Professional Documents
Culture Documents
IASC Strategy MeetingHumanitarianChallengesInUrbanAreas
IASC Strategy MeetingHumanitarianChallengesInUrbanAreas
IASC Strategy MeetingHumanitarianChallengesInUrbanAreas
MEETING HUMANITARIAN
CHALLENGES IN URBAN AREAS
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
DISCLAIMER
The designations employed and the presentation of material in this report do not imply of any opinion whatsoever on
the part of the Secretariat of the United Nations concerning the legal status of any country, territory, city or area or of
its authorities, or concerning the delimitation of its frontiers or boundaries, or regarding its economic system or degree
of development. The analysis conclusions and recommendations of this publication do not necessarily reflect the views
of the Inter-Agency Standing Committee.
Foreword
Increasingly, natural disasters and complex emergencies are having devastating impacts on ur-
ban areas. More than half of the world’s population now lives in urban areas. Nearly one billion
urban residents live in precarious informal settlements and slums and are among the world’s
most vulnerable populations.
Poorly planned, rapid urbanisation has increased the exposure and vulnerability of these popula-
tions to both natural disasters and complex emergencies. These catastrophes demonstrate the
growing need for the international humanitarian community and governments to better adapt
emergency response to the special requirements of urban areas. Better preparedness of local
communities and governments and expanded partnerships with governments, communities
and civil society will be required to reach the most vulnerable and affected populations in urban
contexts.
This Strategy for Meeting Humanitarian Challenges in Urban Areas and Two-Year Action Plan re-
flect an understanding of the need to improve our business model. The strategy is built around
six key objectives: i) Improving multi-stakeholder partnerships; ii) Building technical surge ca-
pacity and urban expertise; iii) Developing and adapting tools to urban contexts; iv) Promoting
the protection of vulnerable urban populations; v) Strengthening livelihoods; and vi) Enhancing
preparedness among national and local authorities in urban areas. The Strategy and Action Plan
are evidence-based and reflect experiences and good practices from stakeholders throughout
the international humanitarian system.
Working under the direction of the IASC Working Group, the Strategy and Action Plan were
developed by the IASC Task Force on Meeting Humanitarian Challenges in Urban Areas, chaired
by UN-HABITAT, with active participation of UN agencies, IOM, international NGO consortia and
the Red Cross/Red Crescent Movement. The Strategy and Two-Year Action Plan were endorsed
by the 78th IASC Working Group meeting in Rome on 10 November 2010.
We would like to thank all members and organizations for their constructive work and partici-
pation.
iii
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
CONTENTS
I. INTRODUCTION...........................................................................................................................................1
II. URBANIZATION AND HUMANITARIAN CHALENGES URBANIZATION AND HUMANITARIAN . ..............2
Why should urbanization be a critical concern for humanitarians...................................................................2
What is different about urban-based humanitarian chalenges and risks compared to rural ones
which compel the ned for new approaches?..................................................................................................3
III. THE STRATEGY............................................................................................................................................4
A. Get the Humanitarian Response Priorities and Initial Strategies Right.........................................................4
Strategic objective 1.................................................................................................................................4
Strategic objective 2.................................................................................................................................6
Strategic objective 3.................................................................................................................................7
Strategic objective 4.................................................................................................................................9
B. Maximize Sustainabilit y of the Humanitarian Response..........................................................................11
Strategic objective 5...............................................................................................................................11
Strategic objective 6...............................................................................................................................12
IV. ACTION PLAN.......................................................................................................................................14
iv
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
I. INTRODUCTION
The aim of this IASC Strategy is to The principal objectives of this Strategy are
recommend actions which humanitarian to:
actors can take to make their responses to
• consolidate and enhance current expertise
humanitarian crises in urban areas more
of humanitarian actors
effective and thereby save more lives and
accelerate early recovery. Six strategic • build their respective strategies for
objectives and supporting actions are enhancing urban programming and
proposed which will enhance their expertise response implementation
and operational capacities in urban areas.
• identify good practices in tools and
This Strategy further addresses and prioritizes
assessments, opportunities to further adapt
the humanitarian challenges identified in the
rural tools and identify remaining gaps
Initial IASC Strategy for Meeting Humanitarian
“This Strategy Challenges in Urban Areas of 2009.1
in order to improve operational capacity
and its Action and impact of urban-based humanitarian
assistance
Plan proposes that This Strategy includes a recommended Two-
Year Action Plan of priority actions to be • strengthen four key elements – partnerships,
individual IASC host country national and local leadership,
implemented by IASC agencies and other
agencies will choose interested partners. This Strategy and its Action preparedness planning and understanding/
those actions to Plan proposes that individual IASC agencies analysis of vulnerability, community resilience
will choose those actions to implement which and beneficiary targeting.
implement which
are of highest priority to their operations
are of highest and to self-monitor their progress. Progress The Strategy takes into account:
priority to their under the Strategy and Action Plan should be
• Different types of international actor and
operations and to reviewed by the IASC Working Group after
mandates: United Nations agencies, Red
two years to determine follow-on steps.
self-monitor their Cross/Red Crescent Movement, IOM, NGOs
(international, national and local)
progress. Progress 1 The fifteen challenges identified in 2009 Initial Strategy TF report
under the Strategy are: (1) Identifying and collaborating with urban institutions, authori- • Different types of crises: slow or sudden
ties and partners; (2) Inter-agency coordination in an urban context; onset, natural or conflict-related disasters
and Action Plan (3) Identification and targeting beneficiaries; (4) Adjusting organi-
and complex emergencies
zational tools, procedures and capacities to urban requirements; (5)
should be reviewed Linkages between humanitarian response and risk reduction in urban
areas; (6) Linking humanitarian assistance to recovery and sustain- • No one assistance strategy fits all crises -
by the IASC ability; (7) Urban shelter challenges; (8) Housing, land and property adaptation to each crisis is required
(HLP) rights and issues in urban areas; (9) Protection challenges; (10)
Working Group Gender Based Violence; (11) Violence and security; (12) Health risks • Need for advocacy with donors to better
in urban areas; (13) Food assistance, security and livelihoods; (14)
after two years to Water, sanitation and hygiene; (15) Vulnerability to climate change understand and to support urban relief
determine follow-on impacts. efforts.
steps.”
1
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
2
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
The urban skills ians is essential to enhance the impact of protection is not effectively in place, making
required for effective humanitarian assistance in urban areas. cities, and social groups such as women and
children, particularly vulnerable in cases of
relief, recovery and • The urban skills required for effective relief,
natural disasters, conflict and other forms
recovery and reconstruction in urban areas
reconstruction in vary from rural settings. Humanitarian ac-
of violence carried out by armed groups,
urban areas vary gangs, drug cartels or crime syndicates.
tors need knowledge of urban and spatial
from rural settings. planning, shelter/housing rehabilitation and • Identifying and targeting beneficiaries for
water and sanitation adapted for operations humanitarian assistance in cities are particu-
Humanitarian
in complex, dense and under-serviced urban larly problematic for many humanitarians.
actors need environments. In addition, knowledge of ur- Access to densely populated urban areas is
knowledge of ban vulernability and community resilience often difficult. Conventional methods of
analyses, beneficiary targeting approaches, needs assessment do not adequately distin-
urban and
land use and tenure patterns, strategic plan- guish between the ongoing chronic needs
spatial planning, ning for urban relief strategy development of poor urban households and the more
shelter/housing and engagement of national and municipal acute vulnerability provoked by a disaster.
rehabilitation authorities are all increasingly essential skills
• It is faster growing small and medium-sized
for urban crises responses.
and water and cities in the developing world which are both
less equipped to deal with the problems of
sanitation adapted What is different about urbanization and urban-rural linkages with
for operations in urban-based humanitarian the impacts of natural disasters or complex
complex, dense challenges and risks emergencies.
and under- compared to rural ones
serviced urban which compel the need for
environments. new approaches?
3
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
This Strategy is composed of six strategic ob- on assistance and avoid creation of parallel
jectives for enhancing humanitarian assistance response structures. Findings from the recent
and saving lives and livelihoods in urban areas. Haiti six-month post-earthquake evaluation
The objectives are divided into two broad cat- substantiate the need for local ownership in
egories: spite of the loss of government capacity.
• Get the Humanitarian Response Priorities
and Initial Strategies Right
International actors usually activate a first “Recent experience
phase rapid strategic assessment of the in the aftermath of
• Maximize Sustainability of the Humanitarian scale and scope of the emergency and host
Response country capacity (usually within the first 48 floods in Manila
hours), and then a first phase strategic ac- demonstrates
Each strategic objective is discussed in terms of tion plan (within the next 48 hours). These that joint
issues and gaps and recommended actions. need to build on in-country capacity among
government and NGO partners, even when implementation
diminished by a crisis. Key sectors for most plans with host
A. Get the emergencies include: WASH, Health, Shelter, governments and
Humanitarian Food Security and Protection of Vulnerable
service providers,
Groups.
Response Priorities including the
Recent experience in the aftermath of floods
and Initial in Manila demonstrates that joint implementa-
private sector, are
most effective if
Strategies Right tion plans with host governments and service
providers, including the private sector, are most forged prior to an
effective if forged prior to an emergency. This emergency.”
Strategic Objective
1
is because agencies are reluctant to take the
time required to plan when confronted with
Develop Operational an emergency and resort to pre-established
Strategies Early-on that (pre-emergency) ways of doing business.
Ensure Multi-stakeholder
Partnerships for Enhanced The advantage to humanitarians in these part-
nerships is that host government agencies and
Coordination, Impact and
local interlocutors2 can better ensure that
Effectiveness of Humanitarian assistance reaches intended beneficiary
Assistance in Urban Areas communities transparently and effective-
ly because they possess:
Issues and Gaps • knowledge of the hazards and vulnerabili-
ties of beneficiary communities
Based on country case studies1 and prior IASC • institutional resources to complement deliv-
experience, humanitarian assistance can be ery of assistance by international actors
more effective when clear and effective strate-
gies for multi-stakeholder partnerships are de- • community outreach capacity to reach and
veloped prior to a crisis in a high-risk setting to engage the most vulnerable beneficiaries
or as early at the outset of an emergency as • parallel responsibilities in development sec-
possible. The stakeholders in these partner- tors to sustain relief investments in disaster
ships should include: host national and local risk management, early recovery and recon-
governments, disaster response agencies, na- struction.
tional NGO, civil society and business actors in
urban areas. These strategies need to recog- Humanitarian actors should be prepared for
nize that the host government must lead, or ‘governance gaps’ and manage these through
at a minimum coordinate, an emergency re- their operational strategies.
sponse. This can maximize the use of available
institutional capacity for assistance delivery, • Up-front streamlining decision-making and
build local ownership, diminish dependency
2 Actors include: local governments, service agencies, line departments
of national and provincial governments, urban councils, faith-based
1 IASC Task Force on Meeting Humanitarian Challenges in Urban groups, private sector interests and community based organizations,
Areas Case Studies for Nairobi/Eldoret, Manila and Haiti, May-June, police departments, health institutions and in cases of disasters, enti-
2010 ties especially designated to address relief and reconstruction.
4
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
identifying clear, accountable roles are im- OCHA Nepal, OCHA/UNCT Colombia; Sup-
portant to strengthen coordination and re- port: UNDP, IWG (Catholic Relief Services in
duce bureaucratic bottlenecks. Kenya/Mercy Corps in Nepal) with local and
international NGOs, FAO/WFP/UNICEF and
• Because disasters, urban violence or conflict
UNCT/HCT Kenya and Nepal)
can severely weaken local capacity, humani-
tarians need to support these functions at After two years of implementation of pilots
the outset of a response, as the post-earth- for partnership-building for humanitarian re-
quake Haiti experience pointed out. sponses, assess results, lessons learned and
• The arrival or presence of large numbers of task relevant humanitarian actors to main-
NGOs, with varying levels of expertise, can stream coordination mechanisms into their
present additional coordination challenges. operations, including contingency planning
system-wide, to strengthen responses in even-
Recent complex emergencies and natural di- tual urban emergencies. (Action Lead: OCHA
sasters in Pakistan, Haiti and Kyrgyzstan dem- Kenya and OCHA Nepal, UNCT Colombia, UN
onstrate the importance of communities and HABITAT, UNDP, local and international NGOs;
host families to saving lives when they sup- Support: UNCT/HCT Kenya and Nepal)
port affected populations. They can be critical
Compile good practices, identify gaps and
to building resilience of communities and in
develop guidance for community-based sup-
provision of essential services. However, host
port and capacity-building in urban areas, in-
families themselves are usually highly vulnera-
cluding host families’ support, displaced and
ble, since they reside in the same under-served
not displaced for broader dissemination and
settlements to which migrants flee. Vulner-
accessibility by humanitarian actors in order
ability is accentuated in communities already
to deepen the impact of humanitarian assis-
stressed through over-stretched WASH and
tance. (Action Lead: IFRC and UNICEF; Sup-
diminished food stocks, including through lost
port: UN HABITAT, ICRC, FAO, WFP, NGOs and
urban agriculture and livestock. A more sys-
UNCT/HCTs)
tematic assessment and approach to support-
ing host families as partners in humanitarian
responses is a high priority for IASC agencies Strategic Objective
2
and other humanitarian actors. Findings from
the recent Haiti disaster indicate that putting Strengthen Technical Surge
communities at the core of an integrated re- Capacity for Emergency
sponse yields higher impacts.
Responses in Urban-based
Because disasters, Recommended Actions Challenges
urban violence Develop a simple framework to: (a) map
or conflict can all stakeholders involved and their capacities Issues and Gaps
severely weaken (including ministries/departments at national
and/or municipal levels, IASC actors, disaster With the increasing number of natural disasters
local capacity, response and management actors, develop- and complex emergencies in urban contexts,
humanitarians ment actors who have roles in response and it is important for IASC, Red Cross/Crescent
need to support early recovery, donors, NGOs, civil society and Movement and other humanitarians to upgrade
private sector groups) and (b) identify exist- the skills of their staffs to address urban-based
these functions challenges, particularly in first responses.
ing and means to strengthen coordination and
at the outset of a partnership with humanitarians in the event of
response, as the post- a crisis, with due consideration of the leader- Recent emergencies in post-earthquake Haiti,
ship and coordination role of host government Kenya and Pakistan point out the inadequacy
earthquake Haiti
institutions. (Action Lead: UN HABITAT, OCHA of urban expertise and technical skills among
experience pointed Kenya, OCHA Nepal, OCHA/UNCT Colombia; first responders. This inadequacy contributed
out. Support: UNDP, IWG (Catholic Relief Services to the reduced effectiveness of relief assis-
in Kenya/Mercy Corps in Nepal) with local and tance. Gaps included:
international NGOs, FAO/WFP/UNICEF and
• Technical Knowledge Gaps: Identification
UNCT/HCT Kenya and Nepal)
of land for temporary shelter, urban WASH,
Pilot the framework in at least two at-risk land ownership and tenure issues, urban
cities/countries including a review of syner- planning for reconstruction, urban food and
gies, gaps and existing and needed processes nutrition security, debris removal and simi-
for collaboration and productive relationships, lar urban shelter, land, infrastructure and
including opportunities for capacity build- protection challenges. Getting strategies,
ing. (Action Lead: UN HABITAT, OCHA Kenya, humanitarian responses and early recovery
5
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
strategies right from the start requires that agement and tenure, urban WASH rehabilita-
these skills be part of the mix among first tion, transitional shelter, shelter rehabilitation,
responders. urban food and nutrition security, protection
and related areas. (Action Lead: IASC Mem-
• Slow deployment of sufficient numbers of
ber Agencies, Support: UN HABITAT)
experienced staff with appropriate technical
skills
• Lack of or slow deployment of sufficiently
experienced Shelter Cluster Leads and urban
Strategic Objective
3
advisors to coordinate the multiplicity of ac-
tors, including providing guidance in build-
ing collaboration among NGOs and private Develop or Adapt
sector groups through a common strategy. Humanitarian Approaches
This task is usually complex in urban con- and Tools for Urban Areas
texts with the greater number of actors.
6
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
UNFPA, IOM, OCHA, UNHCR, DRC), Urban Pi- there is an urgent need for standardized and
lot Project (UNHCR) improved rapid vulnerability and resilience as-
sessments in order to design and target hu-
There is a need Food Security: Emergency Food Security As- manitarian relief to be most effective and to
sessments (WFP, FAO), Market Analysis tools accelerate recovery. One out of three urban
for urban-specific for cash or food-for-work, food vouchers, cash residents or one billion people worldwide live
operational transfers – EMMA, Stand-by Contracts with Lo- in densely populated slums or marginal infor-
strategies and cal Suppliers instead of stockpiling relief items mal settlements whose vulnerability is high
(WFP, IFRC, World Vision, Oxfam), Integrated and severely exacerbated by emergencies.
tools in all the key Food Security Phase Classifications (FAO) Nonetheless, resilience of communities needs
humanitarian to also be recognized and built upon so as to
sectors including Livelihoods: Sustainable Livelihoods Assess- strengthen coping mechanisms, livelihoods
ment Tool Kit and Approach (FAO/ILO), micro- and social networks that mitigate negative im-
WASH, Food finance, cash for livelihoods grants, vocational pacts. These rapid assessments should simply
Security, Shelter, training and others can be adapted for differ- define, assess and map the vulnerabilities and
Health and ent livelihoods contexts in urban or peri-urban resilience of different groups and how they
areas. might be affected by a humanitarian emer-
Protection. gency. Key elements of these vulnerability as-
Emergency Shelter: Shelter Kits and other sessments should include:
shelter assistance methods, including tents pro-
• Who are vulnerable groups in the affected
vision (IFRC, UNHCR, IOM, UN HABITAT), Local
urban settings, displaced and non-displaced
Estimate of Needs for Shelter and Settlement
residents, considering that vulnerabilities
– LENSS (Emergency Shelter Cluster), Haiti
and those affected vary by urban setting
Community Participatory Approach to Shelter
and crisis?
Site Selection and Design (UN HABITAT), Haiti
Return Strategy (Shelter and Early Recovery • What are the vulnerabilities they experience
Clusters), Risk Mapping for Shelter Response including multi-risk/hazard mapping?
Planning (UN HABITAT, UNDP, IFRC, UNHCR)
• What ‘triggers’ distinguish acute vulnerabil-
ity from chronic urban poverty?
WASH: WASH upgrading in schools and in-
tensified hygiene awareness (UNICEF and • The nature of resilience - immediate resourc-
NGOs), various approaches to emergency, es, coping mechanisms and community sup-
portable water, toilet provision and waste port networks that vulnerable people use.
management
The ground-breaking work in developing ur-
Health: SPEED Pilot system for improved ban vulnerability indicators for chronic emer-
health surveillance to track/report epidemio- gency contexts in close partnership with na-
logical outbreaks (HCT-Manila), Health Servic- tional, municipal and civil society partners,
es Availability and Regional Health Risk Map- being developed by the HCT in Nairobi, could
ping (WHO) help inform this work.
7
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
ing assistance to individuals and communities design and delivery of humanitarian programs
in urban areas need to be better adapted and in at-risk countries. (Action Lead: IASC Needs
refined. Assessment Task Force; Support: UN HABITAT,
NGOs and UNCT/HCTs)
Emergency Shelter: Transitional shelter and
relocation/resettlement solutions need to ac- Broaden the Rapid Protection Assessment
count for housing, land and property (HLP) Toolkit (RPAT) under development to incorpo-
complexities, land tenure security and host rate urban vulnerability analysis (Action Lead:
family support for shelter assistance. Ap- UNHCR and Protection Cluster; Support: NGOs
proaches to urban rubble removal and dis- and UNCT/HCTs))
posal need to be developed to free land for
Promote improved knowledge manage-
transitional or permanent shelter construction
ment of urban tools and methodologies by
(Haiti RTE)
creating a repository of useful tools and sup-
porting data bases for use in urban emergen-
WASH: Scaling-up of the innovative ap-
cies for wider dissemination and accessibility
proaches being tested in Nairobi and Manila,
by humanitarian agencies and public. Ensure
such as de-sludging technologies, pre-iden-
quality control, user-friendly repository design
tified waste disposal landfills and upgrading
and update of materials. (Action Lead: UN
school sanitary facilities.
HABITAT and NGOs; Support: Humanitarian
Partners)
Food Security: Urban Food Security Needs
Assessments for the most vulnerable and af- Identify approaches to land needs for tran-
fected populations need refinement as well as sitional shelter, long-term resettlement and
urban Market-based Approaches to provide sustainable livelihoods. This should include
Food Security Assistance, including guidance reviews of land rights, tenure types, occupan-
on cash, vouchers, food fairs, food produc- cy rights and land availability in cities. (Ac-
tion and similar tools in urban areas. Food aid tion Lead: Shelter and Early Recovery Clusters;
needs to consider the challenges of food prep- Support: IASC agencies and NGOs)
aration, distribution and urban-based agricul-
tural production in limited and very crowded
urban neighborhoods as well as security risks
related to stocking of large rations.
Strategic Objective
4
Livelihoods: Scale-up existing innovative
tools, such as microfinance and small business Promote Protection of
support, and more effectively target them in Vulnerable Urban Populations
urban areas, including through strengthened against Violence and
partnerships with local communities and pri- Exploitation
vate sector. New tools for enhanced natural
resources management and adaptation in dif- Issues and Gaps
fering livelihood contexts in urban and peri-
urban areas. The security and protection needs of affected
populations constitute one of the most signifi-
Health: Scaling up Health Vulnerability and cant differences between rural and urban set-
Risk Analysis and Mapping (VRAM) tings. The pressure on services and livelihoods
from urban-based emergencies on poor urban
Protection/Violence: Scale-up the Participa- households in densely populated towns can Scaling-up of
tory Protection Appraisal exacerbate poverty and discrimination leading the innovative
to the incidence of violence and exploitation.
Preparedness: Update UN and NGO country Growing urban violence accentuates vulner- approaches being
preparedness and contingency plans, in co- ability of poor urban populations through the tested in Nairobi
operation with national authorities. Develop destruction of basic infrastructure, displace-
tools for pre-crisis actor mapping, including
and Manila, such
ment, destroyed livelihoods as well as increas-
identification of stand-by agency and govern- ing mortality and morbidity through injuries,
as de-sludging
ment staff with urban experience for rapid de- disrupted food supply, malnutrition and weak- technologies, pre-
ployment and coordination ening of health systems. These same condi- identified waste
tions arise in the aftermath of crises precipitat-
Recommended Actions disposal landfills
ing an increase in urban violence as affected
populations compete for scarce life-saving re- and upgrading
Develop a methodology with indicators
across sectors for understanding and identi- sources such as food, water and shelter. school sanitary
Women may be subject to additional vio-
fying urban vulnerability and resilience in the facilities.
8
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
“ The pressure lence – rape, domestic violence and sexual tors, gangs, drug cartels, crime syndicates.
on services and exploitation. Vulnerable people, and especially
• The protection needs for increasing numbers
children, who may be separated from their
livelihoods from of refugees and IDPs who migrate to cities.
families face psychological trauma. Children
urban-based and adolescents can be vulnerable to recruit- • A key issue is to find ways of working in situ-
emergencies on poor ment by rebel armed forces and joining armed ations where governments might be associ-
gangs. Humanitarians can diminish the in- ated with the violence against communities
urban households in centives for involvement of young people in and are thus part of the protection issue for
densely populated urban violence through improved urban liveli- vulnerable groups and migrants.
towns can hood and employment opportunities in relief
and early recovery operations. Recommended Actions
exacerbate poverty
and discrimination Out of fear of harassment, detention and pos- Ensure that protection assessment meth-
leading to the sible refoulement many populations live in odologies created by the Protection Cluster,
precarious legal status, reducing and often among them the Rapid Protection Assessment
incidence of violence impeding their access to official mechanisms Tool kit, include the ability to identify and ad-
and exploitation.” of protection (police, courts and ombuds- dress concerns of affected populations in ur-
men). Similarly, urban refugees may be un- ban areas and broadly disseminate tool for
registered and undocumented in contrast to use by the humanitarian community. (Action
encamped refugees in rural areas. Many IDPs Lead: UNHCR; Support: Humanitarian Actors)
who become dispersed in urban areas or wish
to remain anonymous may also miss out on Develop, as needed, new policies and
registration for assistance and protection. strengthen existing policies and operational
tools to engage authorities on their obliga-
Targeting assistance runs the risk of offer- tions under human rights or refugee law in
ing preferential treatment to those displaced situations of urban violence or to mitigate
people who can be indentified and registered, the effects of such violence on at-risk popula-
thereby increasing the potential for tension tions.
and conflict with other city dwellers not re- Work with local partners to reinforce access
ceiving relief assistance. At the same time tar- for the most vulnerable to existing monitoring
geting may expose households and individuals and conciliatory mechanisms that safeguard
who wish to remain concealed. A community- individual or community rights at the munici-
based approach may be more appropriate to pal level.
address these sensitivities.
In crisis contexts, reinforce the dialogue
Human rights protection and security are with local enforcement agencies to prioritize
government prerogatives and responsibilities measures of physical protection of ‘at-risk’
through their national and municipal institu- groups, including IDPs and refugees, women
tions and legal frameworks. Humanitarian ac- and children.
tors have a key role to play in supporting these
responsibilities and in monitoring adherence.
Some innovative approaches have been devel- B. Maximize Sustainability of
oped such as the UNHCR’s new urban refugee the Humanitarian Response
policy2.
5
needed to improve urban-specific protection
strategies to limit the effects of urban violence. Restore Livelihoods and
Approaches are being developed by global Economic Opportunities
and local protection clusters, including ICRC as a Priority, starting in
and collaborating Red Cross/Crescent societ-
the Emergency Phase for
ies. Innovative approaches are being used in
Nairobi and Bogota which address two strate-
Expedited Early Recovery in
gic dimensions: Urban Areas
• General protection and security needs for
urban communities and specific groups such Issues and Gaps
as children or women threatened by conflict
or localised violence carried out by armed ac- Emergency activities need to more system-
atically enable crisis-affected households and
2 UNHCR: Policy on Refugee Protection and Solutions in Urban Areas,
UNHCR Geneva Sept 2009 www.unhcr.org/cgi-bin/texis/vtx/search?p
communities to restore their livelihoods rapid-
age=search&docid=4ab356ab6&query=urban%20refugees ly and sustainably. Recent post-earthquake ex-
9
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
6
and corporate enterprises.
• enhancing the role of protection mea- Build Preparedness into
sures for physical security of assets and pro- Humanitarian Assistance
tection from violence and extortion. Policies for more Effective
• ensuring an appropriate level of natural re- Emergency Responses
sources management and mitigating nega- that Save More Lives and
tive environmental impacts. Livelihoods in Urban Areas
• ensuring gender sensitivity in approaches
and more inclusion of the needs of urban
youth. Issues and Gaps
A recent ALNAP review highlighted several Because cities are home to large populations
principles which should guide humanitarian (over 3 billion of the world’s total population)
actors in supporting livelihood restoration as living at high densities and in impoverished
part of an emergency response3. The liveli- conditions, the potential impact of emergen-
hoods approach involves participatory meth- cies can be huge in terms of loss of life and
ods, local ownership of strategies and gender economic assets. At the same time, cities gen-
and youth sensitivity. erally provide a higher, although variable, level
of human and institutional resources to draw
upon for the delivery of emergency responses
and longer term community resilience.
3 ALNAP summary principles guiding humanitarian actors in re-
establishing local economies and livelihoods:
The increasing incidence of rapid onset disas-
• working with or through organizations of long standing in the
area, which already have an understanding of livelihoods ters attributed to climate change – through
• supporting aid delivery that uses and builds on local capacities, extreme weather events - is further impover-
thereby limiting the use of external personnel, and reducing costs
• taking time to understand how the urban poor are coping, and ishing the lives of one billion urban residents
designing aid programs to support these household initiatives to living in slums and informal settlements. Over
build ownership
• using participatory approaches in all stages of programming
60% of coastal areas are prone to climate
assessment, design, implementation, and monitoring and evalu- change-induced rising sea levels. Climate
ation change and its impacts on cities are predicted
• recognizing the importance of rural–urban linkages in providing
opportunities to deal with disasters in either locale. to cause more frequent disasters and humani-
Source: ALNAP Responding to urban disasters: Learning from previous tarian emergencies, both sudden and slow
relief and recovery operations,2009 page 17 www.alnap.org/pool/files/
alnap-provention-lessons-urban.pdf onset. Desertification will precipitate loss of
10
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
• Improve prepositioning of emergency stocks • World Vision International (WVI) will main-
of food, temporary shelter, health providers tain a liaison role between IWG agencies
and preparing logistics chains and establish- and the IASC regarding the Meeting Hu-
ing ‘pro-forma’ contracts with local provid- manitarian Challenges in Urban Areas strat-
ers egy implementation.
Develop a risk • Define roles and responsibilities of different
and vulnerability actors and mapping of capacities • Catholic Relief Services in Nairobi and Mercy
analysis and early • Strengthen citizen security, community po-
warning capacity, licing and monitoring roles by CSOs 4 The Inter-Agency Working Group (IWG) on Emergency Capacity was
formed in 2003 to address the challenge of increasing magnitude
including mapping • Build the capacity of partner national and and complexity of disasters and the capacity of the international
‘community hotspots’ local governments in responses and pre- NGOs with humanitarian mandates to respond to this challenge.
The IWG is composed of emergency directors from 7 agencies -
paredness
and potential crises CARE International, Catholic Relief Services, International Rescue
Committee, Mercy Corps, Oxfam GB, Save the Children and World
induced by extreme • Link humanitarian tools of urban-based Vision International - and discusses the most persistent obstacles in
preparedness to early recovery and develop- humanitarian aid delivery, including in urban areas. In October, 2010,
climate events mental goals through regular information-
the IWG members reviewed the draft IASC Final Strategy for Meet-
ing Humanitarian Challenges in Urban Areas and identified areas for
sharing and sustainable programs collaboration.
11
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
Corps in Kathmandu will share information by IWG agencies. This information will be
on related work with IWG member agencies used to link IWG agencies, knowledge base
and NGO’s with OCHA and UN HABITAT for and experience in urban emergencies more
the pilot frameworks for urban partnership effectively with the IASC urban strategy
and emergency planning and strategies de- framework and resources.
velopment in Kenya and Nepal.
• OXFAM, America, supported by WVI, will
inventory urban emergency engagements
12
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
The IASC Task Force on Meeting Humanitarian Challenges in Urban Areas recommends the following as the highest
priority actions to be undertaken by IASC member agencies in the coming two years on a voluntary and self-monitored
basis.
Strategic Objective 1: Develop 1.1 Develop a simple framework to: (a) map all stakeholders 1.1 Action Lead: OCHA Kenya,
Operational Strategies early-on involved and their capacities (including ministries/ OCHA Nepal, OCHA/UNCT
that ensure multi-stakeholder departments at national and/or municipal levels, IASC actors, Colombia; Support: UN
partnerships for enhanced disaster response and management actors, development HABITAT, UNDP, IWG (Catholic
coordination, impact and actors who have roles in response and early recovery, Relief Services in Kenya/Mercy
effectiveness of humanitarian donors, NGOs, civil society and private sector groups) and (b) Corps in Nepal) with local and
assistance in urban areas identify existing and means to strengthen coordination and international NGOs, FAO/WFP/
partnership with humanitarians in the event of a crisis, with UNICEF and UNCT/HCT Kenya
due consideration of the leadership and coordination role of and Nepal
host government institutions.
1.2 Action Lead: OCHA Kenya,
1.2 Pilot the framework in at least two at-risk cities/countries OCHA Nepal, OCHA/UNCT
including a review of synergies, gaps and existing and Colombia; Support: UN
needed processes for collaboration and productive HABITAT, UNDP, IWG (Catholic
relationships, including opportunities for capacity building. Relief Services in Kenya/Mercy
Corps in Nepal) with local and
1.3 Compile good practices, identify gaps and develop guidance international NGOs, FAO/WFP/
for community-based support and capacity-building in UNICEF and UNCT/HCT Kenya
urban areas, including host families’ support, displaced and and Nepal
not displaced for broader dissemination and accessibility
by humanitarian actors in order to deepen the impact of 1.3 Action Lead: IFRC and UNICEF;
humanitarian assistance. Support: ICRC, UN HABITAT,
IWG, FAO, WFP, NGOs and
UNCT/HCTs
Strategic Objective 2: Strengthen 2.1 Build stand-by technical capacity, by revising existing or 2.1 Action Lead: UN HABITAT,
Technical Surge Capacity for developing templates of technical TORs and rosters of Protection Cluster AOR for
Emergency Response in Urban- qualified consultants for long and short term deployments HLP; Support: FAO, WFP and
based Challenges in key urban technical areas such as land management and interested NGO partners;
tenure, urban WASH rehabilitation, transitional shelter and PROCAP and GENCAP roster
rehabilitation, urban food and nutrition security, rubble managers
removal as well as skills to coordinate the multiplicity of
urban actors in cooperation with local/national governments 2.2 Action Lead : UN HABITAT ;
Support : IOM, UNHCR, UNICEF,
2.2 IASC agencies and other humanitarian actors consider FAO, WFP and NGOs
strengthening inter-agency partnerships to share expertise
in urban WASH, urban food and nutrition security, land
and transitional shelter solutions, including the merits
of expanding the current IFRC/UN HABITAT Partnership
model as one approach for shelter humanitarian responses
cooperation.
13
IASC STRATEGY MEETING HUMANITARIAN CHALLENGES IN URBAN AREAS
Strategic Objective 3: Develop or 3.1 Develop a methodology with indicators across sectors 3.1 Action Lead: IASC Needs
Adapt Humanitarian Approaches for understanding and identifying urban vulnerability and Assessment Task Force; Support:
and Tools for Urban Areas resilience in humanitarian programs’ design and delivery in UN HABITAT, NGOs and UNCT/
at-risk countries. HCTs
3.2 Broaden the Rapid Protection Assessment Toolkit (RPAT) 3.2 Action Lead: UNHCR and
under development to incorporate urban vulnerability Protection Cluster; Support:
analysis NGOs and UNCT/HCTs
3.3 Promote improved knowledge management of urban tools 3.3 Action Lead: UN HABITAT and
and methodologies by creating a repository of useful tools NGOs; Support: Humanitarian
and supporting data bases for use in urban emergencies Partners
for wider dissemination and accessibility by humanitarian
agencies and public. Ensure quality control, user-friendly
repository design and update of materials.
4.1 Ensure that protection assessment methodologies created 4.1 Action Lead: UNHCR; Support:
Strategic Objective 4: Promote by the Protection Cluster, among them the Rapid Protection Humanitarian Actors)
Protection of Vulnerable Urban Assessment Toolkit, include the ability to identify and address
Populations against Violence and concerns of affected populations in urban areas and broadly
Exploitation disseminate tool for use by the humanitarian community.
Strategic Objective 5: Restore 5.1 Develop guidance on supporting food and nutrition security 5.1 Action Lead: FAO and WFP;
Livelihoods and Economic in post-crisis urban and peri-urban areas Support: UNCT/HCTs and NGOs
Opportunities as a Priority,
starting in the Emergency Phase
for Expedited Early Recovery
Strategic Objective 6: Build 6.1 Prepare a coherent and programmatic implementation plan 6.1 Action Lead: UN HABITAT;
Preparedness into Humanitarian for the strategic objective, including an assessment of the Support: IWG (Mercy Corps),
Assistance Policies for more often fragmented, urban preparedness tools and approaches Preparedness sub-WG, UNDP,
Effective Emergency Responses to identify existing good practices. IFRC, ISDR, FAO and UNCT/HCTs
and Save More Lives in Urban Colombia and Nepal
6.2. Pilot test the implementation plan in one or two at-risk
Areas
cities which would put national and municipal authorities
in leadership while identifying areas for coordination on
preparedness based on their capacities and potential
6.2 Action Lead: UN HABITAT;
response. Synergies should be encouraged in those countries
Support: IWG (Mercy Corps),
where multi-stakeholder partnership frameworks are being
Preparedness sub-WG, UNDP,
developed under Strategic Objective 1. Both exercises will
IFRC, ISDR, FAO and UNCT/HCTs
contribute to revising country/city contingency planning and
Colombia and Nepal
complement the planned five-country national preparedness
strengthening activity of the Sub-Working Group on
Preparedness. Among potential, initial at-risk pilot cities are
Kathmandu and Bogota.
14