items should be distributed as the relief services for those who are shelter less.

v Government should review its partnership and ensure meaningful and effective coordination with Humanitarian partners for coming on ground to support the flood affected communities.

v Flood response should be devolved to districts level for the speed of work and provincial level interference must be minimized.

v Basic Coordination structures between Government and UN should be standardized for effective information sharing and service delivery.

v Efforts should be made to cover the unmet needs of the peoples particularly in emergency shelter until early recovery initiatives start.

v Government should learn from the experiences of 2010 floods for the well calculated interventions in response to rain flood damages.

v Protection perspective should be there to ensure the human rights monitoring process

v Most vulnerable suffer badly and must be prioritized as old aged, child, pregnant and lactating women and special are suffering in winter season.

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Peoples Accountability Commission on Floods (PACF)

8th CSFSR

Executive Summary