Meeting Humanitarian Challenges in Urban Areas Draft Assessment and Strategy for the IASC MHCUA TF...

Meeting Meeting Humanitarian Humanitarian

Challenges in Urban Challenges in Urban AreasAreas

Draft Assessment and Draft Assessment and Strategy Strategy

for the IASCfor the IASC

MHCUA TF Meeting/WorkshopMHCUA TF Meeting/WorkshopRome, 07-09 September 2009Rome, 07-09 September 2009

The challenges of rapid The challenges of rapid urbanization and the urbanization and the

potential for potential for humanitarian criseshumanitarian crises

Key findingsKey findings Cities are susceptible to humanitarian crises due to Cities are susceptible to humanitarian crises due to

location, density, and unplanned, ill-managed, location, density, and unplanned, ill-managed, exclusionary processes of urbanisation.exclusionary processes of urbanisation.

Unless issues of urban poverty and slums are Unless issues of urban poverty and slums are addressed effectively, large segments of the urban addressed effectively, large segments of the urban population will remain vulnerable. 1 billion people population will remain vulnerable. 1 billion people currently live in slums worldwide.currently live in slums worldwide.

Within cities, poorer areas and communities suffer Within cities, poorer areas and communities suffer the most. Epidemics and pandemics, urban violence the most. Epidemics and pandemics, urban violence often unfold in poor settlements.often unfold in poor settlements.

The limited ability of the poor to regroup, restart The limited ability of the poor to regroup, restart their lives and livelihoods, prolongs crises and the their lives and livelihoods, prolongs crises and the need for humanitarian assistance.need for humanitarian assistance.

53% of the 3.3 billion live in urban areas of under 53% of the 3.3 billion live in urban areas of under 500,000 residents. But small and medium-sized 500,000 residents. But small and medium-sized cities least equipped to deal with the problems of cities least equipped to deal with the problems of urbanisation, or natural and man-made disasters.urbanisation, or natural and man-made disasters.

Key findingsKey findings …[2]…[2]

At regional, national and local levels, the links At regional, national and local levels, the links between forced migration, rapid urbanization between forced migration, rapid urbanization and humanitarian crises are significant. and humanitarian crises are significant.

Even if the numbers of displaced persons are Even if the numbers of displaced persons are proportionately small, they take cities to a new proportionately small, they take cities to a new tipping point of vulnerability. tipping point of vulnerability.

Yet, cities present both challenges/opportunities. Yet, cities present both challenges/opportunities. MDGs and climate change can be effectively MDGs and climate change can be effectively addressed only if addressed in cities.addressed only if addressed in cities.

Natural disastersNatural disasters, e.g. cyclones, hurricanes, flooding - , e.g. cyclones, hurricanes, flooding - differentially impacting the urban poor who live in the most differentially impacting the urban poor who live in the most hazard prone locationshazard prone locations

Damage caused by Damage caused by earthquakesearthquakes, largely due to governance , largely due to governance failures and the lack of community preparednessfailures and the lack of community preparedness

Health crisesHealth crises and the spread of and the spread of epidemicsepidemics in urban areas, in urban areas, especially those which spread due to overcrowded and especially those which spread due to overcrowded and insanitary living conditions, lack of potable water or poor insanitary living conditions, lack of potable water or poor sanitation sanitation

Related health crises concern Related health crises concern poor nutrition,poor nutrition, food and water food and water insecurities, due to widespread urban poverty and inequity, and insecurities, due to widespread urban poverty and inequity, and inaccessible, unaffordable or inadequate health infrastructure inaccessible, unaffordable or inadequate health infrastructure

Urban violence, civil disorder and conflictUrban violence, civil disorder and conflict caused by the caused by the influx of migrants, the proximity of different population groups, influx of migrants, the proximity of different population groups, intense competition for scarce social resources, and social intense competition for scarce social resources, and social marginalization of large sections of the urban populationmarginalization of large sections of the urban population

Climate changeClimate change threatens to enhance, extend and generally threatens to enhance, extend and generally exacerbate the natural disasters currently being faced by the exacerbate the natural disasters currently being faced by the world. world.

Typology of crises caused or Typology of crises caused or exacerbated by rapid exacerbated by rapid

urbanisation urbanisation

Regional trendsRegional trendsAfricaAfrica Fastest urbanising (annual growth 3.3%); sub-saharan Africa 4.58%.Fastest urbanising (annual growth 3.3%); sub-saharan Africa 4.58%. Current urban population of 349 million set to explode to 1.2 billion by Current urban population of 349 million set to explode to 1.2 billion by

2050.2050. Nearly 85% of Africa’s urban population concentrated in cities of less Nearly 85% of Africa’s urban population concentrated in cities of less

than 5 million inhabitants. Small cities growing at over 4% per annum.than 5 million inhabitants. Small cities growing at over 4% per annum. Displacement induced by a combination of conflict, natural disasters Displacement induced by a combination of conflict, natural disasters

and rural impoverishment seen across sub-Saharan Africa.and rural impoverishment seen across sub-Saharan Africa.AsiaAsia Largest urban population - 1.5 billion, will rise to 3.3 billion by 2050. Largest urban population - 1.5 billion, will rise to 3.3 billion by 2050. Overall growth rate 2.6%, south-eastern Asia 3.82%.Overall growth rate 2.6%, south-eastern Asia 3.82%. Displacement due to natural disasters seen predominantly across Displacement due to natural disasters seen predominantly across

southern and south-eastern Asia. Conflict-related displacement seen in southern and south-eastern Asia. Conflict-related displacement seen in southern/western Asia.southern/western Asia.

Latin America and the Caribbean Latin America and the Caribbean Most urbanised (77% urban). Overall growth rate - 1.7% Most urbanised (77% urban). Overall growth rate - 1.7% Vulnerable to natural disasters (hurricanes, cyclones, flooding, Vulnerable to natural disasters (hurricanes, cyclones, flooding,

earthquakes). earthquakes). High levels of inequality in cities also a trigger for recurrent and high High levels of inequality in cities also a trigger for recurrent and high

levels of urban violence and insecurity.levels of urban violence and insecurity. Although most conflicts in the region have subsided or are dormant, Although most conflicts in the region have subsided or are dormant,

Colombia hosts one of the largest displaced populations in the worldColombia hosts one of the largest displaced populations in the world

Regional trends Regional trends …[2]…[2]North AmericaNorth America Hurricanes and windstorms most recurrent natural Hurricanes and windstorms most recurrent natural

disasters disasters Poorer and most disadvantaged communities bear the Poorer and most disadvantaged communities bear the

brunt of natural disasters (e.g. Katrina) due to their brunt of natural disasters (e.g. Katrina) due to their precarious locations, livelihoods, inability to escape precarious locations, livelihoods, inability to escape prior to the disaster as well as regroup after disasterprior to the disaster as well as regroup after disaster

Technical capacity for early warning/prevention high; Technical capacity for early warning/prevention high; disaster management and recovery capacities relatively disaster management and recovery capacities relatively less effectiveless effective

EuropeEurope Recent natural disasters such as heat waves and Recent natural disasters such as heat waves and

flooding have demonstrated vulnerability of certain flooding have demonstrated vulnerability of certain populations, especially the elderly and those with limited populations, especially the elderly and those with limited means and mobility.means and mobility.

Conflict and displacement issues not yet fully resolved, Conflict and displacement issues not yet fully resolved, e.g. in former Yugoslavia.e.g. in former Yugoslavia.

A preliminary mapping of A preliminary mapping of urban crisis ‘hotspots’urban crisis ‘hotspots’

A few crisis ‘hotspots’ emerge as a result of the A few crisis ‘hotspots’ emerge as a result of the preliminary mapping of regional patterns of urbanization preliminary mapping of regional patterns of urbanization and urban poverty, natural disasters and conflict, and and urban poverty, natural disasters and conflict, and the impact of climate change. the impact of climate change. Sub-saharan AfricaSub-saharan Africa (fastest urbanising, high levels of urban (fastest urbanising, high levels of urban

poverty, fast growing small and medium-sized cities, high poverty, fast growing small and medium-sized cities, high levels of displacement, extensive and recurrent conflict etc.); levels of displacement, extensive and recurrent conflict etc.);

Parts of Parts of southern and south-eastern Asiasouthern and south-eastern Asia (maximum (maximum number of urban residents, fast-growing small and medium-number of urban residents, fast-growing small and medium-sized cities, high risk of climate-related disasters, continuing sized cities, high risk of climate-related disasters, continuing conflict);conflict);

Western AsiaWestern Asia (mainly due to conflict and urban displacement (mainly due to conflict and urban displacement due to conflict);due to conflict);

Latin AmericaLatin America (due to natural disasters affecting coastal (due to natural disasters affecting coastal cities, continuing conflict in some countries, widespread cities, continuing conflict in some countries, widespread urban violence and insecurity).urban violence and insecurity).

A detailed risk analysis model needs to be developed to A detailed risk analysis model needs to be developed to identify and monitor hotspots based on clearly defined identify and monitor hotspots based on clearly defined and agreed criteria.and agreed criteria.

Implications for IASCImplications for IASC Small and medium-sized urban centres Small and medium-sized urban centres in developing in developing

and least-developed countries should be a particular and least-developed countries should be a particular focus on the IASC and its preparedness efforts. This is focus on the IASC and its preparedness efforts. This is mainly because of:mainly because of: High growth ratesHigh growth rates Low capacities in terms of human and financial resources, weaker Low capacities in terms of human and financial resources, weaker

urban management and planning capabilityurban management and planning capability Limited investment in infrastructure – e.g. water and drainageLimited investment in infrastructure – e.g. water and drainage Attracting less investment and donor interest Attracting less investment and donor interest Least preparedness for disasters or to deal with the unexpected Least preparedness for disasters or to deal with the unexpected

influx of vulnerable rural populations due to short- and long-onset influx of vulnerable rural populations due to short- and long-onset natural disasters, as well as conflict. natural disasters, as well as conflict.

Disasters differentially impact the urban poor. Disasters differentially impact the urban poor. Pro-poor Pro-poor and rights-based strategies and rights-based strategies should provide the should provide the essential underpinning for any humanitarian essential underpinning for any humanitarian interventions.interventions.

While the issue of slums While the issue of slums per seper se is a long-term is a long-term development agenda rather than an immediate development agenda rather than an immediate humanitarian concern, humanitarian concern, cities with high levels of cities with high levels of poverty and slum populations, extended per-urban poverty and slum populations, extended per-urban areas, must remain on IASC’s radar as potential areas, must remain on IASC’s radar as potential “hotspots”“hotspots” for a variety of humanitarian crises.for a variety of humanitarian crises.

Criteria and thresholds for urban Criteria and thresholds for urban vulnerabilityvulnerability need to be defined by the IASC and need to be defined by the IASC and used/incorporated by all members in their work.used/incorporated by all members in their work.

Little disaggregated data exists on the urban Little disaggregated data exists on the urban mortality rates or displacement due to conflicts mortality rates or displacement due to conflicts and other man-made disasters. and other man-made disasters. Collection of Collection of urban data/field-based information for urban data/field-based information for conflict-affected countriesconflict-affected countries should be an area should be an area for follow-up by the IASC.for follow-up by the IASC.

Urban based conflict and violence pose unique Urban based conflict and violence pose unique challenges: challenges: understanding and responding to understanding and responding to the causes and consequences of these the causes and consequences of these challengeschallenges is critical for the IASC.is critical for the IASC.

Implications for IASCImplications for IASC …[2]…[2]

Implications for IASCImplications for IASC …[3]…[3] Urban areas are often better resourcedUrban areas are often better resourced than rural areas than rural areas

to respond to disasters. The local governance structures, to respond to disasters. The local governance structures, civil society networks, resources and capacities need to be civil society networks, resources and capacities need to be tapped by the IASC members while responding to tapped by the IASC members while responding to humanitarian crises in urban areas.humanitarian crises in urban areas.

A properA proper risk analysis modelrisk analysis model should be developed to help should be developed to help the IASC in building preparedness for humanitarian the IASC in building preparedness for humanitarian intervention in specific cities, countries or regions. The intervention in specific cities, countries or regions. The criteria used could include: criteria used could include: the level of urbanization, urban poverty and population residing in the level of urbanization, urban poverty and population residing in

slums; slums; percentage of population residing in coastal cities, low-lying areas percentage of population residing in coastal cities, low-lying areas

or otherwise hazardous sites; or otherwise hazardous sites; quality of urban governance including local government capacity quality of urban governance including local government capacity

and resources, civil society engagement, accountability etc; and resources, civil society engagement, accountability etc; existence of disaster management strategies; existence of disaster management strategies; potential for natural disasters (whether or not caused by climate potential for natural disasters (whether or not caused by climate

change); change); potential for armed conflict; potential for armed conflict; displaced and/or refugee populations in cities; displaced and/or refugee populations in cities; Land rights; etc.Land rights; etc.

The The challenges of challenges of humanitarian humanitarian

operations and operations and emergencies unfolding emergencies unfolding

in urban areasin urban areas

Key findingsKey findings The complexity of urban environments can be described The complexity of urban environments can be described

in terms of:in terms of: Demographic:Demographic: urban environments are fluid, with a wide urban environments are fluid, with a wide

variety of inhabitants who inhabit and use the city in different variety of inhabitants who inhabit and use the city in different ways, at different times of the day and in different seasons, ways, at different times of the day and in different seasons, with large numbers of people unnoticed and often un-with large numbers of people unnoticed and often un-registered. registered.

Spatial and economic:Spatial and economic: a wide spectrum of extreme poverty a wide spectrum of extreme poverty co-habits in close proximity to high levels of wealth. Formal co-habits in close proximity to high levels of wealth. Formal and informal land tenure, housing and service provisions exist and informal land tenure, housing and service provisions exist side-by-side. side-by-side.

Institutional:Institutional: multiple institutions render the urban multiple institutions render the urban environment operationally more complex. These are environment operationally more complex. These are responsible for managing different aspects of urban growth responsible for managing different aspects of urban growth and service delivery, such as the local government, service-and service delivery, such as the local government, service-providing agencies, line departments of national or provincial providing agencies, line departments of national or provincial governments, private businesses etc. governments, private businesses etc.

There are no criteria or agreed thresholds to define the There are no criteria or agreed thresholds to define the “tipping point” from ‘chronic’ or ‘hidden’ emergencies “tipping point” from ‘chronic’ or ‘hidden’ emergencies (such as high mortality due to communicable diseases, air (such as high mortality due to communicable diseases, air and water pollution, malnutrition) into large-scale and water pollution, malnutrition) into large-scale humanitarian crises.humanitarian crises.

Crises and disasters in urban settings are more likely Crises and disasters in urban settings are more likely to have a “snow-ball effect”: one event can lead to to have a “snow-ball effect”: one event can lead to multiple crises. multiple crises.

Factors contributing to the vulnerability of urban Factors contributing to the vulnerability of urban populations are widely variable, depending on pre-populations are widely variable, depending on pre-disaster income/poverty levels, quality of housing and disaster income/poverty levels, quality of housing and access to services. E.g. those residing in slums, in access to services. E.g. those residing in slums, in hazardous locations such as low-lying areas, landfill hazardous locations such as low-lying areas, landfill sites, etc are particularly defenceless. sites, etc are particularly defenceless.

Urban land, housing and tenure arrangements merit Urban land, housing and tenure arrangements merit closer attention by humanitarian actors, as these differ closer attention by humanitarian actors, as these differ significantly from rural contexts. Informal settlements significantly from rural contexts. Informal settlements often not ‘eligible’ for assistance because of their often not ‘eligible’ for assistance because of their illegal or informal status.illegal or informal status.


Implications for IASCImplications for IASC Tools and approachesTools and approaches need to be developed to rapidly need to be developed to rapidly

assess/ establish an understanding of who the affected assess/ establish an understanding of who the affected population is and why they are there. population is and why they are there.

Improved quality of dataImproved quality of data is essential, given the paucity is essential, given the paucity of disaggregated data for crises in urban areas. Greater of disaggregated data for crises in urban areas. Greater accuracy in data collection can be ensured through accuracy in data collection can be ensured through accessing formal as well as informal sources, such as accessing formal as well as informal sources, such as grass roots community groups, faith-based organizations grass roots community groups, faith-based organizations etc. etc.

The relative strengths of urban environmentsThe relative strengths of urban environments as as opposed to rural settings (such as, opposed to rural settings (such as, inter aliainter alia, economic , economic production, civil society, informal and formal governance production, civil society, informal and formal governance structures and social capital) need to be recognized and structures and social capital) need to be recognized and harnessed. A multi-pronged, multi-disciplinary approach harnessed. A multi-pronged, multi-disciplinary approach is essential in responding to urban crises. is essential in responding to urban crises.

Response and service deliveryResponse and service delivery solutions need to be solutions need to be adopted that are distinct from rural settings. This adopted that are distinct from rural settings. This necessarily involves forming necessarily involves forming new partnershipsnew partnerships. .

Existing studies should be tapped and new ones Existing studies should be tapped and new ones undertaken, if need be, to assess the undertaken, if need be, to assess the vulnerability as well vulnerability as well as capacity of small and medium-sized urban centresas capacity of small and medium-sized urban centres to deal with a crisis.to deal with a crisis.

Inter-disciplinary dialogueInter-disciplinary dialogue needs to be encouraged needs to be encouraged under the aegis of the IASC for a more effective under the aegis of the IASC for a more effective humanitarian / developmental response, namely between humanitarian / developmental response, namely between urban development planning, emergency response and urban development planning, emergency response and management, humanitarian responses, environmental management, humanitarian responses, environmental management and climate change. management and climate change.

Disaster planning capacity and preparednessDisaster planning capacity and preparedness by urban by urban and national authorities needs to be encouraged. Local and national authorities needs to be encouraged. Local community groups should be identified and their capacities community groups should be identified and their capacities harnessed. harnessed.

More research is needed to better understand what More research is needed to better understand what works in urban disaster contexts.works in urban disaster contexts. Donors need to Donors need to prioritize support to such research. Efforts need to be prioritize support to such research. Efforts need to be practically focused and develop new innovative tools and practically focused and develop new innovative tools and techniques. techniques.

Implications for IASCImplications for IASC ……[2][2]

DisplacementDisplacement Given the rising number of IDPs and refugees in urban Given the rising number of IDPs and refugees in urban

areas, areas, field-based assessments should be conducted field-based assessments should be conducted to examine causes and patterns of displacementto examine causes and patterns of displacement, , including secondary and tertiary displacement, including secondary and tertiary displacement, movements from camps to host families, forced evictions, movements from camps to host families, forced evictions, etc. Such data would be critical in defining future etc. Such data would be critical in defining future approaches to deal with urban-based refugees and IDPs.approaches to deal with urban-based refugees and IDPs.

The considerable body of work on IDPs (IASC / OCHA The considerable body of work on IDPs (IASC / OCHA etc) and respective tools developed should be reviewed etc) and respective tools developed should be reviewed according to criteria to be agreed and translated for use according to criteria to be agreed and translated for use in urban settings. in urban settings.

Livelihoods and food securityLivelihoods and food security In regard to livelihood and food aid,In regard to livelihood and food aid, different targeting different targeting

approaches and guidelines need to be reviewed and approaches and guidelines need to be reviewed and adapted to urban contextsadapted to urban contexts (e.g. WFP and USAID) and (e.g. WFP and USAID) and the value of self-targeting programmes considered.the value of self-targeting programmes considered.


Land, shelter and property restitutionLand, shelter and property restitution Issues of land tenure, including ownership, Issues of land tenure, including ownership,

tenancy and leasing arrangements, formal and tenancy and leasing arrangements, formal and informal, need to be reviewed carefully in urban informal, need to be reviewed carefully in urban areas. areas. A clear understanding of land issues, A clear understanding of land issues, existing systems and good practiceexisting systems and good practice would help would help both in property restitution, as well as avoiding both in property restitution, as well as avoiding the restoration/reinforcement of pre-disaster the restoration/reinforcement of pre-disaster inequalities.inequalities.

Flexible approaches Flexible approaches need to be encouraged need to be encouraged towards land-titling and land-pooling.towards land-titling and land-pooling.

Establishment of Establishment of property commissionsproperty commissions, even on , even on a temporary basis, (as in e.g. Sarajevo or a temporary basis, (as in e.g. Sarajevo or Kathmandu), can be useful in addressing both Kathmandu), can be useful in addressing both temporary and long-term arrangements and temporary and long-term arrangements and entitlements.entitlements.


Water, sanitation and healthWater, sanitation and health A A checklist for mapping of key local service checklist for mapping of key local service

providers providers for water and sanitation (local government, for water and sanitation (local government, water board, private suppliers, etc.), as well as health water board, private suppliers, etc.), as well as health services (primary health centres, government-run services (primary health centres, government-run hospitals, private clinics and hospitals, charitable hospitals, private clinics and hospitals, charitable services etc), especially in poorer areas or slum services etc), especially in poorer areas or slum settlements, is critical for humanitarian responses. This settlements, is critical for humanitarian responses. This should be developed and shared by IASC members should be developed and shared by IASC members responsible for respective sectors.responsible for respective sectors.

A A toolkit for effective coordination and dialogue toolkit for effective coordination and dialogue with local actors with local actors for the delivery of clean and reliable for the delivery of clean and reliable water and sanitation in urban areas in the aftermath of a water and sanitation in urban areas in the aftermath of a disaster should also be developed.disaster should also be developed.

Violence and insecurityViolence and insecurity Existing Existing guidelines, tools and best practice guidelines, tools and best practice for both for both

protection of vulnerable populations and in particular for protection of vulnerable populations and in particular for sexual and gender based violence need to be adapted to sexual and gender based violence need to be adapted to urban settings. urban settings.


Humanitarian Humanitarian response, urban response, urban

actors and actors and institutional institutional

counterpartscounterparts

The quality of urban governance (characterised, The quality of urban governance (characterised, inter inter alia, alia, by sustainability, participation, transparency and by sustainability, participation, transparency and accountability) is severely tested in the aftermath of accountability) is severely tested in the aftermath of disasters. disasters.

Small and medium-sized Small and medium-sized cities usually lack the cities usually lack the capacity and resources to prepare for, and respond to, capacity and resources to prepare for, and respond to, disasters. Yet, in the immediate aftermath of a crisis, disasters. Yet, in the immediate aftermath of a crisis, local governments – however weak – tend to play a key local governments – however weak – tend to play a key role in activities such as rubble removal, assessment of role in activities such as rubble removal, assessment of post-disaster damage, and rehabilitation of key post-disaster damage, and rehabilitation of key municipal services and livelihoods. municipal services and livelihoods.

Local NGOs and CBOs are usually involved Local NGOs and CBOs are usually involved in in providing primary and secondary health care to the providing primary and secondary health care to the affected populations. affected populations.

International organisations have to work in close International organisations have to work in close partnership partnership with a range of local actors, regardless of with a range of local actors, regardless of their capacities, in urban settings. their capacities, in urban settings.

Local governance issues Local governance issues can vary significantly after can vary significantly after natural disaster and complex emergencies. natural disaster and complex emergencies.

Key findingsKey findings

Local governance Local governance issues after complex issues after complex

emergenciesemergencies Governance gap - Old approaches/ Governance gap - Old approaches/

institutions no longer work, new ones institutions no longer work, new ones not yet established; skill and capacity not yet established; skill and capacity gapsgaps

Economic transition Economic transition Political transitionPolitical transition A wide range of actors with different A wide range of actors with different

political motivationspolitical motivations De facto De facto and/or and/or de jure de jure divisionsdivisions Yet…opportunity to reform?Yet…opportunity to reform?

Sub-Saharan AfricaSub-Saharan Africa Decentralisation and local government reform has Decentralisation and local government reform has

caught on since the 1990s, but local governments are caught on since the 1990s, but local governments are plagued by resource constraints and weak institutional plagued by resource constraints and weak institutional capacity. capacity.

National governments are reluctant to let go of power, National governments are reluctant to let go of power, especially control over politically significant agendas especially control over politically significant agendas such as land management.such as land management.

Civil society participation remains limited, although Civil society participation remains limited, although efforts to strengthen women’s organisations, youth efforts to strengthen women’s organisations, youth groups and networks of the poor have begun to gain groups and networks of the poor have begun to gain momentum.momentum.

Post-disaster relief, recovery, reconstruction efforts are Post-disaster relief, recovery, reconstruction efforts are still controlled by national governments, or in some still controlled by national governments, or in some cases (e.g. Sudan), powerful provincial cases (e.g. Sudan), powerful provincial governments/governorates.governments/governorates.

Regional trendsRegional trends

Southern and South-eastern AsiaSouthern and South-eastern Asia Legal reforms towards decentralisation have driven the process of Legal reforms towards decentralisation have driven the process of

local government reform and empowerment. Larger/metropolitan local government reform and empowerment. Larger/metropolitan cities such as Mumbai, Manila etc have powerful local cities such as Mumbai, Manila etc have powerful local governments with both capacity and resources.governments with both capacity and resources.

Housing, land tenure and property rights remain a bone of Housing, land tenure and property rights remain a bone of contention between different levels of government and parastatal contention between different levels of government and parastatal (unelected) bodies such as development authorities.(unelected) bodies such as development authorities.

Small and medium-sized towns struggle to fulfil their extensive Small and medium-sized towns struggle to fulfil their extensive mandated responsibilities due to lack of technical staff, equipment, mandated responsibilities due to lack of technical staff, equipment, financial resources etc. financial resources etc.

However, in this region, most cities – large or small – have However, in this region, most cities – large or small – have demonstrated an inability to cope effectively with disasters, demonstrated an inability to cope effectively with disasters, including natural disasters such as flooding or landslides, and including natural disasters such as flooding or landslides, and other events such as urban violence and rioting. other events such as urban violence and rioting.

Civil society is vibrant and effective. NGOs, CBOs, academic and Civil society is vibrant and effective. NGOs, CBOs, academic and research institutions, residents’ associations, traders’ associations, research institutions, residents’ associations, traders’ associations, charitable trusts etc. have played significant roles in post-disaster charitable trusts etc. have played significant roles in post-disaster relief and rehabilitation efforts, e.g. in the aftermath of the Gujarat relief and rehabilitation efforts, e.g. in the aftermath of the Gujarat earthquake (2001), and the Tsunami (2005). earthquake (2001), and the Tsunami (2005).

However, in post-conflict interventions, role of local civil society However, in post-conflict interventions, role of local civil society organisations remains limited.organisations remains limited.

Regional trendsRegional trends …[2]…[2]

Western AsiaWestern Asia Local governments not generally very strong, have Local governments not generally very strong, have

limited mandates, capacities and resources. limited mandates, capacities and resources. Civil society engagement, transparency and Civil society engagement, transparency and

accountability are also low. accountability are also low. National and provincial governments are extremely National and provincial governments are extremely

powerful. powerful. However, the post-war recovery effort following July However, the post-war recovery effort following July

2006 war in Lebanon illustrated the role of local 2006 war in Lebanon illustrated the role of local governments as the first responders in a crisis governments as the first responders in a crisis situation.situation.

Latin America and the CaribbeanLatin America and the Caribbean Vibrant grass roots movements and an active and Vibrant grass roots movements and an active and

engaged civil society. engaged civil society. Countries like Brazil, Colombia and Mexico have Countries like Brazil, Colombia and Mexico have

adopted progressive policies towards strengthening of adopted progressive policies towards strengthening of local governments through initiatives such as local governments through initiatives such as participatory planning and budgeting.participatory planning and budgeting.

Regional trendsRegional trends …[3]…[3]

Implications for IASCImplications for IASC Local government capacities Local government capacities to rapidly and to rapidly and

adequately assess population at risk or affected by adequately assess population at risk or affected by the disaster are widely variable and need to be the disaster are widely variable and need to be strengthened. strengthened.

In the aftermath of conflict, in particular, there may In the aftermath of conflict, in particular, there may be a be a governance gapgovernance gap, which needs to be addressed , which needs to be addressed by IASC actors. This could include:by IASC actors. This could include: Weak or outdated legislative and policy frameworkWeak or outdated legislative and policy framework Institutional structures overburdened or no longer fit for Institutional structures overburdened or no longer fit for

purposepurpose Weakened technical & administrative capacitiesWeakened technical & administrative capacities Weakened local civil societyWeakened local civil society

Standard tools, checklists, operating proceduresStandard tools, checklists, operating procedures need to be established to ensure that local authorities need to be established to ensure that local authorities are involved in all assessments. are involved in all assessments.

Local government mandate, capacities and resources Local government mandate, capacities and resources to coordinate disaster management efforts also vary to coordinate disaster management efforts also vary from city to city and country to country. from city to city and country to country. IASC needs IASC needs to develop tools to ensure that local to develop tools to ensure that local governments play a central role and are not governments play a central role and are not bypassed in the delivery of humanitarian bypassed in the delivery of humanitarian assistance.assistance.

Tools and approaches need to be developed Tools and approaches need to be developed for involving new actors, especially in post-for involving new actors, especially in post-conflict environments, e.g.:conflict environments, e.g.: Powerful local elites from all sidesPowerful local elites from all sides Armed groupsArmed groups International actors – multilateral, bilateral, International actors – multilateral, bilateral,

humanitarian agencies, NGOshumanitarian agencies, NGOs Transitional administration/ institutionsTransitional administration/ institutions

Good practices need to be documented, Good practices need to be documented, adapted, developed adapted, developed to ensure to ensure accountability and participation of the accountability and participation of the victims and other local stakeholders in all victims and other local stakeholders in all decision-making efforts, whether for the decision-making efforts, whether for the short-, medium- or long-term.short-, medium- or long-term.



Humanitarian agencies need to Humanitarian agencies need to build their build their own staff capacities own staff capacities and knowledge to and knowledge to ensure equity in post-disaster recovery, and ensure equity in post-disaster recovery, and avoid the replication or reinforcement of pre-avoid the replication or reinforcement of pre-disaster inequalities. disaster inequalities.

It would be important to It would be important to explore the link explore the link between decentralization efforts, local between decentralization efforts, local government reform, the quality of urban government reform, the quality of urban governance, and the effective management governance, and the effective management of disaster risk and post-disaster of disaster risk and post-disaster humanitarian response.humanitarian response. This is a vital issue This is a vital issue that needs to be explored further by the IASC, that needs to be explored further by the IASC, preferably through preferably through field-based assessments.field-based assessments.

The principles of good urban governance The principles of good urban governance can serve as a useful checklist for can serve as a useful checklist for international humanitarian actors to international humanitarian actors to understand the type and quality of understand the type and quality of governance arrangements, and ensure governance arrangements, and ensure that their interventions:that their interventions: build on what exists (systems, institutions, build on what exists (systems, institutions,

networks, infrastructure, capacities); networks, infrastructure, capacities); ‘‘do no harm’ by sidelining existing institutions do no harm’ by sidelining existing institutions

and undermining local efforts; and and undermining local efforts; and build capacity in the long run. build capacity in the long run.


The relevance of principles of The relevance of principles of good urban governance to good urban governance to

humanitarian actionhumanitarian actionSustainability Is the humanitarian intervention environmentally sound?

Is there any potential of causing long-term damage to the urban environment?

Is it socially sustainable in the given setting? Will it work towards peacebuilding or preventing recurrence of conflict?

Is it economically viable? Does it maximize local resources and build on them?

Does it enhance disaster preparedness and reduce risk in the long term?

Subsidiarity Which local institutions are responsible for provision of services? What is the level of their infrastructure and capacity (technical, human, financial, networks etc.)?

Is the humanitarian intervention building on existing local institutions and enhancing their capacity?

Is there a risk that local institutions closest to the communities may be bypassed in decision-making processes in disaster response and recovery?

Equity What was the level of access of different groups/communities to urban services, opportunities and decision-making processes in the pre-crisis phase?

How can this be made more equitable? How can humanitarian actors ensure that pre-crisis inequalities are not replicated?

The relevance of principles of The relevance of principles of good urban governance to good urban governance to

humanitarian actionhumanitarian actionEfficiency How can relief and aid be distributed in the most

efficient manner? How can basic services be restored at minimum cost? How can livelihoods be restored and local economic

development initiated in the earliest stages of the relief to development continuum?

Transparency and Accountability

Do any procedures and processes exist to ensure transparency and accountability in local governance?

How can relief and aid be distributed in a transparent manner?

How can all stakeholders be involved in the decision-making process?

Civic Engagement and Citizenship

How can civic engagement be built and social capital enhanced through the humanitarian efforts?

Who speaks for the community? Who should be engaged? Who should not be engaged? How to avoid legitimising certain ethnic/political agendas?

Security How can vulnerable populations be provided protection in the aftermath of disaster or conflict?

How can the urban environment be improved so as to prevent the occurrence (or recurrence) of other humanitarian emergencies?

Institutional challenges Institutional challenges faced by humanitarian faced by humanitarian

agenciesagencies

Key findingsKey findings Many agencies appeared almost Many agencies appeared almost daunted by the daunted by the

complexity complexity of urban poverty and their inability to address of urban poverty and their inability to address this’this’

Different patterns emerging: Different patterns emerging: Some organizations are Some organizations are responding on a case-by-case basis because of their responding on a case-by-case basis because of their specific mandatespecific mandate, while others are positioning themselves , while others are positioning themselves to respond to urban crises and trying to learn and adapt to respond to urban crises and trying to learn and adapt practices and tools to urban areas. practices and tools to urban areas.

A ‘paradigm shift’: humanitarian and development A ‘paradigm shift’: humanitarian and development organisations are gradually organisations are gradually shifting their approaches shifting their approaches to to adjust their response. adjust their response. But these efforts remain But these efforts remain ad hocad hoc and agency specific.and agency specific.

Many agencies underlined their lack of Many agencies underlined their lack of understanding of understanding of the role of local governmentthe role of local government and the broader issue of and the broader issue of governance in urban settings. governance in urban settings.

To respond better, agencies need to form To respond better, agencies need to form new alliances and new alliances and partnershipspartnerships..

At times, At times, organisational commitment organisational commitment to engage in urban to engage in urban settings can be lacking.settings can be lacking.

Both Both humanitarian actors and developmental humanitarian actors and developmental interventions overlap in areas of service provision, interventions overlap in areas of service provision, and and strengthening of basic infrastructure. The urban context is strengthening of basic infrastructure. The urban context is perceived more as a developmental challenge. Yet, perceived more as a developmental challenge. Yet, emergency relief may not be able to target urban poor. emergency relief may not be able to target urban poor.

Tools, guidelines and methodologies Tools, guidelines and methodologies for humanitarian for humanitarian response are limited or existing tools are difficult to apply response are limited or existing tools are difficult to apply due to diverse populations groups, needs and geographical due to diverse populations groups, needs and geographical spread.spread.

Good practice Good practice of past emergency responses in urban areas of past emergency responses in urban areas are either are either not systematically documentednot systematically documented, or not , or not disseminated and shared. Substantive guiding literature is disseminated and shared. Substantive guiding literature is missing or inadequate.missing or inadequate.

The specific challenges posed by The specific challenges posed by urban settings demands urban settings demands expertiseexpertise, which is not commonly available in most , which is not commonly available in most organizations. Emergency staff come with the organizations. Emergency staff come with the mindset of a mindset of a rural emergency contextrural emergency context. .


Urban programme planning needs to be strengthened and Urban programme planning needs to be strengthened and better better approaches need to be integrated for disaster response, approaches need to be integrated for disaster response, disaster risk reduction (DRRdisaster risk reduction (DRR) and development. ) and development.

A major challenge consists of A major challenge consists of estimating the beneficiary estimating the beneficiary population population and the ability to distinguish between different and the ability to distinguish between different groups of vulnerable populations and their respective needsgroups of vulnerable populations and their respective needs

There is a There is a lack of classification of urban emergencies and lack of classification of urban emergencies and the types of risks the types of risks associated with these in different settings of associated with these in different settings of urban areas. urban areas.

The provision of The provision of adequate protection arrangements and adequate protection arrangements and security is keysecurity is key, given the higher and more condensed incidents , given the higher and more condensed incidents of crime, violence. Insecurity and violence especially in poorer of crime, violence. Insecurity and violence especially in poorer parts of cities hinders safe access to provide aid, affecting the parts of cities hinders safe access to provide aid, affecting the assessment, targeting, distribution and monitoring of assessment, targeting, distribution and monitoring of humanitarian interventions. Staff mobility also becomes a critical humanitarian interventions. Staff mobility also becomes a critical factor.factor.

NNeed for collaborating and working with non-traditional eed for collaborating and working with non-traditional (humanitarian) partners (humanitarian) partners such as urban planning authorities, such as urban planning authorities, statistics departments, and sector specific experts at policy and statistics departments, and sector specific experts at policy and operational level in national and local government.operational level in national and local government.

A vital aspect is the A vital aspect is the engagement of the private sector.engagement of the private sector.


Key findingsKey findings …[4]…[4] There are There are limited established coordination structures limited established coordination structures in in

urban settings for responding to crises. There is a need to put urban settings for responding to crises. There is a need to put in place an effective coordination mechanism specific to the in place an effective coordination mechanism specific to the urban challenge.urban challenge.

Coordination and planning Coordination and planning of responses with national of responses with national counterparts is counterparts is not necessarily managed though the not necessarily managed though the clustersclusters. The majority of the UN agencies and INGOs use . The majority of the UN agencies and INGOs use UN, NGOs, national governments, local government, CBOs, UN, NGOs, national governments, local government, CBOs, faith based organizations, Red Cross, community leaders and faith based organizations, Red Cross, community leaders and police as counter parts to varying degrees. police as counter parts to varying degrees.

FundingFunding for humanitarian responses in urban situations is for humanitarian responses in urban situations is inadequate and funding mechanisms are not tailored to urban inadequate and funding mechanisms are not tailored to urban contexts.contexts.

Donors are yet to have Donors are yet to have strategic allocated funding for strategic allocated funding for humanitarian operations in urban areashumanitarian operations in urban areas and resources and resources directed towards urban areas are meagre. Funding is usually directed towards urban areas are meagre. Funding is usually directed towards a specific sector or region, and not towards directed towards a specific sector or region, and not towards emergency operations in urban and peri-urban contexts as emergency operations in urban and peri-urban contexts as such.such.

Implications for IASCImplications for IASC Urban emergencies need to be classifiedUrban emergencies need to be classified as well as types of as well as types of

risks associated with these in a ‘living’ document to be reviewed risks associated with these in a ‘living’ document to be reviewed by IASC members on a regular basis.by IASC members on a regular basis.

Protection GuidelinesProtection Guidelines for conflict situations need to be for conflict situations need to be translated into urban contexts and their specific applicability translated into urban contexts and their specific applicability should be tested.should be tested.

In devising strategies, both for risk reduction and interventions in In devising strategies, both for risk reduction and interventions in urban crisis situations, agencies may wish to consider urban crisis situations, agencies may wish to consider linking linking assistance to the urban poor with that of displaced,assistance to the urban poor with that of displaced, as many as many grass roots NGOs are doing already in urban settings. grass roots NGOs are doing already in urban settings.

Any intervention needs to contain a Any intervention needs to contain a strong advocacy strong advocacy component, sensitizing local government authoritiescomponent, sensitizing local government authorities in in particular on the plight of displaced people. particular on the plight of displaced people.

New service delivery mechanisms need to be exploredNew service delivery mechanisms need to be explored involving local authorities as well as grassroots NGOs.involving local authorities as well as grassroots NGOs.

Consistent dialogueConsistent dialogue needs to be established with needs to be established with national and national and local authorities as well as a range of other interest groups,local authorities as well as a range of other interest groups, depending on the specific situation at the earliest opportunity. depending on the specific situation at the earliest opportunity. The identification of these groups / counterparts should form part The identification of these groups / counterparts should form part of the programme design for interventions.of the programme design for interventions.

Immediate concerted efforts need to be made to Immediate concerted efforts need to be made to design and design and translate sectoral, policy and emergency tools from rural to translate sectoral, policy and emergency tools from rural to urban settings.urban settings.

A systematic A systematic summary of good and best practicessummary of good and best practices needs to be needs to be established and updated, focused on sector, coordination and established and updated, focused on sector, coordination and protection arrangements. protection arrangements.

A mapping needs to take place of both humanitarian and A mapping needs to take place of both humanitarian and development agencies and their comparative strengths and development agencies and their comparative strengths and weaknesses in urban areas.weaknesses in urban areas.

Organizational capacity needs to be enhanced Organizational capacity needs to be enhanced in all agencies in in all agencies in a number of different areas to better meet urban challenges: those a number of different areas to better meet urban challenges: those with a greater development focus need to either train or rely on with a greater development focus need to either train or rely on those with a more humanitarian focus and vice versa. those with a more humanitarian focus and vice versa.

Staff need to be trained/ sensitised Staff need to be trained/ sensitised in challenges and complexity in challenges and complexity of urban environments and urban governance. Specific attention of urban environments and urban governance. Specific attention should be paid to the should be paid to the training of national stafftraining of national staff..

There is a clear need to There is a clear need to work and collaborate with non-work and collaborate with non-traditional partnerstraditional partners, in particular the private sector and urban , in particular the private sector and urban community-based groups. community-based groups.

In establishing coordination frameworks in urban environments, In establishing coordination frameworks in urban environments, use use should be made of existing communication channels, should be made of existing communication channels, such as such as marketing firms and advertising groups, to convey key messages. marketing firms and advertising groups, to convey key messages.


Meeting Humanitarian Challenges in Urban Areas Draft Assessment and Strategy for the IASC MHCUA TF...

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